Snake River through Jackson Hole
DRAFT River Management Plan
This DRAFT PLAN considers a range of management alternatives; it does not specify a single preferred alternative. After public comment, a FINAL PLAN will specify a preferred alternative which may combine elements of the draft alternatives presented here. Prepared by
Doug Whittaker and Bo Shelby Confluence Research and Consulting Prepared for
Teton County, Wyoming March 2014
Table of Contents 1. Introduction ...................................................................................................................... 1 2. Planning process ................................................................................................................ 3 3. Plan objectives .................................................................................................................. 6 4. Recreation and resource values ......................................................................................... 7 Moose to Wilson ......................................................................................................................... 7 Wilson to South Park ................................................................................................................... 9 South Park to Astoria ................................................................................................................ 11 5. Issues .............................................................................................................................. 12 Crowding, congestion, and development at access areas ........................................................ 12 On-river social impacts .............................................................................................................. 12 Types of use and user conflicts ................................................................................................. 12 Signs of use and biophysical impacts ........................................................................................ 12 Capacities and commercial use management .......................................................................... 12 6. Alternatives ..................................................................................................................... 13 Alternative Themes ................................................................................................................... 14 Allowable Uses .......................................................................................................................... 15 Motorized use ........................................................................................................................ 15 Types of non-motorized craft ................................................................................................ 15 Invasive species regulations for watercraft ........................................................................... 16 Acceptable day use activities on public land ......................................................................... 16 Camping on public lands........................................................................................................ 18 Access and recreation facility development ............................................................................. 19 Wilson (BLM Parcel 13).......................................................................................................... 19 Existing facilities ................................................................................................................. 20 Impacts and issues ............................................................................................................. 20 Proposed improvements ................................................................................................... 21
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South Park.............................................................................................................................. 22 Existing facilities (river left)................................................................................................ 22 Impacts and issues ............................................................................................................. 23 Table 8. Proposed new development for South Park common to all alternatives ........... 23 Parcel 23 ................................................................................................................................ 25 Existing facilities and use ................................................................................................... 25 Impacts and issues ............................................................................................................. 25 Potential development and use changes........................................................................... 26 Capacities .................................................................................................................................. 27 Capacity background ............................................................................................................. 27 Issues that capacities address on the Snake River ................................................................ 27 Capacities in this plan ............................................................................................................ 28 Moose to Wilson Capacities .................................................................................................. 30 Wilson to South Park capacities ............................................................................................ 32 South Park to Astoria Capacities ........................................................................................... 34 Implementing capacities and 2014 Monitoring .................................................................... 35 Commercial use management .................................................................................................. 36 Definitions.............................................................................................................................. 36 Certification ........................................................................................................................... 37 Criteria for evaluating allocation decisions ........................................................................... 40 Allocation options .................................................................................................................. 40 Option A – Traditional Permits .......................................................................................... 41 Option B – Common Pool Reservations ............................................................................. 44 Option C – “Even mix” of traditional and common pool systems ..................................... 47 Option D – “Weighted mix” of traditional and common pool systems ............................. 48 Initial distributions of traditional permits (For Options A, C, and D) .................................... 49 Equal shares ....................................................................................................................... 49 Proportional to recent use ................................................................................................. 49 Bid/prospectus ................................................................................................................... 50
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Lotteries: Considered but rejected option ........................................................................ 51 Summary of four allocation options ...................................................................................... 52 Commercial use fees.............................................................................................................. 53 Commercial launches and camps on private land ................................................................. 55 Private use management .......................................................................................................... 56 Group size limits .................................................................................................................... 56 Dog policies............................................................................................................................ 56 Private use fees...................................................................................................................... 56 Other river management programs .......................................................................................... 57 Signs of use impacts and “Leave No Trace” education ......................................................... 57 River patrols and compliance checks .................................................................................... 58 Monitoring ecological conditions .......................................................................................... 59
Appendix A: Use information .............................................................................................. 61 Sources and Methods................................................................................................................ 61 Findings ..................................................................................................................................... 63 Overall use trends: Wilson to South Park ............................................................................. 63 Segment Differences ............................................................................................................. 63 Moose to Wilson Summary ................................................................................................... 64 Wilson to South Park ............................................................................................................. 65 Other information from 2001 BLM counts ............................................................................ 68 Other information from County Counts 2012 ....................................................................... 69 Other information from County Counts 2013 – Wilson ........................................................ 70 Other information from County Counts 2013 – South Park.................................................. 71 Appendix B: Estimated river miles ...................................................................................... 72 Appendix C: Floodplain / channel width estimates .............................................................. 73
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Snake River through Jackson Hole • Draft River Management Plan
1. Introduction The Snake River through Jackson Hole in Teton County, Wyoming refers to the roughly 35 miles of river between Grand Teton National Park and Bridger-Teton National Forest from Moose to Astoria (see Figure 1). The river offers residents and visitors outstanding opportunities for boating, fishing, and riverside recreation, with spectacular views of the Teton and Gros Ventre mountain ranges. The river flows through private land in most of this corridor, but there are parcels of public land managed by the County, State, and BLM. Several BLM parcels, including boating access at Wilson and South Park, are being transferred to Teton County. With increasing and largely unregulated recreation use, Teton County has recognized the need for a management plan to address use and potential impacts on the river and adjacent public lands. This plan considers different ways to manage recreation access, facilities, and public use to protect or enhance the quality of recreation opportunities and other resource values in the corridor. This Draft River Management Plan is part of a larger planning process that includes a review of existing information, field work, interviews with experienced users and stakeholders, and public meetings with County Commissioners and staff. The planning process will include additional public comment before a final plan is considered for adoption by the Commissioners. The Draft Plan includes a range of alternatives, but does not identify a preferred alternative. Instead, it is designed to help the Commissioners, stakeholders, and the public assess a range of management options and their consequences.
Moose
Grand Teton National Park
National Elk Refuge
Wilson
Jackson Bridger-Teton National Forest
South Park
Bridger-Teton National Forest
Astoria Figure 1. Map of Snake River through Jackson Hole.
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Snake River through Jackson Hole • Draft River Management Plan
Purpose and need Recreation use of the Snake River through Jackson Hole is largely unmanaged. Although Grand Teton National Park (GTNP) and Bridger-Teton National Forest (BTNF) manage use on adjacent National Wild and Scenic River (WSR) segments, and the Bureau of Land Management (BLM) and State of Wyoming have developed access facilities at Wilson and South Park, management between the WSR designations has focused on site-specific facilities rather than types and amounts of use or the quality of recreation opportunities. Recreation use on the river has also increased over the past two decades, with larger increases occurring among commercial scenic rafting and guided fishing trips (see discussion in Appendix A). Commercial use is also unregulated; although most outfitters and guides appear to operate professional-quality trips, there are no requirements that ensure this. Users, stakeholders, and Teton County have recognized these management deficiencies. With BLM transferring management of several parcels to the County, the State of Wyoming providing funds to develop access and recreation facilities at South Park, and GTNP and BTNF completing plans for adjacent WSR segments, the time is ripe to develop an overall vision and management priorities for the Snake River through Jackson Hole. Teton County has funded this planning process to review management options and develop a plan for consideration by Commissioners, stakeholders, and the public. The purpose of the plan is to manage recreation access, facilities, and public use to protect or enhance the quality of recreation opportunities and other resource values in the corridor.
