Recreation Resources United States Department of Technical...

United States Department of Agriculture

Forest Service

Intermountain Region

Boise National Forest

May 2017

Recreation Resources Technical Report

In Support of the Environmental Assessment

South Pioneer Fire Salvage and Reforestation Project

Prepared by:/s/ Everardo Santillan Date: 3/17/2017 Everardo Santillan, Recreation Specialist

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South Pioneer Fire Salvage and Reforestation Project—Recreation Resources

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Table of Contents Table of Contents .................................................................................................................................... i

List of Tables .......................................................................................................................................... ii

List of Figures ........................................................................................................................................ ii

1. Recreation Resources ......................................................................................................................... 1

2. Analysis Questions ............................................................................................................................. 2

3. Relevant Laws, Regulations, and Policy ............................................................................................ 3

4. Relationship of This Project to the 2010 Forest Plan Goals, Objectives, and Desired Future Conditions Relevant to This Resource ................................................................................................... 4

5. Project Area Description .................................................................................................................... 5

6. Purpose and Need ............................................................................................................................... 5

7. Alternatives Considered in Detail ...................................................................................................... 5

7.1. Project Design Features ............................................................................................................... 5

8. Analysis Scale, Data Sources, and Methodology ............................................................................... 5

8.1. Analysis Scale ............................................................................................................................. 5

8.2. Data Sources and Analysis Methodology .................................................................................... 7

9. Issues, Indicators, and Measures ........................................................................................................ 7

10. Affected Environment ...................................................................................................................... 7

11. Environmental Consequences ........................................................................................................ 13

11.1. Alternative A (No Action) ....................................................................................................... 13

11.1.1. Direct and Indirect Effects ................................................................................................ 13

11.1.2. Alternative Conclusion ..................................................................................................... 15

11.2. Effects Common to All Action Alternatives ........................................................................... 15

11.2.1. Recreation Opportunity Spectrum .................................................................................... 15


11.2.3. Cumulative Effects ........................................................................................................... 16

11.3. Alternative B (Proposed Action) ............................................................................................. 19


11.3.2. Cumulative Effects ........................................................................................................... 21

11.3.3. Alternative Conclusion ..................................................................................................... 22

12. Forest Plan Consistency ................................................................................................................. 23

12.1. Recreation Objective 1047: ..................................................................................................... 23

13. Literature Cited ............................................................................................................................... 24


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List of Tables Table 1. Boise National Forest Land and Resource Management Plan Management Direction for

recreation resources ................................................................................................................... 4

Table 2. Summary of National Forest System (NFS) roads and trails, by motorized use designation, for Alternative A ..................................................................................................................... 13

Table 3. Groomed routes within the project area ................................................................................. 20

List of Figures Figure 1. Vicinity map and analysis area ............................................................................................... 6

Figure 2. Winter yurt access ................................................................................................................. 10

Figure 3. Snowmobile routes in the Boise National Forest and within the Pioneer Fire perimeter ..... 11

Figure 4. Road and trail closures as a result of the Pioneer Fire .......................................................... 12

Figure 5. Summer ROS classification, Boise National Forest ............................................................. 17

Figure 6. Winter ROS classification, Boise National Forest ................................................................ 18


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1. Recreation Resources The Proposed Action would likely result in short-term disruption and displacement of both summer and winter recreation visitors. The salvage of dead and hazard trees along roads and designated trail systems within the project area would require public safety closures for tree felling operations and haul routes. Under this alternative, the disruption and displacement of recreationists is expected within the project area from late spring 2017 through early summer 2018. Disruption and displacement of Idaho Department of Parks and Recreation (IDPR) yurt recreational users would occur in the short term; disruption and displacement would be minimized by Design Feature RE-4, which would prohibit snowplowing on access routes to Stargaze, Skyline, and Rocky Ridge yurts from November 15 to April 15, to allow winter rental operations to resume during winter 2017/2018. The Elkhorn and Banner Ridge yurts would resume operations in winter 2017/2018 if salvage operations and the mitigation of hazard trees has been accomplished. Access to other recreational areas such as the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho, would be disrupted due to intermittent closures or delays along National Forest System (NFS) road 384. Roads would be maintained and dust abatement applied to the road surface to reduce dust and increase visibility on this multipurpose primary travel route. Wintertime recreation activities (i.e., snow machine or cross-country ski use) may be disrupted due to a possibility of road closures and snowplowing associated with logging operations. This disruption would only occur if hauling operations were not completed by winter 2017/2018. Winter recreation in the area is primarily associated with the grooming of primary routes (Figure 3) by Boise County for snow machine use (Table 3) or from nonmotorized, over-snow use operated in cooperation with the IDPR. The disruption would occur only in the 2017/2018 winter grooming season, which is typically December 15 through March 15. Snowplowing would be restricted as stated above to allow for yurt rental operations in winter 2017/2018 at Stargaze, Skyline, and Rocky Ridge yurts. Snowplowing to access reforestation locations could occur in early spring after the grooming has ended but could disrupt late-season snow machine users in the project area. The Proposed Action would decrease the short- and long-term road maintenance needs within the project area. Hazard trees would be reduced, and the threat to human life and safety would decrease along roads open to all vehicles both seasonally and yearlong (Transportation Specialist Report). With implementation of the Proposed Action in the short term, nonnotarized trails and over-snow ski trails in the project area would be cleared of hazard trees and re-opened for use. More than other user groups, the short-term impact and increased disruption and displacement of recreational users participating in winter nonnotarized-use activities, such as cross country skiing, would be affected by the Proposed Action. The miles of groomed snow machine routes could be reduced in the 2017/2018 winter grooming season (December 15 through March 15). The costs associated with the grooming of snow machine routes by Boise County would decrease in the long term as a result of removal of dead and hazard trees along groomed routes. The same effect on groomed and ungroomed over-snow ski trails managed by the IDPR would occur (i.e., costs would decrease in the long term). Under the Proposed Action, developed recreation opportunities within the project area would decrease in the short term. Yurts managed and operated by the IDPR would have decreased operations and rental opportunities in the short term until hazards could be mitigated; long-term rental operations would continue as hazard trees are removed or felled along access routes and areas surrounding the yurts. The over-snow ski trail network groomed by the IDPR would see closures and use disruptions in the short term, as discussed above, but long-term benefits of dead and hazard tree salvage operations, along with hazard tree felling, would reduce long-term


