B08_Attachment_06_Final_GLCA_Project_Program_20220930.pdf

National Park Service

Glen Canyon National Recreation Area – Identification of Potential Locations for Launch Ramps in Lake Powell

Project Program Report Final

September 30, 2022

Prepared by:

Jacobs Government Services Company Englewood, CO

Contract No. 140P2021D0007 Task Order No. 140P2021F0391

U.S. Department of the Interior

Glen Canyon National Recreation Area – Identification of Potential Locations for Launch Ramps in Lake Powell

Project Program Report, Final September 30, 2022 Table of Contents Page i

Table of Contents

Acronyms and Abbreviations ............................................................................................ ii

Chapter 1 – Site Program Description .......................................................................... 1-1

1.01 Project Overview ..................................................................................... 1-1

1.02 Project Background ................................................................................ 1-1

1.03 Project Scope ......................................................................................... 1-2

1.04 Functional Requirements ........................................................................ 1-5

Chapter 2 – Site Analysis ............................................................................................. 2-1

2.01 Field Work/Site Surveys .......................................................................... 2-1

2.02 Design Variables ..................................................................................... 2-5

2.03 Identification of Additional Infrastructure ................................................. 2-7

2.04 Permitting Requirements ........................................................................ 2-8

Chapter 3 – Schedule ................................................................................................... 3-1

3.01 Design-Build Procurement Schedule ...................................................... 3-1

Chapter 4 – Next Steps ................................................................................................ 4-1

4.01 Actions .................................................................................................... 4-1

List of Figures Figure 1. Design Contours at Bullfrog .......................................................................... 1-3 Figure 2. Bullfrog, Halls Crossing, Antelope Point, and Hite Survey Areas .................. 2-1

List of Appendixes Appendix A – Early Listening Session Summary Appendix B – Project Design Criteria Appendix C – Site Visit Photos Appendix D – Topobathymetric LiDAR Report Appendix E – Proposed Geotechnical Boring Locations Appendix F – Construction Phasing Diagrams Appendix G – NPS Permitting Assessment Form

Glen Canyon National Recreation Area – Identification of Potential Locations for Launch Ramps in Lake Powell

Acronyms and Abbreviations Page ii

Acronyms and Abbreviations

Acronym Definition

APE area of potential effect

EA Environmental Assessment

GLCA Glen Canyon National Recreation Area

IRB Investment Review Board

Lake Lake Powell

LiDAR light detection and ranging

MNA Museum of Northern Arizona

NEPA National Environmental Policy Act

NPS National Park Service

NRHP National Register of Historic Places

Park Glen Canyon National Recreation Area

UDOT Utah Department of Transportation

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Chapter 1 – Site Program Description Page 1-1

Chapter 1 – Site Program Description

1.01 Project Overview

The National Park Service (NPS) will evaluate constructing, modifying, or relocating boat ramps at four visitor use areas within Glen Canyon National Recreation Area (GLCA or the Park). Due to unprecedented low water conditions at Lake Powell (Lake), there is a need to develop a rapid response plan to maintain boater access with resilient, long-term, engineered solutions. This project will focus on four visitor use areas: Bullfrog, Halls Crossing, Antelope Point, and Hite.

GLCA’s enabling legislation states that it was established “…to provide for public outdoor recreation use and enjoyment of Lake Powell and lands adjacent thereto in the States of Arizona and Utah and to preserve scenic, scientific, and historic features contributing to public enjoyment of the area.” To meet this objective, visitors should continue to have reasonable access to Lake Powell for recreational activities. The launch ramps serve a public health and safety need to provide safe access to the water as well as minimize impacts to natural resources by providing designated access points to the water.

As a result of the low water and access issues, the Park is experiencing significant political and public pressure to act. GLCA is losing a significant portion of revenue due to concession loss and drops in visitation, which is in part due to the perception that the Lake is inaccessible.

1.02 Project Background

Lake Powell was formed when the Glen Canyon Dam was built in 1963 to block off the Colorado River. It is the nation’s second-largest reservoir after Lake Mead. Droughts in the western United States in recent years have left the reservoir at 30% full and dropping. The Lake levels have left boat ramps high and dry, leaving the approximately 4 million annual users of GLCA unable to use several of the boat ramps to launch their personal vessels.

Encompassing more than 1.25 million acres, GLCA stretches between both northern Arizona and southeastern Utah. The recreation area includes portions of Garfield, Kane, San Juan, and Wayne Counties in Utah and Coconino County in Arizona. The Park’s southern boundary runs contiguous to lands of the Navajo Nation for almost 500 miles.

GLCA shares boundaries with other NPS units, including Grand Canyon National Park, Capitol Reef National Park, Canyonlands National Park, and Rainbow Bridge National Monument. GLCA adjoins approximately 9.3 million acres of other federal lands administered by the Bureau of Land Management, including the Grand Staircase- Escalante National Monument, Vermilion Cliffs National Monument, Bears Ears National Monument, and the Paria Canyon-Vermilion Cliffs Wilderness. The Park staff consults regularly with the Hopi Tribe, Kaibab Paiute Tribe, Navajo Nation, Paiute Indian Tribe of

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Utah, Pueblo of Zuni, San Juan Southern Paiute, and Ute Mountain Ute in areas of mutual interest.