Planning area The plan addresses river recreation use on the Snake River between the designated WSR segments managed by GTNP and BTNF. Technically, the Snake River through Jackson Hole begins one mile downstream of Moose Bridge and ends at the confluence of the Snake and the Hoback rivers. Practically, users don’t access the river at these boundaries, so the plan considers use from Moose (the first access upstream of the upper boundary) to Astoria (the first access downstream of the lower boundary). The planning area focuses on the river and adjacent public lands, but considers use that occurs on or originates from private land, as well as potential conflicts between recreation uses and private landowners in the river corridor. The corridor generally refers to the active floodplain, often defined as the area “between the levees” (when levees are present). The planning area has been further divided into three segments based on access, use levels, and character of the corridor:
Moose to Wilson (14.3 miles)
Wilson to South Park (13.2 miles)
South Park to Astoria (8.4 miles)
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Snake River through Jackson Hole • Draft River Management Plan
2. Planning process This Draft River Management Plan (Draft Plan) was developed by Confluence Research and Consulting (Confluence) for Teton County as part of a larger planning process that has evolved since its start in June 2013. Major steps are described below, ordered chronologically, including some steps that will occur after this Draft Plan is released. Planning is also iterative, and some steps will be re-visited throughout the planning process. This section ends with a short discussion of plan limitations.
Defining issues This step involved learning about the river and recreation use, then defining the issues the plan would address. It was developed from an afternoon panel discussion at the June 2013 Summit on the Snake, fieldwork by Confluence, reviews of existing information, and over 30 interviews with experienced users, landowners, outfitters and guides, resource staff, or others with knowledge of the river. This step included analyses of use data from several different sources (see Appendix A). A Summary of Issues was prepared by Confluence for Commissioners to consider in August 2013; it is briefly summarized below.
Developing and narrowing the range of alternatives This step involved interactive decision-making with Teton County Commissioners at two meetings in December 2013 and January 2014. Confluence attended the meetings via video conference; the public was invited and about 25 to 35 people attended each. During the meetings, Confluence described over fifty potential issues the plan could address, suggested ranges of management options for each, and asked Commissioners for additional guidance about these topics and the scope of the plan.
Draft Plan – no preferred alternative This step summarizes the purpose and need for the plan, the planning area, river recreation resources by segment, several potential management actions (including capacities) organized into four general alternatives, and other management options available under any of the alternatives. The Draft Plan does not specify a preferred alternative; the four alternatives are intended to present a range of choices for Commissioners, stakeholders, and the public to consider. For a few topics, however, management actions are “common to all” alternatives. The Draft Plan is being released for public review in late February 2014.
Public comment on Draft Plan Public and stakeholders will be invited to review the Draft Plan for at least a month in spring 2014.
The Draft Plan and a shorter Overview document will be released at the start of this period. A cover letter will briefly describe how the plan is organized and how the public can submit their comments.
A public workshop and a County Commissioner meeting focused on the plan will be scheduled toward the end of the comment period in mid-April (Bo Shelby and Doug Whittaker from Confluence will attend in person). Details of these meetings (times, dates, and agendas) will be posted at http://www.tetonparksandrec.org/news/snake-river-blm-land-transfer-project . At least one
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Snake River through Jackson Hole • Draft River Management Plan meeting will allow for interactive discussions about content in the plan, and elicit further stakeholder or public comment.
Comments on the Draft Plan also will be accepted in writing or through an online comment form; the online comment form will be developed by Confluence and accessible through the previously mentioned website.
Public comment will be summarized by Confluence in a short document after the period ends.
Proposed Final Plan – describing the preferred alternative This step involves developing the Proposed Final Plan based on public comment and commissioner decisions. The Final Plan will identify the preferred alternative (which may be one or a blend of alternatives from the four presented in the Draft Plan) and decisions about other options available for any alternative). The Proposed Final Plan is anticipated in early summer 2014.
Public comment on Proposed Final Plan Public and stakeholders will be invited to review the Proposed Final Plan in summer 2014. Comments on the Proposed Final Plan will be accepted in writing or through an online comment form.
Use monitoring in 2014 Several management actions considered in this Draft Plan depend on accurate information about use. Although recent river use counts have proven helpful, more accurate measures (particularly of commercial use) are needed to assess final capacities and effectively implement the plan. A potential commercial use registration program could address this need in 2014, and is described in the Draft Plan.
Final Plan adoption for the 2015 season After consideration of use monitoring and public comment on the Proposed Final Plan, commissioners will adopt a Final Plan. This is anticipated in fall of 2014, allowing implementation starting in 2015.
Implementing the plan and adaptive management The plan considers several different types of decisions. While some can be implemented immediately upon adoption of the plan, others may require phased development, additional planning, due process (e.g., adoption of new regulations or ordinances), or additional funding. As actions are discussed, the plan identifies those which require additional steps before implementation. Commissioners may choose to defer some management decisions until a later time. Reasons may include the need for additional resource/monitoring information, public comment, or prioritized actions that require a “wait and see” approach. The plan includes monitoring and adaptive management elements so the County can adjust decisions as needed.
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Snake River through Jackson Hole • Draft River Management Plan
Other planning assumptions This plan describes management intentions and initiatives for Teton County to consider. It is not intended to modify existing management actions, regulations, ordinances, or laws adopted by other managing agencies on adjacent lands or with overlapping jurisdictions. In general, existing management programs (e.g., State of Wyoming fish, game, exotic species, and motorized regulations; County wildlife ordinances) were treated as baseline assumptions during planning. The plan is also intended to work in concert with WSR plans for the adjacent designated river segments in GTNP and BTNF, and assumes existing park and forest commercial use capacities remain the same as river or related commercial use plans are finalized. Planning assumed existing land ownership patterns for the river, which includes a mix of public and private lands within or adjacent to the river corridor. The plan does not comment on the extent of private land ownership into the active floodplain, which apparently varies for different individual properties due to case law or settlement agreements that occurred in the 1970s and 1980s (ERO, 2008). The Plan does consider actions to address potential conflicts between river users and adjacent riparian landowners. BLM and the County are engaged in discussions about transferring several BLM parcels (or management responsibilities for them) to the County. Planning assumed these parcels remain public lands available for recreation, open space, and wildlife habitat as specified in BLM’s Snake River Resource Management Plan (BLM, 2004) and Snake River Corridor Management/Ownership Transfer Plan (ERO, 2008). The plan is designed to be complementary to the County-BLM transfer process, which may include additional management prescriptions for individual parcels.
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Snake River through Jackson Hole • Draft River Management Plan
3. Plan objectives Comprehensive plans typically include objectives that provide overall direction. Confluence has developed the following list after reviewing other river plans and considering the values expressed by Commissioners, stakeholders, or the public for the Snake River through Jackson Hole.
Provide a diversity of high quality river recreation opportunities.
Develop appropriate facilities to provide for recreation use of the river.
Ensure that recreation development is consistent with the river’s natural setting, scenery, and recreation opportunities.
Establish capacities that protect high quality recreation opportunities.
Minimize conflicts between different types of recreation uses.
Minimize congestion and conflict at boat launches and other public use areas.
Manage commercial use to provide a diversity of high quality opportunities.
Allocate commercial use fairly and within capacities to provide for trip diversity, competition, new entries, and to maintain public resource values.
Develop a patrol/enforcement presence that protects resource values, enhances river stewardship, and promotes public safety.
Develop fee programs to help support management of the Snake River in Jackson Hole.
Maintain positive relationships with private landowners and seek collaborative ways to meet the interests of landowners and river users.
Work cooperatively with local, county, state, and federal agencies/departments to support their programs and achieve this plan’s objectives.
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Snake River through Jackson Hole • Draft River Management Plan
4. Recreation and resource values Moose to Wilson
Moose
The segment from Moose to Wilson is about 14.4 miles (following the main channel as it meanders through the floodplain). A “line” following the middle of the floodplain is about 13 miles long.
W&S boundary RM 1.2
Grand Teton National Park
The river drops about 20 feet per mile with fast Class I water; sweepers and some braids produce Class II riffles or waves.
Parcel 3 RM 6.4
The braided channel meanders across a wide floodplain that is often constrained by levees that protect private property from flooding. Levees run along both sides of the river for most of the segment below the GTNP boundary.
