Gunnison Gorge National Conservation Area : approved resource management pland and record of decision

2004·120.8 MB·English

by  United States. Bureau of Land Management. Uncompahgre Field Office

BUM LIBRARY
orge National Conservation Area
APPROVED
MANAGEMENT AND
RESOURCE PLAN
RECORD OF DECISION
Gunnison Gorge National Conservation Area November 2004
Delta and Montrose Counties, Colorado
Bureau of Land Management
Gunnison Gorge NCA Office
2465 South Townsend Avenue
Montrose, Colorado 81401
HD
243
C2
G.86 Department of the Interior, Bureau of Land Management
2004
d.
Mission Statement
It is the mission ofthe Bureau ofLand Management (BLM) to sustain the
health, diversity, and productivity ofthe public lands for the use and
enjoyment ofpresent and future generations.
Gunnison Gorge National Conservation Axea Mission Statement
The BLM will manage the NCA to protect its resources in accordance with
the designating legislation, the Federal Land Policy and Management Act of
1976, the Wilderness Act of 1964, as amended, and other applicable
provisions oflaw. The BLM will incorporate multiple uses to the extent
that important resources are protected and the combination ofuses takes
into account the long-term needs of future generations for renewable and
nonrenewable resources. The purpose ofthe planning effort is to establish
an integrated guiding plan for future site-specific analysis and decisions that
maintains or improves existing conditions to meet or exceed Colorado
BLM Land Health Standards."
10 4iD
United States Department ofthe Interior
BUREAU OF LAND MANAGEMENT
Uncompahgre Field Office
2505 South Townsend Avenue
Montrose, Colorado 81401
In Reply Refer to:
CO-154-1610
Dear Reader: November 12, 2004
Enclosed for your review are the Record ofDecision and Approved Resource Management Plan (RMP) for
the Gunnison Gorge National Conservation Area (NCA), which contains the Gunnison Gorge Wilderness.
The Proposed RMP/Final Environmental Impact Statement (EIS) (PRMP), published inJanuary 2004, was a
refinement ofthe Preferred Alternative (Alternadve D) from the Draft RMP/EIS (DRMP) published in
March 2003. The DRMP was available for a 90-day comment period between March andJune 2003, and the
PRMP was subject to protest during a 30-day period inJanuary7 and February 2004, in accordance with 43
Code ofFederal Regulations (CFR) Part 1610.5.2. In addidon, the Governor ofColorado was provided a 60-
day review period to determine that the proposed plan conformed to existing state policy and plans. The
attached RMP is essentially the same as the PRMP.
/
Thirty-two protest letters were received on the PRMP. Twenty-nine ofthe protests were determined to
BLM
represent valid protests. After consideration ofall points raised in the 32 letters, the Director
NCA
concluded that the planning team and decision-makers, including the Colorado State Director, followed
all applicable laws, regulations, policies, and pertinent process and resource considerations in developing the
proposed plan. All protesting parties and those submitting comments received a response from the BLM
Director.
The RMP contains both proposed Land Use Planning decisions and Implementation decisions. Land Use
PRMP
Planning decisions were subject to protest during a 30-day period following publication ofthe
(discussed above). No further administrative remedies are available for Land Use Planning decisions. The
attached Record ofDecision serves as the final decision for Land Use Planning decisions contained in the
attached RMP and becomes effective the day the Notice ofAvailability ofthe RMP is published in the Federal
Register. Please note that some Land Use Planning decisions will require the preparation ofdetailed, project-
level National Environmental Policy Act analyses pnor to on-the-ground implementation.
Table 2-2 ofChapter 2 ofthe RMP identifies both Land Use Planning and Implementation decisions.
Implementation decisions are subject to appeal to the Intenor Board ofLand Appeals during the 30-day
penod following the publication ofthe Notice ofAvailability ofthe RMP in the FederalRegister, or until
December 12, 2004. This appeal penod also will be announced via local news releases, advertisements,
newsletter mailings, and other means.
Any party adversely affected by an Implementation decision in Table 2-2 of the RMP may appeal within 30
days ofthe effective date ofthe Record ofDecision or in accordance with the provisions of43 CFR 4.4. The
appeal must include a statement ofreasons or the person(s) appealing must file a separate statement of
reasons within 30 days of filing the appeal. The appeal must state ifa stay ofthe decision is being requested
in accordance with 43 CFR 4.21 and must be filed with the Field Manager at the following address: Gunnison
Gorge NCA, C/o Uncompahgre Field Office, 2465 South Townsend Avenue, Montrose, Colorado 81401.
