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Final Environme.ital Impact Statement Personal V/atercraft Rulemaking Glen Canyon National Recreation Area Arizona and Utah Volume | BEST COPY AVAILABLE COMPLETE UNITED STATES DEPARTMENT OF THE INTERIOR NATIONAL PARK SERVICE FINAL ENVIRONMENTAL IMPACT STATEMENT PERSONAL WATERCRAFT RULEMAKING GLEN CANYON NATIONAL RECREATION AREA Arizona and | )tah Lead Agency: Department of the Intenor, National Park Scrvice, Intermountain Region This final environmental impact statement evaluates thive altcratives for managthie nuseg o f personal watercraft at Glen Canyon National Recreation Area. Two alternatives would allow personal watercraft use under defined conditions. The third alternative would climinate personal watercraft use within the recreatiaroenca . Alternative A would allow personal watercraft use identical to that before September 2002 under a special regulation. Personal watercraft use would be authorized for all areas of the recreation area above Glen Canyon Dam except where prohibited by the Superintendent's Compendium, 2002A l.ak e management plan that would comprehensively consider all lake uses would be developed to manage the cffects on resources by all watercraft use. Alternative B (modified preferred alternative) would allow personal watercraft use in the recreation area under a special regulation with additional management restrictions. Personal watercraft use would be prohibited in portions of the Colorado, Escalante, Dirty Devil, and San Juan Rivteo irncrseas e proteofc entviironomennta l values and reduce visitor conflict. To further reduce visitor conflict and improve visitor experience, speed restrictions would be imposed in a section of the Escalante River. Under this alternative, all personal watercraft two-stroke carbureted engines would be prohibited at the end 2012. Educational programs and materials would be enhanced to provide more information to visitors on watercraft use and safety as well as recreation area resources. Development of a monitoring program to evaluate the effects of personal watercraft use on recreation area resources would be emphasized. A lake management plan that would comprehensively consider all lake uses would be developed to manage the effects on resources by all watercraft use. Under Alternative C. the no action alternative, all personal watercraft use within the recreation area would be prohibited, based on the year 2000 National Park Service personal watercraft rule. A lake management plan would be developed under the no action alternative to address the cumulative effects of all watercraft use on Lake Powell. The potential environmental consequences of the actions are addressed under each alternative, including impacts on natural resources, cultural resources, visitor experience and safety, socioeconomic resources, and management and operations. Kitty L. Roberts, Superintendent Glen Canyon National Recreation Area P.O. Box 1507 Page, Arizona 86040 For further information about this document, write the above address or call (928) 608-6272 United States Department of the Interior * National Park Service * Glen Canyon National Recreation Area ’ BEST COPY AVAILABLE to PESO,O ee BE ee eee : % ° ? 9 Fa Re eaehl ~ a a ~ — < + . z < ¢ = * a | EXECUTIVE SUMMARY | FINAL ENVIRONMENTAL IMPACT STATEMENT FOR THE PERSONAL WATERCRAFT RULEMAKING GLEN CANYON RECREATION AREA Glen Canyon National Recreation Area encompasses 1,254,306 acres of land and water in northern : Arizona and southeastern Utah. Its southern boundary is contiguous with the Navajo Nation. Other es Park, and Rainbow Bridge National Monument, all managed by the National Park Service (NPS). The recreation area also adjoins areas administered by the Bureau of Land Management that include Grand Staircase — Escalante National Monument, Vermilion Cliffs National Monument, and Paria Canyon Wilderness. Lake Powell is the predominant physical feature. At full pool (3,700 feet above sea level), it occupies about 163,000 surface acres, stores approximately 27 million acre-feet of water, and has about 1,960 miles of shoreline. More than 2 million people visit Glen Canyon National RecreatArieao enac h year. PURPOSE AND SIGNIFICANCE OF GLEN CANYON NATIONAL RECREATION AREA National park system units are established by Congress ‘o fulfill specific purposes, based on the unit’s unique and “significant” resources. A unit’s purpose, as established by Congress. is the foundation on which later management decisions are based to conserve resources while providing “for the enjoyment of future generations.” The purpose and significance of Glen Canyon National Recreation Area and its broad mission goals are derived from its enabling legislation and are summarized the recreation area’s General Management Plan (NPS 1979a) and Strategic Plan (NPS 2000g). Glen Canyon National Recreation Area was established in 1972 (PL 92-593) “to provide for public outdoor recreation use and enjoyment of Lake Powell and lands adjacent thereto . . . and to preserve scenic, scientific, and historic features contributing to public enjoyment of the area.” The recreation area’s primary management objective, as established in the General Management Plan (NPS 1979a), is “to manage the recreation area so that it provides maximal recreational enjoyment to the American public and their guests.” The recreation area’s enabling legislation states: The secretary shall administer, protect, and develop the recreation area in accordance with the provision of the [Organic Act] . . . and with any other statutory authority available to him for the conservation and management of natural resources (16 United States Code, Section 459f- 5(a)). This act also specifies that “nothing . . . shall affect or interfere with the authority of the Secretary . . . to operate Glen Canyon dam and reservoir” for the purposes of the Colorado River Storage Project Act, the achievement of which is the responsibility of the Bureau of Reclamation. As stated in the General Management Plan (NPS 1979a) and Strategic Plan (NPS 2000g), Glen Canyon National Recreation Area is significant because: It offers a tremendous diversity of both water-based and land-based recreational opportunities. FINAL ENVIRONMENTAL IMPACT STATEMENT BEST COPY AVAII v It contains Lake Powell, the second largest man-made lake in North Amenca, which provides both a unique opportunity for recreation in a natural environment and a transportation corndor to remote backcountry areas of Glen Canyon National Recreation Area. It is in the heart of the Colorado Plateau region, which offers a unique combination of water and desert environments. It offers a natural diversity of rugged water and wind carved canyons. The climate and physical features have created local environments favorable to the preservation of scientifically important objects, sites, populations, habitats, or communities thet are significant in and of themselves or provide opportunities to add to our understanding of past or ongoing eveiiis. It possesses evidence of 10,000 years of human occupation and use of resources, which proves a continuing story of the prehistoric, historic, and present-day affiliation of humans and thew environments. It constitutes a significant part of the outstanding public lands of the Cc 'orado Plateau. The recreation area offers a diversity of land and water-based recreational opportunities. The area's major recreational resource is Lake Powell, a 186-mile-long reservou at full poo! that was created when the Colorado River was dammed. Boating is very popular on the lake, including the use of persona! watercraft, houseboats, powerboats, tour boats, canoes, kayaks. and sailboats. Other popular PURANDP NEOED FSO” EACTI ON The purpose of and the need for taking action is to evaluate a range of alternatives and strategies for the management of personal watercraft use at Glen Canyon National Recreation Arca. The goal 1s to ensure the protection of recreation area resources and values while offering recreatnonal opportunstes as provided for in the recreation area's enabling legislation, purpose, mission, and goals Upon completion of this process in accordance with the National Environmental Policy Act, the National Park Service may take action to adopt special regulations to manage personal watercraft use at Gien Canyon National Recreation Area. Alternately, it may discontinue personal watercraft use at thes unut. as allowed for in the National Park Service March 21, 2000 personal watercraft rule. More than one million personal watercraft are estimated to be in operation today im the United States (NMMA 2001b). Sometimes referred to as “jet skis” or “wet bikes.” these vessels use an inboard, internal combustion engine powering a water jet pump as its primary source of propulsion. They are used for enjoyment and are capable of speeds in the 60-mph range. The Personal Watercraft Industry Association believes that througthh e 2002 model yethae orutp ut on a lrmited number of higher rated modewasl arsoun d 155 and 165 hp (PWIA 2002b). National persona! watercraft ownership increased every year between 1991 and 1998; the rate of annual increase peaked in 1994 and dropped slightly im 1999, 2000 and 2001. While personal watercraft use remains a relatively new recreational activity, it has occurred in 32 of 87 national park system units that allow motorized boating. Studies in Everglades National Park showed that personal watercraft use resulted in damage to vi GLEN CANYON NATIONAL RECREATION AREA BEST COPY AVAILABLE 7} 7 See CeSee eee VN MEN ce cea wren 8g remmest Be Nee me eR we at ene cee net me es a i ie id i a oe _— ee wONTS at pa —s ATTEUS etna NO Nd gem paceman 8 6 cet Oe pees cee ww oo Oe «tor s ants (me eee NO me em arte ks peereem e tet ore ae ecm Se comm Ream RE nena me sa ree nett me te ee ae AT EG Fe peed et fermen ete ree mage meme nme ee SeNweiome b Mhas peemetecm Me Naseem ene eee seman ape ee ET ARAN of ate eRe: permerme we out me cu ee mm ee Ne a nee Oe ee ee ns ee ee SS a a Renee re Re PRCT ent ferme me te wh eee ee eget ee joommageng 6 PK ogee a a enemiesa th ae ee eee e TS a ee mee© mrre om i ee ee wera Cnshongeyg SPS. Qn b shee ete poe ea oe am ob ny tenet yet pe. cat yg ee ee SE ii a A i, ee eee ee a ed ek ec Now eae pede ster Seger OL et) ee cree queeti: =q ues reg-i* e| tcomeparet ad Heee = Gy prope Scgaomier ¢ pet 6 meee eee @ ae ate eee a ee ee ee ee ae Te ee Oe ee oe a ea pores! © mer. ah oe mm arbre! NPS am ame Sem corte +t dierecfeeen gGe e perenne water raf arc pected, of BK FO roeEn wre Ts ck Dee em eee peeiithndieme Cie Jame, | RD) ee Natasa! Past Ser pure’ + def ee tr fhe eeof o mer watercraft at (shoe ( avo “\stecens! Rocroemee Arce "te feet ek bee moment © ere ee 6 benedo n ARernstne Bootme pectered shcrmmn cc) we Oe fh) fe meme bene Cem he (O-dey pulix commer peered oe Ou Sef ewk Oe for lames kM 8 en The settememt «puistes thet thc Neto Part rc mee Ot Om Ak tome 8 ae specific specail reguiatom i alk perme sare? ox Geog af oh mommenis anaes conducted m accordance euth the Sutin feemmerme Moe & The \amfee moomemee ne Pre Eyverontaa: aeerann ) Ste Tee . ” ee ee eee Ce ee 2 ee © aeewe es oe ws 0 mee 0 6 ot emt ame nmeee e ee neon Ce ee ee oe ee ee oe eee e ee means ie me mmm eR mee ei ie ee ee ee ee i ee ene imee e ee ee a hes eee mmm amet Pee wtf te 8 ger Min a Rema Seem Fewest gpmerem 5 ie meme se Om eaten rm a a ee ee ed Ae eteee ne ae TE OO A er eee eee ret er tame of Be saree tin om ee a ee ee ae ee ae et) cede eto cementene ogumaiem pert etl md ete wal: st ee ed ~~ ster (peaiety watety axed carturcted two-stroke cngmes) discharge up to 30% of their fuc! as umcombusted pment ate surface waters Guring operatcn in sufficient concenttrhesae tconistoitunensts ,ca n adversety affect human health and aguatx organisms Chemical constituents of parucular concern hede bemeeme. cthy"emzene. toluene. xylenes. polycyclic aomatic hydrocarbons, and methy/ ie the rccrestee aca. there ss comcern that personal watercraft produce nose that could affect roxcteston arca soundscapes and visitor cxpenences. The maximum norsse leve! allowed m NPS units. wxchadeng Gien Camyorn Nabone! Recreaton Area. 1s 82 decibeis at 82 feet at full acceleranon. Natopnersoanall walterycra.ft ux has been described as adversely affecting wildinfe (principally berds) through harassment and distu. bing nesting colomes of terns. Disturbance can be deliberate or mecxdental to the use of personal watercraft (such as nose). Impacts or wildlife habitat could occur through crusheng or uprootung of submerged and near-shore vegetation. fa 'n the recreation area, concern was expressed that personal watercraft operations may affect wildlife. causing alarm or flight, or avoidance of personal watercraft activity areas. Areas indicated as being of particular concern include the recreation area's shallow-water, narrow side-canyons. Shore\l eigetnateio n Nationally, the effects of personal watercraft on shoreline and aquatic plant communities have not vegetation. Most concern arses from the shailow draft of personal watercraft, allowing them Wo use shallow areas that conventional motorboats cannot reach. Persona! watercraft may crush or uproot grasses and other submerged aquatic vegetation that occurs in shallow water In the recreation area. there are few areas of submerged aquatic vegetation. which limits the concern regarding this impact topic. Many areas of Lake Powell have unsustable shoreline substrates. sicep shoreline slopes, high water velocities m tndSutary nver reaches. or large seasonal fluctuations of water surface elevations. Together. thes< factors preclude the development of submerged squanc and shoreline vegetation Visiter Conflicts and \ isitor Safety Nationally, some data suggest that personal watercraft have higher accadent rates than other watercrait Conflicts with other recreatiionssts can arise because of the nowe produced by personal watercraft. thew ability to operate in shallow water. and the inconsiderate or aggressive Dehayior sometimes ox wbited by some personal watercorpearaftotrs . In the recreation area, many concerns about conflicts with personal watercraft use focus on visitors who do not use motorboats, such as swimmers, fishermen, and rafters and kayakers ( onflicts also can arise with land-based users. such as those who are secking solitude im the recreation area's Natural Zone. Safety issues raclude the number and seventy of accidents involving personal watercraft ALTERNATIVES This environmental impact svaement evaluates three alternatives concerning the use of personal watercraft at Gien Canyon Nationa! Recreation Area. Alternative A: Continue Personal W atercraft Use as Curreatiy Managed under a Special Regulation Alte native A would allow the management .nd regulation of personal watercraft use. a provided for im the recreation area's Superintendent s Compendium (MPS JO2c), under a special regulanon. This s considered the “baseline” condiion agaist which th: other .nanagement stravegies. including closure of the recreation area io personal watercraft use, were compared. Under alternative A, personal watercraft use would be authorized im all areas of Lake Powell, except where specifically prohibited in the “uperis Cnomtpenediunm d(NePS n20t02 c) Locahon restnchors would include: x BEST COPY AVAILABLGuEan Can~vor Nariona: RECREAT7IO N Agea te mates Upsttravre! eon athem De rty Devil River from the poet where measured ec doensircam cures! is encountered, ( pstrear: travei on the Escaiamte River upstream from the confluence wath Coyote Creek. Upstream travei ont he Colorado River upstream from the base of imperal Raped Downstream wavei through these arcas by personal watercraft would be slowed. \iternatiwe A would she echade 2 Geee-yoer pelt wed) w abeoely Ge weeheges aad ooo rowrkteon thet wowk! hx cut cllecte>c @ redwcmg confhos Octecen estescraft ang other «eater The poke weedy eoakd suappert ‘he dewelogmeeet of « kc qamegeeeeet ple ehh sould omprhemevely comeder all Whe axes © Oetker SrOkx! McTostOn ace ROTORS Gewese weetor whet) and rode Cuefhacts AlternatBiOvN eP S Modeled Prefercod Viteraats: Preaea Sipecgtala Retguiean er to ( eatmex Perweeal Watercraft | w« = (8 \dditeea Masagemeat Rewrctees Akernsnve B would be wmmelar w aftermatiwe A However « sould axtucre akbtons! goographx rearkuem on pomemel estercraft wc aad ecwk! onpicment ackmomsl (6 8k ek TO aitemnatn << Nl Carturcted feu-stnuks perma «seyret souk Oc produiwtad after “Vi > in ahetee ahernaty<e B abo would mchade @rategecs w KeTicr protect nexTesiaon ace POWEFOD. omproNe + aahor safety and veda Jueflat Somme of Giese woatege souk chads preperation of 2 akc Tamagemecni pian and coma! of 2 three- wear pekot study © demot) he wocieagues at eowk! Oc mos cflecave redacung conflicts Lecatee restrchens would echade choseng Ge othoemg ower aces w al) pervomal eatercraft esc. om hahng foeh upércan amd dow meircam way ci | Darty Devil Riwer apstream of | tat Higirea . 4° Hrates. | tscatante River upstrcam of the Confluence of ( owote ( rect. San Juan River upstream from the ( lay Hilb pudhouatn d ( oforado River upstrcam from Steep ( anyon Wake restnchoes would bc ompicmentoen tdh e a Escalante River from the confhacnce of Cou Canyon w the confluence euth ( coyote Creek. Alternative ( No Action | Perveaal ‘\ atercraft | « Weald Be E iemimated) Alternative ( the so-actton altermatve The Netonal Park Servece would aot whe achoe & promulgate a special regulanon test would allow personal watercraft wee. Therefore. wader ‘he provisens of the March 2!. 2000 final rule. all personal watercraft ase would be permanently chmfnrom athe trovreeatodn a rca. Fra ENVIRONMENTA :D MPac T S TATEMENT BEST COPY AVAILABLE 7 u