What are some of the basic premises of Comprehensive Travel and Transportation Management?

Public access shall be provided to public lands, but managed to protect the public resources as well. This appendix focuses on motorized travel. Routes that are open to motorized vehicle use are also open to nonmotorized travel and, in general, cross-country travel using nonmotorized modes. Pedestrian, equestrian, and mountain bike riding, or other nonmotorized travel modes are generally not constrained, except that any proposal for construction of new trails would be subject to public review under the National Environmental Policy Act (NEPA). Emergency response (including firefighting), permitted use of motorized vehicles, and certain Bureau of Land Management (BLM) administrative uses are exceptions to specific Travel Management Plans (TMPs).

How will travel management designations be implemented?

Many Comprehensive Travel and Transportation Management (CTTM) decisions in this Resource Management Plan (RMP) revision remain unchanged. Several defined areas, specified in Chapter 2, will continue management under existing TMPs. Examples of existing TMP decisions include 1) defined areas under seasonal closures and 2) Wilderness Study Areas (WSAs) either closed to motorized vehicle use, or restricted to the routes identified during the WSA inventory process. Additionally, in many existing TMPs, routes have been designated as open or closed to motorized vehicle use and, in some cases, have been obliterated and reclaimed.

Areas not under these defined TMP decisions will be divided into additional geographic TMP areas. Each area will have its own plan with its own decisions describing routes open or closed to motorized vehicle use. Cooperating agencies, affected private landowners, and the general public will be involved in each travel planning effort prior to TMP decisions.

In depth travel management policy is found in Instruction Memorandum 2008-014 available on the web at:www.blm.gov/wo/st/en/info/regulations/Instruction_Memos_and_Bulletins/national_instruction/20080/IM_2008-014.html

How will the public know if an area is open or closed? How will the BLM ensure the public is notified?

TMPs will include a public process to ensure involvement in route inventory efforts and discussion of goals and objectives of each TMP (public access, resource protection, private land considerations, etc.); these efforts will be announced in local newspapers and the Wyoming BLM website (www.blm.gov/wy/st/en.html). Following route management decisions for each TMP, maps will be available on the website or at the Cody and Worland Field Offices. In addition, newly affected areas will be signed at entry points, or portals, and information will be provided for distribution at community venues (e.g., cooperating local stores serving remote areas). Public information and education of the public will precede enforcement. For example, as an area is undergoing TMP development, notices to the community using the area will be posted onsite to announce planning schedules and opportunities for involvement. Once decisions are made, onsite posting of decisions and maps will occur prior to enforcement actions.

What will be the schedule for TMP implementation?

Existing TMPs are expected to continue, unless a need for change is identified and assessed using a public process.

Additional TMP efforts for areas Limited to Designated roads and trails (see Maps 55-58) will be scheduled based on priorities established during RMP implementation planning (Appendix D). Priorities for implementation will be informed by cooperating agencies, affected private landowners and the general public, as well as by the level of resource management concerns identified by the BLM. It is expected that the identified future TMPs for areas Limited to Designated roads and trails will take at least five years to properly plan and implement, if each plan takes one year to complete, and if each Field Office initiates one new TMP each year.

TMPs that are defined for areas Limited to Existing roads and trails are expected to continue current motorized travel. However, the BLM will go through an inventory process to verify the existence of routes that are documented to exist at the date of the RMP Record of Decision (ROD). These inventory processes will also undergo public review to assure a complete understanding of motorized vehicle use in these TMPs. However, due to the reduced concern with resource damage or route conflicts, TMP motorized route inventories for Limited to Existing Route Areas may be prioritized to follow the TMPs described above.

Some TMPs may be closed immediately with the RMP. Depending on the selected RMP in the Record of Decision, this implementation decision may close certain WSAs, Areas of Critical Environmental Concern (ACECs), or other areas completely to motorized vehicles.

Some TMPs will continue as Open Areas or become Open Areas to all motorized vehicle use, depending on the selected RMP in the Record of Decision; and dependent on the completion of each Open Area TMP. Management of Open Areas is important for public safety and TMPs specific to each Open Area will be prioritized for completion in the RMP Implementation Planning process. Partners are particularly sought for Open Area TMP efforts.

What will the local TMP implementation process look like?

Public Involvement Details

The annual RMP Implementation Plans for each of the field offices will determine the initiation of planning efforts for any specific TMP. The schedule for the TMP will be announced in local newspapers and on the Wyoming BLM website (www.blm.gov/wy/st/en.html), and cooperating agencies and affected private landowners will be notified.

