Attachment_0010_-_River_Access_Planning_Guide_(2019).pdf

RIVER

ACCESS

PLANNING GUIDE

A Decision-Making Framework for Enhancing River Access

October 2019

PREPARED IN PARTNERSHIP WITH

National Park Service Rivers, Trails, and Conservation Assistance Program River Management Society

Authors:

Thomas O’Keefe Pacific Northwest Stewardship Director American Whitewater Address author correspondence to:

3537 NE 87th St.

Seattle, WA 98115 425-417-9012 okeefe@americanwhitewater.org

Jordan Secter Environmental Planner, Recreation Specialist Secter Environmental Design 3907 NE 15th Ave Portland, Oregon 97212 541-914-6242 Jordan@secterenvironmentaldesign.com

Contributing Authors:

Joni Gore [Recreational Experiences] Kelleen Lanagan [Recreational Experiences] Wild and Scenic River Fellows National Park Service

Lousie Kling [Steps to Implementing the River Access Planning Guide]

AECOM

Graphic Design:

Jordan Secter, Secter Environmental Design

Brianna Truden Landscape Designer, Visual Artist

National Park Service, Rivers, Trails, and Conservation Assistance Program

• Karl Beard

• Joni Gore

• Joan Harn (retired)

• Kelleen Lanagan

• Lelia Mellen

• Adam Milnor

• Susan Rosebrough

• Angie Tornes

• Corita Waters

• Lucy Portman

Bureau of Land Management

• Cathi Bailey (retired)

• Matt Blocker

• Robin Fehlau

• Kirstin Heins

• Monica Zimmerman

United States Forest Service

• Dave Cernicek

River Management Society

• Risa Shimoda

American Whitewater

• Thomas O’Keefe

Secter Environmental Design LLC

• Jordan Secter

• Brianna Truden

AECOM

• Louise Kling

FORWARD

National Park Service Susan Rosebrough Hydropower Assistance Program Wild and Scenic Rivers Program Office: 206.220.4121 susan_rosebrough@nps.gov

Corita K. Waters River Partnerships Program Specialist Office: 202.354.6908 Corita_Waters@nps.gov

Numerous agencies and nonprofit organizations participated in developing the River Access Planning Guide. Together, they engaged in a collaborative interagency dialogue about river access topics and advised on the development of the concepts in this document. Without their participation and commitment of time and subject matter expertise, this guide would not have been possible. Special thanks to the following agencies and nonprofit organizations for their effort:

NOTE:

This document is disseminated under a cooperative agreement with the National Park Service and River Management Society in the interest of information exchange. The U.S. Government assumes no liability for the use of information contained in this document.

The contents of this report reflect the views of the authors, who are responsible for the facts and accuracy of the data presented herein. The contents do not necessarily reflect the official policy of the National Park Service or other federal agencies involved in the development of this report. This report does not constitute a standard, specification, or regulation.

United States Forest Service David Cernicek Wild and Scenic River Coordinator - River Ranger david.cernicek@usda.gov

For More Information Bureau of Land Management Monica Zimmerman Outdoor Recreation Planner mzimmerman@blm.gov

Robin Fehlau Idaho Recreation & National Conservation Lands Program Lead rfehlau@blm.gov

EXECUTIVE SUMMARY

Core Elements Include:

System and Location The location, geomorphology, and physical characteristics of a site within the continuum of a river from the headwaters to the sea.

Landscape Setting The site-specific features as well as the site conditions characterized as natural, enhanced, or constructed and the site-specific features that define setting.

Temporal Dependence The seasonal nature and timing of on-site activities and how variability of water levels may affect visitation and user behavior.

Frequency When and how often activities occur at a site and how that site activity integrates or impacts the biological setting and natural resources.

Density The number of individuals who will use a site and the site’s spatial constraints that define how well desired uses can be accommodated.

Use Type and Challenge Level The activity types and challenge levels occurring at the site.

Management The needs and challenges resource managers face and the resources available for operations and maintenance.

Access points along rivers are gateways to river recreation. They can serve as launch facilities for boats or other watercraft and allow opportunities for visitors to enjoy and experience activities around the water.

Providing for these diverse visitor uses while protecting natural resources and sustaining desired recreation outcomes can be challenging. The River Access Planning Guide addresses these challenges by providing a step-by-step procedure to evaluate existing and anticipated uses, select appropriate sites, and design facilities that support desired recreation experiences. The River Access Planning Guide details a process for facilitating high-value recreation opportunities in rivers and other waterways. It represents an approach to site selection and design to best meet the need of those seeking access to rivers to enjoy an experience on and in the water.

Certain core elements need to be considered in site planning and design to understand how the river is being used and by whom.

These core elements are imperative to all stakeholders and project advocates and should be communicated and considered throughout each step of the planning process. They also allow the flexibility to consider unique river access needs. Applying these elements to design a site occurs through a step-by-step process that supports implementation across varying river access planning scenarios. Its structure invites systematic information-gathering, planning, decision-making, communication, and design.

