BLM LIBRARY U.S. Department of Agriculture 88074170 FOREST SERVICE and U.S. Department of the Interior ^UENTOF BUREAU OF LAND MANAGEMENT Hemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan Sawtooth National Forest, Sawtooth National Recreation Area BLM Idaho Falls District, Challis Field Office August 9, 2018 For more information, contact: Kit Mullen, Forest Supervisor Sawtooth National Forest 2647 Kimberly Road East Twin Falls, ID 83301-7976 Phone: 208-737-3200 Fax: 208-737-3236 Mary D’Aversa, District Manager BLM Idaho Falls District 1405 Hollipark Drive Idaho Falls, ID 83401 Phone: 208-524-7500 Fax: 208-737-3236 Cover Photo Description: Castle Peak reflects into upper Chamberlin Lake in the Cecil D. Andrus-White Cloud Wilderness. 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Submit your completed form or letter to USDA by: (1) mail: U.S. Department of Agriculture, Office of the Assistant Secretary for Civil Rights, 1400 Independence Avenue, SW, Washington, D.C. 20250-9410; (2) fax: (202) 690-7442; or (3) email: [email protected]. USDA is an equal opportunity provider, employer and lender. Hemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan DR & FONSI Decision Record for the Hemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan Bureau of Land Management Challis Field Office Environmental Assessment: D01-BLM-1D-I030-2016-0003-EA INTRODUCTION The Environmental Assessment (EA) discloses the environmental impacts of a wilderness management plan for the Hemingway-Boulders (HB) Wilderness and Cecil D. Andrus-White Clouds (CDAWC) Wilderness. These Wilderness areas were designated through the passage of the Sawtooth National Recreation Area and Jerry Peak Wilderness Additions Act (P.L. 114-46). This decision record will implement the Wilderness Management Plan (WMP) for the Bureau of Land Management (BLM) portion of the CDAWC Wilderness. The WMP will provide the primary management approach to preserve wilderness character as identified by the Wilderness Act of 1964. The EA has been prepared pursuant to the requirements of the National Environmental Policy Act (NEPA, 40 CFR 1500-1508). Public involvement opportunities occurred throughout the planning process. PURPOSE AND NEED The purpose of this project is to preserve wilderness character as identified by the Wilderness Act within the two wilderness areas, situated on federal public land managed by the BLM. Per the Wilderness Act of 1964 (Section 4), “... each agency administering any area designated as wilderness shall be responsible for preserving the wilderness character of the area.’ Although wilderness character is a complex idea and is not explicitly defined in the Wilderness Act, the qualities of wilderness character are commonly described as: • Untrammeled—Area is unhindered and free from intentional actions of modem human control or manipulation. • Natural—Area appears to have been primarily affected by the forces of nature and are substantially free from the effects of modern civilization. • Undeveloped—Area is essentially without permanent improvements or the sights and sounds of modem human occupation, and it retains its primeval character. • Outstanding opportunities for solitude or a primitive and unconfined type of recreation—Area provides outstanding opportunities for people to experience solitude or primeval and unrestricted recreation including the values associated with physical and mental inspiration, challenge, self- reliance, self-discovery, and freedom. • Other Features of Value—Area may also contain ecological, geological, or other features of scientific, educational, scenic, or historical value. Though not required of any wilderness, these characteristics, if present, must be protected as rigorously as any of the other four required qualities. The need for the project is to identify the conditions and opportunities for which the Wilderness areas would be managed and to create specific direction for managing resources and activities that would bring existing conditions closer to meeting desired conditions. The need for the action is to address preservation and protection of wilderness character, and specifically: BLM Decision Record & FONSI 1 Ilemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan DR & FONSI • Preserve the untrammeled quality by minimizing actions that intentionally manipulate the earth and its community of life; • Protect wildlife: o reduce risk of disease transmission to bighorn sheep; o minimize recreation conflict with wildlife species; o preserve important habitat for a wide array of fish and wildlife species; • Manage recreation: o minimize impacts of large groups on wildlife, vegetation, and opportunities for solitude; o educate visitors on a variety to topics to minimize user impacts; • Protect vegetation: o protect sensitive riparian and alpine vegetation, including whitebark pine, by managing campfire use and recreational stock use; • Preserve the undeveloped nature of the wilderness by managing developments and human intrusions; • Preserve opportunities solitude or primitive and unconfined recreation. Additionally, the signing of the Sawtooth National Recreation Area and Jerry Peak Wilderness Additions Act (Public Law 114-46) changed the management direction of these areas. This Act states “IN GENERAL.