140L5725R0003_Attachment_04_GSENM_Calf_Creek_EA_Final.pdf

Calf Creek Recreation Site from above campground looking down canyon, 2021

Paria River District Grand Staircase-Escalante National Monument

669 S. Highway 89A Kanab, Utah 84741

435-644-1200

Calf Creek Recreation Site Deferred Maintenance and Improvements Project

February 2023

Environmental Assessment (EA) DOI-BLM-UT-P010-2021-0010-EA

DOI-BLM-UT-P010-2021-0010-EA February 2023

Calf Creek Recreation Site Deferred Maintenance and Improvements Project Environmental Assessment

DOI-BLM-UT-P010-2021-0010-EA

CONTENTS

CHAPTER 1. PURPOSE AND NEED

1.1. INTRODUCTION

1.2. BACKGROUND

1.3. PURPOSE AND NEED

1.4. RELATIONSHIP TO AND CONFORMANCE WITH STATUTES, REGULATIONS, AND OTHER NATIONAL ENVIRONMENTAL POLICY ACT (NEPA)

DOCUMENTS

1.4.1. Conformance with GSENM Proclamation 10286

1.4.2. Conformance with BLM Land Use Plans

1.4.3. Relationship to Statutes, Regulations, Guidance, and Other Plans

1.4.4. Relationship to Past Decisions, Plans, and NEPA Documents

CHAPTER 2. ALTERNATIVES

2.1. MAINTENANCE ONLY ALTERNATIVE

2.1.1. Health and Safety

2.1.2. Deferred Maintenance

2.1.3. Universal Accessibility

2.2. DECISION TO BE MADE

2.2.1. Visitor Experience

2.2.2. Design Elements

2.3. PROPOSED ACTION (DEFERRED MAINTENANCE AND IMPROVEMENTS)

2.3.1. Health and Safety

2.3.2. Deferred Maintenance

2.3.3. Universal Accessibility

2.3.4. Visitor Experience

2.3.5. Resource Degradation

2.3.6. Design Elements

CHAPTER 3. AFFECTED ENVIRONMENT AND ENVIRONMENTAL CONSEQUENCES

3.1. SCOPING AND IDENTIFICATION OF ISSUES

3.2. HUMAN HEALTH AND SAFETY

3.2.1. Human Health and Safety - Affected Environment

3.2.2. Human Health and Safety - Environmental Effects

3.3. UNIVERSAL ACCESSIBILITY

3.3.1. Universal Accessibility - Affected Environment

3.3.2. Universal Accessibility - Environmental Effects

3.4. RECREATION RESOURCES

3.4.1. Recreation Resources - Affected Environment

3.4.2. Recreation Resources - Environmental Effects

3.5. CULTURAL RESOURCES

3.5.1. Cultural Resources - Affected Environment

3.5.2. Cultural Resources - Environmental Effects

3.6. FISHERIES/AQUATIC RESOURCES

3.6.1. Fisheries/Aquatic Resources – Affected Environment

3.6.2. Fisheries/Aquatic Resources - Environmental Effects

3.7. FLOODPLAINS

3.7.1. Floodplains – Affected Environment

3.7.2. Floodplains - Environmental Effects

3.8. SOCIAL CONNECTION

3.8.1. Social Connection – Affected Environment

3.8.2. Social Connection - Environmental Effects

3.9. VISUAL RESOURCES

3.9.1. Visual Resources - Affected Environment

3.9.2. Visual Resources - Environmental Effects

3.10. WATER RESOURCES

3.10.1. Water Resources - Affected Environment

3.10.2. Water Resources - Environmental Effects

3.11. WILD AND SCENIC RIVERS

3.11.1. Wild and Scenic Rivers - Affected Environment

3.11.2. Wild and Scenic Rivers - Environmental Effects

3.12. WILDERNESS STUDY AREAS

3.12.1. Wilderness Study Area - Affected Environment

3.12.2. Wilderness Study Area - Environmental Effects

3.13. WILDLIFE RESOURCES

3.13.1. Wildlife Resources - Affected Environment

3.13.2. Wildlife Resources - Environmental Effects

CHAPTER 4. PUBLIC INVOLVEMENT, CONSULTATION AND COORDINATION

4.1. PUBLIC INVOLVEMENT

4.1.1. Scoping

4.1.2. Public Comment

4.2. CONSULTATION AND COORDINATION

4.2.1. National Historic Preservation Act

4.2.2. Endangered Species Act

4.2.3. Tribal Consultation

4.2.4. State and Local Government Coordination

4.3. ROLES IN THIS ENVIRONMENTAL REVIEW

4.3.1. BLM Interdisciplinary Team and/or Document Preparers

CHAPTER 5. REFERENCES

APPENDIX A: CCRS EXISTING CONDITION SCHEMATIC DRAWING

APPENDIX B: MONUMENT OBJECTS AND VALUES CONSISTENCY REVIEW

APPENDIX C: PAST DECISIONS, PLANS, AND NEPA DOCUMENTS

APPENDIX D: ALTERNATIVES CONSIDERED BUT DISMISSED FROM ANALYSIS

APPENDIX E: CCRS PROJECT AREA AND CONCEPTUAL SITE PLAN

APPENDIX F: RESOURCES DISMISSED FROM FORMAL ANALYSIS

APPENDIX G: VISUAL RESOURCE CONTRAST RATING ANALYSIS WORKSHEET

APPENDIX H: COMMENT RESPONSE

ACRONYMS

ABA Architectural Barriers Act ARMPs 2020 Record of Decision and Approved Resource Management Plans for Grand