Minimum expected public involvement opportunities for each new TMP will include: posting notices of scoping and planning schedules (onsite, website, and newspaper); providing at least one public meeting during the scoping period; providing for public information and participation in the route inventory review process, which will take place over at least one entire field season (spring, summer and fall); providing for at least one public meeting following completion of the NEPA document; and, prior to decision making, providing public notice of TMP decisions on the Wyoming BLM website, local newspapers, and onsite.

Revision of existing TMPs will involve the original stakeholders and will also include opportunities for public involvement, including NEPA review, but may not be as extensive as those provided for new TMPs as stated above, depending on the issues to be resolved with the TMP revision. (For example, an entire new route inventory would not be expected.)

Route Inventory Details

Approximately 80 percent to 90 percent of the travel network is expected to be already captured on the BLM’s inventoried route network, and the BLM is acquiring additional route inventory information on an ongoing basis. This current inventory is available for review at BLM field offices. When the BLM conducts an inventory review for a new TMP, the public, cooperating agencies, and other stakeholders will be invited to review the known route inventory and to provide specific information on inventoried routes (maps will be provided) or additional routes yet to be inventoried. (The public is invited to provide global positioning system [GPS] data or other information to document other known routes.) During the route inventory review, the BLM will:

• Review and verify information provided by the public, cooperating agencies, and affected landowners.

• Continue to collect additional route data using aerial photos and verify data collected from aerial photos using GPS.

• Assess and define route condition and assign interim route category and expected maintenance level.

• Produce new maps.

Decision Criteria

Route designations provide for public access, protection of resources, public safety, and the minimization of user conflicts in accordance with the following criteria:

• Provide adequate public access using a variety of travel modes and appropriate routes.

• Minimize detriment to soil, watershed, vegetation, air, and other resources.

• Preserve wilderness characteristics for WSAs and areas defined specifically for such management in the RMP record of decision (ROD).

• Minimize harassment of wildlife and disruption of wildlife habitats, giving priority to the protection of endangered or threatened species and their habitats.

• Minimize conflicts between motorized vehicle use and other recreational uses and ensure compatibility of uses with existing conditions in populated areas, taking into account noise and other effects.

How will permitted or authorized users be affected by the TMP?

Generally, permit holders will not be impacted by the TMP as permits may allow for use of areas or routes otherwise closed to public motorized travel. Exploration for locatable minerals may be impacted in areas closed to motorized use, where a plan of operations is required (43 Code of Federal Regulations [CFR] § 3809.11(5)).

How may permit holders provide information about necessary routes and uses?

Following requests by permit holders, specific permits may authorize motorized travel on routes or in areas not available to the general public (grazing use authorizations, seismic survey permits, approved rights-of-way (ROW), Applications for Permit to Drill or Sundry Notices, timber sale permits, fuel wood permits, etc.) All affected permit holders and users of public lands are encouraged to participate in the travel and transportation inventory efforts to assure full understanding of motorized vehicle use designations in any TMP.

Can permit holders restrict public or administrative access?

No, permit holders may not obstruct public use on any route of travel that is open to the general public without authorization by a BLM authorized officer. The BLM requires administrative access across private property and permitted allotments to manage and protect public lands (43 CFR 4130.3-2(h)).

When is motorized travel allowed off TMP routes?

Necessary tasks that support commercial or industrial uses of public lands are allowed by permit in the following cases:

• Maintenance of fences and range improvements, salt placement for livestock consumption, and tending to sick cattle.

• Surveying or staking work associated with filing a Notice of Intent (NOI) to conduct geophysical exploration activities, field reconnaissance, and survey work in advance of a ROW action such as a pipeline.

• Mineral activities defined as casual use (except in Closed areas).

• Other permits or authorizations which expressly allow for motorized vehicle travel off TMP routes.

Recreational or general public activities may be allowed off TMP routes (i.e., off-road or cross-country) for specific purposes, which are defined as those activities which generally require the use of a motorized vehicle, and that do not create resource damage. Examples of necessary tasks allowing off-route travel by motorized vehicles in the Bighorn Basin RMP include:

• Parking alongside a route to remove the vehicle from the traffic lane—depending on the RMP ROD, travel may be allowed up to a certain distance from the route edge in areas Limited to Designated roads and trails or Limited to Existing roads and trails, and not allowed in Closed areas or in any WSAs.

• Travel for big game carcass retrieval—depending on the RMP ROD travel is allowed up to a certain distance from the route edge only in areas Limited to Designated routes or Limited to Existing routes, and not allowed in Closed areas or in any WSAs.

