[Federal Register Volume 60, Number 206 (Wednesday, October 25, 1995)]
[Proposed Rules]
[Pages 54633-54636]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-26454]



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DEPARTMENT OF THE INTERIOR
National Park Service

36 CFR Part 7

RIN 1024-AC34


Grand Teton National Park and John D. Rockefeller, Jr. Memorial 
Parkway; Snowmobile and Snowplane Routes and Regulations

AGENCY: National Park Service, Interior.

ACTION: Proposed rule

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SUMMARY: The National Park Service (NPS) proposes to change the special 
regulations relating to the use, and designated routes for snowmobiles 
and snowplanes within Grand Teton National Park and John D. 
Rockefeller, Jr. Memorial Parkway. The proposed rule change will more 
clearly define the use of snowmobiles, snowplanes, and designated 
routes. This rule change would allow for the closure of the Potholes--
Baseline Flats area to snowmobiles at the discretion of the 
Superintendent and establish the special regulation allowing snowmobile 
use on the Continental Divide Snowmobile Trail (CDST). The proposed 
rule change will also establish a requirement for operators of 
snowmobiles within Grand Teton National Park to have a valid State 
driver's license or learner's permit.

DATES: Written comments will be accepted through December 26, 1995.

ADDRESSES: Comments should be addressed to: Jack Neckels, 
Superintendent, Grand Teton National Park, P.O. Box 170, Moose, Wyoming 
83012.

FOR FURTHER INFORMATION CONTACT: Colin W. Campbell, Chief Ranger, Grand 
Teton National Park, Moose, Wyoming 83012, Telephone: 307-739-3472.

SUPPLEMENTARY INFORMATION:

Background

    The Winter Use Plan of 1990 authorized the Continental Divide 
Snowmobile Trail (CDST) within the road prism from the east entrance of 
Grand Teton National Park through John D. Rockefeller, Jr. Parkway to 
the south entrance of Yellowstone National Park. In 1993, a joint task 
force of the two national parks developed and approved a Visitor Use 
Management Work Plan for implementing the Winter Use Plan. One major 
action item, the CDST, required promulgation of a special regulation 
prior to full implementation.
    The proposed trail through Grand Teton National Park and the 
Parkway would link the existing completed CDST in the State of Wyoming 
with the snowmobile trail network in Yellowstone National Park. 
Currently, the only incomplete portion of the CDST between State lands 
and Yellowstone occurs within Grand Teton National Park. Snowmobile 
users must transport their machines from the east boundary of Grand 
Teton National Park to the south gate of Yellowstone National Park 
through the John D. Rockefeller Memorial Parkway. By designating the 
proposed trail, CDST users will have a continuous trail system for 
travel through State land as well as a trail linking Grand Teton with 
Yellowstone.
    Furthermore the proposed CDST rule will likely affect snowmobile 
use within the area known as the Potholes--Baseline Flats area. This 
area is proposed wilderness and currently designated as an area open 
for snowmobiling. With the successful completion and opening of the 
CDST within Grand Teton National Park, the proposed rule will give the 
Superintendent the discretion to close the Potholes--Baseline Flats 
area to snowmobiling.
    The proposed rule provides for a licensing requirement, in 
accordance with State law, for operators to provide for safer operation 
of snowmobiles within the Park.
    This rule change will more clearly define the use of snowmobiles 
within Grand Teton National Park, and make snowmobiling on the CDST 
consistent with the practices of both State and Federal agencies, 
Forest Service and Fish and Wildlife Service, whose lands are 
contiguous with Grand Teton National Park.