A
copy ofthe appeal, statement ofreasons, and all other supporting documents must be sent to: Regional
Solicitor, Rocky7 Mountain Region, US Department ofthe Interior, 755 Parfet Street, Suite 151, Lakewood,
Colorado 80215.
Ifthe statement ofreasons is filed separately, it must be sent to: Interior Board ofLand Appeal, Office of
Hearings and Appeals, 4015 Wilson Blvd., Arlington, Virginia 22203.
It is suggested that any appeal be sent certified US mail, return receipt requested.
Should you wish to file a motion for stay pending the outcome ofan appeal ofthese implementation
decisions, you must show sufficient justification based on the following standards under 43 CFR 4.21:
1) The relative harm to the parties ifthe stay is granted or denied.
2) The likelihood ofthe appellant’s success on the merits.
3) The likelihood ofimmediate or irreparable harm ifthe stay is not granted.
4) Whether the public interest favors granting the stay.
As noted above, the motion for stay must be filed in the office ofthe authorized officer.
The RMP, PRMP, and DRMP are available on the project Web site, www.gunmson-gorge-eis.com. A limited
number ofpaper and CD-ROM copies ofthe documents are available from the Gunnison Gorge NCA,
C/o Uncompahgre Field Office, 2465 South Townsend Avenue, Montrose, Colorado 81401; phone
[phone].
Freedom ofInformation Act Considerations/Confidentiality
Public comments submitted for this planning review, including names and street addresses ofrespondents,
will be available for public review at the Gunnison Gorge NCA, Uncompahgre Field Office, in Montrose,
Colorado, during regular business hours (7:45 a.m. to 4:30 p.m.), Monday through Fndav, except holidays.
Comments, including names and addresses ofrespondents, will be retained on file in the same office as part
ofthe public record for this planning effort. Individual respondents may request confidentiality. Ifyouwish
to withhold your name or address from public inspection or from disclosure under the Freedom of
Information Act, you must state this prominently at the beginning ofyour written comment. Such requests
will be honored to the extent allowed by law. All submissions from organizations or businesses, and from
individuals identifying themselves as representatives or officials oforganizations or businesses, will be made
available for public inspection in their entirety.
We greatly appreciate your valuable assistance, input, and help in this planning effort, and look forward to
your continued participation as the plan is implemented. For additional information or clarification regarding
the attached document or the planning process, please contact Bill Bottomly at [phone] (email
NCA
[email protected]) or Karen Tucker, Manager, at [phone] (email
[email protected]).
Sincerely yours.
Barbara Sharrow, Manager
Uncompahgre Field Office
00211131
Table of Contents
Section Page
List of Acronyms v
Record of Decision
Introduction R-2
Land Use Plan Decisions R-1
.
Implementation Decisions R-3
Appeal Procedures for Implementation Decisions R-3
Overview of the Alternatives R-4
Alternatives Considered but Not Analyzed in Detail R-4
Alternatives Analyzed in Detail R-5
Environmentally Preferable Alternative R-7
Rationale for the Decision R-7
Mitigation Measures R-8
Plan Monitoring R-8
Public Involvement R-8
Scoping R-8
Focus Group R-9
Newsletter R-9
Public Review and Comment on the DRMP R-1
Distribution and Availability of the PRMP R-1
Consultation with US Fish and Wildlife Service R-1
Native American Tribal Coordination R-1
Public Participation in RMP Implementation R-1
Managers' Recommendation R-1
State Director Approval R-1
Approved Resource Management Plan
1. Introduction 1-1
1.1 Location 1-1
1 .2 Purpose of and Need for the Resource Management Plan 1-2
1.3 Planning Process 1-5
1.3.1 Planning Themes and Issues 1-5
1.3.2 Planning Criteria 1-7
1 .4 Vision and Mission Statement 1-9
1 .5 Goals and Objectives of the Resource Management Plan 1-9
1 .6 Wild and Scenic Rivers Study Report 1-1