Most use is boating-based and focused on fishing or scenic floating.
Fishing generally occurs from boats, but some anglers wade or fish from the bank.
Grand Teton National Park
Parcel 6 RM 7.8
Parcel 7 RM 10.2 Gros Ventre Confluence RM 10.3
National Elk Refuge
Commercial fishing trips are typically 5-7 hours (full day trips), but some outfitters offer half day trips. Scenic float trips take about two to three hours.
Commercial trips with permits from Figure 2. Moose to Wilson GTNP originate from Moose, although others start from private land (e.g., Upper Snake River Ranch about RM 8.5). Most trips take out at Wilson launch, although some continue downstream to South Park or private take-outs (e.g., Lower Snake River Ranch about RM 21.5).
Grand Teton National Park manages commercial use with daily, weekly, and monthly limits and percent-of-gross fees. The park charges private boaters a fee to boat in the park.
There is little public land after the river leaves the Park boundary (east side until about RM 2.5; west side about RM 6.4). There are a few BLM parcels in the floodplain, but few boaters appear to use them. If boaters stop, they tend to do so “between the levees” to avoid conflicts with landowners.
The river supports outstanding fish and wildlife. Wyoming Game and Fish estimated nearly 700 cutthroat trout per mile in 2013, higher than the long term average of about 500 fish per mile. Bald
Wilson RM 14.4
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Snake River through Jackson Hole • Draft River Management Plan eagle habitat supports resident and migratory bald eagles; there are several active nests in the reach. Other species present in the corridor include elk, mule deer, moose, black bear, river otters, mink, muskrat, beaver, trumpeter swans, herons, ducks, teal, bufflehead, mergansers, osprey, hawks, and several varieties of songbirds.
There is a cluster of public lands and existing or planned recreation facilities near Wilson Bridge, including: a new Pathways footbridge across the river, new recreation facilities at Rendezvous Park, improvements at Emily’s Pond Park, and improvements at Wilson Launch.
Use is considerably lower on this reach than for Wilson to South Park.
Use information from GTNP and outfitters who use private land launches downstream suggest an average of 20 commercial boats per day (about half fish and half scenic), with peaks near 30, in the highest use periods. On average, private use appears to average about 5 boats per day, but may peak about 15 boats on some days.
Taken together, the reach averages about 25 boats per day, and may peak near 45, in the highest use periods.
Commercial fishing use is higher in Aug and Sep, while commercial scenic use peaks in July and early August.
Information from GTNP shows that use has varied between 2009 and 2012, but the latest year had the highest levels.
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Snake River through Jackson Hole • Draft River Management Plan
Wilson to South Park
The segment from Wilson to South Park is 13.2 miles (following the main channel as it meanders through the floodplain). A line following the middle of the floodplain is about 12 miles long.
The river drops about 16 feet per mile with Class I water; sweepers and braids sometimes produce Class II riffles or waves.
The channel is less braided than Moose to Wilson, but still meanders across a wide floodplain.
Levees along most of the segment constrain the channel to protect private property from flooding.
Most use is boating-based and focused on fishing or scenic floating.
Fishing generally occurs from boats, but some anglers wade or fish from the bank.
Commercial fishing trips are typically 5-7 hours (full day trips), but some outfitters offer half day trips. Scenic floating trips take about two to three hours.
Commercial trips generally originate from Wilson, but a few launch from private land (e.g., Lower Snake River Ranch about RM 21.5). Most trips take out at South Park, although some continue downstream to private land or the BTNF launch at Astoria.
There has been no history of commercial use management; anyone can offer trips and there are no fees or permits. The Snake River Fund has collected voluntary fees from most outfitters ($1 per person) used to manage access sites, minimize ramp congestion, and maintain facilities. [Note: Commercial use management terms are defined in the section on allocation starting page 52].
There is little public land, with the exception of BLM parcels and the launch areas on either end. Few boaters appear to stop at public land parcels, although some use beaches and islands “between the levees” to avoid conflicts with landowners.
One exception is BLM Parcel 23, which has seen increased use, including car-based camping, boatbased camping, and outfitter access.
There are two private camps/picnic areas; both are located on Snake River Ranch. One outfitter uses a picnic site that is visible from the main channel about RM 21.3; another outfitter has a camp/picnic area about RM 21.6, located on a backwater slough that is screened from the river.
Figure 3. Wilson to South Park.
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Snake River through Jackson Hole • Draft River Management Plan
As with the segment upstream, Wilson to South Park supports outstanding fish and wildlife. The river corridor supports resident and migratory bald eagles, with 10 occupied nests in 2013 (six of which produced young). Other species present in the corridor include elk, mule and white-tailed deer, moose, river otters, mink, muskrat, beaver, trumpeter swans, herons, ducks, teal, bufflehead, mergansers, osprey, hawks, and several varieties of songbirds.
South Park is slated for major development. Wyoming Game and Fish provided grant funding to develop access and recreation facilities on river right site and shift use off leased private land on river left (see details below).
Use is considerably higher on this reach than for Moose to Wilson, but lower than the whitewater reach in BTNF.
Use information from SRF counts from 2010-2013 suggest an average about 100 commercial boats per day (about 70 scenic and 30 fish), although regular peaks may exceed 130 boats per day (about 90 scenic and 40 fish). On the very highest use days, there may be as many as 150 commercial boats per day.
On average, private use averages about 50 boats per day, with peaks near 70, in the highest use periods.
Taken together, the reach averages about 150 boats per day, with peaks over 200, in the highest use periods.
Over the entire Jul-Sep period, about 60% of all boats are on scenic trips, while 40% are on fishing trips. However, this proportion shifts towards higher fishing use in August and September. In July, only 25% of all boats are fishing trips, but in September, nearly half fish.
Boy Scout canoe trips are common on this segment; these are often large groups (15+ canoes) and are challenging to classify (with some similarities to commercial scenic and instruction trips).
Use has substantially increased in the past 15 years and continues to rise in recent years. Average use in 2001 was only about 30 boats per day.
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Snake River through Jackson Hole • Draft River Management Plan
South Park to Astoria South Park
This reach was not originally included in the scope of the present plan, but it is described here (in less detail) for completeness. This segment may be addressed in greater detail in future planning.
The segment from South Park to Astoria is 8.4 miles.
The river drops about 17 feet per mile and offers fast Class I water, although occasional constrictions produce Class II-III riffles or waves. There is a well-known surfing wave (King’s Wave about RM 34.3) that occurs above 12,000 cfs.
Bridget-Teton National Forest
KOA RV park
Hoback
The river has a single-thread channel that contrasts with the more braided reaches upstream.
Most use is boating-based and focused on fishing or scenic floating.
Fishing generally occurs from boats; although a few anglers wade, most land along this segment is privately owned and there are few beaches or islands.
Start of WSR
King’s Wave
Astoria
Figure 4. South Park to Astoria.
Commercial fishing trips on this reach are likely to be half-day trips that run from South Park to private land take-outs (e.g., KOA campground about RM 31, Hoback confluence area about RM 32.5).
Any outfitter or guide can offer trips and there are no fees or permits. The Snake River Fund, however has collected voluntary fees from many outfitters; revenues have been used to manage access sites, facilitate ramp congestion, and develop new facilities.
Boy Scout canoe trips are also common on this segment; the Boy Scout camp serves as a take-out about RM 33.5.
There is little public land along the reach, with the exception of launches at South Park, Astoria, and steps from Highway 89 to the river at King’s Wave playboating area. Upon completion of the Hoback Bridge, there may be public access near the Snake / Hoback River confluence.
There are several private access areas along the river (e.g., KOA, Boy Scouts).
Astoria is a BTNF access site with a small boat ramp, approximately 25 parking spaces, and a vault toilet.
