Distinctive Land Areas 

Specialist Report 

Garkane Energy Cooperative, Inc. 

Tropic to Hatch 138 kV Transmission Line 

Prepared For: 

U.S. Forest Service – Dixie National Forest 

National Park Service – Bryce Canyon National Park 

Bureau of Land Management – Kanab Field Office 

Bureau of Land Management – Grand Staircase-Escalante National Monument 

Prepared By: 

8160 South Highland Drive 

Sandy, Utah 84093 

& 

SWCA Environmental Consultants 

257 East 200 South 

Salt Lake City, Utah 84111 

December 2009
DISTINCTIVE LAND AREAS 

SPECIALIST REPORT 

1.1. INTRODUCTION 

Garkane Energy Cooperative, Inc. (Garkane) proposes to construct a 138 kV circuit transmission line 

supported by wood pole H-frame structures between the communities of Tropic and Hatch in Garfield 

County, Utah. The proposed new transmission line would replace portions of an existing 69 kV 

transmission line between the Tropic and Hatch Substations that currently provides service west of 

Tropic. 

1.1.1. Purpose of Specialist Report 

The purpose of this Specialist Report is to characterize distinctive land areas and unroaded areas within 

the Project Area and to analyze and disclose potential environmental effects on these areas that would 

occur under the Proposed Action and Alternatives as described below. These data and impact analyses 

will be used to develop an Environmental Impact Statement (EIS) for the Garkane 138 kV Transmission 

Line proposal. 

The following areas will be discussed in this report and are collectively referred to as Distinctive Land 

Areas: 

U.S, Forest Service (USFS) Inventoried Roadless Areas (IRAs) 

USFS unroaded/undeveloped inventory 

National Park Service (NPS) recommended wilderness 

Bureau of Land Management (BLM) “natural areas” 

Grand Staircase-Escalante National Monument (GSENM) – BLM Wilderness Areas 

GSENM primitive management zone 

GSENM – BLM non-Wilderness Study Area (WSA) with wilderness characteristics. 

1.1.2. Proposed Action and Alternatives 

1.1.2.1. Alternative A: Proposed Action 

Alternative A would be constructed within a right-of-way crossing public lands administered by the 

USFS Dixie National Forest (DNF), BLM Kanab Field Office (KFO), and the GSENM; Utah State lands 

administered under the State Institutional Trust Lands Administration (SITLA); and private lands. 

The Alternative A 100-foot-wide right-of-way would extend 30.41 miles. The route would begin at the 

proposed East Valley Substation located east of Tropic and extend northeast to adjoin the Rocky 

Mountain Power/PacifiCorp 230 kV transmission line right-of-way. The route would then parallel the 

west side of the Rocky Mountain Power/PacifiCorp transmission line route to the northwest across 

GSENM land and through Cedar Fork Canyon through a planning window for a utility right-of-way 

identified in the 1986 Land Resource Management Plan (LRMP). The route would diverge from the 230 

kV line access route and extend west across John’s Valley and skirt just to the north of the Bryce Canyon 

Airport. The route would continue west for approximately 4 miles and turn south, crossing SR 12, and 

extend southwest across the Johnson Bench area, passing to the south of Wilson Peak. The route would 

continue west down Hillsdale Canyon through a planning window for a utility right-of-way identified in 

the 1986 LRMP and turn north for approximately 0.5 mile. The route would continue to the west, 

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crossing private property (Sunset Cliffs), and extend west to cross U.S. 89 where it would turn to the 

southwest for approximately 2 miles to the Hatch Substation. The proposed route would cross 17.35 miles 

of DNF, 3.31 miles of KFO, 3.68 miles of GSENM, 4.23 miles of SITLA, and 1.84 miles of private lands. 

In addition to construction of the proposed transmission line, the proposed project includes the 

development of a new substation (East Valley) east of Tropic and the expansion of the Hatch Substation. 

Garkane’s existing 69 kV transmission line between the Bryce Canyon Substation and Hatch Mountain 

Switch Station would be unnecessary once the proposed 138 kV transmission line is operational and 

would be removed (approximately 16.23 miles) and the right-of-way rehabilitated. 

The Proposed Action would involve the development of overland access routes in portions of the right-ofway where a suitable route is not available and where development of an access route is permitted by the 

authorizing agency. Access to the Rocky Mountain Power/PacifiCorp 230 kV transmission line in the 

Cedar Fork Canyon area would need to be improved. In limited access areas, the alignment would be 

accessed via helicopter and/or foot, and there would be no centerline access. 