Staircase-Escalante National Monument BLM Bureau of Land Management CCC Civilian Conservation Corps CCRS Calf Creek Recreation Site DOI Department of the Interior EA Environmental Assessment ESA Endangered Species Act FLPMA Federal Land Policy and Management Act GAOA Great American Outdoors Act GIS Geographic Information System GSENM Grand Staircase-Escalante National Monument IPAC US Fish and Wildlife Service Information, Planning, and Conservation System KOP Key Observation Point MOA Memorandum of Agreement MSO Mexican Spotted Owl NEPA National Environmental Policy Act NLCS National Landscape Conservation System NRCS Natural Resources Conservation Service NHPA National Historic Preservation Act NRHP National Register of Historic Places PLPCO Public Lands Policy Coordinating Office SAR Search and Rescue SB12 Scenic Byway 12 SHPO Utah State Historic Preservation Office SRMA Special Recreation Management Area SWFL Southwestern Willow Flycatcher T&E Threatened or Endangered Species UDOT Utah Department of Transportation US United States USFWS US Fish and Wildlife Service VRI Visual Resource Inventory VRM Visual Resource Management WSA Wilderness Study Area WSR National Wild and Scenic River System

DOI-BLM-UT-P010-2021-0010-EA 1 February 2023

CHAPTER 1. PURPOSE AND NEED

1.1. INTRODUCTION

The Bureau of Land Management (BLM) proposes to implement deferred maintenance1 and improvements (see section 2.2) at the Calf Creek Recreation Site (CCRS). The project area encompasses the CCRS, which includes the campground, picnic areas, and trailhead for Lower Calf Creek Falls. It is located in Grand Staircase-Escalante National Monument (GSENM) between the towns of Escalante and Boulder in Garfield County, Utah and is bounded on the west and north sides by a wilderness study area (WSA)2 and on the east and south sides by Scenic Byway 12 (SB12). The CCRS is located in the southern end of the larger Calf Creek Recreation Area. The project area is situated at approximately 5,300’ elevation in the bottom of a narrow riparian canyon surrounded by vertical Navajo sandstone walls. Calf Creek, a tributary of the Escalante River, runs through the middle of the site.

1 According to the BLM Fund Code Handbook, 2020, deferred maintenance includes maintenance that was not performed when it should have been or when it was scheduled and was therefore put off or delayed for a future period. It can also include code compliance issues, unfunded or delayed maintenance, defects that result from delayed maintenance, and facilities that pose a threat to human health and safety.

2 Wilderness Study Areas are places that have wilderness characteristics; that is a minimum size, naturalness, and outstanding opportunities for recreation which make them eligible for designation as wilderness. In 1976, Congress directed the BLM to evaluate all of its land for the presence of wilderness characteristics, and identified areas became WSAs. Until Congress decides to add or end consideration of a WSA, the BLM manages the area to ensure its suitability for designation as wilderness is not impaired, in accordance with Section 603 of FLPMA.

Figure 1 - Calf Creek Project Location Map

DOI-BLM-UT-P010-2021-0010-EA 2 February 2023

1.2. BACKGROUND

Recreational facilities (nine camping units, a group picnic area, toilet, road and bridges, water system, etc.) were first developed at Calf Creek in 1962-1963, authorized and funded through the Accelerated Public Works Program.3 The use of this funding allowed the BLM to create the CCRS as one of the agency’s first developed recreation sites.

The almost 3-mile-long trail to the lower falls was constructed in 1968. Then, in 1970, the broader area encompassing 5,835 acres of the Calf Creek watershed was designated as the Calf Creek Recreation Area under authority contained in 43 Code of Federal Regulations 2070 and the Multiple Use Act.

Since initial construction in the 1960s, infrastructure at the CCRS has been maintained, replaced, improved, and expanded. Today it contains the following amenities and site fixtures (see appendix A for a schematic of the existing CCRS):

• Designated, paved parking for approximately 30 standard-sized vehicles including two accessible stalls (space limitations do not allow for vehicles over 25-feet) that serves the picnic areas, trailhead, and nearby walk-in campsites.

• Eleven standard4 and two walk-in campsites with tables, fire rings, and site numbering posts – one campsite also has a shade shelter.

• Two picnic areas (one group area with wooden tables, a campfire ring and benches, and a food prep area - the other with two shade shelters, tables, and fire rings).

• A host site with utility connections.

• A chlorinated culinary water system with five hydrants.

• A main restroom building, constructed in the 1980s, with sinks and four toilets connected to a septic system.

• A vault toilet on the east side of the campground that was installed in 2019.

• A paved site road with a large culvert-style creek crossing5 near the entrance, and a concrete slab low water crossing within the campground.

• A pedestrian suspension bridge in the campground.

• A self-service fee station with a fee tube and bulletin boards.

• A trailhead register box and kiosk at the beginning of the Lower Calf Creek Falls Trail on the north end of the campground.

• A water play area in the creek near the picnic areas and walk-in campsites.

• Signs, retaining walls, and wooden fencing.

Much of this infrastructure is either old, failing, unsafe, not universally accessible, insufficient to meet current and increasing visitation pressure, and/or contributing to resource degradation. BLM has received Great American Outdoors Act of 2020 (GAOA) funding to help address deferred maintenance, as outlined in portions of this project proposal (see table 2 for deferred maintenance items). GSENM intends to use funds collected

3 The Public Works Acceleration Act of 1962 provided federal assistance to areas hard hit by recession and provided the Bureau its first major funding for recreation site development.