These steps are as follows:

STEP 1: Assess and Summarize Existing Conditions The first step to well-designed access is to establish baseline knowledge of site conditions.

This is done by defining the project area, describing regulation and management frameworks, identifying current recreation use, classifying current recreation settings, and describing resource trends.

STEP 2: Identify Desired Access Stakeholders identify a shared vision for the project area based on understanding of the project area, regulatory and management framework, stakeholder concerns or interests, and the existing and potential recreation uses and trends. This process involves listening to stakeholder concerns, sharing ideas, and incorporating the perspectives of a diverse planning team.

STEP 3: Define Desired Recreation Setting Characteristics Recreation Setting Characteristics are derived from the Recreation Opportunity Spectrum and represent a continuum from natural to urban recreation settings, which are characterized by components that include physical, social, biological, and managerial attributes. This step addresses relevant questions about visitor use, infrastructure, management, and sensitive resources.

STEP 4: Evaluate Site Options and Select a Preferred Site(s) The process for site evaluation and selection takes into account a balance among access needs, desired recreation use, setting characteristics, and development constraints. The outcome of this process is to determine access that supports the desired recreation experiences within the larger recreation setting.

STEP 5: Assess Facility Design, Constructability, and Project Implementation Intergrate concept design, site limitations, and construction plans, to determine the overall project constructability and complete construction.

STEP 6: Conduct Site Monitoring Following construction, monitoring the desired conditions and recreation settings is important for identifying what is and is not working once a site is developed. Monitoring data can inform site changes or improvements over time.

When planners work through this step-by-step process with stakeholders using systematic information-gathering to define the core elements, the result is sites that are well designed and better matched to user expectations and desired experiences. Public resource agencies, river managers, and private entities responsible for providing waterway access will benefit from how this planning guide assists their decision-making process for recreation access and facility development. River users will benefit from an enhanced recreation experience shaped by mindful planning and design.

Lowering boats to access the Green Truss river run, a high challenge class V boating opportunity on the White Salmon River, Washington. Credit: Thomas O’Keefe.

TABLE OF CONTENTS

FORWARD

EXECUTIVE SUMMARY

INTRODUCTION

RECREATIONAL EXPERIENCES

ACCESS EXAMPLES

CORE ELEMENTS

STEPS TO IMPLEMENTING

THE RIVER ACCESS PLANNING GUIDE

Appendix A.

Case Studies

Appendix B.

Background and Trends in Paddlesports

Appendix C.

Publications and Approaches to Developing and Managing Water Access

Appendix D.

Paddlecraft Activity Sheets

At Lee’s Ferry on the Colorado River, many river runners prepare for trips of 2 to 4 weeks with thousands of pounds of gear that is often transported to the launch site in large trucks. The access site is heavily developed, but once river runners set off on their journey through the Grand Canyon, they experience a more remote setting.

Credit: Thomas O’Keefe.

The Nooksack River in Washington and the Colorado River at Lee’s Ferry in Arizona are different settings that require different approaches to access. At these sites, river managers understand the difference in setting, the type of trip users are preparing for, and the needs associated with the desired experience. This understanding guides site design that is substantially different between the two settings, but is appropriate to user needs and protects resource values.

On the Nooksack River in Washington, the forested riparian setting is managed to protect natural resources and is an important element of the overall user experience. This access trail was built for kayakers and designed to fit in the forested setting. River runners hike a short distance to a dedicated river access point located in an ecologically-sensitive setting.

Credit: Tim Kelley.

WHAT IS RIVER ACCESS AND

WHY DOES IT REQUIRE THOUGHTFUL

PLANNING AND DESIGN?

River access facilities represent the first touch-point for individuals or groups to engage in diverse types of water-based recreation including boating and simple contact access to the water.

Thoughtful planning for access drives clear decision-making for site location and design that best supports desired recreation experiences and protects sensitive resources. When sites are not well planned or designed, the quality of recreational experiences is diminished.

WHO BENEFITS FROM THE RIVER

ACCESS PLANNING GUIDE?

Public resource agencies, river managers, and private entities responsible for providing waterway access (e.g., hydropower facility operators) will benefit from a planning framework because it will assist their decision-making process for recreation access and facility development. River users will benefit from an enhanced recreation experience shaped by mindful planning and design.

HOW CAN I APPLY THE RIVER

ACCESS PLANNING GUIDE TO

MY PLANNING AREA?

The River Access Planning Guide provides a reliable system for information-gathering, planning, decision-making, communication, and design, while allowing the flexibility to consider unique river access needs. This document provides guidance on how to implement this planning and design process.

INTRODUCTION

The River Access Planning Guide is a resource for planners, river managers, and users as they approach site selection and design to establish a new river access, improve existing access, or integrate river access into larger project design. Access points along rivers can serve as launch facilities for boats or other watercraft and also allow opportunities for visitors to enjoy and experience various other activities around the water. Providing for these diverse visitor uses, while protecting natural resources and sustaining desired recreation outcomes can be challenging.