FS manages commercial use that continues into the forest. The BTNF designated WSR reach begins at the Snake / Hoback confluence.
The river below South Park continues to offer an outstanding fishery, but a major road parallel to the river and greater development in the confined canyon may decrease opportunities. 11
Snake River through Jackson Hole • Draft River Management Plan
5. Issues This chapter briefly recaps a longer Summary of Issues for the river (Confluence, 2013). It is based on an afternoon workshop at the June 2013 Summit on the Snake, meetings with Count commissioners and staff, fieldwork, existing documents, and interviews with experienced users, outfitters, guides, landowners, and resource staff.
Crowding, congestion, and development at access areas Crowding and congestion at Wilson Bridge and South Park are the major recreation management problems in the river corridor, and have been exacerbated by recent commercial use increases. Many river users support small-scale facility improvements, but some listed consistent problems and support more substantial improvements, while others are concerned improvements might attract too much use and increase the problem. Several river users have differing views of the appropriate level of access and use at BLM Parcel 23, where an informal launch has become more frequently used in recent years.
On-river social impacts On-river impacts (e.g., numbers of encounters, encounters with large groups, competition for fishing water, and boats passing anglers) have also increased with higher use. Many support commercial capacities to reduce these impacts, but there is less agreement about specific capacity levels. Others support strategies such as etiquette education, group size limits, and scheduling of commercial trips to spread out use.
Types of use and user conflicts There are relatively few user conflicts on the river, although some are concerned about potential conflicts between non-motorized and motorized boaters, river users and landowners, or boaters taking different types of trips.
Signs of use and biophysical impacts Few reported substantial concerns about “signs of use” impacts (e.g., litter, human waste, fire rings) or biophysical impacts from recreation use (e.g., wildlife disturbance, riparian impacts, fishery impacts), but these are common river management issues and a focus of past management.
Capacities and commercial use management Most interviewees are familiar with commercial use limits on adjacent WSR segments and support capacities on the Snake River through Jackson Hole to prevent congestion, crowding, and competition. Interviewees suggested several allocation options (ways of distributing access once capacities are set), but there is less consensus about specific commercial management choices and programs.
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Snake River through Jackson Hole • Draft River Management Plan
6. Alternatives This chapter describes management actions that could be used to address the issues described above. Actions are organized by three types:
Actions common to all alternatives. These do not vary by alternative because they are already decided, the consensus way to address a problem, or non-controversial. They are identified in purple tables with the “common to all” heading. Discussion describes rationales for each.
Actions that vary by alternatives. These are “packages” of management actions that range from lower to higher use/development/management. They are identified in orange-shaded tables with “Alternatives 1-4” headings. Discussion describes advantages, disadvantages, or tradeoffs among the alternatives.
Actions independent of alternatives. These are management actions that can be added to any alternative. They are identified in green-shaded tables with “Independent options” headings. Discussion describes the advantages, disadvantages, tradeoffs of choosing the action.
After a general review of the four alternative “themes,” management actions are organized by topic:
Allowable uses
Recreation facility development and access
Capacities
Commercial use management and allocation
Private use management
Other management programs
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Snake River through Jackson Hole • Draft River Management Plan
Alternative Themes Alternatives in this plan are generally organized by the Recreation Opportunity Spectrum (ROS) concept, a planning tool that helps agencies and the public describe the type of place they have (or want in the future). ROS frameworks recognize that agencies provide recreation opportunities by managing biophysical, facility, social, or managerial conditions; users encounter conditions and have recreation experiences. ROS arrays conditions along a continuum from low to high use, development, and management intensity – from “primitive to paved” or from “wilderness to Disneyland.” Any opportunity along the spectrum can be managed for high quality, but different conditions will produce different types of opportunities, and agencies should choose them by design rather than letting them happen by default. Tradeoffs between management choices are implicit in the ROS concept. Higher levels of use or development provide more opportunities for users, but may change the type of opportunity (offering less-natural settings or solitude). Higher levels of use or development also require more intensive management to maintain high quality. By developing alternatives along this continuum, agencies and the public can consider conditions and associated management actions that “fit together” as packages. The USFS and BLM have institutionalized six ROS classifications ranging from “primitive” to “urban” settings. Finer gradations are possible for the Snake River through Jackson Hole, where conditions do not fit either end of the traditional spectrum. Confluence has developed four Alternative Themes in Table 1 to describe the kinds of opportunities that make sense for the Snake River. The table describes general conditions for five variables: development, group sizes, social conditions, commercial use, and management intensity. Overall, these create alternatives that reduce (Alternative 1), stabilize (Alternatives 2 and 3), or allow growth of (Alternative 4) recreation use, development, and management intensity. The remainder of the Draft Plan further develops these themes. Table 1. Alternative themes for the Snake River through Jackson Hole. 1
2
3
4
Reduce
Stabilize low
Stabilize high
Growth
Lowest
Handle average use
Handle typical peaks
Greatest expansion
All small-medium
Add few large
Add some large
Add many large
Social conditions
More solitude
Occasional solitude
Solitude not expected
Seeing others expected
Commercial use
Lower than in recent years
Existing average in recent years
Level of use between average and peaks in recent years
Level use at peaks in recent years
Management intensity
Least intensive – education-focused
Mix of education and regulation
More intensive education and regulation
Alternatives Development Group sizes
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Snake River through Jackson Hole • Draft River Management Plan
Allowable Uses This section describes the types of recreation uses that will be allowed on the river or adjacent public lands and waters.
Motorized use Motorized use regulations are fundamental “type of use” decisions in river plans. The Wyoming Game and Fish Commission developed motorized boating regulations on the Snake River through Jackson Hole in September 2013, summarized below for completeness.
The new regulations provide non-motorized use opportunities from Moose to Astoria during high use season from April through Labor Day, but allow motorized boats from South Park to Astoria in the fall, winter, and early spring. The motor ban includes electric trolling motors.
The ban rationale considered safety (e.g., minimizing encounters between motorized and nonmotorized craft in sometimes narrow and shallow channels), potential environmental impacts (e.g., erosion from boat wakes, effects on fisheries), and quality of experiences (e.g., reducing noise, managing for experience types).
BLM has also made decisions about Off-Highway Vehicle use on its lands in the planning area (BLM, 2004), which will be continued through this plan. These limit OHV use to designated roads including: the Munger Mountain road; levee road at the Walton parcel; levee road west of the Snake River and south of Wilson Bridge; the access road to the Wilson boat ramp; the Evans Gravel road; and the Fall Creek road. Table 2. Allowable uses (common to all alternatives) No motorized boat use except to conduct authorized search and rescue operations.
Year-round
Moose to South Park
April 1 through Labor Day
South Park to Astoria
Motorized use allowed for boats < 115 hp.
Day after Labor Day to Mar 31
South Park to Astoria
OHV use on public lands limited to designated roads.
Year-round
BLM public lands
Types of non-motorized craft Some agencies regulate the types or condition of non-motorized craft on their rivers for safety or social experience reasons. The issues and two optional management actions are described below.
Safety concerns focus on requiring “boats in good condition” or “multi-chambered inflatables” to eliminate use of non-whitewater craft on rivers with challenging rapids.
The Snake River through Jackson Hole is largely Class I and commonly boated in diverse watercraft that include whitewater rafts, non-whitewater rafts (e.g., made of vinyl or with small tubes), drift boats, hard shell kayaks, inflatable kayaks, canoes, stand-up paddle boards (SUPs), river boards, pack rafts, and float tubes, and float/inner tubes (the latter mostly from South Park to Astoria). 15
Snake River through Jackson Hole • Draft River Management Plan
A safety-based regulation may slightly reduce the chance of “trips in trouble” that require search and rescue assistance or increase resource impacts, but it also increases regulation and enforcement responsibilities. Inner/float tubes are prohibited on the Snake River in GTNP, but not in BTNF.
Specific regulations defining suitable craft or their condition for private use are probably unnecessary, although education programs could encourage appropriate craft on all segments and specifically discourage tubing from Moose to South Park (which is braided and has more frequent sweepers). Regulations about the condition or suitability of commercial craft are discussed under “certification” (see commercial use management section below).
Type of experience concerns focus on limiting the size of boats, particularly among commercial users, to keep boat sizes in line with traditional group sizes and craft types.
Larger boats create greater congestion at launches and increase the need for larger facilities.
The regulation described below sets boat size limits to accommodate most currently-used craft but prevent use of larger boats.
Table 3. Options regarding craft types Type of craft and craft condition recommendations. Encourage all boaters to use craft in good condition, suitable for the segment and their skill level. Discourage tubing from Moose to South Park. No very large boats. Prohibit boats over 20 feet, or boats carrying more than 13 people (12 + guide).
Invasive species regulations for watercraft The Wyoming Game and Fish Commission has developed aquatic invasive species regulations and funds an active inspection and enforcement program (“drain, clean, dry”). This plan supports this program, which is included for completeness. Table 4. Invasive species regulations (common to all alternatives) Require all watercraft to be inspected for aquatic invasive species and decontaminated before use on the river (watercraft and inspection/decontamination protocols as defined by WGBC regulations).
Acceptable day use activities on public land Identifying public land and acceptable day use activities is important in a river corridor with mixed ownership. Three options are proposed to improve information about public land, increase stewardship, and reduce conflicts between river users and landowners. Background considerations include:
Wyoming boaters are allowed to float for recreation purposes on public waters flowing over private land (Day v. Armstrong, 362 P.2d 137, Wyoming 1961). According to the Wyoming Public Land Access Guide (BLM 2013), this right extends to portages or “incidental touching” while navigating the river, but does not apply to wading or anchoring while fishing, or recreation activities such as swimming, relaxing, or camping.
There is a complex pattern of private land, public land, and public recreation easements in the corridor from court decisions and settlements in the 1970s and 1980s involving BLM and individual riparian landowners (ERO, 2006). Different private property boundaries are defined by parts of the 16
Snake River through Jackson Hole • Draft River Management Plan levees, the water’s edge, the middle of the floodplain, or the “thread of the Snake River, which changes regularly” (BLM 2004, Appendix 5). In addition, some private lands in the active floodplain apparently have recreation easements that allow the public to anchor, wade-fish, or use beaches (but not camp), while others do not. Although BLM parcels have been mapped, it is challenging to identify the exact locations of private properties, public recreation easements, or public lands across an active floodplain that often ranges from 1,000 to 4,000 feet wide.
Some float-anglers on the Snake River get out of their boats to fish from beaches or in the channel; scenic floaters occasionally stop to relax, swim, or picnic on their trips. Strictly speaking, these uses are not allowed if the land is private and without a recreation easement, but given the complex land ownership pattern, it is often practically difficult for river users to determine whether a potential stopping place is private, private with a recreation easement, or public land.
Land-based users can also access some public lands in the corridor (e.g., Wilson, Parcels 9/10, Parcel 23, and South Park) for hiking, dog exercise, biking, or general riverside recreation such as fishing and swimming.
BLM parcels are identified on Teton County GIS maps, and Wyoming Game and Fish offers a public land micro card for GPS units to help users identify public lands on the river. But even well-defined boundaries on maps or GPS units may not correspond to on-the-ground geographic features (e.g., a parcel may have been defined by an island that no longer exists).
Interviews suggest that most private landowners do not post lands in the active floodplain or discourage day use/stops if boaters 1) stay in the floodplain or “between the levees;” 2) limit the length of stops; 3) are not large commercial trips; and 4) observe “Leave No Trace” practices.
In contrast, some landowners do post their lands in the active floodplain or actively discourage boaters from using them. Many experienced river users have learned to avoid anchoring, wadefishing, or stopping in these areas.
Posting on-site signs to identify public or private land is challenging because of the corridor’s dynamic alluvial channel. On-site signs may also have aesthetic impacts and reduce the sense of naturalness (although good design can minimize these problems).
Table 5. Options for reducing landowner-river user conflicts Identify public land on-site with system of unobtrusive public land markers or signs. Identify public land on a user-friendly river map with an associated GPS card. This may need frequent revision to keep current with channel changes. Develop a brochure that describes acceptable uses of public lands, and ways of reducing conflict between river users and private landowners. The brochure would be developed in consultation with landowners and river users.
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Snake River through Jackson Hole • Draft River Management Plan
Camping on public lands As with day use, there is uncertainty among the public about whether camping is currently allowed on public lands in the corridor. County commissioners have suggested deferring decisions on the topic in the present plan, but may consider a review in the future. Background and considerations include:
The 2004 BLM Plan does not explicitly prohibit camping, although court decisions or settlements with adjacent landowners may have specified “no camping” for individual parcels (more research is needed to confirm this). Recreation easements on private land in the active floodplain generally do not allow camping (BLM, 2004).
Unless otherwise specified, camping by non-commercial users is generally allowed on BLM lands for up to 14 days.
Local private floaters occasionally camp on BLM parcels; most of this use appears to be boat-based, but vehicle-based camping occurs on Parcel 23 (see separate discussion below). Camping regulations could allow access by boats, vehicles, or both on individual parcels.
If camping is allowed, regulations could designate specific sites or open areas. Criteria for choosing sites might include: distance from sensitive habitat (e.g., eagle nests), out of sight/sound of adjacent landowner residences, screening from the river, easy access to the river, low gradient banks and sparse vegetation at boat landing areas (to prevent vegetation loss), minimal wet or boggy areas in camps (to prevent erosion), space for two to four tents, and a good eddy for landing.
Regulations could include seasonal closures (e.g., during wet periods, sensitive nesting seasons).
Regulations addressing fires, human waste, food storage, chainsaw use, target shooting, or other camping-related impacts may be necessary if camping is explicitly allowed. These issues have public safety, experiential, and habitat protection implications.
If demand for camping exceeds the supply, designated sites could be made available through a reservation system. This would enforce a camping capacity (groups per night), ensure campers had a site to themselves, and increase accountability to minimize impacts. However, a camping reservation system would increase administrative costs and off-site management presence.
Table 6. Options regarding camping Assess demand for boat and vehicle-based camps in the corridor, review potential sites on available parcels, and consider designating specific sites or areas for camping (while closing other areas). If camping is allowed, develop regulations to manage fire, human waste, or other camping-related impacts.
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Snake River through Jackson Hole • Draft River Management Plan
Access and recreation facility development This section describes river access in the planning area managed by Teton County. These include access and facility improvements planned for Wilson and South Park, and access choices at BLM Parcel 23, a road-accessible informal launch with increasing use. The plan does not address facilities at Moose (managed by GTNP) or Astoria (managed by BTNF).
Wilson (BLM Parcel 13) This 11 acre area has about 450 feet of river front just north of the Highway 22 Bridge (Figure 5). It is a take-out and put-in for boating trips, and an informal community park for activities such as walking, sunbathing, swimming, fishing, dog exercise, and general riverside recreation.
The area is accessed from the Moose-Wilson Road via a 1,400 foot levee access road.
The area is adjacent to a complex of public lands and trails:
Rendezvous Park, a 40 acre “natural park” with about 1,000 feet of river front, a former gravel quarry being developed by the Rendezvous Lands Conservancy.
Teton County’s Emily Stevens Park, about 12 acres with open space, a pond, about 25 parking spaces, restrooms, and access to a trail on the levee north through BLM Parcels 9/10.
BLM Parcels 9/10 (about 320 acres) include islands in the active floodplain, cottonwood uplands, and the Walton Quarry Levee. The 2.9 mile public levee trail is popular with hikers, dog walkers, anglers, and skiers (groomed in winter).