Section-by-Section Analysis

36 CFR 7.22  Grand Teton National Park

    In November of 1990, a Winter Use Plan was completed for 
Yellowstone and Grand Teton National Parks, and the John D. 
Rockefeller, Jr. Memorial Parkway. The proposed changes to the 
regulations implement components of the Plan that affect Grand Teton 
National Park.
    (g) Snowmobiles. (1) The wording was changed in this section to 
differentiate snowmobiles from snowplanes, because the Winter Use Plan 
eliminates snowplane use on designated routes open to snowmobiles, and 
limits snowplane use to the frozen surface of Jackson Lake. Reference 
to paragraph (g)(6) was deleted because no exception applies to that 
paragraph.
    (2)(i) The Spread Creek Road was deleted from the list of 
designated routes open to snowmobiling. The Spread Creek Road is less 
than 2 miles long, is adjacent to an area closed to all use in winter 
to protect wintering wildlife, and does not connect to areas open to 
snowmobiling on adjacent Forest Service lands. Other language in this 
section was changed to open only the unplowed portion of the Teton Park 
Road, and to give the Superintendent the discretion to close the 
Potholes-Baseline Flats areas to snowmobiles. The Lizard Creek 
Campground Road was deleted as a designated route, because it has been 
largely unused, and it lacks adequate trailhead parking space. 
Sufficient alternative access to Jackson Lake is provided at Signal 
Mountain and Colter Bay.
    (2)(ii) This paragraph was added to allow the use of snowmobiles 
within Grand Teton National Park along the State proposed CDST. This 
trail follows existing roads in Grand Teton National Park and is 
consistent with NPS policy that states that snowmobiles are allowed 
only on designated routes. Traffic lanes along this route will continue 
to be plowed for cars and trucks, and snowmobiles will be permitted on 
a groomed trail adjacent to the traffic lanes. Connections from the 
trail to other snow roads (i.e., the unplowed portion of the Teton Park 
Road) are also permitted in the Winter Use Plan. The trail and 
connections to the trail will use the width of the existing roadway 
(ditches, cut slopes, fill slopes and other areas disturbed by road 
construction) immediately adjacent to the plowed vehicular traffic 
lanes.
    (2)(iii) This language was added to permit snowmobiles to cross the 
highway only at designated points, in order to make connections to rest 
stops, fuel, meals, lodging and other related visitor services; to 
permit snowmobiles to use portions of highway bridges where it is 
difficult or environmentally improper to use alternate routes; to 
permit snowmobile travel within parking and staging areas; and to 
connect to and/or travel within developed areas in a regulated manner.
    (2)(iv) This language was added to permit private property owners 
to access their properties. Use of oversnow vehicles will be restricted 
to travel over unplowed roads, during winter months. 

[[Page 54634]]
Access to private property had not been addressed in previous 
regulations. Some roads that accessed private property were open to the 
general public as well, and were designated on maps, but not included 
in the existing regulation.
    (2)(v) This language was added and retains the designated open area 
known as the Potholes area. This is included to give the Superintendent 
the discretion to open or close the Potholes area.
    (2)(vi) This language was moved from (g)(4) of the current 
regulation.
    (3) 36 CFR 2.19 prohibits other winter activities such as skiing, 
snowshoeing, ice skating, sledding, etc., on Park roads and parking 
areas open to motor vehicle traffic. That prohibition does not extend 
specifically to routes open to snowmobiling. In the interests of public 
safety, those activities should be prohibited on the CDST, but do not 
need to be prohibited on all routes open to snowmobile use. Therefore, 
those activities are restricted only on the designated route described 
in paragraph (g)(2)(ii), which is the CDST.
    (4) This language was added to address parking areas and procedures 
for snowplanes.
    (5) More stringent noise level standards were established for newly 
registered snowplanes. Permits issued for snowplanes registered for the 
first time after the Winter Use Plan was approved (November 1990) will 
require that snowplanes meet snowmobile noise standards, currently 78 
decibels on the ``A'' weighted scale. Snowplanes registered prior to 
the plan's approval must meet the noise standards established by 
previous regulations. Noise standards for snowmobiles are defined in 36 
CFR 2.18(d)(1).
    (6) The Winter Use Plan calls for lowering the speed limits during 
winter months along the highway adjacent to the CDST. The regulation of 
both the speed limits of wheeled vehicles and snowmobiles will be 
critical for the safe operation of the trail. This paragraph 
establishes speed limits that are the same for snowmobiles as for 
wheeled vehicles. Snowmobile speed limits greater than those for 
wheeled vehicles during other seasons will not be permitted. No special 
speed limits will be set for snowplanes or snowmobiles on Jackson Lake. 
Changing surface features of the lake in the winter tend to establish 
self-regulating limits on speed for safe travel.
    (7) This regulation was added to increase the margin of safety for 
snowmobile users. The CDST will have a groomed width of 10-12 feet, 
with some short stretches only eight feet wide where roadside 
constraints dictate a reduced width. Travel will be in both directions. 
For safe travel, it is imperative that snowmobiles remain on the right 
side of the roadway.
    (8) This paragraph was added to give the Superintendent the 
authority to closely regulate and manage snowmobile use so as to ensure 
full protection of natural resources and to provide for the utmost in 
visitor safety. For example, it may be necessary to close the CDST 
during hours of darkness to provide the opportunity for safe snow 
removal on adjacent traffic lanes and groom the trail. For the safety 
of snowmobilers, it may be necessary to close the trail during periods 
of low visibility created by blowing snow. For protection of the 
resources, the trail must remain closed until sufficient snow cover is 
in place to permit non-destructive use.
    (9) This paragraph was added to give the superintendent greater 
ability to assure competent operation of snowmobiles within the 
Parkway. With the ever increasing complexity and performance levels of 
modern snow machines, and with considerations for the safety of all 
Park visitors, operators of snowmobiles will be required to have a 
valid State driver's license or learner's permit as prescribed by the 
conditions of the issuing State.