4 According to https://trailandsummit.com/every-type-of-campsite-defined-camping-faqs/ “standard” campsites usually accommodate party sizes of 6 people or less. They may be suitable for tents or RVs, though they are mostly used by tent campers because most standard sites have driveways that are only suitable for smaller campers and campervans. Note that the CCRS is limited to vehicle sizes of 25’ long or less limiting the size of RVs accommodated in the campground.

5 This structure is considered a “major culvert” in BLM’s Bridge Inspection Program. It is constructed of a large arch-shaped corrugated metal pipe supported by concrete footings.

DOI-BLM-UT-P010-2021-0010-EA 3 February 2023 locally through recreational use permits, as well as grants, to support items that are not included in the GAOA funding.

The proposed action is designed to address immediate infrastructure needs at the CCRS only. The new GSENM resource management plan, as required by Proclamation 10286 and recently noticed in the Federal Register, may include goals, objectives, and management actions for this area. The appropriate time to address the broader management concerns like carrying capacity and allocation in the entire Calf Creek Recreation Area would be through the new management plan, or after the plan has been issued. The proposed action is designed to complement, not deter, from these potential future efforts.

The proposed action is supported by recreation ecology research that suggests "concentrating visitor use in previously impacted or hardened sites and trails will likely be a successful management strategy, while dispersal strategies may result in a proliferation of recreation disturbance." (Monz, 2021). That "in many situations, the majority of change occurs with initial use (which at the CCRS occurred decades ago), with additional use resulting in minimal change." (Monz, 2021). "Therefore, sustainable management strategies will likely involve the concentration of recreational use and amenity development in previously-impacted or high-use areas."

(Monz, 2021).

1.3. PURPOSE AND NEED6

The need for the proposed action is driven by the fact that most of the infrastructure at the CCRS is decades old and in need of repair, replacement, or upgrade.

The main purposes of the proposal are to 1) improve human health and safety, 2) address deferred maintenance needs, 3) improve universal accessibility,7 4) enhance visitor experience, and 5) address resource degradation concerns at the CCRS.

1.4. RELATIONSHIP TO AND CONFORMANCE WITH STATUTES, REGULATIONS, AND OTHER NATIONAL

ENVIRONMENTAL POLICY ACT (NEPA) DOCUMENTS

1.4.1. Conformance with GSENM Proclamation 10286

The proposed action is consistent with the protection of Monument objects and values identified in Proclamation 10286. This is demonstrated by the analysis in chapter 3 and appendices B and F of this environmental assessment (EA). Replacing and improving infrastructure will enhance the resiliency of resources and help ensure the long-term protection of Monument objects and values.

1.4.2. Conformance with BLM Land Use Plans

The proposed action supports decisions in and is in conformance with the 2020 Record of Decision and Approved Resource Management Plans for Grand Staircase-Escalante National Monument (ARMPs). The following ARMPs Recreation and Visitor Services goals and objectives are specifically related to this proposal:

• Provide opportunities for visitor use and enjoyment of the area, consistent with resource capabilities, and mandated resource requirements (goal 2, page ARMPs-26).

6 The BLM’s need to protect Monument objects and values is established by Proclamation 10286. This requirement is overarching rather than project specific and applies to all BLM-approved actions within GSENM. As a result, protection of Monument objects and values is not specified in the purpose and need associated with the CCRS Deferred Maintenance and Improvements Project.

7 Universal accessibility refers to providing the conditions that allow any individual to access and enjoy a place freely and independently, to the greatest extent possible, regardless of their age, ability, or status in life.

DOI-BLM-UT-P010-2021-0010-EA 4 February 2023

Maintain or improve important recreational values and sites in Federal ownership to ensure a continued diversity of recreation activities, experiences, and benefits (objective 2nd bullet, page ARMPs-26).

Provide for public health and safety through mapping and information, facility development, and visitor management (objective 4th bullet, page ARMPs-26).

The ARMPs also established the Calf Creek SRMA, which provides for direction for management of the CCRS. The management framework for the SRMA is detailed in the ARMPs appendix H, pages H-2 to H-5. The objective for the Calf Creek SRMA is “to retain the rural and rugged flavor through designed recreation developments in key locations, reduce user-created impacts in undesirable locations, and retain the visual qualities along the highway. Calf Creek provides a unique opportunity for the public to experience a world-class destination, providing a hike in the canyons along a riparian corridor to waterfalls adjacent to Highway 12” (page H-2). The management framework goes on to provide the following guidance applicable to this proposal:

• Provide the opportunity for a high-quality recreational experience on all lands within the Calf Creek Recreation Area (objective 1, page H-2).

• Maximize the variety of recreational uses that may be experienced within distinct portions of the recreation area (objective 2, page H-2).

• Protect and preserve existing resource values for present and future recreational uses (objective 3, page H-3).

• Promote visitor safety through education, interpretation, and removal of existing and potential hazards (objective 4, page H-4).

1.4.3. Relationship to Statutes, Regulations, Guidance, and Other Plans

The proposed action is consistent with federal, state, and local laws, regulations, guidance, and plans, including but not limited to the following:

• BLM Instruction Memorandum No. 2022-010 – E-Commerce Technologies for Recreation Fee Collection and Reservation Services – directs BLM offices to expand the inventory of BLM servable sites on Recreation.gov and use e-commerce technologies to conduct official business electronically.