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maintenance costs by the IDPR and reduce the exposure to hazard trees for this recreational user group. The Proposed Action would decrease dispersed recreation opportunities within the project area in the short term due to public safety closures. Opportunities for fuelwood gathering would decrease across the project area as, under the Proposed Action, dead and hazard trees are removed, with activities such as hunting, fishing, and berry and mushroom picking slightly affected in the short term from the effects of public safety closures in 2017 and 2018. With the No Action Alternative, the current public safety closure order (0402-00-49, Pioneer Fire—Version 11) authorized after the Pioneer Fire would remain in place. This order includes approximately 3,960 acres within the project area, which includes 3 yurts—Elkhorn, Rocky Ridge, and Skyline—and also includes the surrounding over-snow trail systems. Additional closures would likely take place every year for the foreseeable future. Groomed snow machine routes and over-snow ski trails managed by the IDPR could be affected by periods of inaccessibility, and the costs associated with the grooming would increase. Access to other recreational areas such as the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho, would be disrupted due to intermittent closures along NFS road 384. Public safety closures would occur as the need arises to address hazards within the project area, mainly associated with roads and trails. Increased road closures would occur, as needed, to address maintenance needs and hazard tree mitigation. Nonnotarized trails and over-snow ski trails would see similar effects, due to increased maintenance related to trail clearing and removal of down trees. The yurts managed and operated by the IDPR would experience decreased operations and rental opportunities in the short term until hazards could be mitigated. Clearing of roads and trails for yurt access would need to occur annually. The over-snow ski trail network groomed by the IDPR would see closures and use disruptions in the short term. Opportunities for general forest area (GFA) camping would be restricted, especially along NFS roads 312, 362, and 384. In both the short and long term, public safety issues would persist, with limited funds and opportunities available to land managers to address hazard tree mitigation along all roads and trail systems in the project area.

2. Analysis Questions 1. How would proposed activities disrupt or displace recreation users within the analysis area? 2. What is the potential effect on motorized and nonmotorized recreational access within the

analysis area? 3. What kind of winter/summer recreation disruption would this project have? 4. How would the proposed activities mitigate recreational user hazards? 5. Would the proposed project minimize the length of the current Health and Safety closure

order? 6. Would the proposed activities change the current Recreation Opportunity Spectrum (ROS)?

ROS classification is as defined in the 2010 Boise National Forest Land and Resource Management Plan (Forest Plan) for Management Area (MA) 7, North Fork Boise River area (USDA Forest Service 2010a, p. III-190).


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3. Relevant Laws, Regulations, and Policy The following laws and regulations govern the recreation, heritage, wilderness, and wild and scenic rivers programs and would apply to recreation relating specifically to the analysis area and both alternatives: National Trails System Act (16 USC 1241 (note), 1241–1249): This Act establishes a National Trails System of National Recreation, National Scenic, and National Historic Trails and connecting and side trails for the purpose of providing trail recreation opportunities. The Act addresses development and administration of these trails. Travel Management Rule (36 CFR part 212, subpart B): These regulations require that motor vehicle use on NFS roads, on NFS trails, and in areas on NFS lands must be designated by vehicle class and, if appropriate, by time of year by the Responsible Official for administrative units or Ranger Districts. Forest Service Manual [FSM] 2310.3 – Policy (FSM CHAPTER 2310 – PLANNING AND DATA MANAGEMENT) 1. Use the Recreation Opportunity Spectrum (ROS) to establish planning criteria, generate

objectives for recreation, evaluate public issues, integrate management concerns, project recreation needs and demands, and coordinate management objectives.

2. Use the ROS system to develop standards and guidelines for proposed recreation resource use and development.

3. Use the ROS system guidelines to describe recreation opportunities and coordinate with other recreation suppliers.

4. Recognize individual National Forests need not provide recreation opportunities in each ROS class.

5. Do not provide urban opportunities with appropriated or other public funds. Channel urban class provided by private sector funds to private land if available.

FSM 2330.3 – Policy (FSM CHAPTER 2330 – PUBLICLY MANAGED RECREATION OPPORTUNITIES) 1. Manage publicly provided recreation opportunities in accordance with FSM 2303. 2. Utilize a broad set of resources including appropriations, cooperative relationships with not-

for-profit and for-profit entities, intergovernmental collaboration, and retained recreation fees to provide the full spectrum of recreation and heritage settings and opportunities.

3. Use recreation opportunity spectrum (ROS) guidelines (FSM 2310 and FSH 2309.13, sec. 11.1, ex. 01) when planning, designing, and managing recreation sites for existing and new uses.

4. Utilize appropriate grants and agreements to involve non-profit entities and other governmental entities in the management of recreation facilities and programs.

FSM 2350.3 – Policy (FSM CHAPTER 2350 – TRAIL, RIVER, AND SIMILAR RECREATION OPPORTUNITIES) 1. Manage trail, river, and similar recreation opportunities and their recreational access and

support facilities under the principles enumerated in FSM 2303.


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2. Emphasize recreation opportunities and supporting facilities that are consistent with applicable Recreation Opportunity Spectrum classes.

3. Coordinate management of trail, river, and similar recreation opportunities with management of neighboring recreational sites and facilities, including campgrounds, picnic areas, ski areas, resorts, and, as appropriate, recreational facilities off National Forest System (NFS) lands.