Implementation of the Proposed Action would also require the amendment of the GSENM Management 

Plan (2000) by changing the designation of a 100-foot-wide 3.68-mile stretch (44.58 acres) of the 

Primitive Zone to Passage Zone, and within this area, changing the existing Visual Resource Management 

(VRM) Class designation from Class II to Class III. 

1.1.2.2. Alternative B: Parallel Existing 69 kV Route 

The Alternative B 100-foot-wide right-of-way would be constructed within a right-of-way crossing public 

lands administered by the DNF and KFO, NPS Bryce Canyon National Park (BRCA), and SITLA and 

private lands. This route would have no surface impacts on the GSENM. 

Alternative B would extend 29.11 miles. This alternative route would begin at the proposed East Valley 

Substation located east of Tropic and extend west through the Tropic Substation (the Tropic Substation 

would be decommissioned) and then cross SR 12 and continue across BRCA (deviating slightly from the 

existing right-of-way for approximately 1.5 miles) to a point near the current Bryce Canyon Substation 

near Bryce Canyon City. For this Alternative, the Bryce Canyon Substation would be decommissioned 

and a new replacement substation would be built at a new location approximately 1 mile to the west to 

allow for needed expansion. The route would extend approximately 0.5 mile to the north around Bryce 

Canyon City, west across SR 63 and then parallel Garkane’s existing 69 kV line right-of-way 

predominately across private and SITLA lands. The alternative route would parallel the existing right-ofway just to the south across the plateau in a northwest direction to Red Canyon, where it would generally 

follow the existing right-of-way through Red Canyon into Long Valley where it would cross U.S. 89 and 

continue to the Hatch Mountain Substation. From there the route would follow the existing line south to 

the Hatch Substation. This route would cross 5.58 miles of DNF, 8.29 miles of KFO, 2.81 miles of 

BRCA, 3.63 miles of SITLA, and 8.80 miles of private lands. 

The proposed project includes the development of a new substation (East Valley) east of Tropic and the 

expansion of the Hatch Substation. The Tropic Substation would be removed. One new substation would 

be required in Bryce Valley. The existing Bryce Canyon Substation would be decommissioned, and a new 

replacement substation to the west of Ruby’s Inn would be built. It would be located in one of two new 

locations (Option 1 on DNF land or Option 2 on private land). Once the proposed 138 kV transmission 

line is operational, the entire existing 69 kV line from approximately 1 mile east of the existing Tropic 

Substation to the Hatch Mountain Substation would be removed (approximately 21.57 miles) and the 

right-of-way rehabilitated. 

In addition, under Alternative B approximately 9 miles of distribution lines would need to be constructed 

primarily on private and SITLA lands in 50-foot rights-of-way in conjunction with the new substations. 

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A 22.75-mile long two-track access route along the centerline of the proposed right-of-way would provide 

construction access. Centerline access would not be developed within limited access areas, including 

BRCA and portions of Red Canyon. 

Under this alternative the GSENM Management Plan would not be amended. 

1.1.2.3. Alternative C: Cedar Fork Southern Route 

Like Alternative A, Alternative C would be constructed within a right-of-way crossing public lands 

administered by the DNF, KFO, GSENM, SITLA, and private lands. 

The Alternative C 100-foot-wide right-of-way would extend 29.78 miles. This alternative route would 

begin at the proposed East Valley Substation located east of Tropic and extend northeast to adjoin the 

Rocky Mountain Power/PacifiCorp 230 kV transmission line right-of-way. The route would then parallel 

the west side of the Rocky Mountain Power/PacifiCorp transmission line access to the northwest across 

GSENM land and through Cedar Fork Canyon through a planning window for a utility right-of-way 

identified in the 1986 LRMP. The route would diverge from the 230 kV line access and extend west 

across John’s Valley and follow the south side of State Route (SR) 22 for just under 2 miles and then 

follow the western boundary of BRCA for approximately 1 mile. The route would then extend west to the 

north of Bryce Canyon City and across SR 63. The route would continue west across the southern portion 

of Johnson Bench and to the upper reaches of Right Fork Blue Fly Creek. The route would drop off the 

plateau at this point and traverse an unnamed canyon to Hillsdale Canyon and would extend south of 

private property and continue west, crossing U.S. 89, where it would turn to the southwest for 

approximately 2 miles to the Hatch Substation. This route would cross 13.58 miles of DNF, 3.43 miles of 

KFO, 3.68 miles of GSENM, 2.06 miles of SITLA, and 7.03 miles of private lands. 