• Garfield County General Management Plan – Resource Management Section (2019) - identifies Lower Calf Creek Falls as a SRMA referring to it as an area where more intensive recreation management is needed; where recreation is a principal management objective; where greater managerial investment in facilities or supervision can be anticipated; and as an area having high levels of recreation activity and valuable natural resources (pages 251 and 350). The proposed action includes improvements that are supported by this plan, specifically the call to provide human and solid waste collection and disposal (page 353).

• National Landscape Conservation System (NLCS) 15-Year Strategy 2010-2025 - directs Conservation Lands units (goal 1F) to: “Manage facilities in a manner that conserves, protects, and restores NLCS values. Ensure that accessibility, environmentally friendly building materials, ‘green’ technology, and energy conservation standards are incorporated into all new buildings and facility retrofits.

Encourage use of exterior lighting that protects the dark night sky.” The proposed action includes improvements and design features that specifically address this goal.

• Scenic Byway 12 Corridor Management Plan (2001) –The vision for management of the byway includes, “… make improvements, where necessary, but to do so in a way that will be in harmony with the intrinsic qualities. Using carefully designed methods and professional expertise, future development could address the needs and do so without compromising the byway corridor. “And

DOI-BLM-UT-P010-2021-0010-EA 5 February 2023 one of the goals is to, “Protect and enhance the integrity of the intrinsic qualities within the byway corridor.” Two of the six intrinsic qualities included in the plan are scenic and recreational qualities.

The plan specifically addresses the CCRS by calling for completing a site plan as a proposed action (page 40) as well as a generally calling for agencies to work with byway partners to provide recreational facilities to accommodate travelers, including the physically challenged. It also calls for consolidating signage, implementing interpretive programs, and constructing an amphitheater at the CCRS (page 60). The proposed action is consistent with this Plan.

• Architectural Barriers Act of 1968 (ABA) - stipulates that all buildings and facilities which are financed with Federal funds and intended for use by the public be designed and constructed to ensure that they are fully accessible to and usable by handicapped individuals. The Proposed action includes improvements that would remedy the ABA deficiencies at the CCRS and improve universal accessibility at the site.

1.4.4. Relationship to Past Decisions, Plans, and NEPA Documents

Since the time of its initial development, the management, maintenance, and development of facilities at the CCRS have been influenced and guided by several decisions and planning efforts. See appendix C for a listing and more detailed explanation of past decisions, plans and NEPA documents related to the CCRS. The most recent Calf Creek SRMA Framework (ARMPs appendix H, pages H-2 to H-5) superseded the past decisions and plans and this project has been planned and designed to conform with it.

CHAPTER 2. ALTERNATIVES

This chapter discloses the actions that BLM is considering to meet the purpose and need discussed in chapter 1.

This EA focuses on the maintenance only and proposed action (deferred maintenance and improvements) alternatives. Additional alternatives were considered but eliminated from detailed analysis, including a no action alternative where no maintenance would occur. See appendix D for a description of those alternatives and the rationale for their dismissal.

2.1. MAINTENANCE ONLY ALTERNATIVE

BLM would continue maintenance and management of the 8-acre CCRS. See table 1 for a list of the project components that would be addressed as funding and staffing capacity allow. See appendix A for a schematic of the existing CCRS, and figures 2 and 3 in chapter 3 for images of the existing site.

Work would be performed by contractors, BLM staff, interns, and/or volunteers on an as needed basis as funding allows. A variety of heavy, motorized equipment, and hand and power tools would be used during implementation. Removed items would be disposed of in a local permitted landfill. Work would be done during daylight hours. The CCRS would be closed, in whole or in part, during implementation, if necessary, to ensure public safety.

Table 1 - Maintenance only alternative components which address the purpose and need

PURPOSES ADDRESSED BY MAINTENANCE ONLY

COMPONENT

MAINTENANCE ONLY

COMPONENTS

Health and Safety

Deferred Maintenance

Universal Accessibility

Visitor Experience

Resource Degradation

PARKING AND CIRCULATION

Culvert-style Creek Crossing Maintenance

X

Low Water Crossing Maintenance X

DOI-BLM-UT-P010-2021-0010-EA 6 February 2023

PURPOSES ADDRESSED BY MAINTENANCE ONLY

COMPONENT

MAINTENANCE ONLY

COMPONENTS

Health and Safety

Deferred Maintenance

Universal Accessibility

Visitor Experience

Resource Degradation

Site Road Maintenance X

SANITATION AND POLLUTION

Main Restroom Building Maintenance; Septic System Maintenance

X

SITE AMENITIES/FIXTURES

Shade Shelters Replacement X X X X Retaining Walls Maintenance X Fee Station/Kiosk Replacement X X X Small Fixtures (Picnic tables, fire rings, signs, etc.) Replacement

X X X

2.1.1. Health and Safety

The damage to the concrete base of the large culvert would be patched to extend the life of the structure and prevent its failure. The low water crossing would be periodically cleaned and would be roughened on the surface to provide better traction. BLM would continue to repair and shore up the site road by patching potholes, putting riprap in areas that blow out during heavy rains, and periodically crack seal and chip seal the asphalt. The main restroom facility and septic system would continue to be maintained. The shade shelters would be replaced with new structures of similar size and scale in the same locations. The retaining walls at the water play area would continue to be shored up and loose landscape blocks would be removed from the creek as needed.

2.1.2. Deferred Maintenance

Replacing the shade shelters, fee station/kiosk, and small fixtures would address deferred maintenance.

2.1.3. Universal Accessibility

BLM would continue to provide universally accessible structures and site fixtures in a piecemeal manner as old amenities (shade shelters, fee station/kiosk, picnic tables, fire rings, etc.) are replaced.