- Subject to valid existing rights, each wilderness area shall be administered by the Secretary in accordance with the Wilderness Act (16 U.S.C. 1131 et seq.)...” P.L. 114-46 requires: “Not later than 3 years after the date of enactment of this Act, the Secretary of Agriculture and the Secretary of Interior shall collaboratively develop wilderness management plans for the wilderness areas.” CHANGES BETWEEN THE DRAFT WMP, EA AND THIS DECISION A number of changes were made to the EA following distribution of the draft WMP. These changes are reflected throughout the EA and are summarized below. The changes reflect consideration of public comments on the proposed plan and EA and its effects upon wilderness character, and ensured that the analysis included the best scientific information. I do not believe that the edits and corrections necessitate issuance of another WMP or other form of document for comment. The updated information disclosed in the EA falls within the scope of the analysis depicted in the draft WMP and in most cases simply provides additional clarity. Direction numbers in this list reference the April 2018 version of the WMP. In addition to minor edits and corrections, the following changes were made: • The name of the White Clouds Wilderness was updated to: Cecil D. Andrus-White Clouds Wilderness as directed in Consolidated Appropriations Act, 2018 (Public Law 115-141). • Added language to the plan: The direction in the plan would apply within the final surveyed boundaries. (WMP Section 5) • Added language: Per wilderness law and policy, access associated with hunting, fishing, and trapping is limited to non-motorized and non-mechanized means and is allowable as long as the trapper does not commercially sell the fur, hides, or other parts of the trapped animal. (WMP Section 5) Deleted Standard specific to hunting, trapping from the Recreation section. • Revised Special Uses language for extent necessary from “restriction” to “recognition.” (WMP Section 5) BLM Decision Record & FONSI 2 Hem in gway-Bou/ders and Cecil D. Andrns-White Clouds Wilderness Management Plan DR & FONSI • Replaced “A strong local population of bull trout exists within the upper Warm Springs Creek watershed.” with “Migratory and resident bull trout use Warm Springs Creek, the East Fork Salmon River, and their tributaries for spawning and rearing.” (WMP Section 6.5) • Inserted “factors including, but not limited to” into the causal factors for negative impacts. (Section 6.6) • Revised the MA Description for Wildlife Resources to reference species management plans in a general manner. (Section 6.9) • Added into the MA Description for Recreation Resources: The agencies acknowledge the MOU between Regions 1, 4, and 6 of the USFS, the Idaho State BLM office and the IOGLB. Agencies will work with the Licensing Board to manage commercial services within the Wilderness, such as when undertaking the needs assessment through the land use plans. (Section 6.10) Also, added IOGLB to Acronyms. Added MOU with IOGLB to references. • Revised paragraph in MA Description for Recreation Resources to read: Six outfitters hold priority use permits for operations in the Cecil D. Andrus-White Clouds Wilderness, five are administered by the Sawtooth NRA, and one by the Challis Field Office. They offer guided hiking, mountain climbing, skiing, horse packing, hunting, and fishing opportunities. Of these, three also operate in the Hemingway-Boulders Wilderness. Two assigned outfitter campsites are located in the White Clouds Wilderness and one is in the Hemingway-Boulders Wilderness. These sites have some development, including tent and stock structures. Temporary use outfitting and guiding occurs in these areas as well. The type and amount of temporary outfitter and guide use varies from year to year. (WMP Section 6.10) • Added to Wilderness Goal 2109: National Historic Preservation Act protocols will be followed. (WMP Section 7.1) • Revised minimum requirements analysis direction (2122, added Guideline 2123), revised glossary definition, and moved several standards to guidelines (2122, 2124, 21116, 21154). (WMP Sections 7.1, 7.14, 7.19) • Revised wording of Wilderness Goals 2103, 2109, Scenic Environment Objective 2194, and a Zone 2 Desired Condition to use the terms preserve or protect, in lieu of enhance. (WMP Sections 7.1., 7.1 l,and 7.21.1) • Reword of Wilderness Guideline 2124: Allow natural processes to dominate and maintain ecosystem functions, including natural restoration. Where human activities have substantially degraded the wilderness condition, active management may be considered to restore wilderness character. In addition to an MRA, the Framework for Evaluating Ecological Intervention (or most current) is a valuable method that may be used for evaluating necessary and appropriate action. (WMP Section 7.1) Added “Framework for Evaluating Ecological Intervention in Wilderness” into references. • Revised Wildlife Resources Objective 2152: When federal and State agencies agree removing fish is necessary for protecting and improving wilderness character, removal may occur, contingent upon an MRA and NEPA analysis, as required. (WMP Section 7.9) BLM Decision Record & FONSI 3 Hemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan DR & FONSI • Changed name of East Fork Herd Home Range to Pack Goat Exclusion Area for accuracy in Wildlife Resources Standard 2155. (WMP Section 7.9) • Changed wording in Wildlife Resources Standard 2156 for pack goat measures from “Enforce...” to “Require...” (WMP Section 7.9) • Edited Recreation Resources Standard 2170: to add language “.. .with the exception of agency provided tie-ups where topography does not allow it outside the 200 feet.” (WMP Section 7.10) • Added a new Guideline under Recreation Resources: Encourage use of temporary stock containment systems and tree-saver devices to minimize tree damage. (WMP Section 7.10) Carried changes into EA. • Revised Recreation Resources - Commercial Services Objective 2187 to read: Maintain outfitter and guide priority use permit holder service days at existing actual use levels based on a review of actual use consistent with Forest Service and BLM handbook direction. Evaluate changes in amount of use, type of use, operating areas, or service day allocation using the most current guidance (i.e. needs assessment, capacity analysis), consistent with Forest Service and BLM handbook direction. Current direction is found at FSH 2709.14 53 and BLM H-2930-1, IIIA. (WMP Section 7.10.1) • Clarified Recreation Resources — Commercial Services Objective 2188 to read: Develop temporary outfitter and guide use pools based on a review of actual use at the time of designation. Evaluate changes in the amount of use, type of use, or operating areas, using the most current guidance (i.e. needs assessment, capacity analysis, etc.), consistent with Forest Service and BLM handbook direction. Current direction is found at FSH 2790.14 53.11. BLM policy (BLM H-2930-1 1-9) allows for temporary uses including the use of pools, as appropriate (WMP Section 7.10.1) • Deleted Recreation Resources - Commercial Services Standard regarding permanent structures. This direction is covered by policy, and by default in the standard specific to temporary structures. • Clarified Recreation Resources - Commercial Services Standard 2189: Approve only temporary structures and facilities for outfitter and guide operations necessary to meet the public need in a manner compatible with the wilderness environment. (Current direction may be found FSH 2709.14, Chapter 53.1c (3), FSM 2320.13g and BLM H-2930-1, BLM 6340 B.2(i)). (WMP Section 7.10.1) • Revised Recreation Resources - Commercial Services Standard 2190: Authorize assigned campsites for outfitters and guides in Zones 3 and 4 only and locate them to reduce conflicts with non-outfitted users and to protect sensitive areas. (WMP Section 7.10.1) • Added Recreation Resources - Commercial Services Guideline 2193: The Authorized Officer may consider exceptions for group sizes over 12 people and/or 14 head of stock on case-by-case basis through permit and operating plan; however, these exceptions would be rare and would not exceed the group size limit of 20 people and 25 head of stock. BLM Decision Record & FONSI 4 Hemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan DR & FONSI • Edited Heritage, Archaeological and Cultural Resources Goal 2198: from ...while allowing...” to “...while managing...” (WMP Section 7.12) • Clarified Tribal Rights and Interests Standard 21105: Coordinate and consult with tribes to maintain their right to gather fish, wildlife, plants, and access traditional cultural and religious sites while maintaining wilderness character. (WMP Section 7.13) • Revised Rangeland Resources Standard 21116: Routine livestock management activities in wilderness, including maintenance, would normally be accomplished by non- motorized, non-mechanized means. Requests by grazing permittees for occasional use of motorized or mechanized equipment or vehicles would be evaluated on a case by case basis through a MRA. (WMP Section 7.14) • Revised Rangeland Resources Standard 21113: Water use for irrigation to maintain livestock grazing operations will be in accordance with existing water rights issued by the State of Idaho with priority dates predating the wilderness designation. (WMP Section 7.14) • Revised Mineral and Geologic Resources Objective 21119: Where valid existing rights occur, provide direction for managing mineral activities in wilderness in accordance with agency directives and regulations and with consideration of all applicable state and federal requirements. (WMP Section 7.15) • Revised Mineral and Geologic Objective 21121: Ensure lands disturbed during mineral exploration and development activities are restored as nearly as practicable promptly upon completion or abandonment of operations. Plans of operations will stipulate reclamation and bonding requirements of the authorized operator. (WMP Section 7.15) • Revised Mineral and Geologic Standard 21122: The plan of operation must outline all terms and conditions for reclamation and rehabilitation of an area upon completion of mineral exploration or development activity, including a timeline for removing all structures, equipment and support facilities tor the operation and the area impacted by mineral operations must be restored as nearly as practicable to the contour and appearance of the landscape before operations commenced. (WMP Section 7.15) • Revised portion of Research Standard 21154 regarding research proposals to encourage, but not require use of the Framework to Evaluate