In addition to construction of the proposed transmission line, the proposed project includes the 

development of a new substation (East Valley) east of Tropic and the expansion of the Hatch Substation. 

Garkane’s existing 69 kV transmission line between the Bryce Canyon Substation and Hatch Mountain 

Switch Station would be unnecessary once the proposed 138 kV transmission line is operational and 

would be removed (approximately 16.23 miles) and the right-of-way rehabilitated. 

The Proposed Action would involve the development of overland access routes in portions of the right-ofway where a suitable route is not available and where development of an access route is permitted by the 

authorizing agency. Access to the Rocky Mountain Power/PacifiCorp 230 kV transmission line in the 

Cedar Fork Canyon area would need to be improved. In limited access areas, the alignment would be 

accessed via helicopter and/or foot, and there would be no centerline access. 

Alternative C would also require the amendment of the GSENM Management Plan (2000) by changing 

the designation of a 300-foot-wide 3.68-mile stretch (133.81 acres) of the Primitive Zone to Passage Zone 

to accommodate both the proposed right-of-way and the existing 230 kV Rocky Mountain 

Power/PacifiCorp transmission line, as well as provide for future utility needs; and within this area, 

changing the existing VRM Management Class designation from Class II to Class III. 

1.1.2.4. Interconnect Options 

The purpose of the interconnect route options is to provide flexibility to decision makers to combine 

segments of the action alternatives to select the most appropriate route among the various alternatives to 

minimize impacts to resource values. 

The North-South Interconnect option would extend 1.84 miles across DNF land west of Johnson Bench 

and could connect segments of Alternatives A and C together. 

The East-West Interconnect option would extend 3.70 miles across DNF land south of Johnson Bench 

and could connect segments of Alternatives A and C together. 

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1.1.2.5. Alternative D: No Action 

Though it does not meet the purpose and need statement, the No Action alternative is required under 

Council of Environmental Quality regulations for implementing the National Environmental Policy Act 

(NEPA) [40 CFR 1502.14(d)]. For this analysis, the No Action alternative is considered to be the 

continued operation of the existing 69 kV transmission line and future circumstances that would occur 

without federal approval of Garkane Energy’s proposal to construct and operate a 138 kV transmission 

line from Tropic to Hatch. Specifically, it means that “no action” would be achieved by any one of the 

federal agencies declining to grant Garkane permission to build in the agency’s respective jurisdiction. 

Thus, in the case of DNF, “no action” means denying the transmission line easement; for BLM, “no 

action” means denying approval of the proposed plan amendment and granting of a right-of-way permit 

for BLM lands; and, for BRCA, “no action” means denying a right-of-way permit. Each agency makes its 

decision independent of the others, so it is possible that one or more agencies could grant permission for 

the proposal while another could deny permission. Thus, if any agency denied permission for the 

proposed transmission line, it would not be built. 

The existing 69 kV transmission line has already passed its life expectancy. To maintain system stability 

and reliability, Garkane would need to overhaul the line within its existing right-of-way and permit 

conditions. Overhaul of the existing 69 kV transmission line would involve replacement of conductor and 

poles. Each pole would be inspected; Garkane estimates as much as 90 percent of the poles would need to 

be replaced. Overhaul would involve disturbance to the centerline access outside limited access areas

using vehicles and equipment. Overhaul would require the use of temporary disturbance areas identified 

in conjunction with Alternative B, as the sites would be needed for pulling and splicing of wire and 

overall project staging. Total cost would range from 1.4 to 2.1 million dollars. 

These activities would increase the amount of trucks, heavy equipment, and crews within the right-of-way 

far above average annual activity levels. 

1.1.3. Impact-Inducing Activities on Distinctive Land Areas 

Construction of a transmission line within a 100-foot right-of-way , under each of the action alternatives, 

would include surface disturbance for placement of structures (H-frame power poles and turning 

structures); use of existing and development of long-term access routes; staging areas for storing 

construction materials; and line pulling and splicing areas within and adjacent to the right-of-way. 

