CHAPTER I PURPOSE AND NEED

1.1 INTRODUCTION

Pineview Reservoir is located 8 miles east of Ogden, Utah in the scenic Ogden Valley. Once considered just a local recreation area, the reservoir has now become the most heavily used flat water recreation area (for its size) in the state of Utah. Transportation to the reservoir has been enhanced by the completion of the Trappers Loop highway in 1990. Visitors now have three transportation access routes-- Ogden Canyon (SR 39), North Ogden Divide (County 162) and Trappers Loop (SR 167). The addition of the Trappers Loop highway makes it quicker and easier for people to travel to the reservoir.

Current estimates for recreation use on and around the reservoir exceed one-half million visitors per year and are increasing, as a result of local and regional growth. Popular activities include boating (power and sail), windsurfing, swimming, jet-skiing, camping, picnicking, hiking, mountain biking, horseback riding, wildlife viewing, and driving for pleasure.

The management of Pineview Reservoir is in itself complex. The USDA Forest Service (Forest Service) manages the National Forest System lands around the reservoir including all the recreation sites and water access points. Utah State Parks and Recreation administers the surface water in cooperation with the Forest Service. Two water conservancy districts own the water stored in the reservoir. The Weber County Sheriff's Department, in cooperation with the Forest Service, manages the law enforcement and emergency services around the reservoir. The Bureau of Reclamation manages the dam structure itself.

1.2 LOCATION

Pineview is a 2,874 surface acre reservoir located in Weber County in north central Utah approximately eight miles east of Ogden, Utah. Adjacent to the reservoir are the communities of Huntsville, Eden and Liberty. Numerous farm homesteads and small housing developments fill Ogden Valley. A vicinity map of Pineview Reservoir showing major features is shown on the map entitled Pineview Reservoir Management and Facility Improvements.

The Ogden Valley is a broad valley about 5,800 feet in elevation. The valley has an agricultural heritage. Today it remains mostly agricultural, mountain land in appearance with Pineview Reservoir in the lowest point of the valley. The valley and the reservoir are shaped by the rivers that created the nearby canyons and valley. The North, Middle, and South Forks of the Ogden River meander slowly through the valley and finally converge at the reservoir.

Two highways access the reservoir and neighboring communities. State Highway 39 runs through Ogden Canyon from Ogden City to Pineview Dam and then around the reservoir's southern flank before heading into the Bear River Mountains to the east. The Trappers Loop highway, State 167, intersects State Highway 39 near Huntsville and provides a scenic shortcut to Interstate 84 and connection routes into the Wasatch Front urban area. This route has created easier access to the reservoir from Davis and Salt Lake counties since it was built in 1990. The majority of reservoir visitors travel these two routes.

A third access road is County Road 162 over North Ogden Divide. This route is used by approximately 10% of the traffic into the Ogden Valley. A summer only National Forest Development Road, number 220, enters the valley from Cache County to the north linking the local community of Liberty to Avon in the Cache Valley.

1.3 INITIAL PROPOSED ACTION

These initial proposed actions were developed by the Ogden Ranger District. They were the critical content of the Scoping Document sent to the general public and interested parties in October, 1997. Proposed actions will take place over the next four years.

A. Management of Pineview

Boat Capacity: Reduce the number of vessels at one time on the Reservoir adjusted as the water level drops.

Surface Zones: Extend the }Wakeless~ area around Middle Inlet Swim Beach, Quist Beach, and Anderson Cove Campground to make safer swimming areas.

Policies and Regulations: Clarify the policy for boat camping, dispersed camping, fires and glass along the shoreline.

Fence and Boundary Management: Decide an action plan to improve the fence lines and undeveloped lands managed by the Forest Service around the Reservoir.

Concession Permit and Anderson Cove Expansion: Expand the scope of the existing Campground/ Marina/ Swim Beach Concession Permit to include construction of an expansion of Anderson Cove Campground and extend the permit expiration date. This campground expansion will have a higher standard of service than the existing campground.

Undeveloped Natural Areas: Designate portions of the shoreline as Undeveloped Natural Areas.

B. Facility Improvements

Anderson Cove Day-use: The existing overflow parking lot in Anderson Cove Campground will be expanded and improved with day-use picnic sites and better beach access.

Bluff Marina Parking: Pave the parking, replace the toilet and convenience docks at Bluff Marina.