Teton County’s Pathways multi-use trail system connects Jackson and Wilson, and includes a footbridge across the river (to be completed in 2014).
Teton County’s Stilson Park has 8.5 acres of sports fields, with toilets and parking (sometimes used as overflow parking for boaters).
Figure 5. Wilson Access Area.
19
Snake River through Jackson Hole • Draft River Management Plan Existing facilities
A gravel access road about 1,400 feet long, with parallel parking possible along roughly 85% of its length (accommodates about 48 vehicles or 24 vehicles with trailers, if used efficiently).
A limited gravel parking lot near the river with about 20 spaces (8 can be used to accommodate 4 vehicles with trailers).
Total parking along the road and in the lot is about 60 spaces, if used efficiently.
Two gravel launching “beaches.” The upstream beach is about 100 feet long and has a steeper gradient. The downstream beach is about 80 feet long, has a lower gradient, and generally has a better eddy.
There is a limited and informally defined rigging/staging area between launches and parking.
Taken together, there is “at-one-time” space for roughly two launching lanes (one at each beach) and a dozen boats tied off for rigging. During congested periods, some boaters tie boats off the upstream levee, despite swift currents.
A gravel beach currently stretches under Wilson Bridge and is commonly used for relaxing and general riverside recreation (technically off the BLM parcel but part of the highway right of way). This beach apparently was larger in previous years and offered better swimming conditions.
Double-sided vault toilet.
Trash / recycling facilities.
River information kiosk.
Impacts and issues
Crowding and congestion at the launching and staging areas are common problems during the peak use season from mid-June through late August.
Competition for ramp space is most common during morning launch periods when full day commercial fishing and scenic rafting trips depart.
Private groups may contribute to ramp congestion, most commonly from midday to late afternoon in summer.
During busy times, a single inefficient group can exacerbate congestion.
Some users act “proprietary” on the ramp or in staging areas, which can make others feel unwelcome or rushed.
Territorial behavior by beach vs. boat users (each accuses the other of not respecting traditional use areas).
Unleashed dogs and dog excrement.
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Snake River through Jackson Hole • Draft River Management Plan Proposed improvements Table 7. Proposed Wilson access improvements (common to all alternatives) Proposed improvements to Wilson access area are listed below and shown in Figure 6; they may be re-assessed in light of capacity decisions in this plan or hydrology/environmental review. New road alignment to accommodate Pathways multi-use trail and reduce resource impacts. Create new parking lot (not along road) with about 28 spaces, with potential for doubling capacity if needed. Many could be used by vehicles with trailers (two spaces each). Access road parallel parking with about 30 spaces (30 vehicles or 15 with trailers). Total parking in the area is about 60 spaces (same as the existing situation), but with overflow parking available at Stilson Park. If parking lot size is doubled, there would be about 90 spaces. One-way loop to launching/staging area. Angled three-lane hardened ramp (upstream beach) designed for efficient trailer-based launching. Angled and better-defined two-lane gravel ramp (downstream beach). Defined boat tie-off areas between the ramps. Defined commercial trip “briefing area” with benches. Defined rigging area near launches (no parking allowed). Separate walking path and Pathways multi-use trail connects launch with Stilson Park overflow parking. Better defined launching areas and general river recreation use areas (for relaxing, swimming) to minimize conflicts between boaters and non-boaters.
Figure 6. Proposed site plan for Wilson Access Area improvements.
(Non-binding preliminary design subject to hydrology/environmental review)
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Snake River through Jackson Hole • Draft River Management Plan
South Park The existing access area at South Park (also known as Von Gontard Landing) is on leased private land on river left; it has been managed by Wyoming Game and Fish with assistance from the Snake River Fund. This site has about 400 feet of river front underneath and downstream of the Highway 89/189/191 Bridge (Figure 7). It is a take-out and put-in for boating and tubing trips, and informal community park for sunbathing, swimming, dog exercise, fishing, and general riverside recreation. Existing facilities (river left)
The area is accessed from Highway 89/189/191 from the river left side via a short steep gravel road.
A 600 foot gravel road parallels the highway, with some parallel parking and six small “pocket lots” along its length (about 30 total spaces, if used efficiently).
There is limited “pocket lot” parking along the beach/launching area with about 20 spaces, although informal signs discourage parking in some of these areas (often ignored).
Total parking in the area is about 50 spaces, if used efficiently. Less than half are configured for vehicles with trailers (which occupy two spaces).
Overflow parking is informally available along Munger Mountain Road on BLM parcel 26 (river right side), but this requires walking across the bridge (minimal shoulder and no curbed sidewalk). Parking and commercial use of this parcel has not been condoned by BLM.
There are limited and poorly defined rigging/staging and launching areas along the 400 feet of beach. The turnaround area for vehicles is tight and easily obstructed.
Taken together, there is “at-one-time” space for two launching lanes (one at each beach) and perhaps a dozen boats tied off for rigging.
There are two portable toilets.
River information kiosk.
Figure 7. South Park access area.
22
Snake River through Jackson Hole • Draft River Management Plan Impacts and issues
Crowding and congestion at the launching and staging areas are common problems during the peak use season from mid-June through late August.
Competition for ramp space is common when commercial scenic trips take-out from midday through early afternoon and commercial fishing trips take out in late afternoon.
Private groups may contribute to ramp congestion, most commonly from midday to late afternoon. Peak tubing use (put-ins) also occurs in mid-afternoon.
At busy times, a single inefficient group can exacerbate congestion.
Some users act “proprietary” on the ramp or in staging areas, which can make others feel unwelcome or rushed.
Territorial behavior by beach vs. boat users (each accuse the other of not respecting traditional use areas).
Unleashed dogs and dog waste.
Proposed new development Table 8. Proposed new development for South Park (common to all alternatives) Proposed new development on river right at South Park (listed below and shown in Figure 8) is funded by a Wyoming Game and Fish Department grant. Phase 1 begins in spring 1014; elements of Phase 2 may be reassessed in light of capacity decisions in this plan, or continued monitoring. The plan assumes Wyoming DOT will improve Highway 89/189/191 to five lanes and rebuild the bridge with dedicated pedestrian walkway(s) starting in 2018. Trail and road underpasses will connect areas upstream and downstream of the highway. Dedicated paved lot parking with 30 spaces for vehicles without trailers, 2 spaces for larger buses, and 14 spaces for vehicles with trailers (or 28 vehicles without) near main paved launch (Phase 1). Additional 12 spaces in gravel lot near small boat and carry-in launching area (Phase 1). Total parking in Phase 1 is about 75 spaces (roughly 50% increase over the current situation), with about half available for vehicles with trailers. Total parking if Phase 2 is built could roughly double this capacity (adding 44 spaces for vehicles and 28 spaces for 14 vehicles with trailers on upstream side of highway, connected by a road with underpass). Angled three-lane hardened ramp (upstream beach) designed for efficient trailer-based launching. Angled and better-defined two-lane gravel ramp (downstream beach) that can be used for trailer-based or carry-in launching. Defined rigging area near launches (no parking allowed). Restrooms and kiosk near main parking area. Access trail from parking areas to launch areas. Additional restrooms and picnic shelter on upstream side of highway (Phase 2). Defined launching areas and general river recreation use areas (for relaxing, swimming) to minimize conflicts between boaters and non-boaters.
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Snake River through Jackson Hole • Draft River Management Plan
Figure 8. Proposed development of new South Park access area.