Following construction and energizing of the line, it would be monitored periodically for needed 

maintenance. Typical equipment used in construction and operation of the line would include bulldozers, 

graders, backhoes, truck-mounted augers, boom trucks, reel trucks, line trucks, pickup trucks, and ATVs. 

Helicopters would be used for inaccessible portions of the right-of-way for construction of the 

transmission line. 

A new East Valley Substation would be constructed at the eastern terminus of the line east of Tropic, and 

the Hatch Substation would be expanded at the western terminus of the line north of Hatch under all 

action alternatives. Under Alternative B (Parallel Existing 69 kV Route), a second new substation would 

be constructed west of Ruby’s Inn. These facilities, on about 2 acres each, would be graded, surfaced with 

gravel and fenced, and would include a short access road. Typical equipment used in construction would 

include bulldozers, cranes, concrete trucks, dump trucks, and pickup trucks. 

Under the Proposed Action and the Cedar Fork Southern Route, the 69 kV transmission line west of 

BRCA would be removed. Under Alternative B, the 69 kV line would be removed from approximately 1 

mile east of the existing Tropic substation to the Hatch Mountain substation. 

Surface disturbance associated with construction of the transmission line and placement of the poles and 

line with or adjacent to lands with wilderness characteristics, IRAs, inventoried unroaded or undeveloped 

areas, primitive zones, near the Bryce Canyon Lodge National Historic Landmark, and near the Red 

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Canyon Research Natural Area and Red Canyon Botanical Area would affect the resource values and uses 

of these distinctive land areas. Placement of a transmission line in lands with wilderness characteristics 

would degrade the natural, or undeveloped, characteristics of recommended wilderness, the WSA, BLM 

natural areas and non-WSA lands that have wilderness characteristics. These human-made structures 

would conflict with the prescribed undeveloped setting in the Primitive Zone of the GSENM and may 

degrade the historic setting of the Bryce Canyon Lodge and the botanical and geologic values of the Red 

Canyon RNA and Red Canyon Botanical Area. A transmission line may also have an adverse effect on 

the roadless and undeveloped character of IRAs and the unroaded lands on the DNF. 

The presence and noise of people, vehicles, construction equipment, and helicopters would diminish 

opportunities for solitude sought by visitors to lands with wilderness characteristics and would conflict 

with desired primitive forms of recreation. The same would be true in areas of IRAs managed for 

primitive and semi-primitive, non-motorized recreation experiences (36 CFR Part 294 Special Areas, 

Roadless Area Conservation; Final Rule) and in the unroaded and undeveloped areas of the DNF. Further, 

the construction and operation of a transmission line would also be inconsistent with recreation objectives 

in the Primitive Zone of the GSENM, which is “intended to provide an undeveloped, primitive, and selfdirected visitor experience, without motorized or mechanized access” (BLM 2000). 

Once the transmission line is in place, the presence of human-made structures would change the setting 

needed to support opportunities for solitude and primitive and self-directed forms of recreation in the 

affected non-WSA lands that have wilderness characteristics, natural areas, GSENM Primitive Zone, and 

IRAs. The presence of these structures would degrade the natural and undeveloped setting needed to 

support these types of recreational activities and desired human experiences. 

1.1.4. Distinctive Land Area Issue Statement 

Presence of a transmission line, as well as construction activities, could impact the values associated with 

areas of special designation [now referred to as distinctive land areas].

Power line construction and the presence of roads and a power line may impact the natural characteristics 

and supplemental wilderness values of the lands in recommended wilderness, WSAs, natural areas and 

non-WSA lands with wilderness characteristics. Construction and placement of facilities may also have 

adverse effects on the values of uses of USFS IRAs and unroaded and undeveloped areas, BLM Primitive 

Zones, the Bryce Canyon Lodge National Historic Landmark, and the Red Canyon Research Natural Area 

and Red Canyon Botanical Area. 

1.2. DESCRIPTION OF AFFECTED ENVIRONMENT 

1.2.1. Project and Study Areas 

The Project Area is in Garfield County, between the communities of Tropic and Hatch in southern Utah. 

The Project Area includes the following: 

• Proposed Action and alternative transmission line right-of-way. 

• Temporary work areas. 

• Proposed substation sites. 

• Proposed access roads and routes, and access improvements. 

• Existing 69 kV transmission line right-of-way. 

