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U.S. Department of the Interior
National Park Service

Rehabilitation of Highway 62 West
Crater Lake National Park
Klamath County, Oregon

Summary

At Crater Lake National Park, the National Park Service proposes to rehabilitate and reconstruct the approximately 7.7-mile-long segment of Highway 62 West from the west boundary to Annie Springs Junction. The road segment is reaching the end of its 25-year design life. This action is needed to rehabilitate the deteriorated and inadequate road surface and address design deficiencies for improving visitor use and park operations, particularly snow removal.

This environmental assessment examines in detail three alternatives: alternative A (no action); alternative B (resurfacing, restoration, and rehabilitation); and alternative C (the National Park Service preferred alternative). The preferred alternative includes rehabilitation of the existing roadway surface and realigning the switchbacks, and obliterating two and part of a third turnouts.

The preferred alternative would have no or negligible impacts on wilderness values, floodplains, water quality, historic structures, archeological resources, Indian trust resources, scenic resources, wetlands, prime and unique farmlands, ecologically critical areas, environmental justice, socioeconomic environment, and lightscapes. Short-term, negligible to minor, adverse impacts on biotic communities, threatened and endangered species, soils and geology, air quality, traffic, and visitor use would result during road reconstruction activities. There would be short-term, negligible to minor impacts to soundscapes and noise. At one location, Pacific Crest trailhead, noise impacts would be very short term, adverse, and minor to moderate. Short-term, negligible, beneficial effects to safety would result during road reconstruction activities. Long-term adverse impacts to biotic communities, soils, and geology would be negligible or minor. Long-term beneficial effects to park maintenance operations, some biotic communities, visitor use, traffic, and safety would be negligible to minor.

Notes to Reviewers and Respondents

This environmental assessment is available on the Crater Lake National Park Internet Web site at http://www.nps.gov/crla/ and is being distributed for public and agency review and comment for a period of 30 days. Comments, in the form of e-mail and letters, must be post marked by the due date.

If you wish to comment on the environmental assessment, you may mail comments to the name and address below. Our practice is to make comments, including names and home addresses of respondents, available for public review during regular business hours. Individual respondents may request that we withhold their home address from the record, which we will honor to the extent allowable by law. If you want us to withhold your name and address, you must state this prominently at the beginning of your comment. We will make all submissions from organizations and businesses, and from individuals identifying themselves as representatives or officials of organizations or businesses, available for public inspection in their entirety.

Please address comments to: Charles V. Lundy, Superintendent; Crater Lake National Park; Attn: Highway 62 West Road Project; Post Office Box 7; Crater Lake, OR 97604

E-mail: CRLA_Superintendent@nps.gov

CONTENTS

Summary

Notes to Reviewers and Respondents

ACRONYMS AND ABBREVIATIONS

INTRODUCTION

PURPOSE AND NEED FOR ACTION

PARK PURPOSE, SIGNIFICANCE, AND MISSION

Park Purpose

Park Statement of Significance

Park Mission

THE PURPOSE OF PARK ROADS

Functional Classifications of Park Roads

FEDERAL LANDS HIGHWAY PROGRAM

SCOPING

ISSUES AND IMPACT TOPICS

Issues

Derivation of Impact Topics

Impact Topics Selected for Detailed Analysis

Impact Topics Dismissed From Detailed Analysis

Wizard III Quarry, Rogue River National Forest

ALTERNATIVES

INTRODUCTION

ALTERNATIVE A: NO-ACTION ALTERNATIVE

ALTERNATIVE B: RESURFACING, RESTORATION, AND REHABILITATION

Roadway

Proposed Turnouts

Whitehorse Creek Crossing

Switchbacks

Pacific Crest Trail Parking Lot

ALTERNATIVE C: PREFERRED ALTERNATIVE – RESURFACING, RESTORATION, REHABILITATION, AND REALIGNMENT

MITIGATION MEASURES COMMON TO ACTION ALTERNATIVES

General

Mitigation

Visitor Use, Traffic, and Highway Safety

Clearing and Grubbing

Revegetation

Cultural Resources

Air Quality

Noise and Soundscapes

ENVIRONMENTALLY PREFERRED ALTERNATIVE

Sustainability

PERMIT AND CONSULTATION REQUIREMENTS

ALTERNATIVES CONSIDERED BUT DISMISSED FROM DETAILED ANALYSIS

COMPARATIVE SUMMARY OF NO-ACTION AND ACTION ALTERNATIVES

COMPARATIVE SUMMARY OF POTENTIAL ENVIRONMENTAL IMPACTS

CONTENTS

COMPARATIVE SUMMARY OF POTENTIAL LONG-TERM IMPACTS

AFFECTED ENVIRONMENT

LOCATION AND GENERAL DESCRIPTION OF CRATER LAKE NATIONAL PARK

Highway 62 West Project Corridor

Park Visitation

BIOTIC COMMUNITIES

Vegetation

Wildlife

THREATENED AND ENDANGERED SPECIES AND SPECIES OF CONCERN

SOILS AND GEOLOGY

CULTURAL RESOURCES

VISITOR USE, TRAFFIC, AND HIGHWAY SAFETY

PARK OPERATIONS

AIR QUALITY

SOUNDSCAPES AND NOISE

ENVIRONMENTAL CONSEQUENCES

INTRODUCTION

METHODS FOR ASSESSING IMPACTS

Biotic Communities

Threatened and Endangered Species

Soils and Geology

Cultural Resources

Archeological Resources

Historic Structures / Buildings

Visitor Use, Traffic, and Highway Safety

Park Operations

Air Quality

Soundscapes and Noise Quality

Cumulative Impacts

IMPAIRMENT OF PARK RESOURCES AND VALUES

ENVIRONMENTAL CONSEQUENCES — ALTERNATIVE A: NO ACTION

Biotic Communities

Threatened And Endangered Species And Species of Concern

Soils and Geology

Cultural Resources

Visitor Use, Traffic, and Highway Safety

Park Operations

Air Quality

Soundscapes and Noise

ENVIRONMENTAL CONSEQUENCES—ALTERNATIVE B: RESURFACING, RESTORATION, AND REHABILITATION

Biotic Communities

Threatened and Endangered Species, Species of Concern

Soils and Geology

Cultural Resources

Visitor Use, Traffic, and Highway Safety

Park Operations

Air Quality

Contents

Soundscapes and Noise

ENVIRONMENTAL CONSEQUENCES—ALTERNATIVE C: PREFERRED ALTERNATIVE

Biotic Communities

Threatened and Endangered Species, Species of Concern

Soils and Geology

Cultural Resources

Visitor Use and Highway Safety

Park Operations

Air Quality

Soundscapes and Noise

REFERENCES

LEGAL CITATIONS

CONSULTATION AND COORDINATION

FEDERAL AGENCIES

STATE AND LOCAL AGENCIES OF OREGON

NATIVE AMERICAN TRIBES

PREPARERS

APPENDIXES

APPENDIX 1: NATIONAL PARK SERVICE PRESS RELEASE

APPENDIX 2: SCOPING AND CONSULTATION LETTERS

APPENDIX 3: ENVIRONMENTAL CLEARANCES FOR WIZARD III QUARRY

APPENDIX 4: THREATENED AND ENDANGERED SPECIES LISTS

APPENDIX 5: REQUEST FOR CONCURRENCE ON EFFECTS DETERMINATION FOR EFFECTS TO NORTHERN SPOTTED OWLS

LIST OF TABLES

Table 1. Comparative Summary of Alternatives

Table 2. Comparative Summary of Potential Environmental Impacts

Table 3. Comparative Summary of Potential Long-Term Impacts

Table 5. Federal Highway Administration Noise Abatement Criteria

Table 6. Heavy Equipment Noise Levels at 50 Feet

LIST OF FIGURES

Figure 1. Rehabilitate Highway 62 West Project Site [NPS-DSC\OCT 02\106\20131]