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Snake River through Jackson Hole • Draft River Management Plan
Parcel 23 The area known as BLM Parcel 23 actually includes two parcels totaling about 90 acres on river right near RM 22 on the Wilson to South Park segment (Figure 9). The larger northern parcel includes gravel bar islands, the main channel of the river, some mature cottonwood uplands, and part of the Taylor Creek Number 3 Levee. It has about 2,500 feet of river front along the levee or vegetated uplands, split at the levee by a corner of private land. It can be accessed from the river or Fall Creek Road. The smaller southern parcel has cottonwood forest, part of the Sewell Levee, and has pasture/corrals and a grazing lease associated with an adjacent ranch. It has about 1,600 feet of river front along upland vegetation or the levee. Because of road access from Fall Creek Road, use on the northern parcel has increased in recent years, prompting discussions about new access or development. Existing facilities and use
Several fishing guides have started using the northern parcel as a boat launch. A rough ramp has been developed from a “bendway weir” (short jetty perpendicular to the levee), allowing trailer launching.
The northern parcel is sometimes used by private boaters to picnic or launch, road-based day users to fish or relax by the river, and vehicle-based campers (some for several days or weeks).
The area is accessed by boat or through a currently unlocked gate off Fall Creek Road. The access road runs about 370 feet to the levee, with the weir 150 feet farther downstream. A one-lane gravel road on the top of the levee has occasional wider areas used for parallel parking or campsites.
Figure 9. BLM Parcel 23.
The levees do not connect the northern and southern parcels.
Impacts and issues
Although the area rarely appears to be crowded, there is limited parking or space to maneuver vehicles on the levee road and even low use could create congestion.
The bendway weir was not designed as a boat launch; it is an erosion control structure designed to reduce habitat impacts from the levee.
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Snake River through Jackson Hole • Draft River Management Plan
Some fishing guides are concerned that a more-developed Parcel 23 launch may increase half-day trips offered by other guides, increasing competition for fishing water or exacerbating congestion at South Park.
Long-term campers may produce site impacts (e.g., fire rings, litter, human waste) or fire hazards.
Increased use may affect wildlife in the area.
Increased use would also increase traffic on Fall Creek Road (currently very low use).
Potential development and use changes Confluence has developed four alternatives for recreation facilities and uses at Parcel 23. Alternatives range from minimal facilities and restricted uses (under Alternative 1) to substantial development that would formally authorize boating and camping opportunities (under Alternative 4). Table 9. Potential facility and use decisions for Parcel 23 (varies by alternative). Alternative
Launch
Levee vehicle access Parking
Toilet
Commercial use Camping
1
2
3
4
Reduce
Stabilize low
Stabilize high
Growth
Carry-in from parking lot near river (50 feet)
Develop single lane, gravel launch that accommodates trailers
No developed launch. Carry-in from Fall Creek Road (350 feet) None boat-based use only
None; vehicles to remain in nearby parking lots
None, boat-based use only
10 spaces on Fall Creek Road
None
None, carry-out regulations for boatbased campers
No launches or exchanges None
10 spaces near levee
15 spaces near levee
One vault toilet near road/parking
No launches; exchanges allowed Consider for boatbased users
Allowed for launching only
Launches and exchanges allowed.
Consider for boat and road-based users
Independent option (instead of choosing among the alternatives above) Defer Parcel 23 facility and use decisions until capacities and corridor-wide camping decisions have been in place for a few years.
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Snake River through Jackson Hole • Draft River Management Plan
Capacities User capacity, or “carrying capacity,” has a long history in natural resource management. With roots from Hardin’s “tragedy of the commons” (1968), capacities recognize that environments have limits and that ever-increasing use is likely to degrade conditions and become unsustainable. Applications in recreation settings followed public concern about parks being “loved to death” (Wagar 1946). Additional background on capacities and how they were developed for this plan is provided below.
Capacity background
Capacities are defined as the level of use beyond which conditions become unacceptable as defined by management standards (Shelby and Heberlein, 1986).
Capacity decisions include evaluative judgments. While research may offer information about the consequences of different capacity choices, it cannot determine what the “right” choices are.
Capacities, resource conditions, and the facilities to support visitation are intertwined. Changing one often has implications for the others. User capacities in different alternatives show how higher and lower amounts of use fit with different facility development or other management actions to produce different conditions and types of experiences. These represent future choices for the Snake River corridor.
Ecological resources are usually more related to type of use rather than amount of use. For example, bald eagle nesting impacts may occur with even one trip camping or stopping within “flushing distance.” Effective management might eliminate that type of use rather than limiting overall use.
In contrast, social conditions such as on-river crowding or congestion at launch areas are often directly related to use; capacities are the most effective way to address those issues.
Several rivers have impact issues similar to the Snake River in Jackson Hole, and capacities are a central element in their management plans. Examples include segments of the Snake River in GTNP and BTNF; segments of the Arkansas River in Colorado; the South Fork American River in California; the lower Deschutes River in Oregon; the Ocoee River in Tennessee; and the Chattooga River between Georgia and South Carolina. Capacities on these rivers focus primarily on commercial uses, which could grow substantially unless controlled (some also have capacities for private or total use).
Issues that capacities address on the Snake River
Congestion on boat ramps. Launch facilities at Wilson and South Park are currently small. They can be overwhelmed by a single large commercial trip, the combination of several trips launching about the same time, and/or inefficient use of ramps by even a few boaters. The total number of boats per day is probably the best indicator of ramp congestion, although pulses of use within smaller time frames (e.g., morning launch periods at Wilson) may also be important.
Parking at access areas. Many users leave vehicles/trailers at access areas that have limited parking space. Although facility development can address some of these limitations, capacities need to be consistent with available spaces (or perhaps encourage commercial users to meet trips rather than occupy spaces for the length of a trip).
On-river encounters. Research from other rivers shows that daily use levels are directly related to on-river encounters, which in turn affect perceptions of crowding. Encounters appear to be more 27
Snake River through Jackson Hole • Draft River Management Plan important to anglers than scenic boaters. Encounters appear to be increasing in recent years (particularly from Wilson to South Park), and may reach unacceptable levels on peak use days. Although use-encounter relationships have not been studied on the river segments in this plan, documented use levels on adjacent GTNP and BTNF segments provide useful comparisons.
Fishing water competition. Some fishing guides have concerns about competition for fishing water. Some sloughs, backwaters, braids, or side creeks with known high quality fishing are best used by one boat (or one group of wading anglers) at a time. Given a limited number of such areas, fishing water competition is probably related to the number of commercial fishing boats using a reach.
Boats passing anglers. Closely related to on-river encounters, this impact focuses on interactions between boat-based anglers and scenic floaters; anglers prefer fewer of these encounters. The number and timing of commercial scenic trips may affect these impacts, although etiquette that encourages scenic trips to use the main channel can also help.
Large group encounters. Group size limits (in combination with capacities) address “encounters with large groups,” a sub-category of encounters. Research suggests that some river users prefer traveling in and meeting smaller groups (Shelby, 1976), and capacities that manage the number or timing of large groups address this impact.
Capacities in this plan
Capacities have units of use, timing, and location components. Capacities in this plan are expressed as “boats per day” within different sectors (e.g., commercial fishing, commercial scenic, commercial instruction, and private) for different segments (e.g., Moose to Wilson and Wilson to South Park).
The focus on “boats per day” makes sense because major social impacts include ramp space and parking at access areas, both directly related to the number of boats. Boats per day are also related to numbers of groups and people, which affect launch area congestion, on-river encounters, fishing water competition, and boats passing anglers.
Alternative capacities are developed for two segments: Moose to Wilson and Wilson to South Park. Capacities for South Park to Astoria will be deferred pending implementation of this plan, better information about use levels for that segment, development at South Park, and the first few years of implementation of this plan.
Alternatives specify capacities for commercial use in three sectors: scenic trips, fishing trips, and instruction trips.
Scenic trips are typically shorter (usually under 3 hours), involve few stops, and do not include any fishing. They usually occur in rafts with up to 12 passengers.