Bluff Marina Cove: Expand the bay east of Bluff Marina for use as long-term wet storage of boats. This small cove will use heavy equipment to widen the entrance and make deeper by 10 foot. The current system of docks for wet storage at Port Ramp marina will be moved to this cove. The intent is to reduce the traffic flow and congestion at the busier Port Ramp Marina.

Parking around the Reservoir: Improve parking surface and signs at selected Trail heads and overlook parking areas around Pineview. These pull-offs are used for scenic overlooks and parking for fishermen. There is also a need for a Park-and-Ride identified by Weber County that may be possible at one of these overlooks.

Accessible Beach Access: All beaches and marinas will provide access to the water for the physically challenged. Installation of stiff panels installed on the sand will act as decks or walks to the waters edge. This will require parking spots reserved for physically challenged recreationist.

Non-motorized Boat and Fishing Access: Non-motorized boat launch improvements, general fishing access improvements and physically challenged fishing facilities at select locations around the reservoir. Launching canoes or windsurf boards can be made easier. Various techniques can be used to create accessible fishing spots where gentle bank terrain and consistent water level is available.

Port Ramp Marina: Widen Port Ramp Marina entry road and pave the overflow lot. The entry and exit roadway can be modified to allow easier boat preparation for launch or trailer home.

Windy Point Day-use: Improve shore access and build a small parking lot at Windy Point for day-use only.

Jefferson Hunt Campground: Jefferson Hunt Campground will have minor improvements to limit damage from flooding and improve the camping experience.

C. Trails

Design and build portions of a trail around the shoreline of Pineview. This will be a wide gravel trail for use by hikers, mountain bikes, and horses. The design will allow paving or soil hardening in the future if funding becomes available. The segments are:

Pineview Trail West Shore: Segment 1: Pineview Trail head along the west shoreline to North Arm Trail head.

Pineview Trail East Shore: Segment 2: Bluffs Marina at Cemetery Point along the south side of Huntsville to Anderson Cove Campground.

Pineview Trail South Shore: Segment 3: Anderson Cove Campground to the Dam along the south shoreline.

D. Vegetation Management

Fire Treatment: Identify sections of shoreline that fire can be used to reduce deadwood and promote new growth. Periodic burning of the shoreline can be a valuable tool to keep the vegetation healthy.

Noxious Weeds: Identify sections of shoreline to receive chemical treatments to reduce noxious weeds. In some fields and banks, the amount of thistles have made them unusable by man or wildlife. Techniques will be identified to treat these fields.

Wildlife Habitat Improvements: Identify sites for Wildlife and Fisheries Habitat improvements such as plantings, improving wetlands, and building habitat structures for hiding cover above and below the water.

1.4 PURPOSE AND NEED

In 1992, the management plan for Pineview was adjusted to limit the boat capacity and modify the use zones on the reservoir. After five years of experience, another adjustment in capacity and zoning is necessary to ensure a safe quality recreation experience. The recent planning efforts by Weber County gave us a chance to listen to the Ogden Valley residents about a vision for the valley. Our challenge is to ensure that the popular recreation use of Pineview is consistent with that shared rural vision.

The increasing amount of recreation use, especially during the summer weekends and holidays, is creating congestion on the boat ramps, swim beaches, and campgrounds. The designed comfortable capacity is being exceeded too often. Families are being displaced and pushed to other areas within the Ogden Valley, and confrontations between visitors are increasing.

There is concern about visitor safety and the conflicts among different types of users. Our facility designs need to make access to the highways safer. Security at our campgrounds is a high priority for visitors. Current problems with alcohol intoxication and water craft conflicts are on the increase. Most of the recreation visitors to Pineview are effected by these conflicts and their recreation needs and desires are not being met.

The number and scope of projects and administrative changes being proposed, are the result of assessing the operational needs of managing Pineview Reservoir. The need to provide safe quality recreation experiences and facilities considering the needs of all urban Wasatch-Front users while recreating, is a long-standing goal of the managers. The list of actions are structured to meet this goal. The Forest Service has submitted budget requests and proposals through internal channels to improve the conditions of the facilities in and around Pineview. Once facilities are reconstructed, they will be managed to maintain that level of quality and service standard.

We are experiencing significant growth of the regional population, including the Ogden Valley local bedroom communities. The resulting amounts and durations of recreation use of the facilities around the reservoir is changing the nature of how we must provide recreation access to Pineview.