Figure 2. Rehabilitate Highway 62 West Project Features [NPS-DSC\OCT 02\106\20132]

Figure 3. Wizard III Quarry [NPS-DSC\OCTO2\106\20133]

Figure 4. Whitehorse Crossing Proposed Profile Reduction [NPS-DSC\OCT02\106\20134]

Figure 5. Pacific Crest Trail Access Drive Realignment [NPS-DSC\OCT02\106\20135]

Figure 6. Proposed Switchback Realignment [NPS-DSC\OCT02\106\20136]

Figure 7. Option 1 — Alternative Considered but Eliminated [NPS-DSC\OCT02\106\20137]

Figure 8. Option 1A — Alternative Considered but Eliminated [NPS-DSC\OCT02\106\20138]

Figure 9. Option 4 — Alternative Considered but Eliminated [NPS-DSC\OCT02\106\20139]

ACRONYMS AND ABBREVIATIONS

INTRODUCTION

PURPOSE AND NEED FOR ACTION

The National Park Service (NPS) is proposing to rehabilitate Highway 62 West, realign two switchback curves, and improve Whitehorse Crossing within Crater Lake National Park, Klamath County, Oregon. This approximately 7.7-mile (approximately 12.5 kilometers [km]) road segment begins at the western boundary of the park to its terminus near Annie Springs Junction, the turn off for Annie Springs (south) entrance station (figures 1 and 2). This action is needed because the road segment is reaching the end of its 25-year design life, the pavement is cracking and potholing, and has inadequate surface and subsurface drainage. Additionally, the two switchback curves have operational design deficiencies impeding snow removal, and Whitehorse Crossing contains a blind curve creating a driving hazard.

An environmental assessment analyzes the proposed action and alternatives and their potential impacts on the environment. This environmental assessment has been prepared in accordance with the National Environmental Policy Act of 1969 as amended (NEPA), regulations of the Council on Environmental Quality (40 Code of Federal Regulations (CFR) 1508.9), and the National Park Service Director’s Order – 12: Conservation Planning, Environmental Impact Analysis, and Decision-making.

PARK PURPOSE, SIGNIFICANCE, AND MISSION

An essential part of the planning process is to understand the purpose, significance, and mission of the park for which this environmental assessment is being prepared.

Park Purpose

Crater Lake National Park was established in 1902 “…dedicated and apart forever as a public park or pleasure ground for the benefit and enjoyment of the people of the United States.” In managing this park, the National Park Service is charged with “…preservation of the natural objects…the protection of the timber, and …the preservation of all kinds of game and fish.” The National Park Service is committed to “…forever preserve the beauty of Crater Lake National Park; its unique ecological and cultural heritage; and to foster understanding and appreciation through enjoyment, education, and inspiration.” The National Park Service Organic Act of 1916 directs that the fundamental purpose of all parks is “to provide for the enjoyment of the same in such manner and by such means as will leave them unimpaired for the enjoyment of future generations” (NPS 2002a).

Park Statement of Significance

• Crater Lake is one of the most famous lakes on earth, principally because of the beauty imparted by its large size, blue color, mountain setting, and ever-changing character.

• Crater Lake lies in a caldera that was left by the climactic eruption of Mount Mazama more than 7,700 years ago. The circular lake, which formed in the caldera, is considered by scientists to be a unique model for how small calderas evolve over geologic time. At a depth of 1,958 feet, Crater Lake is the seventh-deepest lake in the world, and holds the world record for clarity among lakes.

• In addition to the lake, the forests that surround Crater Lake remain unlogged and are largely preserved in their pristine condition. These mature forests harbor a variety of plant and animal life, which are characteristic of higher elevations in the Cascade Range. Because extensive alteration of forestland has taken place elsewhere in the Cascade Range, some of these plants and animals are rare. The park forests, combined with the surrounding forest landscape, provides a contiguous experience. Those forests within the park boundary add unique opportunities for solitary and wilderness experiences.

• Some of the nation’s best examples of blending rustic architecture and other built features with a national park setting can be seen at Rim Village and at park headquarters in Munson Valley. Most of the structures at Rim Village and Munson Valley are listed on the National Register of Historic Places (NRHP).

• Crater Lake is of enduring importance to contemporary members of American Indian tribes because of its centrality to long-standing cultural traditions and resource harvesting activities, as well as its symbolic significance as a sacred site. The park is part of a larger cultural landscape that extends well beyond park boundaries.

• Crater Lake has been the object of scientific study for more than a century and is unique for the scientific research related to its pristine waters, associated geothermal activities, and unusual aquatic organisms.

• The unique natural and cultural resources of Crater Lake National Park provide exemplary opportunities for students and educators (NPS 2002a).
  Park Mission

• To forever preserve the beauty of Crater Lake National Park, its unique ecological and cultural heritage, and to foster understanding and appreciation through enjoyment, education, and inspiration (NPS 2000a).

FIGURE 1. REHABILITATE HIGHWAY 62 WEST PROJECT SITE [NPS-DSC\OCT 02\106\20131]

FIGURE 2. REHABILITATE HIGHWAY 62 WEST PROJECT FEATURES [NPS-DSC\OCT 02\106\20132]

Park Mission

To forever preserve the beauty of Crater Lake National Park, its unique ecological and cultural heritage, and to foster understanding and appreciation through enjoyment, education, and inspiration (NPS 2000a).

THE PURPOSE OF PARK ROADS

The purpose of a national park road is summarized in the “Park Road Design” memorandum dated 20 February 1986, from then National Park Service Director Mott:

“The purpose of park roads remains in sharp contrast to that of the Federal and State highway systems. Park roads are not intended to provide fast and convenient transportation; they are intended to enhance visitor experience while providing safe and efficient accommodation of park visitors and to serve essential management access needs.”

As stated in the 1984 National Park Service Park Roads Standards, among all public resources, those of the national park system are distinguished by their unique natural, cultural, scenic, and
recreational qualities; values that are dedicated and set aside by public law to be preserved for the benefit and enjoyment of people in such manner as will leave them unimpaired for future generations. Pragmatically, the protection, use, and enjoyment of park resources in a world of modern technology has necessitated the development of a system of public park roads; in most parks today, the basic means of providing for visitor and park administrative access is the park road system. For visitors, it is both a means and an end. It enables one visitor to reach a desired goal; for another, it is the goal. Thus, park roads are often an end unto themselves. Park roads also provide essential management access. Roads in national parks are unique in that park roads serve a distinctly different purpose from most other road and highway systems. Therefore, national park system road standards must also be unique.

The fundamental purpose of national parks—bringing humankind and the environment into closer harmony while balancing resource values and preservation—dictates that the quality of the park experience must be a primary consideration. Full use and enjoyment of a national park visit depends on its being a safe and leisurely experience. The distinctive character of park roads plays a basic role in setting this essential unhurried pace; generally, park roads are designed and planned for leisurely sightseeing. Additionally, park roads are designed with extreme care and sensitivity with respect to the natural, cultural, scenic, and recreational values through which they pass; unequivocally, sound planning and resource preservation practices dictate that park roads are laid lightly on the land and designed with extreme care. Where they exist, park roads are often narrow, winding, and hilly—but therein may lie their appeal.

Park roads are constructed only where necessary, and only as necessary, to provide access for the protection, use, and enjoyment of the natural, historical, cultural, scenic, and recreational resources, which constitute the national park system. Each segment of park roads relates to the resource traversed in a meaningful way and constitutes an enjoyable and informative experience in itself while providing the visitor with the utmost in visual quality, comfort, and safety. National park roads are fundamentally designed to maintain an overall continuing sense of intimacy blending with the countryside through which they pass. Where terrain and safety conditions permit and where such uses are advocated by the park’s approved Master Plan or General Management Plan, opportunities are also provided for random stopping to enable visitors to more completely experience park resources.

