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DOUGLAS COUNTY FOREST ACCESS MANAGEMENT PLAN CHAPTER 2 Access Management Planning Process Section Page 2.0 Access Management Planning 2.1 Data and Information Base 2.2 Public 2.3 Decision Making 2.4 Forest Road and Trail 2.5 Plan Approval 2 - 1 2 - 1 2 - 1 2 - 2 2 - 3 2 - 8 ---PAGE BREAK--- CHAPTER 2 ACCESS MANGEMENT PLANNING PROCESS 2.0 ACCESS MANGEMENT PLANNING PROCESS The process used to develop the Access Management Plan encompassed four major components: data and information base, decision making process, public involvement, and the approval process. 2.1 Data and Information Base The Comprehensive Land-Use Plan was used to obtain information with respect to resource management policy and land-use patterns on the County Forest. County Land Recreation Ordinance 7.2 was the standard for what has been permitted concerning motorized recreational access on the Douglas County Forest since 1991. The Sustainable Forestry Initiative certification standards for motorized recreational access relative to other current land uses were used as fundamental compliance measures. Components of similar access management policies of the Minnesota DNR, Michigan DNR, WDNR, Chequamegon and Nicolet National Forests, and other county forests in Wisconsin were sources of information for members of the working group. Field work was undertaken by staff from the DCFD and WDNR to gain additional information with respect to a road and trail inventory on the Forest, and additional field visitations were made by individual group members. The field work produced a revised and more detailed database and a map of forest roads and trails. This information was digitized and stored via Geographic Information System (GIS) technology where the line features of individual road and trail segments were linked with associated tabular attributes. Finally, staff with the DCFD and WDNR who were not members of the working group constituted a separate knowledge base by local conditions. During the planning process, the working group met with the Forest Administrator for the Washburn County Forest, which has an access management plan. Members of the group gained an overview and insights with respect to the planning, development, and implementation of Washburn County’s access management plan. 2.2 Public Involvement The planning process that evolved for the Access Management Plan allowed for a high degree of public involvement. Individuals representing the DCFD, WDNR, Douglas County Board of Supervisors, public interest organizations, and the general public were given an opportunity to participate in the Plan’s development. The Douglas County Sheriff’s Department and local recreational user clubs also had an opportunity to contribute to the planning process. Ongoing informal notifications and consultations allowed those participants to remain aware of the progress made by the working group. Upon completion and approval of the initial draft of the Access Management Plan by the Douglas ---PAGE BREAK--- ACCESS MANAGEMENT PLAN 2 - 2 County Forest, Parks, and Recreation Committee (FPRC) in May 2005, two general public meetings were scheduled to allow for broader involvement and further refinement of the plan. These meetings afforded an opportunity for input by those who were not directly involved in the process or affiliated with an organization that participated in the Plan’s development. Advertisements and legal notices were placed in the local and regional newspapers (Northwoods Shopper and Daily Telegram) approximately three weeks in advance of the public meetings. The ads announced the dates and times of the public meetings and welcomed inquiries about them. The public meetings were held at noon on Wednesday, September 7, 2005 at the Superior Public Library (1530 Tower Avenue, Superior, WI 54880) and 6 p.m. on Wednesday, September 28 at the Solon Springs Community Center (11523 South Business 53, Solon Springs, WI 54873). There were 17 people at the Superior meeting and 23 at the Solon Springs meeting. The public was encouraged to comment about both motorized and non-motorized recreational access on the County Forest, users groups, facilities, environmental damage or other issues pertaining to access. Both meetings featured a series of information exchange sessions and more formal panel sessions. Numerous topics were discussed at these sessions, though motorized recreational access was the dominant issue. Members of the working group were available to discuss the details of the Access Management Plan and provide attendees with a copy of the draft of the Plan for review. The draft Plan also was available for public review at the DCFD office, Douglas County Clerk’s office, Superior Public Library, and the County website (http://www.douglascountywi.org). The public also was encouraged to comment on the draft Plan through