[Federal Register Volume 60, Number 145 (Friday, July 28, 1995)]
[Notices]
[Pages 38789-38791]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-18553]



-----------------------------------------------------------------------

DEPARTMENT OF AGRICULTURE
Forest Service


Salmon River Corridor Management Project, Sawtooth National 
Recreation Area, Sawtooth National Forest, Custer County, Idaho

AGENCY: Forest Service, USDA.

ACTION: Notice of intent to prepare environmental impact statement.

-----------------------------------------------------------------------

SUMMARY: The Forest Service will prepare an environmental impact 
statement to disclose the effects of proposed management direction for 
use and facilities on the upper main Salmon River corridor, located in 
Custer County, Idaho.
    The project area involves approximately thirty miles of the upper 
main Salmon River. The project area starts south of the community of 
Stanley, Idaho, at the Sawtooth Fish Hatchery and continues to the 
eastern boundary of the Sawtooth National Recreation Area (SNRA). The 
north and south boundaries of the project area generally parallel the 
river, approximately \1/4\ mile from the water's edge. A few exceptions 
to this width occur in the canyon in areas of flatter topography, where 
the project area widens to the toe of the slope.

DATES: The agency expects to file the DEIS with the Environmental 
Protection Agency and make it available for public comment in October 
1995. The agency expects to file the final EIS in December, 1995.

FOR FURTHER INFORMATION CONTACT:
For additional information contact Salli Rinella, project coordinator 
at the Sawtooth National Recreation Area, Star Route, Ketchum, ID 
83340, (208) 727-5000.

SUPPLEMENTARY INFORMATION:

Background

    The Salmon River corridor, with its outstanding natural features is 
eligible as a ``recreation river'' within the National Wild and Scenic 
River System. Currently there is no capacity identified for recreation 
use. Although this narrow corridor contains less than two percent of 
the SNRA's total land base, it currently receives almost 15 percent of 
the entire recreation use for the area. It is expected that demand for 
recreation opportunity will continue to increase. There is a need to 
identify and manage for a recreation capacity that is compatible with 
the natural resources in the area.
    There are currently eight developed campground facilities within 
the project area, with capacity of 131 camping units. Some of the 
developed facilities are outdated and in need of repair. Most of the 
existing campground spurs and turn-around areas were not designed for 
today's larger vehicles. Many sites and most of the existing toilets 
within the project area are not designed to provide a barrier-free 
opportunity as required by the Americans with Disabilities Act. Some of 
the developed sites lie within riparian areas. The use that is 
occurring within the areas and some of the facilities themselves are 
causing resource impacts.
    Disperse camping is allowed anywhere on the SNRA except in 
developed campgrounds or in areas signed ``No Camping Allowed''. Many 
of the dispersed campsites are impacting riparian areas and streambank 
stability. Vehicular movement for dispersed camping also is causing 
loss of vegetation and possible soil compaction.
    In the past, Idaho Fish and Game has fed wintering elk in emergency 
situations within the corridor. Elk wander onto the highway creating 
safety hazards to motorists. Additional safety problems occur as 
visitors traveling along the highway slow down or stop along the 
highway to view the wildlife. Large concentrations of elk have also 
caused vegetation loss and soil compaction at the emergency feed sites.
    Past Biological Opinions from consultation with National Marine 
Fisheries Service (NMFS) indicates that river-oriented activities may 
effect the threatened Snake River spring/summer chinook salmon. 
Activities may also be limiting the habitats of threatened, endangered 
or sensitive fish, wildlife and plant species.
    On August 22, 1972 Congress passed Public Law 92-400 establishing 
the SNRA. The intent of establishing the SNRA was to protect the areas 
primary values of natural beauty, fish and wildlife resources, pastoral 
and historical values, and recreation attributes.
    There is a need to identify a river capacity level to ensure the 
area's primary values are protected and a need to update existing 
facilities to reduce impacts and accommodate today's user needs. There 
is also a need to address elk feeding in the corridor to reduce impacts 
and address safety.