Fishing trips are either full or half-day trips, and include frequent stops to fish. They usually occur in rafts or driftboats, with 2 to 3 clients plus a guide.
Instruction trips have an educational and skill development focus, may be full or half day trips, and include frequent stops for teaching. They usually involve fleets of 1 and 2 person craft (e.g., kayaks, canoes, SUPs).
In general, capacity choices include below-current-average in recent years (Alternative 1), the existing average in recent years (Alternative 2), a level between average and peaks (Alternatives 3), and peak use in recent years (Alternative 4). See Appendix A for additional information about use levels on the different reaches. 28
Snake River through Jackson Hole • Draft River Management Plan
Once adopted in a final plan, commercial capacities are binding and will be managed through an allocation system to ensure they are not exceeded (see separate discussion below).
Alternatives also specify capacities for private use and the total of commercial and private use, although they are advisory rather than binding (as per a decision by Teton County commissioners). Private capacities are a small proportion of total use, probably will not be exceeded in the near future, and therefore do not need managed through an allocation system. They have been included for completeness, recognizing that county population growth and increased rental-based private use could prompt more attention toward private capacities in the future.
Capacities refer to the highest use that is acceptable to meet objectives for an alternative. The plan assumes use will eventually reach capacities on most days during the peak season (roughly ten weeks each summer), although lower use levels will occur in the shoulder and off-season. As readers review the alternative capacities, they should assume those will eventually become “everyday use levels.”
In higher capacity alternatives, additional management actions (e.g., trip scheduling, capacities for shorter periods) may be necessary to minimize impacts or ensure that facilities can handle the load.
All capacities have been developed with consideration of existing commercial use limits on adjacent river segments in GTNP (which affect use from Moose to Wilson) and BTNF (which affect use from South Park downstream). Alternatives assume existing commercial use authorized by GTNP will be accommodated in Moose to Wilson capacities, although the County would like to work cooperatively with NPS when existing commercial use permits are re-bid (scheduled about 2019). The goal is to ensure that GTNP and County use levels for the segment are consistent and mutually supportive.
Several outfitter/guides put in or take out on private land (particularly on the segment from Moose to Wilson). Although county authority over private land uses may be limited, the plan assumes that all outfitter/guides offering trips in the corridor will participate in the commercial use management program, and their trips are accounted for in capacities.
For the sake of simplicity in this plan, every craft counts as one boat, regardless of whether it is a raft, driftboat, kayak, tube, or SUP. In the future, the County might consider counting 1 and 2person craft (e.g., tubes, kayaks, canoes, small catarafts, pack rafts, or SUPs) as ½ a boat because these boats may take up less space at launch areas and have less visual or interaction impact than large boats.
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Snake River through Jackson Hole • Draft River Management Plan
Moose to Wilson Capacities Capacities for Moose to Wilson are given in Table 10 for the four alternatives, with separate categories for commercial fishing, commercial scenic, and private trips. Capacities include trips that put-in at Moose or and launches from private land between Moose and Wilson. Commercial use capacities are binding; private use limits are advisory. Additional considerations about capacities and related management actions are given below. Table 10. Capacities (boats per day) for Moose to Wilson. 1
2
3
4
Reduce
Stabilize low
Stabilize high
Growth
Commercial fishing
10
15
20
25
Commercial scenic
5
10
15
20
Sub-total commercial
15
25
35
45
Private boating use
5
10
15
20
Total boats
20
35
50
65
Alternative
Options related to capacities (independent of alternatives above) Commercial scenic trips will not exceed 3 boats per trip (except with special use permits; see below). Special use permits may be available for rare large commercial trips (limit of 6 boats and 60 people plus guides).
Capacities range from low to high, and represent tradeoffs between greater access and higher density conditions. More use would allow more people to boat the segment, but they would experience more launch congestion, on-river encounters, and fishing competition.
Moose to Wilson currently has considerably lower use than Wilson to South Park. All alternatives would continue to provide these lower-use experiences, ranging from about one fifth (Alternative 1) to half (Alternative 4) of current average use levels on Wilson to South Park.
These capacities include authorized use from GTNP, which has a complex use limit system for different fishing and scenic outfitters (Rhinehart, 2014). Although other outfitters could offer scenic trips from Moose, only one has done so in recent years (with limits of 3 boats per day). For commercial fishing trips, 10 different outfitters have varied per day and per month GTNP limits, discretion over which reaches they use, and have been offering Moose to Wilson trips in recent years. Their monthly limits apply only on the more popular upstream reaches, offering some incentive to take more Moose to Wilson trips.
Theoretically, GTNP outfitters maximizing their use under this system could exceed dozens of fishing and scenic boats per day. Practically, most concentrate their use upstream so use originating from GTNP is much lower (averaging about 5 commercial fishing and 3 scenic boats per day in the highest use months, although peaks are higher).
Commercial use launching from private land downstream of GTNP boundary add an average of 12 commercial boats per day in peak season (6 scenic and 6 fish), although peaks may be higher. Although private boater use on the reach is not tracked, it appears to average about 5 boats per day but may peak about 10 to 15 boats per day on weekends in the highest use periods. 30
Snake River through Jackson Hole • Draft River Management Plan
Currently, if all categories of use were maximized, use would be slightly higher than Alternative 3 capacities. But actual use in recent years probably peaks near Alternative 2 capacities, and averages between Alternatives 1 and 2.
Comparing the most popular segment in GTNP offers a useful perspective. In the highest use month, Deadman’s Bar to Moose averages about 10 commercial fishing and 50 commercial scenic boats, for a total of 60 boats per day. Peaks on some days are higher, and private use is not tracked (although estimated to add 25% above commercial use). Capacities for Moose to Wilson in Alternatives 1 and 2 are noticeably lower than this average, Alternative 3 capacities would be similar, and Alternative 4 capacities would be slightly higher.
There is no instruction category specified for this segment, and GTNP does not offer permits for instruction use on this reach. The reach has a slightly steeper gradient, faster current, and more sweepers than downstream.
Use levels on this segment vary through the summer; commercial fishing use peaks from mid-July through September (after the water below Pacific Creek clears), while commercial scenic use is low but stable through June, July and August.
GTNP allocates within its capacities using a bid/prospectus system with 10 year permits. The next period begins about 2019 and may offer opportunities to better integrate GTNP and Moose to Wilson use limits.
These four alternatives probably will not require formal launch scheduling to handle the volume of use, although this depends on the proportions using Moose or private land for access, especially with Alternatives 3 and 4.
An optional capacity-related action could prohibit commercial trips from Moose to Wilson from exceeding 3 boats per trip. This would ensure that trips were relatively small, in keeping with this segment’s lower use/lower development type of experience.
A second optional action would allow a small number of larger commercial trips for “special event” floats (which occasionally occur now). These would require a special use permit and could not exceed six boats and 60 people plus guides. Special use permit stipulations might include scheduling with and notification of other outfitters, limits of 2 per outfitter and 5 total per year (to reduce incentives to market these trips), and scheduling to avoid peak use days and seasons (e.g., not allowed on Saturdays from mid-July through August).
31
Snake River through Jackson Hole • Draft River Management Plan
Wilson to South Park capacities Capacities for Wilson to South Park are given in Table 11 for the four alternatives, with separate categories for commercial fishing, large commercial scenic, small commercial scenic, commercial instruction, and private trips. Commercial use capacities are binding; private use limits are advisory. Additional considerations about capacities and related management actions are given below. Table 11. Capacities (boats per day) for Wilson to South Park. 1
2
3
4
Reduce
Stabilize low
Stabilize high
Growth
Commercial fish
20
30
40
50
Small commercial scenic (< 4 boats per launch)
30
45
60
70
Large commercial scenic (4-5 boats per launch)
0
5
10
20
Commercial instruction (
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