Park roads are not intended or designed as continuations of the state and federal high-speed highway network, nor are they designed or designated to serve as connecting links to those systems. As such, park roads cannot accommodate all types of vehicles nor can they accommodate all levels of speed. While the travel industry continues to develop new kinds of vehicles, the National Park Service is not obliged to construct roads or to manage traffic so that all forms of modern transportation technology can be accommodated. Recent transportation trends have significantly affected the use of National Park Service roads. There have been substantial increases in the numbers of recreational vehicles, bicycles, tour buses, and smaller less powerful automobiles using park roads within the past few decades. The growth in popularity of recreational vehicles (which are characterized by greater dimensions, slower operation, and, frequently, inexperienced drivers) is a relatively recent phenomenon. The recreational vehicle (to include tour buses) represents a significant element in the traffic service and road design requirements on park roads. Design of park roads should reflect, to the extent possible where such vehicles are permitted, the fact that recreational vehicles have very different operational and safety characteristics than automobiles.

The growth in absolute numbers of recreational vehicles and tour busses on park roads has serious safety implications resulting from large numbers of long, wide vehicles operating on relatively narrow roads. The resultant increase in the number of repeated heavy-axle loadings is also detrimental to the service life of road pavements that were not originally designed for continuous use of such large, heavy vehicles.

When the condition of park roads is examined, a determination of the size and types of vehicles that can be safely accommodated is calculated and vehicle sizes and limits are sometimes established. In some instances, it is desirable for vehicles exceeding these limits to be restricted from a particular road or road segment, rather than reconstruct roads to higher standards. Such reconstruction may result in unacceptable consequences to park resources. Where vehicle restrictions are encouraged, appropriate alternatives include but are not limited to: restricting vehicle traffic beyond specific points; providing turn-arounds and parking areas for larger vehicles; reducing speed limits; and/or providing alternate transportation means.

Safeguarding visitor safety, providing quality recreation opportunities, and conducting sound planning and resource protection and management are paramount National Park Service goals. It is with these principles that National Park Service road standards have been developed to provide definitive guidelines for those involved in making decisions affecting traffic service and circulation of park visitors.

Functional Classifications of Park Roads

A park road system includes those roads within or providing access to a park or other unit of the national park system, which is administered by the National Park Service, or by the National Park Service in cooperation with other agencies. For purposes of functional classification, the routes that constitute a park road system are broadly grouped, based on use, into three principal categories: public use park roads; administrative park roads; and urban parkways and city streets. Each category has further subdivisions or classes based on the assignment of a functional classification to a park road. Road classification is not based on traffic volumes or speed, but on the intended use or function of that particular road or route.

Public Use Park Roads

All park roads that are intended principally for the use of visitors for access into and within a park are designated as a Public Use Park Road. This includes all roads that provide vehicular passage for visitors, or access to such representative park areas as to points of scenic or historic interest, campgrounds, picnic areas, trailheads, and similar features. County, state and U.S. numbered highways maintained by the National Park Service are included.

Administrative Park Roads

The Administrative Park Road category consists of all public and nonpublic roads intended to be used principally for administrative purposes necessary to carry out management objectives for the particular area. It includes roads servicing employee residential areas, maintenance areas, and other administrative developments as well as patrol roads, truck trails, and similar administrative roads.

Urban Parkways and City Streets

These facilities serve high volumes of park and nonpark-related traffic and are restricted, limited-access facilities in an urban area.

Functionally, because it provides access for visitor use and administrative needs, Highway 62 West in Crater Lake National Park is classified as a Public Use and Administrative Park Road.

Functionally, because it provides access for visitor use and administrative needs, Highway 62 West in Crater Lake National Park is classified as a Public Use and Administrative Park Road.

FEDERAL LANDS HIGHWAY PROGRAM

Approximately 30% of the land in the United States is under jurisdiction of the federal government. The Federal Lands Highway Program was created with the 1982 Surface Transportation Assistance Act. The primary purpose of the Federal Lands Highway Program is to provide funding for a coordinated program of public roads that serve the transportation needs of federal lands, which are not a state or local government responsibility. Federal Lands Highway Program roads serve recreational travel and tourism, protect and enhance natural resources, provide sustained economic development in rural areas, and provide needed transportation access for American Indians.

The Federal Highway Administration, through interagency agreements with federal land managing agencies including the National Park Service, administers a coordinated federal lands program consisting of forest highways, public lands highways, park roads and parkways, refuge roads, and reservation roads. This program provides funding for more than 90,000 miles of federally owned and public authority-owned roads, which serve federal lands. There are approximately 8,000 miles of park roads and parkways under jurisdiction of the National Park Service. Program funds may only be used on public roads under the jurisdiction of the National Park Service. General program responsibilities include:

• The National Park Service develops a priority program of projects within available funding.

• The program is jointly administered by the National Park Service and the Federal Highway Administration in accordance with interagency agreements.

• The Federal Highway Administration undertakes a majority of the design and construction and the National Park Service is responsible for planning, environment, and protection of park values.

This project, Rehabilitate Highway 62 West, would be funded through the Federal Lands Highway Program. The Federal Highway Administration, Western Federal Lands Highway Division, is a cooperating agency on the design of the project and the preparation of the environmental assessment.

SCOPING

Scoping is the effort to involve agencies and citizens in determining the nature and extent of issues to be addressed in this environmental assessment. Scoping determines important issues and eliminates issues that are not important; allocates assignments among the interdisciplinary team members and/or other participating agencies; identifies related projects and associated documents; identifies permits, surveys, consultations, etc. required by other agencies; and creates a schedule that allows adequate time to prepare and distribute the environmental assessment for public review and comment before a final decision is made. Scoping includes any interested agency, or any agency with jurisdiction by law or expertise to obtain early input.

The staff of Crater Lake National Park, Federal Highway Administration, U.S. Forest Service, and resource professionals of the National Park Service, Denver Service Center, conducted internal scoping. This interdisciplinary process defined the purpose and need, identified potential actions to address the need, determined the likely issues and impact topics, and identified the relationship of the proposed action to other planning efforts at the park.

A press release initiating public scoping and describing the proposed action was issued 26 June 2002 (appendix 1). Comments were solicited during a public scoping period. No comments were received. Letters were sent to tribes and agencies on 3 July 2002 (see “Consultation and Coordination” in appendix 2).

The undertakings described in this document are subject to section 106 of the National Historic Preservation Act, as amended in 1992 (16 United States Code (USC) 470 et seq.). The National Park Service conducted a survey for historic properties in July and August of 2002, and in a determination of eligibility, recommended the “Wagon Roads in Crater Lake (Western Half)” as eligible for listing in the National Register of Historic Places. The Oregon State Historic Preservation Office (SHPO) concurred on the determination of eligibility (see Appendix 2) and a copy of this environmental assessment will be sent to the Oregon SHPO in accordance with the Advisory Council on Historic Preservation regulations (36 CFR Part 800).

In accordance with section 7(c) of the Endangered Species Act of 1973, as amended (16 USC 1531 et seq.), it is the responsibility of the federal agency proposing the action, in this case the National Park Service, to determine whether the proposed action would adversely affect any listed species or designated critical habitat; this determination is documented in a letter to the U.S. Fish and Wildlife Service dated 23 August 2002 (see appendix 5).

ISSUES AND IMPACT TOPICS

Issues

Issues and concerns related to this proposal were identified from past planning efforts, input from park employees, the public, American Indian tribes, and state and federal agencies. The major issues relate to potential impacts to biotic communities; threatened and endangered species and species of concern; soils and geology; cultural resources; visitor use, traffic, and highway safety; park operations; air quality; and noise.