The guide responds to this challenge by providing a planning and decision process based on the consideration of the site’s system and location, landscape setting, and temporal dependence. The guide also takes into consideration the frequency, density, type of anticipated use, desired challenge levels, and site management.

1 | INTRODUCTION INTRODUCTION | 2

GET PICTURE

AND CAPTION

Engaging in activity for the sake of enjoyment.

A Play experience often utilizes specific current and hydraulic features in the river to enhance the experience. Other users may Play by floating from an upstream point to a downstream point.

Users can drive directly to a specific spot with a notable Play feature to avoid the need to coordinate a shuttle or logistics with others; paddlers commonly refer to this as “Park and Play”. Many Play areas exist along a river as natural features that paddlers can enjoy en-route downstream. In addition, engineered Play features, like those in whitewater parks, allow users to learn and practice skills. Engineered features, especially those located close to population centers, draw more people to the water and have grown in popularity recently.

Access to Play areas is often – but not always – found in family-friendly parks. Users who seek a Play experience may gather and socialize in large groups where individuals come and go on their own schedule. Play in this context can include wading, swimming, fishing, and other non-paddling activities.

Example: Middle Fork Snoqualmie River, WA. The Middle Fork Snoqualmie is a destination for paddlesports during the winter rainy season and period of spring snow melt.

From the shore, the scenery of the river valley draws families, hikers, and picnickers who often engage in water play. Populations of native cutthroat provide opportunities for anglers of all ages. Credit: Thomas O’Keefe.

RECREATIONAL OBJECTIVES OF RIVER USERS.

River access is the gateway to a variety of river-related recreational experiences and fundamental for users to access the river environment, escape the confines of their daily routine, enjoy social activities with friends and family, or engage with their spiritual or traditional values.

Access enables visitors to take in the scenery while they walk nearby, cast a line, swim with friends, or play along the shore. Understanding a user’s desired recreational experience helps river managers identify the type of site amenities paddlers and visitors look for and appreciate.

DESIRED RECREATIONAL EXPERIENCES

A variety of recreational experiences may be expected by users. Below are a select number of desired recreational experiences and example locations: Play, Challenge, Escape, Wonder, and Community.

PLAY

RECREATIONAL

EXPERIENCES

CHALLENGE

ESCAPE

WONDER

COMMUNITY

PLAY

RECREATION EXPERIENCES | 4 3 | RECREATION EXPERIENCES

Engaging in activity that removes the user from the bustle of everyday life and immerses them in a river experience in a wilderness-type setting.

Escape often means getting away from high population centers through multi-day excursions, or may simply refer to secluded runs that offer feelings of freedom in nature.

While users seeking Escape may need to travel long distances to reach these river stretches, separation from daily grind can be found on a popular river before crowds show up – like at dawn, early in the season, or during less than ideal weather. If users are seeking remote experiences that include planning multi-day rafting trips, accesses may require staging areas with ample room and long term parking.

Access to the river with a trail may be sufficient for certain watercraft such as kayaks and canoes.

Example: Colorado River, AZ. Few rivers in the nation offer the opportunity to experience a wilderness setting for up to a month at a time. The Colorado River flowing through Grand Canyon National Park affords that opportunity. Credit: Thomas O’Keefe.

Seeking activities that push the limits of one’s mental and physical comfort zone.

Users seeking Challenge may want to improve their technical skills and/or physical abilities, while other users may intentionally seek thrilling and difficult experiences for adventure. A Challenge setting can be highly unique, as it relates to the skills and expertise of the individual user.

Challenge is not limited to physical exertion, but includes mental endeavors as well. Challenge can include testing physical prowess through whitewater rapids, exerting mental strength through multi-day wilderness trips, or pushing personal boundaries through new outdoor experiences. River recreation provides ample opportunity for everyone to encounter Challenge in a variety of settings.

Example: Elwha River, WA. A team of paddlers works together to navigate the class IV whitewater of the Elwha River where a dam was removed and the river now runs free. Credit: Thomas O’Keefe.

CHALLENGE ESCAPE

RECREATION EXPERIENCES | 6 5 | RECREATION EXPERIENCES

Appreciating and forming a connection with the river.

Wonder encompasses all river users that may marvel at the rush of a river whether they are in a boat, dipping their feet in the water from shore, out on a scenic hike, or participating in spiritual or traditional use. Anglers, waders, and picnickers may seek Wonder at the river’s edge, while hikers, bikers, and photographers might seek it from afar.

In addition to boater access points, nearby trails may lead to scenic vistas of the river or down to the water’s edge for fishing or wading.

Example: The Wild and Scenic Deschutes River emerges from the Cascade Mountains and flows north through eastern Oregon to the Columbia River. Along its journey, visitors have opportunities to enjoy camping, hiking, picnicking, fishing, wildlife viewing, and boating. Trails guide hikers to scenic vistas and areas along the river. Credit: Bob Wick.

WONDER

Seeking an opportunity to engage in river recreation with a group of people.

River users have a diverse range of expertise and interest, but one thing is probably true: they enjoy being on the river with friends, family, and community. Whether users paddle together frequently or come to the river once in a while, river recreation can help forge strong personal bonds.

Community can be built through being on the river and forming individual connections. Users often spend time at river access sites before and after time on the water to meet new people, socialize with friends, engage in spiritual or traditional uses, or plan future outings. Access sites provide casual and consistent opportunities for community to grow. Community can also be nourished through formalized public events held at rivers. These events bring together large groups of people sometimes from far away to enjoy paddling, music, food, and more while celebrating everyone’s connection to the river.

Site amenities may include areas for people to gather. Nearby trails may lead to scenic vistas of the river or down to the water’s edge for fishing, wading, or connecting to the water.

Example: The Truckee River flows through downtown Reno, NV and becomes the setting for community events that include whitewater competitions and festivals that draw the community to the river. Credit: Thomas O’Keefe.

COMMUNITY

7 | RECREATION EXPERIENCES RECREATION EXPERIENCES | 8

PIT RIVER: PARKING LOT

In some situations, river managers and utilities have designed and developed an access facility before evaluating the recreation setting or defining the user experience. This occurred on the Pit River in Northern California, where river runners have a new parking area, but poorly-designed access to the river.

Credit: Thomas O’Keefe.

PIT RIVER

An outcome that does not serve user needs.

The Pit River in California illustrates the issues that can arise when river managers fail to perform a systematic evaluation of user needs before developing the site. The river flows through the town of Fall River Mills, CA, where the Pit 1 Hydroelectric Project provides a regionally-significant opportunity for whitewater kayaking and rafting when the river is flowing; the river was historically dewatered by the hydroelectric project. A new license from the Federal Energy Regulatory Commission required the owner and operator of the hydroelectric project to mitigate this loss of whitewater recreation opportunities by providing flows for boaters and formalizing a river access facility. However, the new access was poorly designed and not aligned with the river system and user needs; specifically, the parking area is undersized, the distance to the river is far from parking, the trail is too narrow for raft usage, and the launch location is inadequately sized with insufficient space for staging.

Additionally, the location was selected without adequate consideration of the user experience and recreation opportunities along the river. One of the ongoing site challenges is providing appropriate access facilities when flow opportunities suitable for boating only occur a few days a year.

The experience with the Pit River illustrates the need for managers to work with stakeholders to address the following questions before a site is planned and built:

• Where is the site located relative to population centers or communities?

• Where does the use occur along a segment of river?

• Is the area heavily developed or in an undeveloped setting with sensitive natural resources?

• What time of year does the use occur?

• What are user needs?

• How often does the use occur and what is the density of use? What is the trend in recreational use?

• What types of activities do users engage in?

Is it high challenge or family friendly?

• How do users want to access the water?

• What is the management context for the site where the activities are occurring?

ACCESS

ISSUE

PIT RIVER: RIVER ACCESS TRAIL

The narrow trail that provides access to the river is over 1/4 mile in length. The 4-6 foot trail width works for a single person and their kayak. Carrying rafts can be cumbersome however along a narrow path over a long distance. Trail surfaces should be barrier free and path width should be 8-10 feet to accommodate rafts.

Credit: Thomas O’Keefe.

PIT RIVER: RIVER ACCESS PUT-IN

Undersized staging area for rafts constrains use and backs up access for other users. Riparian vegetation is at risk of impact. Credit: Thomas O’Keefe.

Additional trail width needed for a raft.

Access trail for a kayak.

9 | ACCESS ISSUE ACCESS ISSUE | 10

The planning guide is designed to provide a systematic means of addressing these and other questions prior to site development to support specific desired experiences.

The Clackamas Wild and Scenic River provides an example of well-sited and designed facilities and one of the inspirations for the development of the River Access Planning Guide. The river is administered by the U.S.

Forest Service, with hydropower facilities upstream and downstream of a regulated river segment that is popular for whitewater paddling, scenic viewing, hiking, and fishing.

As an operating condition of the license, the hydropower operator was required to develop access points along the river.

Access sites had to serve a wide range of rafts (from large 16-foot oar framers, to paddle rafts, to smaller two-person rafts). Many rafters row a solo oar frame and needed the ability to transport the raft easily from the parking area (or loading zone) to the river. Users desired separate launch areas and access routes for kayakers and rafters to reduce user conflicts. Sites had to be designed to handle outfitter trips allowing space for trip orientation and safety talks. As a result of proper planning and evaluation, three new river sites were designed and constructed. Prior to development, the selected sites were not the highest use sites, but they offered the most potential for enhancing user experience while protecting resource values. The new sites have been popular and well received.

The Clackamas example demonstrates the value of taking a comprehensive look at the entire river corridor, including sites that may not be in use currently but offer significant future potential. Using the River Access Planning Guide to evalate the river system, river managers and the hydropower licensee effectively met user needs by coordinating the development of an enhanced facility in a natural setting through clear understanding of recreation uses and use level throughout the year.