• Travel for dispersed campsite access—depending on the RMP ROD travel is allowed up to a certain distance from the route edge only in areas Limited to Designated roads and trails or Limited to Existing roads and trails, and not allowed in Closed areas or in any WSAs.

Any motorized travel outside of these parameters or that causes resource damage is a violation of the RMP decisions and is subject to enforcement action including citation and fine.

How will BLM administrative actions be affected by the TMPs? In what cases may the BLM travel off road?

BLM administrative functions may require motorized travel off TMP routes for a variety of administrative purposes where a motor vehicle is required to accomplish the mission, some of which are listed below:

• wild horse management

• fish and wildlife monitoring

• noxious weed control

• fence repair

• restoration and enhancement

• fire suppression and fuels management

• law enforcement activities

The BLM may sign certain routes for administrative use only. As appropriate and necessary, the BLM may reclaim administrative routes and preclude further (non-emergency) use.

How will private landowners be affected by TMPs?

ROWs for access will not be affected by the TMPs although certain routes may be closed to public access and use. All affected ROW holders and private landowners are encouraged to participate in the route inventory efforts to assure full understanding of motorized uses in any TMP to minimize user conflicts.

If needed, how will local TMPs be changed?

Revision of existing TMPs will involve the original stakeholders and will also include opportunities for public involvement, including NEPA review, but may not be as extensive as those provided for new TMPs as stated above, depending on the issues to be resolved with the TMP revision. (For example, an entire new route inventory would not be expected.

Issues requiring TMP revisions may include:

• adjacent landowner participation

• construction of new access routes associated with permitted activities

• resource monitoring requiring opening or closing routes

• BLM-administered land tenure adjustments

• protecting public health and safety

• preventing unacceptable resource damage

• new issues that may require a change in the TMP

• use trends, such as off-highway vehicle (OHV) recreational activities, requiring a responsive CTTM action to change motorized travel designations from Limited to Existing roads and trails to Limited to Designated roads and trails so as to maintain desired settings, experiences, and beneficial outcomes

• restoring routes if the cultural, biological, or physical resource has successfully recovered to where the OHV designation can be less restrictive and public demand for additional routes can be demonstrated

Does BLM always need to use an entire TMP to address routes?

No, the BLM may close specific roads to protect health and safety and prevent resource damage. The BLM would generally provide public notice through the NEPA process. In the case of a one year emergency route closure, the BLM would provide a Federal Register notice and newspaper publication and post a notice onsite to allow for public comment while NEPA review is underway.

What if the BLM needs to change travel designations?

There are three OHV use designations in a TMP: Open, Closed, and Limited. Changing designations requires an RMP amendment. Within the limited designation, travel can be defined as either Limited to Existing roads and trails or Limited to Designated roads and trails. Changes between Limited to Existing and Limited to Designated do not require an RMP amendment.

Why would the BLM change travel designations?

• a new regulation or policy

• use trends, such as OHV recreational activities, requiring a responsive CTTM action to change OHV designations from Limited to Existing roads and trails to Limited to Designated roads and trails to maintain desired settings, experiences, and beneficial outcomes (refer to Recreation Appendix O)

• to maintain desired physical, biological, or heritage resources

How will the BLM notify the public of revised travel designations?

• BLM website and local newspapers, at a minimum

• NEPA document scoping and comment periods will be announced

How will the BLM manage routes under a specific TMP?

Management of specific routes will be defined in each TMP. Routes may: remain open and receive a specific level of maintenance; be repaired or upgraded; be seasonally closed; be closed to motorized travel; be obliterated and reclaimed; be reconstructed or re-routed; or made available for ROW or landowner access or for administrative use only. New routes may be constructed. Signage will be defined in each TMP.

In specific TMPs, or in Recreation Area Management Plans, trails may be constructed for specific uses (e.g., hiking, mountain biking, and/or equestrian use).

How will the BLM close and reclaim additional roads and construct replacement roads?

Once a road inventory is complete, the BLM may close or construct roads through a TMP. Criteria for closing a road include:

• adverse impacts or threats to landowners or stakeholders

• threats to public safety

• adverse impacts to resources, including soil, water, or wildlife

• desired level of access

• redundant (parallel) routes

Criteria for constructing a road include:

• new authorized uses of public lands

• changes to land tenure

• resource protection

• rerouting a road for safety or resource protection

• approval through authorization, such as ROWs

Under what criteria would the BLM acquire access across private or state lands?

