1998 draft wilderness management plan

In 1998, this Draft Wilderness Management Plan was released for public comment with an accompanying environmental assessment. The purpose of the plan was to guide the management of resources and visitor use in the proposed wilderness areas of Grand Canyon National Park. At the time, the Cross-Canyon Corridor and Tuweep area were not included in the scope of the plan.

The release of this plan in 1998 coincided with public scoping for the update to the 1989 Colorado River Management Plan. The Draft Wilderness Management Plan was never approved due to public confusion over the park's wilderness status and relationship to the Colorado River. The Colorado River Management Plan was completed in 2006 as a separate document and addresses visitor use and resource protection along the river corridor.

This document is provided as a reference for the current process to update the park's 1988 Backcountry Management Plan.

Grand Canyon National Park

DraftWildernessManagementPlanApril 1998

Grand Canyon National Park Wilderness Management Plan

Wilderness Management PlanWilderness Management PlanWilderness Management PlanWilderness Management PlanWilderness Management PlanApril 1998April 1998April 1998April 1998April 1998

Prepared by The Wilderness Planning TeamPrepared by The Wilderness Planning TeamPrepared by The Wilderness Planning TeamPrepared by The Wilderness Planning TeamPrepared by The Wilderness Planning Team

Linda Jalbert, Team LeaderKim Crumbo, Wilderness CoordinatorGreer Chesher, Resource PlannerKevin Cochary, North Rim District RangerNick Herring, Wilderness Dirtrict RangerDan Blackwell, Trails Foreman

With Contributions FromWith Contributions FromWith Contributions FromWith Contributions FromWith Contributions From

Dan Oltrogge, Fire Management OfficerJan Balsom, Cultural Resources Program ManagerHelen Fairley, ArchaeologistSteve Sullivan, Backcountry Office SupervisorRobert Winfree, Senior ScientistKen Phillips, Search and Rescue CoordinatorAllen Keske, Concessions Management SpecialistSusan Lakes, Concessions Assistant


Tableof

Contents

Wilderness Management PlanWilderness Management PlanWilderness Management PlanWilderness Management PlanWilderness Management PlanGrand Canyon National ParkGrand Canyon National ParkGrand Canyon National ParkGrand Canyon National ParkGrand Canyon National Park

Section One IntroductionSection One IntroductionSection One IntroductionSection One IntroductionSection One Introduction

CHAPTER ONECHAPTER ONECHAPTER ONECHAPTER ONECHAPTER ONEGoals And ObjectivesGoals And ObjectivesGoals And ObjectivesGoals And ObjectivesGoals And Objectives

1.1 Purpose and Need. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 - 11.2 Wilderness Responsibilities. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 - 11.3 Scope of the Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 - 11.4 Goals of the Wilderness Management Plan. . . . . . . . . . . . . . . . . . . . . . . 1 - 21.5 Objectives of the Wilderness Management Plan. . . . . . . . . . . . . . . . . . . 1 - 21.6 Wilderness Management Plan Review and Update . . . . . . . . . . . . . . . . 1 - 5

CHAPTER TWOCHAPTER TWOCHAPTER TWOCHAPTER TWOCHAPTER TWOWilderness Management At Grand Canyon National ParkWilderness Management At Grand Canyon National ParkWilderness Management At Grand Canyon National ParkWilderness Management At Grand Canyon National ParkWilderness Management At Grand Canyon National Park

2.1 Grand Canyon National Park Wilderness Recommendation. . . . . . . . . 2 - 72.2 Natural and Cultural Aspects of the Wilderness Resource. . . . . . . . . . . 2 - 82.3 Description of Wilderness Visitor Use . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 -112.4 Mandates Guiding Park Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 -132.5 National Park Service Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 -172.6 Grand Canyon National Park Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 -192.7 Grand Canyon Wilderness Management Staff . . . . . . . . . . . . . . . . . . . . 2 - 212.8 Summary of Changes and Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 - 23

CHAPTER THREECHAPTER THREECHAPTER THREECHAPTER THREECHAPTER THREEWilderness Management Planning FrameworkWilderness Management Planning FrameworkWilderness Management Planning FrameworkWilderness Management Planning FrameworkWilderness Management Planning Framework

3.1 Background of Backcountry and Wilderness Planningat Grand Canyon. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 - 25

3.2 National Park Service Planning Guidance. . . . . . . . . . . . . . . . . . . . . . . . 3 - 263.3 The Limits of Acceptable Change. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 - 283.4 Management Zoning. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 - 293.5 Summary of Changes and Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3 - 31

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Section TwoSection TwoSection TwoSection TwoSection Two Visitor Use ManagementVisitor Use ManagementVisitor Use ManagementVisitor Use ManagementVisitor Use Management

CHAPTER FOURCHAPTER FOURCHAPTER FOURCHAPTER FOURCHAPTER FOURRecreational Use Of The WildernessRecreational Use Of The WildernessRecreational Use Of The WildernessRecreational Use Of The WildernessRecreational Use Of The Wilderness

4.1 Issues and Public Concerns. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 354.2 The Regional Recreation Opportunity Spectrum . . . . . . . . . . . . . . . . . . 4 - 354.3 Accessibility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 354.4 Day Use. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 364.5 Overnight Use. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 364.6 Private Stock Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 364.7 Fishing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 374.8 Rock Climbing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 374.9 Nordic Skiing and Snowshoeing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 374.10 Bicycling . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 384.11 Commercial Use of the Wilderness. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 384.12 Cave Entry. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 384.13 Semi-Primitive Access in Nonwilderness Corridors . . . . . . . . . . . . . . . 4 - 384.14 Area Limitations and Closures. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 394.15 Applicable Regulations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 404.16 Summary of Changes and Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 - 42

CHAPTER FIVECHAPTER FIVECHAPTER FIVECHAPTER FIVECHAPTER FIVEBackcountry Permit SystemBackcountry Permit SystemBackcountry Permit SystemBackcountry Permit SystemBackcountry Permit System

5.1 Issues and Public Concerns. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 - 435.2 System and Administration. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 - 445.3 Recreation Fee Demonstration Program. . . . . . . . . . . . .. . . . . . . . . . . . 5 - 445.4 Access Through Adjacent Lands. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 - 455.5 Administrative Use. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 - 465.6 Summary of Changes and Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 - 46

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CHAPTER SIXCHAPTER SIXCHAPTER SIXCHAPTER SIXCHAPTER SIXWilderness Campsite ManagementWilderness Campsite ManagementWilderness Campsite ManagementWilderness Campsite ManagementWilderness Campsite Management

6.1 Issues and Public Concerns. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 - 546.2 Use-Area Allocation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 - 546.3 Campsite Classification. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 - 556.4 Group Size and Use Limits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 - 566.5 Special Management of Use Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 - 576.6 Nonwilderness Use Areas with Semi-Primitive Mechanized Access. 6 - 606.7 Resource Protection and Stewardship. . . . . . . . . . . . . . . . . . . . . . . . . . 6 - 616.8 Summary of Use Area Changes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 - 62

CHAPTER SEVENCHAPTER SEVENCHAPTER SEVENCHAPTER SEVENCHAPTER SEVENTrails ManagementTrails ManagementTrails ManagementTrails ManagementTrails Management

7.1 Criteria for Establishing Trail Standards and Specifications. . . . . . . . 7 - 647.2 Trail Classification. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 - 657.3 Trail Standards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 - 657.4 Monitoring . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 - 677.5 Arizona Trail . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 - 677.6 Restoration and Implementation Priorities . . . . . . . . . . . . . . . . . . . . . . 7 - 677.7 Other Considerations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 - 697.8 Summary of Changes and Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 - 69

CHAPTER EIGHTCHAPTER EIGHTCHAPTER EIGHTCHAPTER EIGHTCHAPTER EIGHTSemi-Primitive Access And FacilitiesSemi-Primitive Access And FacilitiesSemi-Primitive Access And FacilitiesSemi-Primitive Access And FacilitiesSemi-Primitive Access And Facilities

8.1 Issues and Public Concerns. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 - 748.2 Primitive Roads Management. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 - 758.3 Primitive Roads To Be Restored or Converted To Trails . . . . . . . . . . . 8 - 768.4 Facilities. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 - 788.5 Summary of Changes and Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 - 74

CHAPTER NINECHAPTER NINECHAPTER NINECHAPTER NINECHAPTER NINESafety And Emergency OperationsSafety And Emergency OperationsSafety And Emergency OperationsSafety And Emergency OperationsSafety And Emergency Operations

9.1 Issues and Public Concerns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 - 849.2 Grand Canyon National Park Emergency Operations . . . . . . . . . . . . . 9 - 859.3 Preventative Search and Rescue (PSAR). . . . . . . . . . . . . . . . . . . . . . . 9 - 879.4 Summary of Changes and Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 - 87

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CHAPTER TENCHAPTER TENCHAPTER TENCHAPTER TENCHAPTER TENInterpretation, Education and InformationInterpretation, Education and InformationInterpretation, Education and InformationInterpretation, Education and InformationInterpretation, Education and Information

10.1 Issues and Public Concerns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10- 8810.2 Wilderness Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10- 8910.3 What Needs to be Communicated. . . . . . . . . . . . . . . . . . . . . . . . . . . . .10- 9010.4 Communicating Information Successfully . . . . . . . . . . . . . . . . . . . . . . . 10- 9210.5 Wilderness Education for Staff . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10- 9410.6 Summary of Changes and Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10- 94

Section ThreeSection ThreeSection ThreeSection ThreeSection Three Resources ManagementResources ManagementResources ManagementResources ManagementResources Management

CHAPTER ELEVENCHAPTER ELEVENCHAPTER ELEVENCHAPTER ELEVENCHAPTER ELEVENEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem Management

11.1 Wilderness and Ecosystem Management. . . . . . . . . . . . . . . . . . . . . . .11- 9611.2 Fundamental Scientific Principles for Ecosystem Management. . . . .11- 9711.3 Legal Basis for Ecosystem Management . . . . . . . . . . . . . . . . . . . . . . .11- 9811.4 Implementing Ecosystem Management. . . . . . . . . . . . . . . . . . . . . . . . .11- 9811.5 Summary of Changes and Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . .11-107

CHAPTER TWELVECHAPTER TWELVECHAPTER TWELVECHAPTER TWELVECHAPTER TWELVEMonitoring And ResearchMonitoring And ResearchMonitoring And ResearchMonitoring And ResearchMonitoring And Research

12.1 Campsite Monitoring Program. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-11012.2 Monitoring Visitor Experience . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-11112.3 Archeological Site Monitoring . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-11312.4 Monitoring Water Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-11512.5 Monitoring Trail Condition. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-11512.1 Research in Wilderness. . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-12312.2 Summary of Changes and Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-128

CHAPTER THIRTEENCHAPTER THIRTEENCHAPTER THIRTEENCHAPTER THIRTEENCHAPTER THIRTEENRehabilitation and Restoration of Recreational ImpactsRehabilitation and Restoration of Recreational ImpactsRehabilitation and Restoration of Recreational ImpactsRehabilitation and Restoration of Recreational ImpactsRehabilitation and Restoration of Recreational Impacts

13.1 Revegetation and Site Rehabilitation. . . . . . . . . . . . . . . . . . . . . . . . . . .13-13013.2 Site Restoration Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . .13-13213.3 Summary of Changes and Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . .13-138

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CHAPTER FOURTEENCHAPTER FOURTEENCHAPTER FOURTEENCHAPTER FOURTEENCHAPTER FOURTEENCultural Resource ManagementCultural Resource ManagementCultural Resource ManagementCultural Resource ManagementCultural Resource Management

14.1 Issues and Public Concerns. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-14014.2 Program Overview. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-14014.3 Archaeological Resources. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-14114.4 Ethnographic Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-14214.5 Historic Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-14314.6 Objects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-14414.7 Native American Graves Protection and Repatriation Act. . . . . . . . . 14-14414.8 Cultural Resource Stewardship. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-14514.9 Summary of Changes and Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14-146

CHAPTER FIFTEENCHAPTER FIFTEENCHAPTER FIFTEENCHAPTER FIFTEENCHAPTER FIFTEENHavasupai Traditional Use LandsHavasupai Traditional Use LandsHavasupai Traditional Use LandsHavasupai Traditional Use LandsHavasupai Traditional Use Lands

15.1 Issues and Public Concerns. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15-14815.2 Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15-14815.3 Management of the Havasupai Use Lands . . . . . . . . . . . . . . . . . . . . . 15-14915.4 Native American Graves Protection and Repatriation Act. . . . . . . . . 15-15015.5 Culturally Sensitive Areas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15-15115.6 Summary of Changes and Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15-151

Section FourSection FourSection FourSection FourSection Four Wilderness Management PlanWilderness Management PlanWilderness Management PlanWilderness Management PlanWilderness Management PlanImplementationImplementationImplementationImplementationImplementation

CHAPTER SIXTEENCHAPTER SIXTEENCHAPTER SIXTEENCHAPTER SIXTEENCHAPTER SIXTEENWilderness Management Plan Implementation ScheduleWilderness Management Plan Implementation ScheduleWilderness Management Plan Implementation ScheduleWilderness Management Plan Implementation ScheduleWilderness Management Plan Implementation Schedule

16.1 Implementation Schedule. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16-152

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AppendicesAppendicesAppendicesAppendicesAppendices

A. The Wilderness Act of 1964. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . A-1B. National Park Service Management Policies:

Chapter 6, Wilderness Preservation and Management . . . . . . . . . . . . . . B-1C. History of the Wilderness Recommendation at Grand Canyon . . . . . . . . C-1D. Minimum Requirement Decision Process . . . . . . . . . . . . . . . . . . . . . . . . . D-1E. Recreational Opportunities and Permit Information for Adjacent Lands . E-1F. Wilderness Use by Persons with Disabilities. . . . . . . . . . . . . . . . . . . . . . . F-1G. Backcountry Reservation and Permit System. . . . . . . . . . . . . . . . . . . . . . .G-1H. Wilderness Stock Use Guidelines . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .H-1I. Commercial Use Policy. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-1J. Cave Entry Permit Application. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . J-1K. Use Area Codes, Limits and Camping Classification. . . . . . . . . . . . . . . . K-1L. Natural Conditions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . L-1M. Wild and Scenic Rivers. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . M-1N. Developing a Regional Wildlife Conservation Strategy. . . . . . . . . . . . . . . N-1O. Campsite Monitoring Manual . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .O-1

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List of FiguresList of FiguresList of FiguresList of FiguresList of Figures

Figure 1.1 Grand Canyon National Park Wilderness Map. . . . . . . . . . . . . 1 - 6Figure 2.1 Wilderness and Cross-Canyon Corridor Use . . . . . . . . . . . . . . 2 - 11Figure 2.2 Annual Use Patterns By Month, 1991-1995. . . . . . . . . . . . . . . . 2 - 12Figure 3.1 Wilderness and Backcountry Opportunity Classes. . . . . . . . . . 3 - 32Figure 3.2 Summary of Management Standards by Opportunity Class . . 3 - 33Figure 6.1 Proportion of Wilderness Campsite Types by

Opportunity Class . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 - 56Figure 6.2 Responsibilities Associated with Campsite Management. . . . 6 - 62Figure 6.3 Summary of Use Area Changes. . . . . . . . . . . . . . . . . . . . . . . . . 6 - 63Figure 7.1 Grand Canyon National Park Trails. . . . . . . . . . . . . . . . . . . . . . . 7 - 70Figure 7.2 Summary of Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 - 72Figure 8.1 Primitive Roads Open to Trailheads and Overlooks (chart). . . 8 - 76Figure 8.2 Primitive Roads Open to Trailheads and Overlooks (map) . . . 8 - 77Figure 10.1 Leave No Trace Principles. . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10- 95Figure 11.1 Steps, Goals, and Objectives Needed to Implement

Ecosystem Management. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11- 99Figure 12.1 Campsite Condition and Distribution Monitoring Matrix . . . . . 12-117Figure 12.2 Visitor Experience Monitoring Matrix. . . . . . . . . . . . . . . . . . . . . 12-118Figure 12.3 Cultural Resources Monitoring Matrix. . . . . . . . . . . . . . . . . . . . .12-120Figure 12.4 Water Resources Monitoring Matrix. . . . . . . . . . . . . . . . . . . . . . 12-121Figure 12.5 Trail Condition Monitoring Matrix. . . . . . . . . . . . . . . . . . . . . . . . 12-122Figure 12.6 Wilderness-Related Decision Matrix for Scientific Permit

Applications. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12-125Figure 14.1 Summary of Actions: Cultural Resource Management

Program and Stewardship Responsibilities. . . . . . . . . . . . . . . 14-146Figure 16.1 Implementation Schedule. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16-158

D.1 Process for Determining Minimum Requirement Matrix. . . . . . . . . . . . . . .D-6

J.1 Cave Entry Permit Application. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .J-1

K.1 Use Area Codes, Limits, and Camping Classification . . . . . . . . . . . . . . .K-2K.2 Cross-Canyon Corridor Campgrounds and Use Limits. . . . . . . . . . . . . . .K-5K.3 Designated Day Use Areas in Wilderness. . . . . . . . . . . . . . . . . . . . . . . . . K-5

O.1 Rapid Campsite Assessment (RCA) Data Sheet. . . . . . . . . . . . . . . . . . . O-5O.2 Campsite Monitoring Trip Report Form. . . . . . . . . . . . . . . . . . . . . . . . . . . .O-6

BibliographyBibliographyBibliographyBibliographyBibliography

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CHAPTEROne

IntroductionIntroductionIntroductionIntroductionIntroduction

1.1 Purpose and Need1.1 Purpose and Need1.1 Purpose and Need1.1 Purpose and Need1.1 Purpose and Need

he purpose of this Wilderness Management Plan is to guide themanagement of resources and visitoruse in the wilderness areas of GrandCanyon National Park. The primaryneed for the plan is to address wilder-ness and backcountry issues in thecontext of the Wilderness Act (SeeAppendix A, Wilderness Act); GrandCanyon�s enabling legislation; NationalPark Service (NPS) ManagementPolicies (See Appendix B, NPS Man-agement Policies); and the 1995 GrandCanyon National Park General Manage-ment Plan (GMP).

1.2 Wilderness1.2 Wilderness1.2 Wilderness1.2 Wilderness1.2 WildernessResponsibilitiesResponsibilitiesResponsibilitiesResponsibilitiesResponsibilities

The Wilderness Act defines wildernessas �an area where the earth and itscommunity of life are untrammeled[uncontrolled] by man...retaining itsprimeval character and influence, with-out permanent improvements....� Wilder-ness managers are instructed to �ad-minister [wilderness areas] for the useand enjoyment of the American peoplein such a manner as will leave themunimpaired for future use and enjoymentas wilderness [emphasis added].�

Wilderness reinforces the purposes ofthe national parks established by theNational Park Service Organic Act(1916) �to provide the enjoyment...insuch manner and by such means as willleave them unimpaired for the enjoy-ment of future generations.� The OrganicAct (as amended) allows for activities,including the protection, management,

and administration of national parksonly if �conducted in light of the highpublic value and integrity� of suchareas, �and shall not be exercised inderogation of the values and purposesfor which these areas have been estab-lished....� (16 USC 1a-1; NPS Man-agement Policies, 1:1)

The Wilderness Act also defines wil-derness as an area possessing �out-standing opportunities for solitude or aprimitive and unconfined type of recre-ation.� The Act not only strengthens theNPS preservation mandate, but pro-vides for and protects opportunities fora wilderness experience.

1.3 Scope of This1.3 Scope of This1.3 Scope of This1.3 Scope of This1.3 Scope of ThisWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementPlaPlaPlaPlaPlan

The Wilderness Management Planaddresses issues and provides guide-lines for managing those areas definedas proposed wilderness (See map,Figure 1.1). Over 94% (1.1 millionacres) of Grand Canyon National Parkis proposed for immediate designation.The proposed wilderness is primarilyinner canyon and rim areas and doesnot include the developed areas nor theCross-Canyon Corridor. The Cross-Canyon Corridor consists of camp-grounds, a tourist lodge, and rangerstations along the North Kaibab, SouthKaibab, and Bright Angel Trails. TheColorado River is proposed as �poten-tial wilderness,� and issues specific toriver management will be addressed inthe Colorado River Management Plan.Issues which pertain specifically to theCross-Canyon Corridor and the Colo-

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rado River are not within the purview ofthis Wilderness Management Plan.

This Plan has incorporated some of themanagement objectives, standards, andstrategies of the 1988 BackcountryManagement Plan. Within this frame-work, this Plan provides direction formanagement of natural and culturalresources within the context of wilder-ness management policies, with aprimary focus on visitor use and impactsto wilderness values and resources.Changes since the 1988 Plan are notedat the end of the applicable chapter.

1.4 Goals of the1.4 Goals of the1.4 Goals of the1.4 Goals of the1.4 Goals of theWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementPlanPlanPlanPlanPlan

As stated in the 1995 Grand CanyonGeneral Management Plan

The vision statements for the parkconvey the essence of the park�squalities and desired future condi-tions... The visions affirm what mustbe preserved, as well as what typesof experiences visitors should beable to expect.

In terms of Wilderness, the GMP furtherstates that

...these areas offer visitors opportuni-ties for solitude and primitive recre-ation. The management of theseareas should preserve wildernessvalues and character. Non-wilder-ness undeveloped areas shouldcontinue to serve primarily as primi-tive thresholds to wilderness.

Visitors traveling through theCanyon in the backcountry shouldhave the opportunity for a variety ofpersonal outdoor experiences,ranging from solitary to social.Visitors should be able to continueto experience the backcountry withas little influence from the modernworld as possible. The backcountryexperience should help visitorsrelate intimately to the majesty ofthe Canyon.

Within this context, this WildernessManagement Plan is intended to servethe following goals

1. Provide guidance and describestrategies for meeting legislativeand policy mandates on wildernessmanagement while providingrecreational opportunities consis-tent with wilderness, for a broadrange of visitor experiences andsettings, and preserving and pro-tecting the natural, cultural, andsocial resources of Grand CanyonNational Park.

2. Provide for the continuity of wilder-ness management throughoutchanges of park administration andstaff.

1.5 Objectives of the1.5 Objectives of the1.5 Objectives of the1.5 Objectives of the1.5 Objectives of theWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementPlanPlanPlanPlanPlan

The management objectives of thisWilderness Management Plan arebased on the Park�s vision statementsarticulated in the GMP, and are within

If futureIf futureIf futureIf futureIf futuregenerationsgenerationsgenerationsgenerationsgenerations

are toare toare toare toare toremember usremember usremember usremember usremember us

withwithwithwithwithgratitudegratitudegratitudegratitudegratitude

rather thanrather thanrather thanrather thanrather thancontempt,contempt,contempt,contempt,contempt,

we must leavewe must leavewe must leavewe must leavewe must leavethem morethem morethem morethem morethem morethan thethan thethan thethan thethan the

miracles ofmiracles ofmiracles ofmiracles ofmiracles oftechnology.technology.technology.technology.technology.

We must leaveWe must leaveWe must leaveWe must leaveWe must leavethem athem athem athem athem aglimpseglimpseglimpseglimpseglimpse

of the worldof the worldof the worldof the worldof the worldas it wasas it wasas it wasas it wasas it wasin thein thein thein thein the

beginning,beginning,beginning,beginning,beginning,not just afternot just afternot just afternot just afternot just after

w ew ew ew ew egotgotgotgotgot

throughthroughthroughthroughthroughwithwithwithwithwithit.it.it.it.it.

PresidentLyndon B.Johnson

on signing theWilderness Act,

1964

1-2


the intent of the enabling legislation andWilderness Act. The objectives, whichare quantifiable and measurable, de-scribe desired conditions to beachieved.

Objective OneObjective OneObjective OneObjective OneObjective One

Establish and implement a permitsystem that

� serves the visitor by providing theopportunity to obtain permits forwilderness and nonwildernessareas that yield the type of experi-ence they seek

� serves Park management byproviding an effective way toeducate the public on low-impactpractices, ethics, and safety

� serves Park management byproviding data on hiker use levelsand distribution in order to makeinformed decisions regarding themanagement and protection ofbackcountry and wildernessresources.

Chapter 5Backcountry Permit System

Chapter 6Wilderness Campsite Management

Chapter 12Monitoring and Research

Objective TwoObjective TwoObjective TwoObjective TwoObjective Two

Establish indicators and standards fordesired visitor experiences, and bio-physical and cultural resources; monitorregularly the condition of these indica-tors; and take management action asnecessary to meet these standards.

Chapter 3Wilderness Management

Planning Framework

Chapter 6Wilderness Campsite Management


Chapter 13Restoration and Rehabilitation ofRecreational Impacts

Chapter 14Cultural Resource Management

Objective ThreeObjective ThreeObjective ThreeObjective ThreeObjective Three

Provide access consistent with wilder-ness values, including protection ofnatural and cultural resources. Preservethe character of individual trails, andestablish minimal standards for primi-tive roads.

Chapter 7Trails Management

Chapter 8Semi-Primitive Access and Facilities

TheTheTheTheThechapterschapterschapterschapterschaptersandandandandandappendicesappendicesappendicesappendicesappendiceswhichwhichwhichwhichwhichdiscussdiscussdiscussdiscussdiscussactions toactions toactions toactions toactions tomeet statedmeet statedmeet statedmeet statedmeet statedobjectivesobjectivesobjectivesobjectivesobjectivesare listedare listedare listedare listedare listedafter eachafter eachafter eachafter eachafter eachobjective.objective.objective.objective.objective.

1-3


Objective FourObjective FourObjective FourObjective FourObjective Four

Establish a coordinated interpretive/educational program to provide hikersadequate information to plan and ex-ecute an enjoyable and safe expedition,whether hiking for a day or for an ex-tended period, and to conduct them-selves in a manner which is not damag-ing to wilderness resources and values.


Chapter 9Safety and Emergency Operations

Chapter 10Interpretation, Education, andInformation

Objective FiveObjective FiveObjective FiveObjective FiveObjective Five

Provide, through partnerships withadjacent land-managing agencies,information on wilderness and nonwil-derness recreational opportunities onadjacent lands, including National ForestService, Bureau of Land Management,State, and Tribal lands.

Chapter 4Recreational Use of Wilderness


Chapter 15Havasupai Traditional Use Lands

Appendix ERecreational Opportunities and PermitInformation for Adjacent Lands

Objective SixObjective SixObjective SixObjective SixObjective Six

Provide a reasonable level of publicsafety, consistent with wildernessareas in accordance with NPS Man-agement Policies and Park guide-lines.

Chapter 4Recreational Use of Wilderness

Chapter 9Safety and Emergency Operations

Chapter 10Interpretation, Educationand Information

Objective SevenObjective SevenObjective SevenObjective SevenObjective Seven

Encourage research which adds to anunderstanding of the Park and contrib-utes to the body of knowledge requiredfor effective management and protec-tion of wilderness resources andvalues.

Chapter 11Ecosystem Management


1-4


Objective EightObjective EightObjective EightObjective EightObjective Eight

Develop, through partnerships withadjacent land-management agencies,conservation organizations, and insti-tutes of higher learning, an interagencyecosystem-management strategy. Thestrategy will emphasize restoration andmaintenance of natural processes andviable populations of all native speciesin natural patterns of abundance anddistribution.

Chapter 11Ecosystem Management

1.6 Wilderness1.6 Wilderness1.6 Wilderness1.6 Wilderness1.6 WildernessManagement Plan ReviewManagement Plan ReviewManagement Plan ReviewManagement Plan ReviewManagement Plan Reviewand Updateand Updateand Updateand Updateand Update

The Wilderness Management Plan willbe effective for a minimum of five years,and a period not to exceed ten years.Staff with wilderness responsibilities,including the Wilderness Coordinator,Wilderness District Ranger, and TrailCrew Foreman will conduct an annualreview. The annual review process willincorporate data from resource monitor-ing and research projects, visitor usestatistics, and status reports on visitoruse management in the Park�s wilder-ness areas. The purpose of the annualreview will be to evaluate the status andeffectiveness of management actions,and to ensure that the managementobjectives stated in this Plan are beingmet. Priorities of implementing actionsdescribed in the Plan will also be deter-mined, and incorporated into the annualwork plans for the appropriate work unit.

The Wilderness Management Planupdate will occur within a five-yearperiod depending on the need formajor revision and update as deter-mined through the annual review pro-cess or as necessitated by change inGrand Canyon National Park manage-ment direction and/or NPS policy. Theupdate will incorporate public meetingsand comments, research and monitor-ing data, visitor use information, NPSpolicy, and legislated wilderness man-dates.

1-5


1-6


2.1 Grand Canyon National2.1 Grand Canyon National2.1 Grand Canyon National2.1 Grand Canyon National2.1 Grand Canyon NationalPark WildernessPark WildernessPark WildernessPark WildernessPark WildernessRecommendationRecommendationRecommendationRecommendationRecommendation

he Grand Canyon National Park Enlargement Act of January 3,1975, as amended June 10, 1975,required the National Park Service toprepare a wilderness recommendationfor Grand Canyon National Park. InSeptember 1980, the NPS submitted awilderness recommendation consistingof 980,088 acres proposed for immedi-ate designation, and 131,814 acresproposed for potential wildernessdesignation. (U.S. Department of theInterior, National Park Service 1980).

Since that time, acquisition of grazing,mineral, and other leases, and comple-tion of land-use studies, necessitated arevision of the recommendation. The1993 update of the 1980 recommenda-tion (U.S. Department of the Interior,National Park Service 1993) is basedon changes in the land status of pro-posed potential wilderness, the 1969Field Solicitor�s opinion regarding thewestern boundary of the Navajo Reser-vation, and refinements in acreagedetermined by the Geographical Infor-mation System (GIS). All changes areconsistent with the letter or intent of the1980 recommendation (Crumbo 1996).

Two units totaling 1,139,077 acres areproposed for wilderness designation inGrand Canyon National Park. Theseunits include about 94% of the Park�stotal area. Of this total, 1,109,257 acresare proposed for immediate wildernessdesignation, and 29,820 are proposed

CHAPTER2

WildernessWildernessWildernessWildernessWildernessManagementManagementManagementManagementManagement

atatatatatGrandGrandGrandGrandGrandCanyonCanyonCanyonCanyonCanyonNationalNationalNationalNationalNationalParkParkParkParkPark

for designation as potential wilderness,pending resolution of boundary andmotorized riverboat issues (See Ap-pendix C, A History of the WildernessRecommendation at Grand CanyonNational Park). Represented withinthese units are examples of all thePark�s physiographic regions. A mapof the Grand Canyon National Parkwilderness is included as Figure 1.1.

The 1975 Grand Canyon EnlargementAct dealt directly with the question ofoccupancy and use of the HavasupaiReservation lands of Grand CanyonNational Park. The Act declared areservation of approximately 185,000acres to be held in trust for the Havasu-pai Tribe, and specified conditions onthe uses of those trust lands. The Actalso provided for an additional 95,300acres as �Havasupai Use Lands� withinGrand Canyon National Park where theSecretary may allow tribal uses �...sub-ject to such reasonable regulations ashe may prescribe to protect the scenic,natural, and wildlife values thereof.�Congressional intent to include theselands within the wilderness recommen-dation was explicit.

NPS Management Policies (1988)require that proposed wilderness studyareas be managed as designatedwilderness, and that no actions betaken that would diminish wildernesssuitability until the legislative processfor wilderness designation has beencompleted. The General ManagementPlan (1995) treats all proposed wilder-ness areas as designated wilderness,and anticipates the final resolution ofwilderness issues.

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2.22.22.22.22.2 Natural and CulturalNatural and CulturalNatural and CulturalNatural and CulturalNatural and CulturalAspects of theAspects of theAspects of theAspects of theAspects of theWilderness ResourceWilderness ResourceWilderness ResourceWilderness ResourceWilderness Resource

Natural ResourcesNatural ResourcesNatural ResourcesNatural ResourcesNatural Resources

Grand Canyon National Park containssome of the world�s most spectaculartopography. The Canyon is about a miledeep, and varies in width from a mini-mum of 75 feet at river level in theMiddle Granite Gorge to about 18 milesat rim level along the Bright Angel Faultbetween Grand Canyon Village and theNorth Rim. Sedimentary rock layershave been carved into buttes, temples,and spires by water, wind, and faults. Inaddition, the Canyon is comprised ofigneous and metamorphic rock, volca-noes and lava flows, waterfalls, springs,and caverns.

The plant communities within the GrandCanyon vary from cool, moist subalpineforests and meadows between 8,000and 9,000 feet to hot, dry deserts atelevations as low as 1,200 feet. About1,500 plant species occur within thePark, including one listed endangeredspecies, and several other candidatespecies. Cryptogamic soil crusts areextensive in portions of the Canyon, butare highly vulnerable to the impacts ofrecreational use.

Grand Canyon National Park is a valu-able wildlife refugia due to the immenseprimitive areas, the topographic charac-ter, and the relatively unfragmentedhabitat. There are 315 bird species, 88mammal species, 50 reptile and eightamphibian species, 21 fish species(including five native species), and

thousands of different aquatic andterrestrial invertebrates. Seven ani-mals are officially listed as endan-gered, one as threatened, and a dozenare listed as sensitive or candidatespecies. The Kaibab squirrel, forexample, is a unique subspecies thathas coevolved with natural processes,such as fire, on the Kaibab Plateau.The California condor, recently reintro-duced immediately outside the Park,will become an uncommon but appre-ciated inhabitant.

The largest carnivore, the mountainlion, roams much of the Grand Canyon,although little is known about theirpopulations. Mammals common to theinner canyon include mule deer anddesert bighorn sheep. Other wildlife,sometimes considered threats topersonal comfort or safety, includeground squirrels, ringtail cats, stripedskunks, rattlesnakes, and scorpions.Regulations pertaining to propercamping distance from creeks andsprings are primarily for the protectionof water resources, habitat, and pre-vention of wildlife disturbance. Theproper storage of food, and low-impact meal preparation practiceshelp avoid unwanted encounters withrodents and insects at wildernesscampsites.

Water resources originating as springsand seeps in the inner canyon provideimportant water sources for wildlifeand humans. At least 70 major springsand streams are supported by ground-water draining from plateaus outsidethe Park boundary. The major watersource for many backcountry users is

Every greatEvery greatEvery greatEvery greatEvery greatlandscapelandscapelandscapelandscapelandscape

carries in itscarries in itscarries in itscarries in itscarries in itsbeautybeautybeautybeautybeauty

the seeds ofthe seeds ofthe seeds ofthe seeds ofthe seeds ofits ownits ownits ownits ownits own

destruction.destruction.destruction.destruction.destruction.PrimitivePrimitivePrimitivePrimitivePrimitivewildernesswildernesswildernesswildernesswilderness

characteristicscharacteristicscharacteristicscharacteristicscharacteristicsgive thegive thegive thegive thegive the

national parksnational parksnational parksnational parksnational parkstheir realtheir realtheir realtheir realtheir realprestigeprestigeprestigeprestigeprestigeand willand willand willand willand will

increasinglyincreasinglyincreasinglyincreasinglyincreasinglyadd to theiradd to theiradd to theiradd to theiradd to theirdistinction asdistinction asdistinction asdistinction asdistinction asthese qualitiesthese qualitiesthese qualitiesthese qualitiesthese qualities

disappeardisappeardisappeardisappeardisappearelsewhere. Butelsewhere. Butelsewhere. Butelsewhere. Butelsewhere. Butthese qualitiesthese qualitiesthese qualitiesthese qualitiesthese qualitiesare readilyare readilyare readilyare readilyare readilydestroyed;destroyed;destroyed;destroyed;destroyed;they arethey arethey arethey arethey are

fragile things.fragile things.fragile things.fragile things.fragile things.How preserveHow preserveHow preserveHow preserveHow preserve

them?them?them?them?them?The answerThe answerThe answerThe answerThe answermay wellmay wellmay wellmay wellmay well

depend upondepend upondepend upondepend upondepend uponhow clearlyhow clearlyhow clearlyhow clearlyhow clearly

w ew ew ew ew edefinedefinedefinedefinedefineourourourourouraims.aims.aims.aims.aims.

Newton B. DruryDirector,

National ParkService,1940-1951

2-8


the Colorado River which bisects thePark, flowing a distance of 277 milesbetween the reservoirs of Lake Powelland Lake Mead. While major tributariesand the Colorado River provide peren-nial water, seeps and springs in manyside canyons may be unreliable sourcesat different times of the year.

Grand Canyon enjoys some of thenation�s cleanest air. Under the CleanAir Act, the Park is a Class I area whichaffords the highest level of protectionfrom increased pollution. Air quality isinfluenced by humidity, precipitation,and temperature inversions, as well aslong-distance, regional, and local pollu-tion sources. Under the most pristineconditions, visitors may enjoy a visual ofrange of more than 240 miles.

Natural sounds and natural quiet havelong been regarded as Park resources.They are among the conditions andresources the National Park Service ismandated to protect and preserve. Justas natural quiet is important to visitorexperience and Park appreciation, it isalso critically important to other pro-tected Park resources. �Non-naturalsounds� (i.e., introduced, human-caused, or mechanically producedsounds) may, depending on location,volume, and timing, produce direct andindirect negative physiological andbehavioral responses in wildlife.

Nonnatural sounds may also negativelyimpact cultural resources, specifically,ceremonial, sacred, or traditional-usesites. The presence of aerial overflights,motorized rafts, and power tools canthreaten wilderness values.

Cultural ResourcesCultural ResourcesCultural ResourcesCultural ResourcesCultural Resources

Grand Canyon National Park containsa rich assortment of cultural resourcesspanning 10,000 years of humanoccupation. Four cultural resourcecategories are present in the wilder-ness areas of Grand Canyon NationalPark: archeological, ethnographic,historic, and objects.

At present, six historic districts, twoprehistoric sites and one individualstructure are listed on the NationalRegister of Historic Places. One pre-historic site and one historic district arelocated in the wilderness; the Little Jugsite is located on the Uinkaret Plateau,near Tuweep, while the Last ChanceMine Historic District is located at thebase of the Grandview Trail on Horse-shoe Mesa.

In 1980 the entire Park was determinedeligible by the State Historic Preserva-tion Officer as a multiple resourcearcheological district. Formal listinghas yet to be completed. Historicproperties listed on the National Regis-ter of Historic Places, as well as thosethat are pending nomination and thosethat are eligible for nomination, aresubject to the same protections underthe National Historic Preservation Actand NPS policies. Determinations ofeligibility for the National Register havebeen received for ten trails within theCanyon.

Archeological ResourcesArcheological ResourcesArcheological ResourcesArcheological ResourcesArcheological Resources

Nearly 3,700 prehistoric and historicsites have been documented in Grand

2-9


Canyon National Park to date, and it isestimated that approximately 50,000sites are present. The existing inventoryis based on intensive survey of only twopercent of the Park. The archaeologicalresources of Grand Canyon encompassa wide variety of cultural remains indicat-ing human use of the Canyon over thepast 10,000 years.

In addition to the prehistoric and historicAmerican Indian archaeological legacy,physical remains of Euro-Americanendeavors from the time of first contactin 1540 through development of thenational park are represented in thearchaeological record. The historicarchaeological record includes evidenceof early exploration by John WesleyPowell and Robert Brewster Stanton,mineral exploitation by Ralph Cameron,Pete Berry, William Wallace Bass, LouisBoucher, and John Hance among oth-ers, and the remains of early touristenterprises.

Historic ResourcesHistoric ResourcesHistoric ResourcesHistoric ResourcesHistoric Resources

Historic resources are cultural resourceswhich have been determined significantin a historic context or theme, on Parklands. Significance has been achievedduring the historic, as opposed to theprehistoric, time period. Historic re-sources include districts, sites, land-scapes, structures, archival materials,and objects. Significance is determinedprimarily through archival research.

The historic period is best summarizedby the history of exploration, exploitation,pioneer settlement, railroad develop-ment, and Federal administration.

Ethnographic ResourcesEthnographic ResourcesEthnographic ResourcesEthnographic ResourcesEthnographic Resources

An ethnographic resource is definedas any natural or cultural resourcelinked to traditional practices, values,beliefs, history, and/or ethnic identity ofa cultural group or groups.

Grand Canyon has been home tovarious peoples for thousands ofyears. These people, both AmericanIndians and Euro-Americans, haveused the Canyon as both a home anda place linked to traditional practices,values, and beliefs. To the Hopi andZuni, the Grand Canyon representstheir place of origin into this world. ForHopi, it also represents the placewhere their spirits come to rest afterdeath. For the Pueblo people (Hopiand Zuni), archaeological remains inthe Canyon provide evidence for theirmigration from their place of origin totheir present homes. For the Paipeople (Hualapai and Havasupai), theCanyon and the River are lands forwhich they have been entrusted tocare. For the Southern Paiute, theCanyon represents a place given tothem by the Creator to protect andmanage, including its water and natu-ral resources. To the Navajo people,the Colorado River in Grand Canyonforms a protective boundary on thewestern border of Navajo land, andsome Navajo clans trace their ancestryto specific Canyon locations.

Euro-Americans recognized theCanyon�s spiritual values in the estab-lishment of Grand Canyon NationalPark in 1919. World Heritage designa-tion informed the world that the Grand

2-10


Canyon had value beyond just theAmerican people. The 1975 GrandCanyon Enlargement Act specifiednatural quiet and scenic views as impor-tant, yet intangible, qualities that mustbe protected. These, too, are ethno-graphic resources.

2.32.32.32.32.3 Description ofDescription ofDescription ofDescription ofDescription ofWilderness Visitor UseWilderness Visitor UseWilderness Visitor UseWilderness Visitor UseWilderness Visitor Use

Permits are required for backcountryuse. Over 15,000 backcountry permitsare issued annually. Although morepermits are issued for the Cross-Can-yon Corridor, total use is highest inwilderness areas. Overall backcountry

and wilderness use is measured in�user nights,� which is defined as oneperson per night. Wilderness usestatistics indicate a significant increasein use from 1988 to 1996. (See Figure2.1, Wilderness and Cross-CanyonCorridor Use).

Since 1993, user night totals haveexceeded 100,000 annually. Permitoperations changed in that year whenthe Park began issuing permits fourmonths in advance by mail. Prior to thistime, backcountry users were requiredto pick up permits at the Park just priorto their hike. The change in the permitsystem allowed operations to issue

Figure 2.1Figure 2.1Figure 2.1Figure 2.1Figure 2.1

WildernessWildernessWildernessWildernessWildernessand Cross-and Cross-and Cross-and Cross-and Cross-CanyonCanyonCanyonCanyonCanyonCorridorCorridorCorridorCorridorCorridorUseUseUseUseUse

2-11


permits more efficiently, but at the sametime sacrificed accountability of actualuse versus cancellations and changes intrip plans, including the number ofpeople in each party. Statistically, visitoruse peaks in the wilderness areas in themonths of April and October, which istypically when conditions are mostamenable for wilderness travel. (SeeFigure 2.2, Annual Use Patterns byMonth, 1991-1995.)

Sociological research and studies onbackcountry users at Grand Canyonreveal that, demographically, the popula-tion of users appears to conform withnational trends for wilderness use

(Hendee, et al. 1990). Studies showedthat the highest proportion of userswere between the ages of 23 and 35,lived in cities of 75,000 or more, hadan annual income of at least $50,000,and that over two-thirds had completedat least four years of college (Underhill,et al. 1986; and Jalbert 1992).

Although it is difficult to determine theoverall experience level of hikers in theGrand Canyon wilderness Use Areas,it is known that the more experiencedhikers tend to use more remote areas.Research conducted by Underhill andothers in 1986 evaluated the hikingexperience of overnight users; the

Figure 2.2Figure 2.2Figure 2.2Figure 2.2Figure 2.2

Annual UseAnnual UseAnnual UseAnnual UseAnnual UsePatterns byPatterns byPatterns byPatterns byPatterns byMonth, 1991-Month, 1991-Month, 1991-Month, 1991-Month, 1991-19951995199519951995

2-12


results showed seasonal differencesamong users. Summer hikers were theleast experienced group at GrandCanyon, winter hikers most experi-enced, with spring and fall hikers inbetween.

There is little variation in the seasonaldistribution of overnight use in theThreshold Use Areas; whereas, themore remote Primitive and Wild UseAreas have higher use in the spring andfall (Jalbert 1992). For a discussion ofUse Areas see Chapter Six, WildernessCampsite Management.

The maximum allowed group size is 11people. Park statistics show that theaverage size of an overnight hiking partyis 3.3 persons, and the average triplength is three days (Backcountry Office,1988-95). The studies showed thatgroups of two made up the highestproportion of users, followed by groupsof three or more, and solo hikers(Underhill, et al. 1986; Jalbert 1992). Ofthe groups with two or more people,over 50% were friends hiking together,less than 30% were families, and lessthan 10% were organized groups(Underhill, et al. 1986 and Jalbert 1992).

Wilderness hikers often encounter otheruser groups including stock users andday hikers on popular Corridor trails,and river users at beaches and attrac-tion sites along the Colorado River.Currently, private and commercial stockuse in the inner canyon is limited to 40miles of trail, primarily within the Cross-Canyon Corridor. Several miles ofprimitive roads and trails on the rims arealso open to stock use. Designated

stock camps are also located near thedeveloped Corridor campgrounds.Frequent encounters with day hikersare most common on the Corridortrails, and are increasing on trailsaccessible from popular rim overlooks.Encounters with river users along theColorado River vary seasonally. Duringthe summer months when river use ishighest, hikers who camp at popularbeaches may encounter groups of up to36 people travelling on large motorizedrafts. A small hiking group could poten-tially encounter a large river trip atpopular attraction sites within largetributaries of the Colorado River.

2.42.42.42.42.4 Mandates GuidingMandates GuidingMandates GuidingMandates GuidingMandates GuidingPark ActionsPark ActionsPark ActionsPark ActionsPark Actions

Congressional legislation, NationalPark Service policies, and Park poli-cies provide guidelines for administer-ing each national park. The guidelinestend to become more specific as onemoves from Congressional acts to localpolicies. While the mandates authorizethe establishment and delegate man-agement of Federal lands, the purposeand significance, goals, and manage-ment objectives are further defined innational and local park policies.

National Park ServiceNational Park ServiceNational Park ServiceNational Park ServiceNational Park ServiceLegislationLegislationLegislationLegislationLegislation

The National Park Service Organic Actof 1916 (39 Stat. 535, 16 USC 1)established the NPS and provided theagency with its fundamental directionby defining its purpose, which is to:

2-13


been or shall be directly andspecifically provided by Con-gress.

Congress intended park visitation tobe contingent upon the ability of theNPS to preserve park environments inan unimpaired condition. What consti-tutes an �impaired� resource is ulti-mately a management determination. Itis in this context that the vision, goals,and objectives for wilderness manage-ment at Grand Canyon were devel-oped and are being implemented.

Grand Canyon National ParkGrand Canyon National ParkGrand Canyon National ParkGrand Canyon National ParkGrand Canyon National ParkLegislationLegislationLegislationLegislationLegislation

On January 11, 1908, PresidentTheodore Roosevelt, under the author-ity of the Antiquities Act of 1906,reserved land as the Grand CanyonNational Monument. In ProclamationNo. 794 (35 Stat. 2175), Rooseveltstated that the Grand Canyon is:

...an object of unusual scientificinterest, being the greatesteroded canyon within the UnitedStates, and it appears that thepublic interests would be pro-moted by reserving it as aNational Monument with suchother land as is necessary for itsproper protection.

The Grand Canyon National ParkEstablishment Act of 1919 (40 Stat1175) dedicated and set apart GrandCanyon National Park as a �publicpark for the benefit and enjoyment ofthe people.� In the Grand CanyonNational Park Enlargement Act of

...promote and regulate the use ofthe Federal areas known as Na-tional Parks...by such means andmeasures as conform to the fun-damental purpose of the saidParks... which purpose is to con-serve the scenery and the naturaland historic objects and the wild lifetherein and to provide for the en-joyment of the same in such man-ner and by such means as willleave them unimpaired for the en-joyment of future generations.

These areas derive increased na-tional dignity and recognition oftheir environmental quality....Theauthorization of activities shall beconstrued and the protection,management, and administrationof these areas shall be conductedin light of the high public valuesand integrity of the National ParkSystem and shall not be exer-cised in derogation of the valuesand purposes for which these vari-ous areas have been established.

The Redwood Act Amendments in 1978(16 U.S.C. §1a-1) further expanded theOrganic Act to state:

The authorization of activitiesshall be construed and the pro-tection, management, and ad-ministration of these areas shallbe conducted in light of the highpublic value and integrity of theNational Park System and shallnot be exercised in derogation ofthe values and purposes for whichthese various areas have beenestablished, except as may have

2-14


1975 (16 U.S.C. §228a et seq.) Con-gress stated that its object was to:

...provide for the recognition byCongress that the entire GrandCanyon, from the mouth of theParia River to the Grand WashCliffs, including the tributary sidecanyons and surrounding pla-teaus, is a natural feature ofnational and international signifi-cance. Congress therefore recog-nizes the need for the furtherprotection and interpretation ofthe Grand Canyon in accordancewith its true significance.

On June 10, 1975, The Grand CanyonNational Park Enlargement Act wasamended (P.L. 94-31), and provided theSecretary of the Interior two years tomake a recommendation as to thesuitability or nonsuitability of any portionof the Park as wilderness.

World Heritage SiteWorld Heritage SiteWorld Heritage SiteWorld Heritage SiteWorld Heritage SiteDesignationDesignationDesignationDesignationDesignation

In October 1979, Grand Canyon Na-tional Park was designated as a WorldHeritage Site by the United NationsEducational, Scientific and CulturalOrganization (UNESCO). As a WorldHeritage Site, the Grand Canyon wasgiven the greatest protection for anatural area. The protection of thearea�s outstanding geological, biologi-cal and cultural features and processesis assured for all people for all time. TheGrand Canyon is unique in meeting bothnatural and cultural resource criteria forWorld Heritage Site designation.

The Wilderness Act of 1964The Wilderness Act of 1964The Wilderness Act of 1964The Wilderness Act of 1964The Wilderness Act of 1964

The Wilderness Act of 1964 (P.L. 88-577) guides the form of most adminis-trative decisions affecting the Park�swilderness. The purpose of Wilderness,as stated in the Act, is:

To establish a National Wilder-ness Preservation System forthe permanent good of the wholepeople...to secure for the Ameri-can people of current and futuregenerations the benefits of anenduring resource of wilderness(Section 1 (a)).

The National Wilderness Preser-vation System, therefore, is forpeople and its components areto be administered in such amanner as will leave them unim-paired for future use and enjoy-ment as wilderness, and so as toprovide for the protection ofthese areas, the preservation oftheir wilderness character, andfor the gathering and dissemina-tion of information regardingtheir use and enjoyment aswilderness (Section 2(c)).

The Act implicitly distinguishes be-tween an area�s public purposes andthe administrative actions necessary torealize those purposes. The Wilder-ness Act does not contradict asuperintendent�s discretionary authorityto administer a park. As the Act states:

...except as necessary to meetminimum requirements for theadministration of the area for the

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purpose of this Act (includingmeasures required in emergen-cies involving the health andsafety of persons within the area),there shall be no temporary road,no use of motor vehicles, motor-ized equipment or motor boats,no landing of aircraft, no otherform of mechanical transport, andno structure or installation withinany such area (Section 4(c)).

The Act makes clear that mechanized ormotorized equipment is inappropriatefor public purposes like recreation,education, or scientific study that is notserving administrative purposes. Suchequipment, however, is occasionallyappropriate for administration of awilderness area, provided that the resultmeets the Act�s requirements for suchan effort. More specifically, efforts ne-cessitating the equipment must protector rehabilitate the area�s character andcontents as wilderness for enjoyment orstudy by future generations.

The Americans WithThe Americans WithThe Americans WithThe Americans WithThe Americans WithDisabilities Act (ADA)Disabilities Act (ADA)Disabilities Act (ADA)Disabilities Act (ADA)Disabilities Act (ADA)

The Americans With Disabilities Actaddresses the issue of accessibility inthe National Wilderness PreservationSystem:

...Congress reaffirms that nothingin the Wilderness Act is to beconstrued as prohibiting the useof wheelchairs by an individualwhose disability requires use of awheelchair, and consistent withthe Wilderness Act, no agency isrequired to provide any form of

special treatment or accommo-dation, or to contract any facili-ties or modify any conditions oflands within a wilderness area tofacilitate such use.

Additionally, the ADA defines the termwheelchair as �a device designedsolely for use by a mobility-impairedperson for locomotion, that is suitablefor use in an indoor pedestrian area.�(See Appendix F, Wilderness Use ByPersons with Disabilities; U.S. Depart-ment of Agriculture. National ForestService 1996).

The National EnvironmentalThe National EnvironmentalThe National EnvironmentalThe National EnvironmentalThe National EnvironmentalPolicy Act (NEPA)Policy Act (NEPA)Policy Act (NEPA)Policy Act (NEPA)Policy Act (NEPA)

The National Environmental Policy Actof 1969 (P.L. 91-190; 31 Stat. 852)declared a Federal policy to �preserveimportant historic, cultural, and naturalaspects of our national heritage.� Itrequired Federal agencies to �utilizesystematic, interdisciplinary ap-proaches which will insure the inte-grated use of the natural and socialsciences and the environmental de-sign arts in planning and in decisionmaking which may have an impact onman�s environment.�

With the passage of NEPA, Federalagencies were required to use aspecific environmental planning pro-cess where any Federal action beingconsidered would, if implemented,have an impact on the human environ-ment. These actions may include, butare not limited to, adoption of policy,plans, programs, and approvingprojects and permits. NEPA sets

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environmental policy goals; imposesanalysis of potential environmental,social, and economic impacts; andrequires a public review process.

The National HistoricThe National HistoricThe National HistoricThe National HistoricThe National HistoricPreservation Act (NHPA)Preservation Act (NHPA)Preservation Act (NHPA)Preservation Act (NHPA)Preservation Act (NHPA)

The National Historic Preservation Actof 1966 (P.L. 89-665, 80 Stat. 915), asamended in 1992 (P.L. 102-575), de-clared a national policy of historic pres-ervation, including encouragement ofpreservation on the State and privatelevels. It authorized the Secretary of theInterior to expand and maintain theNational Register of Historic Places. Itestablished the Advisory Council onHistoric Preservation and designatedState Historic Preservation Officers. Itrequired Federal agencies to considerthe effects of their undertakings onproperties listed or eligible for listing onthe National Register.

By incorporating Executive Order11593, it instructed all Federal agenciesto support the preservation of culturalproperties and directed them to identifyand nominate to the National Registerproperties under their jurisdiction whichmay be eligible. The 1992 amendmentsredefined �Federal undertaking� andemphasized the interests of AmericanIndians, Native Hawaiians, and NativeAlaskans. It also introduced the conceptof Traditional Cultural Properties asNational Register eligible properties,and included additional provisions forlocation confidentiality.

2.52.52.52.52.5 National ParkNational ParkNational ParkNational ParkNational ParkService PoliciesService PoliciesService PoliciesService PoliciesService Policies

Authority for implementing Congres-sional laws is delegated to agencieswhich identify and interpret all relevantlaws, and formulate managementpolicies to guide their implementation.For the NPS, these policies are setforth in a document titled NPS Man-agement Policies, revised in 1988.

These policies provide direction formanagement decisions; adherence is�mandatory unless waived or modifiedby an appropriate authority.� Recom-mended procedures for implementingservicewide policy are described in theNPS guideline series, and are alsomandatory where the language soindicates.

Wilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementWilderness Management

National Park Service wildernessmanagement policies are based onprovisions of the Organic Act and theWilderness Act, as well as the estab-lishing legislation of individual parkswithin the national system. NPS Man-agement Policies (6:8) treats all cat-egories of wilderness in the samemanner:

...the term wilderness includesthe categories of designatedwilderness, potential wilderness,and recommended/study wilder-ness, and these policies applyregardless of category...

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The Park Service will take noaction that would diminish thewilderness suitability of an arearecommended for wildernessstudy or for wilderness designa-tion until the legislative processhas been completed. Until thatprocess has been completed,management decisions pertain-ing to recommended wildernessand wilderness study areas will bemade in expectation of eventualwilderness designation.

NPS Management Policies also ad-dresses the management of public useof wilderness, and states that the NPSwill �encourage and facilitate those usesof wilderness that require the wildernessenvironment and do not degrade wilder-ness resources and character.� Asstated in the Wilderness Act, theseareas are for public purposes of recre-ational, scenic, scientific, educational,conservation, and historical uses.

Regarding public use, NPS Manage-ment Policies (6:8) states:

Park visitors must accept wilder-ness largely on its own terms,without modern facilities providedfor their comfort or convenience.Users must also accept certainrisks, including possible dangersarising from wildlife, weatherconditions, physical features, andother natural phenomena, that areinherent in the various elementsand conditions that comprise awilderness experience and primi-tive methods of travel. The Na-tional Park Service will not elimi-

nate or unreasonably controlrisks that are normally associ-ated with wilderness, but it willstrive to provide users withgeneral information concerningpossible risks, recommendedprecautions, minimum-impactuse ethics, and applicablerestrictions and regulations.

Minimum Requirement PolicyMinimum Requirement PolicyMinimum Requirement PolicyMinimum Requirement PolicyMinimum Requirement Policy

In protecting wilderness character andresources, and in managing wilder-ness use in accordance with theWilderness Act, Grand Canyon Na-tional Park will adhere to the �minimumrequirement concept� within all pro-posed wilderness, including the rivercorridor. All decisions pertaining toadministrative practices and use ofequipment in wilderness will be basedon this concept. The guiding principleof the minimum requirement conceptis: �that only the minimum regimenta-tion necessary to achieve establishedwilderness management objectives isjustified...apply only the minimum tools,equipment, device, force, regulation,or practice that will bring the desiredresult� (Hendee, et al. 1990).

NPS Management Policies (6:4)requires the selection of �the mini-mum tool or administrative practicenecessary to successfully and safelyaccomplish the management objectivewith the least adverse impact onwilderness character and resources[emphasis added].� By indicating thatmanagers are to examine all adminis-trative practices and equipment use,the NPS applies the minimum require-

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ment analysis to the full breadth of thewilderness management tasks in pro-tecting wilderness resources. Thisincludes �outstanding opportunities forsolitude or a primitive and unconfinedtype of recreation.� This principle pro-vides an encompassing framework formanagement decisions at several levels(See Appendix D, Minimum Require-ment Decision Process).

2.62.62.62.62.6 Grand CanyonGrand CanyonGrand CanyonGrand CanyonGrand CanyonNational Park PoliciesNational Park PoliciesNational Park PoliciesNational Park PoliciesNational Park Policies

General Management PlanGeneral Management PlanGeneral Management PlanGeneral Management PlanGeneral Management Plan(GMP)(GMP)(GMP)(GMP)(GMP)

The Grand Canyon National Park Gen-eral Management Plan (U.S. Depart-ment of the Interior. National Park Ser-vice 1995) provides the overall directionfor the protection of resources andvisitor experiences. The GMP statesthat the Park�s purpose is based on theenabling legislation, and that as a placeof national and global importance,Grand Canyon Nation Park is to bemanaged to:

1) preserve and protect its naturaland cultural resources and ecologi-cal processes, as well as its scenic,aesthetic, and scientific values

2) provide opportunities for visitorsto experience and understand theenvironmental interrelationships,resources, and values of the GrandCanyon without impairing theresources.

The GMP specifies managementobjectives which are based on thePark�s purpose and significance, andwhich set the direction for manage-ment. Several management objectivesdefine the desired conditions for man-agement of wilderness values, includ-ing the preservation of visitor experi-ence and protection of natural andcultural resources.

The GMP also directs the preparationof separate action plans to implementoverall Park management. This in-cludes the development of this docu-ment, i.e., a plan for managing visitoruse and protecting resources in thePark�s backcountry and wildernessareas. The GMP specifies that, inaccordance with NPS ManagementPolicies, the proposed wilderness mustbe managed as designated wilder-ness, and �anticipates the final resolu-tion of wilderness issues, and thepreparation of a wilderness manage-ment plan as future actions.�

Resource Management PlanResource Management PlanResource Management PlanResource Management PlanResource Management Plan(RMP)(RMP)(RMP)(RMP)(RMP)

The Park�s 1997 Resource Manage-ment Plan (U.S. Department of theInterior. National Park Service 1997a)provides a comprehensive overview ofthe Park�s natural and cultural re-sources, and identifies actions that willenable the NPS to fulfill its legislativemandate to protect Grand Canyon inkeeping with its true significance.

The RMP defines specific, nonroutineactions for resource protection, andprovides justification for allocating

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funds to various resource managementprojects. The RMP contains a prioritylisting of projects determined by manag-ers to address primary issues. Pertinentto the scope of the Wilderness Manage-ment Plan, several project statementsaddress wilderness resources andvalues. Included in the projects state-ments are:

1) updating visitor use managementaction plans (such as the Wildernessand Colorado River Management Plans)2) monitoring visitor use and impacts tosocial and biophysical resources, and

3) mitigating wilderness resource im-pacts.

Fire Management PlanFire Management PlanFire Management PlanFire Management PlanFire Management Plan

The goal of the Park�s Fire ManagementProgram as defined in the 1992 FireManagement Plan is to effectively man-age wildland fire and provide for theprotection of life, property, and culturalresources, while ensuring the perpetua-tion of ecosystems and natural re-sources. The Fire Management Planalso specifically addresses the restora-tion of the natural fire regime in wilder-ness areas, using practices consistentwith management policies and otherplanning documents, including theResource Management Plan and Wil-derness Management Plan.

The current Fire Management Planaddresses the proper minimum-impactsuppression techniques, but lacks cleardirection for implementing a MinimumRequirement Process. The updated planwill be consistent with the Wilderness

Management Plan and managementpolicies regarding administrative useof roads, road closures, landing facili-ties, and use of aircraft in wilderness.

Colorado River ManagementColorado River ManagementColorado River ManagementColorado River ManagementColorado River ManagementPlanPlanPlanPlanPlan

Wilderness management issues andstrategies that overlap with river man-agement pertain primarily to the link-age of the two user groups (overnighthikers and river runners), and theapplication of minimum requirementpolicies. While Park policy on groupsize differs for either user group, theWilderness and Colorado River Man-agement Plans each describe stan-dards for the types of experience on aspatial and temporal basis. The Wil-derness Plan emphasizes the differ-ence in experience opportunitiesthrough the zoning or spatial concept,while the Colorado River Plan definesopportunities on a seasonal or tempo-ral basis. Each plan will integrate theoverarching issues pertaining to eachuser group.

Park policy on administrative use ofwilderness, or �minimum requirement,�will be consistent in the Wildernessand Colorado River ManagementPlans. This policy includes use of theappropriate conveyance, tools, andvisitor contact techniques to meet theobjectives of resource protection andvisitor experience management inwilderness.

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Cross-Canyon CorridorCross-Canyon CorridorCross-Canyon CorridorCross-Canyon CorridorCross-Canyon CorridorManagement PlanManagement PlanManagement PlanManagement PlanManagement Plan

Management of the Cross-CanyonCorridor will continue under the 1988Backcountry Management Plan until aspecific visitor use management planfor the Cross-Canyon Corridor is devel-oped. Management standards forcampsite condition and visitor experi-ence will be consistent with the goalsand objectives of the 1995 GeneralManagement Plan. Regulations regard-ing backcountry permitting operationsand overnight camping are consistentwith the Wilderness Management Plan.