2. Approved Decisions 2-1
2.1 Introduction 2-1
2.2 Recreation Management in the Gunnison Gorge Wilderness 2-1
2.3 Benefits-based Recreation Management in the Planning Area 2-2
2.4 Management Units 2-3
2.5 Approved Decisions 2-4
3. Resource Management Plan Implementation and Modification 3-1
3.1 Introduction 3-1
3.2 Requirements for further Environmental Analysis 3-1
3.3 Adaptive Management 3-2
3.4 Monitoring 3-2
November 2004 Gunnison Gorge National Conservation Area
i
Approved Resource Management Plan & Record of Decision
Table of Contents
(continued)
Section Page
3.5 Resource Management Plan Modification 3-3
3.5.1 Plan Maintenance 3-3
3.5.2 Plan Amendments 3-3
3.5.3 Plan Revision 3-4
4. List of Preparers 4-1
5. References 5-1
Glossary Glossary-i
•f
Index Index-i
Appendices
A
Legislation
B BLM Standards for Public Land Health and Guidelines for Livestock Grazing Management in
Colorado
C Public Land Tracts Available or Unavailable for Disposal and Private Land Tracts Prioritized
for Acquisition
D Area of Critical Environmental Concern Locations
E Oil and Gas Stipulations
F Distribution of RMP/ROD
G Gunnison Sage-Grouse Conservation Plan, Crawford Area, Colorado - Goals, Objectives
and
Management Measures
H Data Management
Final Wild and Scenic Rivers Study Report
I
[i Gunnison Gorge National Conservation Area November 2004
Approved Resource Management Plan & Record of Decision
53959335111
List of Figures
Figure Page
1-1 Project Location 1-3
2-1 Management Units 2-5
22--2 Recommended Utility ROW Corridors 2-105
23--3 OHV Designations 2-107
2-4 Designated Routes in Limited Areas 2-109
2-5 Visual Resource Management 2-1 1
2-6 Special Management Features 2-1 1
.
7 Recreation Management Zones 2-1
1
1 Adaptive Management Strategy 3-3
C-1 Private Land Acquisition Areas by Priority C-5
D-1 Gunnison Sage Grouse ACEC D-3
D-2 Fairview ACEC/RNA D-5
D-3 Native Plant Community ACEC D-7
E-1 Oil and Gas Leasing Stipulations UB-1 and GGNCA-1 3 E-1
E-2 Oil and Gas Leasing Stipulations UB-2, GGNCA-1, GGNCA-10, and GGNCA-1 1 E-1
E-3 Oil and Gas Leasing Stipulations UB-3, UB-4, and UB-6 E-1
E-4 Oil and Gas Leasing Stipulation GGNCA-8 E-1 7
E-5 Oil and Gas Leasing Stipulation GGNCA-12 E-1
1-1 Wild and Scenic Rivers Eligibility Process Flow Chart 1-3
1-2 Planning Area Rivers Considered in Wild and Scenic Rivers Inventory Process 1-1
1-3 Planning Area River Segments Proposed as Eligible for Further Study 1-1
1-4 Gunnison River (Entire Wilderness to Transmission Line South of North Fork) 1-1
1-5 Gunnison River (From Transmission Line South of North Fork to Relief Ditch Company
Diversion) 1-1
1-6 Smith Fork Creek 1-23
1-7 Red Canyon Creek 1-25
November 2004 Gunnison Gorge National Conservation Area iii
Approved Resource Management Plan & Record of Decision
List of Tables
1-
T2-able Page
BLM Planning Process 1-6
1
Management Unit Acres and Values 2-3
1
2-2.0 Decisions and Management Objectives Common to All Planning Area Public Lands 2-8
2-2.1 Management Unit 1 (Gunnison Gorge Wilderness) Decisions Applicable to Entire
Management Unit 2-30
2-2.1a Management Unit 1 (Gunnison Gorge Wilderness) Recreation Management Zone Decisions....2-36
2-2.2 Management Unit 2 (Flat Top-Peach Valley OHV Recreation Area) Decisions Applicable to
Entire Management Unit 2-49
2-2.2a Management Unit 2 (Flat Top-Peach Valley OF1V Recreation Area) Recreation Management
Zone Decisions 2-56
2-2.3 Management Unit 3 (Gunnison and North Fork Rivers SRMA) Decisions Applicable to
Entire Management Unit 2-64
2-2.3a Management Unit 3 (Gunnison and North Fork Rivers SRMA) Recreation Management
Zone Decisions 2-70
2-2.4 Management Unit 4 (Gunnison Sage-Grouse ACEC/IBA) Decisions Applicable to Entire
Management Unit 2-79
:
2-2.4a Management Unit 4 (Gunnison Sage-Grouse ACEC/IBA) Recreation Management Zone
Decisions 2-84
2-2.5 Management Unit 5 (Native Plant Community ACEC/ONA) Decisions Applicable to
Entire Management Unit 2-87
2-2.5a Management Unit 5 (Native Plant Community ACEC/ONA) Recreation Management
Zone Decisions 2-89