These actions are being analyzed as a package rather than individually for efficiency as well as the cumulative effects and connected action nature of these projects. Cumulative effects is defined as "the impact on the environment which results from the incremental impact of the actions when added to other past, present, and reasonably foreseeable future actions regardless of what agency (Federal and non-Federal) or person undertakes such other actions. Cumulative impacts can result from individually minor but collectively significant actions taking place over a period of time."

The conservation and protection of wildlife, waterfowl, plant resources and shoreline stability is being threatened by increasing human activity. The rise in noxious weeds around the shoreline is impacting native plant communities and reducing the quality of wildlife habitat. As the number of people in and around Pineview continues to increase, the potential for adverse impacts toward the natural resource increases. We need to identify some management techniques to mitigate these expected impacts.

Some level of facility improvements and management decisions are also needed because of the expected additional visitors to the area before, during and after the 2002 Olympic Winter Games. These improvement will have the added benefit of making the public facilities better and benefit the local Pineview users.

1.3.1 Analysis Objectives

The following objectives were developed to guide the analysis process and to described the desired future condition for the Reservoir:

1. Manage the recreation facilities adjacent to Pineview Reservoir primarily for a diversity of day use recreation opportunities. Provide a high standard rural recreation social setting.

2. Provide for public recreation needs in a safe manner on the water, along travel corridors, and within developed facilities.

3. Provide a diversity of water and land based recreation opportunities, at levels that ensure a safe, enjoyable, quality experience, while protecting the resource values.

4. Management actions are consistent with and complement the vision, goals, and direction in the Weber County - Ogden Valley Master Plan.

5. Existing recreation facilities are rehabilitated, well maintained and serviced, and fully accessible, prior to constructing new facilities.

6. Protect water quality, wildlife habitat, riparian and wetlands, and undeveloped areas of shoreline from the impacts of recreation use.

7. Improve accessibility of facilities and programs by incorporating the concepts of Universal Access and Design and the requirements of the Americans with Disabilities Act (ADA). Consider the needs of all users - including families with children, seniors, people with disabilities, and visitors seeking a barrier free experience.

8. Minimize the affects of development and management changes on the Town of Huntsville, adjacent land-owners, and other Ogden Valley residents.

1.5 DECISION TO BE MADE

Because of the broad, complex nature of the purpose and need for these projects, it requires a large number of separate decisions. This EA focuses on providing analysis sufficient to make the following federal decisions:

1. Whether and under what configuration will the management policies and regulations for public use of Pineview Reservoir be changed.

2. Whether and to what scale of development will the recreation facilities around the reservoir be designed, constructed or reconstructed, and managed to.

3. Whether and under what conditions will the shoreline terrain of Pineview Reservoir administered by the Forest Service be managed through the foreseeable future.

4. How will management of Pineview be changed to improve the social setting and protect the natural environment.

5. How and to what extent will new recreation sites and expansion of existing sites be done.

6. How will the natural areas around Pineview be managed and protected for the future?

Based on the disclosure contained in the Environmental Assessment, Forest Plan management requirements, standards, and guidelines could be amended for the Pineview Reservoir area within Management Area 10, Wasatch Front (p. IV 230-233).

1.6 MANAGEMENT DIRECTION

The enabling authorities for the Forest Service are contained in many laws enacted by Congress and the regulations and administrative directives that implement these laws. The major laws include the Organic Administrative Act of 1897, the Weeks Act of 1911, the Multiple-Use Sustained Yield Act of 1960, the Forest and Rangeland Renewable Resources Planning Act of 1974, and The National Forest Management Act of 1976.

An objective of the Forest Service is to provide a continuing flow of natural resource goods and services to help meet the needs of the nation. This objective is accomplished by making the renewable resources of the National Forest System available for a sustained flow of outdoor recreation, forage, wood water, fish, wildlife, and wilderness. Responding to public demand for enhanced recreation opportunities at Pineview Reservoir is consistent with the recreation goals for National Forests. The Forest Service is to provide recreational opportunities and to facilitate the use, enjoyment, understanding, and appreciation of the National Forest natural resource setting.

