26 CC-GRSM002-25 Appendix F Backcountry Management Plan.pdf

1. INTRODUCTION -----------------------------------------------------------------------------------4

1.1 OBJECTIVE -------------------------------------------------------------------------5

1.2 FUNCTION --------------------------------------------------------------------------5

1.3 GUIDELINES ----------------------------------------------------------------------- 5

1.4 REVIEW -----------------------------------------------------------------------------6

1.5 WILDERNESS PROPOSAL ----------------------------------------------------- 6

1.6 MINIMUM REQUIREMENT CONCEPT -----------------------------------7-8

2. VISITOR ACTIVITIES AND USE LIMITS

2.1 GENERAL ---------------------------------------------------------------------------9

2.2 SIGNS --------------------------------------------------------------------------------9

2.3 WOOD FIRES (36 CFR 2.1[a] [4], 2.13) ------------------------------------9-10

2.4 HORSE USE (36 CFR 2.16, 2.14 [a] [6]) ----------------------------------10-11

2.5 THE PERMIT SYSTEM AND RESERVATIONS -----------------------11-12

(36 CFR 1.5 AND 1.6)

2.6 CROSS-COUNTRY PERMITS ---------------------------------------------12-13

2.7 APPALACHIAN TRAIL THRU-HIKERS --------------------------------13-14

2.8 CAMPSITE MANAGEMENT --------------------------------------------------15

2.9 SHELTER MANAGEMENT ----------------------------------------------------16

2.10 SANITATION (36 CFR 2.14) ------------------------------------------------16-18 Litter Control Management of Human Waste Management of Horse Waste Related Human Sanitation Concerns

2.11 CAMPSITE MONITORING AND EVALUATION -------------------------19

2.12 NEW CAMPSITES AND CAMPSITE RELOCATIONS -------------------19

2.13 CAMPSITE CLOSURES–TEMPORARY -----------------------------------19

2.14 CAMPSITE CLOSURES–PERMANENT --------------------------------------20

2.15 COMMUNICATING ABOUT DECISIONS AFFECTING CAMPSITES–20

3. TRAILS PROGRAM

3.1 TRAIL MAINTENANCE ------------------------------------------------------21-22 Background

Maintenance Strategy Maintenance Methods Motorized Equipment Exception

3.2 TRAIL MANAGEMENT ----------------------------------------------------23-25

3.3 APPALACHIAN TRAIL MANAGEMENT PROGRAM --------------------26

3.4 MOUNTAINS-TO-SEA-TRAIL -------------------------------------------------27

3.5 SUPPLEMENTARY SOURCES OF LABOR ------ --------------------------27

4. BACKCOUNTRY STRUCTURES -----------------------------------------------------------------28

5. BACKCOUNTRY PATROL AND REPORTING ---------------------------------------------29-30

6. DAY USE -----------------------------------------------------------------------------------------------31

7. EDUCATION -------------------------------------------------------------------------------------------31

8. RESEARCH ---------------------------------------------------------------------------------------------31

APPENDICES

A–Wilderness Information B–Backcountry Use Management Supplementary Information C–Backcountry Sign Plan and Standards D–Trail Inventory E–Administrative Roads Inventory & Policy F–Trail Maintenance Handbook G–Appalachian Trail Agreements H–Horse Concession Maintenance Agreement I–Appalachian Trail Thru-Hiker Brochure J - Backcountry Use Permit K–Backcountry Management Forms L–Minimum Requirements Analysis Worksheet M–GRSM Trail Map

1.0 INTRODUCTION

This document is an action plan for day-to-day backcountry management practices designed to protect the natural resources and values for which the Park was established. The plan specifies management actions to guide the wise use and maintenance of the backcountry trail and campsite system. These actions have been selected as those that most effectively and equitably preserve and perpetuate the Park resources for enjoyment of present and future generations. The actions described in this plan are the result of three decades of thoughtful management experience and several research projects here in the Smokies and in other national parks. Research projects have sampled public opinion as well as measured social and resource impacts due to visitor use of the Park backcountry. Various surveys of visitors have measured backcountry visitor perception of various aspects of park management practices. Findings of these surveys were taken into account in development of this management plan.

A plan such as this is needed to guide the management of backcountry recreation due to the size and complexity of the Park and the demographics of Park visitors. In the late 1960’s and early 70’s it was not uncommon to find as many as one hundred forty people camped on a given night at popular locations such as Mt LeConte or Spence Field (1972 BMP and news release). During those times the Appalachian Trail within the Park was used extensively by the Boy Scouts of America to meet the requirements of an Appalachian Trail Patch. Consequently, large groups used the Park trail system and were permitted to camp in almost any location. During the period from 1972 until 1986 the backcountry use permit system evolved to become very much as it is today in 2001. This 2001 edition of the plan attempts to improve the educational and enforcement component of the permit system to better achieve the goals of the permit system, (2000 BC User Fee Study, p. 26 & 27). The goals are to provide a high quality, backcountry visitor experience and to preserve the Park resources intact for enjoyment of future generations. The plan is designed to integrate the efforts of park rangers, trail maintenance employees and the park volunteer program to achieve optimum efficiency in maintenance and management of the trail and campsite system.