2.2. DECISION TO BE MADE

The BLM decision to be made is whether to continue to maintain and manage the CCRS as described in the maintenance only alternative, or to maintain, manage, and improve the CCRS by replacing, improving, and providing new infrastructure as discussed in the proposed action. The project area does not include the entire 5,835-acre Calf Creek Recreation Area or the Lower Calf Creek Falls Trail (which is within the recreation area) beyond the edge of the project area, and no decisions will be made for work associated with areas outside the

CCRS.

2.2.1. Visitor Experience

Replacing the shade shelters, fee station/kiosk, and small site fixtures would address visitor experience.

DOI-BLM-UT-P010-2021-0010-EA 7 February 2023

2.2.2. Design Elements

BLM staff will monitor the construction and maintenance of the CCRS to ensure compliance with the design features of the maintenance only alternative. The site will be routinely monitored by BLM staff to assess resource conditions, report maintenance needs, and identify potential resource issues to avoid and minimize impacts, including the monitoring of objects and values identified in Proclamation 10286.

Cultural Resources

• No ground disturbing activities associated with the project will be allowed within 15 meters of

42GA1431.

• Per the Memorandum of Agreement (MOA) between BLM and the Utah State Historic Preservation Office (SHPO) regarding the CCRS proposal, adverse effects to 42GA8060 (Calf Creek Campground) historic property will be mitigated. These mitigation measures include amending the site form to include detailed digital photography and an updated site sketch; completing an architectural site form; preparing measured drawings of Feature 5; and conducting historical document research for the purpose of creating and installing interpretive signage that reflects the historical significance of the historic campground.

Equipment Use

• Prior to entering the project area, all equipment and machinery will be cleaned for petroleum accumulations, dirt, plant material. All equipment and machinery leaks will be repaired prior to entering site. Such equipment includes large machinery, stationary power equipment (such as generators), and gas-powered equipment with tanks larger than 5 gallons.

• Heavy equipment use will be avoided during wet, muddy conditions to reduce the compaction of soils.

Fisheries/Aquatics

• Any instream work or periods of prolonged equipment in the stream channel will not occur during spawning season of brown trout (October-December) and cutthroat (spring when stream levels begin to rise) unless first cleared by a qualified biologist. If work needs to occur during spawning timeframes, other mitigation features such as block nets and fish removal from the construction area will be used.

Health and Human Safety

• Hazard trees would be trimmed or removed as warranted.

• Signs to warn of hazards will be installed as necessary.

• The public will be allowed to use the site or portions of the site when mixing vehicular and pedestrian traffic with maintenance activities does not pose immediate safety concerns. When it is not safe, the CCRS will be closed in whole or in part to the public for overnight and day use, including hiking Lower Calf Creek Falls Trail.

DOI-BLM-UT-P010-2021-0010-EA 8 February 2023

Recreation

• BLM will provide notice to relevant media outlets (including via social media), publish notices on the GSENM website, and post notices at GSENM visitor centers and other local outlets to inform the public of any construction closures and associated timelines.

Visual Resources

• Natural and/or natural-appearing materials that are appropriate to the place and setting and reflect a rural and rugged flavor will be used (natural or fabricated stone, colored concrete, gravels, or crusher fines, rusted or painted metal, wood, etc.).

• Colors that blend with the natural environment will be used. No bright colors such as whites or yellows will be used (except for signs and pavement striping).

2.3. PROPOSED ACTION (DEFERRED MAINTENANCE AND IMPROVEMENTS)

BLM proposes to implement deferred maintenance and improvements at the CCRS. The existing footprint for the CCRS is approximately 8 acres and new improvements would either be within that footprint or adjacent to it.

See table 2 for a list of the project components, appendix A for an existing conditions schematic, and appendix E for a project area and conceptual site plan map of the proposal.

Work would be performed by contractors, BLM staff, interns, and/or volunteers. A variety of heavy, motorized equipment and hand and power tools would be used during construction. Work would be done during daylight hours. Several proposal components (parking areas, nature trail, tent pads) would require the importation of base and/or fill materials. Removed items would be disposed of in a local landfill. Throughout construction, equipment would be parked at the project site and contractors, if used, would have the option of camping onsite. If approved, project construction could begin in late 2023 prior to the ground freezing, though most work is anticipated for 2024. The CCRS would be closed for several, multi-week phases during construction.

This alternative assumes that a no-parking zone will be established by the Utah Department of Transportation (UDOT) along SB12 extending one-half mile in both directions from the CCRS entrance8.

BLM’s Guidelines for a Quality Built Environment (2010)9, the US Access Board Accessibility Standards for Federal Outdoor Developed Areas (2014)10, and the BLM Manual 9112 Bridge and Major Culvert (2021)11 have been used to plan and will be used to design this project. Detailed design will occur once a decision regarding this proposal is made. The final detailed design will not exceed analysis contained within this EA.

8 Since project initiation, BLM has coordinated with UDOT and Garfield County on the establishment of a no parking zone along SB12 by the entrance to the CCRS. UDOT will work with BLM to develop and install signs once additional designated parking is available within the recreation site, and Garfield County will increase safety patrols and enforcement once the project is complete.

9 These guidelines help ensure that BLM facilities project a positive image for the agency by being attractive, functional, and sustainable.

10 These standards detail accessibility guidelines for the construction and alteration of facilities covered by the Americans with Disabilities Act of 1990 and the ABA to ensure that the facilities are readily accessible to and usable by people with disabilities.

11 This manual provides policy guidance to ensure that bridges and major culverts on BLM lands are safe, preserve or improve streambed gradients and velocities to allow fish passage, minimize erosion and sediment damage, and abate pollution of surface and ground water resources.