36 CFR 7.21  John D. Rockefeller Jr. Memorial Parkway

    In November of 1990, a Winter Use Plan was completed for the John 
D. Rockefeller, Jr. Memorial Parkway. The proposed changes to 
regulations for the Parkway are to accommodate components of the Winter 
Use Plan that affect the Parkway.
    (a)(1) The definition of a snowplane was deleted. Under the Winter 
Use Plan, snowplanes that were previously permitted, are now excluded 
on designated routes in the Parkway. Snowmobiles are defined in 
Sec. 1.4. The wording ``except as otherwise distinguished in paragraph 
(a)(5)'' was deleted, as there was not a paragraph (a)(5) in the 
existing regulation, and the wording does not apply to the new 
paragraph (a)(5) now added.
    (a)(1) Designated routes to be open to snowmobile use: (i) The road 
that connects Flagg Ranch to Ashton, Idaho, has several names in common 
usage, including the Flagg-Ashton Road, the Grassy Lake Road, and the 
Reclamation Road. The name change in the regulations will coincide with 
names currently in use on USGS maps, NPS signs, and with what is most 
common usage. (ii) This language was added to permit snowmobiles to 
cross the highway only at designated points, in order to make 
connections to rest stops, fuel, meals, lodging and related visitor 
services; to permit snowmobiles to use portions of highway bridges 
where it is difficult or environmentally damaging to use alternate 
routes; to permit snowmobile travel within developed areas in a 
regulated manner.
    (iii) This language was added to permit snowmobile use along the 
CDST, a major component of the Winter Use Plan. That trail will follow 
the route of US Highway 89-287 between the south boundary of the 
Parkway and Flagg Ranch. The trail will use the width of the existing 
roadway (ditches, cut slopes, fill slopes, and other areas disturbed by 
road construction) and will be immediately adjacent to the northbound 
plowed vehicle lane.
    (2) 36 CFR 2.19 prohibits other winter activities such as skiing, 
snowshoeing, ice skating, sledding, etc., on Park roads and parking 
areas open to motor vehicle traffic. That prohibition does not extend 
specifically to routes open to snowmobiles. In the interests of public 
safety, those activities should be prohibited on the CDST, but they do 
not need to be prohibited on all routes open to snowmobile use. Those 
activities are only restricted in paragraph (a)(1)(iii), which is the 
designated route for the CDST.
    (3) The Winter Use Plan calls for the lowering of speed limits 
during the winter months along the highway adjacent to the CDST. The 
regulation of the speed limits for both wheeled vehicles and 
snowmobiles will be critical to the safe use of the trail. Likewise, 
lowered speed limits will be needed in areas shared by snowmobiles and 
wheeled vehicles such as parking lots and staging areas. In general, 
speed limits for snowmobiles will not be greater than is presently 
posted for wheeled vehicles during other seasons. The original wording 
of this paragraph, that prohibited the operation of a snowmobile that 
makes excessive noise, was deleted, because that provision is redundant 
to Sec. 2.18(d)(1).
    (4) This regulation was added to increase the margin of safety for 
snowmobile users. The CDST will have a groomed width of 10-12 feet, 
with some short stretches only eight feet wide where roadside 
constraints dictate a reduced width. Travel will be in both directions. 
For safe travel, it is imperative that snowmobiles remain on the right 
side of the route.
    (5) This paragraph was added to give the Superintendent the 
authority to manage snowmobile use so as to ensure full protection of 
natural resources and to provide the utmost in visitor safety. For 
example, it may be necessary to close the CDST during hours of 

[[Page 54635]]
darkness to provide the opportunity for safe snow removal on adjacent 
traffic lanes and to groom the trail. For the safety of snowmobilers, 
it may be necessary to close the trail during periods of low visibility 
created by blowing snow. For protection of the resources, the trail 
must remain closed until sufficient snow cover is in place to permit 
non-destructive use.
    (6) This paragraph was added to give the Superintendent greater 
ability to assure competent operation of snowmobiles within the 
Parkway. With the ever increasing complexity and performance levels of 
modern machines, and with considerations for the safety of all Park 
visitors, operators of snowmobiles will be required to have a valid 
State driver's license or learner's permit as prescribed by the 
conditions of the issuing State.