4. Coordinate management of trail, river, and similar recreational opportunities with other related resource management activities to maximize efficiency and integrate management objectives, as appropriate.

5. Regulate uses to the extent necessary to provide for user and public safety; to protect natural, cultural, and historical resources; to minimize conflict and maximize responsible use; to achieve recreation experience objectives; and to comply with Federal and State laws.

4. Relationship of This Project to the 2010 Forest Plan Goals, Objectives, and Desired Future Conditions Relevant to This Resource The project is designed to move toward Goals and Objectives in the Forest Plan, to follow Guidelines, and to meet all applicable Standards. The following direction (see Table 1) has been developed at a forest level and relates specifically to recreation management in achieving desired outcomes and conditions for both land stewardship and public services. Table 1. Boise National Forest Land and Resource Management Plan Management Direction for

recreation resources Management Prescription

Category/Resource Direction Number Management Direction Description

Recreation Objective 0739 Emphasize nonmotorized uses on the Banner Ridge, Elkhorn

Summit, Skyline, and Beaver Creek groomed cross-country ski trails to maintain this winter recreation opportunity.

Recreation Objective 0741 Manage dispersed recreation use in riparian corridors to

reduce impacts to soil, water, and fish habitat, and improve the recreational setting.

Recreation Objective 0742

Achieve and maintain the following Recreation Opportunity Spectrum (ROS) strategy in management area:

The above numbers reflect current travel regulations. These numbers may change as a result of future travel regulation

planning.

Source of ROS classification: 2010 Forest Plan for MA 7, North Fork Boise River area (USDA Forest Service 2010a, p. III-190).


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5. Project Area Description The project area is fully described in Chapter 1 of the environmental assessment (EA).

6. Purpose and Need The Purpose and Need for this project was developed by the Interdisciplinary Team (IDT) and approved by the Responsible Official. Refer to Chapter 1 of the EA for a detailed description of the project Purpose and Need.

7. Alternatives Considered in Detail The alternatives considered in detail are fully described in Chapter 2 of the EA.

7.1. Project Design Features The design features applicable to all alternatives, as well as those specific to one of the alternatives, are fully described in Chapter 2 of the EA. Design features to be addressed in the effects disclosure for this resource are identified below. The remaining design features identified in Chapter 2 would not affect this resource area; therefore, they are not identified below. Recreation Resources Design Features RE-1. Coordinate Purchaser/Contractor campsites with the Recreation Specialist to avoid or minimize impacts to dispersed recreation users. RE-2. Trees will be directionally felled away from authorized trails where feasible. Any stumps within 3 feet of the finished slope of the trail will be flush cut to meet Forest Service trail standards. RE-3. Identify project area authorized trails in the timber sale contract. For the authorized trails falling within or immediately adjacent to harvest units, specific contract provisions will be included to protect National Forest System improvements; maintain access or use; and protect or minimize impacts to trail surfaces, trail heads, trail access, and recreation opportunities. The Sale Administrator shall designate all skid trails crossing authorized trails and shall consult with the Recreation Specialist on appropriate maintenance or repair necessary to return the trail to its preexisting condition. RE-4 (South Only). Prohibit snow plowing on the following roads within the Project area from November 15 to April 15 to allow winter access to yurts: NFS 394B (Stargaze Yurt), NFS 362F (Skyline Yurt), and 025M/362D (Rocky Ridge Yurt).

8. Analysis Scale, Data Sources, and Methodology 8.1. Analysis Scale The analysis area for direct, indirect, and cumulative effects is approximately the 39,100-acre project area (Figure 1). Analysis includes information regarding the existing type of recreation activities and impacts from the proposed activities to recreation resources, and is limited to the project area because this is the largest extent to which impacts from the proposed activities to recreation resources could be measured.


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Figure 1. Vicinity map and analysis area


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8.2. Data Sources and Analysis Methodology The methodology used to complete the analysis was evaluation of the project Geographic Information System (GIS) data including ROS, roads, trails, the Motor Vehicle Use Map (MVUM), the Transportation Specialist Report, current closure areas, and field observations to determine the alternatives’ impacts to the indicators. In addition, the proposed activities were evaluated against the analysis area’s existing ROS classifications, to verify consistency.

9. Issues, Indicators, and Measures The following indicators are used to analyze and evaluate the measure of change between the affected environment and the effects, both short term (0–5 years) and long term (5–15 years), of the alternatives for recreational resources in the analysis area: Indicator: Disruption/Displacement of Recreation Users—this indicator is used to evaluate disruption and/or displacement of recreation users in the analysis area as a result of proposed activities (measured by length of closure order). Indicator: Motorized and Nonnotarized Recreational Access—this indicator is used to evaluate the impacts of each alternative to both motorized and nonmotorized access in the analysis area. Measures used for this indicator include:

• Miles of NFS roads and trails designated for motorized and nonmotorized travel

• Miles of NFS roads/trails groomed for use in the snow season by snow machines

• Miles of NFS roads/trails with/without closure orders Indicator: Developed and Dispersed Recreation—This indicator is used to evaluate impacts of each alternative to developed and dispersed recreation activities, including camping, hunting, yurt/cabin access, scenic driving, and fuelwood gathering, in the analysis area. Measures used for this indicator include:

• IDPR yurt and over-snow ski trail management

• Changes in areas where dispersed camping is allowed, as displayed on the MVUM

• Public safety and hazard tree mitigation Indicator: Recreation Opportunity Spectrum (ROS) Classification—this indicator is used to evaluate the consistency of each alternative to the current ROS classifications, as defined in the 2010 Forest Plan for MA 7, North Fork Boise River (USDA Forest Service 2010a, p. III-190).