Proposals for Scientific Activities in Wilderness (Landres 2010, or most current). (WMP Section 7.19) • Moved Search and Rescue standard regarding the flow chart in Appendix 1 to a guideline (21160). • The ending portion of Search and Rescue Guideline 21162 was deleted to remove redundancy: “...for emergencies involving the life and safety of people in the wilderness.” (WMP Section 7.20) • Revised Zone 2 Standard 21169-Z2 to allow for existing class 3 trails. (WMP Section 7.21.2) • Updated the public involvement section to include the comment period. (EA Section 1.4) • Added Fort Bridger Treaty. (EA Section 2.8.2) BLM Decision Record & FONSI 5 Hemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan DR & FONSI • Added paragraph about enforcing relevant laws, and posting information related to cultural resource protection. (EA Section 3.1.3) • Deleted portion of quote from Keeping It Wild 2 that references “comfort facilities.” (EA Section 3.3.2) • Revised Wildlife portion under Naturalness (Wilderness section) for Alt A, and Alt C to clarify statements about disease transmission. (EA Section 3.3.3) • Glossary Edits: added several new definitions; revised and expanded several definitions; added citations for definitions taken from policy. • Renumbered direction throughout Plan and EA. DECISION I have reviewed the analysis presented in the EA for the WMP, considered the comments received on the draft WMP, and discussed the project’s anticipated effects with both the Interdisciplinary Team, Field Office staff, and State Office staff. I have considered and incorporated the comments and input raised in staff to staff coordination meetings with Tribes, and comments from stakeholders and the public received on the draft WMP. I have decided to select and implement Alternative A (Proposed Action - the WMP) for the management of the BLM portion of the CDAWC Wilderness. My decision includes direction for the preservation of wilderness character, while managing allowable uses of two Wilderness areas. Specifically, I am making the following decisions: Direction Alternative A—Proposed Action Wilderness Standard Use locally sourced native seed or plants where reseeding or replanting is determined necessary. Standard Manage vehicle access points to prevent unauthorized vehicle use by posting appropriate boundary signage and blocking or rehabilitating unauthorized routes. Standard Assess impacts and determine if management actions are needed to maintain wilderness character (see “Wilderness Monitoring” section) if campsite and travel encounters increase by 10% or more over two reporting periods. Standard Assess impacts and determine if management actions are needed to maintain wilderness character if recreation site condition class increases by 5% or more over two reporting periods (see “Wilderness Monitoring” section). Standard Assess impacts and determine if management actions are needed to maintain wilderness character if total miles of user-developed routes (i.e., unauthorized trails) increase by 3% or more over two reporting periods (see “Wilderness Monitoring” section). Standard Ensure management activities are consistent with wilderness zone descriptions. Guideline Use natural openings for helicopter landing areas when needed for fire or emergency operations, to avoid impacts to wilderness character and minimize intrusions. Wildlife Resources Standard Require the following measures from the North American Packgoat Association to minimize contact between bighorn sheep and domestic goats used for packing: • All pack goats will be on leads or have leads attached to their collar or halter at all times. • All pack goats will be tethered at night within 30 feet of humans. BLM Decision Record & FONSI 6 Hemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan DR & FONSI Direction Alternative A—Proposed Action • If bighorn sheep arc observed within 100 yards of a potential camping area, pack goat users will take all reasonable measures to move their campsite to a different area. Hazing techniques may be used to deter bighorn sheep from moving closer to campsites if necessary. • Pack goat numbers will be limited to a maximum of three (3) pack goats per person, and a maximum of nine (9) pack goats per group. • When bighorn sheep are using trails for travel pack goat users will move off the trail 100 yards. If that distance is not attainable, the pack goat user will travel back along the trail away from the bighorn sheep and exit the trail when the 100 yard distance can be reached. Pack goat users will stay off the trail until bighorn sheep have passed. If visibility is limited to less than 100 yards up trail, a pack goat user will go to the trail and observe for bighorn sheep before continuing with pack goats. • When accessing browsing areas and water, a pack goat user will check for the presence of bighorn sheep before allowing access for pack goats. Whenever possible, water access will be limited to areas of unlikely bighorn sheep use. • In event that direct contact of a pack goat and a bighorn sheep is observed, the location and as much of a description as is possible of the sheep and incident will be written, photographed if possible and reported to the appropriate agency as soon as reasonably possible. • If any pack goat becomes lost, missing or separated from