Cave and Karst ManagementCave and Karst ManagementCave and Karst ManagementCave and Karst ManagementCave and Karst ManagementPlanPlanPlanPlanPlan

Of an estimated 1,000 caves in thePark�s wilderness, 335 have beenrecorded. The 1997 Cave and KarstManagement Plan provides for a sys-tematic inventory, assessment, andclassification of Park cave resources.Recreational and scientific use of cavesis also directed by the plan, whichaddresses management responsibili-ties for resources management, safety,education, and restoration of impactedcave resources.

Other PlansOther PlansOther PlansOther PlansOther Plans

The following undeveloped but antici-pated plans may affect wildernessqualities and management of resourcesin wilderness areas:

� Aircraft Management Plan� Water Resource Management Plan� Vegetation Management Plan

� Habitat Restoration Plan� Wildlife Management Plan.

As stated in the GMP, as implementa-tion plans are developed and updated,they will be consistent with NPS wilder-ness policy requirements.

Other AuthoritiesOther AuthoritiesOther AuthoritiesOther AuthoritiesOther Authorities

One method to limit or eliminate poten-tial resource damage is through selec-tive temporary or permanent closuresto all or certain types of public use. Thegeneral authority for such closures is 36CFR §1.5(a), which states

Consistent with applicable legis-lation and Federal administra-tive policies, and based on adetermination that such action isnecessary for the maintenanceof public health, safety, protec-tion of environmental or scenicvalues, protection of natural orcultural resources, aid to scien-tific research, implementation ofmanagement responsibilities,equitable allocation and use offacilities, or the avoidance ofconflict among visitor use activi-ties, the superintendent may:

(1) Establish, for all or a portionof a park area, a reasonableschedule of visiting hours, im-pose public use limits, or closeall or a portion of a park area toall public use or to a specific useor activity.

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(2) Designate areas for a specificuse or activity, or impose condi-tions or restrictions on a use oractivity.

Decisions made under the authority ofthis section will be based on writtendeterminations justifying the actions, andsigned by the superintendent.

2.7 Grand Canyon2.7 Grand Canyon2.7 Grand Canyon2.7 Grand Canyon2.7 Grand CanyonWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementStaffStaffStaffStaffStaff

Grand Canyon staff responsible forwilderness management include wilder-ness rangers; backcountry office visitor-use assistants; a variable trail-crew staff;and a wilderness coordinator.

Wilderness RangersWilderness RangersWilderness RangersWilderness RangersWilderness Rangers

Wilderness rangers are assigned geo-graphic areas of responsibility aboutwhich they are expected to be highlyknowledgable. They conduct extendedtrips into wilderness on foot, monitoringresources, contacting hikers, providinginformation and education, and workingon resource projects. Wilderness rang-ers are also responsible for visitorprotection and emergency operations.Wilderness rangers spend approxi-mately 80 to 85% of their time to wilder-ness protection. Backcountry office staffspend approximately 50% of their timeon wilderness management throughpermit processing, education, andinformation exchange.

Wilderness Trail CrewWilderness Trail CrewWilderness Trail CrewWilderness Trail CrewWilderness Trail Crew

Trail-crew numbers vary with the avail-ability of supplemental funding. Cur-rently, (1998) there are no full-timewilderness trail staff, although part-time or seasonal crews assigned towilderness have numbered up to tenworkers. On the average, approxi-mately 200 person-days are devotedto river and backcountry trail restora-tion. Major restoration efforts on theHermit and Grandview Trails wereconducted in the 1997 season, involv-ing crews of eight over a period ofapproximately three months. Atpresent, there are no base-funded, full-time trail staff devoted to wildernesstrails. Additional work will depend onavailable supplemental funding.

Wilderness CoordinatorWilderness CoordinatorWilderness CoordinatorWilderness CoordinatorWilderness Coordinator

Grand Canyon funds a full-time wilder-ness coordinator in the Science Cen-ter. Duties include providing guidancein implementing NPS wildernesspreservation and management poli-cies; developing and writing wilder-ness-related plans; assisting in thedevelopment of restoration projects;NEPA compliance; and coordinatingwilderness training.

Wilderness SteeringWilderness SteeringWilderness SteeringWilderness SteeringWilderness SteeringCommitteeCommitteeCommitteeCommitteeCommittee

In 1994, the Director of the NationalPark Service, in response to therecommendations of the 1993 Wilder-ness Task Force, outlined the respon-sibilities of park superintendentsregarding wilderness management

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(U.S. Department of the Interior. Na-tional Park Service 1994b). One of theTask Force�s recommendations in-cluded the establishment of a nationaland park-level �Wilderness SteeringCommittee� (U.S. Department of theInterior. National Park Service 1994d:2).The purpose of the committee is to�provide strong wilderness leadership...[and] facilitate and promote interagencycooperation....� The report emphasizedthe need for wilderness training, re-search and ecosystem management(U.S. Department of the Interior. Na-tional Park Service 1994d:2). ThePark�s immediate response was todevelop a Wilderness Resource Man-agement Team (U.S. Department of theInterior. National Park Service 1994c).Composition of this group was modifiedin 1995 to comprise the Park�s currentWilderness Steering Committee (U.S.Department of the Interior. National ParkService 1995c).

The role and function of the GrandCanyon National Park WildernessSteering Committee (WSC) is twofold:

� To provide leadership for the fieldimplementation of NPS wildernesspolicy at the Park; and

� To make recommendations to man-agement regarding minimum-require-ment operational decisions. The WSCis made up of senior-level managerswho share responsibility for field imple-mentation of the Wilderness Manage-ment Program.

2.8 Summary of Changes2.8 Summary of Changes2.8 Summary of Changes2.8 Summary of Changes2.8 Summary of Changesand Actionsand Actionsand Actionsand Actionsand Actions

� Implement wilderness managementpolicies for areas of proposedwilderness in Grand Canyon Na-tional Park in accordance with NPSManagement Policies, the GrandCanyon General Management Plan,and the Wilderness Act

� Implement minimum requirementstrategy for public and administrativeuse in Grand Canyon National Park

� Prepare other Park managementplans consistent with the WildernessManagement Plan as directed in theGeneral Management Plan andconsistent with NPS ManagementPolicies, including the

�Fire Management Plan�Colorado River Management Plan�Cave and Karst Management Plan

� Establish and maintain Park staffinglevels to ensure wilderness manage-ment responsibilities are met asdirected by NPS Wilderness Man-agement Guidelines:

�Wilderness Steering Committee�Wilderness Coordinator�Wilderness Rangers�Wilderness Trail Crew

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ChapterChapterChapterChapterChapter33333

WILDERNESSWILDERNESSWILDERNESSWILDERNESSWILDERNESSMANAGEMENTMANAGEMENTMANAGEMENTMANAGEMENTMANAGEMENTPLANNINGPLANNINGPLANNINGPLANNINGPLANNINGFRAMEWORKFRAMEWORKFRAMEWORKFRAMEWORKFRAMEWORK

3.1 Background of3.1 Background of3.1 Background of3.1 Background of3.1 Background ofBackcountry andBackcountry andBackcountry andBackcountry andBackcountry andWilderness Planning atWilderness Planning atWilderness Planning atWilderness Planning atWilderness Planning atGrand Canyon NationalGrand Canyon NationalGrand Canyon NationalGrand Canyon NationalGrand Canyon NationalParkParkParkParkPark

wilderness study process pre- ceded the development of the first Backcountry ManagementPlan. In 1970, the Park released itsPreliminary Wilderness Study for GrandCanyon National Park, Marble CanyonNational Monument, and Grand CanyonNational Monument (U.S. Departmentof the Interior. National Park Service1970). The total recommendation was569,000 acres or approximately 63% ofthe 900,000-acre Park. Then in 1971,the Park issued a Wilderness Recom-mendation (U.S. Department of theInterior. National Park Service 1971)of 508,000 acres, not including the rivercorridor or North Rim. By 1973, thePark released its Final EnvironmentalStatement for the Proposed WildernessClassification (U.S. Department of theInterior. National Park Service 1973)which consisted of 512,870 acres andincluded North Rim.

The first visitor-use management planfor the backcountry areas of GrandCanyon was approved in 1974. Thisdocument, the Backcountry Use andOperations Plan (U.S. Department ofthe Interior. National Park Service1974), established use limits for trail-heads outside the corridor (use limitsfor the corridor had been established in1971), and set a maximum group sizeof 16 individuals. Permits were issuedat the South Rim Visitor Center.

In 1975, the Grand Canyon NationalPark Enlargement Act incorporatedMarble Canyon National Monument,Grand Canyon National Monument,portions of Lake Mead National Recre-ation Area, Kaibab National Forest andsome Bureau of Land Managementlands into Grand Canyon National Park.The Act, as amended in August 1975(P.L. 94-31), required the submission ofa wilderness recommendation reflectingan enlarged Grand Canyon NationalPark within two years.

During 1975, a Backcountry Reserva-tions Office (BRO) was established.Backcountry reservations were made upto one year in advance. A lottery wasconducted for persons requestingpermits during the busy Easter holidayperiod. In 1976, a new managementsystem was implemented based onheavy use in Hermit Creek. Camp-grounds and nightly capacities wereestablished for the area west of theBright Angel Trail to Hermit Creek.

In 1977, the Final Wilderness Recom-mendation (U.S. Department of theInterior. National Park Service 1977)recommended 1,004,066 acres forimmediate designation, and an addi-tional 108,945 acres as potential wilder-ness. The action was suspended untilcompletion of the Colorado River Man-agement Plan. Then in 1980, the Wilder-ness Recommendation was revised toeliminate the Cross-Canyon Corridorfrom wilderness consideration. Duringthis same period, the reservation systemwas changed from accepting reserva-tions one year in advance to threemonths in advance. The change was

AAAAA

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intended to spread the BRO workloadover the year, and reduce the number ofno-shows, which were estimated at 50%in 1977 and 35% in 1980.

A new Backcountry Use Plan wasdrafted in 1981, and by 1983, the newBackcountry Management Plan wasadopted (U.S. Department of the Interior.National Park Service 1983a). Majorchanges included establishment of fourManagement Zones and 72 Use Areaswith prescribed use limits, replacing atrailhead quota system. Another majoraction was the initiation of sociologicaland ecological research and monitoringprograms. A North Rim BackcountryReservation Office was established in1983.

Between 1983 and 1986 extensivesociological research was conducted,resulting in recommendations on usedistribution and backcountry operations.Ecological research focused on camp-site condition and distribution. A publicreview process was initiated in 1987,and by September 1988, a revisedBackcountry Management Plan wasapproved incorporating information fromthese studies (U.S. Department of theInterior. National Park Service 1988a) .Major changes included opening morecorridor and rim trails to private stockuse, inclusion of a commercial usepolicy, reallocation and distribution ofuse based on the research, and adapta-tion of management objectives forspecific management strategies.

In the four-year period between 1988and 1992, overnight use increased by12%. In 1993, a new permitting system

was implemented whereby mail-inpermits were accepted four months inadvance, and a pre-trip check-in wasno longer required. Statistics showeda 32% increase in overnight use from1992 to 1995.

In 1993, the Wilderness Recommen-dation was updated to include1,139,007 acres proposed for desig-nation. Of this total, 1,109,257 acreswere recommended for immediatedesignation, and 29,820 acres wererecommended for designation aspotential wilderness pending resolutionof boundary and motorized river use.

Public Scoping began for a new Back-country Management Plan in June1995. The General Management Planwas also approved, replacing a 1976Master Plan. The General Manage-ment Plan provided guidance forwilderness management, and calledfor the development of a WildernessManagement Plan. As a result, effortsto update the Backcountry Manage-ment Plan were redirected to completea Wilderness Management Plan for the1.1 million acres of proposed wilder-ness in Grand Canyon National Park.

3.23.23.23.23.2 NPS PlanningNPS PlanningNPS PlanningNPS PlanningNPS PlanningGuidanceGuidanceGuidanceGuidanceGuidance

Planning guidance for resource man-agement and visitor use plans isprovided at the national and parklevels. NPS Management Policies(6:4) specifically requires and guidesthe development of planning docu-ments which address backcountry andwilderness management:

In God�sIn God�sIn God�sIn God�sIn God�swilderness lieswilderness lieswilderness lieswilderness lieswilderness liesthe hope ofthe hope ofthe hope ofthe hope ofthe hope of

the world��thethe world��thethe world��thethe world��thethe world��thegreat freshgreat freshgreat freshgreat freshgreat freshunblighted,unblighted,unblighted,unblighted,unblighted,unredeemedunredeemedunredeemedunredeemedunredeemedwilderness.wilderness.wilderness.wilderness.wilderness.The gallingThe gallingThe gallingThe gallingThe gallingharness ofharness ofharness ofharness ofharness ofcivilizationcivilizationcivilizationcivilizationcivilization

drops off, anddrops off, anddrops off, anddrops off, anddrops off, andthe woundsthe woundsthe woundsthe woundsthe woundsheal ere weheal ere weheal ere weheal ere weheal ere weare aware.are aware.are aware.are aware.are aware.

John MuirJuly 1890

FromJohn of theMountains

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The superintendent of each parkcontaining wilderness will developand maintain a wilderness manage-ment plan to guide the preserva-tion, management, and use of thatwilderness. This plan may bedeveloped as a separate documentor as a action component of an-other appropriate managementplan, such as the general manage-ment plan or backcountry manage-ment plan...The plan will be devel-oped with public involvement andwill contain specific, measurablemanagement objectives that ad-dress the preservation of wilder-ness-dependent cultural and natu-ral resources and values in order toachieve the public purposes speci-fied by the Wilderness Act andother appropriate legislation.

Backcountry use will be managedto avoid unacceptable impacts onpark resources or adverse effectson visitor enjoyment of appropriaterecreational experiences. TheNational Park Service will identifyacceptable limits of impacts,monitor backcountry use levelsand resource conditions, and takeprompt corrective action whenunacceptable impacts occur.Management strategies designedto guide the preservation, man-agement, and use of the back-country and to achieve the park�smanagement objectives will beintegrated into the park�s back-country management plan. (NPSManagement Policies, 8:3)

NPS-77, Natural Resources Manage-ment Guidelines (U.S. Department ofthe Interior. National Park Service 1991),provides comprehensive guidelines onnatural resource management whichassure that activities planned and initi-ated at the park level comply with Fed-eral laws and regulations and NPS andDepartmental policies. Specific guid-ance is provided for Backcountry Recre-ational Use Planning and Special ParkDesignations Uses, which includewilderness areas.

The 1993 Wilderness Task Force evalu-ated wilderness management in theNational Park Service. The report,Wilderness Task Force Report onImproving Wilderness Management inthe National Park Service (U.S. Depart-ment of the Interior. National Park Ser-vice 1994), identified several areaswhere management practices were notconsistent with Federal laws and na-tional policies. The report identified theweakness or lack of NPS guidance forwilderness planning. Actions recom-mended for improving wilderness plan-ning included the development of wilder-ness planning and management guide-lines, and the development of a wilder-ness resource team concept to facilitatethe wilderness planning process. TheNational Wilderness Steering Commit-tee was formed in response to thereport, and has drafted guidelines whichinclude wilderness planning require-ments (U.S. Department of the Interior,National Park Service 1997b).

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In February 1995, a special directiveregarding wilderness management inNational Parks was issued from theDirector�s Office. Special Directive 95-2, Management and Planning Policyfor Suitable, Proposed, Recom-mended, and Potential WildernessAreas (U.S. Department of the Interior.National Park Service 1995a), statesthat in addition to managing classifiedareas for the preservation of their wilder-ness values, �planning for these areasmust be oriented toward ensuring thepreservation of their wilderness charac-ter until such time as Congress deter-mines their eventual designation.� Itfurther states that wilderness policy mustbe reflected in general managementplanning and in all types of activity plansfor wilderness areas.

Grand Canyon National Park�s GeneralManagement Plan directs the prepara-tion of visitor-use management plans forall areas of the Park. The GMP specifiesthat, in accordance with NPS Manage-ment Policies, the proposed wildernessbe managed the same as designatedwilderness, and �anticipates the finalresolution of wilderness issues, and thepreparation of a wilderness manage-ment plans as future actions.� As aspecific project statement, the 1997Resource Management Plan (U.S.Department of the Interior. National ParkService 1997a) directs that the 1988Backcountry Management Plan berevised to be consistent with NPS wil-derness policy requirements.

3.33.33.33.33.3 The Limits ofThe Limits ofThe Limits ofThe Limits ofThe Limits ofAcceptable ChangeAcceptable ChangeAcceptable ChangeAcceptable ChangeAcceptable Change

The Wilderness Management Planuses the concepts outlined in TheLimits of Acceptable Change (LAC)System for Wilderness Planning(Stankey, et al. 1985). The LAC em-phasizes a framework for establishingacceptable, appropriate, and measur-able resource and social conditions inwilderness. The LAC process focuseson desired conditions, defines what is,and is not, acceptable, and develops astrategy to prevent unacceptableconditions.

The premises of the Limits of Accept-able Change process are:

� some change in conditions isinevitable

� the focus is on human-inducedchange

� the effects of human activities areimportant

� a diversity of settings is importantto maintain

� determining what is acceptable isvalue-based.

Planning models such as LAC aredesigned to facilitate the balancing ofvisitor use with the protection of parkresources and impacts to other visitorand park uses. The LAC model wasadopted for the 1988 BackcountryManagement Plan, and the 1989Colorado River Management Plan,and provided clear guidance for moni-toring and implementing managementactions to reduce impacts to resourcesfrom recreational use.

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NPS Management Policies and theNatural Resources ManagementGuidelines (NPS-77), recognize theLimits of Acceptable Change model asa planning framework for recreationmanagement planning. NPS Manage-ment Policies states that such plans�will establish indicators, standards,conditions, and thresholds above whichmanagement actions will be taken toreduce impacts� (6:5). Standards aredeveloped using the best availableknowledge of Grand Canyon wildernessmanagement, including ecologicallimitations, visitor use patterns, andexisting environmental conditions, aswell as current literature on wildernessmanagement and national trends.Indicators are those measurable vari-ables which determine resource condi-tion, and measure the standard.

The emphasis of the LAC framework isto outline management objectivesthrough the use of indicators and stan-dards for various resource and socialconditions and values. These methodsare applied to help managers structuremanagement direction. This informationis included in a description of indica-tors, standards and monitoring pro-grams in Chapter 12.

3.43.43.43.43.4 Management ZoningManagement ZoningManagement ZoningManagement ZoningManagement Zoning

In accord with legislative intent andspecific objectives to manage for a�diverse range of visitor experiencescompatible with the protection of re-sources and values� (GMP 1995),�zoning� of Park areas provides aframework for management based ondifferent Park settings. NPS Manage-

ment Policies (2:7) requires generalmanagement plans to define Manage-ment Zones �where strategies for man-agement and use will best fulfill manage-ment objectives and achieve the pur-pose of the park.�

The wilderness areas of Grand CanyonNational Park are within the NaturalZone, �managed to conserve naturalresources and ecological processesand to provide for their use and enjoy-ment by the public in ways that do notadversely affect these resources andprocesses� (NPS Management Poli-cies, 2:7). To further represent the diver-sity of wilderness settings and opportu-nities, the Park has defined four recre-ational Opportunity Classes.

Recreational OpportunityRecreational OpportunityRecreational OpportunityRecreational OpportunityRecreational OpportunityClassesClassesClassesClassesClasses

The term �Opportunity Class� replaces�Management Zone� described in the1983 and 1988 Backcountry Manage-ment Plans. The concept has notchanged, simply the terminology. As inthe GMP, �zone� implies a physicalmanagement area, whereas the term�opportunity class� describes a range ofconditions or settings for which the Parkmanages.

Grand Canyon backcountry and wilder-ness areas are comprised of five Op-portunity Classes: Corridor, Threshold,Semi-Primitive Mechanized, Primitive,and Wild. This Plan establishes theSemi-Primitive Mechanized OpportunityClass which identifies access to nonwil-derness corridors within the GrandCanyon Wilderness. Each Opportunity

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Class is described in terms of the de-sired resource, social, and managerialconditions for that particular use area(See Figure 3.1).

The Opportunity Classes are basedupon the following criteria:

� type and amount of use� opportunity for solitude� current resource conditions� management uses.

The following narrative descriptionsoutline the general characteristics asso-ciated with each Opportunity Class. Alisting of standards and criteria is de-tailed in Figure 3.2.

Corridor

The Cross-Canyon Corridor is a devel-oped inner-canyon area with camp-grounds and facilities. The Corridor isnot included in the proposed wilderness.The Bright Angel, South Kaibab, andNorth Kaibab Trails provide access todeveloped areas, and act as thresholdsto the wilderness use areas. The Corri-dor, which is not specifically covered bythis Plan, is referenced to the extent thatit represents the spectrum of opportuni-ties and provides a comparison formanagement strategies in the wilder-ness areas.

Threshold

This Opportunity Class applies to 24%of the wilderness use areas. ThresholdUse Areas are managed for moderateto high levels of use relative to wilder-ness. Camping can be in designated

sites or at-large, depending on the usearea. Composting toilets exist at mostareas, or may be installed if requiredto deal with unacceptable concentra-tions of human waste. The smallestThreshold Use Area limit for totalnumber of overnight campers is six;the largest is 40.

Semi-Primitive Mechanized

This Opportunity Class applies to the58 miles of primitive roads in 300-footwide nonwilderness corridors whichaccess wilderness trailheads andoverlooks. These nonwildernesscorridors were identified in the publicreview process (leading to the 1980Wilderness Recommendation). UseAreas in this Opportunity Class overlapwith adjacent Threshold and PrimitiveOpportunity Classes, and includedesignated and at-large camping.Mechanized (motorized and bicycle)access is permitted on primitive roadsonly.

Primitive

This Opportunity Class applies to 50%of the use areas. Primitive areasprovide a more isolated and remoteexperience, and are managed for lowto moderate use. Camping is at-largeexcept in very rare cases where camp-sites may be temporarily designatedfor resource protection. Toilets are notcommon and are installed only as alast resort to correct human wasteproblems. Other structures are gener-ally not permitted except temporarystructures that are not visible and donot leave permanent impacts. The

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maximum number of overnight userspermitted per use area is 29.

Wild

This Opportunity Class applies to 26%of the use areas. Wild areas are mostlyremote and provide the greatest oppor-tunities for solitude. No structures of anykind, including toilets, are permitted.The maximum number of overnightusers permitted per Wild Use Area is12.


� Adopt recreation management con-cept of Opportunity Classes, replac-ing former �management zone�concept first adopted in 1983

� Establish Semi-Primitive MechanizedOpportunity Class to describe condi-tions and standards for nonwilder-ness primitive road corridors, inaddition to the existing Corridor,Threshold, Primitive and Wild Oppor-tunity Classes

3-31

Figure 3.1 Wilderness and Backcountry Opportunity Classes

CORRIDOR THRESHOLD SEMI-PRIMITIVEMECHANIZED

PRIMITIVE WILD

ResourceSetting

A modified natural,nonwilderness environmentwith high impact levels fromheavy recreational use.Three developedcampgrounds with water,toilets, and shade structures.Campsites are moderate tohigh density.

A natural environment withmoderate to high impacts fromrecreational use. Some areaswith designated campsites andtoilets. These areas havemoderate to high density withfrequent use.

A modified natural,nonwilderness environmentwith moderate to high impactsfrom recreational use. Accessto trailheads with designatedcampsites, and day-useoverlook areas.

A natural environment withlow to moderate impacts fromrecreational use. Dispersed, at-large camping with frequentand concentrated use at creeksand attraction sites.

A natural environment withminimal impacts fromrecreational use. Dispersedcamping in remote areas.

Social Setting Corridor trails are heavilyused by day hikers andbackpackers. Commercialstock use is frequent andprivate stock use isinfrequent. High numbers oftrail encounters with hikersand mule riders. Highprobability of campingwithin sight and sound ofother groups incampgrounds. Opportunitiesfor solitude are unlikely.

Access trails to use areas alsoused frequently by day hikers.High probability of frequentencounters with backpackersand river users. Highprobability of camping withinsight or sound of others duringprimary use periods.Opportunities for solitudeoften exist during non-peakperiods.

Infrequent encounters withother users including motoristsand bicyclists. Highprobability of encounters withothers at popular day-usedestinations. Opportunities forsolitude increase during non-peak use periods.

Frequent encounters onthreshold trails, becomingmore infrequent withremoteness. Infrequentcontacts with hikers and riverusers except at popularbeaches. Increasedopportunities for solitude existyear-round especially duringnon-peak use periods.

Infrequent to no contactswith others except neartrailheads or along river.Route finding and cross-country travel likely.Outstanding opportunities forsolitude exist.

ManagerialSetting

Trails maintained for heavyhiker and stock use.Informational, warning, andmileage signs are frequent.Ranger stations are locatednear campgrounds, androutine patrols areconducted.

Trails maintained infrequentlybased on resource protection.Trail mileage, directional,resource protection,regulatory, and boundary signsplaced as needed. Interpretivesigns in historic areas and attrailheads. Toilets atdesignated campsites.Temporary ranger stationspossible, and frequent patrolsbased on use and resourcemonitoring.

Roads maintained infrequentlyand kept in an unpavedcondition. Improvements madeto reduce resource impactsonly. Temporary closure ofroads for resource protection.Frequent ranger patrols basedon use and resourcemonitoring.

Trails maintained infrequentlybased on resource protection.Trail signs at trailhead, parkboundary and for resourceprotection. No facilities; toiletsplaced as last resort for healthand safety. Frequent rangerpatrols based on use andresource monitoring.

Trails maintained veryinfrequently except forresource protection. Signs attrailheads and boundariesonly. No facilities orstructures. Infrequent rangerpatrols based on resourcemonitoring.

Figure 3.2 Summary of Management Standards by Opportunity Class

Factor CORRIDOR THRESHOLD SEMI-PRIMITIVEMECHANIZED

PRIMITIVE WILD

Stock use:Commercialand Private.Equine only.

Permitted only on the BrightAngel, Plateau Point, SouthKaibab, Tonto between BrightAngel and South Kaibab,River, and North Kaibab trails.

Permitted only on theWhitmore Trail and ondesignated rim trails.

Permitted on primitive roadsand trails on rim areas.

Permitted only on the KenPatrick Trail to the Uncle JimTrail on to Uncle Jim Point,and on designated rim trails.

Not Permitted.

Roads withinthebackcountryand wilderness

No roads present. Roads in wilderness areaswill be closed to mechanizedtravel.

Designated unpaved roadswithin a 300-foot-wide non-wilderness corridor.Maintenance will be theminimum necessary forresource protection.

Roads in wilderness areas willbe closed to mechanized travel.

No roads present.

Campingrestrictions

Camping in designated siteswithin developedcampgrounds only.

Camping in designatedcampsites or at-largecamping depending onspecific use area.

Camping in designatedcampsites or at-largecamping depending onspecific use area.

At-large camping. Designatedcampsites or areas may berequired for resourceprotection on a temporary basisin localized areas.

At-large camping.

Variety ofrecreationaluses

Day hiking, backpacking,horse or mule riding, fishing,river running.

Inner canyon: day hiking,backpacking, horse or muleriding, fishing, river running.Rim areas: day hiking,backpacking, horse and muleriding.

Motorized and bicycle use onroads only within non-wilderness corridor. Accessto day-use overlooks anddesignated campsites. Horseand mule riding.

Inner canyon: day hiking,backpacking, fishing, riverrunning. Rim areas: dayhiking, backpacking, horse andmule riding.

Day hiking, backpacking andriver running.

Use area limitsforrecreationaluse

Up to 180 people or 59 smallgroups and four large groupspermitted within threedesignated campgrounds.

Up to three small groups andtwo large groups for apossible maximum of 40people. One exception is theMonument use area whereeight small groups and twolarge groups are permittedfor a possible maximum of70 people.

Applicable limits based onadjacent Threshold andPrimitive use areas.

Up to three small groups andone large group may bepermitted for a possiblemaximum of 29 people.

Up to two small groups or onelarge group may be permittedfor a possible maximum of 12people.

Factor CORRIDOR THRESHOLD SEMI-PRIMITIVEMECHANIZED

PRIMITIVE WILD

Structures(other thanculturalresources)

Ranger stations, bridges,scientific facilities,campground facilitiesincluding pack bars, toilets,shade structures and picnictables, concession facilitiesand utilities includingtelephone, electricity, waterand sewage treatment plants.

Primitive facilities atdesignated campsite clusters(toilets and pack bars).Temporary scientific andadministrative structures, andemergency communicationfacilities may be permitted ifthey are determined to be theminimum requirement.

Scientific and administrativestructures, and emergencycommunication facilities maybe permitted if they are notnormally visible fromwilderness areas. TheKanabownits Cabin and FireTower, and Pasture Washcabin currently exist. Thecontinued need for thesefacilities will be evaluatedunder the requirements ofNPS Management Policies.

Primitive toilets may be placedas a last resort to deal withlocalized human wasteproblems. Temporary scientificand administrative structures,and emergency communicationfacilities may be permitted ifthey are determined to be theminimum requirement.

No structures are permittedexcept in extreme situationsapproved by theSuperintendent.

Signs: Typespermitted

Trail mileage, trailhead,interpretive, directional,regulatory, and resourceprotection.

Trail mileage, trailhead,regulatory, directional,resource protection and parkboundary designations.Interpretive signs only inhistoric areas of Hermit andHorseshoe Mesa use areas.

Road and trail mileage,trailhead, regulatory,directional, resourceprotection, park boundary,and road designations.

Trailhead and park boundary.Small signs indicating road siteclosures. Special signs only byapproval of Superintendent.

Park boundary. Special signsunder exceptionscircumstances only byapproval of Superintendent.

Sign materials Etched metal, reflective,adhesive lettered, and routedwood.

Routed wood except attrailheads and parkboundary. Etched metalinterpretive signs in historicareas only by Superintendentapproval. Small metal orwood signs for road closures.

Etched metal, reflective,adhesive lettered, and routedwood.

Routed wood except attrailheads and park boundary.Small wood or metal signs forroad closures.

Routed wood except at parkboundary.

Ranger andresourcespecialistpresence

Rangers stationed year-roundat Indian Garden and BrightAngel campgrounds andseasonally at Cottonwood.Frequent patrols and contactswith visitors. Patrols based onintensity of use and resourcemonitoring.

Temporary stationing ofrangers and resourcespecialists is possible.Frequent patrols based onintensity of use and resourcemonitoring.

Frequent patrols based onintensity of use and resourcemonitoring.

Frequent patrols based onintensity of use and resourcemonitoring.

Infrequent patrols based onintensity of use and resourcemonitoring.

Interpretiveandeducationalcontacts

Scheduled formal programs,interpretive signs, bulletinboards, and informal contacts.

Informal contacts. Bulletinboards and interpretive signsat trailheads. Specialinterpretive signs in Hermitand Horseshoe Mesa useareas.

Informal contacts.Interpretive signs only inhistoric areas, or for resourceprotection.

Informal contacts. Informal contacts.

Grand Canyon National Park Draft Wilderness Management Plan

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CHAPTERCHAPTERCHAPTERCHAPTERCHAPTER44444

ne of the goals of the Wilderness Management Plan is to guidemanagement of wilderness resourceswhile providing recreational opportuni-ties for a broad range of visitor experi-ences and settings. Within the contextof the wilderness mandate, GrandCanyon National Park offers the oppor-tunity for a variety of recreational activi-ties and uses in popular destinationsas well as remote areas.

4.1 Issues and Public4.1 Issues and Public4.1 Issues and Public4.1 Issues and Public4.1 Issues and PublicConcernsConcernsConcernsConcernsConcerns

Comments related to wilderness recre-ational use were received during thePublic Scoping Process in 1995. Inparticular, people were asked to com-ment on day use in the Cross-CanyonCorridor, private stock use, impacts tonatural and cultural resources fromusers, and conflicts between differentuse groups.

While many respondents indicated apreference for hiking in wildernessareas, many mentioned that they oftenaccess wilderness trails through theCross-Canyon Corridor. Those whoprovided information on their day-hiking experience said they often avoidthe Corridor trails due to crowding andstock use. It appears that most userconflicts are related to high use levelsof these trails, and on occasion, atpopular river beaches and attractionsites where hikers encounter large riverparties.

Many respondents commented on thePark�s efforts to preserve natural condi-tions and protect cultural resources inwilderness areas. Some suggested thatuse levels be decreased in popularcamp areas such as Hermit Creek andHorseshoe Mesa in order to decreasethe impacts from visitor use. Manysuggested that the best way to addressproblems related to visitor use is throughpublic education.

4.24.24.24.24.2 TheTheTheTheThe Regional Regional Regional Regional RegionalRecreation OpportunityRecreation OpportunityRecreation OpportunityRecreation OpportunityRecreation OpportunitySpectrumSpectrumSpectrumSpectrumSpectrum

The recreational activities offered withinGrand Canyon National Park are com-patible with the Park�s significance andits wilderness resources. Opportunitiesfor other activities such as motorboating,hunting, mountain biking, andsnowmobiling are available on neighbor-ing public and Tribal lands. Specificinformation on use of public and Triballands adjacent to the Park is foundelsewhere in this Plan (See ChapterFive, Backcountry Permit System, andAppendix E, Recreational Opportunitiesand Permit Information for AdjacentLands).

4.34.34.34.34.3 AccessibilityAccessibilityAccessibilityAccessibilityAccessibility

In compliance with the Americans withDisabilities Act of 1990, the NPS willallow, as appropriate, the use of wheel-chairs in Grand Canyon wildernessareas. Visitors with sight or other impair-ments requiring the use of guide animalsin the backcountry and wilderness areas,should make specific inquiries at the

RECREATIONALRECREATIONALRECREATIONALRECREATIONALRECREATIONALUSE OFUSE OFUSE OFUSE OFUSE OF

WILDERNESSWILDERNESSWILDERNESSWILDERNESSWILDERNESS

OOOOO

4-35


Backcountry Office. All visitors must beaware of the unique, and challengingcharacteristics of the Grand Canyonwilderness, including steep terrain,potential interactions with wildlife, mulesand horses, and diverse weather pat-terns (See Appendix F, Wilderness Useby Persons with Disabilities).

4.44.44.44.44.4 Day UseDay UseDay UseDay UseDay Use

National trends indicate increasing dayuse of wilderness areas. The actualamount of day-use hiking on trails atGrand Canyon National Park is un-known. High concentrations of day useoccur on the corridor trails, where hikersmay also encounter several mule strings.Day hiking is also common on North Rimwilderness rim trails, and is increasingon inner canyon trails accessible fromthe South Rim road system, especiallythe Hermit and Grandview Trails. Theproposed transportation system (Gen-eral Management Plan 1995) will alsohave an effect on the dispersal of dayhikers.

A day-use research project at GrandCanyon National Park began in June,1997. The purpose of the study is tolearn more about day-use of the wilder-ness and nonwilderness backcountryareas. Information from this study maybe incorporated into future visitor-useplans, and will provide a basis for in-formed decision-making about issuingpermits for guided day hikes, visitoreducation, and safety programs.

Presently, noncommercial day-usehiking is unrestricted. However, for thehealth and safety of Park visitors,temporary restrictions on inner canyontrails can be imposed as a result ofextreme environmental conditions.These restrictions have resulted fromfloods, rockfalls, and for periods ofextremely high temperatures. Over-night users and guided trips are alsosubject to these restrictions.

4.54.54.54.54.5 Overnight UseOvernight UseOvernight UseOvernight UseOvernight Use

All overnight use of the wilderness andbackcountry areas of Grand CanyonNational Park requires a backcountryuse permit. Demand for overnight useof popular Grand Canyon wildernessareas far exceeds availability. Themaximum group size for overnight useof the wilderness (and Corridor) is 11people. The National Park Servicestrives to maintain a fair and equitablepermit system to balance the demandsof visitor use with mandates for protec-tion and preservation. Chapter Fivediscusses the permit system; theBackcountry Reservation and PermitSystem is included as Appendix G.

4.64.64.64.64.6 Private Stock UsePrivate Stock UsePrivate Stock UsePrivate Stock UsePrivate Stock Use

Private stock use (equine only) in thewilderness is permitted on existingprimitive roads and trails on the Northand South Rims (See Appendix H,Wilderness Stock Use Guidelines). Apermit is required for overnight use.

PresidentPresidentPresidentPresidentPresidentClinton and IClinton and IClinton and IClinton and IClinton and I

believebelievebelievebelievebelievethatthatthatthatthat

preservingpreservingpreservingpreservingpreservingAmerica�sAmerica�sAmerica�sAmerica�sAmerica�s

special placesspecial placesspecial placesspecial placesspecial placesisn�t just goodisn�t just goodisn�t just goodisn�t just goodisn�t just goodpublic policy,public policy,public policy,public policy,public policy,

it is ait is ait is ait is ait is amoralmoralmoralmoralmoral

obligation...obligation...obligation...obligation...obligation...The parks andThe parks andThe parks andThe parks andThe parks andforests andforests andforests andforests andforests andwildernesswildernesswildernesswildernesswildernesspreservespreservespreservespreservespreserves

can never becan never becan never becan never becan never bereplicated....replicated....replicated....replicated....replicated....

OurOurOurOurOurresponsibilityresponsibilityresponsibilityresponsibilityresponsibilityto this land isto this land isto this land isto this land isto this land is

one of theone of theone of theone of theone of themost profoundmost profoundmost profoundmost profoundmost profound

andandandandandsacredsacredsacredsacredsacredwe have.we have.we have.we have.we have.

Vice PresidentAl Gore

September 2,1997

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This Plan establishes the overnightgroup-size limit for wilderness areas asa maximum of six people and a maxi-mum of six stock animals (with a limit offive stock to one mounted packer). Thetotal numbers in wilderness for day usewill not exceed 12 people and 12 stockanimals.

4.74.74.74.74.7 FishingFishingFishingFishingFishing

Recreational fishing is permitted inGrand Canyon�s wilderness areas. Allfishing activities must meet ArizonaGame and Fish Department regula-tions, and any special regulationsestablished by the National Park Ser-vice. Fishing in the Colorado River isprohibited within one-half mile of theconfluence with the Little ColoradoRiver, and in that portion of the LittleColorado River in the Park.

4.84.84.84.84.8 Rock ClimbingRock ClimbingRock ClimbingRock ClimbingRock Climbing

Presently, there is no permit requiredfor technical rock climbing. Manytechnical climbing areas are remote,and only accessible by overnight hikingthat requires a Backcountry Use Per-mit. Most of the rock formations atGrand Canyon are extremely unstable,resulting in hazardous climbing condi-tions. Climbers are required to employminimum-impact climbing techniques.The use of power tools to install bolts orother hardware is prohibited. All hard-ware must be removed upon finishingthe route.

4.94.94.94.94.9 Nordic Skiing andNordic Skiing andNordic Skiing andNordic Skiing andNordic Skiing andSnowshoeingSnowshoeingSnowshoeingSnowshoeingSnowshoeing

Nordic skiing and snowshoeing in thePark is unregulated. These activitiesoccur primarily on the rims, often onunmarked trails or roads. Due to thePark�s remote areas and hazardouswinter conditions, winter travelers mustbe prepared for storms and delays.Skiers or snowshoers camping overnightin the Park must have a backcountrypermit. Any delay or change in itinerarydue to conditions should be reported assoon as possible to the first availableranger so that the permit can be ad-justed.

Once Highway 67 and the North En-trance Road close for the winter, allovernight travel on the North Rim re-quires a backcountry permit. Snowmachines are prohibited in the Park(except for administrative use). Back-country users may camp at-large north ofthe intersection of the North EntranceRoad and Fuller Canyon Road. South ofthis point, and continuing along theentrance road to the North Rim Lodgedeveloped area, campers must use thewinter campground facility at the groupsites behind the closed Camper Store.At-large camping must be out of view ofthe North Entrance Road. All trash mustbe carried out, and human waste cannotbe buried over roads, parking lots, trails,near buildings or other areas that will bein view of summer users.

Commercial ski trips must comply withregulations identified in an Incidental(IBP) Business Permit or a Special UsePermit (SUP).

4-37


4.104.104.104.104.10 BicyclingBicyclingBicyclingBicyclingBicycling

Bicycling is allowed on all Park roadsaccessible and open to private vehicles.In addition, the Arizona Trail on both rimsis open to mountain biking, and bicyclingopportunities are available on adjacentForest Service lands. All bicycles areprohibited in wilderness areas. Com-mercially guided bicycle tours mustcomply with regulations identified in anIBP or SUP. (See Appendix I, Commer-cial Use Policy.)

4.114.114.114.114.11 Commercial Use ofCommercial Use ofCommercial Use ofCommercial Use ofCommercial Use ofWildernessWildernessWildernessWildernessWilderness

Commercially guided overnight and daytrips are considered an appropriate useof the Grand Canyon wilderness, andmust comply with the regulations identi-fied in an Incidental Business Permit.The Commercial Use Policy for wilder-ness and backcountry areas is includedas Appendix I. Commercially guidedday-hiking trips are currently permitted inGrand Canyon National Park pursuant toan IBP or SUP.

4.124.124.124.124.12 Cave EntryCave EntryCave EntryCave EntryCave Entry

Cave entry and management is guidedby the Grand Canyon National ParkDraft Cave and Karst Management Plan(1997c). All caving activity (day use orovernight), except for access to Class Icaves, must be approved in advancethrough the Grand Canyon National ParkScience Center. A permit will be issuedto applicants under the provisions de-fined in the Cave and Karst Manage-ment Plan. A Backcountry Use Permit is

required for overnight stays. Specialcampsites may be designated on theCave Entry Permit as provided in theCave and Karst Management Plan.Cave Entry permits are not automati-cally issued.

Approvals for cave entry depend onthe cave�s classification and whetheror not it has been classified using thecriteria put forth in the Cave and KarstManagement Plan, the experience ofthe person requesting the approval,and the availability of a backcountrypermit. A Cave Entry Permit applica-tion is included as Appendix J.

4.134.134.134.134.13 Semi-PrimitiveSemi-PrimitiveSemi-PrimitiveSemi-PrimitiveSemi-PrimitiveMechanized Access inMechanized Access inMechanized Access inMechanized Access inMechanized Access inNonwilderness CorridorsNonwilderness CorridorsNonwilderness CorridorsNonwilderness CorridorsNonwilderness Corridors

Nonwilderness road corridors adjacentto the wilderness areas on the Northand South Rims provide access tovarious rim overlooks and designatedcamping sites. The primitive roadswhich are open to motor vehicles andbicycles are subject to temporaryclosures based on fire conditions,weather, and potential hazards. High-clearance vehicles are recommended.Sections of the Arizona Trail on theKaibab Plateau within the Park allowbicycle use. Mechanized access innonwilderness corridors is furtheraddressed in Chapter 8.

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4.144.144.144.144.14 Area Limitations andArea Limitations andArea Limitations andArea Limitations andArea Limitations andClosuresClosuresClosuresClosuresClosures

The fragility of Grand Canyon�s landsand resources necessitates use limitsin some cases, and, in other cases,temporary or permanent closures (U.S.Department of the Interior, NationalPark Service 1993c). These limits andclosures are authorized by 35 Code ofFederal Regulations (CFR) section 1.5:

1. Camping is not permitted in theTransept, Manzanita, Uncle JimPoint, Long Jim, and Tusayan UseAreas. These are day use areasonly. The basis for the closures isthat each is adjacent to the Cross-Canyon Corridor Use Area or therim camping areas, each has alimited physical carrying capacity,and each has special ecologicalsensitivities.

2. Also closed to camping but opento day use are the following:

� Dripping Spring� Page Spring� Portions of Phantom Creek (below

3600-foot contour)�Thunder River drainage (from its

origin to its confluence with TapeatsCreek)

�Havasu Creek within the Park (fromthe confluence at the ColoradoRiver to Beaver Falls)

�Matkatamiba Canyon below theRedwall Limestone (i.e., below themajor side canyon on the east)

�Grandview Mining District(designated camping is located justoutside the historic district boundary)

�Deer Creek (north side of the Colo-rado River within ¼ mile upstream ordownstream at confluence, and tothe upper end of the narrows)

�Elves Chasm (within ¼ mile of RoyalArch Creek�s confluence with theColorado River, or within the chasm)

�The area on the east side of theColorado River (within one-half mileof the confluence of the Little Colo-rado and Colorado Rivers)

�Redwall Cavern

3. The following are closed to allvisitor use

�Hance Mine (in Asbestos Canyonsouth of Hance Rapid)

�Bass Mine (in Hakatai Canyon andthe area immediately surrounding themine tailings and waste rock areas)

�Furnace Flats from mile 71.0 to mile71.3 on the north side of the Colo-rado River

�Anasazi Bridge

4. The Hopi Salt Mines along theColorado River within the Park areclosed to all visitation except bypermission from the superintendent.The closure extends from river mile62 to river mile 62.5 on the southeastside of the Colorado River. If permis-sion is obtained, a backcountrypermit is also required.

4-39


5. Havasupai Use Lands are closedto all visitation except to accessareas authorized on a HavasupaiTribe or Grand Canyon backcountrypermit (includes the Olo and FossilUse Areas).

4.154.154.154.154.15 Applicable RegulationsApplicable RegulationsApplicable RegulationsApplicable RegulationsApplicable Regulations

The National Park Service advocatesLeave No Trace camping principles(See Chapter 10, Interpretation, Educa-tion, and Information). The followingregulations have been established tosupport these principles, to promoteprotection of the Canyon�s fragile envi-ronment, and provide an equitablesystem for permitting use.

It is the responsibility of all trip partici-pants to know and obey the followingregulations while in the wilderness andbackcountry areas of Grand CanyonNational Park. These regulations areconsidered the terms and conditions ofa backcountry permit under 36 CFR 1.6:

1. A Backcountry Use Permit isrequired for all overnight use, andmust be in possession while in thewilderness. Overnight users musthave a Backcountry Use Permitdisplayed on the outside of theirpack, tent, or other camping equip-ment once camp has been estab-lished (36 CFR 1.6).

2. Wood or charcoal fires are prohib-ited. However, the use of �Sterno� orbackpack stove is permitted (36 CFR2.13).

3. Trash must be packed (carried)out. Burning or burying of trash ortoilet paper is prohibited (36 CFR2.14).

4. Possession of firearms, and/orbows and arrows is prohibited (36CFR 2.4).

5. Pets are not allowed in GrandCanyon National Park wildernessareas or within the inner canyon. Inrim developed areas, pets can betaken on trails, roads, and otheroutdoor areas as long as they areunder physical restraint, and thereare no posted closures. Where petsare allowed, they must be underphysical restraint at all times.

Exception: Use of guide animals isallowed; specific information canbe obtained from the BackcountryOffice. (See Appendix F, Wilder-ness Use by Persons with Disabili-ties).

6. Leaving a trail or walkway toshortcut between portions of thesame trail or walkway, or to shortcutto an adjacent trail or walkway, isprohibited (36 CFR 2.1).

7. Throwing or rolling rocks or otheritems inside caves or caverns, intovalleys, or canyons, down hillsidesor mountainsides, is prohibited (36CFR 2.1).

4-40


8. Feeding, touching, teasing,frightening, or intentionally disturb-ing wildlife is prohibited (36 CFR2.2). Unattended food must bestored properly to prevent accessby wildlife. Improper food storage isprohibited (consult the BackcountryOffice for information on properfood storage).

9. Possessing, destroying, injuring,defacing, removing, digging, ordisturbing from its natural state anyplants, rocks, animals, or mineral,cultural, or archeological resourcesis prohibited. Walking on, entering,traversing or climbing an archeo-logical resource is prohibited (36CFR 2.1).

10. The use of motorized orwheeled vehicles, such as motor-cycles, bicycles, baby buggies/strollers, and similar vehicles, ontrails below the rim is prohibited (36CFR 4.10 and 4.30).

Exception: The use of wheelchairsfor mobility-impaired persons isallowed (See Appendix F, Wilder-ness Use by People with Disabili-ties).

11. Writing, scratching, or otherwisedefacing signs, buildings, or otherproperty is prohibited (36 CFR2.31).

12. More than one party/group fromthe same organization camping inthe same designated campground ornoncorridor use area per night isprohibited. Violating a closure, desig-nation, use, or activity restriction orcondition, schedule of visiting hours,or use limit is prohibited (36 CFR 1.5and 1.6).

13. Use of soap in any side stream orwithin 100 yards of any side streamjunction with the Colorado River isprohibited (36 CFR 2.10).

Exception: Use of soap is allowed inthe mainstream of the ColoradoRiver only.

14. Commercial use of the back-country must be authorized by apermit from Grand Canyon NationalPark (See Appendix I, CommercialUse Policy).

15. All trails within the Grand Canyonare closed to use for competitivetravel, including �rim-to-rim� andother races or timed events.

16. Disposing of human waste within100 feet of a water source, high-watermark of a body of water, or a camp-site, or within sight of a trail is prohib-ited (36 CFR 2.14a9). However,hikers camped along the ColoradoRiver must urinate directly into theColorado River. Fecal waste muststill be disposed beyond 100 feet asdescribed above. This exception forurine applies to the Colorado Riveronly, and does not include anysidestream or other water course.

4-41


This is consistent with the ColoradoRiver trip regulations.

17. Violating a term or condition of abackcountry permit is prohibited.This includes all aspects of thepermit process as outlined in theWilderness Management Plan (36CFR 1.6g2).


� Provide information on recreationalopportunities outside the Park (SeeAppendix E, Recreational Opportuni-ties and Permit Information for Adja-cent Lands).

� Support day hiking research project.Incorporate findings into future visitoruse plans.

� Implement group-size limits for stockovernight and day use in wildernessareas.

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ne of the management objectives of the Wilderness Manage-ment Plan as stated in Chapter One,specifies desired outcomes for thepermitting system and operations:

� serve the visitor by providingusers the opportunity to obtainpermits for wilderness andnonwilderness backcountryareas that offer the type ofexperience they seek

� serve Park management byproviding an effective way toeducate the public on low-impact practices, ethics, andsafety

� provide information on uselevels and patterns that enablemanagement to make informeddecisions regarding the protec-tion of wilderness values andresources.

This chapter discusses issues, initia-tives, and strategies to achieve themanagement objectives. (See Appen-dix G, Backcountry Reservation andPermit System).


During the Public Scoping Process forthe Wilderness Management Planconducted in 1995, people wereasked to comment on issues relatedto the Park�s backcountry permittingoperations, including a proposed cost-recovery program.


A high percentage of respondentsseemed to favor a cost-recovery system,and stated that the revenues collectedshould be used to support backcountry-related programs and operations. Theseoperations and services include directcontact with knowledgeable staff byphone or in person, extended officehours, more rangers in the field, trailmaintenance, education, and resourcemanagement programs.

While many commented that the currentsystem is satisfactory, a majority ofcomments suggested that certain as-pects of the permit system should beimproved. Of greatest concern was theinability of users to obtain informationfrom the Backcountry Office. The tele-phone system did not provide an ad-equate level of service. Of those whoindicated they were �experienced� GrandCanyon hikers, the mail-out system wasthe preferred way of obtaining permits.

Of those who did not favor a cost-recov-ery system for backcountry permits,many believed that current Park entrancefees should cover this service. Others feltthat the system should be simplified toavoid charging for permits, and many feltstrongly that access to public landsshould be free.

Neighboring Tribal governments raisedissues about access. While permits arerequired for recreational use on theNavajo, Havasupai, and Hualapai Triballands, visitors accessing the Parkthrough Tribal lands often do not obtainthe required permits from the Tribes.Visitors mentioned that getting tribalpermits can be difficult and confusing.

BACKCOUNTRYBACKCOUNTRYBACKCOUNTRYBACKCOUNTRYBACKCOUNTRYPERMITPERMITPERMITPERMITPERMITSYSTEMSYSTEMSYSTEMSYSTEMSYSTEM

O

5-43


5.25.25.25.25.2 System andSystem andSystem andSystem andSystem andAdministrationAdministrationAdministrationAdministrationAdministration

To meet the tremendous demand forBackcountry Use Permits in a fair andtimely manner, an automated backcoun-try reservation and permit system wasestablished in 1983. A Backcountry UsePermit is required for all overnightwilderness and backcountry use, includ-ing overnight hiking, overnight cross-country ski trips, off-river overnight hikesby river-trip members, Colorado Riverbeach camping by backpackers, over-night equine backcountry use, and allovernight backcountry caving activity. (ACave Entry Permit is required to entercaves. See Appendix J, Cave EntryPermit). The Backcountry Use Permit isvalid only for the trip leader, itinerary,and dates specified on the permit.Overnight stays in the dormitories orcabins at Phantom Ranch do not re-quire backcountry permits.

The permit system is designed toregulate, facilitate, distribute, andmeasure use in wilderness and back-country areas. Use regulation is essen-tial for protecting Park resources andinsuring a variety of backcountry experi-ences. The permit system also providesinformation about the extent and inten-sity of wilderness use, including identifi-cation of problem areas. Use statisticsgenerated from the automated systemare compared to resource conditionsevaluated through the campsite monitor-ing program (See Chapter 12, Monitor-ing and Research). This provides abasis for determining actions to preventfurther resource impacts from recre-ational use. Park ranger patrols monitor

use at a level that encourages compli-ance with the permit system. Wilder-ness use statistics will be distributed bythe Backcountry Office quarterly to theWilderness Subdistrict, Trail Crew,Interpretation Staff, and the ScienceCenter to facilitate wilderness manage-ment.

The permit system is administered bythe Backcountry Office. The main office(South Rim), is open year-round. TheNorth Rim office is open from May toOctober. These offices handle permitapplications by mail, FAX, or in person.Permits may also be obtained in-person at a number of remote loca-tions. Specific guidelines and proce-dures for obtaining a backcountrypermit are included as Appendix G,Backcountry Reservation and PermitSystem.

5.35.35.35.35.3 Recreation FeeRecreation FeeRecreation FeeRecreation FeeRecreation FeeDemonstration ProgramDemonstration ProgramDemonstration ProgramDemonstration ProgramDemonstration Program

In 1996, Congress mandated theSecretary of the Interior to implement athree-year Recreation Fee Demonstra-tion Program in up to 100 NationalPark Service areas. Grand CanyonNational Park is participating in theRecreation Fee Demonstration Pro-gram, implementing an increasedentrance fee and a backcountry permitand impact fee. This program directsparks to increase current fees andestablish new fees for recreationaluses, and retains a large portion of theresulting revenues at the collecting parkfor new services and facilities. Theprogram mandates collection of feesfor three years, and allows for expendi-

In those daysIn those daysIn those daysIn those daysIn those daysthere was nothere was nothere was nothere was nothere was noroad, the parkroad, the parkroad, the parkroad, the parkroad, the park

was all awas all awas all awas all awas all ablessed wil-blessed wil-blessed wil-blessed wil-blessed wil-derness, andderness, andderness, andderness, andderness, andI have oftenI have oftenI have oftenI have oftenI have oftenthought sincethought sincethought sincethought sincethought sincewhat a won-what a won-what a won-what a won-what a won-derful peoplederful peoplederful peoplederful peoplederful peoplewe would havewe would havewe would havewe would havewe would havebeen if webeen if webeen if webeen if webeen if we

had wanted tohad wanted tohad wanted tohad wanted tohad wanted tokeep it thatkeep it thatkeep it thatkeep it thatkeep it that

way.way.way.way.way.

Adolph Murie

5-44


tures from fees for up to six years.After this three year period, the Parkmay continue collection of use feesunder a cost recovery program. Cur-rently, all fees are collected under theFee Demonstration Program. A costrecovery program would allow fees tobe collected to cover actual costs, andwould have to be approved by Con-gress.

In general, the benefits realized atGrand Canyon include additionalservice to the public, increased pro-tection of Park resources, and con-struction of needed facilities accord-ing to the Park�s General Manage-ment Plan.

The direct benefits of the RecreationFee Demonstration Program to wil-derness users include improvedaccess to the Backcountry Office byFAX or phone, longer office hours, andadditional staff to disseminate infor-mation and process permits. In 1997,and educational hiking video waswritten and produced by the GrandCanyon Association in cooperationwith the Park. Fees collected throughthe demonstration program will sup-port additional copies and distributionof the video to permittees and visitorcontact stations. In addition, impactfees will support wilderness resourcemonitoring programs, trail mainte-nance, and visitor education. Severalprojects have been identified and areincluded in Chapter Sixteen, Imple-mentation Schedule.

5.45.45.45.45.4 Access ThroughAccess ThroughAccess ThroughAccess ThroughAccess ThroughAdjacent LandsAdjacent LandsAdjacent LandsAdjacent LandsAdjacent Lands

Access to wilderness in Grand CanyonNational Park is sometimes gained bycrossing other Federal or Tribal lands.On some North and South Rim areas,primitive roads through National ForestService lands access remote trailheads.In western Park areas, access is throughlands administered by the Bureau ofLand Management. These Federalagencies do not currently require per-mits; however, fees and permits may berequired in the future under the Recre-ation Fee Demonstration Program.Visitors to Federal lands are required tocomply with applicable regulations foreach agency.

Permits are required for use of, or ac-cess across, Tribal lands adjacent toGrand Canyon National Park. Navajo,Havasupai, and Hualapai Tribal landsshare boundaries with Grand CanyonNational Park. Access permits must beobtained from each Tribal government.Through the government-to-governmentconsultation process, the Tribes re-quested that the park work with them toestablish a system that ensures visitorshave both Park and Tribal permits. ThisPlan establishes a cooperative recre-ational use permitting strategy with theNavajo, Havasupai, and Hualapai Tribes.(See Chapter 16, ImplementationSchedule). Specific information onpermit requirements for Tribal lands areoutlined in Appendix E, RecreationalOpportunities and Permit Information forAdjacent Lands.

5-45


5.55.55.55.55.5 Administrative UseAdministrative UseAdministrative UseAdministrative UseAdministrative Use

Park staff conducting work related toresource protection, visitor contact, orother administrative duties are notrequired to obtain a permit for overnightuse. These activities include natural,cultural and recreational monitoring suchas monitoring water quality, wildlife,caves, campsites, and archeologicalsites; routine ranger patrols; and trailmaintenance. Park group-size limitsdepend on the project�s scope, and willbe determined through the MinimumRequirement Decision Process (SeeAppendix D). Park staff must provide theBackcountry Office with dates andlocation of scheduled work. When ap-propriate, this information will be con-veyed to visitors.

Scientific StudiesScientific StudiesScientific StudiesScientific StudiesScientific Studies

Individuals or groups conducting scien-tific studies in the Park must first obtaina research and/or collecting permit;applications are due at least 90 days inadvance of planned field activities. SeeChapter 12 for information on the re-search permit process.

Projects requiring access to restrictedlocations or popular backcountry useareas may require more than 90 days toreview and process. Non-park research-ers must obtain a permit for overnightuse, and should submit a backcountrypermit application through the reseachoffice at the same time the researchand/or collecting permit is submitted.The Research Office and BackcountryOffice will coordinate the review andapproval of backcountry permits for

scientific studies. Group-size limitsdepend on project scope, and will bedetermined through the MinimumRequirement Decision Process (SeeAppendix D.)

Organized GroupsOrganized GroupsOrganized GroupsOrganized GroupsOrganized Groups

An organized group is any number ofpersons united for some purpose,whether commercial or noncommercial.See Appendices G, BackcountryReservation and Permit System, and I,Commercial Use Policy, for permitinformation.


� Upgrade automated reservationssystem, and improve customerservice by increased staffing, com-munications, and hours of operation

� Distribute quarterly wilderness-usestatistics to Wilderness District, TrailCrew, Interpretive Staff and ScienceCenter to facilitate wilderness man-agement

� Show educational video in Back-country Office and Visitor Centers,and distribute to permit holders

� In cooperation with the Navajo,Havasupai, and Hualapai Tribes,establish a cooperative permittingsystem for use on Tribal and Parklands.

5-46



WILDERNESSWILDERNESSWILDERNESSWILDERNESSWILDERNESSCAMPSITECAMPSITECAMPSITECAMPSITECAMPSITEMANAGEMENTMANAGEMENTMANAGEMENTMANAGEMENTMANAGEMENT


he primary issues of wilderness campsite management are relatedto the amount and type of impacts tonatural and cultural resources, and thedistribution of campsites and subse-quent effects on visitor experience.Long-term monitoring programs havedocumented campsite and trail condi-tions and impacts to archeologicalsites.

Two issues identified in the June1995 Public Scoping process specifi-cally addressed concerns related tocampsite management, 1) use-areaboundaries, and 2) group-size limits.

Several suggestions for addressingconcerns related to visitor impacts atpopular campsites were made. Thosemost often mentioned were to reducethe number of permits (and use), andto provide more information andeducation on wilderness campingpractices.

Those who expressed support forchanges in use-area boundariesfocused on greater opportunities forsolitude, and supported dispersal ofuse. Several suggestions were madeon how to divide use-area bound-aries, recommending adjustmentsbased on terrain and geologic forma-tions. Rather than adjusting use-areaboundaries, some suggested evaluat-ing the management zoning andcamping classifications (designatedversus at-large).

The vast majority of respondents did notsupport increased group-size limits.Many supported a smaller group size (alimit of six was most often mentioned).Several individuals expressed dissatis-faction with encounters made with largergroups; and some inferred that a smallergroup size is more closely related to awilderness experience.

6.26.26.26.26.2 Use-Area AllocationUse-Area AllocationUse-Area AllocationUse-Area AllocationUse-Area Allocation

The wilderness of Grand Canyon Na-tional Park is divided into 88 overnightuse areas. Each use area describes aspecific land area, and has an estab-lished camping capacity. To the extentpossible, use-area boundaries havebeen defined according to identifiabletopographic features such as ridge topsand drainages, and vary in size fromseveral hundred to several thousandacres. Each use area has an overnightcamping capacity based on the area�ssize, the number of suitable and avail-able camping sites, management zoningor Opportunity Class, and its use history.

The strategy for allocating by use areaswas adopted in the 1983 BackcountryManagement Plan. Prior to this, permitswere issued for the wilderness areas bytrailhead entry. Each major trailhead hada daily quota which allowed a definednumber of groups. In some cases, onetrailhead provided access to several useareas but visitors typically congregatedin a specific area such as Hermit Camp.As a result, irreversible impacts tonatural features and cultural sites oc-curred, and the high number of people atcamps did not provide the desiredwilderness experience. The use-area

TTTTT

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strategy serves as a management toolfor dispersing use for resource protec-tion and preservation of wildernessvalues such as opportunities for soli-tude.

As described in Chapter Three, theOpportunity Classes define manage-ment objectives for resource, social,and managerial settings of each man-agement zone. Each use area by defini-tion falls into an Opportunity Class, andoverall management of the use area isbased on specific management objec-tives and standards.

The wilderness-use allocation system isbased on the number and size of over-night groups. In use areas with desig-nated camping, the number of groupsallowed is determined by the number ofcampsites that are, in turn, based on thelevels of impacts a particular area cantolerate. Management objectives forproviding a range of opportunities andexperiences including solitude, warrantlower use allocations. In addition, thePark�s vast, remote use areas definedby geologic complexity, lend themselveswell to use dispersal, and, as defined inthe Wilderness Act, �outstanding oppor-tunities for solitude or a primitive andunconfined type of recreation.�

A complete listing of use areas with anexplanation of the system for assigningcodes is included as Appendix K, UseArea Classification and Limits.