GLCA is located in a geographic area commonly referred to as the Colorado Plateau.

This desert region is characterized by expansive areas of exposed and uplifted rocks that have been carved by the Colorado River and several tributaries. Lake Powell is formed by the impounded waters of the Colorado River above the Glen Canyon Dam and is the second-largest reservoir in the United States. Lake Powell is considered a world-class water-sports destination and is an economic engine for the region. The Bureau of Reclamation manages the Glen Canyon Dam. When Lake Powell is at full pool, it comprises 13% of the Park’s geographic area and draws a large percentage of the Park’s annual visitation of approximately 4 million visitors. Approximately 87% of the Park is Colorado Plateau red rock landscape, offering a wide range of recreational opportunities and habitat for a diverse assemblage of terrestrial and aquatic species and significant historic sites include Lees Ferry and the Hole-in-the-Rock Trail. GLCA is one of the Southwest’s premier archeological parks.

The town of Page, Arizona, is the nearest town to GLCA. It is located in Coconino County, Arizona, near the Glen Canyon Dam and South Lake Powell. The population is 7,500, and the Park Headquarters is located in Page.

1.03 Project Scope

For the initial studies and concept design, the four areas were evaluated under a single design effort and task order. However, the sites will be progressed to construction as separate projects and design packages and the scope descriptions are divided as such.

As noted, drought conditions in the Colorado River Basin are contributing to unprecedented low water conditions for Lake Powell. The “full pool” water elevation for Lake Powell is 3,700 feet. At the time of this report in July 2022, the water level is approximately 3,537 feet, after reaching a seasonal low of 3,522 feet in April 2022.

Water levels are expected to continue to drop. The level of 3,450 feet represents the Park’s lowest conceivable low water elevation for future Lake levels; there is a 1 in 3 chance the Lake will fall below 3,490 feet within the next 3 years. These low water conditions are the key driver for this project’s scope as the Park seeks to maintain recreational access to the Lake for all future water conditions.

1.03.1 Bullfrog

At the time of the development of this project plan in early 2022, there are no available Boat Ramps at North Lake Powell. Water levels have fallen below the reach of both Bullfrog Main Launch Ramp and Bullfrog North Launch Ramp at 3,580 feet. An emergency extension project in spring 2022 provides modified access to 3,520 feet elevation; however, water levels will continue to drop, ultimately beyond the reach of this extension. The area has a full-service marina, including lodging facilities, food and

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Due to surrounding bathymetry, and the shallow “shelf” in the proximity of the existing ramp in Bullfrog Bay, the existing ramp will be more than a mile from the water line in a future low water condition. The location of the Bullfrog Launch Ramp and associated parking and utility service needs to be located to a new location to provide a ramp that can serve both high and low water conditions. Figure 1 provides key design contours at Bullfrog that illustrate the distance between the existing launch ramp and the low water elevation of 3,450 feet.

Figure 1. Design Contours at Bullfrog

The marina location and configuration are being evaluated for the following two options:

1. A proposed layout that allows the marina to maintain its general location and connect to existing utilities to a certain water elevation.

2. Moving the marina and associated utility infrastructure to accompany the relocated launch ramp.

Approximate location of existing launch ramps

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1.03.2 Halls Crossing

As stated in the previous subsections, there are currently no functioning boat launches in North Lake Powell. All available boat ramps at Halls Crossing are currently closed due to low water levels, though the marina is still open. Halls Crossing and Bullfrog are approximately 3.5 miles across the Lake from each other; however, without Lake access, a 4-hour drive is required between sites. Typically, a Utah Department of Transportation ferry provides access between the sites, serving as an important link for the two communities. This ferry cannot currently operate due to lack of operating launch ramps at both Bullfrog and Halls Crossing.

This project proposes a regrade and extension of the existing Halls Crossing Launch Ramp to provide low water access. The launch ramp will provide a combined use ramp for both public access and ferry service.

1.03.3 Antelope Point

The Antelope Point Public Launch Ramp is operated by the Park and is located near the Antelope Point Marina, an NPS-approved concession managed by Antelope Point Holdings. Antelope Point is a joint-development project between the NPS and the Navajo Nation. Due to low water, the Antelope Point Public Launch Ramp is currently closed, though the marina is open. The marina business and valet ramp are also currently closed due to low water. Antelope Point provides an important access point for kayakers visiting Antelope Canyon, as well as large houseboats and other motorized vessels in South Lake Powell. Vessels are able to access this area by boating from the Wahweap Stateline Auxiliary launch ramp, which has been extended with declining water level. However, there are periodic closures or delays for construction and boilerplate installations. The distance between Antelope Point and Wahweap is too far to serve kayakers. Additionally, capacity at Wahweap Stateline Auxiliary launch ramp is increasingly overwhelmed as it is the only functioning boat launch in South Lake Powell and, therefore, additional capacity and access is needed at Antelope.

This project evaluates three options to include a regrade and extension of the existing Antelope Point Public Launch Ramp. This ramp is proposed to be a combined business and public use launch ramp. Specifically this means that the ramp will provide both high and low water access for recreational boaters, CUA access for kayaking and other small vessel tourism, and professional valet services for large houseboats. No utilities will be provided at the new Antelope Launch Ramp.

1.03.4 Hite

The Hite District (Hite) is a small outpost at the junction of the Colorado River and the northernmost reach of Lake Powell. Hite is a popular location for land- and water-based recreation, as well as a take-out for rafters exiting Cataract Canyon and other water-based activities. Due to low water and sediment deposits from the Dirty Devil

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Confluence, the existing Hite ramp does not provide access to the river. Cataract Canyon rafters and other boaters currently use a site called North Wash as a take-out and primitive launch area. However, this area is problematic due to its location on an exterior bend of the river channel. Natural hydrological forces continually wash away and destabilize the shoreline at this location, rendering it unsafe for boaters and rafters.

This project will identify an alternate primitive take-out location within the Hite Region for boaters and rafters to potentially launch and retrieve vessels. This includes a desktop evaluation of the hydrogeological features along the Colorado River and an evaluation of different alternatives for long-term viability.

1.04 Functional Requirements

A primary goal of this project concept phase was to understand the functional requirements of launch ramps. This information informs the design criteria and identifies project needs for the detailed design phase.

1.04.1 Existing Launch Ramp Infrastructure

A key desire for this project is to maintain similar level of access and services that were provided historically at each of the ramp locations. Therefore, many functional requirements for the project are driven through a comparison to the existing launch ramp infrastructure, summarized in Table 1. It is noted that Hite is not included as the historic ramp serving the marina was abandoned several years ago, and the current take-out area in use at North Wash is not permanent infrastructure.

Table 1. Existing Launch Ramp Infrastructure

Site

Existing Launch Ramp Criteria Area

Services Existing Utilities

Parking* (approximate square footage) Width

(feet) Length (feet)

Grade

Water Elevations

Bullfrog Public Ramp

124 1,250 9.00 3,700 to 3,580 Marina, restaurant, lodging, fuel, ferry

Water, power, sewer, telecom

700,000 Bullfrog Low Water Ramp

Extension

150 1,165 9.60 3,580 to 3,525

Halls Crossing

Public Ramp

60 1,500 10.67 3,700 to 3,550

Marina, fuel, ferry None 86,000

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Antelope Point Public

Ramp 120 900 3,700 to

3,580 Marina None 295,000

* Only parking area associated with the named launch ramp included in table.

1.04.2 Early Listening Sessions

Jacobs held eight early listening sessions with key stakeholders between November 2021 and February 2022. The purpose of these listening sessions was to provide a forum for input that would inform design considerations for the launch ramps. Early listening sessions included the following:

• November 16, 2021, Antelope Point Marina Concessionaire at Antelope Point Marina

• November 17, 2021, Utah Department of Transportation (UDOT) and Park at Bullfrog Ferry Ramp and Fire Station

• November 18, 2021, Hite Concessionaire at Hite

• November 22, 2021, Aramark Virtual Session

• December 16, 2021, CUAs (Antelope/ Bullfrog Focused) Virtual Session

• December 16, 2021, CUAs (Hite Focused) Virtual Session

• December 2021, CUAs (Antelope Focused) Virtual Session

• February 1, 2021, Navajo Nation (Antelope Focused) Virtual Session Through all early listening sessions, one resounding theme was echoed: stakeholders are looking for consistent, safe access to the Lake and clear communication of a plan from the Park on how this will be achieved. There are significant economic impacts to businesses without access and concern for what the future might bring. The new Wahweap ramp is a welcome solution for access at South Lake, and the design details (grade and width) are well received, however demand is high, and so additional access points are needed, both in South Lake and North Lake Powell.

Appendix A provides a summary of these conversations.

1.04.3 Design Criteria

In partnership with the Park, and with input from other stakeholders during early listening sessions, Jacobs developed site-specific design criteria to address project needs for the Launch Ramp designs. Key design criteria for the ramps is summarized here, and the full document is provided in Appendix B.