standard mail or email or by telephone. Subsequent to the public meetings, an information package containing the input received from the public meetings and public comments was distributed to working group members to assist them in further evaluating the draft Plan. The group continued meeting thereafter to address concerns raised by the public and a revised version of the Access Management Plan was produced on the basis of that input. A second series of public input meetings, held at 4:30 p.m. on Tuesday, December 11, 2007 at the Solon Springs Community Center (11523 South Business 53, Solon Springs, WI 54873) and 10:30 a.m. on Thursday, December 13, 2007 at the Superior Public Library (1530 Tower Avenue, Superior, WI 54880), focused on the Comprehensive Land-Use Plan, of which the Access Management Plan is a component. Opportunities to discuss the draft Comprehensive Land-Use Plan were provided to gain additional public input on the Access Management Plan. This input was summarized by the working group and subsequent meetings were held to reevaluate the Access Management Plan on that basis. A final version of the Plan was ratified by the working group during January 2008, presented to the FPRC for approval on February 25, 2008, and presented to the County Board of Supervisors for final approval on March 20, 2008. 2.3 Decision Making Process Decisions by the working group were made on a consensual basis. By this process, each member of the group stated his or her opinion with all proposals adopted by consensus. Dissenting opinions were ---PAGE BREAK--- CHAPTER 2: ACCESS MANGEMENT PLANNING PROCESS 2 - 3 recorded for further consideration by the working group or were forwarded to the Douglas County Director of Forestry & Natural Resources for resolution. The positions advocated and opinions offered by a working group member could be challenged by another member. The ensuing discussion was a key feature of the working group’s meeting format. Decisions by the working group concerning the application of classification systems, a three-area classification system, and the development of the recommendations package (discussed elsewhere), were influenced and enhanced by the checks and balances inherent in the planning process. During implementation of the Access Management Plan, decisions on road and trail use designations will be based on recommendations by DCFD staff according to the objectives set forth in the Plan. Again, different opinions will be recorded for further consideration by the working group or will be forwarded to the County Director of Forestry & Natural Resources for resolution. 2.4 Forest Road and Trail Inventory The initial forest road and trail inventory was completed in the early 1990’s. The first digital stand delineation of the County Forest was completed at this time. Through the use of traditional orthophotography and GIS technologies, forest roads and trails were depicted visually on prints and manually digitized into digital format. This initial inventory focused on timber, wildlife, and forest- management applications. Current and potential access management were not identified or evaluated. In 2002, as part of the planning process for the Access Management Plan, the DCFD completed a second inventory of forest roads and trails that was more detailed and incorporated a use-designation process for all roads and trails on the Forest. Open and closed roads and trails for motorized use were identified according to established criteria, providing DCFD staff with a framework for determining use designations based on road/resource conditions, user conflicts, and illegal activities. A primary component of this inventory focused on the development and implementation of a process for continual updating inventory data over time. This process allows for the continuous updating of road and trail locations and use-designations through data additions, edits, and deletions. Currently, approximately 1,125 miles of forest roads and trails have been inventoried within the County Forest. They occur on a land base of 2.64 miles of roads and trails for every square mile of land in the Forest. Also, 203 miles of winter snowmobile and summer ATV trails that are managed by the DCFD but not within the Forest have been inventoried, as have 343 miles of Federal, State, County, and township roads that are within or adjacent to the Forest. Although the DCFD is not responsible for managing these roadways, the working group determined that they are a legitimate means of Forest access. ---PAGE BREAK--- ACCESS MANAGEMENT PLAN 2 - 4 Table 2.1 is a summary of roads and trails proposed for use according to DCFD policy and regulations as defined by County Land Recreation Ordinance 7.2. Table 2.1 Summary of 2006 Road and Trail Classification for the Douglas County Forest Winter system Summer system Road and trail classification No. of