Chaco Culture National Historical Park, General Management Plan Amendment/Environmental ...

188 Pages·2012·6.41 MB·English

C C N h P
haCo ulture atioNal istoriCal ark
New Mexico
March 2012 National Park Service
United States Department of the Interior
GENERAL MANAGEMENT PLAN AMENDMENT / ENVIRONMENTAL ASSESSMENT

GENERAL MANAGEMENT PLAN AMENDMENT /
ENVIRONMENTAL ASSESSMENT

Chaco Culture National Historical Park
San Juan and McKinley Counties, New Mexico

Chaco Culture National Historical Park is in northwestern New Mexico, about 150 miles
northwest of Albuquerque, New Mexico. Chaco Culture National Historical Park was first
established as a national monument by Presidential Proclamation in 1907 and was designated as a
national historical park in 1980. The park consists of 33,974 acres.

The park has an approved general management plan that was completed in 1984. The 1984 plan
provides sufficient direction for park management with the exception of one area: visitor use
management. Therefore, the National Park Service is amending the current general management
plan to provide specific guidance and direction on this topic.

This document describes four alternatives for managing visitor use in Chaco Culture National
Historical Park for the next 15 to 20 years, and the impacts on the environment and cultural
resources of implementing each alternative. The no-action alternative describes continuation of
existing management and serves as a basis of comparison for the action alternatives.

The action alternatives describe what park management could be like using different visitor use
management techniques. Alternative 2 has been identified as the NPS preferred management
approach.

Under alternative 2, the National Park Service would implement a reservation system to manage
groups and the campground, increase education and outreach programs, and institute a
monitoring system that would allow the park to better track and manage resource and visitor
experience conditions. If needed, based on monitoring results, a reservation system for individual
access to the park may be implemented in the future.

This document has been distributed to other agencies and interested organizations and
individuals for their review and comment. The public comment period for this document will last
for 30 days after this document is published and distributed. Please note that NPS practice is to
make comments, including names and addresses of respondents, available for public review.
Please see the “How to Comment on this Plan” section on the next page for further information.

U.S. Department of the Interior ● National Park Service
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HOW TO COMMENT ON THIS PLAN

Comments on this general management plan amendment / environmental assessment are
welcome and will be accepted for 30 days after this document is published and distributed.
Comments and responses may be submitted either via the Internet or in writing. Commenters are
encouraged to use the Internet if at all possible. Please submit only one set of comments.

To be sure that you are on our mailing list, please include your name and address on any
correspondence.

Internet comments can be submitted at http://parkplanning.nps.gov/chcu.

Written comments may be sent to:

National Park Service
Denver Service Center–Planning
Attention: Chaco GMP Planning Team
PO Box 25287
Denver, CO 80225-0287

Before including your address, phone number, e-mail address, or other personal identifying
information with your comment, you should be aware that your entire comment—including your
personal identifying information—may be made publicly available at any time. Although you can
ask us in your comment to withhold your personal identifying information from public review,
we cannot guarantee that we will be able to do so.

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SUMMARY

amendment is needed to establish
PURPOSE AND NEED
management systems and thresholds
whereby Chaco Culture National Historical
The purpose of a general management plan
Park staff can proactively respond to
is to present the general path the National
changes in visitor use and preserve the park’s
Park Service intends to follow in managing
resources and visitor experiences.
the park over the life of the plan. Chaco