Setting The Great Smoky Mountains National Park ranges in elevation from 850 feet above sea level at the mouth of Abrams Creek to 6643 feet above sea level at Clingmans Dome. The Park contains 16 peaks that exceed 6000 feet elevation. The Smokies Range was considered by Professor Guyot and other early geographers to be the summit of the ancient Appalachian chain of mountains. Average rainfall in the highest elevations is about 80 inches per year with a climate similar to that of Maine and 55 inches annual rainfall in the lower elevations. There are four vegetation zones in the Park ranging from the lower elevation deciduous cove hardwood forest, to the pine/oak forest type on the dryer ridges, to the northern hardwood forest, to the spruce/fir forest of the highest elevations. These forests are punctuated by other vegetative phenomenon such as Beech Gaps, Heath Balds and Grassy Balds. The Smokies diversity of biological resources is unparalleled in the temperate regions of the world. The Park is situated within one-day drive of much of the population of the United States and therefore receives heavy visitation. Of the 10 million annual visitors to the Park many hundreds of thousands take short day hikes on the trail system. In year 2000 the park issued 13,052 overnight backcountry use permits to 34,515 people for a total of 77,463 camper nights in the backcountry. The bulk of these visitors stayed at the thirteen trail shelters on the seventy miles of Appalachian Trail along the crest of the Smokies and the nineteen other backcountry campsites that are permitted through the backcountry reservation system. The 900-mile Park trail system has nearly one hundred trailheads and twenty-seven park access points around the Park boundary. The trail system is served with fifteen trail shelters and eighty-eight designated backcountry campgrounds that have from one to eight campsites each.

1.1 OBJECTIVE

The primary objective of this plan is to provide for visitor enjoyment of the backcountry without unacceptable deterioration of natural and cultural resources. Of utmost concern are the following key goals:

To set forth the Park program that regulates hiking, horseback riding, and camping for the purpose of containing resource impacts to an acceptable level in a wilderness setting.

To provide backcountry visitors with a high quality backcountry experience.

To establish an accountable trail maintenance program, the purpose of which is to maintain trails at an acceptable standard and develop funding strategies for maintenance.

To document and specify procedures for opening, closing, monitoring and otherwise managing backcountry campsites and trails.

To explain the program for management and maintenance of the Appalachian Trail consistent with the National Trails Act and in cooperation with the Appalachian Trail Conference.

To describe Park practices governing structures in the backcountry.

To describe the minimum requirements for use of motorized equipment in maintenance of trails and campsites.

1.2 FUNCTION

The Backcountry Management Plan will:

Serve as an “action plan” for Park staff in their day-to-day management of backcountry use.

Ensure effective compliance with administrative policies.

Identify and justify appropriate programs that should be incorporated into the budgetary process to fully implement this plan.

1.3 GUIDELINES

The plan is written within the framework of existing legal and administrative guidelines, including the Park’s enabling legislation, National Park Servicemanagement policies, the Superintendent’s Statement for Management, Code of Federal Regulations-Title 36, the National Trails System Act of 1978 (PL 900543), and the General Management Plan for Great Smoky Mountains National Park.

1.4 REVIEW

The Backcountry Operations Specialist will review this plan every other year, in late winter. The Backcountry Specialist will involve district rangers, trail foremen, Resources Management Division personnel and the Compliance Management Board when considering changes to the plan.

Public input for management of the backcountry is encouraged and will be in compliance with Director’s Order 12 as it interprets the National Environmental Policy Act. Efforts will be made to encourage involvement of other interested federal and state agencies, local conservation organizations, and other interested parties. News releases will be utilized, when appropriate, to summarize changes.

1.5 WILDERNESS PROPOSAL

In accordance with the requirement of the 1964 Wilderness Act the National Park Service conducted a wilderness suitability study of the Great Smoky Mountains National Park and submitted a wilderness recommendation. The 1974 Wilderness Recommendation proposing that 390,500 acres within the park be designated wilderness was transmitted to Congress by President Ford on December 4, 1974, accompanied by the Draft Environmental Statement 74-104 (DES 74- 104). The recommendation did not pass Congress because of controversy about the North Shore Road. The recommendation was revised in November 1979 (GMP, P. 19), increasing proposed wilderness to 425,384 acres. The 52,286 acres of potential wilderness shown on the 1978 wilderness map is the 44,000 - acre former North Shore/TVA tract and the previously proposed buffer zone adjacent to the Cherokee reservation. (1978 map in appendix A) The additional acreage of recommended wilderness was land in the Cataloochee area around Canadian Top, land east of Mt.

Sterling Road and the reduction of buffer zones adjacent to some park administrative roads. This 1979 Wilderness revision was never transmitted to congress and is proposed wilderness rather than recommended.

Assistant Secretary Herbst, by letter of May 11, 1978, to the Speaker of the House of Representatives and to the President of the Senate, recommended that congress defer action on the wilderness proposal until a 1943 agreement between the Department of the Interior, the Tennessee Valley Authority, the State of North Carolina, and Swain County, North Carolina, was resolved.