The BLM may acquire easements across non-federal lands as needed to meet resource objectives. Exclusive easements, which include public access, may be acquired under the following circumstances:

• Access to public lands is desirable.

• Substantial investment is planned on acquired property.

• Existing cooperative road agreements lack adequate rights for other parties.

• Where applicable in the case of the logging road permits issued or assigned after May 4, 1956, the BLM may obtain perpetual easements under the terms of 43 CFR 2812.6-2(a)(ll) for construction of roads with appropriated funds.

• Access restriction and exclusion.

Non-exclusive easements generally provide adequate administrative access for BLM management activities. They usually do not provide access for the general public.

Under what criteria will the BLM maintain roads? What are the maintenance levels?

Routes (ways) within WSAs are not maintained other than by the passage of vehicles, with certain exceptions. Exceptions are limited to the minimum mechanical maintenance necessary to provide access (1) as follows:

• For emergencies such as suppression activities associated with wildfire or search and rescue;

• To grandfathered grazing uses and facilities as defined by the Interim Management Plan (IMP) for Lands under Wilderness Review, and under specific authorizations;

• To sites where reclamation or stabilization is needed to protect or improve the lands’ wilderness values; and

• to private inholdings.

In these exceptions, maintenance will occur using the “minimum tool concept” described in the IMP for Lands under Wilderness Review. An Environmental Assessment is required to analyze maintenance alternatives except in the case of emergencies.

There are five maintenance levels assigned to a travel route ranging from low maintenance priority to high priority.

Level 1: Maintenance is limited to protecting adjacent land and resource values, which means that Level 1 roads are not maintained for motorized traffic. These roads are no longer needed and are closed to traffic. The objective is to remove these roads from the transportation system. Where appropriate, drainage and runoff patterns will be maintained to protect adjacent land. Closure and traffic restrictive devices will be maintained.

Level 2: Typically known as a ‘two-track road’, these routes are passable by high clearance vehicles and maintained dependant on funding levels. Seasonal closures or other restrictions may be imposed. When possible, drainage structures are inspected and maintained within a 3-year period. Grading as necessary to correct drainage problems. Slides may be left in place if they do not obstruct drainage.

Level 3: Natural or aggregate surface with a defined cross section, drainage structures such as rolling dips, culverts or ditches, and may normally be negotiated by passenger cars driven cautiously. User comfort and convenience are not a priority. When possible, drainage structures are inspected and maintained annually. Grading provides reasonable riding comfort at prudent speeds. Brushing to improve sight distance. Slides obstructing drainage receive high priority. Other slides are removed on a scheduled basis.

Level 4: Single or double lane with aggregate surface. Access for passenger cars driven at prudent speeds. When possible, roadway is maintained annually. Major repairs as needed.

Level 5: Highest traffic volume of the transportation system. Single or double lane with aggregate surface. Access for passenger cars traveling at prudent speeds. When possible, roads are maintained annually with preventive maintenance program. Level 5 roads are repaired as needed.

Under what criteria will maintenance levels change?

The BLM may adjust maintenance levels based upon use, available funding, and as needs arrive. Maintenance levels may be adjusted during a TMP if it is decided that a particular route would be more appropriately assigned a different maintenance level.

What are the Best Management Practices BLM intends to use?

Appendix M lists route management best management practices, and these are included in the Engineering Best Management Practices discussion.

What is the BLM’s monitoring plan for the TMP?

On a priority basis BLM will monitor motorized vehicle use for:

• user pioneered roads or trails

• impacts on wildlife

• impacts on other recreation or resource uses

• user conflicts and complaints

• resource damage

• private land conflicts

• trends in violations and incidents.

Monitoring methods include traffic counters, intercept surveys, aerial flights, remote sensing observation techniques, investigation of complaints from the public, and field observations.

How will the BLM assure that the TMPs are being implemented correctly?

The BLM seeks to inform the public of travel management planning, to educate public land users about TMP and route decisions, and use the lowest level of enforcement to achieve desired outcomes. Enforcement may include citations and fines if motorized use occurs outside of the specific constraints of TMPs or off-road in areas that are defined in the RMP as Closed or Limited. Regulations and maps/brochures will be made available at multiple locations, including the BLM website, BLM offices, local venues and onsite, as appropriate. Informative materials include:

OHV Signs

Standardized signs (i.e., type of substrate, layout, and design) will identify OHV designations in the field; however, the level of signing will be defined in specific TMPs. OHV signage includes: