Preserving National Historic Trail Settings Advancing the Principles of BLM Manual 6280

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1 Preserving National Historic Trail Settings Advancing the Principles of BLM Manual 6280 National Historic Trails Workshop Jeremy Call and Craig Johnson Logan Simpson Design October 2014

2 NTS Experience Field Inventories BLM ARRA NHT Inventories (640 miles, 6 NHTs in AZ, CA, CO, NM, NV, UT, WY) Manual 6280 BLM Trainings, UT CDNST Inventory, WY El Camino de Tierra Adentro NHT Inventory and Analysis Impact Evaluations and NEPA Boardman-Hemmingway (Oregon Trail) Inventory/EIS, ID and OR Chokecherry-Sierra Madre EIS and EAs (Cherokee, Overland, and CDNST), WY Feasibility Studies 4 Trails Feasibility Study/EA Butterfield Overland Trail Special Resource Study/Environmental Assessment Resource Management and Recreation Planning Nobles (California) Trail Inventory, Management, Interpretive Plan, CA California Trail Management Plan, NV Cultural Landscapes Mormon Handcart Sites CLR (4 Trails in WY) Cove Fort CLR (Old Spanish Trail), UT Blanket Agreement with all DOI Agencies for Settings

3 National Trails System Manual Series

4 Key 6280 Setting Policies Strengths Applies to the Largest Land Manager Nature and Purposes Multi-Disciplinary Integrated Inventories with Consistent Documentation Outcome National Trail ROWs & National Trail Management Corridors (Land Use Planning & RMPs) NEPA Improved Management Opportunities for Advancement Overcoming BLM-centricity Clear and Consistent Definitions and Criteria Multi-Lingual Leaders Needed Consistent Methodologies Needed Combining Inventory Results Methodologies and Handbooks Establishing the Corridor/ROW Timeframe Complicated and lengthy sections Approach as Manual 6280 Compliance? Need both Section 106 and Setting Data What Constitutes Significant Impact? More Formal Protections Needed Substantial Interference and Avoidance of Incompatible Activities?

5 Segments Managed by BLM

6 Feds are the Largest Single Landowners Working with Multiple Managing Agencies, Regulations Expanding BLM-centric 6280 documents Need for Enhanced Data Accessibility: BLM NHT Portal

7 Nature and Purposes character, characteristics, and congressional intent for a designated National Trail including the resources, qualities, values, and associated settings of the areas through which such trails may pass; the primary use or uses of a National Trail; and activities promoting the preservation of, public access to, travel within, and enjoyment and appreciation of National Trails Other uses along the trail, which will not substantially interfere with the nature and purposes of the trail, may be permitted by the Secretary responsible for administration of the trail. Reasonable efforts shall be made to provide sufficient access opportunities to such trails and, to the extent practicable, efforts shall be made to avoid activities incompatible with the purpose for which such trails were established. NTSA Sec. 7(c). BLM s Responsibilities Safeguard the Nature and Purposes Protect values Identify, determine, and describe the Nature and Purposes

8 Nature and Purposes What makes a proposed project substantially interfere with an NHT? What criteria can consistently be used to determine a proposed project s incompatibility with the Nature and Purpose of an NHT? Extent? Magnitude? Duration? Intensity?

9 (Scenic + Cultural + Recreation + Natural Resource) * Purpose High Potential National Historic Trail Segments offer visitors a high quality recreation experience in a portion of the route having greater than average scenic values or affording an opportunity to vicariously share the experience of the original users of an historic route. Multi-Disciplinary Approach

10 To make informed decisions regarding proposed uses within National Trail areas To identify opportunities to safeguard the nature and purposes of National Trails To allocate the resources, qualities, values, and associated settings and the primary use or uses of the trail during land use planning (NTSA and FLPMA). To establish a National Trail Management Corridor through the land use planning process. To identify the area of potential adverse impact for proposed actions, until such time as a National Trail Management Corridor is established. To recommend possible Federal Protection Components (high potential historic sites and high potential route segments) for inclusion within updates to the trailwide Comprehensive Plan. Integrated Inventories with Consistent Documentation

11 Establish an Inventory Unit Historical Records Review Trail Verification Cultural Resources Pedestrian Survey, Reports, Photos, Site Forms, and Condition Assessments Visual Resource Inventory Geodatabase, Viewshed Analyses + Photography Historic and Cultural Setting Inventory Natural, Biological, Geological, + Scientific Resources Inventory Recreation and Travel Inventory Natural Resources Primary Uses Visual Resources Historic and Cultural Resources and Settings Integrated Inventories with Consistent Documentation

12 All trail data and data collection, including maps, shall comply with National Trail policy; resource program policy, requirements, and standards; Federal Trail Data Standards (FTDS); related national geospatial standards; route inventory standards; and other data management policies, including those addressing sensitive cultural resources data. Conduct uniform mapping through an approved database to manage and track National Trail information. The mapping and database shall document National Trail attributes and/or the resources, qualities, values, and associated settings, and primary use or uses - Manual 6250, 1.8 Data Standards and Management Integrated Inventories with Consistent Documentation

13 1. Scenic Setting BLM Visual Resource Management Inventory Observation Points Scenic Quality, Sensitivity Levels, Distance Zones, Visibility Evaluation Scenic and Historic Integrity Setting Inventories 2. Historic and Cultural Setting 3. Recreation Setting 4. Natural (incl. Biological, Geological, and Scientific) Setting Integrated Inventories with Consistent Documentation

14 Establish Inventory Observation Points At existing recreation use areas, access points, trailheads, pullouts At natural features such as overlooks, natural topographic breaks, major landforms, and changes in landscape form. At areas with sensitive resources, qualities, values, and associated settings National Trail-related National Register eligible and listed properties Significant trail-related features such as river crossings, graves, inscription sites High potential historic sites and high potential route segments Auto tour routes, and Trails that facilitate public access and opportunities for vicarious experiences Integrated Inventories with Consistent Documentation

15 Requires Scenic Quality Units and Ratings Lander Field Office

16 Requires Sensitivity Level Units and Ratings Lander Field Office

17 Requires Trail Visibility Models GIS viewshed analyses at different heights Ground Level 20 feet 100 feet 400 feet Integrated Inventories with Consistent Documentation

18 Comparative Photography for Integrity Assessments

19 Historic Setting Integrity Inventory Observation Point Documentation Bear Mountain contributing Sagebrush vegetation non-contributing compatible Lonely Hill contributing 0 (N) Smith Plateau contributing State Route 4 non-contributing incompatible Salty Ridge contributing Characteristic Type Natural Feature Name Location Date Contrib. status Description Bear Mountain Big Spring IOP 3, NW Circulation State Route 4 Big Spring IOP 3, NE NA C Key landmark noted by many travelers between , signified approach to continental divide 1960s NC incompatible Asphalt road crossing trail alignment Vegetation Sagebrush vegetation community Big Spring IOP 3, All Post NC compatible Sagebrush vegetation was not present during period of significance, when grasses were documented in this area, but is compatible with historic scene Integrated Inventories with Consistent Documentation

20 6280 Prescribes Outcomes not Methods Who determines appropriate methods? Who approves an inventory/assessment? Interagency Handbook for Inventorying and Assessing NHTs? Integrated Inventories with Consistent Documentation

21 Recreation Natural Resources Historic and Cultural Resources and Settings Scenic Resources Combine the results of the National Trail inventory and assess the quality, condition, presence, and extent of the National Trail resources, qualities, values, and associated settings individually and cumulatively Integrated Inventory Findings

22 Establish an Analysis Unit for Sites or Segments Lander Field Office

23 Establishing a Management Corridor area of sufficient width within which to encompass National Trail resources, qualities, values, and associated settings and the primary trail use or uses Extent? Give + Take? Complimentary Resource Allocations? Lander Field Office Land Use Planning & RMPs

24 Establishing a Management Corridor Land Use Planning & RMPs

25 Trailwide Comprehensive Plans and RMPs o Provide Trail-wide leadership o Identify the nature and purposes o Establish goals and objectives o Establish a National Trail Right-of-Way / Management Corridor o Establish program guidelines for interpretation, signs, acquisition, maintenance, certification o Determine allowable uses, management actions, and necessary restrictions Land Use Planning & RMPs

26 Improved Management RMPs and NEPA require stand-alone National Trail sections Recognizes contributions of trail groups, and encourages and assists involvement Interagency cooperation, willing landowners, interested parties Area of Potential Adverse Impact o Management Corridor Established - Corridor o No Corridor Management Established Viewshed Adverse impacts and mitigation

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28 Next Steps Homework Complete integrated inventories Share inventory information between trail administrator/manager + user groups Determine best practices for inventorying and assessing national trails Get and stay involved in trailwide Comprehensive Plans, RMPs, NEPA and ongoing Feasibility Studies Make new paths in protecting and manage national trails