1.6.1 Existing Code of Federal Regulations for Pineview Reservoir.

Pursuant to 36 CFR 261.50 (a) and (b), the following acts are prohibited on the National Forest System Land around Pineview:

1. Camping except within developed campgrounds. [36 CFR 261.58 (e)].

2. Possessing or operating a motor boat within a developed swim area. [36 CFR 261.58 (n)].

3. Launching a motorized boat except at designated boat launch ramps. [36 CFR 261.58 (r)].

4. Fishing in or within 75 feet of any boat docking facility. [36 CFR 261.58 (v)].

5. Building, maintaining, attending, or using a fire or campfire except in permanently constructed fire rings within developed recreation sites. [36 CFR 261.52 (a)].

6. Possessing, using , or storing any type of glass container, (except on the lawn covered areas within Bluffs Picnic Area, Middle Inlet Picnic Area, Anderson Cove and Jefferson Hunt Campgrounds). [36 CFR 261.58 (cc)].

Other regulations exist for all Wasatch-Cache National Forest Lands for camping stay limits, parking, public nudity, fireworks, use of roads and bridges, and use of forest roads.

1.6.2 Wasatch-Cache National Forest Land and Resource Management Plan (Forest Plan)

The Forest Plan is the comprehensive, long-term planning document for the Wasatch-Cache National Forest (WCNF) and was approved in 1985, after the preparation of an Environmental Impact Statement (EIS) and a Record Of Decision (ROD). Consisting of inventory and analysis, the Forest Plan is the primary planning tool used by the Forest Service to balance competing demands on the WCNF and allocate lands to these uses.

The Ogden Ranger District of the WCNF plans and implements site-specific projects under the direction developed in the Forest Plan. The Forest Plan outlines specific goals, objectives, and directions for management of Pineview Reservoir and surrounding areas on National Forest System lands. If this environmental assessment identifies actions that conflict or vary from Forest Plan direction, an amendment to the plan requirements, standards, and guidelines could be required.

The following direction from the Forest Plan relates to the Pineview Reservoir Master Plan (p. IV 1-12):

GOAL # 1: Provide the national Forest's share of developed recreational opportunities for all segments of the public.

GOAL # 4: Encourage and help other government agencies and private enterprises to provide needed public recreational facilities and opportunities for local populations served by the Wasatch-Cache National Forest.

GOAL # 5: Provide a broad spectrum of low cost dispersed recreation opportunities. Encourage other landowners to provide opportunities also.

GOAL # 15: Improve the quantity and quality of lake and stream habitats through direct habitat improvements and increased coordination with other land use programs.

GOAL # 31: Maintain existing water quality on all surface waters of the National Forest to comply with State water quality standards and anti-degradation policy.

The Forest Plan also lists the following applicable Management Directions, Standards (S) and Guidelines (G) for the management of the Pineview Reservoir area within Management Area 10, Wasatch Front (p. IV 230-233):

RECREATION PLANNING MANAGEMENT DIRECTION

Resolve safety problems at Pineview Reservoir;

- (G) Consider the space needs for motor boating, waterskiing, fishing, sail boating, windsurfing, and jet skiing.

- (G) Boat capacity at Pineview will be adjusted as needed after the appropriate interdisciplinary NEPA process.

Coordinate development plans for lands adjacent to Pineview Reservoir with Weber County planning departments.

DEVELOPED RECREATION MANAGEMENT DIRECTION

Provide safe, developed swimming opportunities at Pineview Reservoir.

Provide boating access and services on Pineview Reservoir commensurate with levels of use.

- (G) Continue concessionaire operation of both existing boat ramps.

Continue concessionaire operation of Anderson Cove A campground.

Issue prospectus for development of Anderson Cove B campground.

- (G) Issue prospectus and term special use permit to successful bidder.

- (G) Require permittee, as a minimum, to provide services similar to Forest Service campground operation.

- (G) Allow development of a full commercial campground to development scale 5.

- (G) The capacity will be between 400-600 PAOT.

- (G) The concessionaire will provide overnight camping and day use facilities and services.

- (G) The concessionaire will be allowed to develop the following type facilities:

1. Store

2. Showers

3. Cross-country ski - touring facilities.

DISPERSED RECREATION MANAGEMENT DIRECTION

Pineview Reservoir shoreline.

- (G) Open the North Arm and South Arm of Pineview Reservoir to dispersed camping.

- (G) Correct sanitation problems in these areas.

Construct additional access and parking areas at Pineview Reservoir.

1. Middle Inlet - Access road and parking lots.

- (G) 100 vehicles each.