6.36.36.36.36.3 CampsiteCampsiteCampsiteCampsiteCampsiteClassificationClassificationClassificationClassificationClassification

Three types of camping exist within thebackcountry and wilderness areas ofGrand Canyon National Park. Campingwithin the nonwilderness Cross-CanyonCorridor is restricted to developedcampgrounds at three locations: Cot-tonwood, Bright Angel, and IndianGarden. Primitive designated camp-sites are located in the wildernessareas which receive high use levelsand are typically concentrated nearwater sources. Unrestricted, at-largecamping is available in over 90% of thewilderness use areas. Table 6.1 showsthe proportion of campsite types byOpportunity Class.

Designated-Site CampingDesignated-Site CampingDesignated-Site CampingDesignated-Site CampingDesignated-Site Camping

Camping at designated locations isrequired when necessary to limit furtherresource degradation and to restrictintensive use of previously disturbedareas. There are use areas in theThreshold Opportunity Class withcampsites that have been designatedbecause of archeological, resourceprotection, aesthetic, and sociologicalconsiderations. Where designatedcampsites exist, backcountry usersmay not select other campsites. Insome use areas within the PrimitiveOpportunity Class, camping areashave been defined to direct hikers tomore resistant areas, and to preventimpacts to fragile and sensitive areas.

The long fightThe long fightThe long fightThe long fightThe long fightto save wildto save wildto save wildto save wildto save wildbeauty repre-beauty repre-beauty repre-beauty repre-beauty repre-sents democ-sents democ-sents democ-sents democ-sents democ-racy at itsracy at itsracy at itsracy at itsracy at itsbest. It re-best. It re-best. It re-best. It re-best. It re-quires citi-quires citi-quires citi-quires citi-quires citi-

zens tozens tozens tozens tozens toproctice theproctice theproctice theproctice theproctice thehardest of allhardest of allhardest of allhardest of allhardest of allvirtures--self-virtures--self-virtures--self-virtures--self-virtures--self-

restraint.restraint.restraint.restraint.restraint.

Edwin Way Teale

6-55


At-large CampingAt-large CampingAt-large CampingAt-large CampingAt-large Camping

Camping in the backcountry at sitesother than designated campsites isconsidered �at-large� camping. In useareas without designated campsiteswithin the Threshold OpportunityClass, as well as those within thePrimitive and Wild OpportunityClasses, individuals or groups cancamp anywhere in the use area inaccordance with minimum-impactcamping techniques (See Chapter10, Interpretation, Education, andInformation).

River Beach CampingRiver Beach CampingRiver Beach CampingRiver Beach CampingRiver Beach Camping

Camping on Colorado River beachesis permitted for backcountry hikers, orfor those on commercial or privateColorado River trips. Commercialand private river users are required tocomply with the specific conditions oftheir river trip permits. Backcountryusers should recognize that differ-ences exist between backcountry andriver-use regulations. River-useregulations, for example allow groupsizes up to 36 on commercial trips,and require the carry-out of humanwaste in approved portable toilets.River users are also required to camp

on the resistant post-dam sandbarareas, and not in the fragile desert zones(Colorado River Management Plan1989). Backpackers may experiencefrequent contacts with river trips whencamping on Colorado River beaches.

6.46.46.46.46.4 Group Size and UseGroup Size and UseGroup Size and UseGroup Size and UseGroup Size and UseLimitsLimitsLimitsLimitsLimits

In 1993, the group-size limit was reducedfrom 16 to 11. The determination wasbased on the recommendations ofecological and sociological wildernessresearch (Cole 1985; Underhill, et al.1986; and Hendee, et al. 1990) andNational Park Service monitoring pro-grams (Jalbert 1992 and 1993).

The unit of measure for allocating use inuse areas is by groups. These arecategorized as �small group� consistingof 1-6 persons, and �large group� con-sisting of 7-11 ) persons. The upper limiton total number of groups (small andlarge combined) per night is five in theHorseshoe Mesa Use Area. Other useareas within the Threshold OpportunityClass allocate a maximum of four groupsper night. Tanner Use Area is the onlyinner canyon use area within the Primi-tive Opportunity Class that allows up to

Figure 6.1Figure 6.1Figure 6.1Figure 6.1Figure 6.1ProportionProportionProportionProportionProportiono fo fo fo fo fWildernessWildernessWildernessWildernessWildernessCampsiteCampsiteCampsiteCampsiteCampsiteTypes byTypes byTypes byTypes byTypes byOpportunityOpportunityOpportunityOpportunityOpportunityClassClassClassClassClass

Total Use AreasTotal Use AreasTotal Use AreasTotal Use AreasTotal Use Areas 2626262626 40 40 40 40 40 22 22 22 22 22

ThresholdThresholdThresholdThresholdThreshold Primitive Primitive Primitive Primitive Primitive Wild Wild Wild Wild Wild

Designated Sites 62% 2% 0%

At-Large Camping 38% 98% 100%

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four groups each night. The maximum isthree in all other Primitive Use Areas. Allbut two use areas in the Wild Opportu-nity Class have a use limit of two smallor one large group per night. Fossil andVishnu Use Areas are limited to onesmall group or one large group. Theselimits for the Fossil and Vishnu UseAreas assure the opportunity for anexperience without contact with anotherparty or group. In the Cross-CanyonCorridor campgrounds, use limits arebased on the total number of campersas well as on the number of groups.

All use areas which have at-large camp-ing have an overnight stay limit of sevennights/use area/trip. The superintendentmay approve an extended stay due to aresearch or resource-monitoring project.The overall trip length, both in number ofdays and miles, is not limited. In useareas having designated campsites orcampgrounds, overnight stays in anyone designated campsite or camp-ground are limited to two nights per trip.

6.56.56.56.56.5 Special ManagementSpecial ManagementSpecial ManagementSpecial ManagementSpecial Managementof Use Areasof Use Areasof Use Areasof Use Areasof Use Areas

A variety of factors necessitates diligentmanagement efforts to maintain theecologic integrity and cultural signifi-cance of heavily visited fragile wilder-ness areas. Intensive recreational use ofpopular areas has resulted in deteriora-tion of natural and cultural resources.Additionally, the effects of concentrateduse has implications on the quality ofexperience a visitor may have. For eachOpportunity Class, management objec-tives for campsite condition and distribu-tion have been described (See Chapter

12, Monitoring and Research). Whenstandards are not being met, specifictreatments are needed to addressresource problems. These treatmentsmay involve a range of actions includ-ing rehabilitation, campsite designa-tion, use dispersal to other areas, usereduction, and sensitive area closure.Following is a list of Use Areas whichrequire special management.

Hermit and Monument UseHermit and Monument UseHermit and Monument UseHermit and Monument UseHermit and Monument UseAreasAreasAreasAreasAreas

The high demand for the Hermit andMonument Use Areas is primarily dueto their accessibility and the presenceof water. The designated sites forcamping in the Hermit and MonumentUse Areas are Hermit Creek, HermitRapid, Monument Creek, GraniteRapid, Cedar Spring, Salt Creek, andHorn Creek.

At both Hermit Creek and MonumentCreek, campsites are located in acluster of four campsites in closeproximity. Toilets are provided at thecluster areas as well as designatedsites along the Tonto Trail east ofMonument Creek. An administrativesite is located near the campsitecluster at Hermit Creek.

Specific problems at both use areasare associated with the presence ofarcheological sites, impacts to watersources, presence of rodents, and, inthe social context, the proximity ofcampsites to one another.

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Maintenance of the backcountrytoilets is conducted by mule and byresource river patrol trips (See Ap-pendix D, Minimum RequirementDecision Process). Rehabilitationand restoration work has also beendone at each site. These treatmentshave not been completely successful.A range of alternatives includingreduction in use, data recovery atarcheological sites, and campsiterelocation are being considered inaction plans for the Monument Creekand Hermit Creek Use Areas. Thesemanagement actions are identified inChapter 16, Implementation Plan andSchedule.

Horseshoe Mesa Use AreaHorseshoe Mesa Use AreaHorseshoe Mesa Use AreaHorseshoe Mesa Use AreaHorseshoe Mesa Use Area

The Horseshoe Mesa Use Area hasrelatively easy access and high levelsof overnight and day use. Designatedcampsites are located in two clustersfor small and large groups. Toilets arewithin each cluster.

The actual and potential impacts tofragile cultural resources necessitatesthe reevaluation of campsite manage-ment in this area. The historic re-mains on Horseshoe Mesa are offi-cially listed on the National Registerof Historic Places as the Last ChanceMine Historic District. As a NationalRegister site, the NPS is mandated tomanage the area to protect theDistrict�s long-term integrity andhistoric values. Limiting factors in thisarea are adequate human wastedisposal and the protection of culturalresources. Camping is restricted todesignated sites, some of which are

currently located near cultural resources.Alternatives to mitigate the impacts tocultural resources will be developedthrough a separate action plan (SeeChapter 16, Implementation Schedule).The range of alternatives will includereduction in overnight use, increasedvisitor education through staff contacts,printed material and signing, and closureof campsites within the Last ChanceMine Historic District. See Chapter 16,Implementation Plan and Schedule.

Tanner Use AreaTanner Use AreaTanner Use AreaTanner Use AreaTanner Use Area

The Tanner Use Area has high use levelson the delta area near the ColoradoRiver. Impacts to concentrations ofarcheological sites and vegetation in thedunes have resulted in the closure of thesand dune area immediately down-stream of Tanner Creek. Campsites andtrails have been defined in the sand andcobble areas adjacent to the ColoradoRiver. A composting toilet has beenplaced experimentally to address humanwaste and trailing problems. This Planexpands the Tanner Use Area bound-aries at the River to allow for greaterdispersal of use into resistant areasadjacent to the Colorado River.

Deer Creek Use AreaDeer Creek Use AreaDeer Creek Use AreaDeer Creek Use AreaDeer Creek Use Area

One of the most popular destinations isthe Deer Creek Use Area. During thesummer months, as many as 200 riverusers visit Deer Creek Falls and theNarrows in a single day (Jalbert 1990and 1991). The preferred campsites inthe Deer Creek valley are within sight ofthe trail, and archeological sites arelocated near the high-use area. Human-

6-58


caused wildfires (two in the past sevenyears) have destroyed vegetation anddamaged archeological features in thisarea.

This Plan separates the Deer CreekUse Area from the expansive, rim toriver, Indian Hollow Use Area. The newDeer Creek Use Area is managed bythe standards described in the Thresh-old Opportunity Class. A compostingtoilet has been placed, and the over-night camper limit set at one small andone large group per night in two desig-nated campsites.

Tapeats Use AreaTapeats Use AreaTapeats Use AreaTapeats Use AreaTapeats Use Area

Although the Tapeats Use Area isremote and access from the rim isdifficult, this area is visited frequently byriver trips, especially during the summerseason. Camping is restricted to twodesignated areas, Upper Tapeats andLower Tapeats. Three designatedcampsites and a toilet are provided atthe Upper Tapeats site. The LowerTapeats Use Area is at the confluenceof Tapeats Creek and the ColoradoRiver, and is also a popular camp forriver trips.

Clear Creek Use AreaClear Creek Use AreaClear Creek Use AreaClear Creek Use AreaClear Creek Use Area

The Clear Creek Use Area includes theClear Creek drainage as well as thearea on the Tonto Plateau to SumnerWash (two miles east of the NorthKaibab Trail). In the Clear Creek drain-age, camping is restricted to areasabove the first major side canyon northof the River that enters from the east.Camping on the Colorado River beach

just to the east of the confluence ofClear Creek and the Colorado River isalso allowed.

Phantom Creek Use AreaPhantom Creek Use AreaPhantom Creek Use AreaPhantom Creek Use AreaPhantom Creek Use Area

The Phantom Creek Use Area includesUtah Flats and the Phantom Creekdrainage two miles above itsconfluence with Bright Angel Creek.The Phantom Creek drainage is onlyopen to camping above the majorwaterfall near the 3600 foot contour lineon United States Geological Survey(USGS) maps.

Cape Final Use AreaCape Final Use AreaCape Final Use AreaCape Final Use AreaCape Final Use Area

This Plan separates the Cape FinalUse Area on the North Rim from theWalhalla Use Area. This use area alsooffers an increasingly popular day hikewith views of the Canyon from the rim.Overnight camping is limited to twonights for small groups only at thedesignated campsite. At-large camp-ing is available in the adjacent WalhallaUse Area.

Other ConsiderationsOther ConsiderationsOther ConsiderationsOther ConsiderationsOther Considerations

For the Walhalla Plateau, ThompsonCanyon, and Robbers Roost UseAreas, access is from the North RimEntrance and Point Imperial/CapeRoyal Roads. Camping is at-large, andcampsites must not be visible frompaved access roads.

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6.66.66.66.66.6 Nonwilderness UseNonwilderness UseNonwilderness UseNonwilderness UseNonwilderness UseAreas with Semi-Areas with Semi-Areas with Semi-Areas with Semi-Areas with Semi-Primitive MechanizedPrimitive MechanizedPrimitive MechanizedPrimitive MechanizedPrimitive MechanizedAccessAccessAccessAccessAccess

These areas are characterized by apredominately natural setting whereuse is relatively low, but evident. Usedispersal is achieved by designated-site camping. Motorized use is per-mitted. (Manning 1986; U.S. Depart-ment of Agriculture, Forest Service1982) Within the wilderness, a 300-foot wide nonwilderness road corridorwill be retained in a primitive state toprovide mechanized access. Thefollowing use areas are accessible byprimitive roads within the Semi-Primitive Mechanized OpportunityClass.

Point Sublime Use AreaPoint Sublime Use AreaPoint Sublime Use AreaPoint Sublime Use AreaPoint Sublime Use Area

The Point Sublime Use Area on theNorth Rim is a popular day use andovernight destination. This area isreached by the Point Sublime Road,and is excluded from wilderness forthe purpose of providing an overlooksite. Two designated sites for onesmall and one large group are locatedaway from the popular rim viewpoint.Overnight camping is limited to twonights.

Swamp Ridge ComplexSwamp Ridge ComplexSwamp Ridge ComplexSwamp Ridge ComplexSwamp Ridge Complex

Within the Swamp Ridge Cluster, twodesignated campsites and at-largecamping are accessible by primitiveroads. Overnight use is limited to twonights at the designated campsites.

Fire PointFire PointFire PointFire PointFire Point is a popular rimviewpoint and camping area withinwilderness, and is reached bytravelling Forest Service roads tothe Park boundary. Users of theFire Point designated site mustpark near the boundary fence andhike approximately one mile intothe campsite. One designatedcampsite accommodates one largeor one small group per night.

Swamp PointSwamp PointSwamp PointSwamp PointSwamp Point is popular rim view-point, campsite, and trailhead to theNorth Bass Trail and Powell Plateau.Two designated campsites arelocated here: one at the trailhead,and the other adjacent to the roadwithin the nonwilderness corridor. Thecampsite at the trailhead is intendedfor use by those doing an innercanyon trip. The limit is two large ortwo small groups per night.

Swamp Ridge Use AreaSwamp Ridge Use AreaSwamp Ridge Use AreaSwamp Ridge Use AreaSwamp Ridge Use Area isopen to at-large camping, and isaccessible by primitive roads.

Pasture Wash ComplexPasture Wash ComplexPasture Wash ComplexPasture Wash ComplexPasture Wash Complex

The Pasture Wash Use Areas are ac-cessible by high-clearance vehiclesduring most of the year; heavy rains andsnow may make the roads impassablerequiring temporary closures for re-

6-60


source protection. Use areas within thecluster are managed as designated andat-large camping. Overnight use islimited to two nights at designatedcampsites.

Signal Hill and Ruby PointSignal Hill and Ruby PointSignal Hill and Ruby PointSignal Hill and Ruby PointSignal Hill and Ruby Pointeach location has one designatedcampsite located on the BoundaryRoad toward Havasupai Point.Camping is limited to one smallgroup at each site with a maximumof two vehicles per group. Havasu-pai Point is designated for day-useonly, camping is not allowed.

South BassSouth BassSouth BassSouth BassSouth Bass Trailhead Trailhead Trailhead Trailhead Trailhead hastwo designated campsites. Groupsplanning hikes into the South BassUse Area must also have a permitfor the trailhead designated camp-sites if they plan to camp on the rimprior to their hike. Two designatedcampsites accommodate one largeor two small groups.

Pasture WashPasture WashPasture WashPasture WashPasture Wash At-large camp-sites to the southwest of the Pas-ture Wash Ranger Station must notbe visible from access roads.Designated campsites are locatedat the South Bass Trailhead andalong the Havasupai Point Road.Camping is not allowed near thehistoric Pasture Wash RangerStation or at the Havasupai pointoverlook area.

Eremita Mesa Use AreaEremita Mesa Use AreaEremita Mesa Use AreaEremita Mesa Use AreaEremita Mesa Use Area

Access to the new Eremita Mesa UseArea is by the Boundary Road. Roadconditions may limit access as de-scribed for the Pasture Wash UseArea. At-large camping is limited toone large and one small group pernight.

6.76.76.76.76.7 Resource ProtectionResource ProtectionResource ProtectionResource ProtectionResource Protectionand Stewardshipand Stewardshipand Stewardshipand Stewardshipand Stewardship

The primary dimensions of recreationmanagement in wilderness (to providevisitors the opportunity for qualitywilderness experiences and to limit theresource site impacts caused by visitoruse), are not separate or distinct con-cepts (Hendee, et al. 1990). The inter-relationship between these two as-pects of managing visitor use in wilder-ness presents a challenge for manag-ers. Many resource impacts (such aslitter and vandalism) affect visitorexperience, and reducing impactsimproves experience. However, somemanagement actions taken to controlimpacts may restrict visitors in waysthat adversely affect their experience(e.g., signs, closures, and designatedcampsites).

Management of resource impacts tocampsites, trails, and associatedactivities requires an understanding ofvisitor behaviors as well as the affectsof treating these problems. This in-volves an interdisciplinary strategy toachieve management objectives. Tothat end, Park staff play various roles incampsite management.

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Figure 6.2Figure 6.2Figure 6.2Figure 6.2Figure 6.2ResponsibilitiesResponsibilitiesResponsibilitiesResponsibilitiesResponsibilitiesAssociatedAssociatedAssociatedAssociatedAssociatedwithwithwithwithwithCampsiteCampsiteCampsiteCampsiteCampsiteManagementManagementManagementManagementManagement

Figure 6.2 describes the general staffresponsibilities associated withwilderness campsite management.

6.86.86.86.86.8 Summary of UseSummary of UseSummary of UseSummary of UseSummary of UseArea ChangesArea ChangesArea ChangesArea ChangesArea Changes

Changes in use patterns, resourceconditions, and increased demandhave required a reevaluation of use-area classification and allocations. Aspreviously stated, the primary pur-pose of allocating use is to maintainthe standards described for natural,cultural, and experiential wildernessvalues. The use area changes allowfor a slight increase overall in wilder-ness use levels. In many of the popu-lar areas visitor use is concentrated,and by separating these sites fromthe larger use area, a broader rangeof opportunities is provided. Many ofthe changes also provide for a moreappropriate level of management.

Wilderness RangerWilderness RangerWilderness RangerWilderness RangerWilderness Ranger ✔ ✔ ✔ ✔

Natural ResourceNatural ResourceNatural ResourceNatural ResourceNatural ResourceSpecialistSpecialistSpecialistSpecialistSpecialist

RecreationRecreationRecreationRecreationRecreationResearcherResearcherResearcherResearcherResearcher

ArchaeologistArchaeologistArchaeologistArchaeologistArchaeologist

InterpretiveInterpretiveInterpretiveInterpretiveInterpretiveSpecialistSpecialistSpecialistSpecialistSpecialist

InventoryInventoryInventoryInventoryInventory Monitoring Visitor Monitoring Visitor Monitoring Visitor Monitoring Visitor Monitoring Visitor Resource Resource Resource Resource Resource Education Protection Education Protection Education Protection Education Protection Education Protection

✔ ✔

✔ ✔ ✔ ✔

✔ ✔ ✔ ✔

✔ ✔ ✔ ✔

Other use area changes not included inthe previous sections reflect use-areaboundary changes. Use-area changesare summarized in Figure 6.3, and areincluded in Appendix K, Use AreaClassification and Limits.

Upon approval of this Plan, the NationalPark Service will produce a map whichwill include these use-area boundaryand classification changes, wildernessboundaries and primitive roads.

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Figure 6.3Figure 6.3Figure 6.3Figure 6.3Figure 6.3Summary ofSummary ofSummary ofSummary ofSummary ofUse AreaUse AreaUse AreaUse AreaUse AreaChangesChangesChangesChangesChanges

Use Area Use Area Use Area Use Area Use Area Nature of ChangeNature of ChangeNature of ChangeNature of ChangeNature of ChangeName and CodeName and CodeName and CodeName and CodeName and Code

Badger (AA9) Extend boundary to include Nine-Mile Canyon

Soap Creek (AB0) New. Formerly within Rider Use Area. Primitive Use Area with

at-large camping

Rider (AB9) Extend boundary to include 19 Mile Canyon

Walhalla Plateau (NA0) Redefine boundaries, decrease total area. Create NA8 and NC9(See below)

Cape Final (NA1) New. Formerly within Walhalla. Manage as separate ThresholdUse Area with designated campsites

Ken Patrick (NC9) New. Formerly within Walhalla. Manage as separate Primitive UseArea with at-large camping

Thompson Canyon (NB9) Change to Wild classification

Robbers Roost (ND9) Boundary change. Extend boundary to include a portion of theBasin north of access road, and toward Point Sublime

Outlet (NG9) Boundary change. Includes a portion of the Basin south of accessroad.

Point Sublime (NH1) Reduction of total area (See ND9). Manage as Threshold Use Areawith mechanized access and designated campsites.

Swamp Point (NJ2) Separate from Swamp Ridge. Manage as Primitive Use Area withmechanized access and designated camp areas.

Fire Point (NJ1) Separate from Swamp Ridge. Manage as Primitive Use Area withmechanized access to Park boundary and designated campsite

Indian Hollow (AN9) Formerly called Deer Creek. Does not include high-use area inDeer Creek Valley

Deer Creek (AX7) Separate Deer Creek valley from expansive area. Threshold UseArea with designated campsites

Tanner (BB9) Extend boundaries at river to drainage at Basalt Rapids

Eremita Mesa (SC9) Separate from SE9. Manage as Primitive Use Area withmechanized access and at-large camping

Pasture Wash Reduction in total area (See SC9). Designate campsites at South(SE1, SE2, SE3, SE0) Bass Trailhead and along Havasupai Point Road

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rand Canyon National Park has over 400 miles of established trails, of which 375 miles lie out-side the routinely maintained Cross-Canyon Corridor. Eighteen of thesewilderness trails (approximately 260miles) contain historic features (i.e.,retaining walls, tread riprap, log crib-bing, etc.), and ten have been deter-mined eligible for the National Registerof Historic Places. Most trails havereceived little or no stabilization orrehabilitation since Park establishmentover 75 years ago. Consequently,these trails are in various states ofdisrepair as cultural features andnatural components deteriorate.

Trail standards are necessary to meetthe 1995 General Management Plan�smanagement objectives to provide avariety of primitive recreational oppor-tunities consistent with wilderness andNPS policies on accessibility. Stan-dards are also necessary to meet theobjectives of this Wilderness Manage-ment Plan (See Chapter 1, Introduc-tion) by providing a trail system consis-tent with wilderness values, includingprotection of natural and cultural re-sources, and preservation of the char-acter of individual trails.

The NPS will conduct administrativeactivities for trail maintenance in amanner consistent with NPS Manage-ment Policies regarding wildernessmanagement and the use of MinimumRequirements (See Appendix D,Minimum Requirement Decision Pro-cess).

ChapterChapterChapterChapterChapter77777

TrailsTrailsTrailsTrailsTrailsManagementManagementManagementManagementManagement

7.1 Criteria for Establish-7.1 Criteria for Establish-7.1 Criteria for Establish-7.1 Criteria for Establish-7.1 Criteria for Establish-ing Trail Standards anding Trail Standards anding Trail Standards anding Trail Standards anding Trail Standards andSpecificationsSpecificationsSpecificationsSpecificationsSpecifications

Trails are widely recognized as consis-tent with wilderness. Controversy cancenter on the appropriateness of trailtype. Research indicates that wildernessvisitors favor low-standard trails (some-what like a game trail�narrow, varyinggrade, winding, not the shortest route)more than high-standard trails (wide,steady grades, fairly straight) (Lucas1980).

In 1988, Grand Canyon adopted specifictrail standards based on these criteria:

� Natural Resource Protection� Cultural Resource Protection and

Stabilization� Management Zone Classification� Trail Character and Visitor Experience� Recreational Use Levels� Visitor Safety

Regarding visitor safety, NPS Manage-ment Policies (6:8), states

[p]ark visitors must accept wilder-ness largely on its own terms,without modern facilities providedfor their comfort or convenience.Users must also accept certainrisks, including possible dangersarising from wildlife, weather condi-tions, physical features, and othernatural phenomena, that are inher-ent in the various elements andconditions that comprise a wilder-ness experience and primitivemethods of travel.

GGGGG

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7.2 Trail Classification7.2 Trail Classification7.2 Trail Classification7.2 Trail Classification7.2 Trail Classification

Trail classification is specified by theNPS Trails Management Handbook(1983). Classification of each trailincludes both trail type and maintenancelevel.

Types of TrailsTypes of TrailsTypes of TrailsTypes of TrailsTypes of Trails

Type A Major Trails(nonwilderness: Cross-Canyon Corridorand Arizona Trail). Trails are markedroutes improved and maintained for footand horseback traffic. They may containbridges, corduroy elements, drainages,and necessary shelters.

Type B Minor TrailsThese trails are marked, improved, andmaintained to accommodate foot orhorseback traffic, but contain an overalllower construction standard thanType A.

Type C Wilderness TrailsThese trails are marked, but are gener-ally unimproved except for clearing andsome work on eroding or dangerousareas.

Maintenance LevelsMaintenance LevelsMaintenance LevelsMaintenance LevelsMaintenance Levels

Level IMaintained for high use. Traffic is heavy.Maintained at the highest level.

Level IITraffic is medium to heavy. Tread ismaintained at a high standard for userconvenience and comfort. Requires highmaintenance.

Level IIIMaintained for intermediate use. Trafficis medium. Tread is maintained foruser convenience.

Level IVThese trails are maintained for semi-primitive use. Traffic is low to medium.The tread is often not smooth, having adirt and rock surface. Maintained foreither foot or horse use. Less mainte-nance is required than on the previouslevels.

Level VMaintained for primitive use. Traffic islow. These foot trails require custodialcare. Minimal maintenance is required.

7.3 Grand Canyon Trail7.3 Grand Canyon Trail7.3 Grand Canyon Trail7.3 Grand Canyon Trail7.3 Grand Canyon TrailStandardsStandardsStandardsStandardsStandards

Each of the Park�s 63 established trailsis classified by type and level of main-tenance. The standards, based on trailclassification, are described in threecategories as follows. Figure 7.1details the complete list of trails, classi-fication, and trail mileage.

Corridor TrailsCorridor TrailsCorridor TrailsCorridor TrailsCorridor Trails(Nonwilderness)(Nonwilderness)(Nonwilderness)(Nonwilderness)(Nonwilderness)

Type A, Level IType A, Level IType A, Level IType A, Level IType A, Level IThe North Kaibab, South Kaibab,Bright Angel, Plateau Point, River, andthe Tonto between Bright Angel andSouth Kaibab, are designated CorridorTrails. The Arizona Trail also falls underthis category.

Something willSomething willSomething willSomething willSomething willhave gone outhave gone outhave gone outhave gone outhave gone outof us as aof us as aof us as aof us as aof us as apeople if wepeople if wepeople if wepeople if wepeople if weever let theever let theever let theever let theever let theremainingremainingremainingremainingremaining

wilderness bewilderness bewilderness bewilderness bewilderness bedestroyed.destroyed.destroyed.destroyed.destroyed.

Wallace StegnerWildernessLetter1960

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erosion. The discriminate placement ofessential cairns is permitted.

Threshold trails include the Hermit, ClearCreek, Thunder River, Whitmore, andGrandview Trails.

Primitive TrailsPrimitive TrailsPrimitive TrailsPrimitive TrailsPrimitive Trails

Type C (wilderness), Level VConstructed historic features are absentor much less evident than those presenton Threshold Trails.

Trail maintenance will consist of resourcerehabilitation efforts at impacted sec-tions, including stabilization of historicfeatures. Trail width should be an aver-age maximum of 18 inches, unlessenvironmental considerations require awider tread. Low-key maintenancetechniques such as out-sloping anddrainage dips may be used wherenecessary.

Multiple trail eradication and route delin-eation and/or minor relocation may benecessary to mitigate resource damage.In areas of severe or potentially severeresource damage, rock or log checks,waterbars or cribbing may be used.Outside rock retaining lining, buried andgenerally no more than two layers high,may be used to control sloughing ontraverses. The discriminate placement ofessential cairns is permitted.

Primitive trails include: Havasu, SouthBass, Tonto, Boucher, Hance, Tanner,Beamer, South Canyon, Nankoweap,North Bass, Deer Creek, Kanab Creek,Tuckup, Lava Falls, and river-attraction-site trails.

Threshold TrailsThreshold TrailsThreshold TrailsThreshold TrailsThreshold Trails

Generally Type B, Level IVThese trails are constructed with sig-nificant historic features within orleading to use areas within the Thresh-old Opportunity Class.

Trail maintenance will be performed onpreviously constructed sections toprotect the integrity of historical fea-tures including outside retaining walls,rock riprap, log cribbing, and drainagestructures.

Trail width should be a maximum of 18inches, except where historically con-structed to wider dimensions, or whereenvironmental conditions require widertread (e.g., switchback junctions).Average trail width of 12 to 15 incheson relatively level sections should bepreserved.

Slough removal to a minimum safe trailwidth (8 to 12 inches, depending onslide slope angle) will be conducted. A10% out-slope of trail tread (one-inchdrop for every ten inches of tread width)will be attempted where possible tofacilitate drainage. Outside bermshould generally be removed, unlessenvironmental considerations supportretention of the feature.

Loose rock removal may be con-ducted. Obstructive tree limbs or brushmay be cut or removed to preventdetours and multiple trailing. Drainagestructures (waterbars, drainage dips,check dams, sand ladders) may beused as necessary to correct trail

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Routes or Wild TrailsRoutes or Wild TrailsRoutes or Wild TrailsRoutes or Wild TrailsRoutes or Wild Trails

Routes or wild trails are defined as anondelineated access with no evidenthistorical trail construction and minimaluser-defined path development. Reha-bilitation on such routes will be to miti-gate unacceptable resource damageonly. Once an impacted section isidentified, and appropriate clearancesare conducted, rehabilitation efforts notto exceed Primitive Trail (Type C, LevelV) standards may be undertaken for thespecified site.

Borrow PitsBorrow PitsBorrow PitsBorrow PitsBorrow Pits

The need to use borrow pits for trailmaintenance will be minimized; trailmaintenance materials will be broughtfrom outside the Park whenever pos-sible (U.S. Department of the Interior,National Park Service 1991a, SpecialDirective 91; and NPS ManagementPolicies 1988). This direction is alsoprovided in the GMP (1995:10,17,55).

7.4 Monitoring7.4 Monitoring7.4 Monitoring7.4 Monitoring7.4 Monitoring

The focus of trail management is onspecific problem segments. The prob-ability that any trail segment will deterio-rate is a function of the trail�s immediateenvironment, its design and mainte-nance, and the amount, type and timingof use it receives. The factors that mostinfluence trail conditions are trail loca-tion and design. This suggests that theprincipal solutions to trail problemsinvolve increasing the ability of the trailto withstand use (through improvedengineering) or changing the location ofthe trail to one that is more capable of

withstanding use. Problem segmentsare identified, and those segments areeither redesigned or relocated. Experi-ence demonstrates that a descriptivelog of trail problems and prescriptiveactions will usually be more useful thana system of trail-monitoring samples(Cole 1991). Grand Canyon currentlymaintains a log of trail problems.

7.5 The Arizona Trail7.5 The Arizona Trail7.5 The Arizona Trail7.5 The Arizona Trail7.5 The Arizona Trail

The Arizona Trail will be completed asan unpaved trail from Grand CanyonVillage to Kaibab National Forest landson the South Rim, and, on North Rim, toconnect the Kaibab National Forestsection to the North Kaibab Trail. It willbe used for hiking, biking, and horse-back riding (GMP 1995:28, 45, 55).The Cross-Canyon Corridor trail sys-tem will be designated as part of theArizona Trail, but restrictions on bi-cycle, livestock, and overnight hikinguse will continue, consistent with thisWilderness Management Plan.

7.6 Restoration and7.6 Restoration and7.6 Restoration and7.6 Restoration and7.6 Restoration andImplementation PrioritiesImplementation PrioritiesImplementation PrioritiesImplementation PrioritiesImplementation Priorities

As mentioned above, over 400 miles ofwilderness trails wind through thecanyons and rimlands of Grand CanyonNational Park. During the past decade,Park staff conducted trail-conditionsurveys on approximately 150 miles ofthis system. Based upon these surveys,the NPS identified the following trails ortrail complexes as high priority mainte-nance efforts:

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Hermit Trail ComplexHermit Trail ComplexHermit Trail ComplexHermit Trail ComplexHermit Trail Complex(Hermit, Hermit Creek, Waldron, andDripping Spring Trails; 16 miles). ThePark conducted intensive restorationefforts on sections of the Hermit Trailduring the 1997 season. This populartrail complex contains abundant histori-cal features consisting of unique stoneriprap and stone-retaining walls. Land-slides, rockfall, and intense runoffadversely impacted significant sectionsof the complex. The 1997 maintenanceeffort mitigated many of the mostseriously damaged sections of themain Hermit Trail. Additional restora-tion work is required on sections of theDripping Spring and Waldron Trails.Minimal routine maintenance is neces-sary to protect the natural and culturalvalues of the trail and its immediateenvironment.

Grandview Trail ComplexGrandview Trail ComplexGrandview Trail ComplexGrandview Trail ComplexGrandview Trail Complex(Grandview, Horseshoe Mesa, PageSprings, and Cottonwood Trails; 7miles). The Park conducted intensiverestoration efforts on sections of theGrandview Trail during the 1997 sea-son. This popular trail contains abun-dant historical features consisting ofunique stone riprap and stone-retainingwalls similar to the Hermit. The 1997maintenance effort mitigated many ofthe most seriously damaged sectionsof the main Grandview Trail, althoughsubstantial restoration work is requiredon sections of the Page Springs andCottonwood Creek Trails.

Thunder River/Deer CreekThunder River/Deer CreekThunder River/Deer CreekThunder River/Deer CreekThunder River/Deer CreekComplexComplexComplexComplexComplex(Thunder River, Deer Creek, andTapeats Trails; 20 miles). This popularand extensive trail system consists of theBill Hall (Monument Point), Thunder River(Indian Hollow), and Deer Creek accesstrails. Portions of the Thunder River Trail,probably the oldest Anglo-constructedtrail in the Canyon, contain historicfeatures possibly dating back to the1870s (Dutton 1882). Park staff haveroutinely performed maintenance andreconstruction of trail sections since1980. Restoration of the Redwall sectionand some historic retaining walls nearIndian Hollow is still needed, as is peri-odic minimal maintenance of the entiretrail complex.

Colorado River TrailsColorado River TrailsColorado River TrailsColorado River TrailsColorado River TrailsThe Colorado River provides readyaccess to approximately 70 miles ofwilderness trails. The NPS routinelyconducts winter river trips addressingrestoration and routine maintenance ofthese important access routes.

Rim Access TrailsRim Access TrailsRim Access TrailsRim Access TrailsRim Access Trails(Tanner, New Hance, South Bass, SouthCanyon and Nankoweap Trails; 47miles). These historic, primitive trailsprovide important access to the innercanyon. The upper (Kaibab to the baseof the Redwall) reaches of each trailcontain severely eroded sections, result-ing in significant damage to soil andvegetation, as well as loss of historicfeatures.

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The Old Bright Angel TrailThe Old Bright Angel TrailThe Old Bright Angel TrailThe Old Bright Angel TrailThe Old Bright Angel TrailThis trail will be slightly upgraded fromroute/wild trail standards to primitive trailstandards (GMP 1995:57).

Restoration and maintenance effortsdirected at the wilderness trail systemtraditionally relied on special fundingand volunteer programs. Currently, theNPS is actively pursuing long-termfunding for a professional workforce tocontinue this important program. Animplementation schedule, based on thepriorities identified above, will be devel-oped and implemented as fundingbecomes available (See Chapter 16,Implementation Schedule). Continuedsurvey and monitoring efforts mayidentify additional priority sections.

7.7 Other Considerations7.7 Other Considerations7.7 Other Considerations7.7 Other Considerations7.7 Other Considerations

The Hermit and Grandview Trails will besuggested as alternatives to the Cross-Canyon Corridor trails for visitors withexperience hiking in the Grand Canyon.However, neither trail use nor mainte-nance will be increased to levels that willalter their status as threshold trails. TheHermit and Grandview Trails will also bethe subject of a separate monitoringprogram and carrying-capacity study toensure that resources and visitor experi-ences do not significantly change onthose trails as a result of dispersingsome corridor trail use to them. Mea-sures may be taken if carrying capaci-ties are exceeded (GMP 1995:55).


See Figure 7.2 for a list of actionsmentioned in this chapter.

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Figure 7.1Figure 7.1Figure 7.1Figure 7.1Figure 7.1GrandGrandGrandGrandGrandCanyonCanyonCanyonCanyonCanyonNationalNationalNationalNationalNationalPark TrailsPark TrailsPark TrailsPark TrailsPark Trails

TrailTrailTrailTrailTrail ClassificationClassificationClassificationClassificationClassification MileageMileageMileageMileageMileage

Arizona Trail Corridor 11.0Basin Primitive 9.2Beamer Primitive 8.0Bill Hall (Monument Point) Threshold 2.6Boucher Primitive 11.0Brady Hollow Primitive 9.0Bright Angel* Corridor 7.8Cape Final Primitive 2.0Cape Solitude Primitive 9.6Carbon-Chuar Creek Primitive 3.2Clear Creek Threshold 9.0Cliff Springs Threshold 0.42Colorado River Trail* Corridor 1.8Cove Threshold 10.0Cottonwood Creek Threshold 1.26Deer Creek/Deer Springs Threshold 1.33Dripping Spring Threshold 4.6Fire Point Threshold 1.0Fort Garrett Primitive 1.0Francois Matthes Point Primitive 4.7Grandview* Threshold 3.2Great Thumb Point Primitive 2.0Havasu Creek Primitive 3.3Hermit Trail* Threshold 8.0Hermit Creek Primitive 1.1Horseshoe Mesa Primitive 1.5Kanab Plateau Primitive 10.0Ken Patrick Primitive 8.6Komo Point Primitive 5.0Lava Trail Primitive 1.5Little Colorado River Primitive 1.6Long Jim Threshold 3.9Monument Canyon Threshold 1.5Nankoweap Primitive 14.0New Hance* Primitive 7.5North Bass* Primitive 14.0North Kaibab* Corridor 14.0Old Bright Angel (N. Kaibab) Primitive 7.0Page Springs Threshold 0.86Powell Plateau Threshold 1.2Plateau Point Corridor 1.5Ribbon Falls Threshold 0.5Saddle Canyon Primitive 0.7South Bass* Threshold 9.0South Canyon Primitive 6.2South Kaibab* Corridor 7.3Stone Creek Primitive 2.06Surprise Valley Primitive 1.6

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Tanner Primitive 8.1Tapeats Creek Threshold 3.2Tapeats/Deer River Trail Primitive 1.9Tiyo Point Primitive 6.2Tonto Primitive 72.0Thunder River* Threshold 10.5Tuckup Primitive 64.0Uncle Jim Threshold 3.4Upper Ribbon Falls Primitive 1.0Waldron Threshold 2.0Walhalla Glades Primitive 7.5Walhalla Spur Primitive 2.7Whitmore Threshold 1.2Widforss Point Primitive 4.7Widforss Primitive 4.0

63 Trails63 Trails63 Trails63 Trails63 Trails Total Miles: 439.53 Total Miles: 439.53 Total Miles: 439.53 Total Miles: 439.53 Total Miles: 439.53

*Eligiblepropertiesfor theNationalRegister ofHistoricPlaces

TrailTrailTrailTrailTrail ClassificationClassificationClassificationClassificationClassification MileageMileageMileageMileageMileage

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Trail/ComplexTrail/ComplexTrail/ComplexTrail/ComplexTrail/Complex MilesMilesMilesMilesMiles Management Action/Management Action/Management Action/Management Action/Management Action/TreatmentTreatmentTreatmentTreatmentTreatment

Hermit Trail ComplexHermit Trail ComplexHermit Trail ComplexHermit Trail ComplexHermit Trail Complex 16 16 16 16 16 Hermit TrailHermit TrailHermit TrailHermit TrailHermit Trail: restoration in 1997.Dripping Spring and WaldronDripping Spring and WaldronDripping Spring and WaldronDripping Spring and WaldronDripping Spring and WaldronTrails:Trails:Trails:Trails:Trails: restoration work needed.Schedule routine/cyclic maintenance ofeach trail following restoration work.

Grandview TrailGrandview TrailGrandview TrailGrandview TrailGrandview Trail 7 7 7 7 7 Grandview Trail:Grandview Trail:Grandview Trail:Grandview Trail:Grandview Trail: restoration in 1997ComplexComplexComplexComplexComplex Page Spring/Cottonwood CreekPage Spring/Cottonwood CreekPage Spring/Cottonwood CreekPage Spring/Cottonwood CreekPage Spring/Cottonwood Creek

Trails:Trails:Trails:Trails:Trails:restoration work needed.Schedule routine/cyclic maintenance ofeach trail following restoration work.

Thunder River/Thunder River/Thunder River/Thunder River/Thunder River/ Thunder River/Deer CreekThunder River/Deer CreekThunder River/Deer CreekThunder River/Deer CreekThunder River/Deer CreekDeer Creek ComplexDeer Creek ComplexDeer Creek ComplexDeer Creek ComplexDeer Creek Complex 20 20 20 20 20 Trails:Trails:Trails:Trails:Trails:routine maintenance conducted

during winter river restoration trips.Bill Hall and Surprise ValleyBill Hall and Surprise ValleyBill Hall and Surprise ValleyBill Hall and Surprise ValleyBill Hall and Surprise ValleyTrails:Trails:Trails:Trails:Trails: Routine/cyclic maintenanceconducted during winter river restorationtrips.

Colorado River Trails ~70Colorado River Trails ~70Colorado River Trails ~70Colorado River Trails ~70Colorado River Trails ~70 Routine/cyclic maintenance conductedduring winter river restoration trips.

Rim Access TrailsRim Access TrailsRim Access TrailsRim Access TrailsRim Access Trails ~47 ~47 ~47 ~47 ~47 Tanner, New Hance, South Bass,Tanner, New Hance, South Bass,Tanner, New Hance, South Bass,Tanner, New Hance, South Bass,Tanner, New Hance, South Bass,South Canyon, NankoweapSouth Canyon, NankoweapSouth Canyon, NankoweapSouth Canyon, NankoweapSouth Canyon, Nankoweap: Restora-tion of upper reaches; periodic mainte-nance.

Old Bright Angel TrailOld Bright Angel TrailOld Bright Angel TrailOld Bright Angel TrailOld Bright Angel Trail 4.1 4.1 4.1 4.1 4.1 Upgrade to primitive trail standards.

FigureFigureFigureFigureFigure7.27.27.27.27.2SummarySummarySummarySummarySummaryof Actionsof Actionsof Actionsof Actionsof Actions

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CHAPTER8

IIIII n accordance with the Final Wilderness Recommendation,the NPS will retain ten primitive roads tooverlooks and trailheads in the Park. Atleast 15 other primitive roads on adja-cent public lands provide access toGrand Canyon scenic overlooks (SeeAppendix E, Recreational Opportunitiesand Permit Information for AdjacentLands). With the exception of the tenGrand Canyon primitive roads de-scribed below, all other roads in theproposed wilderness will be closed andreturned to a natural state or convertedto trails (See Appendix L, Natural Con-ditions). This position is consistent withNPS Management Policies (6.5) whichstates that permanent roads will not bebuilt or retained in wilderness. Whereabandoned roads have been includedwithin wilderness, they will be used astrails or restored to natural conditions.The Wilderness Recommendationidentifies approximately 70 miles ofprimitive roads on the Kanab Plateau,approximately 40 miles on the KaibabPlateau, and an estimated 20 mileselsewhere in the Park for either conver-sion to trails or restoration.


As mentioned above, the Final Wilder-ness Recommendation identifies ap-proximately 130 miles of primitive roadsthat will be restored to a natural condi-tion or converted to trails. Roads resultin significant resource impacts. Theadditional vehicular access provided byprimitive roads facilitates illegal exca-vating and collecting of archaeologicalresources. For example, improvement

Semi-Semi-Semi-Semi-Semi-PrimitivePrimitivePrimitivePrimitivePrimitiveAccessAccessAccessAccessAccessandandandandand

FacilitiesFacilitiesFacilitiesFacilitiesFacilities

in mine-related roads in the 1980soutside the Park resulted in an in-crease of visitors to the Kanab Plateau,and a corresponding increase in van-dalism to cultural resources (Huffman1993).

In addition to impacts on archaeologi-cal resources, adequate maintenanceof primitive roads in remote locationsimposes significant costs. Poorlylocated or unmaintained roads oftenresult in serious erosional problems(Moll 1996; Ketcheson and Megahan1996). Severe gully formation nega-tively impacts soils, vegetation, andPark archaeological resources. Themost practical and economical long-term mitigation of these problems lieswith closure and revegetation (Moll1996; Fleischner 1992). Primitiveroads, maintained or not, create ad-verse impacts on natural resources.For example:

� Vehicular traffic directly destroysbiological resources by crushingvegetation and microbiotic crusts,and retards revegetation throughsoil compaction.

� Disturbed surfaces provide idealhabitat and avenues for exoticplants to spread (Amor andStevens 1976). NPS ManagementPolicies (4:12) require manage-ment of exotic species wheneverprudent or feasible. The restorationof disturbed areas is an importantmanagement tool for protectingnative biodiversity.

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� Other undesirable consequencesof road access include illegal collect-ing of rare plants and animals (Noss1995).

� Even though roads occupy a smallfraction of the landscape in terms oftotal area, their influence extends farbeyond their immediate boundaries.Roads precipitate habitat fragmen-tation by dissecting otherwise largepatches into smaller ones, and thuscreating edge habitat along bothsides of the road, potentially at theexpense of interior habitat (Reed,Barnard, and Baker 1996).

� Roads result in frequent and oftennegative encounters betweenwildlife and humans (Buckley andPannell 1990; Stankey 1980).Wildlife biologists have recognizedproblems with open roads thatexpose large mammals such asdeer, cougar and bighorn sheep toheavy hunting pressure, poaching,and harassment. Open-road den-sity has been found to be a goodpredictor of habitat suitability forlarge mammals, with habitat effec-tiveness and population viabilitydeclining as road density in-creases (Noss and Cooperrider1994). Studies have indicated thatin order to protect species sensi-tive to legal or illegal hunting andpersecution, habitat must have lowroad density (Thiel 1985; Mech,Fritts, Raddle, and Paul 1988).

During the Public Scoping Processfor this Plan, people were asked tocomment about Grand Canyon back-

country and wilderness toilets. Themajority of respondents stated thattoilets are needed in popular areas.Many felt that toilets were not intru-sive, and were a solution to dealingwith human waste, toilet paper, andwildfires caused by burning toiletpaper. Several suggestions weremade for location, type, and designof toilet structures in the backcoun-try. Of those who did not supportplacement of toilets, some felt theywere intrusive and did not belong ina wilderness setting. Others sug-gested alternative ways for dealingwith the problem of human-wastedisposal such as a carry-out systemand better education.

Very few comments on roads werereceived. General comments re-garding road access includedsupport for maintaining primitiveaccess to Pasture Wash andSwamp Ridge, and closing the roadto Cape Solitude.

8.2 Primitive Roads8.2 Primitive Roads8.2 Primitive Roads8.2 Primitive Roads8.2 Primitive RoadsManagementManagementManagementManagementManagement

Primitive roads will be managedaccording to standards set forth in theSemi-Primitive Mechanized Access inNonwilderness Corridors section ofthis Plan (Chapter 3, WildernessManagement Planning Framework).This is a modified version of the For-est Service�s Semi-Primitive Motor-ized Recreation Opportunity Spectrumclassification (U.S. Department ofAgriculture, Forest Service 1982), andconstitutes a separate OpportunityClass. The Semi-Primitive Mecha-

The hour isThe hour isThe hour isThe hour isThe hour islate, thelate, thelate, thelate, thelate, the

opportunitiesopportunitiesopportunitiesopportunitiesopportunitiesdiminish withdiminish withdiminish withdiminish withdiminish witheach passingeach passingeach passingeach passingeach passingyear, and weyear, and weyear, and weyear, and weyear, and wemust establishmust establishmust establishmust establishmust establishhere a Commonhere a Commonhere a Commonhere a Commonhere a Common

Market ofMarket ofMarket ofMarket ofMarket ofconservationconservationconservationconservationconservationknowledgeknowledgeknowledgeknowledgeknowledgewhich willwhich willwhich willwhich willwhich willenable us toenable us toenable us toenable us toenable us toachieve ourachieve ourachieve ourachieve ourachieve our

highest goalshighest goalshighest goalshighest goalshighest goalsand broadestand broadestand broadestand broadestand broadestpurposes.purposes.purposes.purposes.purposes.

With each dayWith each dayWith each dayWith each dayWith each daythat passes,that passes,that passes,that passes,that passes,the naturalthe naturalthe naturalthe naturalthe natural

world shrinksworld shrinksworld shrinksworld shrinksworld shrinksas we exertas we exertas we exertas we exertas we exert

greatergreatergreatergreatergreaterartificialartificialartificialartificialartificial

control overcontrol overcontrol overcontrol overcontrol overourourourourour

environment.environment.environment.environment.environment.

Stewart L. Udall

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nized Opportunity Class consists ofnonwilderness corridors with the follow-ing characteristics:

� the area is predominantly naturalin appearance

� interaction between users is low � evidence of other users is

present � camping is permitted only in

designated sites � wilderness group-size limits

apply � mechanized (motorized and

bicycle) access is permitted

Figure 8.1 summarizes primitive roadaccess to trailheads and overlooks. Themap, Figure 8.2, shows road locations.

Primitive Roads StandardsPrimitive Roads StandardsPrimitive Roads StandardsPrimitive Roads StandardsPrimitive Roads Standards

Nonwilderness corridors containingprimitive roads are generally 300-feetwide (See 1993 Wilderness Update).

Trailhead or Overlook Trailhead or Overlook Trailhead or Overlook Trailhead or Overlook Trailhead or Overlook Access Access Access Access Access

North Rim1 North Bass Trailhead 1 Swamp Point Road 7.5 miles2 Point Sublime 2 Point Sublime Road 14.7 miles

Kanab Plateau1 Kanab Point 1 Kanab Point Road 4.4 miles2 SB Point 2 SB Point Road 7.7 miles3 150 Mile Canyon Trailhead 3 150 Mile Canyon Road 5.9 miles4 Tuckup Canyon Trailhead 4 Tuckup Canyon Road 8.4 miles

Tuweep1 Toroweap Overlook 1 Tuweep Road 6.6 miles2 Lava Trailhead 2 Vulcan�s Throne Road 2.0 miles

South Rim1 Havasupai Point 1 Havasupai Point Road 2.7 miles2 South Bass Trailhead 2 Pasture Wash Road 4.2 miles

Figure 8.1Figure 8.1Figure 8.1Figure 8.1Figure 8.1PrimitivePrimitivePrimitivePrimitivePrimitiveRoadsRoadsRoadsRoadsRoadsOpen toOpen toOpen toOpen toOpen toTrailheadsTrailheadsTrailheadsTrailheadsTrailheadsandandandandandOverlooksOverlooksOverlooksOverlooksOverlooks

The NPS will maintain these primitiveroads in an unpaved condition withoutmajor improvements. With the excep-tion of the Tuweep Road, only improve-ments that reduce resource impacts inkeeping the road minimally open forhigh-clearance or four-wheel-drivevehicles will be considered (GMP:11).The Tuweep Road will remain dirt, andhave limited maintenance, with vehiclesizes restricted to a maximum of 22feet in length (GMP:51).

8.3 Primitive Roads to Be8.3 Primitive Roads to Be8.3 Primitive Roads to Be8.3 Primitive Roads to Be8.3 Primitive Roads to BeRestored or Converted toRestored or Converted toRestored or Converted toRestored or Converted toRestored or Converted toTrailsTrailsTrailsTrailsTrails

North RimNorth RimNorth RimNorth RimNorth Rim

The 1980 Wilderness Recommenda-tion originally called for the closure ofmost primitive roads in wilderness onthe North Rim. �Nonwilderness corri-dors� providing access to Point Sub-lime and the North Bass Trailhead are8-76


Kanab PlateauKanab PlateauKanab PlateauKanab PlateauKanab Plateau

The 1993 Final Wilderness Recom-mendation proposes most of theKanab Plateau within Grand CanyonNational Park for wilderness designa-tion. The exceptions consist of fivenonwilderness corridors for mecha-nized access to trailheads and over-looks.

In order to remain consistent with the1980 Wilderness Recommendation,this Plan retains approximately 27miles of existing roads necessary toprovide access to Kanab Point, S.B.Point, 150 Mile Canyon Trailhead, andthe Tuckup Trailhead. As specified inthe GMP, the Wilderness Recommen-dation, and NPS Management Poli-cies, the proposed action calls for theconversion of 70 miles of additional

allowed (U.S. Department of the Interior,National Park Service 1980c). The one-mile road to Fire Point and the 2.7 mileWalhalla Spur will be closed to mecha-nized access, and converted to hikingtrails. The six former �fire roads� (KomoPoint, Francois Matthes Point, WalhallaGlades, Widforss, and Tiyo Point), andthe section of W-1 from the landfill to itsjunction with the Point Sublime Road areclosed to mechanized access, anddesignated as wilderness trails. Mini-mum requirements for emergencysituation temporary vehicular access aredefined in Appendix D, Minimum Re-quirement Decision Process and inChapter 9, Safety and EmergencyOperations. Requirements specific tofire management, including minimal trailstandards and prescribed fire opera-tions, will be addressed in the upcomingrevision of the Fire Management Plan.

Figure 8.2Figure 8.2Figure 8.2Figure 8.2Figure 8.2PrimitivePrimitivePrimitivePrimitivePrimitiveRoads OpenRoads OpenRoads OpenRoads OpenRoads Opento Trail-to Trail-to Trail-to Trail-to Trail-heads andheads andheads andheads andheads andOverlooksOverlooksOverlooksOverlooksOverlooks

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roads to trails or restoration to a naturalcondition. This Plan establishes a ten-mile section of this road network as the�Kanab Plateau Trail� connecting KanabPoint with the 150 Mile Canyon Road.

This Plan also establishes the closure tomechanized access of the so-called�Toroweap Point Overlook� Road on themesa above the Tuweep Ranger Sta-tion. This primitive road should not beconfused the popular Toroweap over-look road at Tuweep. Although the 1980Wilderness Recommendation providesfor retaining a nonwilderness corridor toToroweap Point, the existing 7.85-mileroad is severely damaged in numerouslocations and fades completely in thepinyon-juniper forest well before reach-ing any vista. This Plan establishes anine-mile section of this road network asthe �Brady Hollow Trail.�

Toroweap ValleyToroweap ValleyToroweap ValleyToroweap ValleyToroweap Valley

The ten-mile primitive road to �TheCove� will be converted to a trail.

A two-mile section of a west-trendingspur of the Vulcan�s Throne Road and aone-mile section of the Toroweap Land-fill and Access Road will be restored toa natural condition.

Other AreasOther AreasOther AreasOther AreasOther Areas

Sanup PlateauSanup PlateauSanup PlateauSanup PlateauSanup Plateau The Fort Garrett roadwill be converted to a trail.

The HookThe HookThe HookThe HookThe Hook The two primitive roadsnorth of New Water Springs in the Parkwill be restored to a natural condition.

Cape SolitudeCape SolitudeCape SolitudeCape SolitudeCape Solitude The Final WildernessRecommendation calls for the closureof the Cape Solitude Road to mecha-nized access. The GMP provides forthe establishment of a trail along the oldroad alignment from Desert View toCape Solitude.

Pasture WashPasture WashPasture WashPasture WashPasture Wash Restore the �HuitzalSpur Road� to a natural condition.

8.4 Facilities8.4 Facilities8.4 Facilities8.4 Facilities8.4 Facilities

Wilderness is undeveloped Federalland retaining its primeval characterand influence, without permanentimprovements (Wilderness Act 1964).Accordingly, authorizations of NPSadministrative facilities located inwilderness will be limited to the typesand minimum number essential to meetthe minimum requirements for theadministration of the Wilderness area.A decision to construct, maintain, orremove an administrative facility will bebased primarily on whether such afacility is required to preserve wilder-ness character or values or essential toensure public safety�not on consider-ations of administrative convenience,economy of effect, or convenience tothe public. Maintenance or removal ofhistoric structures will additionallycomply with cultural resource protectionpolicies (NPS Management Policies,6:5).

The Kanabownits cabin and fire towerare classified as administrative sitesexcluded from wilderness (1980 Wil-derness Recommendation). The NPSwill conduct a record search and his-

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torical documentation to determine theireligibility for the National Register ofHistoric Places. Upon completion of thisprocess, a determination regardingcourse of action will be made.

CabinsCabinsCabinsCabinsCabins

Ranger stations, patrol cabins, associ-ated storage or support structures, driftfences, and facilities supporting trail-stock operations may be placed inwilderness only if they are necessary tocarry out wilderness managementobjectives and provisions of this Plan.

Currently there is one administrativecabin in wilderness. The Muav Saddlecabin, constructed in 1927, remains onthe List of Classified Structures. It is acontributing element to the NationalRegister of Historic Places nominationfor Bass Camp and Trails HistoricDistrict. The District was determinedeligible for listing by the Arizona SHPOin August 1997.

The construction or reconstruction ofshelters for public use generally will notbe allowed, since wilderness users areself-supporting. An existing shelter willbe maintained only if the facility is nec-essary to achieve wilderness manage-ment objectives or cultural resourceprotection objectives. Currently, there isonly one shelter in the wilderness, theSanta Maria shelter on the Hermit Trail.The shelter and associated rock out-houses have been determined eligiblefor listing on the National Register ofHistoric Places and will be protected assignificant cultural resources.

Fire Towers, CableFire Towers, CableFire Towers, CableFire Towers, CableFire Towers, CableCrossings, Radio Repeaters,Crossings, Radio Repeaters,Crossings, Radio Repeaters,Crossings, Radio Repeaters,Crossings, Radio Repeaters,Etc.Etc.Etc.Etc.Etc.

Hydrologic, hydrometeorologic, seis-mographic, and other research andmonitoring devices may be installedand operated in wilderness only upona finding that (1) the desired informa-tion is essential and cannot be ob-tained from a location outside wilder-ness, and (2) the proposed devicemeets the Minimum Requirement toaccomplish the objective safely andsuccessfully (see Appendix D, Mini-mum Requirement Decision Process).Devices located in wilderness will beremoved when determined to be nolonger essential. All research activitiesand the installation, servicing, andmonitoring of research devices will beaccomplished in compliance with NPSwilderness management policies andprocedures contained in this Plan.

Facilities such as fire lookouts, radioantennas, and radio repeaters will beplaced in wilderness only if they arethe minimum required to carry outessential administrative functions andare specifically authorized by theregional director (NPS ManagementPolicies, 6:5).

The Signal Hill Fire TowerThe Signal Hill Fire TowerThe Signal Hill Fire TowerThe Signal Hill Fire TowerThe Signal Hill Fire Towerlies within the proposed wilderness.The NPS will conduct a record searchand historical documentation to deter-mine its eligibility for National Registerof Historic Places. Upon completion ofthis process, a determination regard-ing the appropriate action will bemade.

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The Mt. Emma RepeaterThe Mt. Emma RepeaterThe Mt. Emma RepeaterThe Mt. Emma RepeaterThe Mt. Emma Repeater, con-structed in 1983, lies within the pro-posed wilderness of Grand CanyonNational Park (Thomas, J.T. 1983).Originally envisioned as a temporaryfacility, the continued need for thisfacility will be evaluated under the re-quirements of NPS ManagementPolicies. Upon completion of this pro-cess, a determination regarding theappropriate action will be made.

Colorado River CableColorado River CableColorado River CableColorado River CableColorado River CableCrossingsCrossingsCrossingsCrossingsCrossings

Currently, two cable crossings arelocated within the proposed wilderness,one just above the Little Colorado Riverconfluence and the other just aboveDiamond Creek. These facilities wereconstructed in 1982 to assist in the GlenCanyon Environmental Studies. Thecontinued need for these facilities willbe evaluated under the requirements ofNPS Management Policies. Uponcompletion of this process, a determina-tion regarding the appropriate action willbe made.

HelispotsHelispotsHelispotsHelispotsHelispots

No permanent heliports, helipads, orairstrips are allowed inwilderness. Temporarylanding facilities maybe used to meet theminimum requirements ofemergency situations. Siteimprovements determined to beessential for safety reasonsduring individual emergencysituations may be authorized, butthe site will be restored to a natural

condition after the emergency hasended. Natural openings may be usedfor authorized nonemergency aircraftlandings, but no site markings or im-provements of any kind will be installedto support nonemergency use (NPSManagement Policies, 6:6).

CampsitesCampsitesCampsitesCampsitesCampsites

Although the development of facilitiesto serve users will generally beavoided, campsites may be desig-nated when essential for resourceprotection or enhancement of opportu-nities for solitude. In keeping with theterms of this Plan, campsite facilitiesmay include a site marker, a tent site, afood-storage device, and a toilet, butonly if determined by the superinten-dent to be the minimum facilities nec-essary for the health and safety ofwilderness users or for the protection ofwilderness resources and values.Picnic tables will not be placed inwilderness (NPS Management Poli-cies, 6:6).

ToiletsToiletsToiletsToiletsToilets

Toilets will be placed only in locationswhere their presence and use willresolve health and sanitation problems

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or prevent serious damage and wherereducing or dispersing visitor use hasfailed to alleviate the problems or isimpractical. (NPS Management Poli-cies, 6:6).

SignsSignsSignsSignsSigns

Signs detract from the wilderness char-acter of an area and make the imprint ofmanagement more noticeable. Onlythose signs necessary to protect wilder-ness resources or for public safety willbe permitted. Where signs are used,they will be compatible with their sur-roundings and be the minimum sizepossible (NPS Management Policies,6:6).

Bat Cave Tram TowersBat Cave Tram TowersBat Cave Tram TowersBat Cave Tram TowersBat Cave Tram Towers

The 1980 Wilderness Recommendationcalled for the removal of the mining tramtowers near River Mile 266. To restorewilderness values, the park serviceproposed in 1995 to remove the threetowers and the surrounding debrislocated within Grand Canyon NationalPark (U.S. Department of Interior, Na-tional Park Service, 1995b. FONSITransmittal Memo.). Due to public con-troversy, the Park chose not to imple-ment the proposed action at that time(U.S. Department of Interior, NationalPark Service 1995b).

This issue will be reviewed by the Su-perintendent, and appropriate actionswill be pursued.


� Retain ten primitive roads (nonwil-derness corridors) to trailheads oroverlooks (Figure 8.1). Managethese areas as part of the Semi-Primitive Mechanized OpportunityClass spectrum

� Maintain primitive roads to minimalstandards, allowing only improve-ments that reduce resource impactswhile keeping the roads minimallyopen for high-clearance or four-wheel-drive vehicles

� Convert to trails or restore to anatural condition approximately 140miles of primitive roads describedin Figure 8.3.

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Figure 8.3Figure 8.3Figure 8.3Figure 8.3Figure 8.3Summary ofSummary ofSummary ofSummary ofSummary ofActionsActionsActionsActionsActions

Primitive RoadPrimitive RoadPrimitive RoadPrimitive RoadPrimitive Road MilesMilesMilesMilesMiles Management Action/Management Action/Management Action/Management Action/Management Action/TreatmentTreatmentTreatmentTreatmentTreatment

North Rim �Fire Roads� 27.4 Designate as wilderness trails.Requirements specific to firemanagement will be addressed inthe Fire Management Plan

Basin W-1 Road 9.2 Designate as wilderness trails.Requirements specific to firemanagement will be addressed inthe Fire Management Plan.

1.4 Relocate 1.4 miles of trail crossthe Basin. Restore the Basinsection of old W-1 to a naturalcondition.

Kanab Plateau Roads 40 Restore to a natural condition.(except those described in Figure 8.1) 10 Establish sections of road net

work as Kanab Plateau Trail

Toroweap Point Overlook Road 9 Establish severely damagedsection of road network as BradyHollow Trail

Toroweap Valley Cove Road 10 Designate as Cove Trail Vulcan�s Spur 2 Restore to a natural condition Tuweep Landfill and Access Road 1 Restore to a natural condition

Cape Solitude 9.6 Establish trail on old road align-ment from Desert View

Fort Garrett 1 Convert to trail

Two Primitive Roads North of 3.8 Restore to a natural conditionNew Water Springs on The Hook

Huitzal Spur 2 Restore to a natural conditon

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8-83


CHAPTER9

SafetySafetySafetySafetySafetyandandandandand

EmergencyEmergencyEmergencyEmergencyEmergencyOperationsOperationsOperationsOperationsOperations

s stated in Chapter One, an objective of the Wilderness Management Plan is to provide areasonable level of public safety, consis-tent with wilderness areas and in accor-dance with NPS Management Policies.The saving of human life will take prece-dence over all other managementactions. The National Park Service andits concessioners, contractors, andcooperators will seek to provide a safeand healthful environment for visitorsand employees. The Park Service willwork cooperatively with other Federal,State, and local agencies, organiza-tions, and individuals to carry out thisresponsibility. However, visitors assumea certain degree of risk and responsibil-ity for their own safety when visitingareas that are managed and maintainedas natural, cultural or recreational envi-ronments. (NPS Management Policies,8:5).

Additionally, Policies emphasizes thatvisitors must accept wilderness largelyon its own terms, and accept certainrisks, including possible dangers thatare inherent in the various elements andconditions that comprise a wildernessexperience. In wilderness areas inparticular, management efforts focus oneducating visitors about conditions andpossible risks (NPS ManagementPolicies, 6:8; See this Plan�s Chapter10, Interpretation, Education and Infor-mation).


The extreme conditions (temperature,aridity, and elevation) of GrandCanyon�s environment, the topographyand remoteness, combined with thechallenges inherent in wilderness travelsometimes result in unexpected eventsthat may require the need for emer-gency services.

Trained NPS staff handle at least 480rescues below the rim each year forinjuries, hypothermia, dehydration, andheat-related illnesses. While the high-est proportion of emergency servicesoccur in the Cross-Canyon Corridor,many also occur in wilderness includingthe Colorado River. Emergency opera-tions in these remote areas are oftenhazardous.

Heat-related emergencies are commonduring the summer months. During thistime, the staff spends most of its timedealing with emergency responses atthe expense of other responsibilitiesincluding resource protection andvisitor education. A major concern isthat many of the situations are often aresult of ill-prepared, uninformed hikers,and the Park recognizes the need foran increased effort toward visitoreducation (See Chapter 10, Interpreta-tion and Education).

The public revealed safety concernsabout day use and hiker education inthe Public Scoping Process held in1995. Most respondents suggestedthat the Park needs to disseminatemore information on potential risks of

AAAAA

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traveling in the Canyon. Restrictions onhiking distances, time of day, and num-ber of open trails were also suggestedas ways to reduce NPS emergencyresponses. Another frequent suggestionwas to charge victims for all emergencymedical services rendered by the NPSand other providers. In recognition of theCanyon�s wilderness values, severalrespondents stated that the NPS shouldnot be responsible for each visitor�ssafety, and that part of the wildernessexperience is the risk and challenge.

9.29 .29 .29 .29 .2 Grand Canyon NationalGrand Canyon NationalGrand Canyon NationalGrand Canyon NationalGrand Canyon NationalPark EmergencyPark EmergencyPark EmergencyPark EmergencyPark EmergencyOperationsOperationsOperationsOperationsOperations

NPS Management Policies providesoverall guidance to evaluate the urgencyof emergency incidents and to allocateavailable resources. Operational proce-dures are directed through the GrandCanyon National Park EmergencyMedical Service (EMS) Plan (U.S.Department of the Interior. National ParkService. 1995d) and the Grand CanyonNational Park Search and Rescue(SAR) Plan (U.S. Department of theInterior. National Park Service 1993a).The EMS Plan requires specific levels oftraining for all emergency responsepersonnel. This Plan also includesguidance for emergency services pro-vided to visitors and medical evacua-tions. The SAR Plan governs all searchand rescue operations.

During a SAR incident, considerationwill be given to protecting the Park�snatural and cultural resources. Whilehazard mitigation may be required,

under no circumstances will pureconvenience dictate the destruction ofany Park resources or allow the signifi-cant interference of visitor enjoyment(SAR Plan:6).

SafetySafetySafetySafetySafety

The SAR Plan stresses safety priori-ties of responders and protection ofresource values. Safety of responderscomes before the life of a victim; thisphilosophy will guide all SAR opera-tions. The Incident Commander isresponsible for the health and safety ofall involved responders.

The Grand Canyon National ParkSafety Policy (U.S. Department of theInterior. National Park Service 1996)sets direction for managing a safework environment for all Park employ-ees. The Park Safety Policy empha-sizes prevention of accidents byproper training, maintenance of equip-ment, and conformance to safetyprocess and procedures.

In addition to safety policies andoperational plans, the Park has estab-lished Standard Operating Procedures(SOP) that deal specifically with emer-gency operations and hazardous work-related procedures. These SOPs areas follows:

� Emergency Communications forBackcountry Operations (1996a)

� Emergency Reporting Procedures(1996b)

� Emergency Medical Requirementsfor Backcountry Operations (1996c)

Ability to seeAbility to seeAbility to seeAbility to seeAbility to seethe culturalthe culturalthe culturalthe culturalthe cultural

value ofvalue ofvalue ofvalue ofvalue ofwildernesswildernesswildernesswildernesswildernessboils down,boils down,boils down,boils down,boils down,in the lastin the lastin the lastin the lastin the last

analysis, to aanalysis, to aanalysis, to aanalysis, to aanalysis, to aquestion ofquestion ofquestion ofquestion ofquestion ofintellectualintellectualintellectualintellectualintellectualhumility.humility.humility.humility.humility.

The shallow-The shallow-The shallow-The shallow-The shallow-minded modernminded modernminded modernminded modernminded modernwho has lostwho has lostwho has lostwho has lostwho has losthis rootage inhis rootage inhis rootage inhis rootage inhis rootage in

the landthe landthe landthe landthe landassumes thatassumes thatassumes thatassumes thatassumes thathe has alreadyhe has alreadyhe has alreadyhe has alreadyhe has already

discovereddiscovereddiscovereddiscovereddiscoveredwhat iswhat iswhat iswhat iswhat is

important....important....important....important....important....

Aldo LeopoldA

Sand CountyAlmanac

9-85


� Hazards from Intentional Movement ofObjects During Trail Restoration(1996d).

Minimum RequirementMinimum RequirementMinimum RequirementMinimum RequirementMinimum Requirement

NPS Management Policies (6:4)provides for the administrative use ofmotorized equipment or mechanicaltransport, including motorboats andaircraft, �in emergency situations involv-ing human health or safety.� For thepurposes of this Plan, �emergencysituations� include:

� responses to those in need of medi-cal or physical assistance whenthreats to human health and safetyare reasonably assumed (SARPlan:3)

� responses to those who are deter-mined to be unjustifiably overdue andthreats to human health and safetyare reasonably assumed (SARPlan:8)

� any response to downed aircraft� any response to an �unknown emer-

gency� (e.g., mirror flash, radio dis-tress signal) (SAR Plan:9)

� any reported disaster� responses to wildfire which threatens

life, property, cultural resources ornatural resources (Fire ManagementPlan:76).

There are six wilderness trails on theNorth Rim available for emergencymechanized access. These are E-4(Komo Point), E-5 (Francois MatthesPoint), E-6 (Walhalla Glades, W-1C(Widforss), W1-D (Tiyo Point), and aportion of W-1 (the junction of W-4 withW-1 to the west end of the abandoned

landfill). Temporary mechanized accessis allowed for wildfire operations asdefined above. Administrative use,such as required for prescribed burningprograms, will be addressed on aproject-by-project basis through theMinimum Requirement Decision Pro-cess (See Appendix D).

Fire ManagementFire ManagementFire ManagementFire ManagementFire Management

Fire management activities conductedin wilderness areas will conform to thebasic purposes of wilderness. Actionstaken to suppress wildfires will use theMinimum Requirement Decision Pro-cess, and will be conducted in such away as to protect natural and culturalfeatures, and to minimize the lastingimpacts of suppression actions and thefires themselves (NPS ManagementPolicies, 6:7).

AircraftAircraftAircraftAircraftAircraft

No permanent heliports, helipads, orairstrips will be allowed in wilderness.Temporary landing facilities may beused to meet the minimum require-ments of emergency situations. Siteimprovements determined to be essen-tial for safety reasons during individualemergency situations may be autho-rized, but the site will be restored tonatural conditions after the emergencyhas ended (NPS Management Poli-cies, 6:6).

The Grand Canyon National ParkInternal Aviation Policy (U.S. Depart-ment of the Interior. National ParkService 1991b) directs use of helicop-ters for emergency response opera-

9-86


tions. NPS staff are required to evaluatemethods of travel for response andevacuation if needed. This evaluation isdone within the context of the MinimumRequirement Decision Process.

9.39.39.39.39.3 Preventative SearchPreventative SearchPreventative SearchPreventative SearchPreventative Searchand Rescue (PSAR)and Rescue (PSAR)and Rescue (PSAR)and Rescue (PSAR)and Rescue (PSAR)

Grand Canyon environmental conditionsoften present unexperienced deserthikers with a greater challenge thanexpected. For example, in 1996 aloneGrand Canyon staff performed over 480rescues below the rim. Any reduction inthe frequency of necessary medicalassistance is dependent on providingusers with adequate information regard-ing their planned activities. While per-sonal safety is always the responsibilityof the individual, the agency can reducerisk by providing relevant, pre-trip infor-mation, including accurate trail informa-tion, timely weather reports, maps, andappropriate advice for both day andovernight hikes.

Because of increasing injuries, ill-nesses, and even deaths due to heat-related factors, the Park initiated a taskforce to review this issue. Their recom-mendations resulted in a concertedvisitor information effort in the spring of1997 which consisted of additionalinformation at trailheads, local restau-rants, and local newspapers and radiostations. In addition, warning signs wereinstalled on popular trails and �PSAR�rangers and volunteers provided per-sonal contact with visitors.


� The Park will continue to stress thesafety priorities of responders andthe protection of resource values

� Fire-management activities con-ducted in wilderness areas willconform to the basic purposes ofwilderness. Actions taken to sup-press wildfires will use the mini-mum-requirement concept, and willbe conducted to protect natural andcultural features and to minimize thelasting impacts of suppressionactions and the fires themselves.The Park will develop minimumrequirements for wilderness pre-scribed-burning programs in therevision of the Fire ManagementPlan

� No permanent heliports, helipads,or airstrips will be allowed in wilder-ness

� While personal safety is always theresponsibility of the individual, thePark will attempt to reduce risk byproviding relevant, pre-trip informa-tion, including accurate trail informa-tion, timely weather reports, maps,and appropriate advice for both dayand overnight hikes.

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CHAPTER10

Interpretation,Interpretation,Interpretation,Interpretation,Interpretation,Education,Education,Education,Education,Education,

andandandandandInformationInformationInformationInformationInformation

10.110.110.110.110.1 Public ConcernsPublic ConcernsPublic ConcernsPublic ConcernsPublic Concerns

uring the Public Scoping Process for the Wilderness Management Plan conducted in 1995, peoplewere asked to provide suggestions tosolve the issues surrounding hikereducation including damage to naturaland cultural resources; the accumulationof human waste and litter; lost, ill-pre-pared hikers; and backcountry userswho venture on to Tribal lands withoutpermission.

The most prevalent suggestion was thatwilderness users (defined as riverrunners, overnight and day hikers, andstock users) should attend some type ofmandatory orientation prior to theirGrand Canyon hike, the most popularbeing a video or slide presentation.Others felt that direct contact with knowl-edgeable staff was the most effectiveway to educate hikers.

Another popular suggestion involvedhaving wilderness users pass a writtentest to acquire a �license� or certificatedemonstrating proficiency in wildernessskills and ethics. Most agreed thateducating inexperienced hikers wasbest accomplished when permits werepicked up. Some thought that experi-enced hikers should be issued advancepermits, and that inexperienced peopleshould be required to pick up theirpermits.

Wilderness users want more informa-tion, especially when permits are is-sued. Several comments were maderegarding the need for better maps andwater-resource information. People also

commented on the types of informationhikers should receive including: im-proved pre-hike guidance; low-impactand wilderness ethics for group lead-ers; Leave No Trace ethics for all users;information on expectations, for ex-ample, where aircraft will be heard orwhere encounters may occur with riverrunners or other groups; hiker etiquette;proper human waste disposal methods;and sensitivity to archaeological sites.

Some comments regarded use ofadjacent Tribal lands. Respondentsstated it was difficult to communicatewith Tribal offices which resulted in aninability to obtain permits. It was statedthat the NPS needs to develop a betterpermitting and access system forworking with appropriate Tribal offices.

Respondents also suggested variousmedia to provide information, including:improved educational literature; anautomated video; brochures; writtentrail descriptions, displays at visitorcenters or trailheads, and ranger talks.Many respondents suggested im-proved and/or increased signing,including: trailhead signs showing levelof difficulty; signs with mileages, warn-ings and hiking times; signs that de-scribe energy expenditure and waterloss required to climb up vs. down;signs showing cost of rescues andmedical aid; �scary warning signs� withdeath statistics and cost of rescues;signs in ten languages; signs withproper camping techniques; and signsat archaeological sites to educatehikers about sensitivity, and to demar-cate boundaries.

DDDDD

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A number of ideas were offered toprovide better permitting-office ser-vices, including: effective phone andFAX services; on-line permitting ser-vices; training for inexperienced staffgiving inaccurate or insufficient informa-tion; extended office hours; improvedstaffing numbers; a backcountry office inFlagstaff; information to permitteesabout size and location of other groupsin a Use Area; information about ar-chaeological site etiquette; staff andvolunteers patrolling corridor trails toinform visitors and prevent emergen-cies; contact stations above and belowthe rim for dispersing information; orga-nized educational sessions; guidedhikes, and staff at the three main trail-heads.

10.2 Wilderness Education10.2 Wilderness Education10.2 Wilderness Education10.2 Wilderness Education10.2 Wilderness Education

Wilderness EducationWilderness EducationWilderness EducationWilderness EducationWilderness EducationObjectivesObjectivesObjectivesObjectivesObjectives

The objectives of the wilderness educa-tion program set forth in this Plan are to:

1) Establish a coordinated interpre-tive program to provide hikers ac-cess to adequate and accurateinformation to (a) plan and execute arewarding and safe expedition,whether hiking for a day or for anextended period, and (b) conductthemselves in a manner which is notdamaging to wilderness resourcesand values.

2) Establish a coordinated, inter-agency wilderness educationalprogram for staff (permanent, sea-sonal, and volunteer) to include (a)

wilderness management principlesand philosophy; (b) Leave NoTrace; (c) application of the Mini-mum Requirement Concept; (d)proficiency in the use of primitivetools; (e) minimum-impact trailmaintenance techniques and firesuppression tactics; (f) wildernesssafety practices and (g) appropri-ate medical response skills.

NPS Management Policies (6:10)provides guidance on wildernessinterpretation:

The National Park Service willdevelop and maintain an effectivepublic education program de-signed to promote and perpetuatepublic awareness of and apprecia-tion for wilderness character, re-sources, and ethics without stimu-lating an unacceptable demand foruse. Efforts will focus on the foster-ing of an understanding of theconcept of wilderness that includesrespect for the resource, willing-ness to exercise self-restraint indemanding access to it, and anability to adhere to appropriate,minimum-impact techniques whenusing it.

Establish a CoordinatedEstablish a CoordinatedEstablish a CoordinatedEstablish a CoordinatedEstablish a CoordinatedInterpretive ProgramInterpretive ProgramInterpretive ProgramInterpretive ProgramInterpretive Program

Grand Canyon National Park willadhere to this policy when planning orpresenting information and interpreta-tion regarding wilderness and back-country resources.

A thing isA thing isA thing isA thing isA thing isright when itright when itright when itright when itright when it

tends totends totends totends totends topreserve thepreserve thepreserve thepreserve thepreserve theintegrity,integrity,integrity,integrity,integrity,

stability, andstability, andstability, andstability, andstability, andbeauty of thebeauty of thebeauty of thebeauty of thebeauty of the

bioticbioticbioticbioticbioticcommunity.community.community.community.community.It is wrongIt is wrongIt is wrongIt is wrongIt is wrongwhen it tendswhen it tendswhen it tendswhen it tendswhen it tendsotherwise.otherwise.otherwise.otherwise.otherwise.

Aldo Leopold

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Wilderness education must be balancedwith the essential spirit of wilderness.Just as management of wilderness is aparadox, so to is providing informationor a �safe� experience. Wilderness is anarea devoid of �mans� influence, wherenature is taken on its own terms. It isessential that prospective wildernessusers have access to information withwhich they can plan safe and rewardingexpeditions. It is equally important to thecontinuance of wilderness conditionsthat users have enough information topreserve the very essence they came tofind. But, while it is essential to beadequately informed, it is important thatusers have a true wilderness experi-ence, not one filled with signs, pam-phlets, brochures, videos, rules, regula-tions, and contacts. Information andeducation must be accurate, up-to-date,readily available, easily understood,concise, and appropriate to maintainwilderness conditions. Not only mustwilderness users adhere to minimum-impact techniques, but so must manag-ers in their maintenance of wilderness.

At Grand Canyon National Park, 40 to100 hikers a day crowd the BackcountryOffice. An estimated 800,000 dayhikers trek the Corridor trails. Over50,000 backpackers sleep under thewild stars, and over 20,000 river runnersyearly experience the Canyon�s wilder-ness from the soft sand of remotebeaches. The NPS will never be able toreach each and every hiker who treadsGrand Canyon�s wilderness. Sincewilderness is inherently dangerous, itcan never provide a completely safeexperience. But the NPS will attempt,through various media, to make accu-

rate information available to GrandCanyon wilderness users.

10.3 What Needs to be10.3 What Needs to be10.3 What Needs to be10.3 What Needs to be10.3 What Needs to beCommunicatedCommunicatedCommunicatedCommunicatedCommunicated

There are three main ideas to whichwilderness users need exposure, andwhich, with hope, they will come tounderstand and incorporate into theirwilderness practices: wilderness val-ues, personal safety, and resourceprotection.

The need to teach wilderness values isclearly expressed in NPS Manage-ment Policies (6:10)

The National Park Service willdevelop and maintain an effectivepublic education program designedto promote and perpetuate publicawareness of and appreciation forwilderness character, resources,and ethics. . . .

Wilderness ValuesWilderness ValuesWilderness ValuesWilderness ValuesWilderness Values

Wilderness may mean somethingdifferent to different people, but threecentral themes have consistencyemerged: experiential, the direct valueof the wilderness experience; the valueof wilderness as a scientific resourceand environment baseline; and thesymbolic and spiritual values of wilder-ness to the nation and the world(Hendee 1990). While words may fail toconvey all aspects of wilderness, anessential role of interpretation andeducation in wilderness is to promoteand perpetuate the values expressed inthe Wilderness Act.

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Personal SafetyPersonal SafetyPersonal SafetyPersonal SafetyPersonal Safety

Due to the high number of wildernessusers requiring medical assistance (in1996, Grand Canyon performed over480 rescues below the rim), it is essen-tial that users have access to adequateinformation about their planned activi-ties. Personal safety is always theresponsibility of the individual, and muchdepends on pre-trip preparations. It isimportant that users have access tocorrect trail information, maps, andtechniques both for day and overnighthikes. The environmental conditions ofthe Grand Canyon may present inexperi-enced desert hikers with a greaterchallenge than expected, and usersneed access to information specific tothis location and environment.

Although the Wilderness Act brieflyaddresses public safety, NPS Manage-ment Policies (6:8) states,

Park visitors must accept wildernesslargely on its own terms, withoutmodern facilities provided for theircomfort or convenience. Users mustalso accept certain risks, includingpossible dangers arising from wild-life, weather conditions, physicalfeatures, and other natural phenom-ena, that are inherent in the variouselements and conditions that com-prise a wilderness experience andprimitive methods of travel. TheNational Park Service will not elimi-nate or unreasonably control risksthat are normally associated withwilderness, but it will strive to provideusers with general information con-cerning possible risks, recom-

mended precautions, minimum-impact use ethics and applicablerestrictions and regulations.

Due to increasing injuries, illnesses,and even deaths at Grand Canyon dueto heat-related factors, the Park initi-ated a task force to review this issue.Their recommendations resulted in aconcerted visitor information effort inthe spring of 1997 which consisted ofaddition information at trailheads, localrestaurants, newspapers, and radiostations. In addition, warning signswere installed on popular trails and�PSAR� rangers and volunteers pro-vided personal contact with visitors(See Chapter 9, Safety and Emer-gency Operations).

Resource ProtectionResource ProtectionResource ProtectionResource ProtectionResource Protection

Resource protection is essential to thepreservation of wilderness attributesand experience, and critical to themission of a national park. The pur-pose of wilderness is to provide acertain experience for people basedon an intact natural resource. Protec-tion of the natural and cultural re-sources for current and future use isthe very basis of wilderness. It isimportant that visitors to wildernessunderstand the purpose and param-eters of wilderness so to leave itunimpaired as wilderness.

Leave No TraceLeave No TraceLeave No TraceLeave No TraceLeave No Trace

The National Park Service has enteredinto an agreement with the NationalOutdoor Leadership School (NOLS) toteach Leave No Trace (LNT) practices

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and ethics for national park users. SeeFigure 10.1.

10.4 Communicating10.4 Communicating10.4 Communicating10.4 Communicating10.4 CommunicatingInformation SuccessfullyInformation SuccessfullyInformation SuccessfullyInformation SuccessfullyInformation Successfully

There are a number of options foreffective interpretation and education;these include Personal Services (i.e.,person-to-person) and NonpersonalServices (i.e., written materials, videoproductions, signs, etc.). Other param-eters taken into account when present-ing information include Target Audience,Timing, and Location.

Since different people have differinglearning styles, it is important to realizethat there is no �best way� to provideinformation, thus information must beprovided repeatedly in a variety ofmedia. People who enjoy reading willread wilderness information brochures.People who enjoy watching televisionwill benefit from video productions, etc.Thus, Grand Canyon will provide infor-mation to wilderness users in a varietyof media hoping to reach the widestnumber of people.

Personal ServicesPersonal ServicesPersonal ServicesPersonal ServicesPersonal Services

Personal Services (people talking topeople) have been shown to be themost effective means of communicatinginformation. Due to the overwhelmingnumber of people using Grand Canyonwilderness, it is impossible for parkpersonnel to contact even a small per-centage. The Public Scoping Processfor this Plan revealed that numerousrespondents felt that personal servicesneeded improvement. With the arrival of

Fee Demonstration monies availableduring the years 1997-2000, a numberof concerns expressed by the publicwill, with hope, be addressed. Includedwould be longer backcountry officehours, better phone and fax services,increased staffing, better trained staff,and increased visibility on trails or attrailheads. When the planned MatherOrientation Center comes online in theyear 2000, potential day users ofwilderness will have a better and morecomplete source of information than iscurrently provided.

Nonpersonal ServicesNonpersonal ServicesNonpersonal ServicesNonpersonal ServicesNonpersonal Services

Nonpersonal Services include bro-chures, videos, site bulletins, permitattachments, signs, and exhibits. As of1997, brochures and a backcountryvideo are underway to increase wilder-ness user access to information. Al-though the Scoping Process identifiedthat many respondents felt more signsare needed to insure wilderness valuesare preserved, NPS ManagementPolicies (6:6) states,

Signs detract from the wildernesscharacter of an area and make theimprint of man and managementmore noticeable. Only those signsnecessary to protect wildernessresources or for public safety, suchas signs identifying trails and dis-tances, will be permitted. Wheresigns are used, they should becompatible with their surroundingsand be the minimum size possible.

Grand Canyon has always maintainedthat signs are an intrusion in wilder-

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ness, and that they will be used spar-ingly. Standards and criteria for use andplacement of signs is outlined in Figure3.2.

Target Audience, Timing, andTarget Audience, Timing, andTarget Audience, Timing, andTarget Audience, Timing, andTarget Audience, Timing, andLocationLocationLocationLocationLocation

It is essential that the right message getto the right people at the right place. Forexample, it would be less than effectiveto provide river-user information at therims, or day-hiking information at Phan-tom Ranch. It is essential that users getas much information as far in advance oftheir trip as possible so that adequatepreparations can be made. In manyways, day hikers who often begin a hikeon the spur of the unprepared momentare often the most difficult group toreach. The timing and location of suchinformation will be critical to these users.

Wilderness users are identified as riverrunners, overnight hikers, day hikers,and stock users. Since many of theseusers reach the Canyon from differentdirections and through permitting pro-cesses, information can be targetedappropriate to each group. Studies areneeded to determine the most appropri-ate place and time to present informa-tion for the greatest effect. Plans areunderway to make information moreaccessible to users.

LocationsLocationsLocationsLocationsLocations� Backcountry Office� Trailheads� Wilderness Users� Homes� Flagstaff Locations� Grand Canyon Contact Stations� Inner canyon locations

Indian Garden Cottonwood Phantom Ranch� Rest houses� Lees Ferry� Meadview� Concession Operations River Hiker� U.S. Forest Service Offices in

Tusayan and Jacob Lake� Bureau of Land Management Offices in St. George

TimingTimingTimingTimingTiming� Pre-arrival (user home)� Pre-arrival (in region)� Pre-trip (in-park)� As trip begins (trailheads, etc.)� During trip

MediaMediaMediaMediaMedia� Brochures� Video� Permit attachments� Site bulletins� Signing� Exhibits� Personal contacts� Internet� Mailouts� Audio tapes� Regional information distributors� Bulletin boards� Park and other newspapers

AudienceAudienceAudienceAudienceAudience� River runners� Day hikers and stock users� Overnight hikers and stock users� Guides� Concessioners� Local and organized runners

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MessagesMessagesMessagesMessagesMessages� Wilderness Ethics Leave No Trace Principles Hiking etiquette Waste disposal Multiple trailing Resource issues Expectations Overflights Encountering other groups� Safety Proper gear Rescue statistics and information Pre-trip planning Fitness Canyon environment Desert limitations Weather Elevation Proper mind set Animals (wild and mules)� Resource Protection Regulations Fishing and other rules Closures Archeology Feeding wildlife

In 1993, the superintendent of GrandCanyon National Park requested theestablishment of a field institute in orderto extend available Park interpretiveopportunities. The Grand Canyon Asso-ciation established and administers theField Institute in cooperation with theNational Park Service. The Instituteconducts a variety of educational fieldcourses to accomplish this task (U.S.Department of the Interior, National ParkService 1993b).

10.5 Wilderness10.5 Wilderness10.5 Wilderness10.5 Wilderness10.5 WildernessEducation for StaffEducation for StaffEducation for StaffEducation for StaffEducation for Staff

This program includes permanent,seasonal, and volunteers and consistsof training in 1) wilderness manage-ment principles and philosophy; 2)application of the minimum-tool/re-quirement concept; 3) proficiency in theuse of primitive tools; 4) minimumimpact trail maintenance techniquesand fire suppression tactics; 5) wilder-ness safety practices; 6) appropriatemedical response skills; and 7) LeaveNo Trace (LNT). LNT is the manage-ment and education program promot-ing responsible use of wildlands byencouraging an attitude of stewardshipand responsibility (U.S. Department ofAgriculture, et al. 1994).

Grand Canyon�s interpretation of wil-derness will strive toward a soundwilderness ethic, both in influencing theactions of wilderness users and in thepresentation of information and inter-pretation.


� Establish a coordinated public Inter-pretive Program which communi-cates wilderness values, personalsafety, and resource protection

� Establish a wilderness educationprogram for Park staff

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Leave No Trace Principles*Leave No Trace Principles*Leave No Trace Principles*Leave No Trace Principles*Leave No Trace Principles*

Plan Ahead and PreparePlan Ahead and PreparePlan Ahead and PreparePlan Ahead and PreparePlan Ahead and Prepare� Know the regulations and special concerns for the area you visit� Visit the backcountry in small groups� Avoid popular areas during times of high use� Repackage food into reusable containers

Camp and Travel on Durable SurfacesCamp and Travel on Durable SurfacesCamp and Travel on Durable SurfacesCamp and Travel on Durable SurfacesCamp and Travel on Durable SurfacesOn The Trail� Stay on designated trails. Walk in single file in the middle of the path� Do not shortcut switchbacks� Hike on the most durable surfaces: rock, gravel, dry grass or snow� Step to the inside of the trail when encountering pack stockAt Camp� Choose an established, legal site that will not be damaged by your stay� Restrict activities to the area where vegetation is absent or compacted� Camp at least 200 feet (70 paces) from water sources

Pack It In; Pack It OutPack It In; Pack It OutPack It In; Pack It OutPack It In; Pack It OutPack It In; Pack It Out� Take everything out that you brought� Protect wildlife and your food by storing securely� Pick up all spilled foods and microtrash

Properly Dispose of What you Can�t Pack OutProperly Dispose of What you Can�t Pack OutProperly Dispose of What you Can�t Pack OutProperly Dispose of What you Can�t Pack OutProperly Dispose of What you Can�t Pack Out� Deposit human waste in cathole six- to eight-inches deep, at least 200

feet from water, camp or trails. Cover and disguise cathole when finished� Use toilet paper sparingly, and PACK IT OUT� When washing, carry water 200 feet from sources. Strain dishwater, and

carry out food scraps

Leave What You FindLeave What You FindLeave What You FindLeave What You FindLeave What You Find� Respect the resource. Leave plants, rocks, and artifacts where found� Good campsites are found not made. Altering a site is not necessary� Do not build structures, furniture or dig trenches� Let nature�s sounds prevail. Keep loud noise to a minimum

Minimize Use and Impacts of Fires**Minimize Use and Impacts of Fires**Minimize Use and Impacts of Fires**Minimize Use and Impacts of Fires**Minimize Use and Impacts of Fires**� Carry a lightweight stove for cooking

* Printed with cooperation of the National Outdoor Leadership School (NOLS), Inc.

** Campfires are prohibited in the Grand Canyon wilderness. River trips are allowed driftwoodcampfires contained in regulation firepans.

FigureFigureFigureFigureFigure10.110.110.110.110.1Leave NoLeave NoLeave NoLeave NoLeave NoTraceTraceTraceTraceTracePrinciplesPrinciplesPrinciplesPrinciplesPrinciples

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CHAPTER11

EcosystemEcosystemEcosystemEcosystemEcosystemManagementManagementManagementManagementManagement

11.1 Wilderness and11.1 Wilderness and11.1 Wilderness and11.1 Wilderness and11.1 Wilderness andEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem Management

his chapter outlines the development of the interagency ecosystemmanagement strategy specified as amanagement objective in Chapter One.This strategy emphasizes the restora-tion and maintenance of natural pro-cesses and viable populations of allnative species in natural patterns ofabundance and distribution.

Ecosystem management is manage-ment driven by explicit goals, executedby specific practices, and made adapt-able by research and monitoring basedon our best understanding of the eco-logical interactions and processesnecessary to sustain ecosystem compo-sition, structure, and function(Christensen, et al. 1996). The ecosys-tem concept provides the fundamentalpremise for regional management, andbrings a compelling new vision to theongoing debate over the future of publiclands (Keiter 1989).

Within the national park system, allwilderness is classified as a NaturalZone (NPS Management Policies,6:3). According to NPS ManagementPolicies the primary objective in naturalzones is the protection of natural re-sources and values for appropriatetypes of enjoyment while ensuring theiravailability to future generations. Wilder-ness requires additional considerationfor outstanding opportunities for solitudeor a primitive and unconfined type ofrecreation, i.e., a wilderness experi-ence.

Natural resources will be managed witha concern for supporting basic andfundamental ecological processes aswell as for individual species andfeatures. Managers will try to maintainall the components and processes ofnaturally evolving park ecosystems,including the natural abundance, diver-sity, and ecological integrity of plantsand animals (NPS ManagementPolicies). Wilderness managementincludes maintenance and/or restora-tion of sustainable natural processesand viable populations of all nativespecies in natural patterns of abun-dance and distribution (See AppendixL, Natural Conditions).

In wilderness, managers must maintainand protect ecological processes andnatural conditions as well as provide fora wilderness experience (WildernessAct, Section 2[a][c]). While this appar-ently contradictory preserve and usephilosophy reiterates a fundamentalpremise of the NPS Organic Act (39Stat. 535, 16 U.S.C. 1), the RedwoodsAct Amendment (16 U.S.C. Section 1a-1) emphasizes a rigorous standard ofprotection, and prohibits use-relatedderogation of all park values (Lockhart1988:31-32).

Protection of park values must beaccomplished within the context ofsurrounding lands which often haveconflicting management mandates. Tomeet wilderness objectives, wildernessmanagement programs must develop athorough understanding of the condi-tions and processes that make up thewilderness resource such as air andwater quality, wildfire, and recreation to

TTTTT

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name a few (Cole 1990b). Land usepractices, such as mining, grazing,logging and road construction, occurringon adjacent lands may pose environ-mental threats to the Park. Attainment ofthe long-term management goals ofprotecting the ecological integrity ofindividual wilderness requires lookingbeyond the wilderness boundary andadopting what is called an ecosystemmanagement approach.

11.2 Fundamental11.2 Fundamental11.2 Fundamental11.2 Fundamental11.2 FundamentalScientific Principles forScientific Principles forScientific Principles forScientific Principles forScientific Principles forEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem Management

Effective ecosystem managementincorporates critical scientific preceptsinto an integrated land-managementstrategy:

(1) Spatial and temporal scales arecritical. Ecosystem function includesinputs, outputs, cycling of nutrientsand energy, and the interactions oforganisms. Boundaries defined forthe study or management of oneprocess are often inappropriate forthe study of others. Ecosystemmanagement requires the broadest,most comprehensive view(Christensen, et al. 1996).

(2) Ecosystem function depends on itsstructure, diversity and integrity.Ecosystem management seeks tomaintain biological diversity as acritical component in strengtheningecosystems against unnatural distur-bance. Management of biologicaldiversity requires a broad perspec-tive and recognition that the com-

plexity and function of any particularlocation is influenced heavily by thesurrounding systems (Christensen,et al. 1996).

(3) Ecosystems are dynamic in spaceand time. Ecosystem managementis challenging in part becauseecosystems are constantly chang-ing. Over time scales of decadesor centuries, many landscapes arealtered by natural disturbances thatlead to a mosaic of successionalpatches of different ages. Suchpatch dynamics are critical toecosystem structure and function(Christensen, et al. 1996).

(4) Uncertainty, surprise, and limits toknowledge are unavoidable as-pects of ecosystem management.Ecological systems are complex.Their dynamics are expressed inprobabilities, and random (sto-chastic) influences may be strong(Meffe, et al. 1997). Ecosystemmanagement acknowledges that,given sufficient time and space,unlikely events such as cata-strophic fires and floods, arecertain to occur. Consequently,conservationists should includesafety margins in the design ofmanagement and recovery strate-gies. Adaptive management ad-dresses this uncertainty by combin-ing democratic principles (i.e.,citizen and expert involvement; SeeGrumbine 1992: 204), scientificanalysis, education, and institu-tional learning to increase ourunderstanding of ecosystem pro-cesses. The consequences of

The supremeThe supremeThe supremeThe supremeThe supremereality of ourreality of ourreality of ourreality of ourreality of ourtime is...thetime is...thetime is...thetime is...thetime is...thevulnerabilityvulnerabilityvulnerabilityvulnerabilityvulnerabilityof our planet.of our planet.of our planet.of our planet.of our planet.

John F. Kennedy

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management interventions, and theimprovement of the quality of dataupon which decisions must bemade, need to be addressed inecosystem management(Christensen, et al. 1996).

11.3 Legal Basis for11.3 Legal Basis for11.3 Legal Basis for11.3 Legal Basis for11.3 Legal Basis forEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem Management

Public law traditionally has accordedFederal land management agenciesconsiderable discretion in administeringlands based principally on the agencyboundary line (Keiter 1989). It should benoted that, based upon existing law, thejudiciary has given ecosystem manage-ment a tentative stamp of approval(Keiter 1996). Current law not onlyemphasizes environmental protectionas a primary responsibility of Federalland-management agencies, it alsoobligates land managers to view theirresponsibilities regionally, taking ac-count of trans-boundary environmentalimpacts (Grumbine 1997). Ecosystemmanagement will require unparalleledcoordination among Federal agencies.

Ecosystem management does notnecessarily alter the Federal land-management agencies’ basic legisla-tive mandates. Rather, it changes theagencies’ approach to fulfilling theirstewardship responsibilities through abetter understanding, not only of eco-logic relationships, but between theagencies themselves (GovernmentAccounting Office 1994). Over the pastseveral years, all four of the primaryFederal land-management agencies(National Park Service, U.S. Fish andWildlife Service, Bureau of Land Man-

agement, and the Forest Service) haveindependently announced that they areimplementing or will implement anecosystem management approach(Keiter 1996; Government AccountingOffice 1994; Keystone Center 1991,1996; Grand Canyon Resource Man-agement Plan 1997a:47-48). Thisgives hope of a new vision of publicland management based on ecosystemprinciples rather than on traditionalboundaries (Keiter 1989).

Unfortunately, disparate missions andplanning requirements set forth inFederal land management statutes andregulations hamper and limit the imple-mentation of such efforts. Althoughecosystem management requirescollaboration and consensus-buildingamong Federal and non-Federal par-ties, incentives, authorities, interests,and limitations embedded in the largernational-land and natural-resource useframework constrain these parties’efforts to work together effectively(Primm and Clark 1996:143; NationalResearch Council 1992; Goldstein1992:184). Improving interagencyrelations demands innovative and boldapproaches in light of the ideologicaland political history of interagencyconflict (Grumbine 1991; 1994).

11.4 Implementing11.4 Implementing11.4 Implementing11.4 Implementing11.4 ImplementingEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem ManagementEcosystem Management

Implementing sound ecosystem man-agement requires taking practicalsteps that clearly identify what must bedone and which agencies and partiesmust be involved (Government Ac-counting Office 1994). To facilitate

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implementation of the ecosystem man-agement concept, the Park establishedthe Science Center Partnership Pro-gram (Resource Management Plan1997a:47-48). The purpose of thispartnership is to integrate the efforts ofState and Federal land-managingagencies, American Indian Tribes,educational institutions, and science andenvironmental advocates to achieve theshared mission of protecting and man-aging natural and cultural resourceswithin the Park.

Moving from concept to practice is adaunting challenge and will require thesteps and actions outlined in Figure 11.1

(Christensen, et al. 1996; GovernmentAccounting Office 1994):

Step 1Step 1Step 1Step 1Step 1

Define Sustainable Goals andDefine Sustainable Goals andDefine Sustainable Goals andDefine Sustainable Goals andDefine Sustainable Goals andObjectivesObjectivesObjectivesObjectivesObjectives

Understanding regional ecology,including current ecosystem conditionsand trends, the minimum level ofintegrity and functioning needed tomaintain or restore ecosystem health,and the effects of human activities, iscritical (Christensen, et al. 1996).Ecosystem management requireschoices about desired future ecologi-

Step 1Step 1Step 1Step 1Step 1 Define Sustainable Goals and ObjectivesDefine Sustainable Goals and ObjectivesDefine Sustainable Goals and ObjectivesDefine Sustainable Goals and ObjectivesDefine Sustainable Goals and Objectives

Goal 1.1 Protect Ecological ProcessesGoal 1.1 Protect Ecological ProcessesGoal 1.1 Protect Ecological ProcessesGoal 1.1 Protect Ecological ProcessesGoal 1.1 Protect Ecological Processes Objective a Wild and Scenic Designation

Goal 1.2 Protect Native BiodiversityGoal 1.2 Protect Native BiodiversityGoal 1.2 Protect Native BiodiversityGoal 1.2 Protect Native BiodiversityGoal 1.2 Protect Native Biodiversity Objective b Protect and Preserve Genetic Integrity Objective c Protect Rare and Listed Species Objective d Maintain Long-term Viable Carnivore Populations Objective e Restore Altered Ecosystems

Goal 1.3 Restore Altered EcosystemsGoal 1.3 Restore Altered EcosystemsGoal 1.3 Restore Altered EcosystemsGoal 1.3 Restore Altered EcosystemsGoal 1.3 Restore Altered Ecosystems Objective f Restore Natural Fire Objective g Restore Extirpated Species Objective h Control Nonnative Plants and Animals Objective i Manage Naturalized Ecosystems Objective j Protect Air Quality

S t e pS t e pS t e pS t e pS t e p 2 Restore Spatial Scales2 Restore Spatial Scales2 Restore Spatial Scales2 Restore Spatial Scales2 Restore Spatial ScalesGoal 2.1 Develope and Implement a Regional WildlifeGoal 2.1 Develope and Implement a Regional WildlifeGoal 2.1 Develope and Implement a Regional WildlifeGoal 2.1 Develope and Implement a Regional WildlifeGoal 2.1 Develope and Implement a Regional Wildlife

Conservation Strategy Conservation Strategy Conservation Strategy Conservation Strategy Conservation Strategy

S t e pS t e pS t e pS t e pS t e p 3 3 3 3 3 Reconcile Temporal ScalesReconcile Temporal ScalesReconcile Temporal ScalesReconcile Temporal ScalesReconcile Temporal Scales

S t e pS t e pS t e pS t e pS t e p 4 4 4 4 4 Develop Adaptable and AccountableDevelop Adaptable and AccountableDevelop Adaptable and AccountableDevelop Adaptable and AccountableDevelop Adaptable and Accountable Management Systems Management Systems Management Systems Management Systems Management Systems

Figure 11.1Figure 11.1Figure 11.1Figure 11.1Figure 11.1Steps,Steps,Steps,Steps,Steps,Goals, andGoals, andGoals, andGoals, andGoals, andObjectivesObjectivesObjectivesObjectivesObjectivesNeeded toNeeded toNeeded toNeeded toNeeded toImplementImplementImplementImplementImplementEcosystemEcosystemEcosystemEcosystemEcosystemManagementManagementManagementManagementManagement

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cal conditions (i.e., processes); thetypes, levels, and mixes of activities thatcan be sustained; and the distribution ofactivities over time among the variousland units within the ecosystems (Gov-ernment Accounting Office 1994).

Step 1, Goal 1

Protect Ecological Processes

The Wilderness Act (Section 2[c])defines wilderness as an area wherethe earth and its community of life areuntrammeled by man. Untrammeledlands are not subject to human controlsthat hamper the free play of naturalforces (Stankey 1990:106). Otherphrases in the Wilderness Act useful indefining goals include primeval charac-ter and influence, wilderness character,and unimpaired condition. Thesephrases imply that wilderness managersmaintain or restore, to the extent pos-sible, the wilderness conditions andprocesses existing prior to the period ofincreasing population, and growingmechanization that spurred Congress topass the Wilderness Act (Cole1995:42).

Park policy provides general directionfor preserving, protecting, and interpret-ing the Park’s ecological processes(Grand Canyon General ManagementPlan 1995:7). It also requires, to themaximum extent possible, the restora-tion of altered ecosystems to theirnatural conditions. Policy emphasizesreliance on natural processes to controlpopulations of native species to thegreatest extent possible (RMP1997a:112; See U. S. Department of

the Interior. National Park Service.Final Draft Strategic Plan. 1996f:13).

Step 1, Goal 1 Objective 1a

Wild and Scenic Rivers

Riparian areas comprise some of themost diverse and endangered ecosys-tems in the southwestern United States(Noss and Cooperrider 1994; Nossand Peters 1995; Noss, et al. 1995).Protection of riparian water quality andinstream flows requires protection of avariety of ecological processes. TheWild and Scenic Rivers Act providesthe most comprehensive legal protec-tion available for the instream values ofrivers (U.S. Department of the Interior.National Park Service 1991, 4:26). TheAct is potentially as significant to thePark’s water resources as the Wilder-ness Act is to land resources (Gray1988). Because an adequate supply ofwater is necessary to preserve the free-flowing conditions of designated rivers,the Act stands as the clearest expres-sion yet of Congress’ intent to assertFederal rights to water (Gray 1988).Designation as Wild and Scenic wouldafford long-term instream flow protec-tion for the Colorado River in GrandCanyon and especially for its tributar-ies, some of which are already threat-ened by activities such as well drillingand development. More than 285 milesof the Colorado River and its tributariesin Grand Canyon National Park areeligible for consideration as wild orscenic rivers. The Park has committedto actively pursue the designation ofeligible segments of the ColoradoRiver and its tributaries as part of the

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National Wild and Scenic Rivers System(GMP 1995:7). (See Appendix M, Wildand Scenic Rivers).

Step 1, Goal 1.2

Protect Native Biodiversity

Preserving viable populations of thePark’s native flora and fauna requiresmanagement considerations of activitiesoccurring beyond the Canyon’s bound-ary (RMP 1997a:112). The NPS hascommitted to preserve natural geneticintegrity and species composition,consistent with ecosystem processes(RMP 1997a:50). A general strategy foraccomplishing this goal is outlined in theRMP (See RMP 1997a, Chapter 3; SeeAppendix L, Natural Conditions).

Step 1, Goal 1.2, Objective 1b

Protect and Preserve GeneticIntegrity

The Park has also committed to pre-serve Grand Canyon’s natural geneticintegrity and species composition,consistent with ecosystem processes,and protect genetic diversity throughperpetuating natural evolutionary pro-cesses and minimizing human interfer-ence (GMP:7; RMP:50,112). While thegeneral strategy for accomplishing thisgoal is outlined in the RMP, furtherrefinement of management objectivesand implementation schedules will beaddressed in subsequent revisions ofthe RMP and the Fire Management Plan(See Appendix N, Developing a Re-gional Wildlife Conservation Strategy).

Step 1, Goal 1.2, Objective 1c

Protect Rare and Listed Species

The GMP (p. 7) calls for preserving ofcritical processes and linkages thatensure the protection of rare, endemic,and specially protected (threatened/endangered) plant and animal spe-cies. This also requires improvinginventories, including invertebrates.The GMP (p. 17) also directs the parkservice to develop and implement anecosystem approach to managingthreatened and endangered species,and to institute an active research andrecovery program.

Park policy requires the restoration,enhancement, and protection of popu-lations of threatened or endangeredspecies (RMP:50). Current fundinglevels are inadequate to achieve theseobjectives. Conservation strategies forthese animals will be strengthened insubsequent revisions of the RMP andFire Management Plan.

Step 1, Goal 1.2, Objective 1d

Maintain Long-term ViableCarnivore Populations

Carnivores play a significant role inecological processes and constitutean important, if precarious, componentof the region’s fauna. The presence ofself-sustaining populations of largecarnivores, as part of a full comple-ment of native species, is indicative ofa healthy environment. Historically, theGrand Canyon ecoregion contained adiversity of mammalian carnivores,

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including the mountain lion, bobcat,coyote, jaguar, grizzly and black bear.Persecution decimated wolf, grizzlybear, and jaguar populations and thesecreatures are extirpated in the GrandCanyon ecoregion (Brown 1983; Clark,et al. 1996). The current status of cou-gar, black bear, otter, and bobcat popu-lations is unknown.

Historically, large-scale exterminationand loss of habitat were the majorthreats to large carnivores. Now themost significant ecological threats tocarnivore survival are related to loss andalteration of habitat resulting from ex-ploitation of natural resources, perma-nent facilities, and associated infrastruc-ture outside Park boundaries (Paquetand Hackman 1995:17).

Few conservation challenges demandas much innovation and interagencycooperation as the conservation of largecarnivorous mammals. Key to thisapproach is the recognition that the fateof these animals depends on sociologi-cal, political, as well as biological solu-tions (Paquet and Hackman 1995:Preface). The Park will develop, as partof its Science Center Partnership Pro-gram, an interagency carnivore man-agement program (RMP:47-48; SeeAppendix N, Developing a RegionalWildlife Conservation Strategy).

Step 1, Goal 1.3

Restore Altered Ecosystems

An overall goal of wilderness manage-ment is to allow a wilderness area toremain as wild and natural as possible.

This includes restoring wildernesscharacter when it has been damagedby human use (Society of AmericanForesters [SAF] 1989a). Grand Can-yon National Park is committed, to themaximum extent possible, to restorealtered ecosystems to their naturalconditions (GMP:7; See Appendix L,Natural Conditions). Managers not onlyhave a responsibility to maintain,preserve and protect present wilder-ness qualities, but also to restore thosewhich are below minimum standardsspecified in planning documents de-scribed below (NPS ManagementPolicies, 6:2; Society of AmericanForesters 1989b).

Step 1, Goal 1.3, Objective 1f

Restore Natural Fire

The primary goal of the fire manage-ment program in the national parksystem is to integrate fire into sustain-able naturally functioning ecosystems(Botti, et al. 1994:4). The Park’s goalsinclude ensuring the perpetuation ofPark ecosystems and the restoration ofnatural fire regimes (GMP:17; RMP:50;Fire Management Plan:1).

In order to achieve this goal, the Park’sFire Management Plan will be updatedto be consistent with the directionprovided in the management objectivesand other sections of the GMP(GMP:57). Revisions of the Fire Man-agement Plan will address the restora-tion of the natural fire regime in wilder-ness areas, using practices consistentwith this Wilderness Management Plan

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(GMP: 57; See Wilderness Manage-ment Plan, Chapter 2).

Step 1, Goal 1.3, Objective 1g

Restore Extirpated Species

Extirpated species include the burrow-ing owl, southwestern river otter, razor-back sucker, zebra-tailed lizard, sagegrouse, prairie dog, wolf, grizzly bear,jaguar, Colorado squawfish, and thebonytail and roundtail chubs (RMP:31;See Project Statement GRCA-270,100).The Park has committed to restoreextirpated native animals whereverpossible and will conduct feasibilitystudies on reintroducing extirpatedspecies (GMP:17; RMP:112).

Restoration of extirpated animals re-quires varying degrees of effort as wellas institutional tenacity. The reintroduc-tion of condors is underway (Kiff, et al.1996). Cattle interests eliminated theprairie dog from the South Rim in the1930s (Brown, et al. 1987:195). Rees-tablishing burrowing owls, dependant onabandoned prairie dog burrows fornesting, may simply require the reintro-duction of that otherwise ubiquitousrodent.

Habitat conditions in the mainstem rivercontinue to favor nonnative species andpreclude the successful reintroduction ofextirpated native fish (Carothers andBrown 1991:84; RMP: Project State-ment GRCA-N-270). Restoration mea-sures necessary for successful reintro-duction, ranging from increasing watertemperatures by modifying Glen Canyon

Dam to removal of the dam, may proveexpensive and controversial.

Reintroduction of large carnivores,such as the grey wolf, presents addi-tional challenges. These speciesrequire enormous areas to maintainviable populations. Successful mainte-nance and restoration of these spe-cies will require development andimplementation of a regional wildlifeconservation strategy (Noss andCooperrider 1994:161). The Park willestablish partnerships, as described inthe Science Center Partnership Pro-gram, to facilitate the design andimplementation of a feasibility studiesfor the reintroduction of extirpatedspecies (RMP:47-48; See AppendixN, Developing a Regional WildlifeConservation Strategy).

Step 1, Goal 1.3, Objective 1h

Control Nonnative Plants andAnimals

Invasive nonnative plants cause tre-mendous damage to park resources.Called exotics, or aliens, fast-growingnonnative plants, such as bromegrasses, Russian olive, tamarisk,camelthorn, lovegrass and ravennagrass, encroach from populationsestablished outside the Park. Conse-quently, the ecological balanceachieved over many thousands ofyears is disrupted and often de-stroyed. Displacement of native plantsdirectly and adversely affects thecreatures dependant on often complexfood-web relationships (U.S. Depart-

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ment of the Interior. National Park Ser-vice 1996g).

The Park will preserve the Canyon’snatural genetic integrity and speciescomposition, consistent with ecosystemprocesses, including the elimination ofnonnative plant and animal specieswherever possible (RMP:50). A generalmanagement strategy and implementa-tion program is outlined in the RMP (pp.96-107). Control of exotic plant inva-sions will require additional cooperationwith adjacent land managers. Thenecessary cooperative agreements andimplementation programs will be coordi-nated by the Natural Resources staff.

Step 1, Goal 1.3 Objective 1i

Manage Altered Ecosystems

In 1992, Congress enacted the GrandCanyon Protection Act (Public Law 102-575) which instructed the Secretary ofthe Interior to protect, mitigate adverseimpacts to, and improve the values forwhich Grand Canyon National Park andGlen Canyon National Recreation Areawere established. The Record of Deci-sion (U.S. Department of the Interior,Bureau of Reclamation 1996) imple-mented a long-term monitoring andadaptive management program, asrequired by the Grand Canyon Protec-tion Act, and outlined in Operation ofGlen Canyon Dam Final EIS’s pre-ferred alternative (U.S. Department ofthe Interior, Bureau of Reclamation1995).

Until Glen Canyon Dam was completedin 1963, the Colorado River’s aquatic

system was dominated by native fish.These native species are specificallyadapted to highly variable seasonalfluctuations in sediment load, flow, andtemperature, and were severely im-pacted by dramatic changes resultingfrom the dam. The introduction ofnonnative fish contributed to competi-tion and direct mortality. Of the eightnative species found in the River before1963, three species are now extirpated(the Colorado Squawfish, and thebonytail and roundtail chubs).

The Park is committed, to the maxi-mum extent possible, to the restorationof altered ecosystems to their naturalconditions (See Appendix L, NaturalConditions), and will maintain, rehabili-tate and perpetuate the inherent integ-rity of water resources and aquaticecosystems (GMP:7; RMP:83). TheNPS has also committed to managethe Colorado River to restore or“mimic,” to the degree feasible, pre-dam natural and physical processes,including fish, wildlife and plant popula-tions, and ecological relationships(RMP:50). In managing altered ecosys-tems, such as the River corridor, thePark will ensure the preservation ofnative components through the activemanagement of nonnative componentsand processes. Achieving these goalsthrough an interagency, adaptive man-agement process is coordinated by theGrand Canyon Monitoring and Re-search Center.

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Step 1, Goal 1.3, Objective 1j

Protect Air Quality

Grand Canyon enjoys some of thecleanest air remaining in the UnitedStates. This is a fragile resource, andexisting levels of human-caused pollu-tion create a clearly visible haze. ThePark is committed to the preservation,protection, and enhancement of airquality and air-quality related values byensuring compliance with the require-ments of the Clean Air Act and the NPSOrganic Act (RMP:90). The NPS willstrive for the preservation of GrandCanyon’s Class I airshed, and to protectit from within-Park, as well as, externaldegradation (RMP:50). Development ofa regional air quality plan is addressedin the RMP (p.215).


Reconcile Spatial ScalesReconcile Spatial ScalesReconcile Spatial ScalesReconcile Spatial ScalesReconcile Spatial Scales

Step 2, Goal 2.1

Develop and Implement a RegionalWildlife Conservation Strategy

Protection of native species requiresdeveloping an ecosystem-based con-servation strategy for wildlife (includinglarge carnivores) that transcends politi-cal boundaries. It also requires a con-certed integrated research and manage-ment effort consisting of steps de-scribed in Appendix N, Developing aRegional Wildlife Conservation Strategy.The Park will establish partnerships, asdescribed in the Science Center Part-nership Program, to facilitate the design

and implementation of a wildlife con-servation strategy (RMP:47-48; SeeAppendix N, Developing a RegionalWildlife Conservation Strategy).


Reconcile Temporal ScalesReconcile Temporal ScalesReconcile Temporal ScalesReconcile Temporal ScalesReconcile Temporal Scales

Ecosystem management is challeng-ing because, over time scales ofdecades or centuries, natural distur-bances alter the landscape in bothpredictable and unpredictable ways.Environmental uncertainty, includingvariation over time in habitat qualityand the impacts of natural catastro-phes, must be integrated in the spatialevaluation of existing vegetative com-munities and wildlife population distri-bution (Murphy and Noon 1992:5). Forconservation planning, reserve de-signs including connectivity should beevaluated at several spatial and tem-poral scales, ranging from daily move-ments within home ranges to long-distance dispersal events connectingpopulations once every generation ortwo (Noss and Cooperrider1994:152). The design of manage-ment and recovery strategies mustinclude risk analysis and safety mar-gins which account for random (sto-chastic) influences, including cata-strophic events. The regional wildlifeconservation strategy proposed abovein Step 2 will include these temporalconsiderations (See Appendix N,Developing a Regional Wildlife Con-servation Strategy).

In addition, ecosystem managementmust deal with time scales that tran-

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scend human lifetimes, and requireslong-term planning and commitment(Christensen, et al. 1996). Land man-agement agencies, accustomed andoften required to make decisions on afiscal-year basis, will need flexibility andsupport to achieve long-term ecosystemmanagement goals. This issue will beaddressed in subsequent planningrevisions and as part of establishingecosystem management partnerships.


Develop Adaptable andDevelop Adaptable andDevelop Adaptable andDevelop Adaptable andDevelop Adaptable andAccountable ManagementAccountable ManagementAccountable ManagementAccountable ManagementAccountable ManagementSystemsSystemsSystemsSystemsSystems

Understanding ecosystems requirescollecting and linking large volumes ofscientific data. Although ecosystemmanagement will require greater reli-ance on ecological and socioeconomicinformation, the available data, collectedindependently by various agencies fordifferent purposes, are often not compa-rable and insufficient, and scientificunderstanding of ecosystems is far fromcomplete (Government AccountingOffice 1994). Furthermore, there is stillmuch uncertainty about how ecosystemsfunction. This uncertainty contributes tostrong differences in the interpretation ofscientific evidence (Government Ac-counting Office 1994).

Successful ecosystem managementrequires institutions that are adaptableto changes in ecosystem characteristicsand in our knowledge base. The conser-vation of native biodiversity should beviewed adaptively and dynamically interms of ecological processes. The

methodology used to obtain informationand implement a region-wide adaptivemanagement strategy must be hypoth-esis-driven, and based on solid, objec-tive science (See Weaver 1993;Ruggiero, et al. 1994). Agencies mustadapt management strategies on thebasis of continually researching, moni-toring, and assessing ecological condi-tions (Christensen, et al. 1996; Govern-ment Accounting Office 1994). Byconstructing networks for informationsharing and learning with partners,managers expand their role as facilita-tor in a large-scale societal conversa-tion about conservation (Grumbine1997). To act prudently, managers needto understand how the current GrandCanyon ecoregion evolved and theways in which humans have altered,often radically, the structure of theecosystems inhabited by native spe-cies. Without understanding thepresent-day condition and its historicalorigins, managers have little hope ofensuring that future decisions will bebeneficial for native biodiversity(Paquet and Hackman 1995:29).

The development of an ecosystemresearch program, based on abaseline inventory and long-term moni-toring program is a Park priority(GMP:17). The RMP (p. 50) specifies,through the development and operationof a science-based comprehensivenatural resource inventory and monitor-ing program, the understanding of thestatus and trends of populations, com-munities and ecosystems. The comple-tion of the Glen Canyon Dam Environ-mental Impact Statement (EIS) initiateda process of adaptive river manage-

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ment whereby the effects of dam opera-tions on downstream resources wouldbe assessed and the results of thoseresource assessments form the basisfor future modifications of dam opera-tions (U.S. Department of the Interior.Bureau of Reclamation 1995). TheAdaptive Management Program (AMP)was developed and designed to providea process for cooperative integration ofdam operations, resource protectionand management, and monitoring andresearch information (U.S. Departmentof the Interior. Bureau of Reclamation1995:34-38). In addition, the Park isdeveloping a new, comprehensiveresearch program within the ScienceCenter to obtain accurate informationabout the Grand Canyon’s resources,ecological processes, and humaninfluences. The role of parnerships willbe a key element in achieving Parkobjectives (RMP:47-48;174).


• The Park is committed to activelypursue the designation of eligiblesegments of the Colorado River andits tributaries as part of the NationalWild and Scenic Rivers System.

• Further refinement of managementobjectives and implementation sched-ules to protect and preserve geneticintegrity will be addressed in subse-quent revisions of the 1997 ResourceManagement Plan and the Fire Man-agement Plan.

• Conservation strategies for therestoration, enhancement, andprotection of populations of threat-ened or endangered species will bestrengthened in subsequent revi-sions of the 1997 Resource Man-agement Plan and Fire Manage-ment Plan.

• The Park will develop an inter-agency management program tomaintain long-term viable carnivorepopulations.

• Revisions of the Fire ManagementPlan will specifically address therestoration of the natural fire regimein wilderness areas, using practicesconsistent with the WildernessManagement Plan.

• The Park will establish partnershipsto facilitate the design and imple-mentation of feasibility studies forthe reintroduction of extirpatedspecies.

• The Park will strive to preserve theCanyon’s natural genetic integrityand species through the eliminationof nonnative plant and animal spe-cies wherever possible. Park staffwill develop the necessary coopera-tive agreements and implementa-tion program with agencies andnongovernmental organizations.

• To the maximum extent possible, thePark will restore altered ecosys-tems, and maintain, rehabilitate andperpetuate the inherent integrity ofaquatic ecosystems. Achievingthese goals will be accomplished

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through an interagency, adaptivemanagement process coordinated bythe Grand Canyon Monitoring andResearch Center.

• The Park will establish partnershipsto facilitate the design and implemen-tation of a wildlife conservation strat-egy.

• The Park will expand its comprehen-sive research program within theScience Center to obtain accurateinformation about the GrandCanyon’s resources, ecologicalprocesses, and human influences.The role of partnerships will be a keyelement in achieving this Plan’sobjectives.

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12-10911-109


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CHAPTER12

MonitoringMonitoringMonitoringMonitoringMonitoringandandandandand

ResearchResearchResearchResearchResearchProgramsProgramsProgramsProgramsPrograms

ntegral to the Limits of Accept- able Change (LAC) framework is the implementation of monitoringprograms which identify and track thecondition of wilderness resources andvalues. At Grand Canyon, monitoringprograms for campsites, trails, archeo-logical sites, and visitor experiencehave been in place for several years.This chapter will describe each of thoseprograms. The Monitoring Matrix (Fig-ures 12.1 - 12.5) summarizes the indi-cators, standards, management actions,and monitoring programs for specificresources.

Monitoring by itself cannot mitigate theimpacts that have already or are cur-rently occurring to natural and culturalresources and the wilderness experi-ence. Monitoring is not an end product;it is a method for tracking and evaluat-ing resource conditions and wildernessvalues so managers can develop appro-priate actions for protection. Law en-forcement and public education provideavenues for preventing future impacts,but cannot address the impacts whichhave already occurred. For long-termmonitoring to be worthwhile, it is essen-tial that the monitoring programs bedirectly linked with other treatmentprograms that can address the ongoingimpacts to natural resources includingwildlife, vegetation, and water; to nonre-newable heritage resources; and thosevalues that characterize a wildernessexperience. This integrated program isoutlined in Chapter 13, Rehabilitationand Restoration of Recreational Im-pacts.

12.112.112.112.112.1 Campsite MonitoringCampsite MonitoringCampsite MonitoringCampsite MonitoringCampsite MonitoringProgramProgramProgramProgramProgram

At Grand Canyon, a campsite-inventoryprogram began in 1981, prior to theestablishment of the use-area manage-ment strategy. The early program wasbuilt on an overall inventory of the mostpopular wilderness campsites. The1983 Backcountry Management Planmandated a monitoring plan to evaluatecampsite condition and distribution. Atthat time, however, specific manage-ment objectives were not articulated.The 1988 Backcountry ManagementRevised Plan established managementobjectives which set standards forcampsite condition and distribution,with the exception of designated sitesin use areas within the ThresholdOpportunity Class. This WildernessManagement Plan further describesindicators and standards for all wilder-ness opportunity classes, and identifiespotential management actions to meetspecific management objectives.

The current campsite monitoring pro-gram was adapted from the ecologicalstudies done by Cole (1985, 1989a).The methodology includes an assess-ment of several variables or “indica-tors,” culminating in a campsite-condi-tion rating. The overall condition israted on the type and level of impact toeach campsite. The standards de-scribe the relative amount of impact, orthe “Condition Class” of each camp-site. The Condition Class is the overalldescriptor used to evaluate manage-ment objectives for desired campsiteconditions. Standards are also de-scribed for the total amount of im-

IIIII


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pacted ground or barren core in anysquare mile within the use area. (Barrencore is defined as, an area devoid ofvegetation and organic litter, with com-pacted soil and trampled perimetervegetation). The campsite-monitoringmethods, rating system, and proceduresare described in the Campsite Monitor-ing Manual included as Appendix O.

The distribution of campsites within useareas has sociological and ecologicalmanagement implications. This is ofgreatest importance for use areas withat-large camping. The proximity ofcampsites to one another has a directbearing on the number and type ofencounters hiking parties may have. Thestandards describe the maximum num-ber of campsites in any square-milearea.

Campsite-monitoring data collectionand analysis have been documentedsince 1988. The most recent results ofthe monitoring data indicate a negativetrend in campsite condition overall.When comparing field data to manage-ment objectives, the monitoring datashow that management standards arenot being met, specifically for campsitecondition and campsite density(Hoffman 1989; Jalbert 1993 and 1996).

Management treatments have beenapplied to rehabilitate these impactedcampsites and surrounding areas.These treatments have included reveg-etation, obliteration of social trails andbarren ground, and definition of trailsand campsites. The campsite monitor-ing program has also produced informa-tion that has resulted in changes to use

area boundaries and campsite classi-fication. These changes are describedin Chapter Six, Wilderness CampsiteManagement. These treatments ormanagement actions have beenimplemented to ensure conformity withenvironmental and sociological stan-dards developed for each OpportunityClass.

Under this Wilderness ManagementPlan, the current methodology ofcampsite assessment will continue.Wilderness Rangers and ResourceSpecialists will establish a monitoringschedule based on use statistics andtrend information. In addition, empha-sis will be placed on conducting aninventory of campsites in use areaswithin the Wild Opportunity Class.(See Figure 12.1, Campsite Conditionand Distribution).

12.212.212.212.212.2 Monitoring VisitorMonitoring VisitorMonitoring VisitorMonitoring VisitorMonitoring VisitorExperienceExperienceExperienceExperienceExperience

A sociological study of backcountryusers was conducted in a twelve-month period beginning in June 1984and concluding in December 1985.The purpose of the study was to de-velop a sociological database toprovide a basis for effective manage-ment decisions when combined withresource information. The objectives ofthe study were 1) to identify the over-night users of the Park’s backcountry,2) to determine user motivations,expectations and preferences, 3) tomeasure user levels of satisfactionwith their Grand Canyon experience,4) to evaluate user reaction to thereservation and permit system, 5) to

In order toIn order toIn order toIn order toIn order toassure that anassure that anassure that anassure that anassure that an

increasingincreasingincreasingincreasingincreasingpopulation,population,population,population,population,accompaniedaccompaniedaccompaniedaccompaniedaccompaniedby expandingby expandingby expandingby expandingby expandingsettlement andsettlement andsettlement andsettlement andsettlement and

growinggrowinggrowinggrowinggrowingmechanization,mechanization,mechanization,mechanization,mechanization,

does notdoes notdoes notdoes notdoes notoccupy andoccupy andoccupy andoccupy andoccupy andmodify allmodify allmodify allmodify allmodify all

areas withinareas withinareas withinareas withinareas withinthe Unitedthe Unitedthe Unitedthe Unitedthe United

States and itsStates and itsStates and itsStates and itsStates and itspossessions,possessions,possessions,possessions,possessions,leaving noleaving noleaving noleaving noleaving no

lands desig-lands desig-lands desig-lands desig-lands desig-nated fornated fornated fornated fornated for

preservationpreservationpreservationpreservationpreservationand protectionand protectionand protectionand protectionand protectionin their natu-in their natu-in their natu-in their natu-in their natu-ral condition,ral condition,ral condition,ral condition,ral condition,it is herebyit is herebyit is herebyit is herebyit is hereby

declared to bedeclared to bedeclared to bedeclared to bedeclared to bethe policy ofthe policy ofthe policy ofthe policy ofthe policy ofthe Congressthe Congressthe Congressthe Congressthe Congressto secure forto secure forto secure forto secure forto secure forthe Americanthe Americanthe Americanthe Americanthe American

people ofpeople ofpeople ofpeople ofpeople ofpresent andpresent andpresent andpresent andpresent and

future genera-future genera-future genera-future genera-future genera-tions thetions thetions thetions thetions the

benefits of anbenefits of anbenefits of anbenefits of anbenefits of anenduringenduringenduringenduringenduring

resource ofresource ofresource ofresource ofresource ofwilderness.wilderness.wilderness.wilderness.wilderness.

The WildernessAct of 1964


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develop a sociological monitoringsystem to be used by Park staff, and, 6)to suggest management actions thatbest meet social needs of visitors(Underhill, et al. 1986).

A significant outcome of this study wasthe development of management objec-tives in the 1988 Backcountry Manage-ment Plan that described desired socialconditions. The sociological standardsdescribe the acceptable number andduration of contacts an overnight usermay have while hiking and at campsites.These standards are based on datawhich correlates users’ reported satis-faction level with the number of otherparties they encounter while travelling orat campsites. Wilderness researchershave found that most overnight hikersare more sensitive to being within sightor sound of others while at camp, com-pared to when they are hiking (Underhill,et al. 1986; and Hendee, et al. 1990).

In keeping with goals outlined in thePark’s General Management Plan,wilderness areas will be managed sovisitors have the “opportunity for avariety of personal outdoor experiences,ranging from solitary to social.” Thestandards for maintaining or enhancingvisitor experience are described foreach Opportunity Class. The WildernessAct of 1964 also defines a wildernessexperience as one with “outstandingopportunities for solitude or a primitiveand unconfined type of recreation.” Thestandards for contact levels at theprimitive and wild end of the recre-ational opportunity spectrum thereforereflect the desired experience. On theother hand, opportunities for more

social contact are available in thewilderness Threshold Use Areas aswell as in the Cross-Canyon Corridor.

Two monitoring programs were devel-oped from the 1986 sociological study.One program was established tocollect data on the actual number ofencounters an overnight hiker mayhave. A random sampling of hikers ineach Opportunity Class were asked tocomplete a short survey form by record-ing the number of people and groupsthey encountered during the day and attheir camp, and to rate their level ofsatisfaction associated with eachcontact. Analysis of the data deter-mined 1) the number of contacts made,and 2) at what level the number ofcontacts became unacceptable. Theresults were measured against themanagement objectives described foreach Opportunity Class.

The second monitoring program in-volved a lengthy questionnaire basedon the original sociological study. Amail-back survey was completed byovernight hikers who had done a recenttrip. This monitoring program, whichwas conducted on a five-year cycle,provided Park staff with feedback onmanagement actions and policies. Thesurvey also provided basic demo-graphic information, background on theuser’s skill level, and information onvisitor expectations and motivations.These data were considered for deter-mining changes in the permitting op-erations and group-size limits, and fordeveloping a structure for the costrecovery program. Overall, this pro-gram provided an evaluation of man-


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agement objectives, and an assessmentof strategies for providing a range ofopportunities for personal experiences.

This Wilderness Management Planestablishes a schedule for implementinga monitoring program based on socio-logical research and previous monitor-ing programs. The monitoring programwill be initiated by 2002, and will focuson users in the wilderness areas of thebackcountry, specifically use areaswithin the Threshold, Primitive, and WildOpportunity Classes (See Figure 12.2,Visitor Experience).

12.312.312.312.312.3 Archeological SiteArcheological SiteArcheological SiteArcheological SiteArcheological SiteMonitoringMonitoringMonitoringMonitoringMonitoring

During the late 1980s, Grand CanyonNational Park initiated a monitoringprogram for archeological sites in thebackcountry and wilderness. Prior to thistime, monitoring of archeological sitesoccurred on a highly irregular basis, andwas focused primarily on highly visiblestructural sites that were easily acces-sible from the Colorado River corridor.Beginning in 1989, Park archaeologistsinitiated a more comprehensive monitor-ing program that included sites alongprimary hiking trails and other heavilyvisited backcountry and wildernessareas.

The current monitoring program im-proves management and protection ofcultural resources by 1) identifyingsources of impacts to archeologicalsites, 2) prioritizing sites for futuremonitoring and treatment, and 3) provid-ing information for the development andimplementation of plans to mitigate

impacts and prevent or substantiallyreduce those impacts in the future. Todo this, it is necessary to establishdetailed baseline information on thecurrent attributes and condition ofsites, as well as gather informationsuitable for evaluating long-term im-pact trends.

The wilderness areas of Grand Can-yon National Park have never beensystematically inventoried for culturalresources, so baseline information isstill lacking. The only trails that havebeen systematically inventoried are theBright Angel, North and South Kaibab,plus the uppermost portions of theGrandview and Hermit Trails. Mostdocumented sites in the backcountryare known from reconnaissancehelicopter surveys in the mid-1960sand early 1970s, from a few small-scale reconnaissance pedestriansurveys by outside researchers andPark personnel, and from sporadicvisitor reports. Many of the “known”sites have not been revisited by atrained archaeologists since they wereoriginally reported (some as long agoas the 1930s). In many cases, the onlyavailable information consists of aninaccurate map and a few lines ofdescriptive text. Most sites in thewilderness need to be relocated anddocumented according to currentstandards so they can be incorporatedin the monitoring program.

The current archeological monitoringprogram was adapted from a programdeveloped by Cole (1985, 1989a) formonitoring impacts to wildernesscampsites. Elements from archeologi-


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cal monitoring programs in other south-western national parks are also incorpo-rated. The methodology involves rankingseveral impact variables to produce anoverall condition class assessment.Change in site condition is documentedwith repeat photographs, supplementedby written descriptions.

Unlike the campsite-monitoring objec-tives, levels of acceptable impacts toarcheological sites do not vary by Op-portunity Class. The Park is mandatedby law to protect the integrity of allsignificant archeological resources, nomatter where they occur in the Park. Themonitoring program serves mainly todocument whether impact levels areincreasing, decreasing, or continuingwithout significant change. Sites whichhave received or are currently receivinghigh levels of impact are given thehighest priority for future intervention,while those with no or low impact levelscontinue to be monitored at regularintervals based on a monitoring priorityranking system.

The distribution of archeological sites inthe backcountry has important socio-logical and ecological implications forwilderness management because manyof the environmental attributes thatattracted prehistoric occupants to settlein a location 1000 or 5000 years agosuch as level terrain, shelter from theelements, proximity to water and trails,or a good view are the same ones thatattract modern campers. Consequently,many places occupied by prehistoricand historic inhabitants of Grand Can-yon are still used by visitors as camps.

Many impacts from on-site campingcan be reduced or eliminated throughimproved visitor education, physicaldeterrents, stabilization and restorationtechniques, or formal site closures.Generally, the intervention strategy thatis least intrusive to the visitor will betried first, and the results will be moni-tored to see if the desired results(elimination or substantial reduction ofimpacts) are achieved. If monitoringreveals that desired results have notbeen achieved, more direct forms ofintervention can be implemented. Ifnone of the intervention techniquesachieve the desired results, excavationmay be undertaken as a last resort.

In a few wilderness areas, archeologi-cal sites offer the only reasonable placeto camp. If the site still retains archeo-logical integrity and contains potentiallyvaluable information about the past, theNational Park Service is legally obli-gated to mitigate impacts that areoccurring to the site from this use. Inmost instances, mitigation will involverecovering and preserving informationfrom the site by means of a profes-sional archeological excavation. Insome instances, it may be possible tostabilize a site and protect its integritywithout complete excavation, but somelevel of archeological excavation isusually required as a component ofstabilization.

This Wilderness Management Planestablishes a systematic method ofarchaeological inventory and monitor-ing in wilderness use areas. A sched-ule will be established based on usetrends and patterns, and will focus on


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areas that receive moderate to high uselevels. Archaeological site surveys,inventories, and compliance will beconducted prior to developing resourceprotection action plans. (See Figure12.3, Cultural Resources).

12.412.412.412.412.4 Monitoring WaterMonitoring WaterMonitoring WaterMonitoring WaterMonitoring WaterResourcesResourcesResourcesResourcesResources

The objectives of the water resourceinventory and monitoring program are 1)inventory all Park water resources, 2)develop baseline water resource infor-mation on water quality and quantity fora wide variety of management needs,including identification and mitigation ofhuman health hazards, identification andmitigation of human impacts to theresource, and water rights issues, 3)develop and maintain high-quality datafor streamflow and water chemistry onSouth Rim springs, 4) interpret waterresources from the Grand Canyon, and5) identify future research and monitor-ing needs. (RMP 1997a)

An intensive, three-year seasonal waterquality sampling program was con-ducted from 1990 to 1994. The studysites were located in 20 Park tributariesalong the Colorado River. The objectiveof the study was to inventory waterquality characteristics of state-protectedwaters at locations of potential impact(Mazzu 1995).

Although the intensive study focused onmany high-use recreational tributaries, itdid not include wilderness source areasfor creeks and springs that dry up beforereaching the Colorado River. Thesewater sources are vital to overnight

hikers in the Grand Canyon wilder-ness. In recent years, intensive studieshave been conducted on water quan-tity and quality at popular wildernessdestinations, many of which addresswater chemistry of ground wateremerging from Canyon springs (Rihs1997).

The water quality and flow data-moni-toring program is conducted at peri-odic intervals annually. Water qualitydata includes discharge, conductivity,dissolved solids and oxygen, alkalinity,turbidity, and temperature. Waterquality information includes bacterialanalyses for fecal coliform and strepto-coccus, chemical analyses of severalvariables, and testing for radionuclidesand radioisotopes at selected sites.Monitoring results are reported annu-ally and included in periodic updateson water availability and quality forpublic use.

This Plan establishes a schedule formonitoring water quality in tributarieswithin wilderness use areas. Theschedule will be based on use trendsand patterns, and will focus on useareas with moderate to high uselevels. Site specific water quality datawill be provided to the BackcountryOffice for visitor education and publicinformation (See Figure 12.4, WaterResources).

12.512.512.512.512.5 Monitoring TrailMonitoring TrailMonitoring TrailMonitoring TrailMonitoring TrailConditionConditionConditionConditionCondition

Over 400 miles of established trailsexist in Grand Canyon National park.Of this total, approximately 380 lie


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within the proposed wilderness areas.Some contain historic features, andmost trails have received little or nostabilization or rehabilitation work, andcurrently exist in various states of disre-pair. Until recently, monitoring trailconditions focused on problem seg-ments. A trail-condition survey using adescriptive log of trail problems andprescriptive actions has proven useful atGrand Canyon in developing actionplans for trail rehabilitation.

While there has been no systematicmethod for trail-condition monitoring,Park staff have conducted trail surveyson approximately 150 miles of thewilderness trail system. This Plan estab-lishes a strategy for routinely conductingtrail-condition surveys on wildernesstrails and routes. The focus will be ontrails that contain historic features, andthose that receive moderate to high useby backpackers and river users. Trail-condition surveys will be conducted inconjunction with routine trail mainte-nance and rehabilitation river trips.Following rehabilitation or restorativework, trails will be monitored on a cyclicbasis (See Figure 12.5, Trail Condition;Chapter 7, Trail Management).

Figures 12.1�12.5Figures 12.1�12.5Figures 12.1�12.5Figures 12.1�12.5Figures 12.1�12.5Wilderness ResourcesWilderness ResourcesWilderness ResourcesWilderness ResourcesWilderness ResourcesMonitoring MatrixMonitoring MatrixMonitoring MatrixMonitoring MatrixMonitoring Matrix

The following matrices summarize theindicators, standards, managementactions, and monitoring programs forspecific wilderness resources andvalues. Below is a brief description ofthe components of the matrix.

IndicatorsIndicatorsIndicatorsIndicatorsIndicators can be measured totrack change in conditions caused byhuman activity. The purpose of indica-tors is to focus data collection efforts onwhat is important. Monitoring indicatorsare a means to ensure that standardsare being met.

StandardsStandardsStandardsStandardsStandards are developed to ensuredesired conditions of wilderness re-sources and values are maintained orenhanced. These are measurablestatements that describe the resourceand experience conditions that areconsidered realistic, attainable, andacceptable. Standards are specific andmeasurable so they clearly trigger theneed for corrective management ac-tion. They are established to promoteachievement of desired conditions.

Management Action(s)Management Action(s)Management Action(s)Management Action(s)Management Action(s) to beImplemented are identified and may beimplemented as needed depending onthe resource conditions. The NPSrecognizes that, especially in wilder-ness areas, the lowest level of interven-tion will be implemented to addressproblems. In many cases, indirectmanagement actions such as visitoreducation accompany more directactions such as site rehabilitation toachieve desired conditions.

Monitoring ProgramsMonitoring ProgramsMonitoring ProgramsMonitoring ProgramsMonitoring Programs currentlybeing conducted are identified. Thefrequency of each program is deter-mined by the staff specialists based onthe level of potential impacts to theresources in specific wilderness areas.Where monitoring programs have notbeen identified, resource inventory willbe conducted.

Figure 12.1 Campsite Condition and Distribution

Value to beMaintained andEnhanced

Indicators Standards Management Action(s) to beImplemented

Monitoring and SamplingProcedures

Campsite Conditionand Distribution

Barren core area within each site

Tree and perimeter vegetationdamage

Soil compaction

Number of access trails at campsite

Fire impacts

Trail erosion adjacent to site

Disturbance of archeological features

Number of campsites

THRESHOLD OPPORTUNITY CLASS

Designated sites: Condition Class: 5% or less in CC5 85% or less in CC5 or 4 At-Large camping: Condition Class: 5% or less in CC5 25% or less in CC5 or 4 50% or less in CC5,4, or 3 85% or less in CC5,4,3 or 2

Total Barren Core Area: Maximum of 2000 ft2 in designated or at-large sites.

PRIMITIVE OPPORTUNITY CLASS

Condition Class: 0% in CC5 5% or less in CC4 20% or less in CC4 or 3 50% or less in CC4,3 or 2

Total Barren Core: Maximum of 1000 ft2 per square mile.

WILD OPPORTUNITY CLASS

Condition Class: 0% in CC5,4 or 3 25% or less in CC2

Total Barren Core Area: Maximum of 500 ft2 per square mile.

Routine patrols for resource protection.

Low-impact wilderness use education.

Minor rehabilitation and obliteration ofillegal sites in designated site use areas.

Action plans for major work projects fortrail and campsite rehabilitation.

Designation of additional camping sites orareas.

Decrease use limits.

Closure of campsite on temporary orpermanent basis.

Mitigation to recreational impacts alongbeaches and at river-use attraction sites(Little Colorado River, Elves Chasm,Thunder River, Deer Creek, etc.) outlined inthe Colorado River Management Plan.

Permit system: data provided for assessingactual use vs levels of impact.

Rapid Campsite Assessment:5 to 10 Use Areas per year. Baselineinventories for all use areas, subsequentmonitoring based on Opportunity Class,use levels, patrol schedules, and mitigationpriorities.

Intensive Campsite Assessment conductedwhen additional campsite data is needed,such as when major changes in Use Areastatus or boundaries is proposed.

Study of 24 sites in 3 vegetation typesconducted on five year cycle. (Cole, 1985)

Figure 12.2 Visitor Experience

Value to be Maintainedand Enhanced


Monitoring Programs andSampling Procedures

Visitor Experience Number of backcountry visitors:actual density

Campsite Density

Perceived Crowding

Number of groups camped w/insight or sound

Number of parties contactedwhile travelling

Number of encounters betweendifferent types of users

Litter

Number of occurrences of humannoises per hour or day (e.g.aircraft, motors)

CORRIDOR OPPORTUNITY CLASS

Developed, designated sites in main cluster.

High probability of contacts w/ up to 30 parties incamps and large numbers on corridor trails.

High probability of contacts with mules(concession and NPS) on Bright Angel, S.Kaibaband N.Kaibab trails.

Frequent use of helicopter for administrativepurposes. No tour operator flights in Bright AngelFlight Free Zone.

THRESHOLD OPPORTUNITY CLASS

Campsite density limited by designated sites. Max.20 campsites in any square mile area in at-largecamping use areas.

80% probability of camp contacts with up to 5parties per night.

80% probability of up to 10 contacts with otherovernight parties per day except in Monument andHermit where up to 15 contacts may occur.

Low probability of contacts with stock, except forNPS maintenance.

Routine compilation of Backcountry and RimUse Areas use statistics.

Routine patrols and maintenance.Visitor contacts.Interpretive programs.

Education on low-impact camping techniques.

Obliteration of illegal sites in designated campareas.

Obliteration of selected sites in use areas wheredensity exceeds standards.

Dispersal of use in clustered designated site useareas, by trail and campsite relocation orrehabilitation.

Pre-trip information on aircraft use and zoningfor trip planning purposes.

Pre-trip information on river runners use ofpopular camping beaches along the ColoradoRiver.

Campsite density (number per square milearea) data collected in Rapid CampsiteAssessment (RCA) monitoring program. SeeAppendix J.

Backcountry user survey for camp and trailencounters. Use of diary, or survey formbased on programs developed by Underhilland Stewart et.al., (1986). Correlate numberof encounters with satisfaction levels in non-corridor use areas. Surveys approved byOMB.

Aircraft monitoring program: Observationand recordation of number and type of flightsover Flight Corridors. Correlation of visitorsatisfaction with levels of aircraft noise.

Figure 12.2 Visitor Experience (Continued)

Value to be Maintained andEnhanced


Monitoring Programs andSampling Procedures

Visitor Experience Number of backcountry visitors:actual density

Campsite Density

Perceived Crowding

Number of groups camped w/in sightor sound

Number of parties contacted whiletravelling

Number of encounters betweendifferent types of users

Litter

Number of occurrences of humannoises per hour or day (e.g. aircraft,motors)

PRIMITIVE OPPORTUNITY CLASS

Maximum of 10 campsites in any square milearea per Use Area.

80% probability of camp contacts with up to 2parties per night except in rim areas andTanner where more may occur.

80% probability of up to 5 contacts with otherovernight parties per day except in rim areasand Tanner, and along Colorado River wheremore may occur.

Low probability of contacts with stock, exceptfor NPS maintenance.

WILD OPPORTUNITY CLASS

Maximum of 5 campsites in any square milearea per Use Area.

No contacts with other overnight parties.

80% probability of contacts with one overnightparty per day. Probably no contact with dayhikers.

No probability of contacts with stock.

ALL AREAS:

High probability of occurrences with aircraftnoise in use areas beneath designated flightcorridors.

High probability of occurrences of noise frommotors in areas adjacent to the Colorado Riverduring the Primary Use Period (5/1-9/15).

Education on low-impact campingtechniques.

Obliteration of illegal sites in designatedcamp areas.

Obliteration of selected sites in use areaswhere density exceeds standards.

Dispersal of use in clustered designated siteuse areas, by trail and campsite relocation orrehabilitation.

Pre-trip information on aircraft use andzoning for trip planning purposes.

Pre-trip information on river runner use ofpopular camping beaches along the ColoradoRiver.

Campsite density (number per square milearea) data collected in RCA monitoringprogram. See Appendix J.

Backcountry user survey for camp and trailencounters. Use of diary, or survey formbased on programs developed by Underhilland Stewart et.al., (1986). Correlatenumber of encounters with satisfactionlevels in non-corridor use areas. Surveysapproved by OMB.

Aircraft monitoring program: Observationand recordation of number and type offlights over Flight Corridors. Correlationof visitor satisfaction with levels of aircraftnoise.

Figure 12.3 Cultural Resources




Cultural Resources Site Integrity

Vandalism (potholes, graffiti)

Site Alterations (fallen orstacked rock elements)

Collector's Piles

Loss of Artifacts

Trailing

Soil Compaction

Vegetation Trampling

No significant cultural resourcewhich is being damaged by humanuse or eroded by natural forces--to thepoint there is a danger of loosingintegrity or informational values--willbe acceptable.

Public information and educationthrough written materials, andvisitor contacts.

Impose site specific regulations andspecial use limitations incompliance with National HistoricPreservation Act and NPS policies.

Recreational use may be restrictedto areas outside designated historicdistricts, traditional cultural places,and other areas where culturalresources are threatened byvisitation.

Restoration and rehabilitation ofdisturbed sites will be conductedand may include stabilization, trailre-routing, etc.

Areas where cultural sites arethreatened as a result of recreationaluse will be closed.

Sites will be excavated, dataanalyzed, and crated.

Archeological surveys of mainwilderness trails, designated campareas, and popular at-large sites inall use areas.

Cyclic site monitoring conductedin conjunction with campsitemonitoring and trail surveys.

Figure 12.4 Water Resources




Water Quality Fecal coliform

Temperature

Dissolved Oxygen

Turbidity

State and Federal standards forchemical and biological parameters.

Maintain natural water quality topromote healthy habitat.

Health Advisories.

Alteration of camping facilities.

Use area limits may be modifiedbased on potential hazards orimpacts to water sources.

Periodic sampling of water qualityparameters to: 1) develop baselinedata, 2) characterize naturalconditions, 3) identify impact ofmanagement actions and visitoruse.

Water Quantity Instream flow levels

Vegetation type

Vegetation condition

Presence of wildlife

Maintain natural flow regimes ofsprings, seeps, and tributaries of theColorado River.

Water chemistry studies.

Inventory all tributaries andquantify flows to greatest extentpossible.

Conduct Wild & Scenic Riverssuitability studies for majortributary streams.

Periodic sampling of waterchemistry and routine dischargemeasurements.

Inventory & monitor riparianvegetation extent and compositionto document changes.

Figure 12.5 Trail Condition




Trail Condition Number of permitees

Number of day users

Stock Use (commercial,noncommercial and administrative)

Erosion

Number of multiple trails (incl.switchback cuts)

CORRIDOR TRAILS

Type A, Level I. Maintained for high use. TheN. Kaibab, S. Kaibab, Bright Angel, PlateauPoint, Colorado River, and Arizona trails aredesignated Corridor Trails.

THRESHOLD TRAILS

Generally, Type C, Level IV. Maintained forsemi-primitive, medium to low use levels.Special management actions apply to trailslisted on National Register. Threshold trailsinclude the Hermit, Clear Creek N.Kaibab toClear Creek drainage, Thunder River, andGrandview trails.

PRIMITIVE TRAILS

Type C, Level V. Maintained for primitive, lowuse levels. Historic features are generallyabsent. Primitive trails include the Havasu,Tonto, S.Bass, Boucher, Hance, Tanner,Beamer, Nankoweap, N.Bass, S.Canyon, DeerCreek, Kanab Creek, Tuckup, Lava Falls, andriver attraction site trails.

WILD TRAILS/ROUTES

Type C, Level V. Maintained for primitive, lowuse levels. No evident historical trailconstruction, user-defined paths in moreremote areas.

On-going, routine maintenance of heavilyused Corridor trails.

Development of Action Plans formaintenance and rehabilitation of Thresholdand Primitive trails.

Trail maintenance performed to protectintegrity of historical features, maintainmaximum trail width and outslope.

Development of Action Plans forrehabilitation work on Routes to mitigateunacceptable resource damage only.

Trail rehabilitation on Routes performed notto exceed standards for Primitive Trails.

Trail closure as necessitated by extensivedamage to natural and cultural resources, orfor human safety.

Trail condition surveys conducted onThreshold and Primitive trails on cyclicbasis.

Monitoring of river attraction site trails andsome Threshold and Primitive trails thatlead to camps adjacent to the ColoradoRiver, conducted annually in the fallfollowing primary river use period.


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111112.62.62.62.62.6 Research inResearch inResearch inResearch inResearch inWildernessWildernessWildernessWildernessWilderness

A wide range of scientific studies areconducted within wilderness manage-ment areas in Grand Canyon NationalPark. Wilderness-related topics includestudies of backcountry and river recre-ation and of ecosystem managementalternatives. An overview of the entireresearch program, including a listing ofcurrent science information needs iscontained within the Grand CanyonNational Park Resource ManagementPlan (1997a). A complete listing ofongoing studies is prepared annually asthe compiled Investigator’s AnnualReport (available on request from theGrand Canyon Science Center).

Information gained through inventories,monitoring, and research is essential forscientifically based resource manage-ment. Collection of complete, accurate,and high-quality data is basic to sci-ence, and frequently study objectivescan be accomplished only through useof the best available technology. How-ever, the tools and methods of scientificstudy can also have undesirable impactson the character of wilderness. Suchstudy-related impacts can be temporaryor long-lasting. Examples of temporaryeffects include visitor disturbance, noisefrom survey helicopters or boats, andbrightly colored dyes released duringhydrologic studies. Longer lasting ef-fects can include permanent markers,scarring of woody vegetation and rockoutcrops, excavation pits, and equip-ment installations. In Grand CanyonNational Park, every reasonable effort istaken to minimize impacts while simulta-

neously maximizing the benefits ofscientific investigations (See Appen-dix B, NPS Management Policies).

Approval for scientific studies withinwilderness areas is guided by prin-ciples established by Congress.Among these principles are that theimprint of man’s work be substantiallyunnoticeable, that the wilderness areahave outstanding opportunities forsolitude, that wilderness be preservedand used in an unimpaired condition,and that wilderness contain ecological,geological, or other features of scien-tific, educational, scenic, or historicalvalue. In many cases, Federal law andDepartmental policy allow sufficientlatitude to achieve the investigators’objectives

An area should not be excludedfrom wilderness designationsolely because established orproposed management practicesrequire the use of tools, equip-ment or structures, if these prac-tices are necessary for the healthand safety of wilderness travelers,or the protection of the wildernessarea. Managers will use theminimum tool, equipment orstructure necessary to success-fully, safely and economicallyaccomplished the objective...economic factors should beconsidered the least important ofthe criteria. The chosen toolshould be the one that leastdegrades wilderness valuestemporarily or permanently (U.S.Department of the Interior, NationalPark Service 1972).


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Grand Canyon National Park applies amultistep review process to ensure thatstudies within wilderness managementareas will benefit the public and the parkunits in which the studies are conducted.Permits are required for scientificresearch, specimen collection, and foraccess to restricted locations. Scien-tists wishing to work within the Park areinvited to submit proposals specificallyoutlining the objectives, methods, loca-tion, and expected benefits of theirproposed work. Proposals are requiredof both Federal and non-Federal investi-gators. Proposals undergo scientificand administrative review prior to thepermitting decision. Scientific reviewsare generally conducted by independentqualified subject-matter experts, whoare invited to comment on the signifi-cance and urgency of the study, validityof the methods, and qualifications of thescientist. Administrative reviews, whichare conducted by park management,are intended to evaluate the proposedactivities relative to standards of legisla-tive authority, and visitor and resourceprotection. Well designed studies with ahigh potential for positive benefits to thePark are generally reviewed favorably.

Guidelines for the preparation of studyproposals and general research permitconditions and restrictions are con-tained within the Application Proce-dures for Research and CollectingPermits, December 1996, GrandCanyon National Park and Glen Can-yon National Recreation Area (1996).Copies are distributed to prospectiveresearchers on request. This documentprovides general guidance about con-ducting scientific studies within these

parks, and permitting schedules. Itcontains the application form used forrequesting research and collectingpermits; proposals are acceptedthroughout the year. Each proposal isevaluated on its own merit, starting withthe premise that opportunities forresource-based scientific investigationare basic to the Park’s mission, andthat the information gained throughscientific studies will help protect parkresources and benefit public programs.

Consideration for wilderness-relatedissues is part of both the scientific andadministrative review processes. Aconceptual representation of the ad-ministrative-review process pertainingto wilderness issues is contained inFigure 12.6. When potentially signifi-cant effects to Park resources, safetyconcerns, or excessive costs arediscovered in the course of a permittingevaluation, joint reevaluation of theproposed study by the principal investi-gator and Park management may berequired.

Investigators who concur with thestipulations of their permits can beauthorized to conduct studies within thePark for as long as five years, depend-ing primarily on their study plan.Progress on all studies is reevaluatedat least annually. When necessary,permits can be canceled for noncompli-ance or significant deviations from thestudy plan.

Figure 12.6 Wilderness-related decision matrix for scientific permit applications

Each column of this table represents one set of ranking criteria (e.g., significance, safety, effects on park resources, etc.). Proposals that match descriptions at the top of a column arefrequently complex and controversial. Some will require lengthy impact assessments and negotiation prior to a permit decision. Decision making is simpler for proposals matchingdescriptions near the bottom of a column.

Means of Access1 Mechanized Equipment2 Magnitude of Effects Duration of Effects

Helicopter

Fixed-wing aircraft

Off-road motorized vehicle (e.g., truck,auto, ATV, snowmobile)

Sport or utility watercraft (i.e., frequentupriver travel)

Motorized watercraft (i.e., principallydownriver travel)

Nonmotorized wheeled vehicles (e.g., bike,wagon)

Oar-powered watercraft (e.g., raft, dory,kayak)

Stock animals

Human powered (e.g., day hike, backpack,x-country ski, sled, climb)

1 Use restrictions apply to all forms ofaccess except day hikes and public roads.

Combustion engines (e.g., generators,pumps, motors)

Solar, battery, wind, current, and hand-powered devices

No powered devices

2 Use of quietest available technology may

be required.

Potential regional or greater effect (e.g.,species introductions)

Potential effects extend over a broad areawithin or adjacent to the Park unit (e.g.,fire, river manipulation, extensive aircraftuse)

Potential effects confined to multiple smallareas (e.g., multiple small sampling plots,excavations, campsites)

Probable effects confined to a single studysite, which will be restored and is out ofpublic view.

Probable effects will be hard to detectwithout prior knowledge (e.g., limitedsampling of loose geologic materials,seasonal plant growth, water, or air)

No physical site impacts anticipated (e.g.,photography, survey, sound or climatemonitoring)

Permanent modification of park resourcesor adjacent areas (e.g., construction of apermanent study platform, field laboratory,or quarters; alteration of non-renewableresources, excavation of archaeological orpaleontological sites)

Long-term impacts (6 months to severalyears) to renewable resources (e.g., treedamage, population manipulation,excavations in recent sediments abovemean high water)

Seasonal impact (2 - 6 months, e.g.,removal of seasonal plant growth,disturbance of beach deposits)

Extended impact (obvious to casualobservers for 2-4 weeks)

Short term impact (1 day to 2 weeks, e.g.,surface water dye studies, overnight fieldexcursion)

Instantaneous disturbance (e.g., seismicsurvey blast)

No apparent impact

Frequency of Disturbance Field Crew Safety Cost/Benefit Factors Continuous or near continuous activity(e.g., permanent field laboratory)

Frequent, long term activities (seasonalencampments)

Multiple overnight site visits

Multiple daytime site visits (e.g., repetitivesurveys, data collection)

Single overnight site visit

Single daytime site visit

No site visit (e.g., high altitude remotesensing)

Multiple group encampments or very largegroups (e.g. 12 or more persons)

Large group encampment (e.g., 7-11persons)

Small group encampment (2-6 individuals)

Single individual

No additional personnel placed on site,activities concurrent with approved sitevisits for other studies

No site visit

High perceived risk to project personnel,visitors, or park staff from proposedactivities. Training, safety gear, and otherreasonable precautions do not appearsufficient to mitigate risk.

Participation of essential personnel will notbe possible under existing safety orlogistical stipulations. Other qualifiedpersonnel are not available (i.e., can’tcomplete primary study objectives givencurrent restrictions).

Participation of preferred, but non-essentialpersonnel may be limited by safety orlogistical considerations, inaccessibility ofsite, or personal capabilities (e.g., technicalrock climbing, hike out from river). Otherqualified individuals can be available tocomplete tasks.

Broad participation of study team may bepossible, but will require development ofadditional skills, special training orcertification, guide services, specialsupplies or equipment (e.g., backpack,river trip, winter camping, electrofishing).

Participation of study team is not limitedby safety, logistical considerations orpermit stipulations.

Risks or other limitations associated withproposed activities can be significantlyreduced by alternate methods acceptable toall cooperators.

Cost of NPS requirements associated withthe proposed activities will makecompletion of the primary study objectiveinfeasible.

Permit stipulations are expected to increasecost to the point that meeting thesecondary objectives will not be achieved.

Permit stipulations will increase costs tothe point that other, equally important,studies will be negatively affected.

Permit stipulations have no lastingsignificant effect on ability to complete thestudy, or on institutional capabilities.

Proposed alternatives are expected toreduce total project costs

Scheduling Significance/UrgencyTiming of access is critical, and may bespur-of-the-moment. Essential data canonly be collected within a short window oftime. (e.g., studies of short term orunpredictable phenomena, floods,migrations, fire, seismic activity).

Study has specific seasonality and sitevisits must be made during pre-establishedtime frames (e.g., migratory wildlife, plantor animal reproduction, seasonal growth,seasonal visitation).

Study objectives can be met at any time ofyear subject to convenient scheduling ofpersonnel, equipment, access, funding,etc. (i.e., work is not seasonal, resourcesare relatively stable, e.g., geologic strata,archaeology, paleontology, forest history)

Study objectives have a high probability ofbeing met through opportunistic sampling(e.g. river guide monitoring of beach sites,participation on river trips on a space-available basis)

Proposed activity is deemed inappropriatefor NPS areas (permit will be denied)

Importance of study, or the need forconducting the study within an NPS area,is not supported by the proposal(permitting decision will be postponedpending major proposal revision)

Significance of study and need forconducting activities in protected NPSareas is documented in letters ofrecommendation from the investigator’sinstitution and colleagues, but is notsupported by qualified independent peerreviews (permitting decision may dependon a compelling justification by principalinvestigator or other recognized authorityif there is any potential for resourceimpacts or interference with visitors)

Significance of study and value to the parkunit is clearly recognized by qualifiedindependent peer reviews and by parkmanagement

Broad recognition for the importance ofthe study exists at park, regional, andnational/international level. Data aredeemed important to solving immediatethreats to public resources or human safety

Need for studies on this topic isdocumented in the Park’s current Resource Management Plan


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12.712.712.712.712.7 Summary of ChangesSummary of ChangesSummary of ChangesSummary of ChangesSummary of Changesand Actionsand Actionsand Actionsand Actionsand Actions

• Continue Rapid Campsite Assess-ment methodology for campsite moni-toring. Establish a monitoring sched-ule based on use statistics and trendinformation. Conduct an inventory ofcampsites in use areas within the WildOpportunity Class

• Implement a monitoring programbased on sociological research andprevious monitoring programs by2002. Focus on users in wildernessareas (Threshold, Primitive and WildOpportunity Classes)

• Develop a systematic schedule ofarchaeological inventory and monitor-ing in wilderness use areas based onuse trends and patterns. Archaeologi-cal site surveys, inventories, andcompliance will be conducted prior todeveloping resource-protection actionplans

• Establish a strategy to conduct routinetrail-condition surveys on wildernesstrails and routes. Focus will be ontrails that contain historic features, andthose that receive moderate to highuse levels by backpackers and riverusers. Conduct trail-condition surveyswill be conducted in conjunction withroutine trail maintenance and fall andspring rehabilitation river trips. Monitortrail-restoration work, on a cyclic basis

• Prepare biennial monitoring reportsfor Park staff including wildernessrangers, trail crew, and interpretationstaff

• Continue to evaluate the tools andmethods of scientific study for im-pacts on wilderness character apply-ing the minimum-requirement deci-sion process.


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CHAPTER13

RehabilitationRehabilitationRehabilitationRehabilitationRehabilitationandandandandand

RestorationRestorationRestorationRestorationRestorationofofofofof

RecreationalRecreationalRecreationalRecreationalRecreationalImpactsImpactsImpactsImpactsImpacts

n overall goal of wilderness management is to keep and make wilderness as wild and asnatural as possible. This includes restor-ing wilderness character when it hasbeen damaged by human use (Societyof American Foresters [SAF] 1989a).Managers not only have a responsibilityto maintain, preserve and protectpresent wilderness qualities, but also torestore those which are below minimumstandards (NPS Management Policies,6:2; SAF 1989b).

13.113.113.113.113.1 Revegetation and SiteRevegetation and SiteRevegetation and SiteRevegetation and SiteRevegetation and SiteRehabilitationRehabilitationRehabilitationRehabilitationRehabilitation

The primary objective of GrandCanyon’s revegetation program is torestore native vegetation cover in im-pacted areas (Grand Canyon ResourceManagement Plan 1997a:97). Thiseffort consists of four distinct yet interre-lated aspects: 1) rehabilitating andrestoring impacted sites to a naturalcondition; 2) establishing a dependableseed and propagule source for restora-tion efforts; 3) educating the public andworkforce; and 4) monitoring theprogram’s effectiveness.

Rehabilitating Impacted SitesRehabilitating Impacted SitesRehabilitating Impacted SitesRehabilitating Impacted SitesRehabilitating Impacted Sites

There are at least two critical steps inrestoring impacted sites. The first is toidentify the area of concern and deter-mine why impacts occurred. For ex-ample, if multiple trailing is the issue, itwould make little sense to intervene withan aggressive multiple-trail rehabilita-tion project without first delineating anadequate trail to accommodaterecreationists. Otherwise, a new mul-

tiple trail pattern will develop. Thesecond step is to determine the natureof the impacted site requiring rehabili-tation and devise an appropriate miti-gation plan.

RestorationRestorationRestorationRestorationRestoration

Restoration to a “natural” condition(See Appendix L, Natural Conditions)includes restoration and maintenanceof natural processes and viable popula-tions of all native species in naturalpatterns of abundance and distribution.For this discussion, the term “impact”will refer to human-induced alterationsof natural processes, native bioticcommunity compositions, and/or aes-thetic elements.

In widespread degraded areas restora-tion may consist of landscape-scaleactions, such as reducing or removingnonnative grazing animals and/or therestoration of natural fire regimes (SeeChapter 11, Ecosystem Management).The restoration of small-scale sitesresulting from recreational impacts,usually consists of returning impactedsites to the vegetative composition andaesthetic conditions of the area.

RehabilitationRehabilitationRehabilitationRehabilitationRehabilitation

Rehabilitation consists of returning animpacted site or area to a specified(generally natural) level of soil condi-tions and biological productivity (includ-ing vegetation composition) (SeeAppendix L, Natural Conditions). Aes-thetic considerations are also impor-tant. Since complete restoration is along-term process, the steps taken by

AAAAA


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managers generally constitute a se-quence of rehabilitation actions whichanticipate eventual restoration to anatural condition.

Rehabilitation of High-UseRehabilitation of High-UseRehabilitation of High-UseRehabilitation of High-UseRehabilitation of High-UseSitesSitesSitesSitesSites

Given the same environmental setting,more highly impacted sites will requirelonger recovery periods. When differentenvironmental settings are compared,however, it is difficult to predict how longrecovery will take merely on the basis ofhow badly the site is impacted. There issome evidence that differences inrecovery rates between different envi-ronments may exceed differences indeterioration rates. In addition, it may bemore effective to speed recovery ratherthan slow deterioration (Cole 1994).

Sometimes anticipatory actions may nothave the intended effect. For example,the seemingly logical strategy of rotatinguse—temporarily closing sites to allowrecovery or frequently relocating trails—is likely to be counterproductive be-cause it usually results in a pronouncedincrease in total impact. Many closedrestoration sites recover slowly asdisplaced activity creates new impactsas visitors go elsewhere. This increasesthe areal extent of impact and therefore,total impact (Cole 1994).

The most likely effective strategy incontrolling impacts in high-use sites issimply to select durable sites and toconfine use to as small an area aspossible. The characteristics of durablecampsites and other areas of concen-trated use include (1) either lack of

ground-cover vegetation or presenceof tolerant vegetation (grasslike plantsare most tolerant—short woody plantsare least ), (2) an open rather thanclosed tree canopy, (3) thick organicsoils, and (4) a relatively flat but well-drained site.

Rehabilitation of Little-UsedRehabilitation of Little-UsedRehabilitation of Little-UsedRehabilitation of Little-UsedRehabilitation of Little-UsedSitesSitesSitesSitesSites

Conversely much can be gained byreducing use in places that receivelight use. Study results emphasize theimportance of minimizing impacts inparts of the backcountry that arecurrently relatively undisturbed. Most ofthe backcountry falls under this cat-egory, especially the Esplanade andTonto regions. This Plan emphasizesvisitor education to encourage low-impact behaviors, such as selection ofdurable sites, as a key element inminimizing recreational impacts (SeeChapter 10, Interpretation, Education,and Information).

Other management strategies with themost promise include (1) controllingtype of use, (2) avoiding use duringseasons when soil and vegetation areparticularly vulnerable to disturbance(e.g., North Rim meadows) (3) confin-ing use in popular places, and (4)perhaps, dispersing use widely inlightly used places. This latter strategyis risky and if attempted, conditionswill be monitored closely (Cole 1994).

I know it is aI know it is aI know it is aI know it is aI know it is adaring thing-�daring thing-�daring thing-�daring thing-�daring thing-�

for a manfor a manfor a manfor a manfor a manwhose lifewhose lifewhose lifewhose lifewhose life

lasts 40, 50,lasts 40, 50,lasts 40, 50,lasts 40, 50,lasts 40, 50,60, 70, or 8060, 70, or 8060, 70, or 8060, 70, or 8060, 70, or 80years to beyears to beyears to beyears to beyears to betalking intalking intalking intalking intalking interms ofterms ofterms ofterms ofterms ofeternity,eternity,eternity,eternity,eternity,

but that isbut that isbut that isbut that isbut that isindeed whatindeed whatindeed whatindeed whatindeed whatwe are doing.we are doing.we are doing.we are doing.we are doing.We are think-We are think-We are think-We are think-We are think-ing of theing of theing of theing of theing of theeternity ofeternity ofeternity ofeternity ofeternity of

the past thatthe past thatthe past thatthe past thatthe past thatnow exists innow exists innow exists innow exists innow exists inthese areas ofthese areas ofthese areas ofthese areas ofthese areas ofwilderness,wilderness,wilderness,wilderness,wilderness,and we haveand we haveand we haveand we haveand we havethe presump-the presump-the presump-the presump-the presump-tion to saytion to saytion to saytion to saytion to saythat we arethat we arethat we arethat we arethat we aregoing to dogoing to dogoing to dogoing to dogoing to doour best toour best toour best toour best toour best tomake it pos-make it pos-make it pos-make it pos-make it pos-

sible for thosesible for thosesible for thosesible for thosesible for thoseareas fromareas fromareas fromareas fromareas fromthe eternitythe eternitythe eternitythe eternitythe eternity

of the past toof the past toof the past toof the past toof the past toexist on intoexist on intoexist on intoexist on intoexist on intothe eternitythe eternitythe eternitythe eternitythe eternity

of the future.of the future.of the future.of the future.of the future.That is ourThat is ourThat is ourThat is ourThat is our

faith.faith.faith.faith.faith.

HowardZahniserAuthor

ofthe

Wilderness Act


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13.213.213.213.213.2 Site RestorationSite RestorationSite RestorationSite RestorationSite RestorationRecommendationsRecommendationsRecommendationsRecommendationsRecommendations

Disturbed sites in desert environmentsare inherently difficult to revegetate (Gelt1993; Jackson, McAuliffe, and Roundy1991; Heim 1994; Young, et al. 1994).Poor soil properties, extremely highsurface temperatures, and lack ofmoisture retard or even prevent seed-ling establishment. On most sites, therelative contribution of wind and water toerosion in semiarid environments de-pends on soil conditions, and topogra-phy, and the nature and extent of im-pacts. The resulting erosion causes analmost irreversible loss in productivity(Ladyman and Muldavin 1996). Sincegeologic soil formation is estimated tobe one inch per 300-1,000 years, sig-nificant soil loss on even a modest scalecan be devastating. Erosional pro-cesses may also lead to an impover-ished soil seedbank (Francis 1994).Site restoration recommendationsinclude

• using the Minimum-RequirementDecision Process (Appendix D)

• identifying the source of impact• preparing the site, including

moisturecatchmentsmulch and shaderippingseeding

These elements are discussed in detailbelow.

Minimum RequirementsMinimum RequirementsMinimum RequirementsMinimum RequirementsMinimum Requirements

Grand Canyon National Park willapply only the minimum tools, equip-ment, device, force, regulation, orpractice that will bring the desiredresult (See Appendix D, MinimumRequirement Decision Process). Thisnot only applies to methods of trans-porting personnel and equipment to thesite, and the selection of the types oftools required for successful implemen-tation, but also the selection of materi-als needed for restoration. Materialsused for soil stabilization and mulchingwill consist of native vegetation, soil,and rock sources, if possible. Poten-tially intrusive materials such as jutematting (See Mulch and Shade below),will be carefully camouflaged. Workprojects will consist of the minimumnumber of participants (generally lessthan the maximum hiker group size of11). If possible, a project date will beselected that avoids conflict with recre-ational users. In general, project dates,tools, and materials will be selectedthat least impact the resource andvisitor experience.

Identify the Source ofIdentify the Source ofIdentify the Source ofIdentify the Source ofIdentify the Source ofImpactImpactImpactImpactImpact

Generally, rehabilitation of naturalperturbations such as floods, fire andlandslides will not be attempted inwilderness. Exceptions may be maderegarding exotics or rehabilitation ofdegraded landscapes (See Chapter11, Ecosystem Management). Unac-ceptable recreational impacts, asdefined through the LAC process,require active intervention. As dis-


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cussed above, it makes little sense toinitiate a rehabilitation project withoutunderstanding the cause of the originalimpact. Attempts to reduce the size ornumber of barren core areas (barrencore areas have compacted soil,trampled perimeter vegetation, and aredevoid of vegetation and organic litter)will be futile if the allowed group size ortotal group numbers exceed the area’scapacity. Elimination of multiple (social)trailing may be counterproductive with-out first delineating an adequate primarytrail. Otherwise, the area of impactsimply increases as “rehabilitated” trailsreappear and new ones develop. Sincemany archeological features occupysites providing shelter, shade, andproximity to water—conditions deemeddesirable by modern hikers—restorationmay not succeed unless adequatealternative sites and education areprovided, or as a last resort, the area isclosed to camping or visitation.

Site PreparationSite PreparationSite PreparationSite PreparationSite Preparation

Moisture

Moisture is not only necessary for imme-diate germination and growth, but seed-lings must grow large enough to toleratedrier, normal conditions. Even in undis-turbed deserts, seeding establishmentoccurs infrequently and only when thereis unusually plentiful rainfall. Irrigation isbeneficial in establishing vegetation, butin wilderness settings it is often impracti-cal, impossible, or in some cases mayexceed minimum tool. Some of theactions Grand Canyon may take include,contoured water catchments (to concen-trate moisture); mulching with coarse,

woody debris that is slow to breakdown; and seeding prior to winter rainsto increase the probability of success-ful seedling establishment (Jackson,McAuliffe, and Roundy 1991; Gelt1993).

Catchments

The use of contoured berms (resem-bling contour plowing) on slopes,depressions, and checks (small dams)in arroyos provides for water concen-tration, and greatly enhances soilmoisture. Since these measuresrequire some degree of site manipula-tion, care will be taken to assure thatonly low-key, unobtrusive, minimallyvisible features consisting only ofnatural materials are used. An ar-chaeological evaluation as part of thecompliance process is necessarybefore any surface disturbance occurs.

Mulch and Shade

Mulch reduces soil surface tempera-tures and greatly improves soil mois-ture accumulation, not only near thesurface but at depth (Jackson,McAuliffe, and Roundy 1991). Thepreferred mulch in wilderness settingsconsists of woody debris and naturalleaf litter (preferably from beneathnative trees and large shrubs). Locallyderived leaf litter provides additionalbenefits such as a source of nativeseeds and important microbiotic soilelements. It is also readily removed bywinds unless stabilized through soilscarification (roughing the surface) orcovering with heavier woody debris orcommercially prepared jute matting.


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For this discussion, jute matting refersto commercial blanket or matting con-sisting of wood fibers or burlap which isused to stabilize exposed soils. Jutematting also functions as a mulch byreducing soil temperatures and increas-ing soil moisture, as well as capturingwindblown seeds. It is useful when therestoration surface area is large, espe-cially when native mulch sources arelimited. Because of its visually intrusivenature, jute matting will be used onlywhen native material sources are insuffi-cient for adequate site preparation.Native woody debris and leaf litter willbe used to camouflage the jute matting.In addition, some jute matting comeswith a fine, plastic netting that degradesin sunlight. Since animals ranging insize from elk to reptiles can becomeentangled, this netting will be removedafter placement.

Another useful (albeit labor intensive)method of shading or blocking restora-tion sites is to “plant” dead brush anddeadfall in the disturbed area. Thematerial used consists mainly of deadbrush found in various states of abun-dance. If carefully and patiently done,this method can facilitate restoration ina variety of ways. First, an artfully craftedplanting, along with a liberal applicationof leaf litter, can visually blend the dis-turbed site with the surrounding vegeta-tion. This creates a passive, visualbarrier which, since the site is no longerrecognized as a trail or camp, reducesor eliminates subsequent recreationalimpacts. In addition, the planting activityprovides a small scale de-compactionof soil as each element is planted. Thebrush also shades the immediate area,

providing an ameliorated microclimateof reduced temperature and improvedmoisture. Grand Canyon will incorpo-rate these ecologically sensitive mea-sures into its rehabilitation program.

Ripping (Decompaction) of Soil

Tillage, scarification, or ripping com-pacted soils allows water to penetratemuch more easily, and this treatment isimportant, but not critical, in improvingsoil moisture. Because of the wide-spread presence of archaeologicalfeatures in Grand Canyon, this practicewill not occur unless specifically autho-rized by the Park archaeologist. Often,the freeze-thaw cycle affecting most ofthe Park generally breaks up soilsurfaces to a sufficient depth for manygrass species—provided additionalimpacts do not occur. If ripping isapproved, a variety of methods will beused depending on the area’s extent.Generally, hand tools such as picks,shovels, pulaskis, and occasionallyrock bars will be used for small areas.Stock-drawn rippers resembling plowsmay be used by qualified persons forlarger-scale projects. Mechanicalalternatives, a last resort, are ad-dressed in Appendix D, MinimumRequirement Decision Process. Soilsformed in arid and semiarid conditionsare extremely shallow; ripping shouldinvolve soil de-compaction with anabsolute minimum of soil mixing (Jack-son, McAuliffe, and Roundy 1991).

Seeding

Seeding will be derived from localsources suitable to the restoration site.


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Depending on the life of the seeds in thesoil, an area might need to be re-seeded. If stands of native plants existnearby, natural introduction of seedsmay be adequate provided the sitepreparation work persists or is refur-bished (Jackson, McAuliffe, and Roundy1991; Day and Ludeke 1990). The valueof fertilizers in arid and semiarid envi-ronments is questionable (Morgan1994).

Some research and experience indi-cates that seeding in the fall will result inhigher probability of seedling establish-ment. If fall-winter-spring precipitation issufficient to start seedling emergence,midsummer moisture events may bevery important in native seedling estab-lishment. A commonly accepted rule ofthumb for seeding grasses in rangelandseedbeds is to plant at a depth two andone-half times the diameter of the seed.Deep planting increases likelihood ofadequate moisture, and may make itmore difficult for rodents to locate andrecover artificially planted seeds (Jack-son, McAuliffe, and Roundy 1991).

Cryptogamic CrustCryptogamic CrustCryptogamic CrustCryptogamic CrustCryptogamic Crust

A cryptogamic crust is a brown, black,grey, or white soil cover composed ofeither algae, lichen, moss, fungi, orliverwort, alone or combined (Ladymanand Muldavin 1996). Living cryptogamiccrusts should not be confused withinorganic desert crusts which appearsimilar to the organic structures, butreduce water infiltration and increaserunoff and erosion. In contrast, the cryp-togamic crust minimizes erosion andprovides nitrogen to the soil (Fletcher

and Martin 1948; Harper and Marble1988). As early as 1948, researchersobserved that Southwest crusts com-posed of algae and lichen had thebeneficial function of reducing erosionand adding organic matter to the soil(Fletcher and Martin 1948). There is agrowing body of quantitative evidencethat cryptogamic crusts are importantin stabilizing soil against erosionalforces, especially in arid and semiaridenvironments that cannot support lushgrass growth and are particularlysusceptible to erosion (See Ladymanand Muldavin 1996).

Microbiotic crusts are extremely fragileand are prone to destruction with slightimpacts (Belnap 1993; Beymer andKlopatek 1992; Cole 1990a). Tram-pling by backcountry recreationists iscapable of seriously impacting largeareas. Very low levels of ongoing usewill maintain high levels of disturbance.This shows most commonly as websof trails that surround trail junctions,camping areas, and points of interest(Cole 1990a).

Although lichen and moss growthtends to be slow, other microbioticcrusts have the potential for rapidrecolonization (Cole 1990a). Inocula-tion with cryptogam preparation is oneway to hasten cryptogamic crustdevelopment (St. Clair, et al. 1984;Belnap 1993). Dry inoculation—crumbling material from one areaspread as thinly and evenly as pos-sible over another area—is an effec-tive method. Studies indicate thatinoculation contributes significantly toreestablishing crusts in as little as two


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years, although not to levels of undis-turbed sites (Belnap 1993). Studiesconducted in Grand Canyon indicatesurprisingly rapid recovery of crusts inas little as five years, provided thesource of perturbation is eliminated(Cole 1990a).

Cryptogam are significant ecosystemcomponents. They contribute to land-scape stability and increasing nutrientstatus and biodiversity. In arid parks it isimportant to educate visitors about thenature, importance, and fragility ofcryptogamic crusts. It is also importantto locate trails, camping areas, andother activity sites away from placeswith well-developed crust and, wherethis is not possible, try to confine trafficto one well-developed route (Cole1990a). Grand Canyon will considercryptogam life forms when planningbackcountry facilities, rehabilitation, anda sustainable ecosystem-managementstrategy.

Establish a Dependable SeedEstablish a Dependable SeedEstablish a Dependable SeedEstablish a Dependable SeedEstablish a Dependable Seedand Propagule Sourceand Propagule Sourceand Propagule Sourceand Propagule Sourceand Propagule Source

Seed Collection

The more plants from which seeds areharvested, the greater the chance thatthe collection will contain potentiallyimportant genes, and that these geneswill be represented in the same frequen-cies as in the original population.

Grand Canyon National Park willchoose plants from which to harvestseed in a random fashion, trying toavoid both conscious and unconsciousselection by paying little attention to

plant phenotype. This will enhance theprobability of including genes for sur-vival under varying conditions, not justthe conditions that contributed to thephenotype and the vigor of the plant atthe time the seed was harvested(Knapp and Rice 1994).

Collecting seed from a populationgrowing in a similar environment as thetarget environment, on both a regionaland local scale, can increase the oddsthat a well-adapted germplasm will beselected for restoration. Without knowl-edge of the gene combinations thatdetermine adaptation to a certainenvironment, the best we can do is tocollect material from environments withpotentially similar section pressures asthe planting site. Reasonable regionaladaptation can also be attained by justselecting plant material from sites withsimilar elevation, latitude, climate, andso on as the site to be restored (Knappand Rice 1994).

Less obvious, but perhaps equallyimportant, genetic variation may beassociated with local edaphic gradi-ents, biotic factors, microclimate, andsoils. Aspect of a site is another poten-tially strong local selective force, withplants growing on a sunny, southernexposure more likely to contain genesfor drought stress than plants growingjust over the hill on more shaded north-erly slopes (Knapp and Rice 1994).

Cultivation and NurseryConsiderations

If the seed cultivation (seed increase)environment is different from the even-


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tual target environment, selective pres-sures may greatly alter the seed’s ge-netic composition. The best way toavoid genetic shifts is to cultivate seedin an environment as similar as possibleto the target site. In addition, uponreplanting a seed-increase field, it isimportant to use originally collectedseed, not seed from a previous seedincrease (Knapp and Rice 1994). GrandCanyon will adhere to these specifica-tions.

The Park currently has a nursery opera-tion, including two greenhouses on theSouth Rim devoted to the propagation ofnative plants. In addition, the ScienceCenter staff is developing a partnershiprelationship with Glen Canyon nationalRecreation Area to establish a nativegrass seed cultivation area at LeesFerry.

Educate the Public andEducate the Public andEducate the Public andEducate the Public andEducate the Public andWorkforceWorkforceWorkforceWorkforceWorkforce

An effective restoration effort requiresan effective educational program (SeeChapter 10, Interpretation, Educationand Information). An educated publicand workforce can effectively reduce theextent of recreational impacts that wouldotherwise require active restorationintervention. In addition, the public andstaff needs to understand the need forrestoration, not only to support suchefforts, but also to decrease the likeli-hood of dismantling labor-intensiveprojects. An effective education programwill be established to create

• a coordinated interpretive program toprovide visitors access to adequate and

accurate information regarding protec-tion of natural and cultural resources

• a coordinated wilderness educationprogram for staff (permanent, sea-sonal, and volunteer) to develop re-source protection and restorationskills. These include 1) wildernessmanagement principles and philoso-phy; 2) Leave No Trace training; 3)application of minimum requirements,4) development proficiency in the useof primitive tools; 5) development ofminimum-impact trail maintenance,site restoration, and minimum-impactfire suppression tactics and tech-niques.

Implement Restoration/Implement Restoration/Implement Restoration/Implement Restoration/Implement Restoration/Rehabilitation ProgramRehabilitation ProgramRehabilitation ProgramRehabilitation ProgramRehabilitation Program

Currently, two winter river trips (ap-proximately 6 weeks total) are dedi-cated to the restoration and rehabilita-tion of impacts within the proposedwilderness. Work crews of paid andvolunteer staff conduct site restorationand revegetation, trail maintenance,and exotic plant control in remotelocations throughout the inner canyon.Additional volunteer crews are occa-sionally organized to perform similarwork on the rims during the summer.

Park staff will continue to expand itspartnership relationships with conser-vation groups, schools, and otheragencies in order to achieve restora-tion goals.


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Develop an EffectiveDevelop an EffectiveDevelop an EffectiveDevelop an EffectiveDevelop an EffectiveMonitoring ProgramMonitoring ProgramMonitoring ProgramMonitoring ProgramMonitoring Program

Grand Canyon will implement an effec-tive monitoring program which evaluatesrestoration treatment effectiveness (SeeChapter 12, Monitoring and Research).All the good intentions in the world willnot guarantee a successful restorationprogram without adequate evaluation ofthe techniques used.

13.3 Summary of changes13.3 Summary of changes13.3 Summary of changes13.3 Summary of changes13.3 Summary of changesand actionsand actionsand actionsand actionsand actions

• The Park will continue its winter river-based restoration program. This willbe accomplished during two three-week trips, and will generally consistof work parties of 16 crew members.

• Park staff will continue and expandsupplemental restoration programs,including the establishment of partner-ships with governmental and nongov-ernmental organizations.

• The Park will continue its plant nurseryprogram. Science Center staff willdevelop, in cooperation with GlenCanyon National Recreation Area, anative grass cultivation program.


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CHAPTER14

CulturalCulturalCulturalCulturalCulturalResourcesResourcesResourcesResourcesResourcesManagementManagementManagementManagementManagement


hrough the Scoping process for this Plan, public comments con-cerning cultural resources were re-ceived; the majority related to site-preservation efforts and education.Numerous comments were receivedsuggesting ways to better protect ar-cheological resources. Improved educa-tion, in a variety of formats, was by farthe most common suggestion. Postingnotices on archeological sites, closingsites, increasing interpretive informationprovided to hikers, educating parkpersonnel, increasing patrols, andadding information to written guide-books were all suggested to mitigatesite impacts. Education is the mostimportant aspect of an active approachto management, and is discussed inChapter Ten. On-site mitigation efforts,increased monitoring and signage, andactive changes in trails and designatedcampsites are discussed in this sectionand also in Chapter 12, ArcheologicalMonitoring, and Chapter 16 Implemen-tation Plan and Schedule.

14.2 Program Overview14.2 Program Overview14.2 Program Overview14.2 Program Overview14.2 Program Overview

The Cultural Resource ManagementProgram at Grand Canyon is devoted tothe management of program require-ments, maintenance, ongoing projects,and activities. Cultural ResourcesProgram include archaeology, ethnogra-phy, curation, cultural landscapes,historic preservation and AmericanIndian consultation. All these elementsare a component of wilderness man-agement at Grand Canyon.

Cultural resources management ismandated by law and policy. Majorhistoric preservation laws include theHistoric Sites Act of 1935, the NationalHistoric Preservation Act of 1966 (asamended 1992), the National Environ-mental Policy Act of 1969, the Archeo-logical and Historic Preservation Act of1974, and the Archeological Re-sources Protection Act (ARPA) of 1979(as amended 1988). Of particularimportance are additional documentssuch as NPS Management Policies(1988), the Antiquities Act of 1906, theNative American Graves Protectionand Repatriation Act (NAGPRA) of1990, and Executive Order 13007Indian Sacred Sites signed May 24,1996.

The primary objective of the CulturalResource Management Program is tomeet the basic requirements outlined inthe Cultural Resource ManagementGuidelines, (NPS-28) to ensure culturalresources are identified, properlymanaged, and preserved. This objec-tive is accomplished through a system-atic program of research, planning, andstewardship.

According to NPS ManagementPolicies (5:2), the NPS will conduct acoordinated program of basic andapplied research to support planningfor and management of park culturalresources. In addition, NPS Manage-ment Policies (6:7) states

Cultural features such as archeo-logical sites, historic trails or routes,or structures that have been in-cluded within wilderness will be

TTTTT


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protected and maintained usingmethods that are consistent with thepreservation of wilderness characterand values and cultural resourceprotection requirements.

Cultural resources management withinthe Park’s wilderness areas is focusedon archeological resources (historic andprehistoric), ethnographic resources(traditional cultural properties and ac-cess accommodations), historic re-sources (buildings, trails, landscapes),and objects (artifacts preserved in situ).

14.314.314.314.314.3 ArcheologicalArcheologicalArcheologicalArcheologicalArcheologicalResourcesResourcesResourcesResourcesResources

Archeological resources are thosephysical remains that provide the basisfor understanding and interpretingprehistory and history. Of all culturalresources found in Grand Canyon, thegreatest conflict in visitor use and man-agement relates to archeological re-sources. This situation is caused, inpart, by the fact that humans have usedthe Grand Canyon for thousands ofyears—a good route prehistorically hasbecome a good trail today; a goodcampsite 1000 years ago was a goodcampsite 100 years ago, and is still agood campsite. Remains of prehistoricand historic activity is evident in a largeportion of the more popular wildernessuse areas.

As stated in Chapter Two of this Plan,the existing inventory of archeologicalsites is based on a survey of only twopercent of the Park. Most of the inven-tory has been conducted along theCross-Canyon Corridor trails, the pri-

mary wilderness trails, and near popu-lar use areas such as Hermit Creekand Tanner. The monitoring programfocuses primarily on sites located atexisting and potential camp or day useareas (See Chapter 12.3, Monitoringand Research Programs).

Monitoring by itself can not mitigatethe impacts that have already occurredor are currently occurring to archeo-logical resources. Monitoring providesthe means of tracking and evaluatingthe condition of archeological re-sources so that managers can developappropriate protection actions. Lawenforcement and public educationprovide avenues for preventing futureimpacts but cannot address the im-pacts which have already occurred.For long-term monitoring to be worth-while, it is essential that the monitoringprogram be directly linked with othertreatment programs that can addressthe ongoing impacts to these nonre-newable heritage resources throughstabilization, rehabilitation, or, if noother reasonable options are avail-able, through site closure or excava-tion.

Specific treatments to mitigate im-pacts to archeological sites, especiallyin the more popular wilderness areasinclude designating campsites toconcentrate use in areas with highconcentrations of archeological re-sources, and to reroute and redesigntrails to avoid impacts from foot traffic.These management actions are identi-fied for specific areas in ChapterSixteen, Implementation Plan andSchedule.

Every place,Every place,Every place,Every place,Every place,like everylike everylike everylike everylike everyperson, isperson, isperson, isperson, isperson, iselevated byelevated byelevated byelevated byelevated bythe love andthe love andthe love andthe love andthe love and

respect shownrespect shownrespect shownrespect shownrespect showntoward it, andtoward it, andtoward it, andtoward it, andtoward it, andby the way inby the way inby the way inby the way inby the way in

which itswhich itswhich itswhich itswhich itsbounty isbounty isbounty isbounty isbounty isreceived.received.received.received.received.

Richard NelsonThe Island

Within


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14.414.414.414.414.4 EthnographicEthnographicEthnographicEthnographicEthnographicResourcesResourcesResourcesResourcesResources

An ethnographic resource is any naturalor cultural resource linked to the tradi-tional practices, values, beliefs, historyand/or ethnic identity of a cultural groupor groups. Specific direction on man-agement of these resources is found inNPS-28 and NPS Management Poli-cies. In addition to specific NPS direc-tion, legal direction is also found in theAmerican Indian Religious FreedomAct, the Religious Freedom RestorationAct, and Executive Order 13007 (IndianSacred Sites).

Grand Canyon has been home to vari-ous groups for thousands of years.These people, both American Indianand more recent Euro-Americans, haveused the Canyon as both a home and aplace linked to traditional practices,values and beliefs. Euro-Americansrecognized the Canyon’s spiritual valuesin the establishment of the national parkin 1919. World Heritage designationtold the world that Grand Canyon hadvalue beyond the American people. The1975 Grand Canyon Enlargement Actspecified natural quiet and the view asimportant, yet intangible qualities, thatmust be protected. These are all ethno-graphic resources.

Through the integration and improve-ment of resource management, visitorexperience, and personnel sensitivity,the ethnographic program seeks toraise the level of the public’s and parkpersonnel’s understanding and appre-ciation for natural, cultural, and ethnicdiversity.

Tribal interest in management of wilder-ness areas at Grand Canyon NationalPark is significant. The Park’s manage-ment staff is committed to ongoingintegration of Tribal perspectives intoPark programs. Effective government-to-government relationship with eightseparate Indian Tribes (represented bysix Tribal governments) will be main-tained through the Cultural ResourceManagement Program.

Traditional CulturalTraditional CulturalTraditional CulturalTraditional CulturalTraditional CulturalPropertiesPropertiesPropertiesPropertiesProperties

Closely linked with ethnographic re-sources, traditional cultural properties(TCP) are defined as “one that iseligible for inclusion in the NationalRegister because of its associationwith cultural practices or beliefs of aliving community that (a) are rooted inthat community’s history, and (b) areimportant in maintaining the continuingcultural identity of the community” (U.S.Department of the Interior, NationalPark Service, Undated). Given thethousands of years of American Indianassociation with the Canyon, it is likelythat many traditional cultural propertiescan be defined in the Park. Locationscan only be defined by those culturalgroups whose association with Parkresources and values can be definedwithin National Register contexts.Ongoing consultations with groupsaffiliated with Grand Canyon NationalPark will further identification of impor-tant traditional cultural properties.


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Access and AccommodationAccess and AccommodationAccess and AccommodationAccess and AccommodationAccess and Accommodation

On May 24, 1996, President Clintonsigned Executive Order 13007 to ac-commodate access to American Indiansacred sites by Indian religious practitio-ners, and to provide additional protec-tion for the physical integrity of suchsites on Federal lands. EO 13007directs the NPS (and other Federalagencies) to accommodate access toand ceremonial use of sacred sites byAmerican Indian people to the fullestextent possible under the law.

Wilderness areas of Grand CanyonNational Park are likely to contain loca-tions of importance to American Indianreligious practitioners, requiring accom-modation for access and use. NPSManagement Policies (6:7) is specificwhen referencing cultural resources andAmerican Indian use in wildernessareas, and implementation of EO 13007will be consistent with existing policy:

Cultural features such as archeo-logical sites, historic trails or routes,or structures that have been in-cluded within wilderness will beprotected and maintained usingmethods that are consistent with thepreservation of wilderness charac-ter and values and cultural re-source protection requirements....Native American religious areasand other ethnographic resourceswill be inventoried and protected.Native Americans will be permittednon-motorized access within wilder-ness for sacred or religious pur-poses in accordance with criteria forspecial park uses.

NPS wilderness policy and manage-ment does not preclude accommoda-tion and use of sacred sites. In con-trast, NPS management has the abilityto embrace and implement the broadprovisions of EO 13007.

14.514.514.514.514.5 Historic ResourcesHistoric ResourcesHistoric ResourcesHistoric ResourcesHistoric Resources

Historic resources are those buildings,trails, and objects that have achievedtheir significance during the recentpast. At Grand Canyon, literally hun-dreds of buildings and hundreds ofmiles of trails are considered signifi-cant historic structures. A structure is a“constructed work...consciously cre-ated to serve some human activity.”

Although by its very nature, wildernessareas are typically devoid of evidenceof recent human activity, wildernessareas may contain features of histori-cal value. Proposed wilderness withinthe Park contains significant historicstructures, mainly in the form of con-structed trails. These trails represent acontinuum of use, from prehistoric tohistoric times, and are the link be-tween the rim and inner canyon. His-toric trails may serve and be main-tained as part of the wilderness trailsystem (NPS Management Policies,6:2).

Cultural LandscapesCultural LandscapesCultural LandscapesCultural LandscapesCultural Landscapes

A cultural landscape is “a geographi-cal area, including both cultural andnatural resources and the wildlife ordomestic animals therein, associatedwith an historic event, activity, or per-son or exhibiting other cultural or


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aesthetic values.” In the broadest sense,a cultural landscape reflects humanadaptation and use of natural resources.This is often evident in the division andorganization of the land, the presence ofboth natural and cultural biotic features,the systems of circulation that allowmovement, and the types of structuresthat are built. A cultural landscape’scharacter is defined by physical mate-rial, use, and function. Individual fea-tures, such as roads, buildings, wallsand vegetation are material compo-nents that, taken together, create thewhole landscape. Patterns of use andfunction reflect cultural values and tradi-tions. The Grandview Trail leading toHorseshoe Mesa and the Last ChanceMining District is considered a culturallandscape.

14.6 Objects14.6 Objects14.6 Objects14.6 Objects14.6 Objects

Although we typically think of historicobjects as curatorial materials withinmuseum collections, preservation in situ(in its original place) is often the pre-ferred management decision. The rangeof historic and prehistoric objects foundin Grand Canyon’s wilderness is wide,from broken pottery and projectile pointsto cast iron stoves, tin cans and woodenburro panniers. All of these objects arepart of the cultural landscape, the ar-cheological site, or the historic re-source, and are afforded the sameprotection as other cultural resources.

Collection of objects, be they historic orprehistoric, is not undertaken by archae-ologists without clear program definitionand research orientation. “Park archeo-logical resources are left in situ and

undisturbed, unless removal of artifactsor intervention into cultural material isjustified in the planing process bypreservation treatment, protection,research, interpretation, or develop-ment requirements. They are preservedin a stable condition to prevent degra-dation and loss of research values or insitu exhibit potential” (U.S. Departmentof the Interior, National Park Service1994a). Tribal consultations haverecommended that archeologicalremains be left in their original locationif at all possible. Objects that are col-lected are curated in Grand Canyon’sMuseum Collection.

14.7 Native American14.7 Native American14.7 Native American14.7 Native American14.7 Native AmericanGraves Protection andGraves Protection andGraves Protection andGraves Protection andGraves Protection andRepatriation (NAGPRA)Repatriation (NAGPRA)Repatriation (NAGPRA)Repatriation (NAGPRA)Repatriation (NAGPRA)

NAGPRA was signed into law byPresident George Bush on November16, 1990. This law addresses the rightsof lineal descendants, Indian Tribes,and Native Hawaiian organizations tocertain Native American human re-mains, funerary objects, sacred ob-jects, or objects of cultural patrimonywith which they are affiliated. All provi-sions of implementation specified inNAGPRA and its implementing regula-tions will be followed by Grand Canyon.

The possibility of inadvertently discov-ering American Indian human remains,funerary objects, sacred objects orobjects of cultural patrimony within Parkwilderness is very real. Although humanremains are rare in the archeologicalinventory, we acknowledge that human


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remains could be found anywherepeople have lived and traveled.Grand Canyon National Park will enterinto agreements with affiliated Tribesregarding inadvertent discoveries.Ongoing consultations with Tribes affili-ated with the Canyon suggest that in situpreservation and reburial as close to theoriginal location as possible are pre-ferred. The details related to appropriatetreatment under NAGPRA will be in-cluded in individual Memoranda ofUnderstanding (MOU). Until such timeas individual MOUs are in place, provi-sions specified in the final rule forNAGPRA §10.4 will be followed.

14.814.814.814.814.8 Cultural ResourceCultural ResourceCultural ResourceCultural ResourceCultural ResourceStewardshipStewardshipStewardshipStewardshipStewardship

Responsibilities are accomplished bymany Park units, with the majority car-ried out by the Cultural Resource Man-agement Program. The Division ofMaintenance is involved in culturalresources preservation through historicstructures, trails, and landscapes. TheDivision of Visitor and Resource Protec-tion is key to cultural resource protec-tion. Through ARPA-related patrols andmonitoring efforts with the archeologicalstaff, evaluations and recommendationsfor management actions are presentedto the superintendent.

In addition, the Cultural Resource Pro-gram Manager, serves as liaison withthe eight affiliated American IndianTribes. An active consultation processinvolves working in cooperation with theaffiliated Tribes when proposed man-agement actions have potential impactto cultural resources and values.


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Program AreaProgram AreaProgram AreaProgram AreaProgram Area Management Actions Management Actions Management Actions Management Actions Management Actions Stewardship Stewardship Stewardship Stewardship Stewardship Responsibilities Responsibilities Responsibilities Responsibilities Responsibilities

Archeological Resources •Prehistoric Inventory and Monitoring Archaeologist •Historic Site Protection Wilderness Ranger

Site Preservation Trail CrewEducation Interpreters

Ethnographic Resources Cultural Resource Manager •Traditional Cultural Properties Consultation Archaeologist •Access Accommodations Education Interpreters

Historic Resources •Buildings, Trails, Inventory and Monitoring Archaeologist Roads, Objects •Cultural Landscapes Site Protection Wilderness Ranger

Site Preservation Maintenance CrewEducation Interpreters

NAGPRA Consultation Cultural Resource ManagerDevelopment of MOU Archaeologist

Wilderness Ranger

FigureFigureFigureFigureFigure14.114.114.114.114.1

Summary ofSummary ofSummary ofSummary ofSummary ofChanges andChanges andChanges andChanges andChanges andActionsActionsActionsActionsActions



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CHAPTER15

HavasupaiHavasupaiHavasupaiHavasupaiHavasupaiTraditionalTraditionalTraditionalTraditionalTraditionalUse LandsUse LandsUse LandsUse LandsUse Lands


ccess to Park lands through the area known as the HavasupaiUse Lands was another concern identi-fied during the public scoping process.The majority of concerns were ex-pressed by individuals who cross theGreat Thumb and Esplanade, includedwithin the Havasupai Use Lands, toPark areas around Royal Arch andElves Chasm. This chapter addressesaccess and permitting on Havasupailands adjacent to the Park (See alsoChapter Five, Backcountry PermitsSystem; and Appendix E, RecreationalOpportunities and Permit Information forAdjacent Lands).

15.2 Background15.2 Background15.2 Background15.2 Background15.2 Background

The Grand Canyon Enlargement Act of1975 (Public Law 93-620), greatlyenlarged Grand Canyon National Parkby incorporating Marble Canyon Na-tional Monument, Grand Canyon Na-tional Monument, and portions of landspreviously administered by the Bureauof Land Management and Lake MeadNational Recreation Area into the legalboundaries of Grand Canyon NationalPark. In addition to enlarging the Park,significant additions were made to theHavasupai Reservation. Section 10 (a)of the Act provided an additional185,000 acres to be held in trust by theFederal government for the HavasupaiTribe. Subsection (b)(6) of the Actstates

. . .nonmembers of the tribe shallbe permitted to have accessacross such lands at locationsestablished by the Secretary inconsultation with the Tribal Councilin order to visit adjacent parklands,and with the consent of the tribe,may be permitted (i) to enter andtemporarily utilize lands within thereservation in accordance with theapproved land use plan describedin paragraph (4) of this section forrecreation purposes or (ii) to pur-chase licenses from the tribe tohunt on reservation lands subjectto limitations and regulationsimposed by the Secretary of theInterior.

(7) except for the uses permitted inparagraphs 1 through 6 of thissection, the lands hereby trans-ferred to the tribe shall remainforever wild and no uses shall bepermitted under the plan whichdetract from the existing scenic andnatural values of such lands.

In addition to the description of landsadded to the reservation, Section 10(e)of the Act directed the Secretary of theInterior to “permit the tribe to use landswithin Grand Canyon National Parkwhich are designated as HavasupaiUse Lands.” This provided Havasupaiuse “for grazing and other traditionalpurposes” of 95,300 acres of GrandCanyon National Park generally knownas the Esplanade, and extendingapproximately from Royal Arch Creekon the east to National Canyon on thewest.”

AAAAA


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15.3 Management of the15.3 Management of the15.3 Management of the15.3 Management of the15.3 Management of theHavasupai Use LandsHavasupai Use LandsHavasupai Use LandsHavasupai Use LandsHavasupai Use Lands

In 1982, Grand Canyon National Parkand the Havasupai Tribe developed aMemorandum of Understanding (MOU)(U.S. Department of the Interior, NationalPark Service 1982a) which governedthe use of what has become known asthe Havasupai traditional use lands(TUL). Although the MOU lapsed in1987, incorporation of the essentialelements of the agreement into theWilderness Management Plan willcontinue to provide guidance to GrandCanyon National Park management andthe Tribal government regarding use andaccess on the TUL.

• Both the National Park Service andthe Havasupai Tribe concur that theTribe retains grazing rights in the TULconsistent with acceptable range-man-agement practices for the particularacreage.

• The Havasupai will not graze sheep inthe TUL, and horses presently grazing inthe TUL that are unclaimed will beremoved by the Havasupai. Havasupailivestock in the TUL will be branded.

• Consistent with traditional use, theHavasupai may hunt in the TUL, exceptin the summer, in such a manner as isconsistent with acceptable wildlife-management practices, and concurredin by the Secretary of the Interior. Indi-viduals who are not members of theHavasupai Tribe will not be permitted tohunt in the TUL. Bighorn sheep, preda-tors, and rare and endangered species

will not be hunted. Problem predatorswill be reported to Grand CanyonNational Park management, and ajoint and mutually satisfactory solutiondeveloped.

• As originally identified in the Act,Havasupai use of the TUL will continuefor traditional purposes. This includesgathering edible wild plants, materialsfor paints and medicines, other legiti-mate traditional substances, andminimally improving existing springs tomaximize available water for wildlifeand visitors in such a manner that thenatural and scenic beauty of the TULwill not be marred.

• Grand Canyon National Park willlimit visitor access to the TUL from theHavasupai Reservation to two trailsleading from the rim: the Apache PointTrail and the 140 Mile Canyon Trail.Permits will be granted only to experi-enced hikers who request them. Visi-tors remaining overnight in the TULmust have Grand Canyon NationalPark permits, and, to access and/orcamp on the Havasupai Reservation,Tribal permits. Grand Canyon NationalPark will forward individual permitinformation to the Tribe wheneverovernight hikers access the Park viaTribal lands. Confirmation of a Tribalpermit will be required prior to issuinga Grand Canyon backcounty permit.For the benefit of those visitors permit-ted to hike across the Great Thumb tothe head of Apache Point and/or 140Mile Canyon Trails, the HavasupaiTribe will designate adequate parkingfacilities on the Topocoba Hilltop Roadand, by means of a sign, bulletin

There may beThere may beThere may beThere may beThere may bepeople whopeople whopeople whopeople whopeople who

feel no needfeel no needfeel no needfeel no needfeel no needfor nature.for nature.for nature.for nature.for nature.They areThey areThey areThey areThey arefortunate,fortunate,fortunate,fortunate,fortunate,perhaps.perhaps.perhaps.perhaps.perhaps.

but for thosebut for thosebut for thosebut for thosebut for thoseof us who feelof us who feelof us who feelof us who feelof us who feelotherwise, whootherwise, whootherwise, whootherwise, whootherwise, whofeel somethingfeel somethingfeel somethingfeel somethingfeel something

is missingis missingis missingis missingis missingunless we canunless we canunless we canunless we canunless we canhike acrosshike acrosshike acrosshike acrosshike across

land distrubedland distrubedland distrubedland distrubedland distrubedonly by ouronly by ouronly by ouronly by ouronly by ourfootstepsfootstepsfootstepsfootstepsfootstepsor seeor seeor seeor seeor see

creaturescreaturescreaturescreaturescreaturesroaming freelyroaming freelyroaming freelyroaming freelyroaming freelyas they haveas they haveas they haveas they haveas they havealways done,always done,always done,always done,always done,we are surewe are surewe are surewe are surewe are surethere shouldthere shouldthere shouldthere shouldthere should

bebebebebewilderness.wilderness.wilderness.wilderness.wilderness.

Margaret E.Murie


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board, or other appropriate informationdevice, inform the visitor of Tribal regu-lations to be observed while crossingthe reservation to gain Park access.

• No vehicular access or use of horsesby non-Tribal members will be permittedon the Great Thumb north of theTopocoba Road and north and west of aline running south from Forster Canyon,except in an emergency, such as whenhuman life is endangered, for forest-firesuppression, and for official Park ad-ministrative and protective functions.Havasupai Tribal members may guidenonmembers on Tribal horses in theTUL.

• Numbers of visitors permitted in theTUL have been determined and areconsistent with hiker limitations in otherareas of the Park. These areas aremanaged as “wild” zones, with no morethan two hiking groups and a maximumof 16 people permitted within the TUL atany given time, with a maximum stay ineach area not to exceed seven nights.

• All visitors to the traditional use area,regardless of route or access, will at alltimes abide by NPS regulations and/orhiking permit conditions (See ChapterFour, Recreational Use of Wilderness).In addition, visitors to the traditional usearea must pay particular attention to thefollowing permit conditions

•No firearms•No open campfires•No removal of, marking on, orbreaking any natural object

•No removal or disturbance ofarcheological materials, artifacts,or ruins

•No camping at springs, archaeo-logical sites, or around Mt. Sinyella

•During foot travel across the GreatThumb, whether on Tribal or Parkland, visitors will use what hasbeen called the Great Thumb JeepTrail. Camping will be permittedwithin 50 yards (45 meters) of thetrail

•No permits will be issued to climbMt. Sinyella

•Visitors seeking water near 140Mile Canyon should obtain it onlyfrom the spring running along thebottom of the wash at the head of140 Mile Canyon

•Visitors must not disturb Triballivestock

15.4 Native American15.4 Native American15.4 Native American15.4 Native American15.4 Native AmericanGraves Protection andGraves Protection andGraves Protection andGraves Protection andGraves Protection andRepatriation ActRepatriation ActRepatriation ActRepatriation ActRepatriation Act

Although the provisions related to theNative American Graves Protectionand Repatriation Act (NAGPRA) werediscussed in Chapter Fourteen, men-tion of law in relation to TUL manage-ment is appropriate. The TUL, as landwithin Grand Canyon National Park, issubject to the same provisions regard-ing implementation of NAGPRA for allother areas of the Park. However,Havasupai traditional use of the TULpresents a unique opportunity to workcooperatively with the Tribe in thedevelopment of appropriate treatmentfor human remains and sacred objectsdiscovered within the TUL.


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A specific agreement will be developedwith the Havasupai Tribe regardinginadvertent discoveries on the TUL.Although identification of cultural affilia-tion is critical, consultation with theHavasupai and other affected Tribes willbe used in drafting a Memorandum ofUnderstanding related specifically to theHavasupai use lands within GrandCanyon National Park.

15.5 Culturally Sensitive15.5 Culturally Sensitive15.5 Culturally Sensitive15.5 Culturally Sensitive15.5 Culturally SensitiveAreasAreasAreasAreasAreas

Certain reservation and TUL areas holdspecial meaning to the Havasupaipeople. These areas, discussed ingeneral in Chapter Fourteen as tradi-tional cultural properties, ethnographicresources, and sacred areas, are de-fined by the Tribe. Grand Canyon Na-tional Park will incorporate informationprovided by the Tribe in an attempt toprotect the physical and spiritual integrityof those places and use as defined inEO 13007. (See Chapter 14, CulturalResources Management).

15.6 Summary of15.6 Summary of15.6 Summary of15.6 Summary of15.6 Summary ofChanges and ActionsChanges and ActionsChanges and ActionsChanges and ActionsChanges and Actions

• Incorporate essential elements of theMOU governing the use of the TULincluding actions related to tradi-tional uses and visitor access

• Establish a cooperative permittingsystem with the Havasupai Tribe thatincludes exchange of information onrequested visitor use of the area,and confirmation on permit issuancefrom either the Park or the Tribe.(See also Chapter 5, BackcountryPermit System)

• Under the provisions of NAGPRA,develop a specific agreement withthe Havasupai Tribe regarding theinadvertent discovery of humanremains on the TUL

• Under the provisions of EO 13007,incorporate information provided bythe Havasupai Tribe on culturallysensitive areas, and assure accom-modation of the traditional use ofthese areas.


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CHAPTER16

WildernessWildernessWildernessWildernessWildernessManagementManagementManagementManagementManagementImplementationImplementationImplementationImplementationImplementation

PlanPlanPlanPlanPlan

TTTTT he following is a compilation of future and ongoing managementactions to be taken to fully implementthis Wilderness Management Plan.Each management action, describedearlier in this Plan, is listed under acorresponding Management Objective(see Chapter 1, Goals and Objectives).In addition, the actions are referencedby the chapter(s) in which they aredescribed. A summary table followswhich outlines the action, target goals,and staff responsibilities.

Wilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementPlan GoalsPlan GoalsPlan GoalsPlan GoalsPlan Goals

1. Provide guidance and describestrategies for meeting legislativeand policy mandates on wildernessmanagement while providing recre-ational opportunities consistent withwilderness for a broad range ofvisitor experiences and settings,and preserving and protecting thenatural, cultural, and social re-sources of Grand Canyon NationalPark.

2. Provide for the continuity of wilder-ness management throughoutchanges of park administration andstaff.

ActionsActionsActionsActionsActions

� Implement wilderness managementpolicies for areas of proposed wilder-ness in Grand Canyon National Park.

� Implement minimum requirementstrategy for public and administrativeuse in Grand Canyon National Park.

� Prepare other Park managementplans consistent with the WildernessManagement Plan.

� Establish and maintain Park staffinglevels needed to ensure that wilder-ness management responsibilitiesare being met in accordance with theNPS Wilderness ManagementGuidelines, including the

Wilderness Steering CommitteeWilderness CoordinatorWilderness RangersWilderness Trail Crew

Management Objective OneManagement Objective OneManagement Objective OneManagement Objective OneManagement Objective One

Establish and implement a permitsystem that

a) serves the visitor by providing theopportunity to obtain permits for wilder-ness and nonwilderness areas thatyield the type of experience they seek

b) serves Park management by pro-viding an effective way to educate thepublic on low-impact practices, ethics,and safety

c) serves Park management by pro-viding data on hiker use levels anddistribution in order to make informeddecisions regarding the managementand protection of backcountry andwilderness resources.


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� Upgrade automated reservation andpermits system, and improve customerservice by increasing staff, communi-cations and hours of operation. [Chap-ter 5, Backcountry Permit System;Appendix G, Backcountry Reservationand Permit System]

� Distribute quarterly wilderness-usestatistics to Wilderness District, TrailCrew, Interpretive Staff and ScienceCenter. [Chapter 5, BackcountryPermit System; Chapter 10: Interpreta-tion and Education; Chapter 12, Moni-toring and Research]

� Show educational video in the VisitorContact Stations and the BackcountryOffice; distribute to permit holders, andinterested groups. [Chapter 5, Back-country Permit System; Chapter 10,Interpretation, Education, and Informa-tion]

� In cooperation with the Navajo, Hava-supai and Hualapai Tribes, establish acooperative permitting system for useon Tribal and Park lands. [Chapter 5,Backcountry Permit System; Chapter15, Havasupai Traditional Use Lands;Appendix E, Recreational Opportuni-ties and Permit Information for Adja-cent Lands]

Management ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveTwoTwoTwoTwoTwo

Establish indicators and standards fordesired visitor experiences, andbiophysical and cultural resources;monitor regularly the condition ofthese indicators; and take manage-ment action as necessary to meetthese standards.


� Continue Rapid Campsite Assess-ment methodology for campsitemonitoring. Establish a monitoringschedule based on use statistics andtrend information. Conduct baselinecampsite inventory in new use areas,and complete inventory in Wild useareas. [Chapter 6, Campsite Man-agement; Chapter 12, Monitoringand Research]

� Implement a monitoring programbased on sociological research andprevious monitoring programs.Focus on users in wilderness areas.[Chapter 12, Monitoring and Re-search]

� Conduct archeological survey andmonitoring along popular trails andcampsites in the following areas:Grandview Complex, Hermit-Monu-ment Complex, Thunder River/DeerCreek Complex [Chapter 6, Camp-site Management; Chapter 7, TrailsManagement; Chapter 12, Monitor-ing and Research; Chapter 14,Cultural Resources Management]


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� Develop and implement action plansfor rehabilitation of campsites andtrails in the following use areas:Horseshoe Mesa, Hermit Creek,Monument Creek, Upper Tapeats.[Chapter 6, Campsite Management;Chapter 7, Trails Management; Chap-ter 12, Monitoring and Research;Chapter 13, Rehabilitation and Resto-ration of Recreational Impacts]

� Establish designated campsites, andrehabilitate impacted areas in thefollowing use areas: Deer Creek,Cape Final, Point Sublime, Fire Point,Swamp Point, and Pasture Wash.[Chapter 6, Campsite Management:Chapter 12, Monitoring and Research;Chapter 13, Rehabilitation and Resto-ration of Recreational Impacts]

� Develop and implement site datarecovery plan for archeological siteslocated in the following use areas:Hermit Creek, Monument Creek,Horseshoe Mesa, Cottonwood Creek,Clear Creek, Cremation, Tanner.[Chapter 12, Monitoring and Re-search; Chapter 14, Cultural Re-sources Management]

� Establish Semi-Primitive MechanizedOpportunity Class to describe condi-tions and standards for nonwildernessprimitive road corridors. [Chapter 3,Wilderness Management PlanningFramework; Chapter 4, RecreationalUses of Wilderness; Chapter 6, Wil-derness Campsite Management;Chapter 8, Semi-Primitive Accessand Facilities]

� Determine eligibility for NationalRegister of Historic Places for theSanta Maria Springs shelter, SignalHill Firetower, Kanabownits Cabin,and the Kanabownits Firetower. Uponcompletion of this process, a determi-nation regarding course of action willbe made. [Chapter 8, Semi-PrimitiveAccess and Facilities; Chapter 14,Cultural Resources Management]

� Conduct water quality and flow datamonitoring at wilderness destinationsand potential areas of impact on acyclic basis. [Chapter 12, Monitoringand Research Program]

� Conduct an inventory of all tributarystreams to quantify flow data andriparian vegetation. Adopt methodsfor determining suitability of theColorado River and its tributaries forinclusion in the National Wild andScenic Rivers System. [Chapter 11,Ecosystem Management; Chapter12, Monitoring and Research Pro-gram]

Management ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveThreeThreeThreeThreeThree

Provide access consistent with wilder-ness values including protection ofnatural and cultural resources. Pre-serve the character of individual trailsand establish minimal standards forprimitive road maintenance.


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� Restore historic trails in Hermit,Grandview, and Thunder River/DeerCreek Complexes. [Chapter 7, TrailsManagement; Chapter 8, Semi-Primi-tive Access and Facilities; Chapter 12,Monitoring and Research; Chapter 14,Cultural Resources Management]

� Conduct cyclic maintenance andrehabilitation of Colorado River trailsto backcountry attraction sites. [Chap-ter 7, Trails Management; Chapter 12,Monitoring and Research; Chapter 13,Rehabilitation and Restoration ofRecreational Impacts]

� Develop and implement action plansfor rehabilitation of rim access trailsincluding: Tanner, New Hance, SouthBass, South Canyon, and Nankoweap.Concentrate rehabilitation on upperreaches of trail (within Kaibab toRedwall formations). [Chapter 7, TrailsManagement; Chapter 13, Rehabilita-tion and Restoration of RecreationalImpacts]

� Upgrade condition of Old Bright Angelfrom a route to primitive trail stan-dards. [Chapter 7, Trails Manage-ment]

� Develop and implement action plan toestablish a trail on the old road align-ment from Desert View to Cape Soli-tude. [Chapter 7, Trails Management;Chapter 8, Semi-Primitive Access andFacilities; Chapter 13, Rehabilitationand Restoration of Recreational Im-pacts]

� Develop and implement an actionplan that establishes the �KanabPlateau Trail,� a ten-mile section ofexisting road network. This willconnect Kanab Point with the 150Mile Canyon Road, and involvesrestoration of roads to natural condi-tions. [Chapter 8, Semi-PrimitiveAccess and Facilities; Chapter 13,Restoration and Rehabilitation ofRecreational Impacts]

� Develop and implement an actionplan that establishes the �BradyHollow Trail,� a nine-mile section ofseverely damaged road known asthe Toroweap Point Overlook Road.This will involve restoration of roadsections to natural conditions. [Chap-ter 8, Semi-Primitive Access andFacilities; Chapter 13, Restorationand Rehabilitation of RecreationalImpacts]

� Develop and implement an actionplan that establishes the �Cove Trail,�a ten-mile section of road to theCove. [Chapter 8, Semi-PrimitiveAccess and Facilities; Chapter 13,Restoration and Rehabilitation ofRecreational Impacts]

� Restore to a natural condition: a) twoprimitive roads north of New WaterSprings on the Hook, b) the HuitzalSpur Road, and c) the ToroweapValley landfill and access road.[Chapter 8, Semi-Primitive Accessand Facilities; Chapter 13, Restora-tion and Rehabilitation of Recre-ational Impacts]


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� Develop and implement an actionplan to relocate 1.4 miles of trailacross the Basin. Restore the Basinsection of the old W-1 to a naturalcondition. [Chapter 7, Trails Manage-ment; Chapter 7, Semi-PrimitiveAccess and Facilities; Chapter 13,Rehabilitation and Restoration ofRecreational Impacts]

Management ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveFourFourFourFourFour

Establish a coordinated interpretive/educational program to provide hikersadequate information to plan andexecute an enjoyable and safe expedi-tion, whether hiking for a day or for anextended period, and to conduct them-selves in a manner which is not dam-aging to wilderness resources andvalues.


� Establish a public Interpretive Pro-gram which provides relevant, pre-tripinformation and focuses on wildernessvalues, personal safety, and resourceprotection. [Chapter 5, BackcountryPermit System; Chapter 9, Safety andEmergency Operations; Chapter 10,Interpretation, Education, and Informa-tion]

� Establish a coordinated, interagencywilderness educational program forstaff which includes 1) wildernessmanagement principles and philoso-phy; 2) Leave No Trace training; 3)application of the minimum require-ment concept; 4) development profi-ciency in the use of primitive tools; 5)

development of minimum impact trailmaintenance techniques and firesuppression tactics; 6) developmentof wilderness safety practices and 7)development of appropriate medicalresponse skills. [Chapter 9, Safetyand Emergency Operations; Chapter10, Interpretation, Education, andInformation; Appendix D, MinimumRequirement Decision Process]

Management ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveFiveFiveFiveFiveFive

Provide, through partnerships withadjacent land-managing agencies,information on wilderness and nonwil-derness recreational opportunities onadjacent lands, including NationalForest Service, Bureau of Land Man-agement, State, and Tribal lands.


� Provide information on recreationalopportunities outside the Park.[Chapter 4, Recreational Use ofWilderness; Chapter 5, BackcountryPermit System; Chapter 15, Havasu-pai Traditional Use Lands; AppendixE, Recreational Opportunities andPermit Information for AdjacentLands]

� In cooperation with the Navajo, Hava-supai and Hualapai Tribes, establisha cooperative permitting system foruse on Tribal and Park lands. [Chap-ter 5, Backcountry Permit System;Chapter 15, Havasupai TraditionalUse Lands; Appendix E, RecreationalOpportunities and Permit Informationfor Adjacent Lands]


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Management Objective SixManagement Objective SixManagement Objective SixManagement Objective SixManagement Objective Six

Provide a reasonable level of publicsafety, consistent with wilderness areasin accordance with NPS ManagementPolicies and Park guidelines.


� Establish a coordinated public Inter-pretive Program which provides rel-evant, pre-trip information and focuseson wilderness values, personal safety,and resource protection. [Chapter 9,Safety and Emergency Operations;Chapter 10, Interpretation, Education,and Information]

� Distribute educational video to theVisitor Center, permit holders, andinterested groups. [Chapter 5, Back-country Permit System; Chapter 10,Interpretation, Education, and Informa-tion.]

Management ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveSevenSevenSevenSevenSeven

Encourage research which adds to anunderstanding of the Park and contrib-utes to the body of knowledge requiredfor effective management and protec-tion of wilderness resources and val-ues.


� Expand the Park�s research programto obtain accurate information aboutthe Grand Canyon�s resources, eco-logical processes and human influ-ences. [Chapter 11, Ecosystem Man-agement]

� Evaluate the tools and methods ofscientific study for impacts on thecharacter of the wilderness. Takereasonable efforts to minimizeimpacts while maximizing the benefitof scientific investigations by apply-ing the minimum requirement deci-sion process. [Chapter 12, Monitor-ing and Research; Appendix D,Minimum Requirement DecisionProcess]

Management ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveManagement ObjectiveEightEightEightEightEight

Develop, through partnerships withadjacent land-management agen-cies, conservation organizations, andinstitutes of higher learning, an inter-agency ecosystem-managementstrategy. The strategy will emphasizerestoration and maintenance ofnatural processes, and viable popula-tions of all native species in naturalpatterns of abundance and distribu-tion.


� In the revision of the Fire Manage-ment Plan address 1) the restorationof the natural fire regime in wilder-ness areas, 2) the protection andpreservation of genetic integrity, and3) strategies for restoration, en-hancement and protection of threat-ened or endangered species. [Chap-ter 11, Ecosystem Management]


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� Develop partnership programs to 1)maintain long-term viable carnivorepopulations, 2) address the control ofnonnative plant and animal species, 3)facilitate the design and implementa-tion of studies for the reintroduction ofextirpated species, and 4) facilitatethe design and implementation of awildlife conservation strategy. [Chapter11, Ecosystem Management]

� Adopt methods for determiningsuitability of the Colorado River andits tributaries for inclusion in theNational Wild and Scenic RiversSystem. [Chapter 11, EcosystemManagement; Chapter 12, Monitoringand Research Program]

1. Upgrade automated permits system,improve communications, increasestaffing and hours of operation.

2. Use area changes: boundaries, uselimits, and classification.

3. Produce and distribute educationalvideo.

4. Distribute quarterly wilderness usereports to Park work units.

5. Establish cooperative permit systemwith Navajo, Havasupai, and HualapaiTribes.

6. Conduct baseline campsite inventory innew use areas; complete inventory ofPrimitive and Wild use areas.

7. Conduct sociological monitoringprogram.

8. Conduct archeological survey andmonitoring along popular trails andcampsites.

FigureFigureFigureFigureFigure16.116.116.116.116.1ImplementationSchedule

ActionActionActionActionAction Target Responsible Work Target Responsible Work Target Responsible Work Target Responsible Work Target Responsible Work Date Date Date Date Date Units and Partners Units and Partners Units and Partners Units and Partners Units and Partners

FY98

FY98

FY98

Ongoing

FY99

FY00

FY00

FY99

�Backcountry Office

�Backcountry Office�Wilderness District

�Backcountry Office�Interpretation



�Wilderness District�Science Center

�Science Center

�Science Center�Wilderness District


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9. Develop and implement actions plansfor rehabilitation of designated camp-sites and trails:

a. Horseshoe Mesa b. Hermit Creek c. Monument Creek d. Upper Tapeats

10. Establish designated campsites andrehabilitate impacted areas for:

a. Deer Creek b. Cape Final c. Point Sublime d. Fire Point and Swamp Point e. Pasture Wash

11. Develop and implement site datarecovery plans for:

a. Horseshoe Mesa b. Hermit Creek c. Monument Creek d. Cottonwood Creek e. Tanner f. Cremation g. Clear Creek

12. Evaluate significance and determineeligibility for the National Register ofHistoric Places for:

a. Santa Maria Springs Shelter b. Signal Hill Firetower c. Kanabownits Cabin d. Kanabownits Firetower

13. Conduct cyclic water quality and flowdata monitoring at potential areas ofimpact including Hermit Creek, DeerCreek, Tapeats Creek, Horn Creek, andMonument Creek

14. Conduct inventory of all tributarystreams to quantify flow data andriparian vegetation.


FY99FY99FY99FY99

FY98FY98FY98FY98FY98

FY99FY99FY99FY00FY00FY01FY01

FY00FY00FY00FY00

Annual

FY00

�Trail Crew�Wilderness District�Science Center

�Trail Crew�Wilderness District�Science Center

�Science Center�Wilderness District

�Science Center

�Science Center

�Science Center�River District

FigureFigureFigureFigureFigure16.116.116.116.116.1ImplementationSchedule(Continued)


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15. Develop and implement action plans forhistoric trail restoration:

a. Hermit Complex b. Grandview Complex c. Thunder River/Deer Creek Complex

16. Conduct cyclic maintenance and rehabili-tation of Colorado River trails to attractionsites.

17. Develop and implement action plans forrehabilitation of rim access trails:

a. Tanner b. New Hance c. South Bass d. South Canyon e. Nankoweap

18. Upgrade condition of Old Bright AngelTrail from a route to primitive trail stan-dards.

19. Develop and implement action plan toestablish trails on the old road align-ments:

a. Desert View to Cape Solitude b. Kanab Point to 150 Mile Canyon Road c. 9 miles of Toroweap Point Overlook Road d. 10 miles of road to The Cove

20. Restore to natural conditions: a. Two roads north of New Water Springs on the Hook b. Huitzal Spur road c. Vulcan Spur road d. Toroweap landfill and access road

21. Develop and implement action plan torelocate trail across the Basin. Restoreold W-1 road to natural condition.

FY99FY99FY99

Annual

FY00FY00FY00FY01FY01

FY00

FY99FY00

FY00

FY00

FY00

FY01FY01FY01

FY00

�Science Center�Trail Crew�Wilderness District

�Trail Crew�Wilderness District�River District�Science Center

�Trail Crew�Science Center�Wilderness District�U.S. Forest Service

�Trail Crew�Corridor District�Science Center

�Science Center�Trail Crew�North Rim District

�Science Center�Wilderness District�Lake Mead NRA�Bureau of Land Management

�Science Center�North Rim District�Road and Trail Crews

ActionActionActionActionAction Target Responsible Work Target Responsible Work Target Responsible Work Target Responsible Work Target Responsible Work DateDateDateDateDate Units and Partners Units and Partners Units and Partners Units and Partners Units and Partners



16-161


22. Establish public Interpretive Program onwilderness values, personal safety andresource protection.

23. Establish interagency wildernesseducation program for staff.

24. Expand research program.

25. Develop partnership programs whichaddress

a. viable carnivore populations b. control of nonnative species c. studies for reintroduction of extirpated species d. wildlife conservation strategy

26. Conduct suitability study for ColoradoRiver and tributaries for inclusion in theNational Wild and Scenic Rivers Sys-tem.

FY99

FY99

FY02

FY04OngoingFY98

FY04

FY03

�Interpretation�Wilderness District�Backcountry Office�Grand Canyon Association Field Institute�National Outdoor Leadership School (NOLS)

�Interpretation�Arthur Carhart National Wilderness Training Center�National Outdoor Leadership School (NOLS)

�Science Center�Grand Canyon Monitoring and Research Center

�Science Center

�Science Center�River District�Grand Canyon Association Field Institute



AppendixA

WildernessWildernessWildernessWildernessWildernessAct ofAct ofAct ofAct ofAct of19641964196419641964

Public Law 88-577(16 U.S. C. 1131-1136)88th Congress, Second SessionSeptember 3, 1964

AN ACTAN ACTAN ACTAN ACTAN ACT

o establish a National Wilderness Preservation System for the perma-nent good of the whole people, and forother purposes. Be it enacted by theSenate and House of Representativesof the United States of America inCongress assembled.

Short TitleShort TitleShort TitleShort TitleShort Title

SECTION 1. This Act may be cited asthe �Wilderness Act.�

WILDERNESS SYSTEMESTABLISHED�STATEMENT OF POLICY

SECTION 2.(a) In order to assure thatan increasing population, accompaniedby expanding settlement and growingmechanization, does not occupy andmodify all areas within the United Statesand its possessions, leaving no landsdesignated for preservation and protec-tion in their natural condition, it is herebydeclared to be the policy of the Con-gress to secure for the American peopleof present and future generations thebenefits of an enduring resource ofwilderness. For this purpose there ishereby established a National Wilder-ness Preservation System to be com-posed of federally owned areas desig-nated by the Congress as �wildernessareas,� and these shall be administeredfor the use and enjoyment of the Ameri-

TTTTT

can people in such manner as will leavethem unimpaired for future use andenjoyment as wilderness, and so as toprovide for the protection of theseareas, the preservation of their wilder-ness character, and for the gatheringand dissemination of informationregarding their use and enjoyment aswilderness; and no Federal lands shallbe designated as �wilderness areas�except as provided for in this Act or bya subsequent Act.

(b) The inclusion of an area in theNational Wilderness PreservationSystem notwithstanding, the area shallcontinue to be managed by the Depart-ment and agency having jurisdictionthereover immediately before its inclu-sion in the National Wilderness Preser-vation System unless otherwise pro-vided by Act of Congress. No appro-priation shall be available for paymentof expenses or salaries for the adminis-tration of the National WildernessPreservation System as a separate unitnor shall any appropriations be avail-able for additional personnel stated asbeing required solely for the purpose ofmanaging or administering areas solelybecause they are included within theNational Wilderness PreservationSystem.

DEFINITION OF WILDERNESS

(c) A wilderness, in contrast with thoseareas where man and his works domi-nate the landscape, is hereby recog-nized as an area where the earth andits community of life are untrammeledby man, where man himself is a visitorwho does not remain. An area of

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wilderness is further defined to mean inthis Act an area of undeveloped Federalland retaining its primeval character andinfluence, without permanent improve-ments or human habitation, which isprotected and managed so as to pre-serve its natural conditions and which (1)generally appears to have been affectedprimarily by the forces of nature, with theimprint of man�s work substantiallyunnoticeable; (2) has outstanding oppor-tunities for solitude or a primitive andunconfined type of recreation; (3) has atleast five thousand acres of land or is ofsufficient size as to make practicable itspreservation and use in an unimpairedcondition; and (4) may also containecological, geological, or other featuresof scientific, educational, scenic, orhistorical value.

NATIONAL WILDERNESSPRESERVATION SYSTEM�EXTENT OF SYSTEM

SECTION 3.(a) All areas within thenational forests classified at least 30days before the effective date of this Actby the Secretary of Agriculture or theChief of the Forest Service as �wilder-ness,� �wild,� or �canoe� are herebydesignated as wilderness areas. TheSecretary of Agriculture shall�(1) Within one year after the effectivedate of this Act, file a map and legaldescription of each wilderness area withthe interior and Insular Affairs Commit-tees of the United States Senate and theHouse of Representatives, and suchdescriptions shall have the same forceand effect as if included in this Act:Provided, however, That correction ofclerical and typographical errors in such

legal descriptions and maps may bemade.

(2) Maintain, available to the public,records pertaining to said wildernessareas, including maps and legal de-scriptions, copies of regulations gov-erning them, copies of public noticesof, and reports submitted to Congressregarding pending additions, elimina-tions, or modifications. Maps, legaldescriptions, and regulations pertain-ing to wilderness areas within theirrespective jurisdictions also shall beavailable to the public in the offices ofregional foresters, national forestsupervisors, and forest rangers.

(b) The Secretary of Agriculture shall,within ten years after the enactment ofthis Act, review, as to its suitability ornonsuitability for preservation aswilderness, each area in the nationalforests classified on the effective dateof this Act by the Secretary of Agricul-ture or the Chief of the Forest Serviceas �primitive� and report his findings tothe President. The President shalladvise the United States Senate andHouse of Representatives of hisrecommendations with respect to thedesignation as �wilderness� or otherreclassification of each area on whichreview has been completed, togetherwith maps and a definition of bound-aries. Such advice shall be given withrespect to not less than one-third of allthe areas now classified as �primitive�within three years after the enactmentof this Act, and the remaining areaswithin ten years after the enactment ofthis Act. Each recommendation of thePresident for designation as �wilder-

A-2


ness� shall become effective only if soprovided by an Act of Congress. Areasclassified as �primitive� on the effectivedate of this Act shall continue to beadministered under the rules and regu-lations affecting such areas on theeffective date of this Act until Congresshas determined otherwise. Any sucharea may be increased in size by thePresident at the time he submits hisrecommendations to the Congress bynot more than five thousand acres withno more than one thousand two hundredacres in any one compact unit; if it isproposed to increase the size of anysuch area by more than five thousandacres or by more than one thousand twohundred and eighty acres in any onecompact unit the increase in size shallnot become effective until acted upon byCongress. Nothing herein containedshall limit the President in proposing, aspart of his recommendations to Con-gress, the alteration of existing bound-aries of primitive areas or recommend-ing the addition of any contiguous areaof national forest lands predominantly ofwilderness value. Notwithstanding anyother provisions of this Act, the Secre-tary of Agriculture may complete hisreview and delete such areas as maybe necessary, but not to exceed seventhousand acres, from the southern tip ofthe Gore Range-Eagles Nest PrimitiveArea, Colorado, if the Secretary deter-mines that such action is in the publicinterest.

(c) Within ten years after the effectivedate of this Act the Secretary of theInterior shall review every roadless areaof five thousand contiguous acres ormore in the national parks, monuments,

and other units of the national parksystem and every such area of, andevery roadless island within, the na-tional wildlife refuges and gameranges, under his jurisdiction on theeffective date of this Act and shallreport to the President his recommen-dation as to the suitability or nonsuit-ability of each such area or island forpreservation as wilderness. The Presi-dent shall advise the President of theSenate and the Speaker of the Houseof Representatives of his recommenda-tion with respect o the designation aswilderness of each such area or islandon which review has been completed,together with a map thereof and adefinition of its boundaries. Suchadvice shall be given with respect tonot less than one-third of the areas andislands to be reviewed under thissubsection within three years afterenactment of this Act, not less than two-thirds within seven years of enactmentof this Act, and the remainder within tenyears of enactment of this Act. A rec-ommendation of the President fordesignation as wilderness shall be-come effective only if so provided by anAct of Congress. Nothing containedherein shall, by implication or other-wise, be construed to lessen thepresent statutory authority of the Secre-tary of the Interior with respect to themaintenance of roadless areas withinunits of the national park system.

(d)(1) The Secretary of Agriculture andthe Secretary of the Interior shall, priorto submitting any recommendations tothe President with respect to the suit-ability of any area for preservation aswilderness�

A-3


(A) give such public notice of the pro-posed action as they deem appropriate,including publication in the FederalRegister and in a newspaper havinggeneral circulation in the area or areasin the vicinity of the affected land;

(B) hold a public hearing or hearings ata location or locations convenient to thearea affected. The hearings shall beannounced through such means as therespective Secretaries involved deemappropriate, including notices in theFederal Register and in newspapers ofgeneral circulation in the area: Provided.That if the lands involved are located inmore than one State, at least one hear-ing shall be held in each State in which aportion of the land lies;

(C) at least thirty days before the date ofa hearing advise the Governor of eachState and the governing board of eachcounty, or in Alaska the borough, inwhich the lands are located, and Federaldepartments and agencies concerned,and invite such officials and Federalagencies to submit their views on theproposed action at the hearing or by notlater than thirty days following the date ofthe hearing.

(2) Any views submitted to the appropri-ate Secretary under the provisions of (1)of this subsection with respect to anyarea shall be included with any recom-mendations to the President and toCongress with respect to such area.

(e) Any modification or adjustment ofboundaries of any wilderness area shallbe recommended by the appropriateSecretary after public notice of such

proposal and public hearing or hear-ings as provided in subsection (d) ofthis section. The proposed modifica-tion or adjustment shall then be recom-mended with map and descriptionthereof to the President. The Presi-dent shall advise the United StatesSenate and the House of Representa-tives of his recommendations withrespect to such modification or adjust-ment and such recommendations shallbecome effective only in the samemanner as provided for in subsections(b) and (c) of this section.

USE OF WILDERNESS AREAS

SECTION 4. (a) The purposes of thisAct are hereby declared to be withinand supplemental to the purposes forwhich national forests and units of thenational park and wildlife refuge sys-tems are established and adminis-tered and�

(1) Nothing in this Act shall be deemedto be in interference with the purposefor which national forests are estab-lished as set forth in the Act of June 4,1897 (30 Stat. 11), and the Multiple-Use Sustained-Yield Act of June 12,1960 (74 Stat. 215).(2) Nothing in this Act shall modify therestrictions and provisions of theShipstead-Nolan Act (Public Law 539,Seventy-first Congress, July 10, 1930;46 Stat. 1020), the Thye-Blatnik Act(Public Law 733, Eightieth Congress,June 2, 1948; 62 Stat. 568), and theHumphrey-Thye-Blatnik-Andresen Act(Public Law 607, Eighty-fourth Con-gress, June 22, 1956; 70 Stat. 326),as applying to the Superior National

A-4


Forest or the regulations of the Secre-tary of Agriculture.(3) Nothing in this Act shall modify thestatutory authority under which units ofthe national park system are created.Further, the designation of any area ofany park, monument, or other unit of thenational park system as a wildernessarea pursuant to this Act shall in nomanner lower the standards evolved forthe use and preservation of such park,monument, or other unit of the nationalpark system in accordance with the Actof August 25, 1916, the statutory author-ity under which the area was created, orany other Act of Congress which mightpertain to or affect such area, including,but not limited to, the Act of June 8,1906 (34 Stat. 225; 16 U.S.C. 432 etseq.); section 3(2) of the Federal PowerAct (16 U.S.C. 796 (2); and the Act ofAugust 21, 1935 (49 Stat. 666; 16U.S.C. 461 et seq.).(b) Except as otherwise provided in thisAct, each agency administering anyarea designated as wilderness shall beresponsible for preserving the wilder-ness character of the area and shall soadminister such area for such otherpurposes for which it may have beenestablished as also to preserve itswilderness character. Except as other-wise provided in this Act, wildernessareas shall be devoted to the publicpurposes of recreational, scenic, scien-tific, educational, conservation, andhistorical use.

PROHIBITION OF CERTAIN USES

(c) Except as specifically provided for inthis Act, and subject to existing privaterights, there shall be no commercial

enterprise and no permanent roadwithin any wilderness area designatedby this Act and except as necessary tomeet minimum requirements for theadministration of the area for the pur-pose of this Act (including measuresrequired in emergencies involving thehealth and safety of persons within thearea), there shall be no temporary road,no use of motor vehicles, motorizedequipment or motorboats, no landing ofaircraft, no other form of mechanicaltransport, and no structure or installa-tion within any such area.

SPECIAL PROVISIONS

(d) The following special provisions arehereby made:

(1) Within wilderness areas designatedby this Act the use of aircraft or motor-boats, where these uses have alreadybecome established, may be permittedto continue subject to such restrictionsas the Secretary of Agriculture deemsdesirable. In addition, such measuremay be taken as may be necessary inthe control of fire, insects, and dis-eases, subject to such conditions asthe Secretary deems desirable.(2) Nothing in this Act shall preventwithin national forest wilderness areasany activity, including prospecting, forthe purpose of gathering informationabout mineral or other resources, ifsuch activity is carried on in a mannercompatible with the preservation of thewilderness environment. Furthermore,in accordance with such program asthe Secretary of the Interior shall de-velop and conduct in consultation withthe Secretary of Agriculture, such areas

A-5


shall be surveyed on a planned, recur-ring basis consistent with the concept ofwilderness preservation by the Geologi-cal Survey and the Bureau of Mines todetermine the mineral values, if any, thatmay be present; and the results of suchsurveys shall be made available to thepublic and submitted to the Presidentand Congress. Mineral leases, claims,etc.(3) Notwithstanding any other provisionsof this Act, until midnight December 31,1983, the United States mining laws andall laws pertaining to mineral leasingshall, to the same extent as applicableprior to the effective date of this Act,extend to those national forest landsdesignated by this Act as �wildernessareas�; subject, however, to such rea-sonable regulations governing ingressand egress as may be prescribed by theSecretary of Agriculture consistent withthe use of the land for mineral locationand development and exploration,drilling, and production, and use of landfor transmission lines, waterlines, tele-phone lines, or facilities necessary inexploring, drilling, production, mining,and processing operations, includingwhere essential the use of mechanizedground or air equipment and restorationas near as practicable of the surface ofthe land disturbed in performing pros-pecting, location, and, in oil and gasleasing, discovery work, exploration,drilling, and production, as soon as theyhave served their purpose. Mininglocations lying within the boundaries ofsaid wilderness areas shall be held andused solely for mining or processingoperations and uses reasonably incidentthereto; and hereafter, subject to validexisting rights, all patents issued under

the mining laws of the United Statesaffecting national forest lands desig-nated by this Act as wilderness areasshall convey title to the mineral depos-its within the claim, together with theright to cut and use so much of themature timber therefrom as may beneeded in the extraction, removal, andbeneficiation of the mineral deposits, ifthe timber is not otherwise reasonablyavailable, and if the timber is cut undersound principles of forest manage-ment as defined by the national forestrules and regulations, but each suchpatent shall reserve to the UnitedStates all title in or to the surface of thelands and products thereof, and no useof the surface of the claim or the re-sources therefrom not reasonablyrequired for carrying on mining orprospecting shall be allowed except asotherwise expressly provided in thisAct: Provided, That, unless hereafterspecifically authorized, no patent withinwilderness areas designated by thisAct shall issue after December 31,1983, except for the valid claimsexisting on or before December 31,1983. Mining claims located after theeffective date of this Act within theboundaries of wilderness areas desig-nated by this Act shall create no rightsin excess of those rights which may bepatented under the provisions of thissubsection. Mineral leases, permits,and licenses covering lands withinnational forest wilderness areas desig-nated by this Act shall contain suchreasonable stipulations as may beprescribed by the Secretary of Agricul-ture for the protection of the wildernesscharacter of the land consistent withthe use of the land for the purposes for

A-6


which they are leased, permitted, orlicensed. Subject to valid rights thenexisting, effective January 1, 1984, theminerals in lands designated by this Actas wilderness areas are withdrawn fromall forms of appropriation under themining laws and from disposition underall laws pertaining to mineral leasingand all amendments thereto.(4) Within wilderness areas in the na-tional forests designated by this Act, (1)the President may, within a specificarea and in accordance with suchregulations as he may deem desirable,authorize prospecting for water re-sources, the establishment and mainte-nance of reservoirs, water-conservationworks, power projects, transmissionlines, and other facilities needed in thepublic interest, including the road con-struction and maintenance essential todevelopment and use thereof, upon hisdetermination that such use or uses inthe specific area will better serve theinterests of the United States and thepeople thereof than will its denial; and(2) the grazing of livestock, whereestablished prior to the effective date ofthis Act, shall be permitted to continuesubject to such reasonable regulationsas are deemed necessary by the Secre-tary of Agriculture.(5) Other provisions of this Act to thecontrary notwithstanding, the manage-ment of the Boundary Waters CanoeArea, formerly designated as the Supe-rior, Little Indian Sioux, and CaribouRoadless Areas, in the Superior Na-tional Forest, Minnesota, shall be inaccordance with regulations establishedby the Secretary of Agriculture in accor-dance with the general purpose ofmaintaining, without unnecessary re-

strictions on other uses, including thatof timber, the primitive character of thearea, particularly in the vicinity of lakes,streams, and portages: Provided, Thatnothing in this Act shall preclude thecontinuance within the area of anyalready established use of motorboats.(6) Commercial services may beperformed within the wilderness areasdesignated by this Act to the extentnecessary for activities which areproper for realizing the recreational orother wilderness purposes of the areas.(7) Nothing in this Act shall constitutean express or implied claim or denialon the part of the Federal Governmentas to exemption from State water laws.(8) Nothing in this Act shall be con-strued as affecting the jurisdiction orresponsibilities of the several Stateswith respect to wildlife and fish in thenational forests.

STATE AND PRIVATE LANDS WITHINWILDERNESS AREAS

SECTION 5.(a) In any case whereState-owned or privately owned land iscompletely surrounded by nationalforest lands within areas designated bythis Act as wilderness, such State orprivate owner shall be given such rightsas may be necessary to assure ad-equate access to such State-owned orprivately owned land by such State orprivate owner and their successors ininterest, or the State-owned land orprivately owned land shall be ex-changed for federally owned land in thesame State of approximately equalvalue under authorities available to theSecretary of Agriculture: Provided,however, That the United States shall

A-7


not transfer to a State or private ownerany mineral interests unless the State orprivate owner relinquishes or causes tobe relinquished to the United States themineral interest in the surrounded land.

(b) In any case where valid miningclaims or other valid occupancies arewholly within a designated nationalforest wilderness area, the Secretary ofAgriculture shall, by reasonable regula-tions consistent with the preservation ofthe area as wilderness, permit ingressand egress to such surrounded areas bymeans which have been or are beingcustomarily enjoyed with respect to othersuch areas similarly situated.(c) Subject to the appropriation of fundsby Congress, the Secretary of Agricul-ture is authorized to acquire privatelyowned land within the perimeter of anyarea designated by this Act as wilder-ness if (1) the owner concurs in suchacquisition or (2) the acquisition isspecifically authorized by Congress.

GIFTS, BEQUESTS, ANDCONTRIBUTIONS

SECTION 6.a) The Secretary of Agricul-ture may accept gifts or bequests of landwithin wilderness areas designated bythis Act for preservation as wilderness.The Secretary of Agriculture may alsoaccept gifts or bequests of land adjacentto wilderness areas designated by thisAct for preservation as wilderness if hehas given sixty days advance noticethereof to the President of the Senateand the Speaker of the House of Repre-sentatives. Land accepted by the Sec-retary of Agriculture under this sectionshall become part of the wilderness area

involved. Regulations with regard toany such land may be in accordancewith such agreements, consistent withthe policy of this Act, as are made atthe time of such gift, or such condi-tions, consistent with such policy, asmay be included in, and accepted with,such bequest.

(b) The Secretary of Agriculture or theSecretary of the Interior is authorizedto accept private contributions andgifts to be used to further the purposesof this Act.

ANNUAL REPORTS

SECTION 7. At the opening of eachsession of Congress, the Secretariesof Agriculture and Interior shall jointlyreport to the President for transmis-sion to Congress on the status of thewilderness system including a list anddescriptions of the areas in the sys-tem, regulations in effect, and otherpertinent information, together with anyrecommendations they may care tomake.

Approved September 3, 1964.

Legislative History

House Reports: No. 1538 accompanying H.R.9070 (Committee on Interior & Insular Affairs)and No. 1829 (Committee of Conference).Senate Report: No. 109 (Committee on Interior& Insular Affairs). Congressional Record:Vol. 109 (1963): April 4, 8, considered in Senate.April 9, considered and passed Senate.Vol. 110 (1964): July 28, considered in House. July 30, considered and passed House,amended, in lieu of H.R. 9070.August 20, House and Senate agreed toconference report.

A-8


AppendixB

NPSNPSNPSNPSNPSManagementManagementManagementManagementManagementPoliciesPoliciesPoliciesPoliciesPolicies19881988198819881988

Chapter 6Chapter 6Chapter 6Chapter 6Chapter 6WildernessWildernessWildernessWildernessWildernessManagementManagementManagementManagementManagement

andandandandandPreservationPreservationPreservationPreservationPreservation

TTTTT

Management PoliciesU.S. Department of the InteriorNational Park Service1988

[Editor�s Note: Chapter references at the end ofeach section refer to chapters of NPS Manage-ment Policies.]

he National Park Service will manage wilderness areas for theuse and enjoyment as the Americanpeople in such manner as will leavethem unimpaired for future use andenjoyment as wilderness. Managementwill include the protection of theseareas, the preservation of their wilder-ness character, and the gathering anddissemination of information regardingtheir use and enjoyment as wilderness.Public purpose of wilderness will in-clude recreation, scenic preservation,scientific study, education, conserva-tion, and historical use.

The NPS wilderness managementpolicies are based on statutory provi-sions of the 1916 NPS Organic Act (16USC 1 et seq.), and legislation estab-lishing individual units of the nationalpark system.

Although these policies are intended toestablish consistent servicewide direc-tion for the preservation, management,and use of wilderness, certain policiesmay be superseded by statutory provi-sions that apply to individual wildernessareas, by rights reserved by formerlandowners, and in Alaska, by appli-cable provisions of the Alaska NationalInterest Lands Conservation Act(ANILCA, 16 USC 3101 et seq.).

The following characteristics are usedin the Wilderness Act to define anddescribe a wilderness area. Wilder-ness is an area

� where the earth and its community oflife are untrammeled by man, whereman himself is a visitor who does notremain

� of undeveloped federal land retainingits primeval character and influence,without permanent improvements orhuman habitation

� which generally appears to havebeen affected primarily by the forces ofnature, with the imprint of man�s worksubstantially unnoticeable

� which is protected and managed soas to preserve its natural conditions

� which has outstanding opportunitiesfor solitude or a primitive and uncon-fined type of recreation

� which has at least five thousandacres of land or is of sufficient size tomake practicable its preservation anduse in an unimpaired condition

� which may also contain ecological,geological, or other features of scien-tific, educational, scenic, or historicalvalue

B-1


These attributes serve both as stan-dards for studying areas and evaluatingtheir suitability for inclusion in the na-tional wilderness preservation systemand as objectives to guide NPS actionspertaining to the preservation and use ofwilderness areas.

Wilderness ReviewsWilderness ReviewsWilderness ReviewsWilderness ReviewsWilderness Reviews

The National Park Service will continueto review areas that qualify for wilder-ness study, consistent with provision ofthe Wilderness Act and subsequentlegislation directing that wildernessstudies be made.

Wilderness studies will be supported byappropriate documentation of compli-ance with the National EnvironmentalPolicy Act (42 USC 4371 et seq.) andthe National Historic Preservation Act(16 USC 470 et seq.).

(See Park Planning Process andProducts 2:4)

Criteria for RecommendedCriteria for RecommendedCriteria for RecommendedCriteria for RecommendedCriteria for RecommendedWildernessWildernessWildernessWildernessWilderness

Lands and waters found to possess thecharacteristics and values of wilderness,as defined in the Wilderness Act, will bestudied for recommendation to Con-gress for wilderness designation.

Lands that have been logged, farmed,grazed, or otherwise utilized in ways notinvolving extensive development oralteration of the landscape will be con-sidered for wilderness if at the time ofstudy the effects of these activities are

substantially unnoticeable or theirwilderness character could be re-stored through appropriate manage-ment actions.

An area will not be excluded from awilderness recommendation solelybecause established or proposedmanagement practices require the useof tools, equipment, or structures ifthose practices are necessary for thehealth and safety of wilderness travel-ers or protection of the wildernessarea.

Lands will not be excluded from awilderness recommendation solelybecause of prior rights or privileges,such as grazing and stock driveways,provided these operations do notinvolve the routine use of motorized ormechanical equipment and do notinvolve development and structures tosuch an extent that the human imprintis substantially noticeable.

Lands subject to mineral explorationand development should be recom-mended for wilderness only if it is likelythat mineral rights will be relinquished,acquired, exchanged, or otherwiseeliminated in the foreseeable future.

Lands containing aboveground utilitylines will not be recommended forwilderness. Areas containing under-ground utility lines may be included ifthe area otherwise qualifies as wilder-ness and the maintenance of the utilityline does not require the routine use ofmechanized and motorized equip-ment. No new utility lines may be

B-2


installed in wilderness, and existingutility lines may not be extended orenlarged.

Historic features that are primaryattractions for park visitors will not berecommended for wilderness. How-ever, an area that attracts visitorsprimarily for the enjoyment of solitudeand unconfined recreation in a primitivesetting may also contain historic fea-tures and still be included in wilderness.Typical historic features that may beincluded are archeological sites, his-toric trails, travel routes, battle sites,and minor structures. Historic trails mayserve and be maintained as part of thewilderness trail system. However, if theplanned scope and standard of mainte-nance would result in the imprint ofman�s work being substantially notice-able, the trail or other feature should notbe included in wilderness.

(See Management Zoning 2:7, LandProtection Plans 3:1, Mineral Devel-opment 6:10, Mineral Development8:12, Grazing 8:14, Trails and Walks(9:9)

Potential WildernessPotential WildernessPotential WildernessPotential WildernessPotential Wilderness

A wilderness review may identify landsthat are surrounded by or adjacent tolands proposed for wilderness desig-nation but that do not themselvesqualify for immediate designation dueto temporary incompatible conditions.The legislative proposal may recom-mend these lands for future inclusion inwilderness when the incompatiblecondition has been removed. If soauthorized by Congress, these poten-

tial wilderness areas will becomedesigned wilderness upon theSecretary�s determination, published inthe Federal Register, that they havemet the qualifications for designation.

(See General Policy 6:3, MineralDevelopment 6:10)

Wilderness ManagementWilderness ManagementWilderness ManagementWilderness ManagementWilderness Management

General PolicyGeneral PolicyGeneral PolicyGeneral PolicyGeneral Policy

For the purposes of these policies, theterm �wilderness� includes the catego-ries of designated wilderness, potentialwilderness, and recommended/studywilderness, and these policies applyregardless of category. Designatedwilderness is wilderness that has beenestablished by Congress; potentialwilderness is wilderness that has beenauthorized by Congress but not yetestablished due to temporary incom-patible conditions; recommended/studywilderness is in an area that has beenrecommended to Congress, or is beingstudied for recommendation, for estab-lishment as wilderness. Caves with allentrances in wilderness will be man-aged as wilderness.

Wherever a wilderness area is desig-nated within a park, the preservation ofwilderness character and resourcesbecomes an additional statutory pur-pose of the park. Within a designatedwilderness area, the preservation ofwilderness character and resourceswhile providing for appropriate use isthe primary management responsibility(other than activities related to thesaving of human life). Activities to

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achieve all other statutory purposes ofan area designated as wilderness willbe carried out in accordance with appli-cable provisions of the Wilderness Actso as to preserve wilderness resourcesand character. The establishment ofwilderness within a park will in no man-ner lower the standards evolved for theuse and preservation of that area underother statutes.

The National Park Service will manageareas of potential wilderness as wilder-ness, to the extent that existing noncon-forming uses will allow, and will seek toeliminate the temporary conditions thatpreclude wilderness designation.

The Park Service will take no action thatwould diminish the wilderness suitabilityof an area recommended for wildernessstudy or for wilderness designation untilthe legislative process has been com-pleted. Until that process has beencompleted, management decisionspertaining to recommended wildernessand wilderness study areas will be madein expectation of eventual wildernessdesignation.

All categories of wilderness lands will beclassified as natural zones. A wildernesssubzone may be used if such a designa-tion will facilitate or support planningactivities or management actions.

The National Park Service will seek toachieve consistency in wildernessmanagement objectives, techniques,and practices, on both a servicewideand an interagency basis. The Servicewill seek to maintain effective intra-agency and interagency communica-

tions and will encourage, sponsor, andparticipate in intra-agency and inter-agency workshops and seminarsdesigned to promote the sharing ofideas, concerns, and techniquesrelated to wilderness management.

(See Management Zoning 2:7, LandProtection Plans 3:1, Potential Wil-derness 6:3)

ResponsibilityResponsibilityResponsibilityResponsibilityResponsibility

NPS responsibility for carrying outwilderness preservation mandates willbe shared by the Director, regionaldirectors, and superintendents ofparks with designated, potential, orrecommended\study wilderness.Interagency cooperation and coordina-tion and training responsibilities willalso be carried out at the Washington,region, and park levels. Wildernessmanagement coordinators will beassigned at each of these administra-tive levels to carry out these responsi-bilities effectively and to facilitateefforts to seek servicewide and inter-agency consistency in wildernessmanagement techniques.

Wilderness Management PlanWilderness Management PlanWilderness Management PlanWilderness Management PlanWilderness Management Plan

The superintendent of each parkcontaining wilderness will develop andmaintain a wilderness managementplan to guide the preservation, man-agement, and use of that wilderness.This plan may be developed as aseparate document or as an actioncomponent of another appropriatemanagement plan, such as the generalmanagement plan or backcountry

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management plan, and it will be sup-ported by appropriate documentation ofcompliance with the National Environ-mental Policy Act and the NationalHistoric Preservation Act. The plan willbe developed with public involvementand will contain specific, measurablemanagement objectives that addressthe preservation of wilderness-depen-dent cultural and natural resources andvalues in order to achieve the publicpurposes specified by the WildernessAct and other appropriate legislation.

(See Park Planning Process andProducts 2:4)

Management TechniquesManagement TechniquesManagement TechniquesManagement TechniquesManagement Techniques

The Wilderness Act generally prohibitsmotorized equipment or mechanizedtransport in designated wildernessareas; however, it allows them �asnecessary to meet minimum require-ments for the administration of the areafor the purpose of this Act.� In protectingwilderness character and resources andin managing wilderness use in accor-dance with the Wilderness Act, theNational Park Service will adhereclosely to the �minimum tool� concept.Superintendents, in accordance with thewilderness management plan, will selectthe minimum tool or administrativepractice necessary to successfully andsafely accomplish the managementobjective with the least adverse impacton wilderness character and resources.All decisions pertaining to administra-tive practices and use of equipment inwilderness will be based on this con-cept. Potential disruption of wildernesscharacter and resources and applicable

safety concerns will be consideredbefore, and given significantly moreweight than, economic efficiency. Ifsome compromise of wildernessresources or character is unavoidable,only those actions that have localized,short-term adverse impacts will beacceptable.

Administrative use of motorized equip-ment or mechanical transport, includingmotorboats and aircraft, will be autho-rized in accordance with the park�swilderness management plan only (1) ifdetermined by the superintendent to bethe minimum tool needed by manage-ment to achieve the purposes of thearea, or (2) in emergency situationsinvolving human health or safety or theprotection of wilderness values. Suchmanagement activities will be con-ducted in accordance with all appli-cable regulations, policies, and guide-lines and, where practicable, will bescheduled to avoid creating adverseresource impacts or conflicts withvisitor use.

The wilderness management plan willestablish indicators, standards, condi-tions, and thresholds above whichmanagement actions will be taken toreduce impacts. The National ParkService will monitor resources anddocument use. Where resource im-pacts or demands for use exceedestablished thresholds or capacities,superintendents may limit or redirectuse. Physical alterations, public educa-tion, general regulations, special regu-lations, and permit systems, as well aslocal restrictions, public use limits,closures, and designations imple-

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mented under the discretionary authorityof the superintendent (36 CFR 1.5), mayall be used in managing and protectingwilderness.

(See Monitoring of Wilderness Re-source 6:5, Management of Recre-ational Use 8:2, Emergency Prepared-ness and Emergency Operations 8:6,Search and Rescue 8:6, Aircraft Use8:8)

Monitoring of WildernessMonitoring of WildernessMonitoring of WildernessMonitoring of WildernessMonitoring of WildernessResourcesResourcesResourcesResourcesResources

In every park containing wilderness, theconditions and long-term of wildernessresources will be monitored to identifyneeds for, and results of managementactions. Given that wilderness is de-scribed in the Wilderness Act as anarea untrammeled by man, where out-standing opportunities for solitude andunconfined recreation exist, every wil-derness monitoring program will not onlyassess physical and biological re-sources, but also identify what impactspeople have on resources and valuesand what impacts they have on otherpeople using the wilderness. Thesemonitoring programs will also be de-signed to identify whether or not wilder-ness resources are being impacted byhuman activities conducted outside thewilderness, and if so, to determine thenature, magnitudes, and probablesources of those impacts.

(See Science and Research 4:2, Inven-tory and Monitoring 4:4, Research 6:6)

Management FacilitiesManagement FacilitiesManagement FacilitiesManagement FacilitiesManagement Facilities

Part of the definition of wilderness asprovided by the Wilderness Act isundeveloped federal land retaining itsprimeval character and influence,without permanent improvements.Accordingly, authorizations of NPSadministrative facilities located inwilderness will be limited to the typesand minimum number essential tomeet the minimum requirements forthe administration of the wildernessarea. A decision to construct, main-tain, or remove an administrativefacility will be based primarily onwhether such a facility is required topreserve wilderness character orvalues or essential to ensure publicsafety, not on considerations of admin-istrative convenience, economy ofeffect, or convenience to the public.Maintenance or removal of historicstructures will additionally comply withcultural resource protection policies.

Ranger stations, patrol cabins, associ-ated storage or support structures, driftfences,a nd facilities supporting trailstock operations may be placed inwilderness only if they are necessaryto carry out wilderness managementobjectives and provisions of the park�swilderness management plan. Facili-ties such as fire lookouts, radio anten-nas, and radio repeater sites may beplaced in wilderness only if they consti-tutes the minimum facility required tocarry out essential administrativefunctions and are specifically autho-rized by the regional director.

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Permanent roads will not be built orretained in wilderness. Temporaryvehicular access may be permitted onlyto meet the minimum requirements ofemergency situations. Where aban-doned roads have been included withinwilderness, they will be used as trails orrestored to natural conditions.

Unpaved trails and trail bridges may beprovided where they are essential forresource protection or where significantsafety hazards exist during the normalperiod of use.

No permanent heliports, helipads, orairstrips will be allowed in wilderness.Temporary landing facilities may beused to meet the minimum requirementsof emergency situations. Site improve-ments determined to be essential forsafety reasons during individual emer-gency situations may be authorized, butthe site for authorized nonemergencyaircraft landings, but no site markings orimprovements of any kind may beinstalled to support nonemergency use.

The construction or reconstruction ofshelters for public use generally will notbe allowed, since wilderness usersshould be self-supporting in terms ofshelter. An existing shelter may bemaintained only if the facility is neces-sary to achieve wilderness managementobjectives or cultural resource protec-tion objectives. The construction, use,and occupancy of cabins and otherstructures in wilderness areas in Alaskaare governed by applicable provision ofANILCA and by NPS regulations in 36CFR 13, and they may be permitted

under conditions prescribed in thepark�s wilderness management plan.

Although the development of facilitiesto serve users will generally beavoided, campsites may be desig-nated when essential for resourceprotection or enhancement of opportu-nities for solitude. In keeping with theterms of the park�s wilderness manage-ment plan, campsite facilities mayinclude a site marker, a fire ring, a tentsite, a food-storage device, and atoilet, but only if determined by thesuperintendent to be the minimumfacilities necessary for the health andsafety of wilderness users or for theprotection of wilderness resources andvalues. Toilets will be placed only inlocations where their presence and usewill resolve health and sanitation prob-lems or prevent serious damage andwhere reducing or dispersing visitoruse has failed to alleviate the problemsor is impractical. Picnic tables will notbe placed in wilderness.

(See Water Quality and Quantity 4:15,Planning and Proposal Formulation5:4, Treatment of Cultural Resources5:5, Backcountry Use 8:3, EmergencyPreparedness and Emergency Opera-tions 8:6, Aircraft Use 8:8, Access andCirculation Systems 9:7, Camp-grounds 9:13, Comfort Stations 9:14)

SignsSignsSignsSignsSigns

Signs detract from the wildernesscharacter of an area and make theimprint of man and management morenoticeable. Only those signs necessaryto protect wilderness resources or for

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public safety, such as signs identifyingtrails and distances, will be permitted.Where signs are used, they should becompatible with their surroundings andbe the minimum size possible.

(See Signs 9:11)

ResearchResearchResearchResearchResearch

The statutory purposes of wildernessinclude scientific and educational use,and the National Park Service will fullysupport the value of wilderness areas asnatural outdoor laboratories. A researchproject may be conducted in wildernessif it meets all of the following require-ments

� The research activities are otherwiseallowable under federal laws and regula-tions.

� There is no alternative to conductingthe research in a wilderness area.

� The project will not adversely affectphysical or biological resources, eco-system processes, or aesthetic valuesover an area or duration greater thannecessary to meet research objectives.

� The project will not interfere withrecreational, scenic, or conservationpurposes of the wilderness over a broadarea or long duration.

Hydrologic, hydrometeorologic, seismo-graphic, and other research and moni-toring devices may be installed andoperated in wilderness only upon afinding that (1) the desired information isessential and cannot be obtained from a

location outside of wilderness, and (2)the proposed device is the minimumtool necessary to accomplish theobjective safely and successfully.Devices located in wilderness will beremoved when determined to be nolonger essential. All research activitiesand the installation, servicing, andmonitoring of research devices will beaccomplished in compliance with NPSwilderness management policies andprocedures contained in the park�swilderness management plan. Non-NPS research activities that mightdisturb resources or visitors or requirethe waiver of any regulation may beallowed only pursuant to the terms andconditions of a permit.

(See Science and Research 4:2,Inventory and Monitoring 4:4,Weather and Climate 4:19, Research5:2, Ethnographic Research andInventories 5:12, Research andCollection Activities 8:15)

Fire ManagementFire ManagementFire ManagementFire ManagementFire Management

[Note: Fire management policies are underreview by the Interagency Fire ManagementPolicy Review Team and will be modified as

necessary pursuant to their recommendations.]

Fire management activities conductedin wilderness areas will conform to thebasic purposes of wilderness. Thepark�s fire management and wilder-ness management plans together willidentify the natural and historic roles offire in the wilderness and will provide aprescription for response, if any, tonatural and human-caused wildfires. Ifa prescribed fire program is imple-mented, these plans will also include

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the prescriptions and procedures underwhich the program will be conducted.

Actions taken to suppress wildfires willuse the minimum tool concept and willbe conducted in such a way as to pro-tect natural and cultural features and tominimize the lasting impacts of thesuppression actions and the fires them-selves. Information on developing a firemanagement program is contained inthe Fire Management Guideline (NPS-18).

(See Fire Management 4:14, FireDetection and Suppression 5:13)

Cultural ResourcesCultural ResourcesCultural ResourcesCultural ResourcesCultural Resources

Cultural features such as archeologicalsites, historic trails or routes, or struc-tures that have been included withinwilderness will be protected and main-tained using methods that are consis-tent with the preservation of wildernesscharacter and values and cultural re-source protection requirements. Burialplots or commemorative features, suchas plaques or memorials, that havebeen included in wilderness may beretained, but no new additions may bemade unless authorized by federalstatute, existing reservations, or re-tained rights. Native American religiousareas and other ethnographic resourceswill be inventoried and protected. NativeAmericans will be permittednonmotorized access within wildernessfor sacred or religious purposes inaccordance with criteria for special parkuses.

(See Planning and Proposal Formula-tion 5:4, Treatment of Cultural Re-sources 5:5, Ethnographic Resources5:11, Native American Use 8:8, Spe-cial Park Uses 8:10, Cemeteries andBurials 8:16, Commemorative Worksand Plaques 9:17)

Use Of WildernessUse Of WildernessUse Of WildernessUse Of WildernessUse Of Wilderness

The National Park Service will encour-age and facilitate those uses of wilder-ness that require the wilderness envi-ronment and do not degrade wilder-ness resources and character. NPSwilderness management actions will bedirected toward providing opportunitiesfor primitive and unconfined types ofrecreation by park visitors. Appropriaterestrictions may be imposed on anyauthorized activity in the interest ofpreserving wilderness character andresources or to ensure public safety.Visitors will be encouraged and insome situations may be requiredthrough the regulatory process tocomply with the concept of no-trace orminimum-impact wilderness use forboth themselves and their livestock.

(See Management of RecreationalUse 8:2)

General Public UseGeneral Public UseGeneral Public UseGeneral Public UseGeneral Public Use

Park visitors must accept wildernesslargely on its own terms, without mo-dem facilities provided for their comfortor convenience. Users must also ac-cept certain risks, including possibledangers arising from wildlife, weatherconditions, physical features, and othernatural phenomena, that are inherent in

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the various elements and conditions thatcomprise a wilderness experience andprimitive methods of travel. The NationalPark Service will not eliminate or unrea-sonably control risks that are normallyassociated with wilderness, but it willstrive to provide users with generalinformation concerning possible risks,recommended precautions, minimum-impact use ethics, and applicable re-strictions and regulations.

Wilderness users will be required tocarry out all refuse as defined in 36 CFR1.4.

As a general rule, public use of motor-ized equipment or any form of mechani-cal transport will be prohibited in wilder-ness. Operating a motor vehicle orpossessing a bicycle in designatedwilderness outside Alaska is prohibitedby NPS regulations in 36 CFR 4. How-ever, the Wilderness Act authorizescontinuation of motorboat and aircraftuse under certain circumstances wherethose activities were established prior towilderness designation. The NationalPark Service will limit authorizations forthe continued use of any motorizedequipment in wilderness to situationswhere such use has been specificallyauthorized by Congress and determinedby Congress or the Park Service to becompatible with the purpose, character,and resource values of the particularwilderness area involved. The use ofmotorized equipment by the public inwilderness areas in Alaska is governedby applicable provisions of ANILCA andNPS regulations in 36 CFR 13. Thespecific conditions under which motor-ized equipment may be used by the

public will be outlined in each park�swilderness management plan.

The use of hand-propelled watercraftmay be allowed in wilderness. How-ever, the watercraft and all other sup-plies and equipment must be removedat the end of each wilderness trip.

Mobility-impaired persons may usewheelchairs (as defined in 36 CFR1.4) in wilderness.

(See Accessibility for Disabled Per-sons 8:5, Accessibility for DisabledPersons 9:3)

Commercial Services

Wilderness-oriented commercialservices that contribute to achievingpublic enjoyment of wilderness valuesor that provide opportunities for primi-tive and unconfined types of recreationmay be authorized if they meet the�necessary and appropriate� tests ofthe Concessions Policy and Wilder-ness acts and if they are consistentwith the wilderness managementobjectives contained in the park�swilderness management plan. Activi-ties such as guide services for outfit-ted horseback, hiking, mountain climb-ing, or river trips and similar activitiesmay be appropriate and may beauthorized if conducted under termsand conditions outlined in the park�swilderness management plan and indocuments authorizing concessions orcommercial use. The only structures orfacilities to support such commercialservices that will be allowed in wilder-ness will be temporary shelters, such

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as tents, which will be removed from thewilderness after each trip.

(See Commercial Services 8:3, Plan-ning Criteria for Park Concessions10:1, Commercial Use License 10:3,Rates Charged to Visitors 10:6, Inter-pretation 10:9)

Special EventsSpecial EventsSpecial EventsSpecial EventsSpecial Events

The National Park Service will notsponsor or issue permits for specialevents to be conducted in wilderness ifthose events might be inconsistent withwilderness resources and character.

(See Special Events 8:10)

Grazing and LivestockGrazing and LivestockGrazing and LivestockGrazing and LivestockGrazing and LivestockDrivewaysDrivewaysDrivewaysDrivewaysDriveways

Commercial grazing or driving of live-stock in park wilderness will be allowedonly when authorized by Congress.Where these activities are so autho-rized, they will be managed underconditions outlined in the wildernessmanagement plan to protect wildernessresources and values. The use of motor-ized or mechanical equipment will notbe allowed. The construction of facilitiesincompatible with wilderness values ormanagement objectives will be prohib-ited.

Noncommercial grazing of trail stockincidental to recreational use of wilder-ness may be authorized in accordancewith NPS regulations and conditionsoutlined in the wilderness managementplan that ensure protection of wildernessresources and character. Superinten-

dents will be responsible for monitoringlivestock use of wilderness to the samedegree as human use and may use thesame management tools and tech-niques to manage livestock use thatare available for managing other wil-derness uses.

(See Grazing 8:14)

Rights-of-WayRights-of-WayRights-of-WayRights-of-WayRights-of-Way

Existing rights-of-way that have beenincluded in wilderness should bephased out where practicable. Where itis not practicable, rights-of-way subjectto NPS administrative control may berenewed under conditions outlined inthe park�s wilderness managementplan that protect wilderness characterand resources and limit the use ofmotorized or mechanical equipment.The National Park Service will not issueany new rights-of-way or widen orextend any existing rights-of-way inwilderness.

Rights-of-way and access proceduresaffecting wilderness areas in Alaskaare governed by applicable provisionsof ANILCA and regulations in 43 CFR36 and 36 CFR 13.

(See Land Protection Plans 3:1,Rights-of-Way 8:11)

Mineral DevelopmentMineral DevelopmentMineral DevelopmentMineral DevelopmentMineral Development

The National Park Service will seek toeliminate valid mining claims andnonfederal mineral interests in wilder-ness through acquisition. In parkswhere Congress has authorized the

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leasing of federal minerals, the ParkService will take appropriate actions topreclude the leasing of lands or mineralsthat are included within wilderness.Lands included within wilderness will belisted as excepted areas under appli-cable regulations in 43 CFR 3100 and3500.

(See Land Protection Plans 3:1, Min-eral Development 8:12)

Public EducationPublic EducationPublic EducationPublic EducationPublic Education

The National Park Service will developand maintain an effective public educa-tion program designed to promote andperpetuate public awareness of andappreciation for wilderness character,resources, and ethics without stimulatingan unacceptable demand for use. Effortswill focus on the fostering of an under-standing of the concept of wildernessthat includes respect for the resource,willingness to exercise self-restraint indemanding access to it, and an ability toadhere to appropriate, minimum-impacttechniques when using it.

(See Interpretive Programs 7:1, Inter-pretive Services 7:2)

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AppendixC

HistoryHistoryHistoryHistoryHistoryof theof theof theof theof the

WildernessWildernessWildernessWildernessWildernessRecommend-Recommend-Recommend-Recommend-Recommend-

ationationationationationat Grandat Grandat Grandat Grandat GrandCanyonCanyonCanyonCanyonCanyon

TTTTTWilderness ActWilderness ActWilderness ActWilderness ActWilderness ActRequirementsRequirementsRequirementsRequirementsRequirements

he passage of the 1964 Wilder- ness Act, Public Law 88-577,Section 3(c), instructed the Secretary ofthe Interior to review all roadless areasof at least 5,000 acres in the NationalPark System, and to submit a reportregarding the suitability of these areasfor wilderness classification. The Actprovided a ten-year review period andtimetable.

Grand Canyon NationalGrand Canyon NationalGrand Canyon NationalGrand Canyon NationalGrand Canyon NationalPark WildernessPark WildernessPark WildernessPark WildernessPark WildernessRecommendationsRecommendationsRecommendationsRecommendationsRecommendations

In 1970, the National Park Servicereleased for public review its Prelimi-nary Wilderness Study for GrandCanyon National Park, Marble CanyonNational Monument, and Grand Can-yon National Monument. The studyrecommended phasing out motorizeduse on the Colorado River, and closingthe network of fire roads on the NorthRim to qualify these areas for wilder-ness. The total wilderness recommen-dation was 569,200 acres, or approxi-mately 63% of the 900,000-acre Park.Absent from the study are any SouthRim lands except the �Palisades of theDesert rim area� (U.S. Department ofthe Interior, National Park Service1970).

In August of 1971, the Park issued aFinal Draft Wilderness Recommenda-tion of 508,500 acres, approximately60,000 acres less than the earlier study(U.S. Department of the Interior, Na-

tional Park Service 1971). Deletedfrom the recommendation were theNorth Rim and river corridor. The rivercorridor was excluded because of theplanned continued use of motors on theriver. The perceived requirement for fireroads, and projected use of mechanicalequipment, resulted in the exclusionfrom wilderness consideration of NorthRim lands until completion of a fire-hazard reduction program.

The November, 1971 WildernessRecommendation reflected the August�Final Draft� acreage and rationale(U.S. Department of the Interior, Na-tional Park Service 1971a). Includedwithin the recommendation was arationalization for a 1/8-mile �manage-ment zone� between the Park boundaryand the wilderness boundary.

In 1972, the Service released anotherWilderness Recommendation consist-ing of 512,870 acres, due to environ-mental concerns. This action resulted inthe �potential wilderness� addition ofGrand Canyon National Monument andthe North Rim, based upon projectedelimination of grazing in the former, andelimination of fuel buildup in the latter.The 1/8-mile �management zones�were also eliminated as a result ofpublic input (U.S. Department of theInterior, National Park Service 1972;Hardy and Associates 1971).

In 1973, the Park released its FinalEnvironmental Statement for theProposed Wilderness Classification of1972 (U.S. Department of the Interior,National Park Service 1973).

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The passage of the Grand CanyonNational Park Enlargement Act of1975, Public Law 93-620, (amended PL94-31), Section 11, required that theSecretary of the Interior submit withintwo years a new wilderness recommen-dation accommodating an enlargedGrand Canyon National Park.

The July 1976 Preliminary WildernessProposal called for 992,046 acres assuitable for wilderness. An additional120,965 acres, including the river corri-dor, was recommended as potentialwilderness (U.S. Department of theInterior, National Park Service 1976).The total proposal was 1,113,011 acres.A Draft Environmental Statement wasalso prepared in 1976 (U.S. Departmentof the Interior, National Park Service1976a).

In August 1976, the Service conductedpublic wilderness hearings in Flagstaff,Grand Canyon, Phoenix, and St.George, Utah. A total of 509 letters andwritten statements resulted from thehearings and the document reviewprocess. The Park received commentsfrom 23 Federal agencies, 17 Stateagencies, three Indian Tribes, 39 organi-zations, 24 companies, and 501 indi-viduals (U.S. Department of the Interior,National Park Service 1980:14).

The Final Wilderness Recommenda-tion, February 1977, signed by theDirector, recommended 1,004,066acres (including the river corridor, p.16,and most of the North Rim) for immedi-ate wilderness designation with anadditional 108,945 recommended aspotential wilderness (U.S. Department of

the Interior, National Park Service1977). The total �recommended forimmediate wilderness designation�and �recommended potential wilder-ness� acreage of both the 1976 and1977 proposals was 1,113,011 acres.The NPS sent this recommendation tothe Legislative Counsel in 1977, whereit was held in abeyance pendingcompletion of the River ManagementPlan (U.S. Department of the Interior,National Park Service 1977a: U.S.Department of the Interior 1979).

Upon completion of the 1980 Colo-rado River Management Plan, amemorandum from the Director of theNational Park Service to the AssistantSecretary for Fish, Wildlife and Parksrecommended 980,088 acres forimmediate wilderness designation,and an additional 131,814 acres as�potential wilderness� (U.S. Depart-ment of the Interior, National ParkService 1980c). Attached was arevised 1977 recommendation thateliminated from wilderness consider-ation the 1,109-acre area between theKaibab and the Bright Angel Trails(U.S. Department of the Interior, Na-tional Park Service 1980; May 1992).The river corridor was also recom-mended as potential wilderness untilthe planned phase-out of motors in1985. The so-called Hatch Amend-ment to the 1981 Department of theInterior Appropriations Bill resulted inthe abandonment of the 1980 Colo-rado River Management Plan and itswilderness emphasis.

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A new river plan was written, and motoruse on the river continued indefinitely(U.S. Department of the Interior, Na-tional Park Service 1981).

In 1993, the Park conducted an internalreview and update of the 1980 Wilder-ness Recommendation (U.S. Depart-ment of the Interior, National Park Ser-vice 1993). Revisions were made,based upon the acquisition of mining,grazing, and other leases, the 1969Field Solicitor�s Opinion regarding thewestern boundary of the Navajo Reser-vation, and refinement in acreagedetermined by the Geographical Infor-mation System (GIS). All modificationswere consistent with the letter or intentof the 1980 Recommendation. OnAugust 3, 1993, the superintendenttransmitted this recommendation to theDirector of the National Park Service(U.S. Department of the Interior, Na-tional Park Service 1993a).

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AppendixD

MinimumMinimumMinimumMinimumMinimumRequirementRequirementRequirementRequirementRequirementDecisionDecisionDecisionDecisionDecisionProcessProcessProcessProcessProcess

for Grandfor Grandfor Grandfor Grandfor GrandCanyonCanyonCanyonCanyonCanyonNationalNationalNationalNationalNationalParkParkParkParkPark

he purpose of the minimumrequirement process is to deter-mine the �minimum tool or administra-tive practice necessary to successfullyand safely accomplish the managementobjective with the least adverse impacton wilderness character and resources.�(NPS Management Policies, 6:4). Indoing so, the following matrix providesPark staff and managers with a frame-work to guide the decision-makingprocess while triggering considerationof specific variables which may affectwilderness values, resources, andexperiences.

The following minimum-requirementmatrix should be completed for adminis-trative activities in the proposed wilder-ness. These activities include, but arenot limited to, fire management, wildlifemanagement, archaeological monitor-ing and treatments, research, andresource protection. The minimum-requirement decision process may beapplied at a programmatic level butshould describe specific activities. Theminimum-requirement decision processmay be applied at a programmatic levelfor proposed actions, but should de-scribe specific activities.

Things to consider when completing theGrand Canyon National Park MinimumRequirement Matrix for actions in pro-posed wilderness:


Is This An Emergency?Is This An Emergency?Is This An Emergency?Is This An Emergency?Is This An Emergency?

Emergency minimum-requirementstandard operational procedures are

TTTTT defined in the Grand Canyon NationalPark Emergency Medical Service(EMS) Plan, the Grand Canyon Na-tional Park Search and Rescue (SAR)Plan, and the Grand Canyon NationalPark Fire Management Plan (SeeChapter 11, Ecosystem Management).

If the action is not an emergency, con-tinue with the process outlined below.


Determine if the proposedaction is essential to achieveplanned wilderness objectives.

These objectives are presented inapproved plans (e.g., WildernessManagement Plan, Colorado RiverManagement Plan, General Manage-ment Plan, Resource ManagementPlan, Fire Management Plan, etc.). Forthis purpose, approved research isconsidered essential.


Can the desired action beCan the desired action beCan the desired action beCan the desired action beCan the desired action beaccomplished through visitoraccomplished through visitoraccomplished through visitoraccomplished through visitoraccomplished through visitorand staff education?and staff education?and staff education?and staff education?and staff education?

According to the Wilderness Act,wilderness is an area �which has out-standing opportunities for solitude or aprimitive and unconfined type of recre-ation.� The National Park Service willnot eliminate or unreasonably controlrisks that are normally associated withwilderness; it will strive to provide userswith general information concerningpossible risks, recommended precau-tions, minimum-impact use ethics, and

1


D-

applicable restrictions and regulations(NPS Management Policies, 6:8).

The emphasis of visitor contacts will beeducational prior to embarking on abackcountry or river experience.1 Thiswill be accomplished through an ex-panded permitting process and otherefforts including brochures, staff contact,displays, and pre-departure orientations(See Chapter 10, Interpretation, Educa-tion, and Information).

Leave No Trace (LNT)

LNT is a management and educationprogram which promotes minimum-impact camping and hiking techniquesin wildlands (See Chapter Ten). Wilder-ness travelers, both recreational andadministrative, can greatly reduce theirimpacts by adhering to LNT principles.

Minimum-Impact SuppressionTactics (MIST) and Light Handon the Land

These concepts are associated withlow-impact fire suppression tactics andtrail maintenance, and describe anappropriate wilderness work ethic (U.S.Department of Agriculture. NationalForest Service. 1995). A light-handapproach is one in which the work isaccomplished with the least necessarydisturbance of wilderness resources,including visitor experience. The man-ager and field personnel must keep inmind that people working in wildernessoften have a greater impact than theprivate visitor. Field crews must scrupu-lously adhere to minimum-impact camp-ing (LNT) techniques.

Authority of the Resource

The Arthur Carhart National Wilder-ness Training Center teaches thatagency�visitor contacts in wildernessshould be conducted in a manner thatrespects visitor�s expectations for awilderness experience (Arthur CarhartNational Wilderness Training Center1993). Many violations are careless,unskilled, or uninformed actions whichresult in impacts on wilderness re-sources or other visitors� wildernessexperience. When contacting visitorswho exhibit undesirable behaviorreference Authority of the Resource.This concept requires the managerand visitor to evaluate the conse-quence of their actions on an environ-ment that both value. The agencyrepresentative should attempt toresolve the matter by following a three-step approach:

1) Give an objective description of thesituation. Referencing the regulationor the visitor as violator is not re-quired at this time.

2) Explain the implications of theaction or situation that was ob-served. It is here that the agencyrepresentative attempts to revealthe authority of the resource orinterpret what detrimental impactswill occur if the action is continued.This may include social impacts orreference to what will happen toother visitors� interaction with natureif the action continues.

3) Inform the visitor how the manager/ranger (and the agency) feels about

1 The most desir-able times tocontact the visitor orto make regulationsknown is during theanticipation/planning phase ofthe wildernessexperience. Re-searchers suggestthe agency regulateat the entry levelrather than theactivity level withinan area.(See Hendee, JohnC., et al. 1990:188-189; 401-422)

2


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the action and what steps can orshould be taken to improve the situa-tion. The agency representative canthen decide whether or not it is nec-essary to cite the regulation per se,and whether to escalate the level oflaw enforcement (Wallace 1990).

Wilderness rangers are guided by NPS-9, Law Enforcement Guidelines (U.S.Department of the Interior, National ParkService 1989a). The goals of NPS-9,which include visitor and staff safety,park resource protection, and the en-hancement of visitor enjoyment, areachieved through the application of thelowest level of enforcement techniquenecessary to gain compliance.


Decide if the action can beDecide if the action can beDecide if the action can beDecide if the action can beDecide if the action can beaccommodated outsideaccommodated outsideaccommodated outsideaccommodated outsideaccommodated outsidewilderness.wilderness.wilderness.wilderness.wilderness.

If possible, locate activities or facilitiesdetermined �essential� (e.g., visitororientation, information signs or a radio-repeater station) outside wilderness.


List alternatives appropriateList alternatives appropriateList alternatives appropriateList alternatives appropriateList alternatives appropriatefor wilderness management.for wilderness management.for wilderness management.for wilderness management.for wilderness management.

For the Minimum-Requirement Processto work, it is important to develop andseriously consider a range of realisticalternatives. This process involves atiered analysis beginning with the leastobtrusive, nonmechanized alternative.

Primitive Skills

Primitive skills involve the proficient useof tools and skills of the pre-motorizedor pioneering era (e.g., the double-bitaxe, the crosscut saw, the pack string,and oar-powered and paddle-poweredwatercraft). The working understandingof primitive skills is important to appro-priately plan for their use. Managersmust take the lead in demonstratingthat tasks can be performed well byprimitive or traditional, nonmotorizedmethods. Field staff require adequatetraining in primitive-tool selection, use,and care to efficiently accomplishplanned work. While agency staffshould constantly stress the importanceof using primitive skills in accomplish-ing management objectives, theyshould understand that minimum-requirement analysis will not alwayslead to the use of a primitive tool.

Mechanized Use in Wilderness

The use of motorized equipment isprohibited when other reasonablealternatives are available to protectwilderness values. While Congressmandated a ban on motors and mecha-nized equipment, it also recognizedthat managers may occasionally needthose sorts of tools. While this provisioncomplicates the decision-makingprocess, it remains an exception to beexercised very sparingly and only whenit meets the test of being the minimumnecessary for wilderness purposes(Worf 1987; Colorado State University1991). Administrative use of motorizedequipment or mechanical transport,including motorboats and aircraft, may

2 �Routine� isdefined as �aregular, more orless unvaryingprocedure, custom-ary, prescribed, orhabitual, as ofbusiness or dailylife.�

3


D-

be authorized only if determined by thesuperintendent to be the minimum toolneeded to protect wilderness values.Such management activities will beconducted in accordance with all appli-cable regulations, polices, and guide-lines and, where practicable, will bescheduled to avoid creating adverseresource impacts or conflicts with visitoruse (NPS Management Policies, 6:4-5).

Routine2 nonemergency restoration,visitor contact, monitoring, and mainte-nance in proposed wilderness shouldconsist of nonmechanized tools.Nonroutine (preferably one-time) use ofmotorized equipment such as pionjars,chain saws, etc., during extensive trailreconstruction, stabilization, and reloca-tion may be permitted on a case-by-case determination by the superinten-dent.3 Nonroutine helicopter support maybe authorized if nonmechanized trans-port is deemed unreasonable or hazard-ous. If some compromise of wildernessresources or character is unavoidable,only those actions that have localized,short-term adverse impacts will beacceptable (NPS Management Poli-cies, 6:4).


Evaluate the alternatives toEvaluate the alternatives toEvaluate the alternatives toEvaluate the alternatives toEvaluate the alternatives todetermine which has thedetermine which has thedetermine which has thedetermine which has thedetermine which has theleast impact on wildernessleast impact on wildernessleast impact on wildernessleast impact on wildernessleast impact on wildernessresources. Can the desiredresources. Can the desiredresources. Can the desiredresources. Can the desiredresources. Can the desiredaction be accomplished safelyaction be accomplished safelyaction be accomplished safelyaction be accomplished safelyaction be accomplished safelyand effectively with primitiveand effectively with primitiveand effectively with primitiveand effectively with primitiveand effectively with primitiveskills?skills?skills?skills?skills?

The manager must determine how tosafely accomplish the action with theleast impact on the wilderness re-source and visitor experience. Re-member that potential disruption ofwilderness character and resourcesand applicable safety concerns will beconsidered before, and given signifi-cantly more weight than, economicefficiency.

The net result of a minimum-require-ment analysis is a carefully weighedproject or action found to be the mosteffective way of meeting wildernessobjectives and the minimum neces-sary for Wilderness Act purposes.


Select the appropriateSelect the appropriateSelect the appropriateSelect the appropriateSelect the appropriateminimum tool or action.minimum tool or action.minimum tool or action.minimum tool or action.minimum tool or action.

Obtain review from the Division Chiefand Wilderness Coordinator, andapproval from the superintendent.Coordinate the preparation of aproject proposal with the Park environ-mental compliance officer unless theproposed action has been addressedat the programmatic level.

3 The �reoccurring�need for mecha-nized equipment,such as chainsawsor mechanizedtransport, may benecessary toaccomplish firemanagementobjectives on theexisting temporaryfire roads until thenatural fire regimeis restored. At thattime, the roads willbe restored to anatural condition, orconverted into trailsas specified byManagementPolicies, Chapter6:5. This issue willbe addressed in therevision of theGrand CanyonNational Park FireManagement Plan.4


D-

NoteNoteNoteNoteNote

The following individuals providedcomment on this document:

� Judy Alderson*Environmental SpecialistNPS Alaska System Support Office

� Jim Walters*Wilderness CoordinatorNPS Intermountain Field Area

� Bill Briggle*SuperintendentMt. Rainier National Park

� Karen Wade*SuperintendentGreat Smoky Mountains National Park

� Uwe Nehring*District RangerCrater Lake National Park

� Doug Morris*SuperintendentSaquaro National Monument

� Dan OltroggeFire Management OfficerGrand Canyon National Park

* National Wilderness Steering Committee

5


D- 6

To be undertaken by:

Proposed Action:

Grand Canyon National Park

IS THIS AN EMERGENCY?1

YES NO

Act according toapproved emer-gency minimum-tool SOPs

IS ACTION ESSENTIAL?(to meet planned

wilderness objectives1)2

Don't Do It

YES

3

NO

Can this action beaccomplished through

visitor education?

4

YES

Do It There

NO

Can Action Be AccomplishedElsewhere?

(Outside of Wilderness area)

Do it

YES NO

Go to Page two

�List the Objective(s) met by this action:

�Other (non-wilderness) areas considered:

1Management objectives are listed inapproved plans, for example:�Wilderness Management Plan�Colorado River Management Plan�Fire Management Plan�General Management Plan�Management Policies�Strategic Plan for GCNP�Resource Management Plan�Approved Research

Process for Determining Minimum Requirement

Givens:�We will manage for wilderness.�River is included�Economics and convenience are secondary

5


�List alternatives:

Evaluate which alternativewould have the Least Impact on:

� Wilderness resources?� Visitor experience?

List alternative ways toaccomplish this action.

Can this action be safely andeffectively accomplished withprimitive skills? (Economic

efficiency and convenience arenot primary considerations)

6

7Select Appropriate

Primitive Tools and Skills

NOYES

Select AppropriateMechanized Tool

(non-routine2 uses only)or Administrative/Research

Facility

7

GO TO PAGE THREE

�What is the best group sizeto complete this action withthe least impact onresources and visitorexperience?

�What is the best time ofyear to complete actionwhile minimizing impact onresources and visitorexperience?

�If mechanized equipment isselected, how often will it beused, and how long will theproject last?

�If this action cannot beaccomplished throughvisitor education alone, howcan it contribute to theaccomplishment/enhance-ment of this action?

Considerations:

2Routine is defined as: "A regular, more orless unvarying procedure, customary,prescribed, or habitual,as of business or daily life."


Action:

List selected alternative and justification here:

Prepared by Date Reviewed by Division Chief Date

Reviewed by Wilderness Coordinator

Approved by Superintendent, Grand Canyon National Park Form Approved 1998, GRCA


AppendixE

RecreationalRecreationalRecreationalRecreationalRecreationalOpportunitiesOpportunitiesOpportunitiesOpportunitiesOpportunities

andandandandandPermitPermitPermitPermitPermit

InformationInformationInformationInformationInformationforforforforfor

AdjacentAdjacentAdjacentAdjacentAdjacentLandsLandsLandsLandsLands

TTTTTNavajo Tribal LandsNavajo Tribal LandsNavajo Tribal LandsNavajo Tribal LandsNavajo Tribal Lands

here are a number of trails and routes on Navajo land used byGrand Canyon hikers: Lees Ferry to theconfluence with the Little ColoradoRiver; and the Little Colorado RiverGorge from Cameron to the confluenceof the Colorado River. Permits arerequired from the Tribe for backcountryuse and camping on Navajo Nationlands.

Permits and information may be ob-tained at three locations throughout theyear:

Navajo Nation Parks and RecreationDepartmentP.O. Box 9000Window Rock, AZ 86515(520) 871-6647

Cameron Visitor Center (at junction ofHwy 89 and Hwy 64)P.O. Box 549Cameron, AZ 86020(520) 679-2303

LeChee Sub-OfficeLocated near LeChee Chapter House,seven miles south of Page, Arizona(520) 698-3360

Navajo Nation fishing and hunting per-mits, fees, and dates can be obtainedby contacting:

Fish and Wildlife DepartmentP.O. Box 1480Window Rock, AZ 86515(520) 871-5338

Havasupai Tribal LandsHavasupai Tribal LandsHavasupai Tribal LandsHavasupai Tribal LandsHavasupai Tribal Lands

A one-time entrance fee is charged bythe Tribe for use of Havasupai lands.The main trail into Supai village islocated at Hualapai Hilltop. Nightlycamping fees for the campground arerequired. The campground is locatedtwo miles from the village betweenHavasu Falls and Mooney Falls. Back-country use of Great Thumb areasrequires a permit from the HavasupaiTribe as well as the Grand CanyonNational Park.

Havasupai entrance and camping feesdiffer for the high-use season (April 1through October 31) and the off-season(November 1 through March 31).

For information and campgroundreservations, contact

Havasupai Tourist EnterpriseGeneral DeliverySupai, AZ 86435(520) 448-2141

E-1


Hualapai Tribal LandsHualapai Tribal LandsHualapai Tribal LandsHualapai Tribal LandsHualapai Tribal Lands

The primary access to the ColoradoRiver in the western part of Grand Can-yon is by the Diamond Creek Road.Hualapai permits and fees are requiredfor private boat launching or take-out,camping, and sight-seeing. Commercialwhitewater rafting trips may also bescheduled through Hualapai RiverRunners. Hunting permits are alsoavailable through the Department ofNatural Resources.

For information on various recreationalactivites on Hualapai Tribal lands, con-tact

Hualapai Enterprises, Inc.P.O. Box 359Peach Springs, AZ 86434(520) 769-2419

Bureau Of LandBureau Of LandBureau Of LandBureau Of LandBureau Of LandManagementManagementManagementManagementManagement

Arizona Strip DistrictArizona Strip DistrictArizona Strip DistrictArizona Strip DistrictArizona Strip District

A variety of wilderness and nonwilder-ness recreational activities are availableon public lands to the north and north-west of Grand Canyon National Parknear the Utah border. Many of the publiclands on the �Arizona Strip� are adminis-tered by the Bureau of Land Manage-ment (BLM).

Primitive roads on BLM lands provideaccess to Fort Garrett Point andWhitmore Point, two scenic overlooks inwestern Grand Canyon.

Permit fees are required for day-useand overnight camping in the PariaCanyon, Buckskin Gulch, and CoyoteButtes portions of the Paria Canyon�Vermilion Cliffs Wilderness Area.Visitors to the area can deposit fees atself-serve stations located at WhiteHouse, Buckskin, and Wire PassTrailheads.

Information on the various BLM recre-ational opportunities on the ArizonaStrip may be obtained by contacting

Interagency Office andInformation Center345 East Riverside DriveSt. George, UT 84790(801) 688-3200

U.S. Forest ServiceU.S. Forest ServiceU.S. Forest ServiceU.S. Forest ServiceU.S. Forest Service(USFS)(USFS)(USFS)(USFS)(USFS)

Kaibab National ForestKaibab National ForestKaibab National ForestKaibab National ForestKaibab National Forest

The north and south boundaries ofGrand Canyon National Park areshared with the Kaibab NationalForest. The Tusayan District is locatednear the South Rim, and the NorthKaibab District is located north of thePark. The Saddle Mountain andKanab Creek Wilderness Areas arelocated in the North Kaibab District.

Primitive roads in the North KaibabDistrict provide access to severalGrand Canyon scenic overlooksincluding Indian Hollow, MonumentPoint, Crazy Jug Point, Timp Point,and Marble View.

E-2


USFS permits are not required forbackcountry use. Reservations and feesare required for overnight campgrounduse on Forest Service areas.

Information may be obtained by contact-ing:

For areas adjacent to South Rim

Kaibab National ForestRecreation and Visitor Information200 W. Railroad Ave.Williams, AZ 86046(520) 635-4061

For areas adjacent to North Rim

North Kaibab Ranger DistrictP.O. Box 248Fredonia, AZ 86022(520) 643-7395

Kaibab Plateau Visitor InformationCenter at Jacob LakeMay through October(520) 643-7298

National Park ServiceNational Park ServiceNational Park ServiceNational Park ServiceNational Park Service

Glen Canyon National ParkGlen Canyon National ParkGlen Canyon National ParkGlen Canyon National ParkGlen Canyon National ParkLake Mead National ParkLake Mead National ParkLake Mead National ParkLake Mead National ParkLake Mead National Park

Water-based recreation such as motorboating, water skiing, sailboarding, andfishing are found on the reservoirs atLake Powell, which is managed by GlenCanyon National Recreation Area, andat Lake Mead, which is managed byLake Mead National Recreation Area.

Access to Grand Canyon scenic over-looks at Whitmore Wash and TwinPoint is through primitive roads in LakeMead National Recreation Area.

For information, contact

Glen Canyon National Recreation AreaP.O. Box 1507Page, AZ 86040-1507(520) 608-6404Lake Mead National Recreation Area601 Nevada HighwayBoulder City, NV 89005(702) 293-8990

E-3


E-4


AppendixF

WildernessWildernessWildernessWildernessWildernessUse byUse byUse byUse byUse byPersonsPersonsPersonsPersonsPersonswithwithwithwithwith

DisabilitiesDisabilitiesDisabilitiesDisabilitiesDisabilities

(1)(1)(1)(1)(1) In General�Congress reaffirms that nothing in the Wilderness Act is to be con-strued as prohibiting the use of awheelchair in a wilderness area by anindividual whose disability requires useof a wheelchair, and consistent with theWilderness Act, no agency is requiredto provide any form of special treat-ment or accommodation, or to con-struct any facilities or modify anyconditions of lands within a wildernessarea to facilitate such use.

(2) Definition � For the purposes ofparagraph (1), the term wheelchairmeans a device designed solely for theuse by a mobility-impaired person forlocomotion that is suitable for use in anindoor pedestrian area. (Section 507(c),104 Stat. 327, 42 USC. 12207, Americanswith Disabilities Act of 1990 [ADA])

All requests involving wilderness useby persons with disabilities shall be inaccordance with the ArchitecturalBarriers Act, the Rehabilitation Act of1973 (amended in 1978), Section507(c) of the Americans with Disabili-ties Act of 1990 and be reviewed toensure that wilderness resources andcharacter are not damaged or dimin-ished.

The NPS is not required to provide anymodification or special treatment toaccommodate accessibility by personswith disabilities. However, managersshould explore solutions for reason-able accommodations when not inconflict with the Wilderness Act (e.g.barrier-free trails, accessible camp-sites).

Wheelchairs are appropriate in Wil-derness only if they meet the ADAdefinition. The intent of this definitionwas that a wheelchair is a person�sprimary mode of locomotion, manualor electric, but not an all terrain ve-hicle. This definition was also intendedto ensure that persons using wheel-chairs were reasonably accommo-dated in wilderness without the need tocompromise the resource and charac-ter of wilderness.

Service animals are permitted inwilderness. Service animals are not tobe confused with �pets.� The ADAdefines a service animal as �anyguide dog, signal dog, or other animalindividually trained to provide assis-tance to a person with a disability.They are required by persons withdisabilities in day-to-day activities.�

A publication entitled WildernessAccess Decision Tool (availablethrough the Arthur Carhart NationalWilderness Training Center) has beendeveloped and should be followed tomake appropriate, objective, andconsistent decisions regarding the useof wilderness areas by persons withdisabilities. Any decision shouldinsure that it does not inadvertentlydiscriminate against persons withdisabilities (U.S. Department of theInterior, National Park Service.1997d).

F-1


F-2


AppendixG

BackcountryBackcountryBackcountryBackcountryBackcountryReservationReservationReservationReservationReservation

andandandandandPermitPermitPermitPermitPermitSystemSystemSystemSystemSystem

TTTTT he demand for permits for over night use from March throughOctober far exceeds the use limits thatprotect wilderness resources and thequality of recreational experiences. Anautomated reservation system ensuresa fair and equitable distribution ofopportunities for recreation in the Park�swilderness areas. �Backcountry� isdefined as all areas outside the devel-oped areas (i.e., rims, Cross-CanyonCorridor, and Proposed Wilderness);�wilderness� refers to the ProposedWilderness areas only.

Backcountry PermitsBackcountry PermitsBackcountry PermitsBackcountry PermitsBackcountry PermitsInformationInformationInformationInformationInformation

Permits are required for all backcountryand wilderness overnight use, and mustbe in possession at all times. Maximumgroup size is 11 people.

Advance permit requests are acceptedup to four months prior to the trip startdate.

By MailBackcountry OfficeGrand Canyon National ParkP.O. Box 129Grand Canyon, AZ 86023

By FAX(520) 638-2125

Information Telephone(520) 638-78751:00 p.m. to 5:00 p.m. dailyReservations are not accepted by phone.

In-PersonThe South Rim Backcountry Office at theMaswik Transportation CenterHours: 8 a.m. to noon; 1 p.m. to 5 p.m.

The North Rim Backcountry Office in the NorthRim Administrative AreaHours: 8 a.m. to noon; 1 p.m. to 5 p.m.

RequirementsRequirementsRequirementsRequirementsRequirements

A Backcountry Use Permit is requiredfor all overnight use in wilderness andbackcountry areas. Phantom RanchLodge guests do not need a backcoun-try use permit.

Backcountry permits are not requiredfor private day hikes or day rides;however, day users must observewilderness and backcountry regula-tions. Incidental Business Permits (IBP)are required for all commerciallyguided day hikes, including thoseaccompanying a motor-vehicle tour orother Park use. (See Appendix I, Com-mercial Use Policy).

Permits are valid only for the trip leader,number of people, itinerary, and datesspecified on the permit. Backcountryand wilderness travelers must havetheir permit in their possession and inplain view while hiking or camping so itcan be easily checked by rangers.

Obtaining PermitsObtaining PermitsObtaining PermitsObtaining PermitsObtaining Permits

The demand for a Grand Canyonbackcountry permit far exceeds avail-ability, resulting in a highly competitiveprocess. Obtaining a permit in advanceis strongly recommended. There are noguarantees that there will be any last

G-1


minute walk-in permits available. Thedemand for permits is greatest for usebetween March and early November,and all holiday periods. Novemberthrough February is considered a low-use period.

Permit requests for overnight backcoun-try and wilderness use are acceptedonly by mail, in person, or by FAX (520-638-2125), and are issued on a first-come, first-served basis. Fees shouldbe paid at this time by credit card,check, or money order.

A written response will be sent via U.S.Mail to all mail-request and FAX appli-cants with the request�s results.

For in-person requests, the South RimBackcountry Office, located at theMaswik Transportation Center, is openfrom 8:00 a.m. to 12:00 noon and 1:00p.m. to 5:00 p.m. daily. The North RimBackcountry Office is open daily mid-May through October only (weatherpermitting) during the same hours. Note:Grand Canyon is on Mountain StandardTime all year, and does not participate inDaylight Savings Time.

Permit FeesPermit FeesPermit FeesPermit FeesPermit Fees

In 1996, Congress mandated the Secre-tary of the Interior to implement a three-year Recreation Fee DemonstrationProgram in up to 100 national parkareas. This program directs parks toincrease current fees and establish newfees for recreational uses, and retains alarge portion of the resulting revenues atthe collecting park for new services andfacilities. Grand Canyon National Park is

participating in the Recreation FeeDemonstration Program, which in-creased entrance fees and created abackcountry permit/impact fee. Thebenefits realized at Grand Canyon willbe additional service to the public,increased protection of Park re-sources, and construction of neededfacilities according to the Park�sGeneral Management Plan.

All fees paid to the Backcountry Officeare nonrefundable. Current fees in-clude a $20 Basic Permit Fee plus a$4 per-person, per-night Impact Fee.Frequent users may wish to purchasea one-year Frequent Hiker member-ship for $50. This membership willwaive the initial $20 fee for eachpermit obtained by the member tripleader (who must be on the trip). Thismembership is valid for twelve monthsfrom the date of purchase.

Advance Permit RequestsAdvance Permit RequestsAdvance Permit RequestsAdvance Permit RequestsAdvance Permit Requests

Beginning with the first day of a month,permit requests will be accepted for aproposed trip starting on any date inthat month or the following four months.

Apply OnApply OnApply OnApply OnApply On For DatesFor DatesFor DatesFor DatesFor DatesOr AfterOr AfterOr AfterOr AfterOr After ThroughThroughThroughThroughThroughJanuary 1 MayFebruary 1 JuneMarch 1 JulyApril 1 AugustMay 1 SeptemberJune 1 OctoberJuly 1 NovemberAugust 1 DecemberSeptember 1 JanuaryOctober 1 FebruaryNovember 1 MarchDecember 1 April

G-2


For example: Beginning on December1, 1998, any start date through April 30,1999, would be available for request.

A permit request that starts in an openmonth and ends in a closed month, butis seven days or fewer in duration, willbe processed as a valid request. Tripsextending beyond that guideline into theclosed month will require an additionalpermit request for the closed monthonce that month becomes available.

Mail or FAX RequestMail or FAX RequestMail or FAX RequestMail or FAX RequestMail or FAX RequestProceduresProceduresProceduresProceduresProcedures

Permit requests sent by mail or FAX willbe accepted if mailed or FAXed on orafter the appropriate date as specifiedabove. The envelope postmark or FAXmachine received date will be used todetermine if the request is valid. Re-quests postmarked or FAXed earlierthan the specified date will be returnedwithout processing.

If available, a Backcountry Use Permitwill be issued and mailed to the tripleader. The permit will be valid only forthe trip leader named on the permit. If apermit has been requested and notreceived prior to trip departure, contactthe Backcountry Office. A valid permitmust be in possession before a tripbegins.

Each mail-in or FAX permit requestmust specify the following:

� Name, address, and phone number ofthe trip leader

� Credit card number, expiration date,signature and date, amount autho-rized

� Name of organization (if applicable)� The number of people and livestock

(if applicable)� Proposed night-by-night itinerary

showing use-area codes, and datesfor each night of the proposed trip

� State and license plate numbers ofvehicles that will be parked at atrailhead (if applicable)

� Alternate proposed itineraries incase the first itinerary is not available

Permits will not be issued unless com-plete information is provided. Thelisting of at least three alternate itinerar-ies with this information is stronglyrecommended.