the owner and herd every effort will be exhausted to locate and recover the lost pack goat. If the owner is unable to locate and recover the lost pack goat, contact the Sawtooth NR A by telephone immediately. A full disclosure of all available information will be provided including: the last known location (GPS coordinates, legal description, geographic location, name or number of trail or trailhead), the circumstances that resulted in it becoming lost, a description of the pack goat, and any equipment that it was carrying. Continue to work cooperatively with IDFG to reduce the risk of disease transmission or other Standard stressors between bighorn sheep and domestic animals. Recreation Resources Limit group size to a maximum of 12 people. (See exception for Native American tribes in the Standard Tribal Rights and Interests section.) Standard Limit the combined number of recreational stock in one group to 14 head of stock. Standard Prohibit shortcutting trail switchbacks on foot or with recreational stock. Only allow campfires below 8,800 feet elevation and within 200 yards of Walker Lake, Island Standard Lake Upper and Lower Chamberlain Lakes (9,477 and 9,197 feet), and Boom Lakes. Prohibit tethering recreational stock within 200 feet of lakes, streams, and springs, with the Standard exception of agency provided tie-ups where topography does not allow tethering outside the 200 feet. Standard 1 ,imit tying of recreational stock to live trees to a maximum of one hour. Prohibit grazing bv recreational stock within 200 feet of lakes, streams, or springs. Standard Require human waste to be buried and covered, at least 200 feet from water, campsites, and Standard trails; or packed out. Manage winter recreation to minimize conflict with high elevation wildlife species including Standard mountain goats and wolverine. Prevent human/wildlife encounters by emphasizing proper camping techniques and food storage Guideline and containment. BLM Decision Record & FONSI 7 Hemingway-Boulders and Cecil D. Andrus-White Clouds Wilderness Management Plan DR & FONSI Direction Alternative A—Proposed Action Guideline Discourage off-trail route marking and remove user-created route markers (e.g., stacked rocks, flagging). Guideline Encourage use of no trace fires (i.e. use of fire pans or fire blankets). Guideline Maintain the voluntary registration system. Recreation—Commercial Services Standard Approve only temporary structures and facilities for outfitter and guide operations necessary to meet the public need in a manner compatible with the wilderness environment. (Current direction may be found FSH 2709.14, Chapter 53.1c (3), FSM 2320.13g and BLM H-2930-1, BLM 6340 B.2(i)). Standard Authorize assigned campsites for outfitters and guides in Zones 3 and 4 only and locate them to reduce conflicts with non-outfitted users and to protect sensitive areas. Standard Ensure operating plans for priority use and temporary use outfitting and guiding permits direct outfitters to model appropriate wilderness practices and incorporate awareness of wilderness values in their interaction with clients and others. Guideline The Authorized Officer may consider exceptions for group sizes over 12 people and/or 14 head of stock on case-by-case basis through permit and operating plan; however, these exceptions would be rare and would not exceed the group size limit of 20 people and 25 head of stock. Scenic Environment Guideline Build facilities and structures, when needed for resource protection, out of natural materials that blend into the natural environment. Guideline Do not consider visual conditions changed by natural events and processes as detrimental to scenic qualities. Heritage, Archaeological and Cultural Resources Guideline Develop a management strategy that includes, but is not limited to education/interpretation or signage outside of wilderness, or natural barriers to prevent additional damage if monitoring reveals that damage is occurring to cultural, archaeological, or historic resources. The wilderness specialist and archaeologist, in consultation with sovereign tribal governments and the State Historic Preservation Officer, will work together to develop the management strategy. Rangeland Resources Standard Water use for irrigation to maintain livestock grazing operations will be in accordance with existing water rights issued by the State of Idaho with priority dates predating the wilderness designation. Fire Management Guideline Determine actions for each wildland fire that are consistent with protecting wilderness character while providing for firefighter and public safety, and considering impacts to private property and developed facilities in surrounding areas. Guideline Avoid locating temporary wildfire management support facilities (e.g., spike camps, landing areas) in wilderness. When considered necessary, all efforts will be made to use areas with pre¬ existing impacts, outside of Zone 1. Responder safety will be the first consideration when making this determination. Guideline Minimize suppression impacts to wilderness character by using MIST and assigning Resource Advisor(s) with knowledge, training, and/or experience in wilderness management. Return disturbance caused by suppression actions to as natural a condition as possible. BLM Decision Record & FONSI 8