- (G) Place barriers and fence around perimeter.

- (S) Gravel or paved surfacing.

2. Geertsen - Access road and parking lot.

- (G) 25 vehicles.

- (G) Traffic control as needed.

- (G) Native material or gravel surfacing.

3. Yacht Club Flat (aka BOR Borrow Site) - Access road and parking lot.

- (G) 50 vehicles.

- (G) Traffic control as needed.

- (G) Gravel or paved surfacing.

Evaluate Jefferson Hunt for dispersed recreation opportunities

- (G) Construct and install two unit vault toilet.

- (G) Barriers and fencing to control vehicle access.

- (G) Parking for summer use.

- (G) Allow improvement of road and parking area.

Issue a Special Use Permit for windsurfing at Pineview.

- (G) Allow temporary, low investment facilities to accommodate permittee needs.

1.7 SCOPING AND PUBLIC INVOLVEMENT

After development of the initial proposal with assistance of the Utah State Parks and Recreation Pineview Manager, the Forest Service began the public involvement process to solicit feedback on the proposals. On November 7, 1997 the Forest Service sent a Scoping document, which described the purpose and need for the change, the desired future condition, what the proposed projects are, preliminary alternatives, and announced the two open houses. An article appeared on November 12, 1997 in the Ogden Standard Examiner which detailed the proposals and provided information on where the public could obtain a copy of the Scoping document, the date and locations of public open houses and how to submit written comments.

The first public open house was on November 17, 1997 in the Weber County Library in downtown Ogden. Forest Service personnel with various expertise were present with graphic visual aides and displays. The forum allowed for individuals to ask direct questions to Forest Service staff on any aspect of the proposals. Comment cards were available for immediate written responses as well as copies of the Scoping Document for further review and response by the public. Various handouts were also available. A large photo of Pineview with a plastic overlay was the center display where citizens were welcome to write or draw suggestions for configuring activities on the reservoir.

The second open house was held on November 18, 1997 in the Weber County Branch Library in Huntsville. The primary attendees were local residents who wanted to find out more or had immediate comments or concerns.

Forty-two written comments were received during the public open houses, e-mail or common mail. These comments are on file in the Ogden Ranger District. A

content analysis of the issues, suggestions and concerns was done on these responses and included as a chapter in the document.

At request, Forest Service personnel attended evening meetings of the Huntsville Town Council and the Ogden Pineview Yacht Club Board to clarify and discuss particular questions by these groups. An evening discussion of Pineview recreation issues with approximately 45 citizens of Huntsville occur on May 29, 1998 with Weber County Sheriff. An additional article was published on May 21, 1998 discussing the release and content of the pre-decisional document.

The pre-decisional environmental assessment was completed on June 2, 1998. Copies were sent to those who had responded in writing to the scoping as well as selected agencies or interested citizens who are on our NEPA mailing lists. The legal notice was published in the Ogden Standard-Examiner on June 5, 1998.

An additional public open house to discuss the document occurred on June 24, 1998. Approximately 80 people attended the open house, most were residents of Huntsville.

Forty-five written comments were received from review of the pre-decisional Environmental Assessment, public meetings, or newspaper articles.

A Newspaper article about the proposed actions and how the local residents are responding to the proposals was published in the Ogden Standard-Examiner on June 10, 1998. An additional editorial was published on July 19, 1998 addressing the need for local recreation managers to plan for the future of Pineview and nearby Willard Bay.

During the Weber County Fair, Forest Service personnel were available to discuss details and answer questions from interested citizens.

1.8 IDENTIFICATION OF ISSUES

Issues are identified early in the analysis process and are the driving force for the development of alternatives. As a result of internal and external Scoping efforts undertaken for the proposal, seven broad issue categories were identified for analysis in the EA.

Issue statements have been developed to clearly identify environmental resources that may be affected by specific activities associated with the implementation of the Proposed Action and/or an alternative to the Proposed Action.

1.8.1 Water Resources

A) What are the effects of each alternative on water quality and beneficial uses of Pineview Reservoir?

B) What is the degree of risk of each alternative on soil erosion and bank stability?