10. Affected Environment The South Pioneer Salvage and Reforestation Project area is located 18 miles north of Idaho City on both sides of State Highway 21. Historically, the South Pioneer Project area experiences a significant number of summer/winter recreationalists, with some general forest area (GFA) camping, skiing, snowmobile riding, and fall hunting. In the winter, this area has numerous visitations from snowmobile users at Mores Creek Summit and Whoop-Um-Up snow parking areas. A big winter attraction to this part of the Ranger District are the IDPR yurts, over-snow trails, and forest service rental cabin (Beaver Creek Guard Station), which can be accessed from groomed roads and trails. The IDPR yurts are mainly accessed from Gold Fork, Banner Ridge, or


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Beaver Summit parking areas. Boise County maintains the groomed snowmobile routes in the area per an agreement with the Forest Service. The influx of winter visitors to this area expands to the surrounding Boise National Forest, which leads to an increase of recreation use in the area. The project area features approximately 27.6 groomed miles of NFS roads that are maintained as snow machine trails during the winter season. The snow machine trails are used extensively during the snow season (USDA Forest Service 2010a, III-310) and are groomed through an agreement between the IDPR, the Forest Service, and Boise County grooming (Agreement 13-CS-11040204-004) (see Figure 3). The project area receives heavy dispersed recreation use, such as camping, seasonal hunting, scenic driving, and firewood gathering. GFA camping mainly occurs along NFS roads 312, 362, 384, and other NFS roads that are maintenance level (ML) 2 or higher. However, GFA camping use increases during the fall seasonal hunting periods along NFS roads designated as open on the MVUM map. Camping in GFA is allowed within 300 feet of NFS roads designated open on the MVUM map within the project area. Camping in this area requires the user to be self-sufficient and is further defined as camping anywhere in the Forest outside of a developed campground. There are 2 developed campgrounds within the project area, Edna Creek and Whoop-Um-Up; a Forest Service rental cabin, Beaver Creek; and 5 usable yurts managed by IDPR: Rocky Ridge, Stargaze, Skyline, Banner Ridge, and Elkhorn (Figure 2). Recreation access is available by motorized and nonmotorized access. The motorized vehicle designated access “Roads Open to All Vehicles, Yearlong” is limited to approximately 71.6 miles of the 274.1 miles of authorized NFS road, while another 30.4 miles are “Roads Open to All Vehicles, Seasonal.” About 70.1 miles of authorized NFS motorized trails occur within the project area. All routes and areas open to motorized GFA camping are identified in the Idaho City Ranger District MVUM. The NFS road 384 is a primary travel route for summer recreation access to the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho. The Pioneer Fire began on July 18, 2016, when hot temperatures, strong winds, and dry conditions exacerbated by a lack of late-summer monsoonal moisture, fueled the fire’s growth to more than 64,000 acres by August 9, 2016, and to 190,000 acres by September 15, 2016, affecting 27 drainages within the Idaho City, Lowman, and Emmett Ranger Districts on the Forest. Several public safety closure orders were put into place during and post-fire to address public safety from the wildfire itself, and to address safety concerns post-fire with hazards such as standing dead trees and hazardous snags. The current public safety closure order (0402-00-49, Pioneer Fire—Version 11) (Figure 4), which was authorized after the Pioneer Fire, is in place and includes closed access to 3 of the 5 IDPR-managed yurts and over-snow ski trails. The current closure order was established after the project area was evaluated for hazards and associated risks. The entire project area was not accessed for tree and road hazards prior to winter and heavy snowfall; as a result, the current closure order only comprises an area assessed for immediate hazards for winter recreation access. Immediately after the fire, high-priority hazard trees around NFS-developed sites and along NFS roads and trails to remain open to public use during winter 2016/2017 (e.g., priority snowmobile routes, yurts) and that were likely to directly cause “considerable adverse effects on public safety” (36 CFR 212.52(b)(2)) were addressed as soon as practicable (Forest Service Handbook [FSH] 7709.59, section 41.7(2)(b)), during fall 2016, through wildfire suppression efforts and other Forest Service activities. These high-priority imminent hazard trees along priority routes were identified and felled within the Pioneer Fire perimeter. Some of these routes are located in the project area (Figure 3). In addition to the felling of imminent hazards along priority roads and trails, 2 yurts


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(Figure 2), Banner Ridge and Stargaze, were re-opened after short-term imminent hazards were mitigated with a fell-and-leave approach in order to accommodate reservations for fall 2016.


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Figure 2. Winter yurt access


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Figure 3. Snowmobile routes in the Boise National Forest and within the Pioneer Fire perimeter


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Figure 4. Road and trail closures as a result of the Pioneer Fire


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11. Environmental Consequences 11.1. Alternative A (No Action) 11.1.1. Direct and Indirect Effects The No Action Alternative provides a baseline against which impacts of the Proposed Action can be measured and compared. Under this alternative no new management activities would occur, and all other ongoing activities (e.g., recreational activities, public fuelwood gathering, livestock grazing, motorized travel, general forest camping [GFA], yurt operations, over-snow trails, etc.) would continue. However, the No Action Alternative would have some direct or indirect effects on the current recreational uses or opportunities within the project area, which would include the operation and management of yurts and over-snow trails by the IDPR.

11.1.1.1. Disruption/Displacement Some change to the amount, duration, and/or frequency of disruptions and/or displacement of recreational users in the analysis area is expected with implementation of the No Action Alternative. The current public safety closure order (0402-00-49, Pioneer Fire—Version 11) (Figure 4) authorized after the Pioneer Fire would remain in place, including approximately 3,960 acres within the project area, which includes 3 yurts—Elkhorn, Rocky Ridge, and Skyline—and also includes the surrounding over-snow ski trail systems. Additional closures are expected to take place every year for the foreseeable future as roads, trails, dispersed camping areas, yurts, and over-snow trails are evaluated for hazards from standing dead trees that would impact these routes or areas. Groomed snow machine routes could be affected by periods of inaccessibility from tree breakage and high densities of down trees from winter storms (Figure 3). The same effect on groomed and ungroomed over-snow ski trails managed by the IDPR would occur from tree breakage and high densities of down trees. The costs associated with the grooming of these snow machine routes by Boise County and the IDPR would increase due to the additional clearing of down trees. Access to other recreational areas such as the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho, would be disrupted from intermittent closures along NFS road 384. No direct or indirect effects would occur to long-term access, but short-term access would be affected by some level of closures for public safety (Table 2). These public safety closures would occur as the need arises to address hazards within the project area, mainly associated with roads and trails. Table 2. Summary of National Forest System (NFS) roads and trails, by motorized use designation,

for Alternative A

11.1.1.2. Motorized and Nonmotorized Recreational Access The No Action Alternative would increase the road maintenance needs within the project area, while Forest funding for road maintenance would remain unchanged and the threat to human life

NFS Roads Designation Length Season

NFS roads Open to All Vehicles, Yearlong 71.6 miles January 1 through December 31

NFS roads Open to All Vehicles, Seasonal 30.4 miles July 1 through September 30

NFS trails Open to Single-track Motorized Use 19.3 miles January 1 through

December 31


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and safety would increase where hazard trees remain along roads open yearlong or seasonally (Transportation Specialist Report). Currently, a total of 4.4 miles of NFS roads are closed within the project area under the closure order. Increased road closures would occur, as needed, to address maintenance needs and hazard tree mitigation, leading to a disruption of travel and access on NFS lands within and outside of the project area (Transportation Specialist Report). Nonmotorized trails and over-snow ski trails would see similar effects due to increased maintenance related to trail clearing and removal of down trees. Groomed snow machine routes could be affected by periods of inaccessibility from tree breakage and high densities of down trees from winter storms (Figure 3). The same effect on groomed and ungroomed over-snow ski trails managed by the IDPR would occur from tree breakage and high densities of down trees. The costs associated with the grooming of these snow machine routes by Boise County and the IDPR would increase due to the additional clearing of down trees. Access to other recreational areas, such as the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho, would be disrupted due to intermittent closures along NFS road 384.

11.1.1.3. Developed Recreation Developed recreation opportunities within the project area would decrease in the short term under the No Action Alternative. Opportunities for use of developed campgrounds (Edna Creek and Whoop-Um-Up) and the cabin rental (Beaver Creek) would not be affected; hazard trees could be mitigated with Burned Area Emergency Response (BAER) actions. The yurts managed and operated by the IDPR would have decreased operations and rental opportunities in the short term until hazards could be mitigated. Clearing of roads and trails for yurt access would need to occur annually in both the short and long terms; the immediate vicinity around yurt facilities would be cleared of hazard trees in summer 2017. Other improvements such as park-and-ski areas and trailheads would need hazard tree mitigation prior to continued use. The over-snow ski trail network groomed by the IDPR would see closures and use disruptions in the short term.

11.1.1.4. Dispersed Recreation Dispersed recreation opportunities within the project area would decrease in the short term under the No Action Alternative. Opportunities for GFA camping that occurs would be restricted, especially along NFS roads 312, 362, and 384, until hazard trees could be mitigated; hazard trees would create safety concerns outside of the GFA camping primary corridors along NFS roads 312, 362, and 384. Opportunities for fuelwood gathering would increase across the project area, with activities such as hunting, fishing, and berry and mushroom picking slightly affected in the short term. In both the short and long terms, public safety issues would persist, with limited funds and opportunities available to land managers to address hazard tree mitigation along all roads and trail systems in the project area.11.1.2 Cumulative Effects Some cumulative effects associated with this alternative would occur because there are direct or indirect effects to recreational uses and opportunities under the No Action Alternative. Users have been displaced twice so far from the project area as a result of the Pioneer wildfire: once from the closure for firefighting the fire, and once due to the trail closure for the public health and safety aspect. Under the No Action Alternative, users would most likely be prohibited from the project area for a longer period of time. With this alternative, immediate hazards would take longer to eliminate (5–15 years) given the current workforce and funds available. The BAER activities planned for 2017 would reduce hazard trees in the developed campgrounds and administrative sites, with some short-term disruptions and displacement.


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11.1.2. Alternative Conclusion The current public safety closure order (0402-00-49, Pioneer Fire—Version 11) authorized after the Pioneer Fire would remain in place, including approximately 3,960 acres within the project area, which includes 3 yurts—Elkhorn, Rocky Ridge, and Skyline—and also includes the surrounding over-snow trail systems. Additional closures would be expected to take place every year for the foreseeable future. Groomed snow machine routes and over-snow ski trails managed by the IDPR could be affected by periods of inaccessibility, and the costs associated with the grooming would increase. Access to other recreational areas, such as the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho, would be disrupted due to intermittent closures along NFS road 384. Public safety closures would occur as the need arises to address hazards within the project area, mainly associated with roads and trails. Increased road closures would occur, as needed, to address maintenance needs and hazard tree mitigation. Nonmotorized trails and over-snow ski trails would see similar effects due to increased maintenance related to trail clearing and removal of down trees. The yurts managed and operated by the IDPR would have decreased operations and rental opportunities in the short term until hazards could be mitigated. Clearing of roads and trails for yurt access would need to occur annually. The over-snow ski trail network groomed by the IDPR would see closures and use disruptions in the short term. Opportunities for GFA camping would be restricted, especially along the NFS roads 312, 362, and 384. In both the short and long terms, public safety issues would persist, given limited funds and opportunities available to land managers to address hazard tree mitigation along all roads and trail systems in the project area.

11.2. Effects Common to All Action Alternatives The actual miles of motorized and nonmotorized trails, along with NFS roads open to all vehicles yearlong or roads open to all vehicles seasonally, would remain unchanged under both the No Action Alternative and the Proposed Action. During Pioneer Fire restoration work, including salvage, transportation system repairs, trail/bridge repairs, culvert repairs, and reforestation projects, access may be temporarily closed. The Forest Service is working hard to minimize post-wildfire impacts to all recreation users and will be keeping users up to date on project implementation activities via both the Boise National Forest website and press releases. Camping in GFAs will be allowed outside the designated closure order areas (as timber activities are taking place). The closure areas will constantly change depending upon on-the-ground restoration activities including salvage logging, transportation repairs, and reforestation projects.

11.2.1. Recreation Opportunity Spectrum The Recreation Opportunity Spectrum (ROS) (USDA Forest Service 1986) is a classification system in which components of recreation settings and facilities, such as access, developed sites, activities, and experiences, are organized and arranged along a continuum or spectrum. The continuum ranges from very primitive settings and experiences to highly concentrated, urbanized ones. Each class is defined in terms of its specific combination of activities, setting, facilities, and experience opportunities. The ROS provides a framework for defining the types of outdoor recreation settings, opportunities, and experiences that exist or could be provided in a given area. It also provides a context and tool for estimating and describing recreation resources, as well as effects to those resources from alternative management strategies and actions.


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Only 3 summer ROS classifications occur within the analysis area: Roaded Modified (29,649 acres), Roaded Natural (9,014 acres), and Semi-primitive Motorized (293 acres) (Boise National Forest, Summer ROS GIS data) (also see Figure 5). There are 3 winter ROS classifications occurring within the analysis area: Roaded Natural (5,841 acres), Semi-primitive Motorized (22,258 acres), and Semi-primitive Nonmotorized (10,857 acres) (Boise National Forest, Winter ROS GIS data) (also see Figure 6). The following paragraphs include brief discussions surrounding ROS classes within the analysis area.

11.2.2. Direct and Indirect Effects The Proposed Action alternatives would not have direct or indirect effects to the summer or winter ROS classifications within the analysis area. Additionally, neither alternative proposes any changes to the over-snow or winter recreation use in the analysis area. Therefore, no modification of summer ROS or winter ROS within the analysis area would be required.

11.2.3. Cumulative Effects Given that there would be no direct or indirect effects to the existing ROS classifications within the analysis area, no cumulative effects to ROS would be expected with implementation of either alternative.


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Figure 5. Summer ROS classification, Boise National Forest


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Figure 6. Winter ROS classification, Boise National Forest


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11.3. Alternative B (Proposed Action)

11.3.1. Direct and Indirect Effects The Proposed Action would implement activities and actions as described in detail in Chapter 1 of the EA. Under this alternative, management activities would occur that would include direct or indirect effects on the current recreational uses or opportunities within the project area.

11.3.1.1. Disruption/Displacement The Proposed Action would likely result in short-term disruption and displacement of both summer and winter recreation visitors. Summer recreation opportunities, including motorized and nonmotorized users, campers, and hunters, would be affected by road, trail, and area-wide closures for public safety during project implementation. The salvage of dead and hazard trees along roads and designated trail systems within the project area would require public safety closures for tree felling operations and haul routes. The disruption and displacement of recreationists are expected within the project area from late spring 2017 through early summer 2018. The current public safety closure order (0402-00-49, Pioneer Fire—Version 11) (Figure 4) authorized after the Pioneer Fire would remain in place, which includes about 3,960 acres within the project area, and would be expanded in the short term. The current closure order includes 3 IDPR yurts—Elkhorn, Rocky Ridge, and Skyline—and also includes the surrounding over-snow ski trail system. Beginning June 2017, 2 additional IDPR yurts—Stargaze and Banner Ridge, located within and immediately adjacent to proposed treatment areas, along with their associated access systems, would be closed to public use until November 2017. Although disruption and displacement of IDPR yurt recreational users would occur in the short term, disruption and displacement would be minimized by Design Feature RE-4, which would prohibit snowplowing on access routes to Stargaze, Skyline, and Rocky Ridge yurts from November 15 to April 15 to allow winter rental operations to resume during winter 2017/2018. The Elkhorn and Banner Ridge yurts would resume operations in winter 2017/2018 if salvage operations and the mitigation of hazard trees have been accomplished. In areas cleared of hazards and open to the public access, harvesting and road maintenance activities would impact recreation use during the summer due to localized noise, dust, and increased traffic within the analysis area. However, recreationists would likely shift their use in the short term to nearby NFS lands, away from areas impacted by proposed activities, in order to maintain their recreational experience. Access to other recreational areas, such as the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho, would be disrupted due to intermittent closures along NFS road 384. No direct or indirect effects would occur to long-term access, but short-term access would be affected by some level of closures for public safety (Table 2). Roads would be maintained and dust abatement applied to the road surface to reduce dust and increase visibility on this multipurpose primary travel route; intermittent closures or delays would be expected with project implementation. Wintertime recreation activities (i.e., snow machine or cross-country ski use) may be disrupted due to road closures and snowplowing associated with logging operations. This disruption would only occur if hauling operations are not complete by winter 2017/2018. Winter recreation in the area is primarily associated with the grooming of primary routes (Figure 3) by Boise County for snow machine use (Table 3) or from nonmotorized, over-snow use operated in cooperation with the IDPR. The disruption would be expected to occur only in the 2017/2018 winter grooming season, which is typically December 15 through March 15. Snowplowing would be restricted as stated above to allow for yurt rental operations during winter 2017/2018 at Stargaze, Skyline, and Rocky


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Ridge yurts. Snowplowing to access reforestation locations may occur in early spring after the grooming has ended, but could disrupt late season snow machine users in the project area. Snowplowing associated with reforestation and tree planting could occur over multiple years and could last up to 10 years. The amount of late season snow machine use is minimal and therefore is expected to create minimal disruptions to users. Table 3. Groomed routes within the project area

Road/Route Maintenance Level Miles Status 382 Level 3 14.0 Groomed every year 349 Level 2 13.6 Groomed every year Total 27.6

11.3.1.2. Motorized and Nonmotorized Recreational Access The Proposed Action would decrease the short- and long-term road maintenance needs within the project area while providing funding for road maintenance by salvaging dead and hazard trees alongside roads open to motorized recreational use. Hazard trees would be reduced, and the threat to human life and safety would decrease along roads open to all vehicles both yearlong and seasonally (Transportation Specialist Report). Increased road closures in the short term would occur, as needed, to address public safety concerns associated with the salvage of dead and hazard trees, which would disrupt travel and access on NFS lands within and outside of the project area (Transportation Specialist Report). In the short term, nonmotorized trails and over-snow ski trails in the project area would be cleared of hazard trees and re-opened for use with implementation of the Proposed Action. Over-snow ski trail networks associated with the yurts and located along State Highway 21 would be impacted from salvage and hazard tree felling operations during the winter season 2017/2018. The short-term impact and increased disruption and displacement of recreational users participating in winter nonmotorized use activities such as cross-country skiing would be affected by the Proposed Action more than other user groups. It would be costlier and more time consuming for this user group to participate in these activities. Users would need to travel further distances (Cascade, Donnelly, or McCall) and would be less likely to shift their use in the short term to nearby NFS lands, away from areas impacted by proposed activities, in order to maintain their recreational experience. The miles of groomed snow machine routes may be reduced in the 2017/2018 winter grooming season, which is typically December 15 through March 15. The costs associated with the grooming of snow machine routes by Boise County would decrease in the long term due to removal of dead and hazard trees along groomed routes. The same effect on groomed and ungroomed over-snow ski trails managed by the IDPR would occur, and costs would decrease in the long term. Snowplowing to access reforestation locations may occur in early spring after the grooming has ended but could disrupt late season snow machine users in the project area. Snowplowing associated with reforestation and tree planting could occur over multiple years and could last up to 10 years. Access to other recreational areas such as the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho, would be disrupted due to intermittent closures along NFS road 384.

11.3.1.3. Developed Recreation Developed recreation opportunities within the project area would decrease in the short term under the Proposed Action. Opportunities for use of developed campgrounds (Edna Creek and Whoop-Um-Up) and the cabin rental (Beaver Creek) would not be affected; hazard trees could be mitigated with BAER actions. Although the yurts managed and operated by the IDPR would have


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decreased operations and rental opportunities in the short term until hazards could be mitigated, long-term rental operations would continue as hazard trees are removed or felled along access routes and areas surrounding the yurts. Disruption and displacement of IDPR yurt recreational users would occur in the short term; however, disruption and displacement would be minimized by Design Feature RE-4, which would prohibit snowplowing on access routes to Stargaze, Skyline, and Rocky Ridge yurts from November 15 to April 15 to allow winter rental operations to resume during winter 2017/2018. The Elkhorn and Banner Ridge yurts would resume operations in winter 2017/2018 if salvage operations and the mitigation of hazard trees have been accomplished. Other improvements such as park-and-ski areas and trailheads would receive hazard tree mitigation prior to continued use. The over-snow ski trail network groomed by the IDPR would see closures and use disruptions in the short term as discussed above, but the long-term benefits of dead and hazard tree salvage operations along with hazard tree felling would reduce long-term maintenance costs by the IDPR and reduce the exposure to hazard trees for this recreational user group.

11.3.1.4. Dispersed Recreation The Proposed Action would decrease dispersed recreation opportunities within the project area in the short term due to public safety closures. Under Proposed Action implementation, opportunities for GFA camping would be restricted or reduced in the project area during 2017 and 2018. Long-term GFA access would remain unchanged as currently displayed on the MVUM, with short-term closures removed quickly as hazardous conditions are addressed along roads, trails, and GFA camping and general recreation sites. Opportunities for fuelwood gathering would decrease across the project area as dead and hazard trees are removed under the Proposed Action, with activities such as hunting, fishing, and berry and mushroom picking slightly affected in the short term due to the effects of public safety closures in 2017 and 2018. In both the short and long terms, hazards to public safety would be reduced along roads, trails, and GFA camping and general recreation areas. Funding from salvage receipts would be given to land managers to address hazard tree mitigation along trail systems in the project area.

11.3.2. Cumulative Effects

11.3.2.1. Past Activities Past activities have contributed to the existing conditions for recreational access and opportunities in the analysis area and therefore are included in the affected environment discussion and have been included in the existing condition baseline for direct and indirect effects; therefore, no cumulative effects would occur under the Proposed Action. Recreation users have been displaced twice so far from the project area as a result of the Pioneer wildfire: once from the closure for firefighting the fire and once due to the trail closure to address public safety. The Proposed Action would add to the temporal disruption and spatial displacement of recreational users within the project area in the short term due to the public safety closures to facilitate dead tree and hazard salvage operations.

11.3.2.2. Present/Ongoing Activities Ongoing activities such as road use and maintenance, trail use and maintenance, livestock grazing, and fire suppression would be expected to continue within the analysis area. Minor disruptions and/or displacement to recreational users in the analysis area may occur with ongoing activities including livestock grazing, road and trail maintenance, and fire suppression. Minor recreation access disruptions may occur during scheduled maintenance of NFS roads and trails in the analysis area, as has occurred historically. Recreational users may encounter livestock during their visits to


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the analysis area, depending on time of year and the grazing rotation and routing pattern. The ongoing Becker Integrated Resource Project (2016) has been included in the existing condition baseline for direct and indirect effects; therefore, the Becker Integrated Resource Project will produce no cumulative effects.