Bullfrog/ Halls Crossing:

Design Water Elevation: 3,700 feet to 3,450 feet

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Ramp Width: 150 feet (5- to 30-foot-wide lanes)

Ramp Grade: 10.5%

Minimum water Depth at end of ramp: 5 feet

Vessel Criteria: Houseboats: 125 feet LOA, 22-foot-wide, 6 feet draft, UDOT Ferry: 155 feet LOA, 50 feet wide, 8 feet draft

Vehicle Criteria: Customized WB-67

Gangways: CSA 46 Boarding Floats and Gangways

Geotechnical: cut and fill slopes of 1:2 (V:H)

Antelope:

Design Water Elevation: 3,700 feet to 3,450 feet

Ramp Width: 150 feet (5- to 30-foot-wide lanes)

Ramp Grade: 10.5%

Minimum water Depth at end of ramp: 5 feet

Vessel Criteria: Houseboats: 125 feet LOA, 22-foot-wide, 6 feet draft, UDOT Ferry: 155 feet LOA, 50-foot-wide, 8 feet draft

Vehicle Criteria: Customized WB-67

Gangways: CSA 46 Boarding Floats and Gangways

Geotechnical: cut slope is 1:1 (V:H) and assumed fill slope is 1:2 (V:H)

Hite:

Design Water Elevation: 3,630 feet to 3,596 feet

Ramp Width: 35 feet

Ramp Grade: 16%

Minimum water Depth at end of ramp: 3.5 feet

Vessel Criteria: small craft

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Vehicle Criteria: AASHTO P-B (passenger vehicle towing boat). Overall vehicle length 42 feet

Gangways: None

Geotechnical: cut and fill slopes of 1:2 (V:H)

Several design criteria have significant influence on the overall cost of the project.

These are identified in Section 2.02 and may be revisited as the project moves to detailed design.

1.04.4 Observed Site Conditions

In November 2021, Jacobs met at GLCA Headquarters in Page, Arizona, with Park staff. This meeting and accompanying site visits provided an understanding of this unique project site and challenges. Appendix C provides photos from these site visits.

General notes and reactions include the following:

Antelope

• Public Ramp is significantly above low water with dramatic rock outcroppings surrounding, Marina ramp is a long pedestrian walk to the water with no boat access, valet ramp is still operating but likely not for long, this ramp has very steep rock cut on either side and is much narrower than other ramps.

• Design for ramp to accommodate concessionaire/valet services for houseboats and public use (small craft and a few houseboats). A consolidated ramp for all uses will need to be wider and may require operational controls to run smoothly.

• Consider keeping public ramp as is and running a spur to side (toward beach) to address low water conditions. Spur connection would have to accommodate houseboat on 18-wheeler being back down from apron at top.

• Team onsite discussed a second ramp for kayakers and pedestrians to come off the parking lot at top of ramp and run in switchback style down along existing grade.

Bullfrog

• A small gravel/asphalt spur off bottom of ramp, constructed and abandoned in 1960s before Lake came up to “full pool,” is now back in use. Asphalt in surprisingly good shape, but does get spongy when wet. Park anticipates the spur will be inaccessible in January 2022.

• Public Ramp goes from approximately 3,700 to 3,580 feet and is high/dry.

• Width is suitable for public use, but would need to be increased to accommodate ferry operations.

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• At Stanton Creek there is a large drainage/inlet area that creates a challenging connection between some of the identified sites. Will require a long utility and roadway run to connect to marina and offer access to ramps. Route that runs closer to water is on higher ground, less wash-outs.

Hall’s Crossing

• Services are far more limited at Hall’s Crossing. Gravel parking lot, mobile/portable

Automatic Identification System and decontamination station.

• Hall’s marina utilities currently strung through segmented floating corridor, running down the rock face from the parking lot to the water. Very steep and long switchback ramp only access from land to marina. Consider this condition closely when evaluating how Bullfrog Marina will be located. How will utilities run in high, intermediate, low water conditions? How will staff access from parking lots? How will materials and fuel be brought in?

• Team is concerned that extension of current public ramp will prove difficult due to shelf at bottom and interaction with road at top. Revisit bathy data.

• Team discussed using old fuel depot location to create a new low water ramp.

• Team discussed ferry ramp may be able to be extended to reach low water point? If so, there would be no need to accommodate ferry at new public ramp.

Hite

• Original concept (portable or prefabricated gangway) in project scope is not suitable, given conditions.

• North Wash was just a graded gravel ramp, which NPS maintained and attempted to keep accessible for kayakers to put-in/take-out. Roughly 18 months ago, during a grading project, the entire ramp fell away (no one was on it at the time) and it’s been unmaintained since then.

• NPS prefers access on the Hite side of the river.

• Appears that ideal location for simple/primitive take-out/put-in may be roughly at same location as previous marina. Ramp can be fairly limited in width, 25 to 50 feet?

Will require small apron for turnaround for trucks with small craft. Consider geogrid?

Consider jetty wall?

• How to address concern about potential ‘silt waterfalls’ forming? This is the issue that stopped NPS from proceeding with a project to put-in a primitive access ramp on the Hite side near the old ramp location.

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Chapter 2 – Site Analysis

2.01 Field Work/Site Surveys

As part of this initial concept phase, Jacobs has identified the following required field work and site surveys.

2.01.1 Topo/Bathymetric Surveying

Accurate topographic and bathymetric surveying is essential to the layout and detailing of the launch ramps. Figure 2 identifies the aerial light detection and ranging (LiDAR) survey areas for the Bullfrog, Halls Crossing, Antelope Point, and Hite Survey Areas.

Figure 2. Bullfrog, Halls Crossing, Antelope Point, and Hite Survey Areas

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The following deliverables list are survey products developed specifically for this project.