Derivation of Impact Topics

Specific impact topics were selected to focus discussion and to allow comparison of the environmental consequences of each alternative. These impact topics were identified based on federal laws, regulations, and executive orders; 2001 NPS Management Policies; National Park Service knowledge of special or vulnerable resources, and scoping. A brief rationale for the selection of each impact topic is given below, as is the rationale for dismissing specific topics from further consideration.

Impact Topics Selected for Detailed Analysis

Biotic Communities

NEPA calls for an examination of the impacts on all components of affected ecosystems. National Park Service policy is to protect the components and processes of naturally occurring biotic communities, including the natural abundance, diversity, and ecological integrity of plants and animals (NPS Management Policies 2001a). The proposed action has the potential to affect biotic communities, so this impact topic is addressed in this environmental assessment.

Threatened and Endangered Species and Species of Concern

The Endangered Species Act (1973), as amended, requires an examination of impacts on all federally listed threatened or endangered species. National Park Service policy also requires examination of the impacts on federal candidate species, as well as state-listed threatened, endangered, candidate, rare, declining, and sensitive species. Several consultations have occurred between the National Park Service, Crater Lake National Park, and the U.S. Fish and Wildlife Service, Klamath Basin Field Office.

The U.S. Fish and Wildlife Service, Klamath Basin Field Office, provided updated species lists of federally threatened, endangered and proposed species that may be present on or in the vicinity of Crater Lake National Park (Klamath County). An updated list was received in April 2003 (see appendix 4). Based on the federal species list, there are six listed species and two candidate species that may occur in Klamath County, Oregon. Of these eight species, four species [shortnose sucker (Chasmistes brevirostris), Lost River sucker (Deltistes luxatus), Oregon spotted frog (Rana pretiosa), and yellow-billed cuckoo (Coccyzus americanus)] occur in habitats not found within the park or have not been observed in presence/absence surveys over the last eight years. A “No Effect” determination has been made for these species.

A meeting among Doug Laye and Leonard LeCaptain of the U.S. Fish and Wildlife Service, Klamath Basin Field Office, and Mac Brock, Chief, Resource Preservation and Research at Crater Lake National Park was held on 10 April 2003 to discuss the project’s potential effects to the Canada lynx. The park has conducted three years of extensive surveys for Canada lynx (Lynx canadensis) in the park—no lynx have been detected. Within the project area there are patches of old growth stands that contribute to potential lynx habitat. However the patches associated with the project’s road corridor and limited realignment would not be readily used and would probably be avoided by lynx due to the current and continued presence of traffic. Therefore, the U.S. Fish and Wildlife Service and National Park Service have determined that the project will have no effect on Canada lynx.

Three listed species are known or likely to reside within Crater Lake National Park. The species are:

• Bald Eagle (Haliaeetus leucophalus), federal threatened;

• Northern Spotted Owl (Strix occidentalis caurina), federal threatened; and

• Bull trout (Salvelinus confluentus), federal threatened.

The bald eagle is an occasional resident and may fly over the Highway 62 West corridor but would avoid vehicle and human activity. The bull trout is only located in the Sun and Lost Creeks outside of the project area. Therefore, the U.S. Fish and Wildlife Service and National Park Service have determined that the project will have no effect on the bald eagle or bull trout. The park determined that the proposed project “may affect” but was “not likely to adversely affect” the northern spotted owl. On 23 August 2002, Crater Lake National Park Superintendent, Charles Lundy, submitted a request for concurrence on the park’s determination and the U.S. Fish and Wildlife Service concurred with that determination (5 September 2002) (see appendix 5).

Threatened and endangered species are addressed as an impact topic in this environmental assessment for the northern spotted owl—all other sensitive species have been dismissed from further discussion.

Soils and Geology

Because the proposed action involves ground-disturbing activities on previously undisturbed soil and further excavation of a quarry, soils and geology are addressed as impact topics in this environmental assessment.

Cultural Resources

The National Historic Preservation Act (16 USC 470 et seq.), NEPA, National Park Service Organic Act, NPS Management Policies (2001), Director’s Order – 12: Conservation Planning, Environmental Impact Analysis and Decision-making (2001), and Director’s Order – 28: Cultural Resources Management Guideline require the consideration of impacts on cultural resources either listed in, or eligible to be listed in, the NRHP. Cultural resources include archeological resources, cultural landscapes, historic structures and districts, and ethnographic resources. Although Crater Lake is known primarily as a natural park area, it does have significant cultural resources.

Historic Structures. A rock revetment wall, located in the area of the upper switchback curve, is a contributing structure to the “Wagon Roads in Crater Lake National Park (Western Half)” historic district. The National Park Service recommends and the Oregon SHPO concurred (see Appendix 2), that the historic district is eligible for listing in the NRHP. Therefore, historic structures are addressed under Cultural Resources in this environmental assessment.

Archeological Resources. In the vicinity of the project corridor are historic-period archeological sites, which include sites and isolated finds associated with segments of the Fort Klamath–Jacksonville wagon road. Highway 62 West passes over Whitehorse Creek in the vicinity of historic-period archeological sites. The park archeologist conducted a survey of this area in 2000.

In July and August 2002, a pedestrian survey, conducted by park cultural resource staff, employed 33-feet (10-meter) transect intervals at the proposed switchback realignment, at the Pacific Crest trailhead, the area around turnout B, and at the turnout to the west of Whitehorse Crossing. Meandering transects along each side of Highway 62 at Whitehorse Creek and the Old West Entrance were also employed. A portion of a 1911 road alignment was discovered roughly parallel Highway 62, east of the modern road in the switchback area.

As proposed in the preliminary design, the realignment of the switchbacks in the preferred alternative (alternative C) would avoid historic-period archeological resources, including the 1911 road, resulting in no impact to archeological resources in the switchback area. In other areas surveyed, all artifacts and features lie beyond the area of potential effect. A report documenting the results of the pedestrian survey, together with an assessment of actions having an effect on cultural resources, was submitted to the Oregon SHPO on 9 September 2002.

The National Park Service would use archeological monitors, as necessary, in the project area to avoid disturbance of any as yet unknown cultural resources. Because archeological resources would be avoided through highway design, no impacts to archeological resources are anticipated. However, due to the proximity to known archeological resources, this topic is addressed under the Cultural Resources heading in this environmental assessment.

Visitor Use, Traffic, and Highway Safety

An estimated 445,000 people visited the park area in 2001. The proposed project is a major access route to the lake and is needed to improve driving conditions. All alternatives in this document have the potential to impact visitor use, traffic, and highway safety. Therefore, visitor use, traffic, and highway safety are addressed as impact topics in this environmental assessment.

Park Operations

Crater Lake National Park receives an average of 522 inches of snow each winter. Although the proposed project would not diminish the need for or level of snow removal, it would improve snow removal operations. The roadway is prone to potholing and a new road surface would minimize maintenance and repairs. Therefore, these activities under park operations are addressed as an impact topic in this environmental assessment.

Air Quality

The 1963 Clean Air Act, as amended (42 USC 7401 et seq.), requires federal land managers to protect park air quality, while the 2001 NPS Management Policies address the need to analyze air quality during park planning. Crater Lake National Park was designated Class I under the 1963 Clean Air Act, as amended. A Class I area is subject to the most stringent regulations of any designation.

Should any of the action alternatives be selected, local air quality would be temporarily affected by dust and vehicle emissions. Therefore, air quality is addressed as an impact topic.

Noise and Soundscapes

In accordance with NPS Management Policies (2001) and Director’s Order – 47: Sound Preservation and Noise Management, an important part of the National Park Service mission is preservation of natural soundscapes associated with national park units. Natural soundscapes exist in the absence of human-caused sound. The natural ambient soundscape is the aggregate of all the natural sounds that occur in park units, together with the physical capacity for transmitting natural sounds. The frequencies, magnitudes, and duration of human-caused sound considered acceptable varies among National Park Service units, as well as potentially throughout each park unit, being generally greater in developed areas and less in undeveloped areas.