CLACKAMAS RIVER

An outcome that effectively serves user needs.

Prior to the project, access was located down a steep slope over existing boulders to a gravel beach at the edge of the river. It was difficult to maneuver large rafts and kayaks over the uneven surfaces. Credit: Jordan Secter.

On the Clackamas River, a systematic and comprehensive evaluation of alternatives and subsequent development of sites resulted in a project that supports the desired recreation setting characteristics and enhances the quality of the user experience. Credit: Thomas O’Keefe.

ACCESS

OPPORTUNITY

SITE DESIGN

11 | ACCESS OPPORTUNITY ACCESS OPPORTUNITY | 12

The River Access Planning Guide represents an approach to river access site selection and design that best meets the needs of those seeking an enjoyable experience on and in the water. For example, a river in a wilderness setting that is paddled infrequently by a handful of expert-level kayakers will have very different access needs from a popular whitewater rafting run along a state highway where outfitters offer trips through the summer. When planning and designing a site, it is crucial to understand how the river is being used and by whom.

Whether a project manager or decision maker is seeking to establish a new river access location, improve existing access, or integrate river access into design of a project where river access is a secondary objective (e.g. providing waterway access as part of a bridge construction project), the River Access Planning Guide can assist by offering a planning and decision-making framework.

Each element is described in detail below and includes simple iconography and supporting imagery to define these concepts. These concepts that characterize a site need to be applied in project design and implementation and this guide provides the methodology to do so.

CORE

ELEMENTS

A bridge right-of-way in a river estuary provides access to a river influenced by the tides. This access is in a constructed environment in an urban setting. Use is year around with low frequency and low density of use. The environment is used by beginner kayakers. Understanding the site characteristics and type of use guides decisions on improvements that managers might consider. Credit: Thomas O’Keefe.

A. System and Location

B. Landscape Setting

C. Temporal Dependence

D. Frequency

E. Density

F. Use Type and Challenge Level

G. Management

WHAT DOES A QUALITY RIVER

ACCESS FACILITY PROVIDE?

• Site facilities that safely and effectively support anticipated recreation activities and challenge levels.

• Inviting setting that supports multiple uses and varied visitor experiences.

• Enhancement of the recreation experience for diverse user groups.

• Proactive management of user conflicts.

• Protection of cultural and natural resource features and values in the recreation area.

To plan and design an effective access site, these core elements need to be considered, and the information needs to be accessible and easy for all stakeholders and project advocates to understand.

13 | CORE ELEMENTS CORE ELEMENTS | 14

1. Understand the location of the site within the continuum of a river from the headwaters to the sea:

A potential site could be located in high-gradient headwaters, within an alluvial low-gradient reach, or in an estuarine environment. A holistic view of the river reach is important; planners need to consider the context of how a site fits within the larger system and its relationship to other sites. Defining the regional context includes a social component, as determined by the distance from population centers, that can impact use levels and the likelihood that a site is primarily a destination for day use vs. overnight use. These factors influence the level of development necessary to sustain uses.

2. Describe the geomorphology and physical characteristics of the river:

It is important to understand the geomorphology of the river system and the physical processes that can impact access points, including the character of the river system and the channel type classification–which varies as a function of bed material (sand, gravel, cobble, boulder, bedrock), gradient, drainage area, and channel confinement (branched, sinuous, confined). Similarly, the hydrologic character of the river reach and the associated flow regime affects design considerations.

River conditions change based on whether the river is free-flowing, has a dynamic or stable flow regime (evaluate within and between season variability), is subject to floodplain interaction, is dam-controlled, or is tidally-influenced. To ensure the best sites are chosen, managers need to compare traditional use patterns with the characteristics that define the setting and hydrology along the river system. In some cases, traditional sites might not represent the best sites; use may have developed over time out of convenience rather than an intentional decision to use the best location.

A.

SYSTEM AND LOCATION

UNDERSTAND REGIONAL CONTEXT

Confined Channel, Sinuous Channel, Lake, Alluvial Reach, Estuary

The Selway River flows through a remote wilderness area in Idaho and is located far from population centers; only one launch per day is permitted. Despite high demand for the experience, opportunities are tightly controlled by a limited-entry permit system, and river access is designed to meet that level of use. Credit: Thomas O'Keefe

Confined Channel

Sinuous Channel

Lake

Estuary

Alluvial Reach

The Duwamish River flows through the City of Seattle and offers an urban paddling experience. It is an estuarine environment that is tidally-influenced and close to the sea. The dynamics of a fluctuating tide and limited availability of public property along the river are key considerations for river access. Credit: Thomas O’Keefe.

The Wild and Scenic Delaware River along the New York

- Pennsylvania border draws local and regional paddlers.

The river is a wide alluvial river that flows through a rural landscape and small communities.

Credit: Thomas O’Keefe.

