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DOUGLAS COUNTY FOREST ACCESS MANAGEMENT PLAN CHAPTER 1 Introduction Section Page 1.0 1.1 1.2 Regional 1.3 Working 1.4 Mission 1.5 Purpose of the Access Management 1.6 Relationship to the Comprehensive Land-Use Plan 1.7 Principles of Access Management 1.8 Term Definition 1 - 1 1 - 1 1 - 1 1 - 2 1 - 2 1 - 3 1 - 3 1 - 3 1 - 4 ---PAGE BREAK--- CHAPTER 1 INTRODUCTION OBJECTIVES The Access Management Plan provides direction for access management in the Douglas County Forest. Objectives include: Ensuring public safety for all users. Ensuring sustainability of natural resources. Minimizing conflicts between users. Providing a range of opportunities for users. 1.0 INTRODUCTION 1.1 Background The Douglas County Forestry Department (DCFD) manages 272,795 acres (426.2 square miles) of public forest land and associated resources on the Douglas County Forest. Motorized recreational use on the Forest has increased substantially in recent years and continues to do so annually. A corresponding increase in demand for utilization and access opportunities presents challenges for the DCFD in providing motorized users with access on public land while minimizing user conflicts, protecting resources, and safeguarding visitor safety. The DCFD has determined that a comprehensive approach to access management on the County’s vast acreage is needed to ensure a wide array of recreational opportunities, including those for both motorized and non-motorized recreationists. 1.2 Regional Setting The Douglas County Forest, the largest County Forest in Wisconsin, is located in the extreme northwestern corner of the State. The County is bordered to the west by Minnesota, to the south by Burnett and Washburn Counties, to the east by Bayfield County, and to the north by Lake Superior. Most of the County is within a half hour’s drive from Superior, Wisconsin, and an hour’s drive from Duluth, Minnesota. Minneapolis – St. Paul is within a 3 hour drive to the southwest and Chicago is within 6 hours to the southeast. Comprising 16 townships and 5 villages, Douglas County provides a range of commercial, industrial, and recreational opportunities within an area of 1,365 square miles. The County Forest is accessible via U.S. Routes 2 and 53, State Routes 13, 23, 27, 35, and 105, many County Highways and an extensive network of graveled township roads. Prior to the establishment of the Douglas County Forest, recreational access across most of the County resulted largely from industrial activity dating back to the mid to late 1800’s when millions of board feet of pine logs were floated down rivers to sawmills. Timber exploration and subsequent lumbering ---PAGE BREAK--- ACCESS MANAGEMENT PLAN activity in conjunction with railroad development began to open these lands up for access. In 1931, the County took title on unwanted cutover, burned, and tax-delinquent land and the Douglas County Forest was officially established that year under the County Forest Law of 1927. For the past 60 years, motorized recreational access has been a traditional use in the County Forest due primarily to a substantial increase in demand for fiber and pulpwood during the mid-1900’s and the subsequent development of associated industrial roads. The Forest also is a popular destination for snowmobilers during the winter months and for off-road enthusiasts year round. 1.3 Working Group The Access Management Plan was developed on a consultative and cooperative basis by a 6 member working group comprised of the following 4 staff positions with the DCFD: Director of Forestry and Natural Resources, Parks and Recreations Supervisor, Forester and Conservation Tech III; and the following 2 positions with the Wisconsin Department of Natural Resources (WDNR): Forestry Team Leader and Liaison Forester. The representatives were elected by their peers and/or appointed as participants. This group was assisted, for technical information, by a support team comprised of additional County and WDNR staff. 1.4 Mission Statement The mission of the working group was to develop and complete an Access Management Plan for the Douglas County Forest that focuses on motorized and non-motorized recreational access. Specific goals of the working group were to: Provide a balanced solution to the issues related to motorized vs. non-motorized recreational access on the Forest by integrating the different interests of users. Establish a system that ensures continued sustainable access to users engaging in legitimate recreational access activities. In providing recreational access, address concerns related to the protection of wildlife populations and habitat, fisheries, land and watershed management, wildland and seasonal limitations associated with motorized recreational access. Promote responsible motorized recreational access while respecting and protecting the rights of those who live, gain their livelihood or recreate in the area. Afford opportunities for public input to the DCFD regarding recreational access. The Access Management Plan will be developed as part of the Douglas County Forest Comprehensive Land-Use Plan 2006-2020 and in response to increasing recreational activity on the Forest and conflicts (real or perceived) among user groups that were identified as significant during periods of public comment. The Plan will be developed on a cooperative and integrated basis. Participating in the development 1 - 2 ---PAGE BREAK--- CHAPTER 1: INTRODUCTION process will be members of the DCFD and WDNR and citizens representing various public interests. The working group recognizes that individuals have the freedom to access the County Forest by motorized and non-motorized means according to existing resource management policies. The group also recognizes that motorized recreational access to any portion of the Forest must be compatible with non-motorized uses, and that such access must be sustainable but not infringe on the rights of other users. 