Concerns were expressed related to the potential effects that development activities and increased recreation use might have on the quality of water at Pineview Reservoir . Concerns were related to both on-water and shoreline activities. Specific areas of concern include surface water run-off from parking lots, increased number of people using the area, discharge of petroleum products from watercraft, OHV use during low water, proposed wet storage, use of trails by horses, discharge of waste from watercraft, trash & litter, boat camping, bank erosion from developed and user trails, and human waste from dispersed camping.

1.8.2 Wildlife and Fisheries Resources

A) How would each alternative impact wildlife habitat and populations in Ogden Valley?

B) What are the impacts of each alternative to the fisheries resource in Pineview Reservoir?

Many expressed concern that the proposed shoreline development would displace big game, water fowl, upland, and non-game wildlife species. Concerns were also expressed that wildlife habitat would be fragmented and that fishery of Pineview Reservoir would be impacted. Concerns were related to both on-water and shoreline activities. Specific areas of concern included increased number of people using the area, proposed trail, prescribed burning, noise, harassment from watercraft, OHV use during low water, use of chemicals to control noxious weeds, and shoreline camping.

1.8.3 Vegetation

A) What effects would each alternative have on riparian, wetland, and shoreline vegetation?

B) What are the effects of each alternative on the type and distribution of vegetation?

Concerns were expressed that proposed shoreline activities would impact the effectiveness of some riparian and wetland areas. Concerns were also expressed that the use of prescribed fire would change the vegetation type and distribution along the shoreline. Concerns were related to shoreline activities. Specific areas of concern include increased number of people using the area, developed and user trails, prescribed burning, noxious weed control, shoreline camping, and shoreline facilities.

1.8.4 Recreation Use

A) How would each alternative affect existing recreation use and users?

B) How would each alternative affect access for people with disabilities?

Concern was expressed that the proposal would affect existing use and users of Pineview Reservoir and limit the recreation opportunities that would be available. Other concerns were expressed that the recreation experience has been degraded due to congestion and over use. Congestion on the reservoir has resulted in unsafe boating conditions. Concerns were also expressed that few opportunities exist for anglers to boat & fish without paying a fee. Concerns were related to both on-water and shoreline activities. Some questioned the need to provide improved access for people with disabilities. Specific areas of concern include restrictions on shoreline use, reduction in number of watercraft, boat size, reservoir zoning (wakeless & non-motorized), and fee areas and future charges.

1.8.5 Law Enforcement, Safety and Emergency Services

A) How would each alternative affect the ability of the Forest Service to administer and enforce existing and proposed regulations and restrictions?

B) What affect will each alternative have on other law enforcement agencies and emergency services within Ogden Valley?

C) How would each alternative effect the security and safety of recreation users and Ogden Valley residents?

Many expressed concern with the ability of the Forest Service to enforce existing regulations and restrictions and provide adequate safety and security for visitors and residents. Concerns were also expressed that increased use and development would put more pressure on the Ogden Valley and Huntsville infrastructure (Law enforcement, fire, road maintenance, and emergency services). Concerns were also expressed with inadequate law enforcement staffing to enforce regulations. Concerns related to both on-water and shoreline activities. Specific areas of concern include security at campgrounds, parking lots, picnic areas and swim beaches, on-water safety of watercraft users, safety of swimmers, enforcement of existing regulations, and effects on other law enforcement agencies.

1.8.6 Transportation

A) How would each alternative affect traffic levels, circulation patterns and congestion within Ogden Valley, the town of Huntsville, and Ogden Canyon?

Many expressed concern with increased traffic levels, changed traffic circulation patterns, and increased congestion within the town of Huntsville, Ogden Valley, and Ogden Canyon during peak summer weekends and holidays. Concerns related to shoreline improvements. Specific areas of concern include location of wet storage, Anderson Campground expansion, improved parking areas, and increased number of users.

1.8.7 Socio-Cultural Environment

A) How would each alternative affect noise intrusion in and around Pineview Reservoir?

B) What would be the impact of each alternative on adjacent land uses and owners?

C) How would each alternative affect the rural character and setting in and around Pineview Reservoir?

Many Ogden Valley and Huntsville residents expressed concern with maintaining a rural setting and character within Ogden Valley. Concern was expressed that the rural nature of the Valley would be affected by the proposal, and that additional improvements would threaten the rural qualities. There is also concern with the intrusion of increased noise on nearby residents. Concerns related to both on-water and shoreline activities. Specific areas of concern include development scale of facilities, litter & trash, boat & shoreline camping, increased use, campground expansion, and high standard trail.