Proposed Action

    The Sawtooth National Forest proposes to develop FLRMP standards 
and guidelines identifying limits of acceptable change that will 
determine when carrying capacity for recreation activities on the upper 
main Salmon River have been met, and to prohibit surfing on this 
section of the river.
    The Forest also proposes to issue six five-year special use 
outfitter-guide floatboating permits, one five-year year-round special 
use fishing permit, four five-year special use walk and wade fishing 
permits, and to allow the Idaho Department of Fish and Game to continue 
to feed wintering elk in emergency situations on National Forest System 
lands at two locations within this project area. The Forest proposes to 
rehabilitate existing facilities at Salmon River, Riverside, Upper 
O'Brien, Holman Creek, and Mormon Bend Campgrounds; Snyder Spring 
Picnic Area; Yankee Fork floatboat launch site; and Buckhorn Bridge 
Picnic Site. Areas of impact at developed recreation sites will also be 
revegetated or otherwise protected or improved. The Forest further 
proposes: to remove thirteen camp sites and portions of the road at 
Basin Creek Campground, four sites at Holman Creek Campground, and one 
unit at Morman Creek Campground and to reclaim associated riparian and 
floodplain areas; to expand Sunny Gulch Campground to accomdate those 
developed sites lost at Basin Creek, Holman Creek Campgrounds; to 
manage undeveloped camping and river access by a combination of vehicle 
restrictions, permanent or temporary closures, and allowing undeveloped 
camping at areas 

[[Page 38790]]
designated with signs and permanent fire grills; to provide improved 
river access facilities at Basin Creek and Four Aces; to improve/
define/develop pullouts along Highway 75 to make them safer and provide 
educational and interpretation information at some of them; and to 
utilize seasonal closures at Lower Holman and Riverside Campgrounds, 
Buckhorn Bridge Picnic Site, and other areas along the river to reduce 
impacts to spawning salmon and/or their habitat.

Decision To Be Made

    Based on the analysis in the EIS, two levels of decision must be 
made by the Forest Supervisor. The Forest Supervisor must decide what 
additional standards and guidelines, if any, must be incorporated into 
the Sawtooth National Forest Land and Resource Management Plan (FLRMP) 
to ensure recreation uses within the Salmon River Corridor are managed 
in such as fashion to allow for protection of the primary values of the 
SNRA, as established by PL92-400. This ``programmatic'' level of 
decision may result in an amendment to the FLRMP. The Forest Supervisor 
also must make ``site specific'' decisions as the the level of use that 
will be allowed to occur on the upper main Salmon River and what 
modifications if any are needed to both developed and dispersed 
recreation sites to ensure protection of the primary values of the 
SNRA, as established by PL 92-400.

Issues Identified to Date

    Past scoping and public participation for some of these projects 
have helped identify preliminary issues for this project.
    1. Recreation use may be causing impacts to sensitive, threatened, 
and endangered fish, wildlife and plants, and their associated habitat.
    2. Recreation use may be causing the loss of vegetation and soil 
compaction.
    3. Modifying current use and facilities may impact visitors 
recreation experience.
    4. Modifying current use and facilities may impact the economy of 
local communities and businesses.
    5. Use within the corridor may impact heritage resources.
    6. Concentrations of elk during emergency winter feeding may be 
impacting resources and causing safety problems on Highway 75.
    7. Condition of current facilities may be impacting visitors 
experiences.

Possible Alternatives

    Alternative A--No Action. This alternative maintains the current 
location and management of developed and dispersed recreation sites. No 
special use permits would be issued for walk and wade, fishing, and 
floatboating. No river carrying capacity would be developed. Surfing 
would continue to occur and winter emergency elk feeding by Idaho 
Department of Fish and Game would continue to be reviewed on an as 
needed basis.
    Alternative B--In this alternative, undeveloped camping and river 
access would be managed by a combination of vehicle restrictions, 
permanent or temporary closures, and allowing undeveloped camping at 
areas designated with signs and permanent fire grills. Numbers of sites 
available for undeveloped camping would generally remain the same. 
Eighteen sites would be removed from developed campgrounds and would be 
``replaced'' by 18 new sites at Sunny Gulch Campground. Camping and 
day-use facilities in need of upgrading would be replaced. Number of 
river floatboat access sites would be reduced, but facilities at 
remaining river access sites would be improved. Seasonal closures would 
be utilized at Lower O'Brien and Riverside Campgrounds. All of Lower 
O'Brien and the lower portion of Riverside would be closed from August 
1 to June 15. Pullouts occurring along Highway 75 that provide parking 
space for day use (fishing, sightseeing, picnicking, etc.) would be 
managed as much as practicable by utilizing barriers and/or designated 
trails to the river. Signs would be utilized when necessary to educate 
and/or notify visitors of any restrictions, such as seasonal access 
closures to protect spawning salmon and redds, or other resource needs. 
The portion of the upper Salmon River from the Fish Hatchery to the 
SNRA boundary would be closed to surfing. The six special use outfitter 
guide floatboating permits, the one special use year-round fishing 
permit, and four special use walk and wade permits would be issued for 
five years. Mitigation measures similar to what is currently being used 
would be included to minimize impacts to spawning salmon and their 
redds. A river floatboat carrying capacity would be determined. This 
capacity would allow for use and the enjoyment of the river that is 
compatible with the resources. Two areas would be approved for use by 
Idaho Fish and Game for emergency winter elk feeding.
    Alternative C--In this alternative, undeveloped camping and river 
access would be managed by a combination of vehicle restrictions, 
permanent or temporary closures, and allowing undeveloped camping at 
areas designated with signs and permanent fire grills. Numbers of sites 
available for undeveloped camping would be reduced. Eighteen sites 
would be removed from developed campgrounds and would not be 
``replaced''. Camping and day-use facilities in need of upgrading would 
be replaced. Number of river floatboat access sites would be reduced, 
but facilities at remaining river access sites would be improved. 
Seasonal closures would be utilized at Lower O'Brien and Riverside 
Campgrounds. All of Lower O'Brien and the lower portion of Riverside 
would be closed from August 1 to June 15. Pullouts occurring along 
Highway 75 that provide parking space for day use (fishing, 
sightseeing, picnicking, etc.) would be managed as much as practicable 
by utilizing barriers and/or designated trails to the river. Signs 
would be utilized when necessary to educate and/or notify visitors of 
any restrictions, such as seasonal access closures to protect spawning 
salmon and redds, or other resource needs. The portion of the upper 
Salmon River from the Fish Hatchery to the SNRA boundary would be 
closed to surfing. The six special use outfitter guide floatboating 
permits, the one special use year-round fishing permit, and four 
special use walk and wade permits would be issued for five years. 
Mitigation measures more restrictive than what are currently required 
would be included to minimize impacts to spawning salmon and their 
redds. A river floatboat carrying capacity would be determined. This 
capacity would generally be less than in Alternative B, but would allow 
for use and enjoyment of the river that is compatible with the 
resources. Two areas would be approved for use by Idaho Fish and Game 
for emergency winter elk feeding.