The 1974 wilderness recommendation proposed the use of small, motorized equipment for maintenance of the Appalachian Trail and the immediate removal of backcountry shelters. That proposal was changed by the 1982 General Management Plan that states visitor use and park management practices are to be of a transient nature and non-motorized except in extreme emergencies involving either human safety or critical resource protection needs. Trail shelters will be retained except where environmental deterioration is severe or need cannot justify retention. The trail shelters concentrate visitor use impacts and therefore serve as important tools in reducing impacts to vegetation and water quality in this heavily used wilderness corridor (Bratton 1978, Marion 1997).

Three Smokies wilderness bills were introduced to Congress in June 1987. (Appendix A provides background information concerning the congressional testimony and Park issues discussed). The NPS recommended 418,200 acres to be designated wilderness and 46,500 acres potential wilderness as shown on the 1987 wilderness map in appendix A. The potential wilderness was the former north shore TVA tract.

A package of wilderness recommendations, for 17 National Park areas was approved by the Director and Department for re-transmittal to Congress in 1999. This package included the 1974 Smokies wilderness proposal for 390,500 acres. The 1974 wilderness recommendation was used in this 1999 proposal because it was the only recommendation that had NEPA compliance documents. The 1979 and 1987 Smokies Wilderness proposals did not include compliance documents.

However, the Council on Environmental Quality was unwilling to re-transmit the recommendation to Congress because the 1974 vintage compliance documents were outdated. In light of this 1999 decision by CEQ our current need with regard to Smokies Wilderness designation is to complete a current wilderness suitability assessment and proposal. In light of the difficulties encountered in the previous wilderness proposals we also need to resolve the North Shore Road controversy.

Until Congress designates wilderness in the Smokies, Directors Order 41 requires we manage the proposed wilderness in such manner that is does not lose the qualities that would make it eligible for designation as wilderness. Therefore, no temporary or permanent roads or structures can be constructed in the proposed wilderness boundaries.

1.6 Minimum Requirement Concept

The Wilderness Act of 1964 states in section 4(c) that “…except as necessary to meet the minimum requirements for the administration of the area for the purpose of this Act (including measures required in emergencies involving the health and safety of persons within the area) there shall be no temporary road, no use of motor vehicles, motorized equipment or motorboats, no landing of aircraft, no other form of mechanical transport, and no structure or installation…” within a Wilderness area. The Act allows for the administrative exception, but it is an exception not to be abused and to be exercised very sparingly and only when it meets the test of being the minimum necessary for wilderness. National Park Service Policy dictates that all management decisions affecting wilderness must be consistent with the minimum requirement concept.

The minimum requirement concept enables managers to examine and document if a proposed management action is appropriate in wilderness, and if it is, what is the least intrusive equipment, regulation, or practice (minimum tool) that will achieve wilderness management objectives. The completion of this process assists managers in making informed and appropriate decisions concerning actions conducted in wilderness.

In wilderness, how a management action is carried out is as important, if not more important, than the end product. When determining minimum requirement, the potential disruption of wilderness resources and character will be considered before, and given significantly more weight than, economic efficiency and convenience. If a compromise of wilderness resources or character is unavoidable, only those actions that preserve wilderness character in the long run and/or have localized, short-term adverse impacts will be acceptable.

The Process To apply the minimum requirement concept at GRSM, a Minimum Requirement Analysis will be completed for any management action, including but not limited to, natural and cultural resource projects, administrative facilities, trail and camp area projects and research, within the proposed and potential wilderness.

It is the responsibility of the lead person for any proposed action to complete a Minimum Requirement Analysis Worksheet (GRSM-bc01). Depending on the level of review required, the Minimum Requirement Analysis Worksheet (GRSM-bc01) may be used alone or in conjunction with the other park review processes, such as Project Proposal or Flight Requests.

The Minimum Requirement Analysis is a two-part process. Part A helps determine whether or not the proposed management action is appropriate or necessary for administration of the area as wilderness, and does not pose a significant impact to wilderness resources and character. Part B describes alternatives for the proposed action in detail, and evaluates each, to determine the techniques and/or types of tools and equipment (minimum tool) needed to ensure that overall impacts to wilderness resources and character are minimized. The Minimum Requirement Analysis Worksheet (GRSM-bc01) and instructions for its completion can be found in Appendix L.

Recurring actions, such as spring trail opening, campsite rehabilitation and management prescribed fire, may be analyzed and the minimum requirement decision and specific guidelines documented in an approved management plan (e.g.

Backcountry/Wilderness Management Plan, Fire Management Plan). This eliminates the necessity of the action being analyzed each time it is conducted. Any action not analyzed and approved in a current management plan, or any deviations from an approved action and its specific guidelines, must be analyzed on a case-by-case basis. Minimum Requirement Analysis forms that document pre-approved actions are found in appendix A.

The minimum requirement concept is not intended to limit choices. It challenges managers to examine every planned management action to determine if it is appropriate and necessary in wilderness and to choose the best alternative that would least impact unique wilderness resources and character. The purpose and philosophy of wilderness must be considered when evaluating alternatives. Wilderness goals, objectives and desired future conditions must be well understood by anyone proposing and/or analyzing actions.

DECIDE TO KEEP WILDERNESS WILD

Does Your Decision:

*Consider the 1964 Wilderness Act and other legislation?

*Consider agency policy and your management plan?