15 | CORE ELEMENTS CORE ELEMENTS | 16

1. Describe the sites’ existing conditions and the landscape setting characteristics found at each location within the river system:

When choosing an access site, planners should understand the landscape setting and ecology of existing or potential access points, their location within the river system, and how these existing or potential sites relate to user needs.

It is important to include an assessment of the road network between access points, including on which side of the river an access site is located, and whether the site acts as a launch point, a day-use area, or both. Planners and stakeholder teams should inventory and map features on the river that are attractive to users (e.g., a popular rapid) as well as hazards users may wish to avoid (e.g., a low head dam). Teams should also consider how the setting changes as users launch and transition to the river experience (e.g., the launch area may be highly developed while the experience on the river is through a natural setting). Travel time on the water is important to quantify and is dependent on both distance between access points and features that may need to be scouted or portaged.

Characteristics of the river, including site-specific features, may influence how facilities support users' experiences. When evaluating opportunities to locate access sites, managers may look at user behavior within a system to identify where opportunities exist and where impacts to resource values may occur.

2. Classify opportunities as natural, enhanced and constructed:

To assess a site for the highest quality recreational opportunities, it is important to understand the character of the system and assess the level of development appropriate to meet the project goals. This will inform decisions about the level of infrastructure that is appropriate to provide users with the experience they are seeking while also protecting the integrity of the resource and overall quality of the setting.

The North Fork Rogue in Oregon offers a section of great Class IV whitewater when the hydropower project is taken offline; scheduled whitewater opportunities are provided as a condition of the hydropower license.

An access point at Mill Creek Falls requires a steep and challenging descent into the gorge, but represents the transition point between challenging Class V+ whitewater upstream with significant hazards, to the more manageable Class IV whitewater downstream. Credit: Thomas O’Keefe.

Constructed

Natural

Enhanced

On the Wild and Scenic Poudre River in Colorado, the Forest Service has provided basic enhancements along the river corridor that include stairs and other clearly-defined enhancements that improve the quality of the user experience and accommodate the use levels this river sees. Credit: Thomas O’Keefe.

The Hood River Waterfront Park on the Columbia River is in a constructed setting between an Interstate Highway and the river. This is a constructed access with a large paved parking area, flush toilets, changing rooms, and high-use river access. The park is a community gathering space for the City of Hood River with dining and entertainment options surrounding the park.

Credit: Thomas O’Keefe.

B.

LANDSCAPE SETTING

Natural, Enhanced, Constructed

17 | CORE ELEMENTS CORE ELEMENTS | 18

1. Understand the seasonal relationships to the activity:

A site may have consistent use levels through all four seasons, or it may have sporadic use associated with weather, snow melt, seasonal rainfall, or reservoir release dates. River managers need to understand what times of year use is occurring and what is driving the use. For example, when use at marinas increase in the spring and fall during salmon runs, increased motorized boat traffic generates potential user conflicts between motorized users and paddlers competing for access to the boat launch.

2. Review hydrologic data and impacts to timing of use:

Managers must review hydrologic data to understand how dynamic changes in river flow, river channel location, and potential changes to shoreline conditions could affect access facilities. A site may be developed to support dynamic ecological events while still providing access for recreation. For example, a site may be located within a floodplain with a high probability of inundation during high-water, but if site inundation results in closure of the access point, it can preclude opportunities for those seeking a high-challenge experience during high-water. It is important to understand how seasonal water events affect access to the site and to the water.

The Skykomish River in Washington is utilized by boaters in every month of the year. Credit: Thomas O’Keefe.

Access points on the Wild and Scenic Salmon River such as Cache Bar that serves as a primary take-out for the Middle Fork Salmon are generally in use from late spring to autumn. Credit: Thomas O’Keefe.

The Little Wenatchee River in Washington can only be run during a brief window during spring snowmelt, but the road is often closed prior to the start of other recreational activities that occur later in the season. It is not uncommon for boating activities that depend on specific hydrologic conditions to be out of phase with other recreational activities that are dependent on hot sunny days when rivers may be too low for boating.

Credit: Thomas O’Keefe.

C.

TEMPORAL DEPENDENCE

1 Season, 2 Seasons, 3 Seasons, Year-round

1 Season

2 Seasons

3 Seasons

Year-round

19 | CORE ELEMENTS CORE ELEMENTS | 20

1. Describe when and how often a recreation activity occurs:

Frequency of site use is distinct from the level of use a site receives. The site could be used year around with a light but consistent level of visitation. In other cases, the recreation activity may occur sporadically throughout the year but experience a high level of use on those days. Locations where a scheduled release of water from a dam only occurs a few days per year may require sites that can handle a large number of users attracted to a unique opportunity, but the level of development could be low since it happens infrequently (e.g. managers might bring in temporary facilities such as porta-potties instead of installing a permanent toilet).

2. Describe how site activity affects resources:

Based on this timeframe, understand how site activity integrates or impacts the biological setting and natural resources. The variability of use may be based on seasonal patterns of weather, water flows, or regulatory policies. Managers need to understand how to integrate the recreation experience of a site with nesting seasons, spawning activity, and other natural resource management directives that may limit recreation activity use at certain times of year.