Construction projects would be accomplished under the implementation of either alternative B or C. Equipment and vehicles involved in hauling, construction activities, and removal of existing switchbacks (alternative C) would generate the primary source of noise. Therefore, soundscapes and noise are addressed as an impact topic in this environmental assessment.

Impact Topics Dismissed From Detailed Analysis

Wilderness Values

The Wilderness Act of 1964 “established a National Wilderness Preservation System to be composed of federally owned areas designated by Congress as ‘wilderness areas,’ and these shall be administered for the use and enjoyment of the American people in such manner as will leave them unimpaired for future use and enjoyment as wilderness.” Among other mandates are the protection of wilderness areas and the preservation of their wilderness character. Wilderness characteristics are defined in the Wilderness Act as:

• The earth and its community of life are untrammeled by humans, where humans are visitors and do not remain.

• The area is undeveloped and retains its primeval character and influence, without permanent improvements or human habitation.

• The area generally appears to have been affected primarily by the forces of nature, with the imprint of humans’ work substantially unnoticeable.

• The area is protected and managed so as to preserve its natural conditions.

• The area offers outstanding opportunities for solitude or a primitive and unconfined type of recreation.

Park staff proposed wilderness boundaries in 1974, 1984, and 1994. The 1994 proposal, based on the 1984 Crater Lake Road Improvement Study, modified earlier 1974 and 1984 wilderness proposals and delineated clearer boundaries for areas excluded from the wilderness designation.

The 1994 wilderness proposal included all of the acreage in Crater Lake National Park with exclusions for road corridors, utility lines, and administrative sites. “The road corridor is defined as being 200 feet from centerline for all roads, adjacent viewpoints, or picnic areas regularly maintained for motorized access by visitors. This corridor will allow for regular maintenance and hazard tree management and excludes a total of 2,430 acres in the park from wilderness designation. Other exclusions from wilderness associated with the road corridor are a 600-foot radius from the intersection of where some currently maintained trails intersect with roads. This was made to permit needed future development at trailheads where visitor safety necessitates additional parking and signage.”

The legislative process has not been completed for the Crater Lake National Park Wilderness Designation proposal. However, it is the policy of the National Park Service (2001 NPS Management Policies, Chapter 6: Wilderness Preservation and Management) to “take no action that would diminish the wilderness suitability of an area possessing wilderness characteristics until the legislative process has been completed. Until that time, management decisions pertaining to lands qualifying as wilderness will be made in expectation of eventual wilderness designation. This policy also applies to potential wilderness, requiring it to be managed as wilderness…”

Although some construction work on the road would be near the proposed wilderness boundary, proposed wilderness lands would be avoided during construction activities. In all alternatives, the road would remain in the area excluded from proposed wilderness designation (see figure 6). Prior to construction, the construction zone would be surveyed and construction tape, snow fencing, or some similar border material would be installed along the boundary. The border material would delineate the construction zone and no construction work, movement, or other activity would be allowed beyond the border material into proposed wilderness lands. There would be no long-term adverse consequences to proposed federally designated wilderness lands or potential wilderness values or solitude should the proposal be selected. Therefore, wilderness values has been dismissed as an impact topic in this environmental assessment.

Ecologically Critical Areas, Wild and Scenic Rivers, Other Unique Natural Areas

Crater Lake National Park is an important natural area and has unique and fragile areas including Llao Rock, Pumice Desert, Desert Creek, Sphagnum Bog Research Natural Areas, Boundary Springs, Sand Creek Pinnacles, and Thousand Springs. The proposed action would not threaten the qualities and resources that make these areas or Crater Lake National Park special. There is proposed critical habitat for the bull trout. Proposed habitat for the bull trout is outside of the project area (Bowerman pers. comm. 2003). There are no existing or potential Wild and Scenic Rivers within the park. Therefore, Wild and Scenic Rivers was dismissed as an impact topic in this environmental assessment.

Floodplains, Water Quality, and Wetlands

Executive Order 11988 (Floodplain Management) requires an examination of impacts to floodplains and potential risk involved in placing facilities within floodplains. NPS Management Policies, Director’s Order – 2: Planning Guidelines, and Director’s Order – 12: Conservation Planning, Environmental Impact Analysis, and Decision-making provide guidelines for proposals in floodplains. The 1972 Federal Water Pollution Control Act, as amended by the Clean Water Act of 1977, is a national policy to restore and maintain the chemical, physical, and biological integrity of the nation’s waters; to enhance the quality of water resources; and to prevent, control, and abate water pollution. NPS Management Policies provide direction for the preservation, use, and quality of water in national parks. Executive Order 11990 (Protection of Wetlands) requires an examination of impacts to wetlands.

The construction limits are outside of floodplains and not near water bodies. Floodplains and water quality would not be affected by the proposed action. There are no jurisdictional or National Park Service-defined wetlands within the project area. Therefore, floodplains, water quality, and wetlands was dismissed as an impact topic in this environmental assessment.

Cultural Landscapes

As described by the National Park Service Cultural Resource Management Guideline (Director’s Order – 28), a cultural landscape is: “...a reflection of human adaptation and use of natural resources and is often expressed in the way land is organized and divided, patterns of settlement, land use, systems of circulation, and the types of structures that are built. The character of a cultural landscape is defined both by physical materials, such as roads, buildings, walls, and vegetation, and by use reflecting cultural values and traditions.” There are no cultural landscape features identified in the immediate area of the road corridor that could be affected by current project actions; therefore, cultural landscapes were dismissed as an impact topic in this environmental assessment.

Ethnographic Resources

The National Park Service defines ethnographic resources as any “site, structure, object, landscape, or natural resource feature assigned traditional legendary, religious, subsistence, or other significance in the cultural system of a group traditionally associated with it” (Director’s Order – 28: Cultural Resource Management Guideline, p.181). Because no ethnographic resources are known to exist in or in proximity to the project area (S.M. pers. comm. 2002), ethnographic resources were dismissed as an impact topic in this environmental assessment.

Indian Trust Resources

Secretarial Order 3175 requires that any anticipated impacts to Indian trust resources from a proposed project or action by Department of Interior agencies be explicitly addressed in environmental documents. The federal Indian trust responsibility is a legally enforceable fiduciary obligation on the part of the United States to protect tribal lands, assets, resources, and treaty rights, and it represents a duty to carry out the mandates of federal law with respect to American Indian and Alaska Native tribes.

There are no Indian trust resources in Crater Lake National Park. The lands comprising Crater Lake National Park are not held in trust by the Secretary of the Interior for the benefit of Indians due to their status as Indians. Therefore, Wild and Indian trust resources was dismissed as an impact topic in this environmental assessment.

Museum Objects

The National Park Service defines a museum object as a material thing possessing functional, aesthetic, cultural, symbolic, and/or scientific value, usually moveable by nature or design (NPS Director’s Order – 28: Cultural Resource Management 1998). Because there are no museum collections in the proposed project areas, museum objects was dismissed as an impact topic in this environmental assessment.

Prime and Unique Farmlands

In 1980, the Council on Environmental Quality directed that federal agencies assess the effects of their actions on farmland soils classified by the U.S. Department of Agriculture’s Natural Resources Conservation Service as prime or unique. Prime or unique farmland is defined as soil that particularly produces general crops such as common foods, forage, fiber, and oil seed; unique farmland produces specialty crops such as fruits, vegetables, and nuts. There are no prime or unique farmlands associated with the project area; therefore, prime and unique farmlands was dismissed as an impact topic in this environmental assessment.