*Support Wilderness as an entire resource rather than as a means of maximizing specific resources?

*Ensure that the effects of human activities do not dominate natural conditions and processes?

*Ensure that Wilderness is not permanently occupied or modified?

*Allow Wilderness to retain solitude, and elements of surprise and discovery?

*Consider Wilderness values before convenience, comfort, economical, or commercial value?

*Ensure that future generations will be able to enjoy the benefits of an enduring resource of Wilderness?

2. VISITOR ACTIVITIES AND USE LIMITS

2.1 GENERAL

Our backcountry use management system has evolved to be the one which best protects the natural and cultural resources of Great Smoky Mountains National Park while maximizing the opportunities for visitor enjoyment within the fiscal realities of the National Park Service. It is a goal to increase enforcement efforts and improve management of backcountry campsites as increased funding becomes available. More funding is also needed to better staff the Sugarlands permit office to assist with reservations and to establish a Limits-of-Acceptable-Change monitoring system for trails and campsites (Marion 1997).

Every opportunity is explored and accessed for financial support for backcountry use management. Research and experimentation is an integral part of our backcountry management program to continue to improve our stewardship.

2.2 SIGNS

Backcountry signs will provide clear information relating to points ahead, as well as distances, and will provide reassurance to hikers regarding their choice of routes. The guidelines contained in Appendix C are a means of promoting uniformity, clarity, simplicity, education, safety and economy.

Requests for signs shall be submitted on the Backcountry Sign Request Form (Appendix C). Routing of sign requests for new signs is through the District Ranger, District Trail Foreman and the Backcountry Operations Specialist, (BOS). Sign request forms for replacement signs can go directly to the BOS. The BOS ensures the signs are made and delivered to the trail foreman for installation using the work order request form.

2.3 WOOD FIRES (36 CFR 2.1[a][4], 2.13)

Wood fires are permitted at all backcountry campsites. The superintendent may authorize a temporary ban due to extreme wildfire danger. Wood fires are permitted in shelter fireplaces and in outside fire rings at shelters. Each shelter is limited to one centrally located metal fire ring.

Research and experience has shown that use of campfires is the single most damaging camper activity to the designated campsites, (Marion 1997 p. 60&61, Bratton 1978 p. 8). Damage to camping areas accumulates due to trampling of vegetation from wood gathering and chopping and sawing trees. When fire rings are not kept clean and ash builds up campers build new fire rings. As more area is burned with new campfires more soil is blackened and made undesirable for camping. As the area of blackened soil grows campers then move to new undamaged areas to camp and thus the campsite area grows larger each year. To mitigate this process it is the focus of the Adopt-A-Campsite program to clean out fire rings on a regular basis.

Long-term recommendations to prohibit wood fires at specific campsites will be initiated through the campsite evaluation process and reviewed by the Resources Management and Science Division and the Backcountry Operations Specialist.

Recommendations will be based on level of use at the campsite, amount of wood available nearby and severity of vegetation damage. Educational efforts to reduce campfire use voluntarily are being initiated and will be evaluated for success through the campsite monitoring process.

Backcountry users will be encouraged to use lightweight backpack stoves and candle lanterns instead of wood fires as a means of promoting minimum-impact camping. Where wood fires are used, only dead-and-down wood will be utilized and the visitor will be encouraged to build small fires within established fire rings. Small metal fire rings are being used experimentally at selected campsites (Marion 1997 p. 76).

2.4 HORSE USE (36 CFR 2.16, 2.14 [a][6])

The limited amount of horse use at some backcountry campsites does not justify rationing use. Those sites receiving consistent use will be rationed and the capacity established for both horses and people based upon a determination of what the resource can tolerate. This determination is based upon the evaluation of results of backcountry campsite monitoring under the limits-of-acceptable-change program. The Great Smoky Mountains Trail Map lists campsite capacities. The addition of hitch racks, if deemed necessary, will be accomplished through the campsite evaluation process.

In order to comply with the General Management Plan, which requires that facilities for horseback riding be kept at 1975- 1976 levels, the following constraints are imposed on concession contracts:

a. The total number of contracts (five) will not be increased (36 CFR 1.5). Commercial use authorizations involving the use of stock will not be issued.

b. The total number of horses allowed will not exceed the numbers established by the concession contracts. The Backcountry Operations Specialist will review any proposals to increase horse allotments in contract renewals.

Concession contracts for stable operations will require that the permittee maintain the trails used primarily by their operations. Specific trails, to be maintained, and equipment to be used are listed in the concession contract maintenance plan. (Appendix H).

*The Concession Management Specialist will work with each permittee to develop an assessment of maintenance needs and responsibilities based on use, number of stock, etc. Concession Management Specialist will monitor performance for compliance with each permit.