Phone InformationPhone InformationPhone InformationPhone InformationPhone Information

Backcountry Office staff answer ques-tions between 1 p.m. and 5 p.m. Mon-day through Friday (except on Federalholidays) at (520)638-7875. Permitrequests are not accepted by phone.

The Backcountry Office does not makereservations for campground space onthe rims, for river trips, mule trips,Phantom Ranch lodging, or trips intothe Canyon on the Havasupai IndianReservation.

Other LocationsOther LocationsOther LocationsOther LocationsOther Locations

Reservations and/or permits maysometimes be obtained from rangerson duty at the Tuweep, Meadview, andLees Ferry Ranger Stations. However,these rangers have other patrol respon-

G-3


sibilities and may not be available toprovide assistance. Consequently, it isrecommended that trips be planned inadvance through the Backcountry Officeto be certain permits are available.Grand Canyon permits may also beavailable on a limited basis at PipeSpring National Monument; the Bureauof Land Management offices in St.George and Kanab, Utah; and at theU.S. Forest Service offices in Fredonia,Arizona.

Organized GroupsOrganized GroupsOrganized GroupsOrganized GroupsOrganized Groups

An organization is any number of per-sons united for some purpose, whethercommercial or noncommercial.

No more than eight small groups or fourlarge groups (not to exceed 48 persons)from the same organization may campbelow the rim on the same night. Onlyone large group of 11 maximum or onesmall group of six maximum from thesame organization are allowed in thesame campground or use area on thesame night. A small group is defined assix people or less on a permit. A largegroup is defined as 7-11 people on apermit. Maximum group size is 11people.

Groups of more than 11 must dividebetween different campgrounds or useareas. Only one group per night will beallowed in use areas in the Wild Oppor-tunity Class. Only a small percent ofpermits are issued to large groups. Agroup size to six or less improves thechance of obtaining a permit.

Wilderness Private StockWilderness Private StockWilderness Private StockWilderness Private StockWilderness Private StockUseUseUseUseUse

Permit application procedures forwilderness stock users are the sameas those described for backpackers,except that stock users need to includethe number of stock as well as thenumber of people in their permit appli-cation. For wilderness use areas, thelimit is six animals and six people withno more than five animals to onemounted packer.

Grazing is not permitted. Stock han-dlers must bring enough feed for thetrip�s duration. Any feed packed intothe backcountry or wilderness must besterile to protect the Park from theintroduction of nonnative plants andnoxious weeds. For more informationon private stock use, see Appendix H,Wilderness Stock Use Guidelines. Aninformation sheet on stock use in theCross-Canyon Corridor is available onrequest from the Grand Canyon Back-country Office.

Last-Minute PermitsLast-Minute PermitsLast-Minute PermitsLast-Minute PermitsLast-Minute Permits

Persons without advance reservationsmay be able to obtain a BackcountryUse Permit by placing their name onthe waiting list for cancellations. Thismust be done in person at the Back-country Office on the South Rim (orNorth Rim, when open).

North Rim Winter UseNorth Rim Winter UseNorth Rim Winter UseNorth Rim Winter UseNorth Rim Winter Use

During the winter season (approxi-mately late October through mid-May),a Backcountry Permit is required for

G-4


overnight use of the North Rim from thePark�s northern boundary to BrightAngel Point on the Canyon rim. Winteraccess is by hiking, snowshoeing, orNordic skiing.

Permittees are allowed to camp at-largebetween the Park�s north boundary andthe Widforss Road junction, but not atthe North Kaibab Trailhead. Betweenthe Widforss Road junction and theBright Angel Point area, camping ispermitted only at the North Rim Camp-ground group campsite.

Human waste should be deposited atthe base of a tree well away from anyroad or developed area where it will notbe encountered by a summer visitorafter the snow has melted. During thewinter months, burning toilet paper isacceptable if the area is snow covered.

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G-6


AppendixH

WildernessWildernessWildernessWildernessWildernessStock UseStock UseStock UseStock UseStock UseGuidelinesGuidelinesGuidelinesGuidelinesGuidelines

CCCCC urrent recreational stock day use within the proposed wilderness isessentially unknown but believed to existat relatively low levels. Recreationalstock use is permitted where, 1) im-pacts to resources lie within acceptablelevels (See Figure 3.2), and 2) thepotential conflict with other establishedwilderness users is minimal.

Stock Use GuidelinesStock Use GuidelinesStock Use GuidelinesStock Use GuidelinesStock Use Guidelines

Proposed WildernessProposed WildernessProposed WildernessProposed WildernessProposed Wilderness

In the proposed wilderness, stock arepermitted on following designated trails

Cape SolitudeFort GarrettBrady HollowKanab PlateauTiyo PointUncle JimWhitmoreCove

Nonwilderness AreasNonwilderness AreasNonwilderness AreasNonwilderness AreasNonwilderness Areas

Additional riding opportunities areavailable on the following nonwildernesstrails and roads

South Bass Trailhead RoadHavasupai Point RoadNorth Bass Trailhead RoadPoint Sublime RoadArizona TrailCross-Canyon Corridor

An information sheet on private stockuse in the Cross-Canyon Corridor isavailable from the Grand Canyon Na-tional Park Backcountry Office.

Recreational stock use is permitted inthe areas mentioned above providedthe following environmental-protectionrequirements are met (see Cole,Peterson, and Lucas 1987; and Cole1989, 1990)

A Backcountry Permit is required forovernight private livestock trips. Permitavailability is determined by use-arealimits.

� Total numbers for wilderness over-night parties will not exceed the smallgroup size of six stock and six people(with a limit of five stock to onemounted packer)

� Total numbers for wilderness dayusers will not exceed twelve stock and12 people

� When taking a break, stock shouldbe moved off trail far enough so thatother parties can pass safely andunnoticed. Select a durable site for thebreak, tying stock in a place and man-ner that will not cause avoidable im-pacts. Do not tie directly to trees andother vegetation. Keep stock well awayfrom destination overlooks.

� Stock must stay on established trailsor primitive roads. Pack stock shouldbe tied together and led single file, notturned loose and herded. Animals arenot allowed to spread out or walk onparallel or developing trails.

� Grazing is not permitted. Stockparties must carry adequate feed freeof exotic weeds. Feed and salt will beplaced on a tarp or in a feedbag.

H-1


� All stock should be contained outsidecamping or overlook areas.

� Stock should be tied to existing hitchrails where provided. Where not pro-vided, the use of trees and a hitch linewith wide nylon �tree saver� straps isrecommended. These straps come witha quick-adjusting buckle for conveniencewhile a rope is tied to the straps and notdirectly to vegetation. A resistant site ofhard, rocky ground is usually best. It issuggested that two or more horses betied together to reduce the tendency topaw the ground. Animals inclined to pawshould be hobbled.

� Stock parties will renovate any pawedarea, pack-out excess feed and salt,and scatter manure before leavingcamp.

The Basis of the StockThe Basis of the StockThe Basis of the StockThe Basis of the StockThe Basis of the StockUse GuidelinesUse GuidelinesUse GuidelinesUse GuidelinesUse Guidelines

TrailsTrailsTrailsTrailsTrails

Stock typically have more impact onwilderness ecosystems than an equalnumber of hikers, especially on fragilesites (Hendee, et al. 1990; Hammitt andCole 1987; Whittaker 1978). Horse trailsand campsites have been shown to beten times as impacted as sites used byonly backpackers (Hammit and Cole).Since horses, mules, and other types ofrecreational stock are heavier thanhumans and weight is concentrated on asmaller surface area, stock exerts muchmore pressure on the ground. Effectsdue to greater concentrated weightcontribute to substantial gouging andripping of ground, and the potential for

causing impacts is much more pro-nounced than with human traffic(Hammit and Cole 1987). Problemsresulting from this high potential fortrampling disturbance are com-pounded by the tendency for shodhooves to loosen the soil making itmore susceptible to erosion. As aresult, stock trails are more prone toerosion and more likely to requireextensive supplemental maintenance(Hammit and Cole 1987; McQuaid-Cook 1978; Weaver and Dale 1978).This is of particular concern at GrandCanyon where inner canyon trails aregenerally steep.

Research and experience indicate thatcreation of multiple trails and new trailswill occur much more rapidly with stockuse than with hiker use (Cole 1990;Weaver and Dale 1978; Nagy andScotter 1974). The trails created willalso be wider, deeper, more com-pacted, and less vegetated (Weaverand Dale 1978; Cole 1989). Widening,for example, results from horse use onside hills. Horses tend to walk on thedownhill side of the trail, which breaksdown this outer edge and widens thetrail (Hammit and Cole 1987).

CampsitesCampsitesCampsitesCampsitesCampsites

An campsites, differences in themagnitude of impact caused by hikersas opposed to stock parties are evenmore pronounced than on trails. Theaction of shod hooves causes rapidsite deterioration through loss oforganic soil horizons, increased com-paction, and decreased infiltrationrates (Cole 1990). Research indicates

H-2


and experience demonstrates thatcampsites used by stock parties resultin significantly larger barren core areasas sites used primarily by backpackers(Cole 1990). Damage to vegetation andsoil, as well as the accumulation ofmanure and urine, result in severeecological and aesthetic damage tocampsites (Cole 1989). In addition,seeds of exotic plants contained inhorsefeed readily geminate and growon such disturbed sites (Cole 1990).

Stock parties disturb a larger areabecause of the need for an adjacentarea to accommodate stock (Cole1990). Horses and mules, particularlywhen overnight use is involved, requireadditional space at campsite locationsand lead to impacts beyond the specificcampsite boundaries (Hammit and Cole1987).

In areas where stock are grazed orconfined for the night, impacts resultfrom both trampling and defoliation ofplants. These impacts are unique tostock parties and often affect a muchlarger area than all other recreationalimpacts combined (Cole 1990).

Visitor ConflictsVisitor ConflictsVisitor ConflictsVisitor ConflictsVisitor Conflicts

Although few stock users considermeeting hikers as inherently unpleasant,hikers generally find it undesirable tomeet stock in wilderness (Watson,Niccolucci, and Williams 1994). Formany wilderness users, meeting partieswith stock or finding evidence of stockuse, such as manure or corrals, alsodetracts greatly from their experience.This is particularly true in the majority of

wildernesses where stock use is asmall minority, such as in Grand Can-yon (Cole, 1990).

The underlying ecological argumentscurrently framing the livestock-hikerdebate are set in cultural traditions andsymbols that fuel the emotions on eachside (Moore and McClaran 1991).While the ultimate resolution of theseissues lies beyond the scope of thisdocument, Park management recog-nizes the inescapable conclusion thatsocial, environmental, and administra-tive costs associated with stock useare much more pronounced than thoseassociated with comparable amountsof hiker use (Cole, 1990). This situationis exacerbated by the large number ofbackpackers who feel that use of stockand its impacts are inappropriate. Parkmanagement also recognizes thatadequate areas have been providedfor stock use.

H-3


H-4


AppendixI

CommercialCommercialCommercialCommercialCommercialUse PolicyUse PolicyUse PolicyUse PolicyUse Policy

TTTTTGoalGoalGoalGoalGoal

he goal of commercial use management in wilderness and back-country areas is to provide qualityservices for guided hikes, winter use,equipment rental, and other serviceswhich have been determined by theNational Park Service to be necessaryand appropriate and enhance visitorenjoyment consistent with NPS wilder-ness policy.

The NPS strives to interpret regulationsconsistently regarding organizationalstatus (i.e., commercial versus educa-tional). Commercial organizations, asdefined in 36 CFR 5.3, must be respon-sive to commercial authorizationrequirements. Educational organiza-tions, as defined in 36 CFR 71.13(d),are exempt from securing commercialauthorizations and paying certain fees.

Some organizations have declaredthemselves to be nonprofit, and do notpay taxes but, in fact, they are busi-nesses providing services with a paidstaff in return for payment by their cli-ents. These organizations fall under thepurview of 36 CFR 5.3 and the Conces-sions Management Program (NPS-48).They are properly authorized via Inci-dental Business Permits (IBP).

Organizations providing �field trips� arenot viewed as educational institutions inthe same sense as elementary, junior,and senior high schools, colleges, anduniversities whether public or private.These �field trip� organizations mustsecure commercial authorizations andpay applicable entrance and user fees.

DefinitionsDefinitionsDefinitionsDefinitionsDefinitions

CommercialCommercialCommercialCommercialCommercial

Any or all goods, services, agreements,or anything offered to park visitors and/or the general public for recreationalpurposes, which uses park resources,or is undertaken for or results in com-pensation, monetary gain, benefits orprofit to an individual, organization, orcorporation, whether or not such entityis organized for purposes recognizedas nonprofit under local, State, orFederal law.

Verifiable ClientsVerifiable ClientsVerifiable ClientsVerifiable ClientsVerifiable Clients

Trip participants whom the commercialoperator can identify by name, ad-dress, and telephone number areverifiable clients. When required,verifiable client information is submittedat the time a reservation is madethrough the Backcountry Office.

NoncommercialNoncommercialNoncommercialNoncommercialNoncommercial

All nonprivate trips not covered underthe commercial definition are consid-ered noncommercial trips (includingtrips conducted by the organizations ororganization types listed below). Orga-nizations not listed below may submittheir qualifications for consideration ofnoncommercial status to the superin-tendent for review.

Specific Noncommercial Groups� Girl Scouts of America� Boy Scouts of America� Campfire Girls� 4-H Clubs of America

I-1


Other Noncommercial GroupTypes� Bona fide educational institutions

when academic credit is given toenrollees for the in-park activity

� Certain governmental entities (e.g.,city, county, or State recreation dis-tricts, etc.)

� Certain civic organizations (e.g.,Helping Hands, Big Brothers/Sisters,etc.)

� Religious organizations (when partici-pants are official members of record ofthe religious organization)

ProceduresProceduresProceduresProceduresProcedures

Noncommercial UseNoncommercial UseNoncommercial UseNoncommercial UseNoncommercial UseAuthorizationsAuthorizationsAuthorizationsAuthorizationsAuthorizations

Noncommercial organizations arepermitted to make backcountry reserva-tions in advance without a verifiable listof participants. However, in order toassure an equitable use of the system,all noncommercial organizations mustconfirm their reservations no later than30 days prior to their trip start. Uncon-firmed reservations will be cancelledand made available to the generalpublic.

Any single noncommercial entity (e.g.,Boy Scout Troop #30 of Grand Canyon,Arizona) will be permitted to make nomore than two (2) advance backcountryreservations in any given calendar yearexcept when a verifiable list of partici-pants (names, addresses and telephonenumbers) is provided for the additionalreservations. There is no reservationlimit for noncommercial organizations

making reservations for hikes whenthey have a verifiable participant list.

Overnight Commercial UseOvernight Commercial UseOvernight Commercial UseOvernight Commercial UseOvernight Commercial UseAuthorizationsAuthorizationsAuthorizationsAuthorizationsAuthorizations

An appropriate commercial authoriza-tion will be required for all overnightbackcountry or wilderness commercialuse. The authorization will be initiatedby request through the BackcountryOffice, and upon receipt of a commer-cial group�s reservation request, willbe prepared by the ConcessionsOffice, and approved or disapprovedby the superintendent.

All applicants for Incidental BusinessPermits (IBP) will be required to meetthe following minimum qualificationsand conditions prior to issuance of apermit.

� Proof of liability insurance coverage(Certificate of Insurance) naming theUnited States Government as anadditional insured. Minimum accep-table level of insurance is $300,000per occurrence and $500,000aggregate, if the policy specifiesaggregate limits.

� Payment of all required fees. Anonrefundable $200 fee is chargedfor application and administration ofthe IBP, irrespective of the IBP�slength. Entrance fees and overnightuse fees are also required.

� Certification that all guides/leadersmeet the following qualifications

�Must be 18 years of age or older �Must hold a current Advanced

I-2


First Aid, First Responder, or higher, Emergency Medical Ser- vices (EMS) certification.

� All IBP holders must assume rescueexpenses incurred by any member oftheir group.

� The National Park Service reservesthe right to establish commercial user-night limitations for the time periodsand/or Use Areas as future conditionsmay warrant. Commercial use in theCross-Canyon Corridor and wilder-ness areas, including North Rimwinter use, are not limited at this timeexcept as follows:

�Incidental Business Permits willnot be issued to authorize activi-ties granted to existingconcessioners under the terms ofcurrent concession contracts.

�An exception to the limitationsand restrictions on overnightCorridor use may be made forcommercially guided specialpopulations groups (physically orotherwise handicapped). Com-mercial use for Corridor trips forthese groups may be granted bythe superintendent on a needbasis, after careful review of eachrequest individually on its ownmerits.

� Commercial operators will be issueda date-specific IBP covering one ormore trips occurring within the samereservation window as defined by theBackcountry Reservation and PermitSystem (Appendix G). A separate IBP

is required for each reservationperiod, and commercial operatorsmust compete for permits on thesame basis as noncommercial andprivate groups. No special consider-ation or exceptions to reservationpolicies, campground and/or UseArea limits, etc., will be granted. Allcommercial operators may haveequal access to the backcountryreservation system in order to bookverifiable client reservations. Verifi-able clients are trip participantswhom the commercial operator canidentify by name, address and tele-phone number.

Commercial operators who havereceived proper authorization and haveverifiable clients may offer guided hikesin all backcountry areas where visita-tion is allowed on a first-come, first-served basis according to the require-ments specified herein.

Day-use Commercial UseDay-use Commercial UseDay-use Commercial UseDay-use Commercial UseDay-use Commercial UseAuthorizationsAuthorizationsAuthorizationsAuthorizationsAuthorizations

Commercially guided day hikes belowthe rim are authorized under the Inci-dent Business Permit (IBP) program.IBPs are mandatory for conductingcommercial trips in the Park; theirissuance is a courtesy not an entitle-ment. Requests for day-hike IBPs arehandled through the Division of Con-cessions Management. Commercialservices are not authorized until the IBPis final. Prospective permittees shouldallow two to four weeks for permitprocessing, and should not scheduleany commercial trips to the Park priorto obtaining a fully executed IBP.

I-3


All applicants for an IBP will be requiredto meet the following requirements priorto issuance of an IBP:

� Proof of liability insurance coverage(Certificate of Insurance) naming theUnited States Government as anadditional insured. Minimum accept-able level of insurance is $300,000 peroccurrence.

� Payment of all required fees. A nonre-fundable $200 fee is charged forapplication and administration of theIBP, irrespective of the IBP�s length.Entrance fees as required at theEntrance Stations will be paid by thepermittee.


�Must be 18 years of age or older.�Must hold a valid EmergencyResponder, Wilderness AdvancedFirst Aid, or higher, EmergencyMedical Services (EMS) certifica-tion.

The permittee must ensure that staffhave the expertise to operate all ser-vices authorized under the IBP. Thepermittee must furnish the Park with alist that identifies staff members andtheir qualifications. A staff registrationform must be submitted prior to workingin the Park.

The maximum size for a commerciallyguided day hike is 16, including guidesin the Corridor Use Area. In wilderness,group size is limited to 11 (two guidesfor nine clients).

Commercial day hiking will be onestablished trails only. Permit holdersare required to submit a trip form priorto each trip which identifies the spe-cific trails to be hiked. Rim-to-river-to-rim hikes are prohibited. Commercialday hikes must not be advertised asathletic achievements. The permitteeis responsible for organizing andproviding reasonable hikes for theirclients� abilities.

All backcountry use and environmentalprotection regulations apply. Specificguidelines are outlined in the Require-ments for Commercial Day HikingUse, available through the GrandCanyon National Park Division ofConcessions Management.

Bike Tour Commercial UseBike Tour Commercial UseBike Tour Commercial UseBike Tour Commercial UseBike Tour Commercial UseAuthorizationsAuthorizationsAuthorizationsAuthorizationsAuthorizations

Commercially guided bike trips areauthorized under the Incidental Busi-ness Permit (IBP) program. IBPs aremandatory for conducting commercialtrips into the Park; their issuance is acourtesy not an entitlement. Requestsfor bike tour IBPs are handled throughthe Division of Concessions Manage-ment. Commercial services are notauthorized until the IBP is finalized.Prospective permittees should allowtwo to four weeks for permit process-ing, and should not schedule anycommercial trips to the Park prior toobtaining a fully executed IBP.All applicants for an IBP will be re-quired to meet the following require-ments prior to issuance of an IBP

I-4


� Proof of liability insurance coverage(Certificate of Insurance) naming theUnited States Government as anadditional insured. Minimum accept-able level of insurance is $300,000per occurrence.

� Payment of all required fees. A nonre-fundable $200 fee is charged forapplication and administration of theIBP, irrespective of the IBP�s length.Entrance fees as required at theEntrance Stations will be paid by thepermittee.


�Must be 18 years of age or older.�Must hold a valid EmergencyResponder, Wilderness AdvancedFirst Aid, or higher, EmergencyMedical Services (EMS) certifica-tion.

The permittee must ensure that staffhave the expertise to operate all ser-vices authorized under the IBP. Thepermittee must furnish the Park with alist that identifies staff members andtheir qualifications. A staff registrationform must be submitted prior to workingin the Park.

The maximum size for a commerciallyguided bike tour is 14, including guides.There should be no less than one guide/leader for every six clients. Bicycle usein wilderness areas is prohibited (36CFR 4.30 (d)1).

Commercial bike tours will be limited tothe following unpaved roads which areopen to the public.

� Rowe Well Road� Pasture Wash Road from FS 328 to

South Bass Trailhead (W-9 andW9-A)

� Havasupai Point Road from PastureWash Road to Havasupai Point(W-9B)

� Grandview Entrance Road (E-10)from East Rim Drive to GrandviewEntrance

� Desert View�Cedar Mountain Road(E-14) from Desert View to CedarMountain Entrance

Commercial bike tours are limited toroads specified in the IBP. All bikesmust stay on designated roads. Off-road travel is prohibited.

Commercial bike tours must not beadvertised as athletic achievements.The permittee is responsible for orga-nizing and providing reasonable ridesfor their clients� abilities.

All backcountry use and environmentalprotection regulations apply. Specificguidelines are outlined in the Require-ments for Commercial Bike Tours,available through the Grand CanyonNational Park Division of ConcessionsManagement.

I-5


I-6

Appendix JUNITED STATES DEPARTMENT OF THE INTERIOR

NATIONAL PARK SERVICE

GRAND CANYON NATIONAL PARK

CAVE ENTRY APPLICATION AND PERMIT

Permission is hereby granted to enter the following sensitive cave:

______________________________________ ____________ ____/____/____ (Cave Name) (Cave Number) (Date of Entry)

Approved by: ___________________________ on ____/____/____

The group leader (18 years old minimum) will sign below in the first space, and will accompany the group at alltimes. The group leader assumes responsibility for the group�s actions.

Your signature indicates you have read and understand all conditions of this permit.

Name (sign above, print below) Age Address and Phone Number

1. ________________________________________ _____ _____________________________________________Trip Leader

________________________________________ _____________________________________________

2. ________________________________________ _____ _____________________________________________

________________________________________ _____________________________________________

3. ________________________________________ _____ _____________________________________________

________________________________________ _____________________________________________

4. ________________________________________ _____ _____________________________________________

________________________________________ _____________________________________________

5. ________________________________________ _____ _____________________________________________

________________________________________ _____________________________________________

6. ________________________________________ _____ _____________________________________________

________________________________________ _____ _____________________________________________

IN CASE OF EMERGENCY CONTACT: ________________________________

This permit authorizes the permittee to enter and explore the cave indicated on the reverse side of thispermit. Persons signing this permit accept responsibility for informing themselves of the inherent dangersof exploring undeveloped caves, accept full responsibility for their conduct, and personal safety. Thepermittees shall hold harmless the Federal Government and it's employees, for any mental or physicalinjury or damages resulting from entering or exploring the above cave, and that the Federal Governmentassumes no responsibility therefore.

Removal or destruction of any natural formations, minerals, rocks, or artifacts in or near caves isprohibited. Strict adherence to all rules and regulations stated on this form is understood and agreedto.

Conditions of this Permit:1. This permit is valid only on the date specified for cave entry.2. This permit must be returned, even if canceling the trip.3. The permittee copy must be in your possession while visiting the cave. All party members must signtheir names, provide a phone number, and address before entering the cave. This permit is valid only forthose listed on the permit.4. The group leader must be over 18 years of age and accompany the group at all times.5. The minimum number allowed on the trip is three (3) people, unless special permission is obtained.6. The maximum number of people allowed on a trip is six (6) unless special permission is obtained.7. Each person shall carry three (3) separate sources of light, a hard hat, and non-skid footwear.8. For your safety please leave the gate key in a safe location just inside the gate, known to all membersof your party.9. The trip leader is responsible for replacing the lock and gate at the end of the cave trip.10. All materials carried into the cave by the group must be removed and properly disposed of. Thedisposal of any human waste within caves is prohibited.11. The permittee agrees that information concerning the location of this sensitive cave will not bedispersed, published, duplicated, or in any other way disseminated, unless permission is first obtainedfrom the park service. Dissemination of cave location information can lead to vandalism or destruction ofcave resources.12. Failure to comply with any of the above requirements may result in curtailment of future cave-accessprivileges.

NOTICE: If you find a gate broken, please do not enter the cave, even though you have a valid permit.Entering the cave may destroy evidence needed by investigators. Notify the Park Service of anyevidence of forced entry, or if you notice damage to cave resources.

If you find anyone doing damage to a cave, please get all possible information (names, date & time,vehicle descriptions, License numbers, etc.) and report the incident to the park service as soon aspossible.

Please return this permit, and any cave gate keys, to Grand Canyon Science Center within sevenworking days.

Under Comments, please report any gates which are unlocked, have missing locks, or have locks in poorcondition. Report any damage noticed in the cave.

COMMENTS:


AppendixK

Use AreaUse AreaUse AreaUse AreaUse AreaClassificationClassificationClassificationClassificationClassificationand Limitsand Limitsand Limitsand Limitsand Limits

TTTTTOvernight Use-Area CodeOvernight Use-Area CodeOvernight Use-Area CodeOvernight Use-Area CodeOvernight Use-Area CodeCharacters and WhatCharacters and WhatCharacters and WhatCharacters and WhatCharacters and WhatThey RepresentThey RepresentThey RepresentThey RepresentThey Represent

he three-digit codes used to reference the various overnightbackcountry use areas, campsites, andcampgrounds can be deciphered asfollows:

First CharacterFirst CharacterFirst CharacterFirst CharacterFirst CharacterThe first character is always a letter andtells where the use area is in generalterms.

Code LocationA on the north side of the

Colorado River below theCanyon rim

B on the south side of theColorado River below theCanyon rim

C within the popular Cross-Canyon Corridor

L within the Lower Gorge

N above the rim on the northside of the Canyon

S above the rim on the southside of the Canyon

Second CharacterSecond CharacterSecond CharacterSecond CharacterSecond CharacterThe second character is always a letterand indicates the relative location of theuse area from east to west. The east-ern-most use area is designated by theletter �a� and the western-most is desig-nated by the letter �z.� The approximate

location of the use area can be derivedfrom its alphabetical relationship.

Third CharacterThird CharacterThird CharacterThird CharacterThird CharacterExcept when an area is limited to dayuse only, the third character is either theletter �G� or a numeral ranging from 0 to9. This character signifies the following:

Code Used only for

0 shared at-large useareas (i.e., when the firsttwo characters of thecode are shared withanother use area)

9 at-large use areas wherethe first two charactersare not shared withanother use area

8 designated campsitesnear the Colorado River

7 designated campsitesbelow the rim near peren-nial water

6 to 4 other designated camp-sites below the rim

3 to 1 designated campsites onthe rim

G designated campgroundwithin the popular Cross-Canyon Corridor

K-1


K-2

Figure K1: Use Area Codes, Limits, and Camping Classification(A/L = At-Large camping, D/S = Designated Camping)

Use Map

Area ID

Opportunity

Class

Large Small

Group Group

Camper

Limit

Camp

Type

Badger AA9

Blacktail Canyon AU9

Boucher BN9

Boysag LB9

Burnt Point LK9

Cape Final NA1

Cape Solitude SA9

Cedar Mountain SB9

Cheyava AJ9

Chuar AF9

Clear Creek AK9

Cottonwood Creek BG9

Cremation BJ9

Deer Creek AX7

Diamond Creek LG9

Eminence Break SF9

Eremita Mesa SC9

Escalante BC9

Esplanade AY9

Fishtail AZ9

Fossil BS9

Garnet BR9

Grand Wash Cliffs LM9

Grapevine BH9

Greenland Spring AL9

Hance Creek BE9

Primitive

Wild

Primitive

Wild

Wild

Threshold

Primitive

Threshold

Wild

Wild

Threshold

Primitive

Primitive

Threshold

Wild

Primitive

Threshold

Primitive

Primitive

Wild

Wild

Primitive

Primitive

Primitive

Wild

Primitive

1 1

1 or 2

1 2

1 or 2

1 or 2

0 or 1

1 2

2 2

1 or 2

1 or 2

1 3

1 2

1 2

1 1

1 or 2

1 1

1 or 1

1 2

1 2

1 or 2

1 or 2

1 2

1 or 2

1 2

1 or 2

1 2

17

12

23

12

12

6

23

34

12

12

29

23

23

17

12

17

11

23

23

12

12

23

12

23

12

23

A/L

A/L

A/L

A/L

A/L

D/S

A/L

A/L

A/L

A/L

A/L

A/L

A/L

D/S

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L


K-3

Use Map

Area ID

Opportunity

Class

Large Small

Group Group

Camper

Limit

Camp

Type

Hermit Creek BM7

Hermit Rapids BM8

Horseshoe Mesa BF5

Indian Hollow AN9

Jackass SI9

Kanab Creek LA9

Ken Patrick NC9

Kanab Point NK9

Lava NN9

Monument Cluster Horn Creek BL4

Salt Creek BL5

Cedar Spring BL6

Monument Creek BL7

Granite Rapids BL8

Nankoweap AE9

National BU9

North Bass AS9

Olo BT9

Outlet NG9

Palisades BA9

Parashant LE9

Pasture Wash Cluster Signal Hill SE1

Ruby Point SE2

S. Bass Trailhead SE3

Pasture Wash SE0

Threshold

Threshold

Threshold

Primitive

Threshold

Primitive

Primitive

Primitive

Threshold

Threshold

Threshold

Threshold

Threshold

Threshold

Primitive

Wild

Primitive

Wild

Primitive

Primitive

Wild

Threshold

Threshold

Threshold

Threshold

1 3

1 1

2 2

1 1

1 1

1 2

1 or 2

1 3

1 1

0 1

0 1

0 1

1 3

1 2

1 2

1 or 2

1 1

1 or 2

1 2

1 2

1 or 2

0 1

0 1

1 or 2

1 1

29

17

36

17

17

23

12

29

17

6

6

6

29

23

23

12

17

12

17

17

12

6

6

12

17

D/S

D/S

D/S

A/L

A/L

A/L

A/L

A/L

A/L

D/S

D/S

D/S

D/S

D/S

A/L

A/L

A/L

A/L

A/L

A/L

A/L

D/S

D/S

D/S

A/L


K-4

Use Map

Area ID

Opportunity

Class

Large Small

Group Group

Camper

Limit

Camp

Type

Phantom Creek AP9

Point Sublime NH1

Powell Plateau AT9

Red Canyon BD9

Rider AB9

Robbers Roost ND9

Ruby BP9

Saddle Canyon AD9

Saltwater Wash SH9

Scorpion Ridge AR9

Separation LH9

Shinumo Wash SG9

Slate BO9

Snap Point LL9

Soap Creek AB0

South Bass BQ9

South Canyon AC9

Surprise LJ9

Surprise Valley AM9

Swamp Ridge Cluster Fire Point NJ1

Swamp Point NJ2

Swamp Ridge NJ0

Tanner BB9

Tapeats Cluster Upper Tapeats AW7

Lower Tapeats AW8

Tapeats Ampitheatre AV9

The Dome LC9

Wild

Threshold

Primitive

Primitive

Primitive

Primitive

Primitive

Primitive

Primitive

Wild

Wild

Primitive

Primitive

Primitive

Primitive

Primitive

Threshold

Wild

Primitive

Primitive

Primitive

Primitive

Primitive

Threshold

Threshold

Wild

Primitive

1 or 2

1 1

1 2

1 2

1 or 1

1 3

1 2

1 1

1 1

1 or 2

1 or 2

1 1

1 2

1 or 2

1 or 2

1 1

1 1

1 or 2

1 1

1 or 1

2 or 2

1 1

1 3

1 2

1 1

1 or 2

1 or 2

12

17

23

23

17

29

23

17

17

12

12

17

17

12

17

17

17

12

17

11

22

17

29

23

17

12

12

A/L

D/S

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

D/S

D/S

A/L

A/L

D/S

D/S

A/L

A/L


K-5

Use Map

Area ID

Opportunity

Class

Large Small

Group Group

Camper

Limit

Camp

Type

Thompson Canyon NB9

Toroweap Valley NM9

Trail Canyon LF9

Trinity AQ9

Tuckup Point NL9

Unkar AG9

Vishnu AH9

Walhalla Plateau NA0

Whitmore LI9

Widforss NF9

Wild

Threshold

Wild

Wild

Primitive

Wild

Wild

Primitive

Threshold

Threshold

1 or 2

1 2

1 or 2

1 or 2

1 3

1 or 2

1 or 1

1 2

1 1

1 2

12

17

12

12

29

12

11

23

17

23

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

A/L

Figure K2: Cross-Canyon Corridor Campgrounds and Use Limits

Use Map

Area ID

Large Small

Group Group

Camper

Limit

Bright Angel CBG

Cottonwood (Summer) CCG

Cottonwood (Winter) CCG

Indian Garden CIG

2 31

1 11

1 11

1 15

90

40

16

50

Figure K3: Designated Day Use Areas in Wilderness

Use Map

Area ID

Havasupai Point HAV

Long Jim LJM

Manzanita MAN

Transept TRA

Uncle Jim Point UNJ


K-6


AppendixL

NaturalNaturalNaturalNaturalNaturalConditionsConditionsConditionsConditionsConditions

OOOOO f all the concepts dealt with in conservation history, the termnatural is one of the most persistent anddifficult to address due, in part, to itscultural, aesthetic and spiritual signifi-cance (Noss 1995:26). Anderson(1991) offered three criteria for assess-ing the relative naturalness of an area:(1) the amount of cultural energy re-quired to maintain the system in itspresent state; (2) the extent to which thesystem would change if humans wereremoved from the scene; and (3) theproportion of the fauna and flora com-posed of native versus nonnative spe-cies. Although it may be difficult todefine such concepts as natural (orwilderness or wildness, for that matter),the philosophy behind the originalestablishment of national parks andwilderness requires that we make theeffort (Kilgore and Heinselman1990:308).

Considerable confusion has resultedfrom a widespread misconception of thedynamics about ecosystems. Someenvision these systems as having anatural balance or static equilibrium thatin fact does not exist (Johnson andAgee, 1988:7). Although periods ofstability may exist, and multiple levels ofstability can be defined, park and wil-derness ecosystems are described asnonequilibrium systems (Holling, 1978).According to some authors, a balanceof nature occurs only over short andconstrained periods. The constant inthese systems, they maintain, is change(Grumbine 1992:61-63).

This fact is fundamental to establishingrealistic goals for park and wilderness

management (Johnson and Agee,1988:7). Components of these ecosys-tems cannot be defined at a particularlevel that will unequivocally be per-ceived as natural. The word naturaloften evokes diverse value judgmentsdifficult to reconcile. Some authorssuggest that the tern natural has to bedefined in terms of the special at-tributes of each park and wildernessarea (Kilgore and Nichols 1995: 27).For example, plant species (e.g.,ponderosa and pinyon pine) havereacted individually to climatic changesfor millennia, so that the communitiesseen today on the landscape are in parta result of past climatic shifts and thedifferential colonization rates associ-ated with each species (Brubaker1988). They represent the state of thevegetation of the ecosystem today, butare not necessarily representative ofsome past equilibrium vegetationmosaic.

For fire, some authors suggest theNPS set specific ecosystem policygoals (e.g., fire policy goals) that varysomewhat from park to park and wil-derness to wilderness, based on vari-ables in fire history, fire behavior, fireeffects, and fire responses (Kilgore andNichols 1995: 27; Parsons and Botti1996:30). A working definition fornatural, developed for the 1983 Wilder-ness Fire Symposium, involved boththe fire process and the resulting ef-fects. According to this definition, anatural fire for any given ecosystem (1)burns within the range and frequencydistribution of fire intensities, frequen-cies, seasons, and size found in thatecosystem before arrival of technologi-

L-1


cal man, and (2) yields the range of fireeffects found in that ecosystem beforethe arrival of technological man (Kilgore1985).

Even with this definition in mind, philo-sophical and policy questions remainabout the appropriateness of specificrestoration efforts. While the GMP (p.7)requires the restoration of altered eco-systems, the level and extent of allrestoration techniques relies on a Mini-mum Requirement analysis (See Chap-ter13; Appendix D, Minimum Require-ment Decision Process). In regard tolarge-scale techniques such as fire,wilderness managers must decidewhether to (1) simply allow natural firesto burn; (2) reduce obvious fuel accumu-lations in certain zones with prescribedfires or other methods and then allownatural fires to burn; or (3) carefullyrestore natural stand structure to esti-mated presettlement conditions beforeallowing natural fires to burn (Bancroft, etal. 1985; Bonnicksen 1985; Bonnicksenand Stone 1985; Lucas 1985; Parsons,et al. 1986; Worf 1985).

While admitting that change is natural,we must also accept extreme fluctuationis abnormal in many ecosystems and,when caused by human activity, oftenthreatens native biodiversity (Noss1995:11). In protecting natural ecosys-tems, human-generated change must beconstrained because nature has func-tional, historical, and evolutionary limits(Pickett, et al. 1992).

Ecological IntegrityEcological IntegrityEcological IntegrityEcological IntegrityEcological Integrity

A sound definition of integrity must bebased on evolutionary and bio-geo-graphic context (Noss 1995:20). Forthis Wilderness Management Plan,ecological integrity is defined as

...a state of ecosystem develop-ment that is optimized for itsgeographic location, includingenergy input, available water,nutrients and colonizationhistory. For national parks, thisoptimal state has been referredto by such terms as natural,naturally evolving, pristine anduntouched. It implies that eco-system structures and functionsare unimpaired by human-caused stresses and the nativespecies are present at viablepopulation levels (Woodley1993; See Noss 1995:20).

Population ViabilityPopulation ViabilityPopulation ViabilityPopulation ViabilityPopulation Viability

Population viability should be consid-ered over centuries and should behighly probable, e.g., 95-99% prob-ability using the best available popula-tion viability analysis (PVA) models(Noss 1995:11).

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BiodiversityBiodiversityBiodiversityBiodiversityBiodiversity

This Wilderness Management Planadopts the definition of biodiversity fromthe Keystone Report (1991:6) as

...the variety of life, and its process;including the variety of livingorganisms, the genetic differencesamong them, and the communi-ties and ecosystems In which theyoccur.

Native biodiversity extends this defini-tion to include viable populations of allnative species in natural patterns ofabundance and distribution.

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AppendixM

Wild andWild andWild andWild andWild andScenicScenicScenicScenicScenicRiversRiversRiversRiversRivers

PPPPP ublic Law 90-542, the Wild and Scenic Rivers Act of 1968, as amended and supplemented, estab-lishes a national policy that certainselected rivers of the nation containing�outstandingly remarkable� values shallbe preserved in their free-flowing condi-tion and protected for the benefit andenjoyment of present and future genera-tions (NPS Management Policies,Chapter 4:26-31).

In response to the 1990 Special Direc-tive 90-4, Determination of Rivers onNational Park System Lands which areEligible for National Wild and ScenicRivers System Designation, 285 milesof the Colorado River and its tributariesin Grand Canyon National Park werereported as eligible for consideration aswild or scenic rivers (see GMP 1995:3).The GMP states that the NPS will ac-tively pursue the designation of eligiblesegments of the Colorado River and itstributaries as part of the national wildand scenic rivers system.

The Wild and Scenic Rivers Act pro-vides two methods for adding riversegments to the system. The firstmethod is by an act of Congress todesignate a river directly or following aCongressionally mandated study and apositive recommendation by a studyteam for designation. The secondmethod is for the Secretary of the Inte-rior, upon application by a governor, toadd a state designated river to theNational System (USDI and USDA1982).

Suitability StudySuitability StudySuitability StudySuitability StudySuitability Study

Suitability studies are initiated byCongress under Section 5(a) of theAct, or by a Federal land managementagency as part of its ongoing landmanagement planning process underSection 5(d).1 Content of the study asprovided in Section 4 of the Act in-cludes:

� a determination of the suitability ofthe river for inclusion in the nationalsystem.

� a description and analysis of existingprotection, current land ownership,and use in the study area.

� alternatives for administration of theriver area that should be included inthe system as well as an alternativeproposing that no action be taken toadd the river to the national system.

� an analysis of the impacts of theproposal and alternatives, includingbenefits and costs.

� a record of consultation and coordi-nation with other agencies andinterests and public involvementduring the study.

The basis for the judgment will bedocumented in the study report (NPS1990:39457). The determination ofwhether a river area contains outstand-ingly remarkable values is a profes-sional judgement on the part of thestudy team. Rationales for proposingdesignation include, but are not limitedto, 1) protection of park resources frominternal or external threats, 2) to extendinto or out of a park a designation orproposed designation of the river onother public lands, 3) to recognize the

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outstanding values of the river, or 3) as aperceived aid in managing a river areain the park.

River study reports contain an NPSposition on which of the alternativespresented should be selected. Con-gress may request additional input fromthe NPS. In any event, an administrativeprocess is required environmentalassessment or environmental impactstatement must be prepared to evaluatethe environmental implications of therecommendation.

1 Section 5(d) statesthat [i]n all planningfor the use anddevelopment ofwater and relatedland resources,consideration shallbe given by allFederal agenciesinvolved to potentialnational wild, scenicand recreationalriver areas, and allriver basin andproject plan reportssubmitted toCongress shallconsider anddiscuss any suchpotentials. TheSecretary of theInterior and theSecretary ofAgriculture shallmake specificstudies and investi-gations to determinewhich additionalwild, scenic andrecreational riverareas within theUnited States shallbe evaluated inplanning reports byall Federal agenciesas potential alterna-tive uses of thewater and relatedland resourcesinvolved.

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AppendixN

DevelopingDevelopingDevelopingDevelopingDevelopinga Regionala Regionala Regionala Regionala RegionalWildlifeWildlifeWildlifeWildlifeWildlife

ConservationConservationConservationConservationConservationStrategyStrategyStrategyStrategyStrategy

DDDDD eveloping a conservation strategy for wildlife, including large carnivores, requires a concerted,integrated research and managementeffort consisting of at least ten steps:


Confirm The Focal Region ForConfirm The Focal Region ForConfirm The Focal Region ForConfirm The Focal Region ForConfirm The Focal Region ForThe StrategyThe StrategyThe StrategyThe StrategyThe Strategy

In this case, it would be the GrandCanyon ecoregion (Resource Manage-ment Plan 1997a:2). This area consistsof protected core areas (national parks,national monuments and national recre-ation areas, etc.) with significant defactowilderness lands. In order to meet theneeds of viable populations of nativespecies including large carnivores, thestudy area may need to be reconfiguredas new information becomes available.Significantly, no single conservationarea can be expected to function as aself-sustaining island. The landmanager�s immediate concern is todefine a focal region in which implemen-tation of the strategy will effectivelycounter the continuing erosion of largeterrestrial carnivore range (Paquet andHackman 1995:30).


Review the Region�sReview the Region�sReview the Region�sReview the Region�sReview the Region�sEcological HistoryEcological HistoryEcological HistoryEcological HistoryEcological History

There are two reasons why this is im-portant. First, it is useful to know whatchanges have occurred in the land-scape, especially since Europeansettlement. Among other things, thisrecord will help establish benchmarks

for restoration, and document thetemporal and spatial relationshipbetween human activities and wildlifeand carnivore status. Secondly, areview could be designed to obtainimportant information about how resi-dents of the region, especially privatelandowners, perceive the proposedconservation program. This is animportant step in enlisting local support(Meffe and Carroll 1997).


Determine Conservation GoalsDetermine Conservation GoalsDetermine Conservation GoalsDetermine Conservation GoalsDetermine Conservation Goalsfor Target Speciesfor Target Speciesfor Target Speciesfor Target Speciesfor Target Species

Managers can estimate the status ofpopulations using Population ViabilityAnalysis (PVA) (Shaffer and Samson1985; Suchy, et al. 1985; and Boyce1992). This will require better informa-tion on sex ratios, mortality and lifespan, social structure, population sizeand changes in carrying capacity, andgenetic variability. Long-term monitor-ing of a species in the field can revealtemporal changes in population size,and help to distinguish short-termfluctuations from long-term declines.Demographic studies are particularlyvaluable in assessing the long-termresilience of a population. In undertak-ing PVA the efforts should focus initiallyon species for which sufficient data isavailable for exploratory modeling, e.g.,the gray wolf (U.S. Department of theInterior, U.S. Fish and Wildlife Service1996).

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Improve Understanding Of TheImprove Understanding Of TheImprove Understanding Of TheImprove Understanding Of TheImprove Understanding Of TheImplications Of SmallImplications Of SmallImplications Of SmallImplications Of SmallImplications Of SmallPopulation SizesPopulation SizesPopulation SizesPopulation SizesPopulation Sizes


Determine maximum sustainableDetermine maximum sustainableDetermine maximum sustainableDetermine maximum sustainableDetermine maximum sustainableannual mortality rates, andannual mortality rates, andannual mortality rates, andannual mortality rates, andannual mortality rates, andfor exploited species,for exploited species,for exploited species,for exploited species,for exploited species,incorporate a system toincorporate a system toincorporate a system toincorporate a system toincorporate a system toregulate nonnatural deaths.regulate nonnatural deaths.regulate nonnatural deaths.regulate nonnatural deaths.regulate nonnatural deaths.

This task must acknowledge the trans-boundary movements of the speciesinvolved (Paquet and Hackman1995:31).


Identify essential ecologicalIdentify essential ecologicalIdentify essential ecologicalIdentify essential ecologicalIdentify essential ecologicalrequirements and long-termrequirements and long-termrequirements and long-termrequirements and long-termrequirements and long-termecological processes thatecological processes thatecological processes thatecological processes thatecological processes thataffect individual species.affect individual species.affect individual species.affect individual species.affect individual species.

Managers can use various methods ofhabitat evaluation, including interactionassessment (INTASS), multispeciesmatrix models, multispecies virtualpopulation analysis (MSVPA), GapAnalysis Habitat Evaluation Procedures(HEP), and cumulative impacts assess-ment.


Provide details on theProvide details on theProvide details on theProvide details on theProvide details on theinterspecific relationships ofinterspecific relationships ofinterspecific relationships ofinterspecific relationships ofinterspecific relationships ofspecies that constitute thespecies that constitute thespecies that constitute thespecies that constitute thespecies that constitute thelarge carnivore associations inlarge carnivore associations inlarge carnivore associations inlarge carnivore associations inlarge carnivore associations inthe Grand Canyon ecoregion.the Grand Canyon ecoregion.the Grand Canyon ecoregion.the Grand Canyon ecoregion.the Grand Canyon ecoregion.

A strategy based on an ecosystemapproach has to encompass commu-nity and population level relationships(see Laundre and Lopez-Gonalez1993). Carnivore community structureis thought to be influenced by predatorsize relative to prey size (Rosenweig1966), spatial and temporal differ-ences in habitat use (Bothma et al.1984), habitat configuration(Rabinowitz and Walker 1991), andinterspecific relationships(Rosensweig 1966; Paquet and Hack-man 1995:31).


Determine tolerance limits ofDetermine tolerance limits ofDetermine tolerance limits ofDetermine tolerance limits ofDetermine tolerance limits ofsensitive species for humansensitive species for humansensitive species for humansensitive species for humansensitive species for humanactivities.activities.activities.activities.activities.

Understanding how sensitive speciescan be preserved on multiple-use landincluding areas of intense humanactivity needs expanding. It is notknown how close animals already areto a threshold level of disturbance inwhich direct and cumulative effects willresult in disruption. (Paquet and Hack-man 1995:31).


Design a Network ReserveDesign a Network ReserveDesign a Network ReserveDesign a Network ReserveDesign a Network ReserveStrategy..Strategy..Strategy..Strategy..Strategy..

Assuring long-term survival of criticalwildlife species, such as large preda-tors, require enormous areas. Forexample, researchers estimate that aneffective population of mountain lions,approximately 1000-2000 adults,would require about 100 million acres

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of wildland (Jordan 1991; Noss 1991).Single reserves of this magnitude do notexist in the Grand Canyon ecoregion,but the problem becomes manageablewhen we recognize that viable popula-tions can be distributed over a muchlarger area in smaller protected unitscomprising the metapopulation.Metapopulations are discontinuouspopulations distributed over spatiallydisjunct patches of suitable habitatseparated by intervening less-suitablehabitat (McCullough 1996). Generally,viable populations are possible�provided effective connectivity existsbetween protected subpopulations ofthe metapopulation.

Although Grand Canyon National Parkis not large enough to support long-termviable populations of all native species,especially species with large arearequirements, linking other core areasby corridors holds great promise (Nossand Cooperrider 1994:144). In simpli-fied form, the regional reserve networkmodel consists of reserves connectedby broad corridors, surrounded by agradation of multiple-use buffer zones,and connected to other biogeograph-ically appropriate areas by interregionalcorridors (Noss and Cooperrider1994:146).

Core areas consist of protected areassuch as existing National Park Serviceunits, BLM areas of critical concern,wilderness areas (designated andproposed), research natural areas,certain State preserves, and nationalwildlife refuges. An emphasis on restor-ing native biodiversity and ecologicalprocesses (e.g., fire), and reducing road

densities would possibly qualify areaslike the Grand Canyon Game Preserve(North Kaibab, USFS) and BLM re-source conservation areas as coreareas.

Multiple-use buffer zonesendure a greater range of activitiesthan core areas, but still provide impor-tant ecological functions. They enlargethe effective size of reserves and maycontribute to overall metapopulationpersistence by at least temporarilysupporting resident individuals whileserving as connections between sourcehabitats (Noss and Cooperrider:150;McCullough 1996). The vast areas ofBLM public lands and national forestsprovide excellent opportunities for thisecological function.

Connectivity, essentially the oppositeof fragmentation, is fundamental to theconcept of regional reserve networks.Instead of breaking the landscape intopieces, connectivity seeks ways topreserve existing connections andrestore severed connections. Theconnectivity of interest is functionalconnectivity, usually measured accord-ing to the potential for movement andpopulation interchange of target spe-cies. (Noss and Cooperrider:150-151).Connectivity implies more than physicalcorridors. For species that disperse inmore or less random directions, suchas goshawks and spotted owls, con-nectivity is affected more by the suit-ability of the overall landscape matrixthan by the presence or absence ofdiscrete corridors. Multiple-use land-scapes with low road density andminimal human disturbance generally

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provide adequate connectivity for mostnative organisms (Noss andCooperrider 1994:151).

For corridors or other habitat linkages toserve conservation goals, their functionsmust be stated explicitly and analyzedcarefully (Soule 1991). While the scien-tific literature has concentrated on thediscrete, species-specific conduitfunction of corridors, habitat linkageshave several functions affecting manyspecies. Landscape linkages (1) pro-vide dwelling habitat for plants andanimals and (2) serve as a conduit formovement. The conduit role (a) permitsdaily and seasonal movement of ani-mals; (b) facilitates dispersal and conse-quent gene flow between populations,and rescues small populations fromextinction; and (c) allows long-distancerange shifts of species, such as inresponse to climate change (Noss andCooperrider 1994:152).


Implement InteragencyImplement InteragencyImplement InteragencyImplement InteragencyImplement InteragencyCooperationCooperationCooperationCooperationCooperation

The General Management Plan (pp. 8-9)establishes the goal to carry the NPSconcern for the environment beyondPark boundaries, including the protec-tion of Park resources and values fromexternal influences and to understand,assess, and consider the effects of Parkdecisions outside the Park as well asinside.

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AppendixO

CampsiteCampsiteCampsiteCampsiteCampsiteMonitoringMonitoringMonitoringMonitoringMonitoringManualManualManualManualManual

RapidRapidRapidRapidRapidCampsiteCampsiteCampsiteCampsiteCampsite

AssessmentAssessmentAssessmentAssessmentAssessment(RCA)(RCA)(RCA)(RCA)(RCA)

TTTTTGoalsGoalsGoalsGoalsGoals

o provide basic data for every campsite in the wilderness back-country that is reasonably located.

To provide managers with an accuraterepresentation of campsite location,distribution, and condition in Use Areaswith a range of use levels and manage-ment practices for the Threshold, Primi-tive, Semi-Primitive Mechanized, andWild Opportunity Classes.

PurposePurposePurposePurposePurpose

� To gather information that providesevaluation of the standards for campsitemanagement described in the Wilder-ness Management Plan concerning:

� Campsite Distribution�Number of campsites in asquare mile area

�Amount of barren core area ofcampsites in any ten-acre areawithin Use Areas

� Campsite Condition

� To provide a basis for managementactions required to meet managementobjectives that may include treatmentssuch as trail and campsite rehabilitation,site restoration, and/or other strategiesto reduce impacts to the physical andsocial environments.

MethodMethodMethodMethodMethod

The Rapid Campsite Assessment(RCA) method was developed to collectas much information on campsites aspossible during a routine backcountry

patrol or field session. The RCA hasalso been designed so that inventoriesare repeatable, and the campsite-monitoring program could continue ona long-term basis. The collection ofcampsite information should also beconsistent over time.

Tools needed for a field session include�RCA Data Sheets�A camera with 35-50 mm lens andcolor slide film

�Data Sheets and slides from previ-ous RCAs of the Use Area

�USGS quad map of area 7.5 MinuteSeries. (Copies may be used in thefield then transferred to mastercopy)

�Compass�Clipboard and/or Write in the RainNotebook, pens, etc.

�50-foot measuring tape (optional)

Instructions for ConductingInstructions for ConductingInstructions for ConductingInstructions for ConductingInstructions for ConductingRCA and Completing DataRCA and Completing DataRCA and Completing DataRCA and Completing DataRCA and Completing DataSheet (Attached)Sheet (Attached)Sheet (Attached)Sheet (Attached)Sheet (Attached)

The Rapid Campsite Assessment DataSheet is relatively self explanatory. Theformat of the Data Sheet correspondsto the dBase III+ program used for datastorage and analysis. It is also impor-tant to remember that when evaluatingimpacts, a certain level of subjectivity isin order.

Campsite Number

This number should correspond withthe previous inventory. If an inventoryhas not been conducted, field staffshould number campsites consecu-tively as the inventory proceeds.

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The following may be completed prior tofield work:

Use-Area ID

The three-character code used to iden-tify use areas.

Use-Area Name

Full name of use area such as �HermitCreek.�

Recorder(s)

Personnel conducting inventory ormonitoring.

Date

Survey month, day and year.

Date of Last RCA

Date of last monitoring work from formson file. If this is the first inventory, markas Baseline.

General Location and Description

Provide enough information so thatsomeone who�s never been there beforecould find the site. Note GPS coordi-nates, if available, and compass bear-ings. Information from previous RCA,and the slides will help locate the camp-site.

USGS Quad

List the 7.5 Minute Series quad map onwhich campsite is located.

The following information will be re-corded in the field:

Barren-Core Area

A barren-core area is typically themost obvious indicator of impact.Characteristics of barren core areasinclude: devoid of vegetation andorganic litter, compacted soil, andtrampled perimeter vegetation.

�Record the number of barren-coreareas within the individual campsite;�tent spaces,� cooking, and/orsocial areas, etc.

�Measure the size of each barren-core area with a tape, or by pacing.Record the dimensions of eachbarren core, enter as core A, B, C,etc.

�Record the total barren core area.This may be calculated on site, orlater.

Impact Evaluation

This is a total of ratings given to thevarious impacts observed at the site.

�Core Area Assign a rating (0 to 10) based ontotal from (c) above. Which is high-est and lowest.

�Core Soil Compaction Determine soil compaction by firmlypoking your finger onto the area. Ifthere�s any depression, considerthis a rating of two. Use your bestjudgement, considering currentenvironmental conditions.

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�Access Trails Number of distinct trails leading to/from the campsite. This does notinclude the main trail.

�Perimeter Vegetation Damage This does not include tree damage.The most common damage observedis a result of trampling; however, moresevere impacts such pulled grass forbedding has also been observed.

�Tree DamageDetermine whether or not damage isnew. Compare to previous datasheets, if any.

�Access Trail ErosionDetermine if over two inches of ero-sion has occurred on access trails.Record number of trails affected.

�Fire ImpactsEvaluate evidence of fire impacts.Note presence of charcoal, fire scars,etc.

Total Impact Rating

Record impact rating by adding thescore for each variable (describedabove).

Condition Class Rating

Record condition class rating based ontotal impact score.

Photo Log

Color slides are used in the field forrelocating campsites, and for evaluatingchange over time. Any changes seen

should be noted in the commentssection. It may not be necessary toduplicate photos each monitoringperiod if no changes are noted. Theduplication of photos provides a tool forillustrating backcountry campsite condi-tion. When taking baseline photos, it isuseful to include landmarks within theframe, or take general location photos,and label accordingly.

The photo log enables you to transferthis information to the slides when theyhave been developed. It is also usefulto carry a separate photo log to recordinformation other than the campsiteslides. Noting the compass bearingenables the next monitor to relocate thephoto direction. The description shouldbe brief such as: �Cores A and Blooking SSE from 16' away,� or, �245o

10' away from trail.�

Overall Condition Rating

Based on previous information andjudgement, rate the condition of thecampsite in comparison to the previousmonitoring session. Circle �Baseline� ifthis is the initial inventory. This informa-tion is used in evaluating the overallcondition of wilderness campsites byuse areas, and for determining a moni-toring schedule.

Comments

This may include additional information(1) useful in relocating the site, or if itwas not reasonably relocated, (2)reference to archeological sites, anddistance to water, (3) changes fromprevious RCA, (4) notes on impacts or

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improvement of site, and (5) observa-tions or recommendations for manage-ment action.

After Completing the FieldSession

�Make sure information on Data Sheetis complete and legible.

�Send in slides for processing. Labelwhen returned (see below).

�Complete Campsite Monitoring TripReport to summarize activities andcampsites monitored.

�Plot all campsites on master map.�Return report, data sheets and labeledslides to master file at the ScienceCenter.

Slide Labeling

All slides should be labeled with use-area name and number, photo number,campsite number, date, and descriptionsimilar to that recorded on data sheet.

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RAPID CAMPSITE ASSESSMENT (RCA) DATA SHEET

1. Campsite # 2. Use Area ID 3. Use Area Name

4. Recorder(s) 5. Date 6. Date of Last RCA

7. General location & Description (GPS)

8. USGS Quad

9. BARREN CORE MEASUREMENTS: Number of barren core areas

Size of each A: x = B: x = C: x = D: x = E: x =

TOTAL of all barren core areas in square feet:

10. IMPACT EVALUATION: RATING

Core Area Rating: 0:<25 2:26-50 4:51-100 6:101-250 8:251-500 10: >500

Core Soil Compaction as result of human impacts:

0: Minimal surface disturbance

2: Surface Compacted but not cement like

3: Surface cement like in compaction

Access Trails: 0: No distinct trails 1: 1-2 distinct trails

2: >2 distinct trails

Perimeter Vegetation Damage: 0: Not apparent off trails

2: Obvious damage to perimeter vegetation

Tree Damage: 0: Not evident 1: Old damage 3: New damage

Access Trails eroded >2 inches below ground surface: 0: No 1: Yes

Number of trails eroded below ground surface:

Permanent impacts from fires 0: Not evident 1: Small impact 3: Large impact

TOTAL IMPACT RATING

Impact Rating: 0 - 5 Condition Class #1

6 - 10 #2

11 - 15 #3 CONDITION CLASS RATING

16 - 20 #4

20 - 25 #5

Photo Log: Roll # Focal length of lens

Photo # Compass Bearing Description




Overall Condition Rating based on comparison of previous RCA (circle one):

No Change Positive Change Negative Change Baseline Other

Comments: (Use back for maps)


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CAMPSITE MONITORING TRIP REPORT

Trip Date(s): Name(s) _____________________Use Area Name: _ Use Area Number: ____________

Campsites Inventoried (Numbers and Locations):

Campsites Located but not Inventoried:

(Describe where they are located. Have they been plotted on the map?)

Description of area that was surveyed sufficiently to find approximately 95%

of all existing campsites:

Description of areas that need additional surveys to find 95% of campsites:

OTHER COMMENTS:

POST-TRIP CHECKLIST:

1. Location and number of all campsites plotted on map? 2. Sketch maps for cluster sites completed (Redrawn for clarity)? 3. Data sheets checks to ensure accuracy? 4. Photographs labeled and place in folder with data sheets?


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Bancroft, Larry, Thomas Nichols, David Parsons, David Graber, Boyd Evison, andJan Van Wagtendonk. 1985. In Lotan, James E., et al., Technical Coordina-tors. Proceedings�Symposium and Workshop on Wilderness Fire; 1983November 15-18; Missoula, MT. General Technical Report INT-182. Ogden,UT: U.S. Department of Agriculture, Forest Service, Intermountain Forest andRange Experiment Station:174-180.

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Cole, David N., and Troy E. Hall. 1992. Trends In Campsite Condition: Eagle CapWilderness, Bob Marshall Wilderness, and Grand Canyon National Park.Research Paper. INT-453. Ogden, UT: U.S. Department of Agriculture, ForestService, Intermountain Research Station. 40p.

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Weaver, John L. 1993. Lynx, Wolverine, and Fisher in the Western U.S.: Re-search Assessment and Agenda. U.S. Department of Agriculture, ForestService, Intermountain Research Station. Northern Rockies ConservationCoop. Missoula, MT. 132 p.

Weaver, T., and D. Dale. 1978. Trampling Effects of Hikers, Motorcycles andHorses in Meadows and Forests. Journal of Applied Ecology 15:451-457.

Whittaker, P.L. 1978. Comparison of Surface Impact by Hiking and HorsebackRiding in the Great Smoky Mountains National Park. Management Report 24.Atlanta, GA: U.S. Department of the Interior, National Park Service, SoutheastRegion. 32 p.

Woodley, S. 1993. Monitoring and Measuring Ecosystem Integrity in CanadianNational Parks. In Woodley, S., J. Kay, and G. Francis. Ecological Integrity andThe Management in National Parks. Ottawa: St. Lucie Press. Pages 155-176.

Worf, William A. 1985. Wilderness Management: A Historical Perspective on theImplications of Human-Ignited Fire. In Lotan, James E., et al., technical coordi-nators. Proceedings�Symposium and Workshop on Wilderness Fire; 1983November 15-18; Missoula, MT. General Technical Report INT-182. Ogden, UT:U.S. Department of Agriculture, Forest Service, Intermountain Forest andRange Experiment Station: 276-282.

Worf, William A. 1987. Introduction. In Primitive Skills Catalog. Bridger-TetonNational Forest. Jackson, WY:38p.

Young, James A., Robert R. Blank, William S. Longland, and Debra E. Palmquist.1994. Seeding Indian Ricegrass in an Arid Environment in the Great Basin.Journal of Range Management 47(1):2-7.

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1998 draft wilderness management plan

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