Access on the Green River in Utah at Dinosaur National Monument is used on a daily basis by commercial groups and the general public. With a high frequency of use, the site is designed to efficiently move multiple groups through the site on a daily basis. Credit: Thomas O’Keefe.

Access points to the Gauley River in West Virginia are administered by the National Park Service. During fall drawdown of the reservoir, several weekend releases provide dependable whitewater boating opportunities.

Additional opportunities occur during rain events that occur throughout the year. Credit: Thomas O’Keefe.

The remote gorge on the Upper Sultan River in Washington was only explored by small groups every few years, but with a new hydropower license and related flow regime, opportunities increased for large groups to paddle the river 2 to 4 days a year. While frequency is low, density increased. Resource impacts from heavy traffic on unstable soil necessitated the construction of a new trail, which needed to follow Forest System standards.

Credit Thomas O’Keefe.

D.

FREQUENCY

Low, Medium, High

Medium

Low

High

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E.

DENSITY

Low, Medium, High

1. Determine the density or level of use and spatial constraints:

The physical organization of a site sets the stage for how users engage with the site. Understanding how many individuals will use a site along with the site’s spatial constraints will help deterimine appropriate facilities.

Once level of use is determined, managers need to determine the spatial constraints and how the physical makeup of the site affects the opportunities. There should be appropriate space for parking and storage, distance between parking and the launch facility, and area for staging and launching boats. A lack of available space may lead to congestion and a lower quality visitor experience.

Low

Medium

High

The Sauk Wild and Scenic River in Washington is a popular day trip for outfitters and the general public with a density of use that is quite variable. Density fluctuates depending on the water level and weather. While the access can become congested during periods of optimal flows and good weather in late spring, density of use is generally low to moderate. Credit: Thomas O’Keefe.

With eight launches per day and high use density for a small physical footprint, the Boundary Creek Launch on the Wild and Scenic Middle Fork Salmon in Idaho can become very congested. In general, the system works because groups preparing for a week-long trip arrive the day before their launch. Groups wait their turn and rig boats in sequence, but it can take several hours for eight groups to all make it through the launch area.

This arrangement would be unacceptable for a day-use scenario. Credit: Thomas O’Keefe.

Robe Canyon on the Stillaguamish River in Washington State has a high frequency of use with paddlers on the run nearly every day during the winter and spring paddling seasons but a low density of use given the difficulty of this class V run. Paddlers have made arrangements with local land owners for parking and access to the river.

Such an arrangement would not be feasible if density of use was high. Credit: Sean Lee.

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1. Identify the top uses and potential conflicts:

Any one site can support multiple uses depending on where it is located within the system and the temporal scale in which activities occur. Identifying who the users are, when they recreate, and the types of facilities needed to support their experience while protecting the setting is important. For example, a site used for boater access may also serve as a day-use site for families desiring contact access to the water.

Understanding the type of equipment primary users utilize and the requirements for transporting it to the site is also critical. For example, access needs for fully loaded rafts about to set out on a multi-day river trip are different from those for kayakers out on a day trip.

Managers should include a process to consider how the distance from vehicle access to shoreline as well as the space needed for staging and launch preparation may differ among activities (e.g., kayakers can more easily carry their boats than rafters, who typically want to back a trailer as close to the river’s edge as possible).

2. Identify the challenge level:

Challenge level is a component of the recreational experience for river runners, sea kayakers, canoers, and play boaters and may change depending on the time of the year and the character of the river system.

River Challenge Classes I, II, III, IV, V Rivers are rated on a class I-V scale of whitewater difficulty and provide users with a guide to assess the challenge associated with their chosen recreation activity.

A site may provide access to an intermediate level experience at certain times of the year and an advanced level experience at other times of the year such as during snowmelt or after heavy rains. It is important for managers to understand the dynamic condition of the river system, where one is recreating and address the challenge levels and expectations of the river experience.

Heavily-polluted waterways like the Duwamish River in Seattle are being cleaned up. This opens the door for new recreation opportunities–including paddlesports–creating new demand for access. Credit: Thomas O’Keefe.

Kayaking Canoeing

Sailing

Paddle Boarding

Swimming

Fishing

Wildlife Viewing

Photography

While canoes and other paddlecraft are used for recreational enjoyment, they are also a traditional means of transportation on waterways. It is important to consider traditional and cultural uses of waterways during planning efforts. Credit: Thomas O’Keefe.

Merced River Recreation Area is near the entrance to Yosemite National Park, and provides overflow or alternative camping for park visitors, as well as a beautiful setting for river enthusiasts. Paddlers enjoy the river with spring flows but later in the season, the river is a destination for swimming and water play.

Understanding how recreational use changes with season and water level is an important consideration in developing river access. Credit: David Greenwood.

Accessibility

Rafting

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F.

USE TYPE AND

CHALLENGE LEVEL

Recreation Activities and Skill Levels

G.