The following regulations are found in the Code of Federal Regulations and apply to all horse use:

a. Horses must be kept under physical control at all times; they may not be left to graze or water unattended (36 CFR 2.16 [d][g]).

b. Horses are not permitted within 100 feet of shelters or campsites (36 CFR 2.16 [g]).

c. Off-trail horseback riding is prohibited (36 CFR 2.16 [b]).

d. Grazing is not permitted; all food must be packed in. Hay is not permitted in the backcountry due to the likelihood of introducing seeds of exotic plant species (36 CFR 2.16 [g]).

e. Hitch racks, when available, must be used (36 CFR 2.16 [g]).

f. In the absence of hitch racks, horses must be tied to a line strung between trees in such manner that stock cannot damage tree trunks, tree roots, or other vegetation. Tying horses directly to trees is prohibited (36 CFR 2.16 [g]).

g. Horse manure that has accumulated from overnight tethering must be scattered away from the campsite (36 CFR 2.16 [g]).

h. Horses must not be tied closer than 100 feet from any stream or water source (36 CFR

2.16 [g]).

Additional, Park specific, regulations regarding use of stock are found in the current edition of the GRSM Superintendent’s Compendium of Regulations.

2.5 THE PERMIT SYSTEM AND RESERVATIONS (36 CFR 1.5 and 1.6)

Since its inception in 1975, the reservation system has gained public acceptance as a means to control resource impacts and increase opportunities for solitude. Overnight users are required to obtain a (free) permit and to state their itinerary on the permit i.e. they must specify where they will camp each night of their trip. A permit becomes invalid if the trip varies from the specified itinerary.

Rationing of Site Use Currently, the overnight occupancy of all shelters and those campsites that experience frequent overcrowding, and/or damage to resources is rationed through a reservation system. While it is possible that unlimited numbers of people could occupy a non-rationed campsite, it is expected that such overcrowding will be an infrequent occurrence. Overcrowding of non-rationed sites can be discouraged by Park Rangers by posting a full notice on permit station bulletin boards when enough self-issue permits have been issued to cause an over-crowded condition to exist. The practical capacity of a non-rationed campsite is equal to two people for each tent site in the campsite.

The use of a rationed site requires that a reservation be made with the Backcountry Reservation Office where a computerized listing of all rationed sites is maintained. Reservations may be made by telephone between 8:00 a.m. and 6:00 p.m. daily, and up to one month prior to the beginning of the trip. Once campers have selected an itinerary and made reservations for all rationed sites, they must write their own permit. Backcountry permit stations are established at logical public contact areas (i.e., ranger stations, visitor centers and/or campgrounds) listed in Appendix B. A description of the permit system and information about where and how to self-register is included in the Great Smoky Mountains Trail Map and is posted at permit stations. Park Rangers are encouraged to assist visitors in choosing itineraries and in writing their permits when possible.

Permits and Permit Stations:

Requiring backcountry camping permits ensures that visitors will come into contact with information that will educate/enable them to responsibly recreate in the backcountry. The permit itself contains regulatory information. In 2002 a new design of permit will go into service. The visitor copy of the new permit is 81/2” X 11”. It contains educational information about regulations, trip planning, safety tips, food storage, ethics and minimum impact techniques for use of campfires and horses.

A new and standardized type of permit station will be installed Park wide in 2002. The standardized station includes three parts. Part 1 is a 4’X 8’ porcelain-enamel wayside exhibit that explains designated campsites and the need for minimum impact use techniques. Part 2 is a 4’ X 8’ steel frame bulletin case that houses the instruction poster for completing permits. Part 3 is a dispenser for trail maps and permits. Also, beginning in 2002, visitors will be able to obtain backcountry permits on-line. This service is expected to be available on the park web site in July 2002. To be effective, backcountry permit stations must be kept neat and clean in appearance. The bulletin case must be kept free of superfluous information. Only the permit instruction poster and current safety and campsite closure information should be displayed in the case. Normally, the only item displayed in the bulletin case will be the instruction poster. This poster contains the information the visitor is supposed to read to obtain a permit. If the poster is the only item displayed the visitor will focus on it and not be sidetracked by superfluous information. Maps should not be displayed. Maps are available from the dispenser. A map on display will distract visitor attention from the poster. The backcountry permit station design and strategy is based upon information in the 2000 abstract from the trailhead bulletin board study by David Cole and Stephen McCool of the Aldo Leopold Wilderness Research Institute.

2.6 CROSS-COUNTRY PERMITS

The purpose of cross-country permits is to provide wilderness travelers “opportunities for solitude or a primitive and unconfined type of recreation” as mentioned in the Wilderness Act. The cross-country permit is not intended as a means to circumvent the designated campsite system. The itineraries are to be truly cross-country, not a trail hike. Trails may be used intermittently, but greater than 60% of the trip must be off-trail. Since the permittees are wishing to be “unconfined” by designated campsite, they are also to be “unconfined” by trail.

The cross-country permit is an option that is easily abused and rangers should interview candidates for such permits to assist them in finding a suitable trip. The interview should serve to find the experience the visitor is seeking and match a trip to suit their need without compromising the integrity of the permit system.

Most people asking for a cross-country permit are actually looking for solitude, not unconfined travel. Suggest lesser-used trails like Lakeshore Trail, Old Settlers Trail, Balsam Mountain Trail and Spruce Mountain Trail where they likely will not see many people. Reference to cross-country permits will be omitted from public information such as the Great Smoky Mountains Trail Map. Cross-country permits are not a means to accommodate overflow camping on holiday weekends when all designated sites in the park are full.

Cross-country permits shall be issued only by permanent Park Rangers. District and Backcountry Rangers must be notified when cross-country permits are issued for their area.