Public Participation

    The policy of the National Park Service is, whenever practicable, 
to afford the public an opportunity to participate in the rule making 
process. Accordingly, interested persons may submit written comments 
regarding this proposed rule to the address listed above. The Grand 
Teton National Park staff will also be placing public notices in local 
newspapers.

Drafting Information

    The primary authors of this proposed rule are Colin W. Campbell, 
Chief Ranger and Donald G. Coelho, former North District Ranger of 
Grand Teton National Park.

Paperwork Reduction Act

    This rulemaking does not contain information collection 
requirements that require approval by the Office of Management and 
Budget under 44 U.S.C. 3501 et seq.

Compliance With Other Laws

    This rule was not subject to Office of Management and Budget review 
under Executive Order 12866. The Department of the Interior has 
determined that this document will not have a significant economic 
effect on a substantial number of small entities under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.).
    The National Park Service has determined that this proposed 
rulemaking will not have a significant effect on the quality of the 
human environment, health and safety because it is not expected to:
    (a) Increase public use to the extent of compromising the nature 
and character of the area causing physical damage to it;
    (b) Introduce non-compliance uses which might compromise the nature 
and characteristics of the area, or cause physical damage to it;
    (c) Conflict with adjacent ownerships or land uses; or
    (d) Cause a nuisance to adjacent owners or occupants.
    Based upon this determination, the proposed rule is categorically 
excluded from the procedural requirements of the National Environmental 
Policy Act (NEPA) by Departmental regulations in 516 DM 6, (49 FR 
21438). As such, neither an Environmental Assessment nor an 
Environmental Impact Statement has been prepared.

List of Subjects in 36 CFR Part 7

    National parks; Reporting and recordkeeping requirements.

    In consideration of the foregoing, it is proposed to amend 36 CFR 
Chapter I as follows:

PART 7--SPECIAL REGULATIONS, AREAS OF THE NATIONAL PARK SYSTEM

    1. The authority citation continues to read as follows:

    Authority: 16 U.S.C. 1, 3, 9a, 460(q), 462(k); Sec. 7.96 also 
issued under D.C. Code 8-137 (1981) and D.C. Code 40-721 (1981).

    2. Section 7.22(g) is revised to read as follows:


Sec. 7.22  Grand Teton National Park.

* * * * *
    (g) Snowmobiles. (1) Snowmobiles, as defined in Sec. 1.4, are 
distinguished from ``snowplanes'', that are self-propelled vehicles 
intended for over-the-snow travel, having a curb weight of not more 
than 1000 pounds (450 kilograms), mounted on skis in contact with the 
snow, and driven by a pusher-propeller.
    (2) Designated routes to be open to snowmobile use:
    (i) The unplowed portion of the Pacific Creek Road; the unplowed 
portion of the Ditch Creek Road; the Lost Creek Ranch Road (for 
administrative purposes only), those portions of the unplowed roads 
connecting with the Shadow (Antelope) Mountain Forest Service Road at 
Cunningham Cabin, Lost Creek Road and the Forest Service access road at 
Schwering Studio; the unplowed portions of the Moose-Wilson Road; the 
unplowed portions of the Teton Park Road north of Taggart trailhead 
parking to Signal Mountain Lodge, the Jenny Lake Loop Road, the String 
Lake Picnic Area Road, the Signal Mountain Summit Road, the Signal 
Mountain Launch Ramp Road and the Spaulding Bay Road.
    (ii) Within the right-of-way, immediately adjacent to the westbound 
or northbound traffic lane, but not upon the plowed portion of Highway 
26-89-287, between the east Park boundary and the north Park boundary, 
except that at the junction of 89-287, commonly known as Jackson Lake 
Junction, the route will cross to the west side of the southbound lane 
of highway; continue along the west side for north or southbound 
traffic; connecting with an old roadway surface at Willow Flats, 
deviate from established right-of-way and be routed under Christian 
Creek bridge; back to the right-of-way, immediately adjacent to the 
westbound or northbound traffic lane; and within the right-of-way, 
immediately adjacent to the southbound traffic lane, but not upon the 
plowed portion of the Teton Park Road, between the junction with 
Highway 89-287, and the unplowed portion of the Teton Park Road of 
Signal Mountain.
    (iii) Marked or posted highway crossings; on highway bridges where 
no separate snowmobile bridge is in place; within designated vehicle 
parking and snowmobile staging areas; and within or connecting to 
developed areas where routes will be designated by appropriate snow 
poles or signs.
    (iv) Those unplowed roads that provide access to private property 
within the exterior boundaries of the Park area, pursuant to the terms 
and conditions of a permit issued only to owners of such private 
property.
    (v) Designated area open to snowmobile use: The Potholes--Baseline 
Flats area east of the Teton Park Road north of Cottonwood Creek, north 
of the Bar BC access road, east of Timbered Island as marked to the 
Teton Park Road and bounded on the north by the RKO Road. Opening and 
closing of the Potholes area is at the discretion of the 
Superintendent, based in part on snow depth, snow conditions, weather, 
and other routes open within the Park. At the discretion of the 
Superintendent the Potholes area may be closed during any given year.
    (vi) Designated water surface open to oversnow use: The frozen 
surface of Jackson Lake is open to both snowmobile and snowplane use.
    (3) Notwithstanding the definition of a vehicle as set forth in 
Sec. 1.4 of this chapter, the provisions of Sec. 2.19 apply to 
paragraph (g)(2)(ii) of this section.
    (4) Parking for snowplanes will be designated by permit and 
confined to certain areas. Parking snowplanes in non-designated areas 
or without a permit is prohibited.
    (5) The operation of a snowplane that makes excessive noise is 
prohibited. 