Environmental Justice

Executive Order 12898 (General Actions to Address Environmental Justice in Minority Populations and Low-Income Populations) requires all agencies to incorporate environmental justice into their missions by identifying and addressing disproportionately high and adverse human health or environmental effects of their programs and policies on minorities and low-income populations or communities. No alternative would have health or environmental effects on minorities or low-income populations or communities as defined in the Environmental Protection Agency’s Draft Environmental Justice Guidance (July 1996). Therefore, environmental justice was dismissed as an impact topic in this environmental assessment.

Lightscapes

In accordance with NPS Management Policies (2001), the National Park Service strives to preserve natural ambient landscapes, which are natural resources, and values that exist in the absence of human-caused light. Lightscapes would not be affected by the proposed action; therefore, lightscapes was dismissed as an impact topic in this environmental assessment.

Scenic Resources

In the evaluation of scenic quality, both the visual character and visual quality of a viewshed are considered. A viewshed comprises the limits of the visual environment associated with the proposed action. The park road has been in place for decades. The proposed action does not expand or change the road corridor, nor does it create any scenic vistas. During the construction period there would be effects due to the presence of construction equipment, but these effects would be short term and would occur within an existing developed road corridor having a negligible effect on park scenic values. Therefore, scenic resources was dismissed as an impact topic in this environmental assessment.

Socioeconomic Environment

The socioeconomic environment consists of local and regional businesses and residents, the local and regional economy, park concessions, and land use. The local economy and most business of the communities surrounding the park are based on professional services, construction, educational research, tourist sales and services, and recreation; the regional economy is strongly influenced by tourist activity.

Local and Regional Economy. Should the preferred alternative be implemented, short-term economic benefits from construction related expenditures and employment would include economic gains for some local and regional businesses and individuals.

Land Use. The project area is a transportation corridor. The park is bounded on the northeast, south, and east by the Winema National Forest; on the north by the Umpqua National Forest; and on the northwest, west, and southwest by the Rogue River National Forest and Sky Lakes Wilderness Area. In addition, the park adjoins Sun Pass State Forest and an 80-acre block of private land on the southeast corner. The preferred alternative would not change present and future parkland use, transportation patterns, or those uses of surrounding lands.

There would be short-term benefits to the local and regional economy and local and regional businesses should the preferred alternative be selected and implemented. There would be no effects to present or future land use. Therefore, socioeconomic environment was dismissed as an impact topic in this environmental assessment.

Wizard III Quarry, Rogue River National Forest

All fill and rock could be obtained from the existing 5.7-acre U.S. Forest Service Wizard III Quarry. The Wizard III Quarry is approximately 22 miles (driving distance) northwest of the project area in the Rogue River National Forest on Forest Road 6530 and 6535. The quarry has been used in the past as a rock source for U.S. Forest Service road construction. The quarry contains sufficient material for either of the action alternatives (K. Cook, FHWA 2002, pers. comm.). The construction contractor would also use the quarry site for batch mixing and as a staging area. Figure 3 shows the quarry and the excavation area that would be required for the action alternatives.

The quarry site is dominated by mountain hemlock forest. Use of the Wizard III Quarry would result in the removal of small stands of young ponderosa pine and Douglas-fir tree plantings from a previously logged forest community, resulting in a long-term, negligible, adverse effect. Expansion of the Wizard III Quarry would have no effect on threatened and endangered species (see appendix 3).

The forest archeologist has determined that this use is exempted from case-by-case study under the Programmatic Agreement (Northwest Forest Plan 1994, Appendix A) with the SHPO. Due to the nature of the proposed action, surveys would not be required (Hays, U.S. Forest Service, pers. comm. 2002). This area has also been previously logged (see appendix 3).

An asphalt batch plant and rock crushing unit would be located at the Wizard III Quarry. The operation of the batch plant and rock-crushing unit require an Oregon air discharge permit. Emissions would be regulated and controlled through permit stipulations. Effects to air quality would be short-term, negligible, and adverse.

Volcanic rocks, mostly andesite with small amounts of breccia, would be excavated and crushed to smaller sizes and to aggregate at the Wizard III Quarry site. It is estimated that 15,000-cubic yards of aggregate would be necessary for alternative B, and an estimated 35,000-cubic yards of aggregate would be necessary for alternative C. Approximately, 2 acres (0.8 hectare) of surface area (previously unexcavated soils) would be affected during quarry excavation activities. Most of the aggregate would be excavated from areas previously mined, rendering the quarry deeper. Approximately, 1.6 acres (0.6 hectare) of surface area (previously unexcavated soils) would be affected during quarry excavation activities. This would constitute a negligible, long-term, adverse effect to soils and geology at the quarry.

Use of the area would be in full compliance with the Rogue River National Forest Land and Resource Management Plan (1990) as amended by the Record of Decision for Amendments to Forest Service and Bureau of Land Management Planning Documents within the Range of the Northern Spotted Owl and attached Standards and Guidelines for Management of Habitat for Late-Successional and Old-Growth Forest Related Species within the Range of the Northern Spotted Owl (Northwest Forest Plan 1994). Therefore, further analysis of effects to the Wizard III Quarry site are not included in this environmental assessment.

FIGURE 3. WIZARD III QUARRY [NPS-DSC\OCTO2\106\20133]

ALTERNATIVES

INTRODUCTION

This section describes a no-action and two action alternatives for roadway improvements at Crater Lake National Park. Alternatives were developed to provide an enjoyable and reliable roadway while preventing loss of natural and cultural resources and improving operational efficiency and sustainability.

ALTERNATIVE A: NO-ACTION ALTERNATIVE

The no-action alternative would be the continuation of existing conditions. The no-action alternative would leave Highway 62 West as it is today. Deficiencies include deteriorating pavement, inadequate drainage, and sharp curves with poor sight distances. The no-action alternative does not preclude short-term, minor activities (e.g., limited safety and drainage improvements or normal highway maintenance activities) that would be part of routine maintenance for continuing operations of the existing roadway.

Should the no-action alternative be selected, Crater Lake National Park would respond to future needs and conditions associated with the roadway without major actions or changes from the present course.

ALTERNATIVE B: RESURFACING, RESTORATION, AND REHABILITATION

Roadway

This alternative refers to resurfacing, restoration, and rehabilitation of the existing roadway starting at milepost 65.5, the western boundary of the park, and ending at milepost 73.2, just west of Annie Springs Junction. It is intended to improve poor pavement conditions, restore adequate drainage, and improve sight distances. New traffic control and informational signage would be installed. The road would be improved within the existing road alignment; no widening would take place. It would include recycling a portion of the existing roadway surface and base; laying, leveling, and compacting this material; and applying a 3-inch asphaltic concrete overlay. Subexcavation of unsuitable sub-grade material and backfill with free-draining sub-base would be performed, as necessary.

Guardrails would be maintained, replaced, or added as determined necessary for safety. Guardrails not needed would be removed and stored, if in good condition, by the park for reuse at another location. Culverts that are partially plugged would be cleaned to improve drainage. Cuts and fill slopes would be between 1.5:1 (1 foot vertical rise to 1.5 feet of horizontal run) and 2:1 (1 foot vertical rise to 2 feet of horizontal run).

Topsoil and forest duff from the project site would be salvaged and stored to restore areas of disturbance. The storage would be within the existing Highway 62 West corridor or at designated staging sites on previously disturbed ground.

Proposed Turnouts

Three existing turnouts would be modified to improve resource conditions or visitor use. Currently, at the western boundary (see figure 2), the turnout is only partially paved. The unpaved portion would be obliterated, re-ditched to improve runoff, and revegetated, thus reducing erosion problems at this site. The paved portion would be resurfaced with an asphalt overlay like the roadway.