The focus of the survey data collection is to define detailed and current elevation data above and below the surface of the Lake. The data were collected between November 1, 2021, and January 28, 2022, and included the following collection methodologies:

• Establish permanent ground control markers for use on all surveys going forward.

• Collect high-density overland aerial LiDAR data from fixed-wing aircraft.

• Collect bathymetric LiDAR data from fixed-wing aircraft.

• Collect high-resolution updated aerial photography from fixed-wing aircraft.

• Collect detailed bathymetric multibeam sonar data from a 24-foot-long boat.

• Fully integrate all sources into single surfaces and imagery mosaics for each of the three ramp locations.

• Tie all data to permanent survey control.

The Lake Powell Topobathymetric LiDAR Report in Appendix D provides greater detail on the fixed-wing aircraft results.

Data Deliverables Lake Powell Survey Specs and Deliverables:

• All deliverables will be in:

– Coordinate System: Universal Transverse Mercator 12N

– Units: U.S. survey feet

– Horizontal Datum: North American Datum of 1983 (2011)

– Vertical Datum: North American Vertical Datum of 1988 (Geoid 18)

Survey and LiDAR:

• Combined topobathymetric Digital Elevation Model: 3-foot cell size, Esri grid

– Includes Multibeam sonar for Antelope and Bullfrog/Halls Crossing

• Highest hit DSM: 3-foot cell size, Esri grid

• Intensity images: 1.5-foot cell size, Geotiff

• 2D water’s edge breaklines (Esri Shapefile)

• Boundary polygons (Esri Shapefile)

• Tile index (if needed – Esri Shapefile)

• Ground survey and monuments as.csv format.

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Imagery:

• 3-inch pixel resolution orthomosaic

• GeoTIFF and compressed ECW formats Following site selection, a detailed, deeper multibeam bathymetric surveying was performed at the Antelope, Bullfrog, and Halls Crossing Launch Ramp sites. The Teledyne Reason T50P multibeam echosounder uses an array of 512 beams with a practical swath of up to 150 degrees, with each beam producing a 1-degree cone, which has a resolution of 6 millimeters. This method of data collection creates a highly densified point cloud with very little interpolation needed. The capture of topography and bathymetry were merged into one surface for ease of use in computer-aided design and geographic information system applications.

Due to dynamic river environment, with significant current and turbidity, bathymetric data collection at Hite is extremely challenging, and the riverbed is continually changing.

Therefore, the data may not reflect current conditions at the time of construction, which is a risk and concern. Similar data collection may be needed at Hite for hydrodynamic modeling; however, this will be confirmed once the Hite site is selected.

All deliverables will be provided to GLCA via external hard drive.

2.01.2 Geotechnical Borings

To develop the design, it is necessary to obtain a detailed profile of the subsurface conditions along the launch ramps. In this regard, a geotechnical investigation has been proposed to investigate the subsurface geotechnical conditions and to supplement the available Glen Canyon soils report.

The drilling should be hollow stem auger in soil (if there is any) and HQ triple tube diamond bit rock coring to approximately 5 feet below the bottom of the boat ramps.

Geological mapping is also recommended to determine the orientation of the rock fractures, joints, and bedding planes.

Geotechnical boring locations have been identified for the concept designs at Bullfrog Option 1, Halls Crossing, Antelope Option 1-3 and Hite Option 1-2; these locations are shown in Appendix E, and Table 2 provides a summary for the proposed boring locations.

Table 2. Geotechnical Boring Locations

Site Boring ID Northing Easting Depth (feet)

Bullfrog Option 1 BH01-22 37.486214 -110.692028 45

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Site Boring ID Northing Easting Depth (feet)

Bullfrog Option 1 BH02-22 37.483572 -110.692336 45

Halls Crossing BH01-22 37.465882 -110.719328 40

Antelope Option 1

BH01-22 36.965788 -111.441907 130

BH02-22 36.964322 -111.441427 130

BH03-22 36.962621 -111.441004 130

Antelope Option 2

BH01-22 36.966185 -111.442238 130

BH02-22 36.964817 -111.442353 120

BH03-22 36.963998 -111.442397 130

Antelope Option 3

BH01-22 36.963489 -111.445072 130

BH02-22 36.964536 -111.444238 90

BH03-22 36.965608 -111.442905 65

Hite Option 1 BH01-22 37.892315 -110.374377 50

Hite Option 2 BH02-22 37.887333 -110.379863 60

2.01.1 Utility Surveys

The Bullfrog Marina may be relocated with the launch ramp to its new location. This would require service from new potable water, sewer, electric, and communication lines.

A utility survey was conducted by Jacobs from February 21 to 25, 2022, to provide necessary information for the utility design. Other launch ramps do not have utility needs identified at this time.

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2.01.2 Archaeological/Cultural Surveys

A preliminary area of potential effects (APE) for Bullfrog improvements has been established. The preliminary APE limits are based on current project design and are buffered by 50 feet on either side of design cut and fill lines and road centerlines. In the next phase of work, construction staging areas will be identified. The final APE needs to incorporate the maximum extent of ground disturbance required for construction.