All cross-country trips are governed by the following restrictions:

a. Maximum party size is four people and use of horses or other stock is prohibited.

b. Camping locations must be at least:

*100 feet from the nearest surface water (36 CFR 2.10).

*One-half mile from any designated trail (36 CFR 1.5).

*One mile from any designated road (36 CFR 1.5).

c. Camping in spruce-fir, beech gaps, or on grassy or heath balds prohibited (36 CFR 1.5).

d. Duration of stay at each location cannot exceed one night and the same location cannot be used a second time on the same trip.

e. Wood fires are prohibited (36 CFR 2.13).

f. Campers are required to obliterate all traces of human presence upon leaving a cross-country camp (36 CFR 2.10 [b][2]).

g. Camping locations for each night should be as closely pinpointed as possible using natural landmark or map coordinates, and trips are expected to follow the designated itinerary as closely as possible.

2.7 APPALACHIAN TRAIL THRU-HIKERS

Because the Appalachian Trail (AT) is an entity that exists both within and outside the Park, it must be recognized that hikers often plan long distance trips. The AT thru-hiker comes to the Smokies because the AT is here, not necessarily because he or she specifically wants to traverse the Park.

Appalachian Trail thru-hikers as defined by GRSM are persons who are hiking the AT from a starting point at least 50 miles south of the Park to an end point at least 50 miles north of the Park, or vice-versa. Many intend to hike the entire length of the 2000-mile trail from Springer Mountain, Georgia, to Katahdin, Maine.

Thru-hikers are required to comply with all backcountry regulations, including the mandatory backcountry use permit, with the following exceptions:

*A deviation from the normal permit procedure allows all thru-hikers an open-permit for seven nights with the stipulation that they will be required to utilize the available bunk space in shelters.

*They are not required to designate which shelter they will occupy on a given night.

*If a shelter is full, thru-hikers may camp in the immediate vicinity, within sight of the shelter on previously impacted sites. No other tent camping is permitted on the AT in the Park. Except at the experimental campsite at Birch Spring.

(see Campsite Management 2.8).

*Campers may not stay more than one consecutive night at a specific shelter, regardless of whether or not bunk space is available.

In order to minimize the need for thru-hikers to camp outside shelters, six bunk spaces will be withdrawn from availability (i.e., not subject to reservations) at all AT shelters during the period of heavy south-to-north traffic (March 15-June 15). These space assignments are subject to change, upon recommendation of the Backcountry Operations Specialist, should current use patterns justify alterations. Backcountry Rangers will make every effort to intensify spring patrols along the AT to monitor the effectiveness of the established quotas and to provide recommendations for changes to suit the needs of the backcountry hiker.

Thru-hiker permits can be obtained from:

Southbound thru-hikers: Backcountry permits can be picked up at the U.S. Forest Service Ranger Station at Hot Springs, North Carolina.

Northbound thru-hikers: Backcountry permits can be picked up at the National Park Service self-registration station on the AT where it crosses N.C. 28 near Fontana Marina.

Refer to Appendix (I) for further information concerning thru-hikers.

2.8 CAMPSITE MANAGEMENT

All designated campsites are identified in the field by a campsite marker (Appendix C). The only improvements permitted at backcountry campsites are fire rings, single-pole hitch racks, food storage devices, and, under extreme circumstances, toilets.

The location and design of selected campsites is being evaluated according to recommendations from the 1997 campsite study report. The purpose is to study the effectiveness of campsite design to encourage campers to select appropriate tenting, eating and campfire locations. See section 2.12 and appendix B, Marion backcountry campsite report of 1997.

Length of stay in the backcountry is limited to thirty consecutive days and a total of sixty days per calendar year. A person may stay three consecutive nights at a campsite, but may not stay two nights in a row at a shelter.

While party size is limited to a maximum of eight people, campsite capacities of fewer than eight people may be established for environmentally sensitive areas in order to keep impacts to an acceptable level. Groups composed of more than eight individuals must divide into smaller parties with different camping itineraries. Large groups from a common point of origin camping together attain a level of social interaction that disturbs the wilderness values of solitude and natural sounds. There are two exceptions to this party size limit. One is for trail or campsite work project crews where more than eight people are needed to carry out the work. The second exception is for the Great Smoky Mountains Institute backpacking classes held annually. The nature of the curriculum and the direct NPS control of group leadership as they are an extension of the NPS education program negates the eight person requirement. These groups may be as large as 12 persons. Any other group with some unique circumstances requiring more than eight people must be approved by the CRO. These circumstances would be rare and no example set-of-circumstances can be visualized.

Backcountry users are required (36 CFR 2.13 [a][1] compendium) to use established fire rings rather than making their own. As a matter or routine, rangers should eliminate surplus and/or illegally established fire rings in order to control campsite sprawl. Parties are required to pitch their tent or sleep within the impacted area that outlines the boundary of established visitor use for the site.

Numerous backcountry visitor impact studies conducted in the Park have identified the zone above 4,000 feet, and its associated soils and plant communities, as being particularly sensitive to backcountry use (Bratton 1978, Williams 1995).