Scoping Process

    This Notice of Intent formally initiates the scoping process for 
the draft environmental impact statement (DEIS). The Forest Service 
invites comments and suggestions on the scope of the analysis to be 
included in the DEIS. In addition, the Forest Service gives notice that 
it is beginning a full environmental analysis and decision-making 
process for this proposal so that interested or affected people may 
know how they can participate in the environmental analysis and 
contribute to the final decision. Public comments on the proposal are 
welcome and should be submitted in writing to Paul Ries, Area Ranger, 
Sawtooth National Recreation Area, Star Route, Ketchum, ID 83340. 
Comments will be most useful to the analysis team if they are received 
by August 31, 1995. The Forest Service 

[[Page 38791]]
intends to hold public meetings on the proposal but the meetings have 
not been scheduled at this time.
    There are no known permits or licenses required to implement the 
proposed actions. Several agencies and organizations will be invited to 
participate as cooperating agencies.
    As previously stated, the Forest Service expects to publish the 
DEIS by mid-October 1995. The comment period on the DEIS will be 45 
days from the date the Environmental Protection Agency publishes the 
notice of availability in the Federal Register.
    The Forest Service believes it is important to give reviewers 
notice at this early stage of several court rulings related to public 
participation in the environmental review process. First, reviewers of 
DEIS must structure their participation in the environmental review of 
the proposal so that it is meaningful and alters an agency to the 
reviewer's position and contentions. Vermont Yankee Nuclear Power Corp. 
v. NRDC, 435 U.S. 519, 553 (1978). Also, environmental objections that 
could be raised at the DEIS stage but that are not raised until after 
completion of the final environmental impact statement may be waived or 
dismissed by the courts. City of Angoon v. Hodel, 803 F.2d 1016, 1022 
(9th Cir. 1986) and Wisconsion Heritages, Inc. v. Harris, 490 F. Supp. 
1334, 1338 (E.D. Wis. 1980). Because of these court rulings, it is very 
important that those interested in this proposed action participate by 
the close of the 45-day comment period so that substantive comments and 
objections are made available to the Forest Service at a time when it 
can meaningfully consider them and respond to them in the final 
environmental impact statement.
    To assist the Forest Service in identifying and considering issues 
and concerns on the proposed action, comments on the DEIS should be as 
specific as possible. It is also helpful if comments refer to specific 
pages or chapters of the draft statement. Comments may also address the 
adequacy of the DEIS or the merits of the alternatives formulated and 
discussed in the statement. (Reviewers may wish to refer to the Council 
on Environmental Quality Regulations for implementing the procedural 
provisions of the National Environmental Policy Act at 40 CFR 1503.3 in 
addressing these points.)
    Please note that comments you make on the DEIS will be regarded as 
public information.
    Thomas L. Tidwell, Acting Forest Supervisor, Sawtooth National 
Forest, is the responsible official.

    Dated: July 24, 1995.
Thomas L. Tidwell,
Acting Forest Supervisor.
[FR Doc. 95-18553 Filed 7-27-95; 8:45 am]
BILLING CODE 3410-11-M