Museum of Northern Arizona (MNA) has recently completed a survey for the Bullfrog Marina access roads. GLCA staff is currently reviewing the survey and will provide the survey limit shapefiles for overlay against the preliminary APE. This will provide the level of information required to determine whether any new survey is needed for the preliminary APE. There are large gaps in survey coverage, which are expected to be largely rectified based on the extent of the MNA survey.

The MNA survey has identified new cultural resources sites. GLCA cultural resources staff is currently reviewing these sites for the National Register of Historic Places (NRHP) eligibility and will provide that information for overlay against the preliminary

APE.

There may be cultural resources sites that conflict with the proposed Bullfrog Marina access road. Some sites may be recommended eligible for inclusion in the NRHP under Criterion D for its potential to contain significant data.

GLCA will need to receive concurrence from the State Historic Preservation Office on the determination of NRHP eligibility of the newly recorded cultural resources sites and the adequacy of the MNA survey.

It is currently understood by the Jacobs team that some adjustments may need to be made to the roadway alignment to avoid identified cultural resources sites. It is anticipated that these adjustments will be inconsequential to the overall design;

however, this will be closely coordinated as the new survey data becomes available.

2.02 Design Variables

It is understood that the current cost estimates for the concept design are higher than anticipated by the Park; jeopardizing the ability for the projects to move forward as designed. The Jacobs team has identified the following design criteria that may be adjusted in the detailed design phase to reduce costs. These considerations have value tradeoffs and may need to be evaluated in a future Value Analysis workshop. It is noted that while adjustments to the design variables may provide a ‘scalability’ to achieve the project budget, these may compromise the stated functional requirements of meeting the existing level of service provided by the existing infrastructure (detailed in Section 1.03)

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2.02.1 High vs. Low Water Ramps

At Bullfrog, two concept designs have been presented.

1. A combined high- and low-water multiuse ramp that provides access for water elevations ranging from elevation 3,700 to 3,450 feet (proposed Option 1).

Some key advantages to this option are the combined use of all design vessels at all design elevations and providing a location for a permanent marina move.

2. A low-water ramp that provides access for water elevations from 3,580 to 3,450 feet (proposed Option 2P). This ramp design provides the advantage of approximately a 15% cost savings; however, requires moving assets, the marina, and operations as the water level changes from high to low water elevations. For water elevation 3,700 to 3,580 feet, the Park would be required to retreat to the existing public ramp. Hardened infrastructure (road, ramp, and parking) would have to be designed to be left submerged in high water scenarios, while other items such as marina gangways, utilities, and other operational assets would need to be physically relocated back to the historic location.

2.02.2 Design Low Water Elevation

The current design low water elevation for all ramps is 3,450 feet. This is a critical factor to the cost of this project. With current water levels at approximately 3,525 feet, it is anticipated at least 50 feet of water may be present at the time of the construction and significant cut and in-water work will be required to meet this design elevation.

The Bureau of Reclamation projections for future water levels have a wide level of variability, and it is unconfirmed when the chosen design water elevation of 3,450 feet may become a reality, if ever. Therefore, the design criteria for the low water elevation could be modified to a higher elevation. This would reduce construction costs; however, may reduce future accessibility.

2.02.3 Project Phasing

The current water level is approximately elevation 3,525 feet, and timing for projected future water levels is highly variable. There is not an immediate, emergency need to meet the design low water elevation of 3,450 feet. Therefore, the Park may choose to phase the construction of the project to reduce the initial construction cost by reducing the amount of in-water work and delaying expansion of the launch ramp to meet the design water low-water elevation to a future project. Appendix F provides approximated phasing diagrams for the concept design, which illustrate the impact of the water elevation. It is noted these diagrams are provided to illustrate a conceptual approach to construction, this will ultimately be modified based on the chosen design alternatives and design criteria.

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2.02.4 End of Ramp Detailing

Standard design guidelines for launch ramps recommend at minimum the toe of the launch ramp be located 5 feet below the design water elevation and therefore would be located at elevation 3,445 feet. This provides approximately 45 feet of launch space below the design water elevation. This end condition should be further evaluated in detailed design for two governing criteria: safety and use. These both would include a discussion on the potential of including adding additional launch space at the bottom of the ramp for larger vessels, and discussion on the degree of barrier and curb at the toe of the ramp to provide sufficient deterrence from users getting to the edge of the ramp.

2.02.5 Width of Ramps

As it is currently designed, the ramps use five 30-foot-wide lanes for a total of 150 feet of width to meet the stated goals of the project. This width could be evaluated with the Park to introduce operation controls and limit user access to reduce the number of lanes. It is recommended that a 75-foot-wide ramp with one 30-foot-wide lane for large houseboats and ferries, and two 22-foot-wide lanes for general public use be the lower bound for this discussion. The construction cost reduction would be met with increased operational controls needed at the launch ramps.