This sensitivity will be taken into consideration in campsite management, whether it is reflected in maintenance of established campsites, relocation of sites, addition of new campsites to the backcountry inventory, or changes in type of use. Provisions made for visitor use will not preempt our mandate to preserve and protect the natural resources of the Park’s backcountry (NPS Mgmt. Policies 2001, 8.2.2).

Food storage cable systems are located at all but three of the campsites or shelters. Davenport Gap and Tricorner shelters do not have areas for cable systems and campsite 47 has a bear pole. Use of the storage system for all odorous items is required at night and whenever the items will be left unattended. The GRSM wildlife branch is responsible for maintenance of these storage systems.

2.9 SHELTER MANAGEMENT

Shelters provide a means of confining impacts and are an alternative to closing an area or reducing the number of people allowed at the site. The fifteen trail shelters currently in the Park are in locations that have been demonstrated through sustained use levels to require the use of shelters for reducing recreational impacts.

The overnight capacity of each shelter is determined by the number of bunks it contains and the prevailing sanitary conditions as documented by the limits-of-acceptable-change campsite monitoring system (see section 2.11). Wood fires will be discouraged, but not prohibited, at all shelters due to limited availability of firewood and the heavy overnight use they receive (Bratton 1978 and Marion 1997) Resource impacts from firewood gathering are under continuous evaluation.

The Appalachian Trail shelters are maintained by cooperative agreement with the Smoky Mountains Hiking Club and the Appalachian Trail Conference.

A regulatory sign shall be posted by Smoky Mountains Appalachian Trail maintainers, and the National Park Service on an inside wall of all shelters to call attention to special site-specific as well as backcountry related regulations (Appendix B). A special metal warning sign is posted upon an exterior shelter wall stating: Warning. Do not cook or eat in this shelter. Food odors attract bears.

Chain-link fencing has covered the front wall of the current stone shelters since the 1960’s. According to numerous reports from the public and ATC Ridgerunners the fencing rather than protecting visitors from bears has provided an opportunity for some visitors to feed bears through the fence and obtain close-up photos of the bear. Once the shelter becomes full for the night any more hikers arriving at the shelter have to sleep outside with the food conditioned bear that has lost it’s natural fear of human beings. Once the bears become so bold as to endanger the public they must be destroyed. Park policy has been since 1999 to remove the shelter fencing each time a shelter is rehabilitated. It is thought that the removal of the fencing plus the addition of food storage cables at each shelter will provide the necessary conditions for visitors to keep food from wildlife and thereby improve the safety of visitors, bears and other wildlife.

Fencing was removed from Icewater Shelter in June 1999 and from Peck’s Corner Shelter in June 2000. There have been no reports of bear with human conflicts at either shelter since the fencing was removed. The current practice will be to monitor bear activity at a shelter during the spring and summer months and if no activity is observed or reported the fencing will be removed from selected shelters each year. Fencing will not be removed if bears are currently active at a shelter. Tricorner and Davenport Gap Shelters will keep the fencing until a food storage system can be devised for those two sites.

2.10 SANITATION (36 CFR 2.14)

The primary concerns regarding backcountry sanitation involve the need to prevent the accumulation of human and horse waste, garbage and trash from reaching obtrusive levels; to avoid contamination of water resources; and to prevent conditioning of wildlife to human food sources.

Litter Control Litter will be removed from within the campsite and extending at least 25 feet beyond the impact zone of all campsites and shelters. It is intended that this effort be conducted monthly between March 1 and October 31. Illegal fire rings will also be destroyed and ashes in designated fire rings scattered so as to render them inconspicuous in the environment.

Park staff litter control efforts at all shelters will be supplemented by a volunteer program consisting of a sign posted inside each shelter asking occupants to police the area before they leave and to carry out any trash they find. Appalachian Trail Conference Ridgerunners will routinely carryout trash from the A.T. shelters and solicit campers who are leaving the backcountry to assist by carrying out small bags of trash. Backcountry campsite cleaning is accomplished through the Adopt-A-Campsite Program as coordinated through the VIP Coordinator position. The backcountry campsite, limits-of-acceptable-change evaluation process will be used to analyze the effectiveness of this program.

All garbage and trash should be packed out (36 CFR 2.10 [2]).

Management of Human Waste

The “cathole” method will be encouraged as the primary means of human waste disposal. Human waste shall be buried four to six inches deep and at least 100 feet from the nearest camping area or source of surface water. “Cathole” and sanitation instructions are posted at each trail shelter.

Should visitor use at a particular campsite or shelter become such that the “cathole” method is insufficient to accomplish acceptable sanitary standards, defined as follows.

*Visual obtrusion is minimal and readily biodegrades so as to be virtually unnoticeable.

*No odor is detectable along latrine trails.

*No significant surface accumulation of human fecal matter along latrine trails is evident.

Then the following alternatives will be implemented in the order shown.

*Temporary closure; reopen when conditions improve and re-evaluate; reopen as rationed site or with reduced capacity.

*Install a toilet system appropriate to site-specific environmental conditions.

*Permanent closure.

A metal sign is posted on each shelter to notify visitors of this policy to close a shelter if toilet paper and waste accumulate to an unacceptable level. The signs were approved and came into use in 2000 because sanitary conditions indicated our education efforts through ridgerunners, literature and the general informational signs in the shelters were not enough.