DOI-BLM-UT-P010-2021-0010-EA 9 February 2023

Most components of the proposed action address more than one of the health and safety, deferred maintenance, universal accessibility, visitor experience, or resource degradation needs. Table 2 shows which purposes the various proposal components address. More detailed explanations follow the table.

Table 2 - Proposed action components which address the purpose and need

PURPOSES ADDRESSED BY PROPOSED ACTION COMPONENT

ALTERNATIVES COMPONENTS Health and

Safety Deferred Maintenance

Universal Accessibility

Visitor Experience

Resource Degradation

PARKING AND CIRCULATION

Additional Designated Parking X X X X Culvert-style Creek Crossing Replacement

X X X

Low Water Crossing Replacement

X X X

Site Road Improvements X X X X Trailhead Relocation X Bypass Trail Segment X Nature Trail/Pedestrian Pathways

X X X X

SANITATION AND POLLUTION

Main Restroom Building Replacement and Relocation;

Septic System Removal

X X X X X

Additional Vault Toilets X X X X On-site Trash Collection X X X

SITE AMENITIES/FIXTURES

Shade Shelters Replacement X X X X Retaining Walls Replacement X X X Campsites Reconfiguration X X X X Additional Campsites X X Host Site Relocation X X Group Picnic Area Relocation X X X Small Amphitheater X X Fee Stations/Kiosks X X X Small Fixtures (Picnic tables, tent pads, fire rings, signs, etc.)

X X X

COMMUNICATIONS

Fiber Line Installation X X

2.3.1. Health and Safety

Parking and Circulation

Several improvements are proposed to address vehicular and pedestrian circulation and vehicle parking. The site road would be widened to improve traffic flow. Relocation and/or reconstruction of the main restroom building, the host site, the group picnic area, and the retaining walls would allow for the reconfiguration and expansion of the main parking area. The main parking area would be redesigned to improve circulation and increase

DOI-BLM-UT-P010-2021-0010-EA 10 February 2023 designated parking capacity by approximately 15 parking stalls. An overflow parking area for approximately 40 vehicles would be constructed near the entrance to the site and parking for approximately 15 vehicles would be constructed along the site road. At least one parking stall would be provided for each campsite. Parking for walk-in sites would be designated in the main parking area, and adjacent parking would be provided for standard campsites. All designated parking would be paved. A pedestrian pathway would be provided along the edge of the site road from the overflow parking area to the core of the recreation site.

The culvert-style creek crossing would be replaced with a bridge, and the low water crossing would be replaced with a structure (an open-bottom arched culvert or partially buried box culvert) that spans the creek and provides a natural stream bottom. These structures will be designed and constructed in accordance with BLM Manual 9112 – Bridge and Major Culvert to handle a 100-year flood event and provide 2-feet clearance between the lower limit of the bridge structure or the bottom of the culvert top slab.

Sanitation and Pollution

The main restroom building and associated septic system would be removed. A vault toilet restroom facility of similar capacity would be constructed in a location that fits best with the redesign of the main parking area.

Additional vault toilets would be installed - one within the campground on the west side of the creek and another by the overflow parking area. An area for onsite trash collection would be provided.

Site Amenities/Fixtures

As noted in the Parking and Circulation section above, the host site and group picnic area would be relocated to allow for reconfiguration of the main parking area. Shade shelters in the lower picnic area and campground would be replaced. Retaining walls would be replaced. The tent pads of campsites that are close to the creek would be located away from the creek’s edge, and flash flood warning signs would be installed.

Communications

A buried communications fiber line would be installed along the edge of the site road. It would connect to the existing fiber trunk line near the site entrance and extend down to the main parking area to allow for the installation of emergency phones and Wi-Fi communication at the site.

2.3.2. Deferred Maintenance

Parking and Circulation

Several of the parking and circulation proposal improvements mentioned in section 2.2.1 also address deferred maintenance needs. Those include improving the site road, replacing the large culvert with a bridge, and replacing the low water crossing.

Sanitation and Pollution

Deferred maintenance improvements that would address sanitation are removing the main restroom building and septic system and replacing them with a vault toilet restroom facility as described in section 2.2.1.

Site Amenities/Fixtures

Removing and replacing the existing shade shelters, fee station/kiosks, and small fixtures, as well as replacing the retaining walls as noted in section 2.2.1 are also deferred maintenance items.

DOI-BLM-UT-P010-2021-0010-EA 11 February 2023

2.3.3. Universal Accessibility

Parking and Circulation

Three standard-sized, accessible parking stalls and one van-accessible parking stall would be provided in the main parking area.12 A universally accessible interpretive nature trail would be constructed within the day use and campground areas of the CCRS. Additional pedestrian pathways that provide a firm and stable travel surface would be constructed to connect the various use areas within the recreation site.

Sanitation and Pollution

To ensure universal accessibility, all new toilets would be unisex and would meet accessibility standards.

Site Amenities/Fixtures

Pathways to the new day use picnic shelters and the spacing around the tables under the shelters would meet accessibility standards. All campsites would be outfitted with accessible tables and fire rings, and with tent pads that are flush to the ground. Existing campsites would be configured to improve accessibility, and new campsites would be constructed to meet accessibility standards. The new amphitheater, fee stations/kiosks, and small site fixtures (picnic tables, fire rings, etc.) would also meet accessibility standards.