The turnout at milepost 66.4 (labeled turnout A on figure 2; a kiosk is currently being installed and a vault toilet will be installed at a later date) would be rehabilitated. A small portion of the turnout, approximately 33 by 50 feet (10 by 15 meters) would be removed and revegetated. Removing the perpendicular park area of the turnout at the old West Entrance eliminates parking that is incompatible with the remainder of the turnout and improves circulation and egress.

A turnout on the south side of Highway 62 West at milepost 67 (labeled turnout B on figure 2) is seldom used and would be obliterated and revegetated. The turnout to the east on the north side of the road would be rehabilitated.

Whitehorse Creek Crossing

The road segment from milepost 69.5 to milepost 69.7 is referred to as Whitehorse Crossing. The road gains elevation over a small hill on the west side of a curve. For travelers heading east (toward the lake), the gain in elevation is enough to create a visual barrier of the upcoming (blind) curve. Park staff have reported accidents occurring in this area (Toso pers. comm. 2002). This alternative would reduce the profile of the hill (flatten the road) to increase sight distance, raise the super-elevation of the curve (raise the outside of the curve) to help keep vehicles in the roadway, improve the horizontal alignment for safety, and provide additional signage (figure 4).

Cut and fill slopes in this area would be 2:1. This would keep new disturbance to a minimum, avoid snags (dead trees used by wildlife species as habitat) and large trees, and prevent the placement of fill into the ephemeral Whitehorse Creek.

Switchbacks

The road segment from milepost 71.1 to milepost 71.5 contains two switchbacks. In this alternative, the roadway would be resurfaced and rehabilitated, and widened to the greatest extent possible within the existing alignment to assist with wider tracking vehicles. The road would remain in the existing alignment and within the previously disturbed area.

FIGURE 4. WHITEHORSE CROSSING PROPOSED PROFILE REDUCTION [NPS-DSC\OCT02\106\20134]

Pacific Crest Trail Parking Lot

The Pacific Crest Trail parking lot entry is located at milepost 72.5. This parking lot is designed for horse and stock access to the trail. The access drive to the parking lot is at an approximate 45-degree angle to the road, making it difficult for vehicles pulling trailers to enter and exit the lot onto and off of the 45-mph highway. Under this alternative, the access drive would be realigned to the west to create a perpendicular “T” intersection with Highway 62 West (figure 5). The parking lot and drive would be resurfaced and graded for drainage with a 4- to 6-inch aggregate cover. The abandoned portion of the access drive would be scarified and allowed to revegetate.

ALTERNATIVE C: PREFERRED ALTERNATIVE – RESURFACING, RESTORATION, REHABILITATION, AND REALIGNMENT

Under this alternative, the road would be improved as described in alternative B. Additionally, approximately 1.5 miles of roadway—the switchbacks—would be flattened (widen the turning radius), requiring construction on roadless land adjacent to the existing road. The tight radii of the switchbacks create operational difficulties for large vehicles, including snowplows and long recreational vehicles. The new alignment would widen the curves and lengthen sight distance (figure 6).

The road grade would be maintained at approximately 6.5%. The centerline of the lower curve would be moved approximately 164 feet (50 meters) to the west, and the centerline of the upper curve would shift approximately 150 feet (45 meters) to the east. The abandoned road alignment would be restored. Along the upper switchback (southern switchback) the slope would be steepened to 1.5:1 to avoid the revetment wall, otherwise the slope would remain at 2:1. Tree wells would be installed around six trees over 10-feet tall (Western pine (P. monticola) or Sugar pine (P. lambertiana)), at or near the toe of the fill slope to protect them.

MITIGATION MEASURES COMMON TO ACTION ALTERNATIVES

General

The Highway 62 West rehabilitation project would begin in May 2004, or as soon as the road is clear of snow. The construction season is generally May through October. It is anticipated that the project would take two seasons to complete, possibly three, including revegetation efforts. However, construction could be delayed by weather conditions, available funding, or other unexpected events.

Mitigation

Mitigation measures were analyzed as part of the action alternatives to rehabilitate Highway 62 West. Mitigation measures discussed below have been prepared to lessen or eliminate any potential adverse effects of alternatives B and C.

FIGURE 5. PACIFIC CREST TRAIL ACCESS DRIVE REALIGNMENT [NPS-DSC\OCT02\106\20135]

FIGURE 6. PROPOSED SWITCHBACK REALIGNMENT [NPS-DSC\OCT02\106\20136]

All removed trees 8-inches in diameter at breast height (dbh) would be saved and stockpiled to be used as trail features such as bridges, railings, benches, signs, etc. The maximum length should be standard lumbering length, which is around 40 feet.

Up to six trees over 10-feet tall located at or near the toe of the fill slopes would be protected with tree wells and six to eight trees under 10-feet tall would be saved for transplanting.

Highway 62 West improvements would be limited to the minimum corridor necessary for a safe driving experience. Both the designs and colors of construction materials would blend with the surroundings. Cut and fill slopes would be roughened and revegetated to blend into the natural environment.

Sediment traps, erosion check structures, and/or filters would be considered. Best management practices are means of preventing or reducing nonpoint source pollution into drainages and of minimizing soil loss and sedimentation. Best management practices would include all or some of the following features, depending on site-specific requirements:

• Locating excavated materials outside of drainages to avoid sedimentation;

• Conducting regular site inspections throughout the construction period to ensure that erosion-control measures were properly installed and function effectively;

• Armoring (with large rock and boulders) slopes that exceed 2:1 to reduce or prevent erosion;

• Properly storing, using, and disposing of chemicals, fuels, and other toxic materials; and

• Refueling construction equipment in upland areas only, to prevent fuel spills near water resources.

Visitor Use, Traffic, and Highway Safety

Highway 62 West would remain open during construction. Construction would not be allowed on holidays or weekends unless approved in advance by the superintendent.

During construction, Crater Lake National Park visitors would be routed away from construction areas. Barricades would be placed around construction areas to prevent visitor entry. If necessary, Highway 62 West would be closed temporarily for periods of no longer than 30 minutes, and signs would be posted notifying visitors of delays.

Clearing and Grubbing

Construction limits would be clearly marked with ribbons and stakes prior to the beginning of ground-disturbing activities. No disturbance would occur beyond these limits. The construction limits must be within the area excluded from wilderness designation. Temporary construction fence would be installed where determined necessary by Federal Highway Administration and National Park Service project coordinators.

Revegetation

For much of the corridor, revegetation work would not be necessary because construction would be completed in previously disturbed areas of the roadway. Revegetation work would use topsoil conserved along the corridor and seeds or propagules from native species (genetic stocks originating in Crater Lake National Park). No imported topsoil, forest duff, or hay bales would be used during revegetation in an effort to avoid introduction of non-native plant species.

Undesirable species would be monitored and control strategies initiated if these species occur. To prevent the introduction of and to minimize the spread of non-native vegetation and noxious weeds, the following measures would be implemented wherever possible:

• Minimize soil disturbance;

• Pressure-wash all construction equipment before it is brought into Crater Lake National Park;

• Limit vehicle parking to existing roads, parking lots, or the access route;

• Obtain aggregate from solid rock or deep layers of the Wizard III Quarry site to avoid material potentially contaminated with weed seeds and reduce the potential introduction of non-native plants;

• Obtain additional topsoil and forest duff from the project area;

• Revegetate all disturbed sites immediately following construction activities by spreading soil and duff; and

• Monitor all disturbed areas for two to three years following construction to identify noxious weeds or non-native vegetation. The treatment of non-native vegetation would be completed in accordance with Director’s Order – 13: Integrated Pest Management Guidelines.

Salvaged soil and duff would be stored at temporary staging areas on existing turnouts within the corridor. Replacement of the soil would include spreading, scarification, mulching, and seeding and/or planting species native to the immediate area. Further treatments may include covering the soil with duff and woody litter. The overall goal of revegetation is to replicate the natural diversity and abundance of native species and avoid interfering with natural processes as much as possible.