Culture National Historical Park has an

approved general management plan,
completed in 1984, that provides sufficient THE ALTERNATIVES
direction for park management with the
exception of one area: visitor use Development of the Alternatives
management. In response to potential
changes in visitation, mostly because of the Because there are different approaches to
potential improvement of County Road achieving the purpose of this general
(CR) 7950 by San Juan County, which would management plan amendment, the planning
make access to the park easier for a larger team investigated a range of possible
number of visitors, the park requires a new management alternatives. Ultimately four
framework to address visitor use in order to alternatives were developed, including the
protect the park’s sensitive resources and no-action alternative that describes a
unique visitor experiences. continuation of the park’s current visitor use
management approach.
Although the 1984 general management plan
provides general guidance on visitor use, a Each alternative involves a different
much more rigorous examination of this approach to achieving the desired resource
topic is essential in order to sustain park conditions and visitor experiences in the
resources and the qualities of the park that park. These differences are expressed
so many visitors value. A strategic through each alternative’s unique approach
management approach is needed so that the to three types of visitor use management
park’s fragile cultural resources are strategies: visitor knowledge, group
protected and also that the visitor management, and individual visitor access.
experience at Chaco is not sacrificed—an The primary distinction between the four
experience that is unique in that visitors are alternatives is the spatial and temporal scales
allowed to freely and independently visit the at which specific actions within these three
park’s world-renowned, yet fragile cultural types of visitor use management strategies
resources. Lack of roving staff at the sites would be implemented.
and the limited regulation of visitor access
within and around sites, in groups or From the four alternatives, the preferred
otherwise, is affecting management’s ability alternative was selected through an objective
to monitor and protect cultural resources analysis process called “choosing by
during periods of heavy visitation. Sites that advantages.” Through this process, the
have high levels of visitation have had planning team identified and compared the
substantially more instances of disturbance relative advantages of each alternative
or loss than other, less visited sites. It is according to a set of factors that were based
expected these impacts could get worse with on the desired resource conditions and
future changes in visitation patterns. visitor experiences in the park. The
Therefore, this general management plan relationship between the advantages and
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SUMMARY
costs of each alternative was also established. Alternative 2 (The
This information was used to identify the Preferred Alternative)
alternative that gives the National Park
Service and the public the greatest advantage In alternative 2, visitor use management
for the most reasonable cost. strategies would be applied year-round and
throughout the park. Strategies addressing
The results of the “choosing by advantages” visitor knowledge include requiring visitors
process identified alternative 2 as the to participate in a structured education
agency’s preferred alternative. This program prior to accessing the park’s
alternative provides the best combination of primary cultural sites. This would ensure
strategies to protect the park’s unique visitor that all visitors receive a consistent and
experience and cultural resources, while comprehensive message regarding the
improving the park’s operational efficiency sensitivity of park resources, park
and effectiveness. regulations, and appropriate visitor
behaviors. The park would also increase
roving patrols and interpretive contacts at
Alternative 1 (No Action)
the park’s primary cultural sites.

The no-action alternative is included as a
Group management strategies would include
required baseline against which to compare
providing all groups with information on the
the action alternatives. This alternative
sensitivity of park resources prior to their
prescribes the continuation of the park’s
visit. This would be implemented by
current visitor use management approach.
requiring groups to obtain advance
This approach is in keeping with the park’s
registration, and carefully managing group
1984 general management plan that
size. The number of groups would be limited
emphasizes self-discovery of the park’s
to no more than two per day, year-round.
archeological resources and historic
This strategy would prevent several large
structures. The 1984 plan also states that if
groups from accessing the park at one time,
visitation exceeds levels identified in the
which would have a beneficial effect on
plan, then a reservation or transportation
resources and the visitor experience.
system may be implemented. However, these

levels have not been exceeded and currently
Strategies related to individual visitor access
there are no plans in place to implement a
would include providing visitors with an
reservation or transportation system.
online campsite reservation system in

addition to limited first-come/first-served
The no-action alternative would protect
camping. Visitors would also be provided
visitors’ freedom of choice and flexibility for
with information about peak use times in
accessing and touring the park, resulting in
order to encourage voluntary redistribution
minor to moderate beneficial impacts.
of use. If needed, based on monitoring
However, the no-action alternative has
results, a reservation system for individual
limited visitor use management strategies, so
access to the park may be implemented in
park staff may not be able to adequately
the future.
accommodate increasing trends in visitor

use, while not diminishing the park’s fragile
The preferred alternative provides a high
cultural resources or the visitor experience;
level of protection of park resources because
this would result in minor to potentially
of its more effective parkwide, year-round
major adverse impacts. Further, the park has
approach to visitor use management. These
a small staff that has had varying degrees of
strategies would help reduce adverse
success in responding to visitor use
impacts by keeping them to the minor level
management needs and impacts resulting
of intensity. The preferred alternative also
from visitor use.
provides the highest level of freedom and

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Summary
independence once visitors enter the park, seasonal staff and the repeated loss of this
given the focus on educating and regulating investment.
use at the park entrance, resulting in a long-
term moderate beneficial impact. However,
Alternative 4
the implementation of the structured
education program and the potential future
In alternative 4, the visitor use management
reservation system will adversely impact
strategies would be applied year-round at
visitors’ access to the park. The preferred
individual sites within the park. Strategies
alternative would be the most effective from
addressing visitor knowledge would include
an operational standpoint, given the
on-site education at the park’s primary
parkwide and year-round strategies.
cultural sites. Under this alternative, park
staff would be stationed at strategic locations
during peak visitation times and during
Alternative 3
special events.

In alternative 3, some visitor use
Group management strategies would be
management strategies would be applied on
similar to those in alternative 2; however,
a seasonal basis throughout the park.
this alternative would not allow more than
Strategies related to visitor knowledge
one group to visit a single cultural site at any
would include requiring all visitors to enter
one time.
the visitor center and receive orientation

materials prior to accessing the park’s
Individual access strategies under this
primary cultural sites. Roving patrols and
alternative would also provide information
interpretive contacts would also increase at
to visitors about peak use times in order to
primary cultural sites, particularly during the
encourage voluntary redistribution of use.
peak season. If needed, based on monitoring
All campsites would continue to be available
results, a structured education program may
on a first-come/first-served basis and
be implemented in the future.
reservations would be available only for the

group campsites. If needed, based on
Group management strategies would be
monitoring results, access to the park’s
identical to those in alternative 2, except that
primary cultural sites may be regulated
during the nonpeak season, more than two
through on-site queuing techniques (i.e.,
groups would be allowed per day.
only a certain number of visitors are allowed

within a site at any one time) or through the
Individual visitor access strategies would
use of reservations or permits.
also be identical to those in alternative 2,

except that during the nonpeak season, no
Alternative 4 regulates use at a site level,
advance campsite or individual reservations
which can be highly protective of the park’s
would be needed.
fragile resources, but has the potential to

influence visitors’ spontaneous access at any
Alternative 3 contains many of the same
particular site. The site-level strategies
strategies as the preferred alternative, so
would help reduce adverse impacts to
impact levels are similar. However, the focus
cultural resources by keeping them to the
on seasonal strategies may be slightly less
minor level of intensity, but there would be a
protective of resources. This alternative does
major adverse impact on visitors’ freedom of
provide a high level of freedom and
choice and flexibility to visit sites at their
independence for visitors once they enter
own pace. The operational burden of this
the park, given the focus on educating and
strategy would be high given the increased
regulating use at the park entrance. The
staffing needs, making it less efficient than
operational burden of this strategy would be
the other alternatives.
similar to the preferred alternative, but

would be less efficient given the reliance on
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SUMMARY
THE NEXT STEPS intent to prepare an environmental impact
statement would be prepared. If a FONSI is
After the distribution of this general prepared, it would document the NPS
management plan amendment / selection of an alternative for implementa-
environmental assessment, there will be a tion, include any necessary errata sheet(s)
30-day public review and comment period, for factual changes required in the
after which the NPS planning team will document, and would include responses to
evaluate comments from other federal, state, substantive comments by agencies,
and local agencies; organizations; businesses; organizations, and the general public. Once
and individuals regarding the plan. the FONSI is signed by the NPS regional
director, it would be made available to the
Following public review and assessment of public. The plan could then be implemented
public comments, either a finding of no following a 30-day waiting period.
significant impact (FONSI), or a notice of