2.3.4. Visitor Experience

Parking and Circulation

Improving the site road and constructing additional designated parking as discussed in section 2.2.1 and providing delineated pedestrian pathways as discussed in sections 2.2.1 and 2.2.3 and a nature trail as discussed in section 2.2.3, would also improve the visitor experience. A by-pass trail segment that begins in the main parking area and goes up onto the bench13 above the west side of the campground would be constructed.14 It would be aligned away from the edge of the bench and signed with “stay on trail” messaging. It would reconnect with the existing trail near the north boundary of the campground and be retained for use by those in the campground, for administrative purposes, and search and rescue (SAR) operations.

Sanitation and Pollution

Sanitation improvements mentioned in sections 2.2.1 and 2.2.3 that would also improve visitor experience include providing new and additional unisex and universally accessible toilets and providing on-site trash collection.

Site Amenities/Fixtures

Several new site amenities are included in the proposal to improve visitor experience. A large group shade shelter and up to three single-party shelters (two would be replacements) would be constructed in the picnic

12 Accessibility standard is to provide at least four accessible parking stalls when total parking is 76 to 100 vehicles.

13 A bench is a relatively narrow strip of relatively level or gently inclined land that is bounded by distinctly steeper slopes above and below it.

14 The bypass trail segment would meet “Condition for Exception 1” of the Accessibility Standards for Federal Outdoor Developed Areas because it would not be “practicable” to construct it to meet grade requirements due to the steep topography. The existing trail also meets this or other exceptions and is not universally accessible.

DOI-BLM-UT-P010-2021-0010-EA 12 February 2023 area. New shade shelters would be installed at campsites lacking shade. Up to four additional car campsites would be provided as space allows. The old, paved athletic court would be removed and converted to new walk-in sites. The trailhead for Lower Calf Creek Falls would be relocated to the main parking area. A small amphitheater for hosting interpretive and education programs would be constructed in proximity to the picnic areas. The existing fee station/kiosk would be removed, and a new fee station would anchor the relocated trailhead at the beginning of the by-pass trail. Separate fee stations for the campground and trailhead may be constructed if determined during design to reduce confusion for visitors. A secondary fee station would be installed in proximity to the overflow parking near the entrance. All fee stations would be self-service.

Site amenities mentioned in sections 2.2.1 and 2.2.3 that would also improve visitor experience include relocating the host site and the group picnic area, replacing and adding shade shelters in the picnic area and campground, adding and reconfiguring campsites, providing an amphitheater, and providing universally accessible site fixtures (picnic tables, fire rings, etc.) throughout the recreation site.

Communications

The buried communications fiber line described in section 2.2.1 would provide reliable communication to and from the CCRS.

2.3.5. Resource Degradation

Parking and Circulation

Parking and circulation improvements discussed in section 2.2.1 that would also address resource degradation include improving the site road, providing additional designated parking for day use and within the campground, replacing the large culvert and low water crossing, and defining pedestrian pathways. Replacement of the large culvert would include removal of the footers and abutments that would be replaced with support structures moved away from the edges of the creek. Replacement of the low water crossing in the campground with an above stream structure would include removing the existing concrete structure. Defining pedestrian pathways would include designating access points to the creek along the nature trail.

Sanitation and Pollution

Removing the septic system, providing additional vault toilets by parking areas and in the campground, and providing on-site trash collection, as discussed in section 2.2.1, would also address resource degradation.

Site Amenities/Fixtures

Replacement of the retaining walls by the water play area and reconfiguration of campsites that have erosion issues to improve drainage would also address resource degradation.

2.3.6. Design Elements

Design elements noted for the maintenance only alternative in section 2.1.6 would also apply to the proposed action unless modified as noted below. BLM staff will monitor the construction and maintenance of the CCRS to ensure compliance with the design features of the proposed action. The site will be routinely monitored by BLM staff to assess resource conditions, report maintenance needs, and identify potential resource issues to avoid and minimize impacts, including the monitoring of objects and values identified in Proclamation 10286.

DOI-BLM-UT-P010-2021-0010-EA 13 February 2023

Cultural Resources

• No ground disturbing activities associated with the project will be allowed within 15 meters of

42GA1431.

• If cultural resources are discovered during project implementation, activity will cease, and a BLM archaeologist will be consulted immediately. Work will be suspended until written authorization to proceed is provided.

• Per the MOA between BLM and SHPO regarding the CCRS proposal, adverse effects to two historic properties (42GA8060 and 42GA6091) will be mitigated. These mitigation measures include:

o 42GA8060 (Calf Creek Campground) – amending the site form to include detailed digital photography and an updated site sketch map; completing an architectural site form; preparing measured drawings of Feature 5; conducting historical document research for the purpose of creating and installing interpretive signage that reflects the historical significance of the historic campground.

o 42GA6091 (old Escalante to Boulder Road) – conducting historical document research for the purpose of creating and installing interpretive signage that reflects the historical significance of the old road.

Equipment Use

• During construction, spill containment berms will be used in all locations where equipment refueling occurs. On-site absorbent pads and booms (long enough to extend across Calf Creek) will be available should a spill occur. The above serve to prevent the potential for hazardous petroleum-based materials to contaminate Calf Creek.

• To the extent feasible, heavy equipment work along the creek will be from the top of the bank, unless work from another location (instream) would result in less habitat disturbance, less floodplain disturbance, or better meet project design criteria. Operating heavy equipment in streams would only occur when project specialists believe that such actions are the only reasonable alternative for implementation or would result in less sediment in the stream channel or damage (short- or long-term) to the overall aquatic and riparian ecosystem relative to other alternative methods.

Health and Human Safety

• The public will be allowed to use the CCRS or portions of the site when mixing vehicular and pedestrian traffic with construction and/or maintenance activities does not pose immediate safety concerns. When it is not safe, the site will be closed in whole or in part to the public for overnight and day use, including hiking Lower Calf Creek Falls Trail.

Night Skies

• Artificial lighting (in restroom buildings) will follow International Dark Sky Association outdoor lighting basics (use lighting only when and where needed, use lights that are no brighter than necessary, minimize blue light emissions, and use fully shielded fixtures).

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Paleontology

• A qualified paleontologist will be on site to monitor construction activities during any bedrock disturbance15, particularly at the proposed overflow parking area and any place along the proposed bypass-trail. If fossils are encountered during construction, the resource must either be avoided or collected, depending on the threat to the resource and the practicality of avoidance for construction.

Soils

• Storm drainage, erosion, and sediment control structures (swales, riprap, curbs, straw mats, vegetation, etc.) will be used to control erosion and sedimentation during and after construction.

Vegetation

• Native tree and shrubs species and/or native plant seed will be used revegetate areas impacted during construction.

• Native trees will be planted to provide additional shade.

• Where practical, native plants that need to be removed during construction will be saved and replanted in areas where revegetation is needed.

• The project site will be monitored for noxious and invasive vegetation after construction. If noxious weeds or non-native, invasive plants are discovered, BLM-approved weed treatments16 would be applied in a manner consistent with current BLM practice.

Water Resources/Hydrologic Conditions

• A Utah Division of Water Quality Stormwater Pollution Prevention Plan17 will be prepared prior to project construction to protect Calf Creek during and after construction.

• A US Army Corp of Engineers/Utah Division of Water Rights Steam Channel Alteration Permit18 will be acquired prior to replacement of the culvert, low water crossing, and retaining walls by the creek.

• Storm drainage from parking areas, roads, and facilities will be managed through engineering (slope, riprap, curbs, etc.) and by using sediment control structures (swales, straw mats, vegetation, etc.) to reduce the potential of contaminants entering Calf Creek during and after construction.

• During the removal of the old restrooms and associated septic system, containment berms will be used to prevent any contaminants from entering the Calf Creek riparian zone in case of a spill.

15 Movement of or impacts to (scraping, gouging, hammering) consolidated strata of mappable geological units.

16 See Programmatic Noxious Weed and Invasive Plant Management - Grand Staircase-Escalante National Monument Environmental Assessment, DOI-BLM-0300-2011-0009-EA, 2015.

17 The Stormwater Pollution Prevention Plan details the strategy for construction projects to comply with Federal and State stormwater regulations. These regulations are put in place to minimize sediment and other pollutants in stormwater runoff commonly associated with construction activities.

18A stream alteration permit is required by the US Army Corp of Engineers and the State of Utah to ensure protection of the natural resource value of the state’s natural streams, vested water rights, aquatic wildlife, and recreational opportunities associated with natural streams and ensure that stream alteration projects do not unreasonably limit flood capacity in natural channels. The permit ensures compliance with Section 404 of the Clean Water Act and Section 10 of the Rivers and Harbors Act.

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Wildlife

• No construction activities that result in surface disturbance or the removal of vegetation will occur during the migratory bird primary nesting season (April 1 to July 1).

• Construction activities that result in surface disturbance or the removal of vegetation implemented during the migratory bird maximum nesting season19, during times that are not already excluded by the dates above (January 1 to March 31 and July 2 to August 31), will first be surveyed by a qualified biologist within 7-10 days prior to work beginning. If nests with eggs or young are located, a 100-foot buffer will be implemented. Ground-disturbing activities within the buffer areas will be postponed until the birds have fledged and are no longer dependent on the nest.

• To the extent possible, vegetation will be cleared on project areas (bypass trail, upper parking lot, etc.) when nesting birds are not present, and surveys are not required (September 1 to December

31) to remove potential nesting substrate so returning birds cannot nest there.

• To minimize potential impacts to the ongoing hummingbird monitoring study, the banding location would be shifted away from the main toilet building and lower day-use area access route to an area across (southwest of) the existing lodgepole fence where no construction is proposed. On the hummingbird banding days, construction activities would not occur within immediate proximity to where hummingbirds are actively fed, captured, and processed, during the banding season (May 1 to September 30).

Winter Maintenance

• The culinary water system will be winterized (shut down) and not available during the months with freezing temperatures (usually November to March).

• As needed, the site road will be plowed to clear snow, or if icy conditions make use of the site road unsafe, the gate will be closed until the ice melts.

• Snow will be stockpiled in parking areas.

19 Dates for the primary nesting season (April 1 to July 1) and maximum nesting season (January 1 to August 31) are found within Instruction Memorandum No. UT-2017-007: Guidance for Utah Bureau of Land Management to Meet Responsibilities under the Migratory Bird Treaty Act and Executive Order 13186: General Project Planning Process.

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CHAPTER 3. AFFECTED ENVIRONMENT AND ENVIRONMENTAL CONSEQUENCES

3.1. SCOPING AND IDENTIFICATION OF ISSUES

NEPA documents should focus on the issues that are most relevant to the action in question.20 Generally, issues highlight potential effects, reflect cause-effects relationships, and are relevant to the decision to be made. Those resources and issues that helped distinguish between alternatives or inform the decision or could potentially have significant effect were brought forward for analysis in this chapter.

The BLM conducted internal and external scoping and also reviewed the 2017 Calf Creek Recreation Area Site Improvements EA (DOI-BLM-UT-0300-2015-0040-EA) to identify…