2-2.6 Management Unit 6 Decisions Applicable to Entire Management Unit 2-92
2-2.6a Management Unit 6 Recreation Management Zone Decisions 2-96
2-3 Recommended Utility ROW Corridors on Public Lands 2-103
2-4 Birds of Conservation Concern for the Southern Rockies and Colorado Plateau 2-104
4-1 RMP Preparers 4-1
E-1 Summary of Oil and Gas Stipulations Applicable to Federal Oil and Gas Estate E-9
F-1 Persons and Agencies Sent Copies of the Record of Decision/Resource Management Plan F-2
FI-1 Integration of GIS Data H-2
1-2-1 Classification Criteria for Wild, Scenic, and Recreational River Areas 1-47
1-3-1 Interim Protection for Candidate Wild and Scenic Rivers 1-49
1-4-1 River Segments from Initial Identification Efforts 1-52
IV Gunnison Gorge National Conservation Area November 2004
Approved Resource Management Plan & Record of Decision
of Acronyms
List
Acronym or Abbreviation Full Phrase
2003 Act Black Canyon of the Gunnison Boundary Revision Act of 2003
(Public Law 108-78, November 4, 2003)
ACEC Area of Critical Environmental Concern
Act Black Canyon of the Gunnison National Park and Gunnison Gorge
National Conservation Area Act of 1999 (Public Law 106-76, October 21, 1999)
APD
application for permit to drill
APHIS Animal and Plant Health Inspection Service (US Department of Agriculture)
ATV all-terrain vehicle
BLM United States Department of the Interior, Bureau of Land Management
BOR United States Department ofthe Interior, Bureau of Reclamation
CDOW
Colorado Division ofWildlife
CFR Code of Federal Regulations
cfs cubic feet per second
CNHP
Colorado Natural Heritage Program
CO- Colorado Highway
COA
conditions ofapproval
csus controlled surface use stipulation
DRMP Gunnison Gorge NCA Draft Resource Management Plan
and Environmental Impact'Statement
EIS environmental impact statement
FLPMA Federal Land Policy and Management Act
GIS Geographic Information System
Gorge Gunnison Gorge
Gunnison Forks confluence of the Gunnison River and North Fork ofthe Gunnison River
IBA Important Bird Area
kV kilovolt
MBTA
Migratory Bird Treaty Act
MOU Memorandum of Understanding
MU
management unit
National Park Black Canyon of the Gunnison National Park
NCA
National Conservation Area
NEPA National Environmental Policy Act of 1969
November 2004 Gunnison Gorge National Conservation Area v
Approved Resource Management Plan & Record of Decision
List of Acronyms continued
( )
Acronym or Abbreviation Full Phrase
NHPA
National Historic Preservation Act
NLCS National Landscape Conservation System
North Fork North Fork of the Gunnison River
NRHP National Register of Historic Places
NSO no surface occupancy
NWSRS National Wild and Scenic Rivers System
OHV
off-highway vehicle
ONA
Outstanding Natural Area
Park Service United States Department ofthe Interior, National Park Service
PL Public Law
planning area Gunnison Gorge National Conservation Area planning area
Pleasure Park Gunnison River Pleasure Park (at Gunnison Forks)
PRMP Gunnison Gorge NCA Proposed Resource Management Plan
and Final Environmental Impact Statement
RAMP Final Recreation Management Plan for the Gunnison Gorge Recreation Lands, Colorado
RAMP Addition Addition to the Recreation Area Management Plan for the
Gunnison Gorge Recreation Lands, Colorado
RMP resource management plan
RNA Research Natural Area
ROD Record of Decision
ROS Recreation Opportunity Spectrum
ROW
right-of-way
SRMA Special Recreation Management Area
SRUP Special Recreation Use Permit
TLS timing limitation stipulation
Tri-State Tri-State Generation and Transmission Association
US United States
US- United States Highway
USC United States Code
US Forest Service United States Department ofAgriculture, Forest Service
USFWS United States Department of the Interior, Fish and Wildlife Service
USGS United States Geological Survey
VRM Visual Resource Management
Wilderness Gunnison Gorge Wilderness
WSR Act Wild and Scenic Rivers Act
VI Gunnison Gorge National Conservation Area November 2004
Approved Resource Management Plan & Record of Decision