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CONTENTS

CHAPTER 1: INTRODUCTION 
A GUIDE TO THIS DOCUMENT 3 
OVERVIEW OF THE PARK 4 
Natural Resources 4 
Cultural Resources 5 
PURPOSE AND NEED FOR THE PLANNING EFFORT 9 
Purpose of the Plan Amendment 9 
Need for the Plan Amendment 9 
Compliance with the National Environmental Policy Act 10 
Next Steps 10 
Implementation of the Plan 10 
FOUNDATION FOR PLANNING AND MANAGEMENT 12 
Introduction 12 
Purpose and Significance of the Park 12 
Significance Statements and Related Resources and Values 13 
Special Mandates 16 
Servicewide Laws and Policies 17 
PLANNING ISSUES 19 
Resource Protection 19 
Visitor Opportunities and Experience 20 
Park Operations and Facilities 21 
Climate Change 22 
RELATIONSHIP OF THIS PLAN AMENDMENT TO OTHER PLANNING EFFORTS 23 
CHAPTER 2: THE ALTERNATIVES  
INTRODUCTION 27 
Overview 27 
Development of the Alternatives, including the preferred alternative 27 
VISITOR USE MANAGEMENT GOALS AND OBJECTIVES 30 
ACTIONS COMMON TO ALL ACTION ALTERNATIVES 31 
Common to All Visitor Use Management Strategies 31 
Indicators and Standards 34 
Long-term Monitoring 37 
ALTERNATIVE 1: NO ACTION (CONTINUE CURRENT MANAGEMENT) 38 
Overview 38 
Visitor Knowledge / NPS-Led Orientation 38 
Group Management 38 
Individual Visitor Access 39 
Staffing and Costs 39 
ALTERNATIVE 2: STRATEGIES APPLIED PARKWIDE, YEAR-ROUND (THE PREFERRED ALTERNATIVE) 40 
Overview 40 
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CONTENTS
Visitor Knowledge / NPS-Led Orientation 40 
Group Management 40 
Individual Visitor Access 41 
Staffing and Costs 41 
ALTERNATIVE 3: STRATEGIES APPLIED PARKWIDE, ON A SEASONAL BASIS 42 
Overview 42 
Visitor Knowledge / NPS-Led Orientation 42 
Group Management 42 
Individual Visitor Access 43 
Staffing and Costs 43 
ALTERNATIVE 4: STRATEGIES APPLIED YEAR-ROUND, ON A SITE-SPECIFIC BASISOverview 44 
Visitor Knowledge / NPS-Led Orientation 44 
Group Management 44 
Individual Visitor Access 45 
Staffing and Costs 45 
MITIGATIVE MEASURES FOR THE ACTION ALTERNATIVES 47 
Introduction 47 
Protection of Cultural Resources 47 
MANAGEMENT STRATEGIES TO ADDRESS CLIMATE CHANGE 48 
Introduction 48 
Management Strategies 48 
THE ENVIRONMENTALLY PREFERABLE ALTERNATIVE 49 
ALTERNATIVES CONSIDERED BUT DISMISSED FROM DETAILED EVALUATION 51 
SUMMARY TABLES 53 
COST ESTIMATES FOR IMPLEMENTING THE ALTERNATIVES 63 
CHAPTER 3: AFFECTED ENVIRONMENT  
INTRODUCTION 67 
IMPACT TOPICS RETAINED FOR DETAILED ANALYSIS 69 
Cultural Resources 69 
Visitor Use and Experience 76 
Park Operations 81 
IMPACT TOPICS CONSIDERED BUT ELIMINATED FROM DETAILED ANALYSIS 84 
Natural Resource Topics 84 
Socioeconomics 88 
Cultural Resource Topics 88 
CHAPTER 4: ENVIRONMENTAL CONSEQUENCES  
INTRODUCTION 93 
Terms and Assumptions 93 
Cumulative Impacts 93 
IMPACTS ON CULTURAL RESOURCES 95 
Archeological Resources 95 
Ethnographic Resources 103 
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