[[Page 54636]]
Excessive noise is defined as noise that exceeds 78 decibels. 
Measurements are made on the ``A'' weighted scale by a sound level 
meter, measured at a distance of not less than 50 feet when the 
snowplane is being operated at full throttle. Except, that snowplanes 
registered and operated in the Park for the 1970-1971 season need not 
meet any noise level standards, and snowplanes registered and operated 
in the Park prior to the 1991-1992 season may produce up to 86 
decibels.
    (6) The maximum speed limit for snowmobiles will be the same as is 
posted for vehicles on the adjacent roadway, or as is posted for areas 
shared by vehicles and snowmobiles, or as is posted for wheeled 
vehicles during other seasons. Operating a snowmobile at a speed in 
excess of the posted speed limit is prohibited.
    (7) On designated routes open to snowmobile use, snowmobiles shall 
travel on the right side of the route, except to overtake and pass. 
Failure to drive on the right side of the route is prohibited.
    (8) The Superintendent shall determine the opening and closing 
hours and dates for use of designated snowmobile or snowplane routes 
and areas, taking into consideration the location of wintering 
wildlife, available snow cover, road and trail maintenance 
requirements, and other factors that may relate to public safety and 
resource protection.
    (9) A valid State driver's license or learner's permit is required 
to operate a snowmobile within Grand Teton National Park. Operating a 
snowmobile without a valid State driver's license or learner's permit 
is prohibited.
    3. Section 7.21 is revised to read as follows:


Sec. 7.21  John D. Rockefeller, Jr. Memorial Parkway.

    (a) Snowmobiles. (1) Designated routes to be open to snowmobile 
use:
    (i) The Grassy Lake Road between the west boundary of the Parkway 
and the junction with Highway 89-287.
    (ii) Marked and posted highway crossings; on highway bridges where 
no separate snowmobile bridge is in place; within designated vehicle 
parking and snowmobile staging areas; and within or connecting to 
developed areas, where routes will be designated by appropriate snow 
poles or signs.
    (iii) Within the right-of-way, immediately adjacent to the 
northbound traffic lane, but not upon the plowed portion of Highway 89-
287, between the south boundary of the Parkway and Flagg Ranch.
    (2) Notwithstanding the definition of a vehicle as set forth in 
Sec. 1.4 of this chapter, the provisions of Sec. 2.19 apply to 
paragraph (a)(1)(iii) of this section.
    (3) The maximum speed limit for snowmobiles will be the same as is 
posted for vehicles on the adjacent roadway, or as is posted for areas 
shared by vehicles and snowmobiles, or as is posted for wheeled 
vehicles during other seasons. Operating a snowmobile at a speed in 
excess of the posted speed limit is prohibited.
    (4) On designated routes open to snowmobile use, snowmobiles shall 
travel on the right side of the route, except to overtake and pass. 
Failure to drive on the right side of the route is prohibited.
    (5) The Superintendent shall determine the opening and closing 
hours and dates for use of designated snowmobile routes, taking into 
consideration the location of wintering wildlife, available snow cover, 
road and trail maintenance requirements, and other factors that may 
relate to public safety and resource protection.
    (6) A valid State driver's license or learner's permit is required 
to operate a snowmobile within the John D. Rockefeller, Jr., Memorial 
Parkway. Operating a snowmobile without a valid State driver's license 
or learner's permit is prohibited.
    (b) [Reserved].

    Dated: September 19, 1995.
George T. Frampton, Jr.,
Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 95-26454 Filed 10-24-95; 8:45 am]
BILLING CODE 4310-70-P