Toilet systems will be installed only when: (1) closing a shelter or campsite is not a practical solution; (2) the “cathole” method of disposal has proven inadequate; (3) the NEPA process permits installation; and (4) the means exists to ensure long-term maintenance. Alternative site-specific systems will be used at shelters where the soil profile is not favorable for pit toilet installation.

(The “moldering privy” has been demonstrated to be the preferred type toilet in our environment).

Standard composting toilets require more maintenance than the volunteer programs or employees have been able to provide during the eight-year period of experimentation on the Appalachian Trail (7/93-7/2000) at Mt Collins and Icewater Springs Shelters. Pit toilets have also proven to be unacceptable because they are impractical to keep clean and attract large numbers of flies. The pits are a problem because archaeological compliance is required under Director’s Order 12 and NEPA for each new pit to be dug.

Recommendations for toilet installation will be submitted via the Backcountry Campsite Evaluation form (Appendix K.6). Recommendations are subject to approval by the Superintendent upon recommendation of the Backcountry Operations Specialist.

Currently there are six moldering privy’s on the A.T. in the Park. These are located at Tricorner Knob, Peck’s Corner, Icewater Springs, Mt. Collins, Double Springs Gap, and Spence Field Shelters. The replacement of the pit toilet with a moldering privy at Mt. LeConte Shelter is expected in year 2002.

Existing toilets that are unjustified will be removed.

Management of Horse Waste

In order to mitigate sanitation problems caused by the presence of horses, horse users will be required to keep their stock at least 100 feet away from shelters, cooking and sleeping areas at campsites, and surface water. Manure will be scattered away from campsites and hitch racks. Should horse manure accumulations become unacceptable, as documented on the backcountry campsite evaluation form (appendix K 6) the following measures will be implemented, in the order shown:

*Temporary closure; reopen when conditions improve and re-evaluate;

*or reopen with reduced horse capacity;

*or, Permanent closure to horses.

Related Human Sanitation Concerns

Camping within 100 feet of a flowing stream, river, or body of water is strictly prohibited (36 CFR 2.10 [3]). Polluting or contaminating Park waters or water courses is also prohibited (36 CFR 2.14 [6]); therefore, bathing or washing of utensils in surface water will be discouraged since flagrant acts can be construed as violations. Use of soap will be discouraged in the backcountry. Biodegradable soap should not be used at the water source–it should be used to wash at least 100 feet away from a stream or other water body, as it must be processed through soil to biologically degrade.

2.11 CAMPSITE MONITORING AND EVALUATION

Campsites will be monitored according to an established method to measure resource impacts and ensure impacts remain within acceptable limits of change. A desired standard is to evaluate all campsites once every other year between June 1 and September 15. When evaluations are accomplished they will include:

*A Backcountry Campsite Evaluation form (Appendix K.6).

*A plane table map (scale: 1 foot = 1 mm).

*Color photographs (not slides) taken from the same photo-points each survey using 35 mm, 800 ASA film.

2.12 NEW CAMPSITES AND CAMPSITE RELOCATIONS

The recommendation to install a new campsite (including the relocation of an existing campsite) will generally be initiated using the Backcountry Campsite Criteria form (Appendix K.7). The Backcountry Operations Specialist will recommend a campsite capacity based upon the vegetation type, topography of the area and social carrying capacity that appears acceptable. Each proposal is subject to approval by the Superintendent upon recommendation of the Backcountry Operations Specialist (see Appendix K.7 for a list of documentation requirements).

2.13 CAMPSITE CLOSURES–TEMPORARY

Temporary closures must be recommended at the district level and approved by the Chief Ranger. Some possible reasons might be bear problems (consult with the Park’s Wildlife Biologist), treacherous stream crossings, wildfires, or ongoing search and rescue missions.

The Communications Center shall be notified immediately so that no additional reservations are accepted and all park personnel can be informed of the closure via special announcement.

District Rangers are responsible for signing the campsite and trailheads and junctions leading to it in accordance with Park standards. The date and reason for the closure should be indicated on the signs. Permit writing stations will be posted and staff at visitor centers will be notified.

2.14 CAMPSITE CLOSURES–PERMANENT

Consistent with applicable legislation and federal administrative policies, the Superintendent has the authority to establish use limitations and area closures (36 CFR 1.5, 1.7). Closure recommendations will be initiated at the district level and must include:

*Recommendation for Backcountry Campsite Closure form (Appendix K.8).

*Backcountry Campsite Criteria form (Appendix K.7) which was filled out when the campsite was established (or the form completed in 1980).

*The most recent Backcountry Campsite Evaluation form (Appendix K.6) and attachments.

A recommendation for permanent campsite closure will be reviewed by; the appropriate District Ranger, the Backcountry Operations Specialist and the Chief Ranger with the final determination to be made by the Superintendent.

As soon as a closure has been approved, the Backcountry Operations Specialist working with the appropriate district rangers, maintenance and resource management personnel will implement and/or coordinate the following rehabilitative procedures:

*Remove all signs at the site and on the trail that refer to the site.

*Obliterate all fire rings, remove ashes and spread them out over the ground at least 50 feet from the edge of the campsite.

*Carry out all litter.

*Remove and disguise all signs of past use to the…