2.02.6 Geotechnical Conditions

As noted in Section 2.01, a geotechnical boring program is planned in the near term.

This information will inform the allowable side slopes for cut and fill at each site. The concept design currently assumes a 2:1 cut slope at Bullfrog and Halls Crossing, and 1:1 cut slope at Antelope. If these assumptions can be improved to a steeper cut slope, this will reduce costs as the volume of cut and fill material will be reduced. If the cut slope cannot be reduced, the team could also evaluate the introduction of retaining walls at a steeper slope. The construction cost of the retaining walls would be evaluated against the reduced earthwork

2.02.7 Parking

A preliminary parking layout was included in the concept design for Bullfrog for 700,000 square feet of asphalt parking. This layout matches the existing parking in both material and capacity (square footage). Both size and surface material (i.e., gravel) can be evaluated during detailed design.

2.03 Identification of Additional Infrastructure

Excluded from the scope of the concept development was the design of additional infrastructure associated with the proposed launch ramps. The following items have been identified as potential needs and inclusion in detailed design needs to be confirmed:

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2.03.1 Parking

Concept design for Bullfrog detailed a parking lot matching the existing parking in both material and square footage. Other launch ramps do not currently include additional parking. As the launch ramps are much longer than the existing condition, the walk for pedestrians dropping a car and walking to the end of the launch ramp is significantly increased. Therefore, the Park may desire to introduce an “intermediate” parking area at an elevation midway along the launch ramp. The launch ramp would need to be designed to be able to be flooded during high water conditions. The introduction of new parking will increase cost but improve visitor experience.

2.03.2 Utilities

Bullfrog Launch Ramp design includes allowance for potable water, sewer, electric, and communications to serve the existing marina. A utility survey was recently conducted to understand the existing conditions and the results will be used to set design criteria and influence the design for the next phase of work. Jacobs and the Park must work together to identify and confirm the required capacities for the proposed new utilities. It is understood that sewer design will require pump-out capacity for more than 500 houseboats, which will be significant, and likely a higher cost than the allowance initially included in the estimates.

For other concept designs, an allowance for electric and communications were carried in the cost estimates; however, these new utilities may not be needed. This should be confirmed in the detailed design phase.

2.03.3 Visitor Facilities

Visitor facilities, including restrooms, kiosks, clean-out facilities, or wayfinding signs were not included in the concept design phase. If needed, they will need to be identified and detailed in the next phase of work.

2.03.4 Pedestrian Access Paths

Launch ramps were designed assuming pedestrians would access the water by way of the launch ramps. Separate pedestrian access paths were not included in the concept design. If desired, these will need to be identified and detailed in the next phase of work.

2.04 Permitting Requirements

It is anticipated that National Environmental Policy Act (NEPA) for Bullfrog may require an Environmental Assessment (EA) while the other sites would be anticipated as Categorical Exclusions (CE). This evaluation is pending further resource surveys and evaluation by the Park and is subject to change.

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This NEPA timeline is anticipated to include the following checkpoints. The final checkpoint, a signed Finding of No Significant Impact is required for contractor mobilization and construction.

• Continued civic engagement and agency outreach

• Project website launch

• Public and agency scoping meeting (can be combined or separate meetings)

• Public meetings summary draft

• Public comment documentation

• Preparation and submission of permits for agency reviews

• Notice of availability and distribution of EA

• 30-day public comment period

• Public hearing (alongside virtual public room launch if needed)

• Additional public meetings (if needed)

• Final EA (if needed) and signed Finding of No Significant Impact

An NPS Permitting Assessment Form has been prepared and is provided in Appendix G. The Permitting Assessment Form identifies specific actions to be addressed early in the next phase of work.

• Perform field visit and prepare Biological Assessment to confirm listed species and protected and critical habitat.

• Coordinate with U.S. Army Corps of Engineers to confirm if project requires individual permit or nationwide permit for Section 404 of the Clean Water Act. A Water Quality Certification (Section 401) will be required as part of this.

• Determine if there are permits or easements associated with Utah Department of Transportation ferry service.

2.04.1 Communications Strategy

A Communications Strategy was developed for the project and provided to the Park on December 20, 2021. The strategy includes the follow stated objectives to guide project communications both inside and outside of the NEPA process:

• Establish early and continuous public participation opportunities that provide timely information about issues and decision-making processes to all interested parties.

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• Provide opportunities for interactive and frequent participation with public access to educational, technical, and policy information to enhance the public’s knowledge and ability to participate in the development of the study.

• Provide reasonable public access via a multitude of information-sharing platforms, including in-person and electronic methods, to educational, technical, and policy information to enhance the public’s knowledge and ability to participate in the development of the study.

• Provide adequate public notice of participation opportunities during the development of the study, and time for public review and comment at key decision points in the planning and design process.

• Ensure that public participation opportunities are held at convenient and accessible locations and times (in compliance with the Americans with Disabilities Act of 1990).

• Make information accessible with visualization techniques, and available in appropriate electronically accessible formats and means, via the NPS website, technology-enabled media, and video teleconferencing.

• Include measures for seeking input from and considering the needs of those traditionally underserved as defined in Title VI of the Civil Rights Act of 1964, such as low-income, minority, and non-English-speaking households who may face challenges accessing employment and other services.

• Develop a unified message to ensure that stakeholders are receiving a clear and consistent message about the study from all partners.

• Provide a contact to listen, acknowledge, and respond promptly to public questions and issues.

• Manage expectations and promote long-term benefits.

• Build upon NPS’s reputation as a transparent, credible agency and a good partner to the community.

2.04.2 Purpose and Need for the Proposed Action at Bullfrog

While formal a NEPA process has not been initiated, a preliminary purpose and need for the project has been drafted and provided. Further refinement will be necessary following additional civic engagement and project development.

GLCA, comprised of more than 1.25 million acres from Lees Ferry in Arizona to the Orange Cliffs in southern Utah, was designated by Congress in 1972 (Public Law 92- 593). Per the enabling legislation, GLCA was established “…to provide for public outdoor recreation use and enjoyment of Lake Powell and lands adjacent thereto in the States of Arizona and Utah and to preserve scenic, scientific, and historic features contributing to public enjoyment of the area.” There are currently four marinas on Lake Powell. These include two in Arizona, Wahweap Marina (approximately 5.5 miles from

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Glen Canyon Dam) and Antelope Point Marina (approximately 5 miles upstream from Glen Canyon Dam), and two in Utah, Halls Crossing (approximately 95 miles upstream from Glen Canyon Dam) and Bullfrog (approximately 95 miles upstream from Glen Canyon Dam across the Lake from Halls Crossing). Dangling Rope marina was also recently closed due to natural conditions. Hite public launch ramp has not been usable for several years due to low water conditions.. The Charles Hall Ferry is out of service due to low water. The route crossed Lake Powell between Hall’s Crossing and Bullfrog that used to provide a means for cars, trucks, and recreational vehicles to cross Lake Powell and served as a continuation of Utah Route 276.

Persistent drought in recent years has lowered the water level of Lake Powell significantly. Without surplus water deliveries, the water elevation at Lake Powell can drop as much as 30 feet a year. The Lake elevation in December 2021 was 3,533 feet,1 and the Bureau of Reclamation projects it to drop as low as 3,519 feet by December

2022.2 These vertical drops in-water elevation translate into hundreds of feet of horizontal movement in the water's edge below its current location. As of 7/25/2022, only the Wahweap Stateline Auxiliary boat ramp remains open to houseboats, and all other locations are inoperable or only available to small, motorized vessels. As water levels fluctuate, some ramps are open for short period of times and then closed as water falls again, leading to an unpredictable visitor experience and difficult operations and communications for the Park to manage. As ramps become inoperable, recreational users are accessing the Lake in undeveloped locations, which presents safety issues as well as impacts to natural and cultural resources.

The Bullfrog Marina is the closest of the five marinas to the Salt Lake City metropolitan area, and is in the unincorporated community of Bullfrog, Kane County, Utah. In addition, the ferry ramp is closed, and ferry services have been discontinued. The marina is open as of July 25, 2022; however, as water levels continue to drop, the water depth is becoming insufficient for some vessels to safely navigate at the marina.

The purpose of the project is to explore options to restore safe motorized boat access and use of recreational facilities at the Bullfrog boat launch and marina, potentially restore ferry service, and protect natural and cultural resources. This is needed to support access for a wide variety of users, including recreationalists, concessionaires, tour operations, and houseboat rentals; to maintain services, including NPS management activities, on-Lake emergency services, the movement of supplies and goods; and to restore the interconnection of the state road network. NPS is evaluating options to relocate the Bullfrog Marina and construct a multipurpose boat ramp in the

1 Summit Technologies, Inc. 2022. Lake Powell Water Database. http://lakepowell.water-data.com/.

2 Bureau of Reclamation. 2022. January 2022 24-Month Study Projections Lake Powell and Lake Mead: End of Month Elevation Charts. https://www.usbr.gov/uc/water/crsp/studies/images/PowellElevations.pdf.

http://lakepowell.water-data.com/ https://www.usbr.gov/uc/water/crsp/studies/images/PowellElevations.pdf

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Chapter 3 – Schedule

3.01 Design-Build Procurement Schedule

Due to the emergency need for the Bullfrog Launch Ramp, NPS has decided to pursue a Design-Build contract for design and construction at this site. For this, Jacobs is proposing the following estimated key milestone deadlines.

1. Conduct Geotechnical Borings

2. Notice to Proceed for Engineering Services to Conduct Schematic Design and

Design-Build Request for Proposal

3. Option Evaluation Memo – 2 weeks

4. 30% Design Plans Specifications & Estimate (PS&E) submittal (Schematic

Design) – 90 days from NTP

5. Final Design-Build Request for Proposal – 100 days from NTP

6. Contractor Procurement – 4 months

It is noted this schedule is for the development of the Bullfrog Launch Ramp, access road, and parking.