11.3.2.3. Reasonably Foreseeable Activities The Forest will experience some proposed road and trail projects as a result of BAER and, potentially, the North Pioneer Salvage and Reforestation Project, which would add to displacement of users in the project area. The BAER projects would create additional disruption and displacement during activities planned for 2017, mainly associated with developed recreational facilities such as with developed campgrounds, trailheads, and park-and-ski areas. With the proposed implementation of the North Pioneer Project and its additional 28,007 acres and the associated miles of road, trail, summer, and winter recreational opportunities, a greater disruption and displacement of recreation users would occur. Although this project does not directly overlap with the South Pioneer Project area, several roads and groomed snow machine routes cross through both these projects based on their adjacency (Figure 3). The adjacency would lead to an increased amount of disruption and displacement to dispersed recreation users from the cumulative public safety closures in the short term, affecting a much greater area. Along with harvesting and road maintenance activities, this would have a cumulative impact on recreation use, especially during the summer, from localized noise, dust, and increased traffic. However, recreationists would likely shift their use in the short term to nearby NFS lands, away from areas impacted by proposed activities, in order to maintain their recreational experience.

11.3.3. Alternative Conclusion The Proposed Action would be expected to result in short-term disruption and displacement of both summer and winter recreation visitors. The salvage of dead and hazard trees along roads and designated trail systems within the project area would require public safety closures for tree felling operations and haul routes. The disruption and displacement of recreationists would likely occur within the project area from late spring 2017 through early summer 2018. Disruption and displacement of IDPR yurt recreational users would occur in the short term; disruption and displacement would be minimized by Design Feature RE-4, which would prohibit snowplowing on access routes to Stargaze, Skyline, and Rocky Ridge yurts from November 15 to April 15 to allow winter rental operations to resume during winter 2017/2018. The Elkhorn and Banner Ridge yurts would resume operations in winter 2017/2018 if salvage operations and the mitigation of hazard trees have been accomplished. Access to other recreational areas such as the North Fork Boise River, Middle Fork Boise River, and Atlanta, Idaho, would be disrupted due to intermittent closures or delays along NFS road 384. Roads would be maintained and dust abatement applied to the road surface to reduce dust and increase visibility on this multipurpose primary travel route. Wintertime recreation activities (i.e., snow machine or cross-country ski use) may be disrupted due to road closures and snowplowing associated with logging operations. This disruption would only occur if hauling operations are not complete by winter 2017/2018. Winter recreation in the area is primarily associated with the grooming of primary routes (Figure 3) by Boise County for snow machine use (Table 3) or from nonnotarized, over-snow use operated in cooperation with the IDPR. The disruption would be expected to occur only in the 2017/2018 winter grooming season, which is typically December 15 through March 15. Snowplowing would be restricted as stated above to allow for yurt rental operations in winter 2017/2018 at Stargaze, Skyline, and Rocky Ridge yurts. Snowplowing to access reforestation locations may occur in early spring after the grooming has ended but could disrupt late season snow machine users in the project area.


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The Proposed Action would decrease the short- and long-term road maintenance needs within the project area. Hazard trees would be reduced, and the threat to human life and safety would decrease along roads open to all vehicles, both yearlong or seasonally (Transportation Specialist Report). Under implementation of the Proposed Action in the short term, nonnotarized trails and over-snow ski trails in the project area would be cleared of hazard trees and re-opened for use The short-term impact and increased disruption and displacement of recreational users participating in winter no motorized use activities such as cross-country skiing would be affected by the Proposed Action more than other user groups. The miles of groomed snow machine routes could be reduced in the 2017/2018 winter grooming season, which is typically December 15 through March 15. The costs associated with the grooming of snow machine routes by Boise County would decrease in the long term due to removal of dead and hazard trees along groomed routes. The same effect on groomed and ungroomed over-snow ski trails managed by the IDPR would occur; costs would decrease in the long term. Developed recreation opportunities within the project area would decrease in the short term under the Proposed Action. Yurts managed and operated by the IDPR would have decreased operations and rental opportunities in the short term until hazards could be mitigated; long-term rental operations would continue as hazard trees are removed or felled along access routes and areas surrounding the yurts. The over-snow ski trail network groomed by the IDPR would see closures and use disruptions in the short term as discussed above, but long-term benefits of dead and hazard tree salvage operations, along with hazard tree felling, would reduce long-term maintenance costs by the IDPR and reduce the exposure to hazard trees for this recreational user group. The Proposed Action would decrease dispersed recreation opportunities within the project area in the short term due to public safety closures. Opportunities for fuelwood gathering would decrease across the project area as dead and hazard trees are removed under the Proposed Action, with activities such as hunting, fishing, and berry and mushroom picking slightly affected in the short term due to the effects of public safety closures in 2017 and 2018.

12. Forest Plan Consistency Refer to the Forest Plan’s consistency section.

12.1. Recreation Objective 1047: Where existing recreation facilities and dispersed recreation sites are adversely affecting riparian vegetation, restore or improve vegetation through site hardening or relocation, or other means. Project is consistent with Direction: This project should improve GFA camping areas with the reforestation and hazard tree removal within the project area. Design Feature RR-3 has been included in Alternative B to mitigate effects of implementation activities in the GFA areas.


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13. Literature Cited Impson, Megan. 2017. Telephone and email communiqué regarding Outfitters and Guides,

Special Use Permits, Boise National Forest, Idaho City Ranger District, Idaho City, Idaho USDA Forest Service: 1986. Recreation Opportunity Spectrum (ROS) 1986 ROS Book 2009. Emmett Ranger District

“E” Area Motorized Wheeled Vehicle Travel Management Project Environmental Assessment

2010a. Land and Resource Management Plan for the Boise National Forest, Volumes 1-2, Boise National Forest, Boise, ID

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