MANAGEMENT

1. Identify management needs and challenges:

Understanding management needs and identifying resources to implement them is a critical component in determining physical layout of a site. A manager may consider developing a site that has several management challenges with the primary project objective to address those challenges. For example, a dispersed recreation site along a river that is being used as a boater access, fishing spot, and dispersed camping area may have resource degradation and waste management issues. Careful planning can be used to address these management challenges and direct users to areas where their desired activity can be more effectively managed.

2. Identify resources for operations and maintenance:

Planners need to have an understanding of long-term resources that are available for management. A hydropower operator who has license requirements for their project to provide public access may have a 50 year commitment to provide access and the revenue from hydropower operations to support it. A federal agency subject to annual fluctuations in federal appropriations will need to consider this uncertainty when making site design decisions. The following should be evaluated to identify resources and opportunities:

• Agency staff and financial resources for site operations and maintenance

• Ability to partner with stakeholder groups to adopt sites and support operations and maintenance

• Commitment to site monitoring to assess conditions and any issues requiring attention

TRIBAL

GOVERNMENT

FEDERAL

GOVERNMENT

STATE

GOVERNMENT

COUNTY

GOVERNMENT

CITY

GOVERNMENT

LOCAL

JURISDICTION

ADVOCACY /

STAKEHOLDER GROUP

The White Mountain Apache Tribe manages access to the Salt River in Arizona. Camping is available at primary access sites which also provide staging and launch areas for day trips and multi-day river trips.

Credit: Thomas O’Keefe.

Paddlers launching at the base of Hoover Dam are escorted to the launch area by an approved canoe livery service. Those preparing for a trip through the Black Canyon of the Colorado along the Nevada-Arizona border only have a few minutes to launch due to security concerns and management restrictions on public access near the dam. Credit: Thomas O’Keefe.

The Headworks Run on the Green River in western Washington is a popular instructional reach, but the city utility was interested in restricting access due to security concerns associated with a municipal water intake facility. These restrictions could have resulted in a loss of access to features on the run that were desirable for instruction and training. In response, the utility constructed a boater access facility within the security perimeter for the watershed, and boaters check in at the security gate to access the river.

Credit: Thomas O’Keefe.

CITY

GOVERNMENT

FEDERAL

GOVERNMENT

TRIBAL

GOVERNMENT

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STEPS TO IMPLEMENTING

THE RIVER ACCESS PLANNING GUIDE

The River Access Planning Guide details a step-by-step process for systematic information-gathering to define the core elements, plan, communicate, design, and monitor, while allowing the flexibility to consider unique river access needs. The document is organized around the following steps:

The document is structured to give context and rationale for each of the steps, as well as specific direction for implementation. “Tips and Tasks” are denoted by the following symbols:

To support mapping and other visual communication, icons are used to identify each of the attributes considered in river access planning and design.

STEPS TO IMPLEMENTING

THE RIVER ACCESS PLANNING GUIDE

STEPS TO IMPLEMENTING THE RIVER ACCESS PLANNING GUIDE: INTRODUCTION | 30

Step 1 establishes a baseline by defining the project area and documenting the applicable management framework, current recreation use, and trends in recreational use and resource condition.

Collection and review of existing conditions is an essential first step toward understanding recreation use, setting, and experiences, which can then inform thinking around potential new access that addresses changing demands, impacts on resource conditions, and new recreation opportunities.

The outcome of Step 1 is clear documentation and illustration of baseline information that can be used to communicate with stakeholders and make informed planning decisions.

STEP ONE

Step 1 is initiated by the planning lead, who works with resource managers to gather relevant information to support the River Access Planning Guide process. The goal is to assemble baseline information efficiently so the planning team may work with a common baseline to engage stakeholders in Step 2.

TIPS

ASSESS AND SUMARIZE EXISTING CONDITIONS

STEP ONE

• What type of river system is the project located in (confined channel, sinuous channel, lake, alluvial reach, estuary)?

• What are the geomorphic and physical attributes and processes that could impact an access point including hydrologic character of the project area?

• Does the project focus on a single point-of-entry or a collection of access points along a river corridor?

Clearly define the project area.

TASKS

• What is the land ownership in the project area?

• What agency policies, regulations, or management direction exist regarding recreation setting, natural, cultural, and scenic resources, and/or visitor use?

• Are any unique features of the project area (i.e., cultural, recreation, ecological) identified in applicable planning documents?

• Are specific management goals and objectives associated with the project area?

A clear understanding of applicable regulations and/or management standards within your project area is key to the Guide. Regulations can pertain to recreation, resource management, development standards, and/or regulatory directives that establish parameters for the planning process. This is particularly important when desired future conditions for recreation and natural resources may already be established (e.g., a Wild and Scenic River Comprehensive River Management Plan may include guidance on facility development, user capacity, and actions to protect and enhance river values). Management standards may also direct permitted uses and use levels that inform an understanding of the social setting.

Identify applicable regulations and management standards that could affect access decisions.

DESCRIBE REGULATORY AND

MANA…