miles Percent No. of miles Percent HV and OHV use permitted 368.2 32.7 404.6 35.9 OHV use permitted 157.1 13.9 18.4 1.6 HV and OHV use not permitted 549.2 48.7 654.5 58.1 Unknown 52.1 4.6 49.1 4.4 Total 1,126.6 100 1,126.6 100 Includes roads and trails within the County Forest that are managed but not necessarily maintained by the Department. Includes all county forest roads except those within the Douglas County Wildlife Management Area. Snowmobile and winter ATV trail system within the County Forest. Summer ATV trail system within the County Forest. Currently, the only roads and trails on the Forest that are closed to HV use and open to OHV use are those that make up the winter snowmobile/winter ATV trail system and the summer ATV trail system with the exception of County Forest Road segments. The winter trail system offers eights times the availability of OHV use than the summer trail system, indicating that OHV’s cause much less damage when the ground is frozen and/or snow covered. Also, the permitting and regulatory processes for winter trail development and use are less complex than those for year-round trails. Table 2.2 is a summary of the funded snowmobile and winter ATV trail system within Douglas County that is managed by the DCFD. The figures are representative of the trails within the Forest and those on other non-County ownerships. Table 2.2 Summary of 2006 Funded Snowmobile and Winter ATV Trail System in Douglas County Trail length Trail designation No. of miles Percent Cross Town Route (Trail 2) 5.78 1.9 Gandy Dancer (Trail 43) 14.27 4.6 O’Saugie Trail (Trail 2) 3.66 1.2 Saunders Grade (Trail 2) 17.45 5.6 Trail 24 3.18 1.0 Trail 27 4.18 1.3 Trail 27B 1.00 0.3 Trail 28 3.62 1.2 Trail 3 9.71 3.1 ---PAGE BREAK--- CHAPTER 2: ACCESS MANGEMENT PLANNING PROCESS 2 - 5 Trail 4 43.23 13.9 Trail 4 & 41 12.39 4.0 Trail 41 37.86 12.1 Trail 5 32.67 10.5 Trail 541 2.94 0.9 Trail 7 18.32 5.9 Trail 9 32.48 10.4 Trail 925 3.68 1.2 Trail 930 5.20 1.7 Trail 935 5.68 1.8 Trail O 6.11 2.0 Wild Rivers Trail (Trail 35) 40.93 13.1 Wrenshall Grade (Trail 66) 7.28 2.3 Total 311.6 100 Table 2.3 is a summary of the nonfunded snowmobile and winter ATV trail system within Douglas County that is managed through club partnerships. The figures are representative of trails within the Forest and those on other non-County ownerships. Table 2.3 Summary of 2006 Nonfunded Snowmobile and Winter ATV Trails in Douglas County Trail length Trail designation No. of miles Percent Trail 1 12.15 50.4 Trail 17 7.31 30.3 Trail 3 Spur 1.22 5.1 Wanek Trail Connector 3.41 14.2 Total 24.09 100 ---PAGE BREAK--- ACCESS MANAGEMENT PLAN 2 - 6 Table 2.4 is a summary of the funded summer ATV trail system within Douglas County that is managed by the DCFD. The figures are representative of trails located within the Forest and those on other non-County ownerships. Table 2.4 Summary of Funded Summer ATV Trail System in Douglas County Trail length Trail designation No. of miles Percent Gandy Dancer (Trail 43) 12.01 15.1 Saunders Grade (Trail 2) 10.14 12.8 Trail 3 4.20 5.3 Trail 41 12.28 15.5 Wild Rivers Trail (Trail 35) 40.81 51.4 Total 79.4 100 Table 2.5 is a summary of public roadways within or adjacent to the Forest that are not managed by the DCFD. The use of these roadways is governed by the statutes and regulations administered by the Wisconsin Department of Transportation, Douglas County Highway Department, or local township authorities. Table 2.5 Summary of Public Roadways within or adjacent to the Douglas County Forest Road length Public roadway No. of miles Percent Federal 4.2 1.2 State 6.0 1.7 County 40.8 11.9 Town 292.5 85.2 Total 343.4 100 The primary goal in developing the DCFD’s ongoing road and trail inventory program was to accurately depict the established routes and use designations that are available to access the County Forest. This information was the foundation for analysis of area access by the working group. The inventory data was used to determine the amount of forest area that can be accessed by roads and trails. Tables 2.6 and 2.7 summarize the amount of County forest land accessed by motorized winter and motorized summer roads and trails as classified in Tables 1 and 5. The figures represent the total amount of forest area within 0.25 mile, 0.50 mile, and 1 mile for specific motorized road and trail classifications. The area percentages are based on the total forest land base of 272,795 acres. The 0.25, 0.50, and 1 mile datasets are independent of each other. The data represents the total amount of forest area available for foot access from the road or trail in a particular motorized classification. The ---PAGE BREAK--- CHAPTER 2: ACCESS MANGEMENT PLANNING PROCESS 2 - 7 data does not take into account landscape features such as potential obstructions or features that might impede foot access. However, the working group acknowledged the extensive