Disturbed sites that remain following maintenance and rehabilitation projects are routinely reclaimed using techniques described in revegetation plans. Sites identified for the Highway 62 West rehabilitation project that may be available for revegetation would include abandoned turnouts and portions of the highway alignment. These plans address techniques for salvage and transplantation of existing vegetation and salvage and replacement of duff and coarse woody debris to reduce erosion potential following ground-disturbing activities. In some cases, sites would also be evaluated for direct seeding, if they are eligible. Field surveys for assessing revegetation needs would be performed within the Highway 62 West corridor to create an applicable revegetation plan.

Cultural Resources

If during construction, previously undiscovered archeological resources are discovered, all work in the immediate vicinity of the discovery would be halted until the resources could be identified and documented and an appropriate mitigation strategy developed, if necessary, in consultation with the Oregon SHPO. In the unlikely event that human remains, funerary objects, sacred objects, or objects of cultural patrimony are discovered during construction, provisions outlined in the Native American Graves Protection and Repatriation Act of 1990 would be followed.

Air Quality

Signs would be posted for several miles outside the park alerting visitors of the construction and the possibility of up to 30-minute delays. During these delays, visitors would be requested to turn off engines to eliminate motor vehicle emissions.

The contractor would use water sprinkling to reduce dust during construction activities.

Noise and Soundscapes

Contractor would be required to use state-of-the-art noise reduction technology on construction equipment to the maximum extent practicable.

ENVIRONMENTALLY PREFERRED ALTERNATIVE

According to Council on Environmental Quality regulations implementing NEPA, and National Park Service NEPA Guidelines (Director’s Order – 12), an environmentally preferred alternative must be identified in environmental documents. In order for an alternative to be environmentally preferred, it must meet the criteria established in National Park Service policies and guidance documents. An alternative must meet the following criteria to be considered an environmentally preferred alternative:

1. Fulfill the responsibilities of each generation as trustee of the environment for succeeding generations;

2. Ensure for all Americans safe, healthful, productive, and esthetically and culturally pleasing surroundings;

3. Attain the widest range of beneficial uses of the environment without degradation, risk of health or safety, or other undesirable and unintended consequences;

4. Preserve important historic, cultural, and natural aspects of our national heritage and maintain, wherever possible, an environment that supports diversity and variety of individual choice;

5. Achieve a balance between population and resource use that will permit high standards of living and a wide sharing of life’s amenities; and

6. Enhance the quality of renewable resources and approach the maximum attainable recycling of depletable resources.

The no-action alternative meets only criterion number 4, preserving important natural and cultural resources. Alternative B provides better value than alternative A, including the following advantages:

• preventing loss of natural and cultural resources (NEPA criteria 1 and 4);

• protecting public health, safety, and welfare (NEPA criteria 2);

• improving operations efficiency and sustainability (NEPA criteria 1 and 6); and

• protecting employee safety and welfare (NEPA criteria 3).

Alternative B would provide protection of visitor and employee safety and welfare through minimal disturbance to natural and cultural resources.

The environmentally preferred alternative in this environmental assessment is alternative C, the National Park Service preferred alternative. This alternative was selected as the best value when considering greater improvements to park maintenance operations, visitor and employee safety, and long-term operational costs; and other advantages including:

• preventing loss of natural and cultural resources (NEPA criteria 1 and 4);

• protecting public health, safety, and welfare (NEPA criteria 2 and 3);

• improving operations efficiency and sustainability (NEPA criteria 1 and 6); and

• protecting employee safety and welfare (NEPA criteria 3).

Sustainability

The National Park Service has adopted the concept of sustainable design as a guiding principle of facility planning and development. The objectives of sustainability are to design National Park Service facilities to:

• minimize adverse effects on natural and cultural values,

• reflect their environmental setting,

• maintain and encourage biodiversity,

• construct and retrofit facilities using energy-efficient materials and building techniques,

• operate and maintain facilities to promote their sustainability, and

• illustrate and promote conservation principles and practices through sustainable design and ecologically sensitive use.

Essentially, sustainability is living within the environment with the least impact on the environment. The preferred alternative subscribes to and supports the practice of sustainable planning, design, and use of the road and associated public and administrative facilities serviced by it through mitigation, preparation, design, and materials.

PERMIT AND CONSULTATION REQUIREMENTS

No permits would be required for the no-action alternative.

The following approvals and permits from jurisdictional agencies would be required before either of the action alternatives could be implemented:

• Oregon SHPO – Concurrence that no historic properties would be adversely affected and that effects from the project on historic and archeological resources have been taken into account in accordance with section 106 of the National Historic Preservation Act.

• Service consultation regarding threatened and endangered species, in compliance with section 7 of the Endangered Species Act of 1973, as amended.

• Permits from the U.S. Forest Service would be required for the use of quarry materials and for hauling quarry materials over roads.

• Oregon Department of Environmental Quality Basic Air Containment Discharge Permit (OAR 340-216-0020, Table 1, Part A) for the asphalt plant and rock crushing operations.

• Oregon Department of Environmental Quality, National Pollution Discharge Elimination System Stormwater Discharge Permit #1200CA.

ALTERNATIVES CONSIDERED BUT DISMISSED FROM DETAILED ANALYSIS

Figures 7, 8, and 9 illustrate three additional options that were considered for the realignment of the switchbacks. In options 1 and 1A, the lower switchback alignments would cut into the hill on the east side of the road. These two options require approximately 2,700-square yards (option 1A) to 3,900-square yards (option 1) (0.6 to 0.8 acre, 0.2 to 0.3 hectare) additional area of disturbance than alternative C. The area of disturbance would come within 213 feet (65 meters) of the proposed wilderness boundary. These options would also make snow removal more difficult than the current conditions, and potentially lead to more rock and snow slides. Therefore, these two alternatives do not best meet the purpose and need for the project and were dismissed from further consideration.

Although option 4 would create 1,190-square yards (0.25 acre, 995-square meters) less new disturbance than alternative C, this option would require the removal of more mature/large trees than alternative C, and would require a grade of over 7% making the road steeper than current conditions and possibly creating new safety hazards. Therefore, this alternative does not meet the purpose and need sufficiently for the project and was dismissed from further consideration.

FIGURE 7. OPTION 1 — ALTERNATIVE CONSIDERED BUT ELIMINATED [NPS-DSC\OCT02\106\20137]

FIGURE 8. OPTION 1A — ALTERNATIVE CONSIDERED BUT ELIMINATED [NPS-DSC\OCT02\106\20138]

FIGURE 9. OPTION 4 — ALTERNATIVE CONSIDERED BUT ELIMINATED [NPS-DSC\OCT02\106\20139]

COMPARATIVE SUMMARY OF NO-ACTION AND ACTION ALTERNATIVES

COMPARATIVE SUMMARY OF POTENTIAL ENVIRONMENTAL IMPACTS

COMPARATIVE SUMMARY OF POTENTIAL LONG-TERM IMPACTS

AFFECTED ENVIRONMENT

Detailed information on resources of Crater Lake National Park can be found in Crater Lake National Park’s 1994 Winter Use Plan, Draft Fire Management Plan, 1999 Visitor Services Plan, and other management and planning documents. A concise description of the park and of park resources potentially affected by the Highway 62 West rehabilitation project follows.

LOCATION AND GENERAL DESCRIPTION OF CRATER LAKE NATIONAL PARK

Crater Lake National Park is located in the Southern Cascades, approximately 60 miles northwest of Klamath Falls and 70 miles northeast of Medford, Oregon. Crater Lake National Park is approximately 183,000 acres (286-square miles) encompassing Crater Lake, which is 13,760 acres. The park was established in 1902 to ensure the preservation of the lake and its na