1.5 Purpose of the Access Management Plan The purpose of the Access Management Plan is to address and provide field-level direction for recreational use of highway vehicles (HV) and off-highway vehicles (OHV) in the Douglas County Forest. The Plan provides a mapped system of the block-classification structure and description of the routes and trails for a specific use. Considered are the different types of vehicles and their uses, seasonal use and timing constraints, other land uses and resource values, and public comment on the management policies and objectives established by the DCFD. Also addressed are general environmental concerns and those associated with fisheries resources and wildlife habitat. The Access Management Plan provides the general public and those who use the County Forest with a field guide to motorized recreation. By noting where motorized recreation may or may not occur, the Plan also will integrate this activity with those of non-motorized recreationists. 1.6 Relationship to the Comprehensive Land-Use Plan The Access Management Plan was initiated in connection with the County Forest Comprehensive Land-Use Plan that covers the same geographical area. The Plan focuses on the resource and recreational values attributed to the County Forest and provides a policy framework from which land and resource management can proceed on an integrated basis. Motorized recreational access was a primary consideration by the public and the DCFD as requiring close attention. The Comprehensive Land-Use Plan provides broad direction with respect to motorized access through the use of management intent statements, objectives, and guidelines but increasing demand for a wide variety of recreational opportunities requires a new plan to provide those opportunities. 1.7 Principles of Access Management Planning Several principles established by the working group provide a framework within which the Access Management Plan was developed. The Plan would: Address both motorized and non-motorized recreational access on the County Forest. Address industrial/commercial access on the Forest as it affects motorized recreational use and with the understanding that industrial/commercial access is regulated by Douglas County policies and 1 - 3 ---PAGE BREAK--- ACCESS MANAGEMENT PLAN 1 - 4 the Comprehensive Land-Use Plan. Comply with State statutes and regulations and the standards of the fully independent third party Sustainable Forestry Initiative (SFI) Forest Certification program with respect to resource management and environmental conservation, administrative authorities, and Departmental management priorities established for the Forest. Act as an extension of the Comprehensive Land-Use Plan in implementing projects identified in that plan and meeting resource management objectives and guidelines prescribed for the Forest. Use a cooperative approach including the DCFD, WDNR, and the public during development and delivery of the Access Management Plan. Address vehicle types, timing (seasonal use), existing or alternate routes and trails, and limits to motorized recreational access on the County Forest while planning for the protection of natural resources. Promote a balanced approach in addressing both motor vehicle and non-motorized recreational use. Integrate existing plans and policies for established special areas of the County Forest State Natural Areas, Wildlife Management Area, Ruffed Grouse Management Areas, St. Croix National Scenic Riverway, and North Country National Scenic Trail) with those included in the Access Management Plan. Promote forest-management practices that embrace wildlife habitat and protect wildlife populations. (10) Integrate existing recreational motor vehicle trails that currently are managed and maintained for public use with those that are not formally managed. (11) Eliminate the duplication of both existing and future routes and trails to minimize access density and to promote a more efficient network for public use; (12) Minimize routes and trails that cross drainages or stream crossings in recognition of fisheries and watershed management objectives. (13) Where appropriate, recommend changes in ordinance and/or policy to ensure orderly implementation of the Access Management Plan; (14) Emphasize that those who use the County Forest are responsible for obtaining current information on road and trail conditions and the proper use of roads and trails in all weather conditions. 1.8 Term Definition Definitions and/or descriptions to clarify terminology used in the Access Management Plan can be found in Ordinance 7.2 attached as Appendix - A. The Official County Ordinance book should be referred to for the most current version.