number of such features in developing the Access Management Plan. Table 2.6 Summary of 2006 Forest Area Accessed by Motorized Winter Road and Trail System Area within 0.25 mile Area within 0.50 mile Area within 1 mile Road and trail classification Acres Percent Acres Percent Acres Percent HV use permitted 76,277 28.0 135,008 49.5 211,074 77.4 HV and OHV use permitted 45,213 16.6 43,757 16.0 24,624 9.0 OHV use permitted 26,069 9.6 26,082 9.6 13,529 5.0 Total 147,559 54.1 204,847 75.1 249,227 91.4 Road data from Table 2.5. Road and trail data from Table 2.1. Road and trail data from Table 2.1. Table 2.7 Summary of 2006 Forest Area Accessed by Motorized Summer Road and Trail System Area within 0.25 mile Area within 0.50 mile Area within 1 mile Road and trail classification Acres Percent Acres Percent Acres Percent HV use permitted 76,277 28.0 135,008 49.5 211,074 77.4 HV and OHV use permitted 55,110 20.2 54,915 20.1 31,838 11.7 OHV use permitted 1,514 0.6 594 0.2 3 0.0 Total 132,900 48.7 190,517 69.8 242,915 89.0 Road data from Table 2.5. Road and trail data from Table 2.1. Road and trail data from Table 2.1. Tables 2.8 and 2.9 summarize the amount of County forest land accessed by winter and summer non- motorized or restricted roads and trails as classified in Table 2.1. The figures represent the total amount of forest area within 0.25 mile, 0.50 mile, and 1 mile for specific road and trail classifications, as well as the total amount of forest area remaining after subtracting areas that overlap with an accessed area from a motorized road or trail (Tables 2.6 and 2.7). The 0.25 mile, 0.50 mile, and 1 mile datasets are independent of each other. The data represents the total amount of forest area available for foot access from a non-motorized road or trail while incorporating areas accessed by motorized means. The data does not take into account landscape features such as potential obstructions or features that might impede foot access. However, the working group acknowledged the extensive number of such features in developing the Access Management Plan. ---PAGE BREAK--- ACCESS MANAGEMENT PLAN 2 - 8 Table 2.8 Summary of 2006 Forest Area Accessed by Winter Restricted Road and Trail System (based on the total forest land base of 272,795 acres) Remaining area after: 0.25 mile motorized access overlap 0.50 mile motorized access overlap 1 mile motorized access overlap Road and trail area accessed Acres Percent Acres Percent Acres Percent Within 0.25 mile 80,165 28.8 47,783 17.2 17,472 6.3 Within 0.50 mile 115,314 41.5 66,776 24.0 23,714 8.5 Within 1 mile 137,765 49.5 80,185 28.8 27,763 10.0 Data on HV and OHV use not permitted (549.2 miles) from Table 2.1. Road and trail data from Table 2.6. Road and trail data from Table 2.6. Road and trail data from Table 2.6. Table 2.9 Summary of 2006 Forest Area Accessed by Summer Restricted Road and Trail System (based on the total forest land base of 272,795 acres) Remaining area after: 0.25 mile motorized access overlap 0.50 mile motorized access overlap 1 mile motorized access overlap Road and trail area accessed Acres Percent Acres Percent Acres Percent Within 0.25 mile 86,875 31.8% 51,193 18.8% 18,073 6.6% Within 0.50 mile 119,810 43.9% 69,453 25.5% 24,512 9.0% Within 1 mile 137,327 50.3% 80,074 29.4% 28,244 10.4% Data on HV and OHV use not permitted (654.5 miles) from Table 2.1. Road and trail data from Table 2.7. Road and trail data from Table 2.7. Road and trail data from Table 2.7. The inventory process itself does not include judgments about the future status or use of a given road or trail. Most of the historical routes that showed evidence of human use where future motorized access for any purpose is highly unlikely were removed from the inventory. However, the working group recognized these historical routes as a feature of the Forest. Recommendations on future road designation and uses as outlined in the Access Management Plan will be made by DCFD staff according to objectives set forth in the Plan. 2.5 Plan Approval The Access Management Plan was developed under the auspices of the seven-member FPRC. Participants were appointed from the 28-member Douglas County Board of Supervisors. The FPRC was involved throughout the development of the Plan in both an advisory and approval capacity. Authorization to proceed with the development of the Access Management Plan was sought by the ---PAGE BREAK--- CHAPTER 2: ACCESS MANGEMENT PLANNING PROCESS 2 - 9 working group and was granted by the FPRC in the fall of 2004. FPRC members periodically met with members of the working group and provided advice throughout Plan development. The Comprehensive Land-Use Plan 2006-2020 of which the Access Management Plan is a component, will be subject to review and preliminary approval by the FPRC and the full County Board of Supervisors. The Plan will then be presented to the WDNR for final approval.