The Study Area provides context for resource effects that may occur within the Project Area in order to 

quantify the magnitude of effects. The Study Area for distinctive land areas includes NPS recommended 

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wilderness; BLM WSAs, natural areas and non-WSA lands with wilderness characteristics; USFS IRAs 

and unroaded/undeveloped areas; and the Primitive Zone of the BLM’s GSENM. 

1.2.2. Data Sources 

Most of the information used in the description of distinctive land areas came from the agencies that 

manage and administer the lands the proposed transmission line would cross—DNF, KFO, GSENM, and 

BRCA. Smaller portions of the proposed and alternative alignments cross state and private lands, but 

these land owners do not manage their lands for special management purposes, including wilderness 

characteristics, primitive management objectives, national historic landmarks, or research natural areas or 

botanical areas. 

Information on the USFS IRAs came from the USFS 2001 “Roadless Rule” (36 CFR Part 294), the USFS 

manual on land and resource planning (Part 1920), and DNF staff. Information on unroaded and 

undeveloped areas came from inventories conducted by the DNF (November 2005). Information about 

the BLM wilderness study area came from the agency’s final wilderness EIS (BLM 1990). Information on 

other public lands with wilderness characteristics came from BLM’s 1999 Utah Wilderness Inventory 

(BLM 1999) and the KFO Final RMP and EIS (BLM 2008). Information on the primitive values and 

management objectives of the GSENM came from the Monument Management Plan (BLM 2000). 

Information on recommended wilderness in BRCA came from the General Management Plan (NPS 

1987), as did information on the historic values of Bryce Canyon Lodge. Information on the Red Canyon 

Research Natural Area came from the establishment record for Red Canyon Research Natural Area 

(USFS 1987), and information on the Red Canyon Botanical Area came from the Conservation 

Assessment, Strategy and Agreement for Sensitive Plant Species in the Red Canyon Area (USFS 2000). 

Policy on management of IRAs can be found in the Secretary of Agriculture Memorandum 1042-154 

(May 28, 2009). Policy for management of BLM wilderness study areas is guided generally by the 

Federal Land Policy and Management Act of 1976 (P.L. 94-579) and specifically by the Interim 

Management Policy (BLM Manual H-8550-1). Management of the Primitive Zone in BLM’s GSENM is 

guided by the Monument Management Plan (BLM 2000), and policy for management of recommended 

wilderness in BRCA is established in the general management plan for the Park (NPS 1987). 

1.2.3. Resource Management Direction 

Distinctive land areas are managed in a manner that protects their wilderness, primitive, historic, 

botanical, and geologic resource values. Each agency writes regulations and policies to implement the 

protective measures of the law that created the authority to establish these areas. 

1.2.3.1. U. S. Forest Service 

Inventoried Roadless Areas 

Inventoried roadless area characteristics contain important environmental values that warrant protection. 

Their characteristics include the following: 

• Soil, water, and air resources 

• Sources of public drinking water 

• Diversity of plant and animal communities 

• Habitat for threatened, endangered, and sensitive species and species dependent on large 

undisturbed areas of land 

• Primitive and semi-primitive classes of recreation 

• Reference landscapes for research, study, or interpretation 

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• Landscape character and integrity 

• Traditional cultural properties and sacred sites 

• Other locally identified unique characteristics 

There are four IRAs in and adjacent to the Project Area: Table Cliffs-Henderson Canyon (19,566 acres); 

Shakespear Point (751 acres); Red Canyon South (3,731 acres); and Red Canyon North (9,435 acres). 

These areas are described in Section 1.2.3.1 Inventoried Roadless Areas. 

Inventoried roadless areas contain important environmental values that warrant protection. Until the 

USFS completes a forest-level roads analysis and incorporates that information into its forest planning 

process, IRAs, as a general rule, will be managed to preserve their roadless character. To implement this 

policy, the USFS established a directive that prohibits road construction, road re-construction, or timber 

harvest in IRAs without review and approval from the Washington Office. The intent of the directive is to 

provide lasting protection for IRAs on National Forest lands in the context of multiple-use management. 

The DNF LRMP (USFS 1986) does not specifically address management of IRAs, so the guidance of the 

USFS 2009 memorandum would apply until the revision of the DNF LRMP. Since the 2001 Roadless 

Rule is currently enjoined and the roadless portion of USFS Manual 1925 has expired, there is no 

regulatory or policy guidance on management of activities in IRAs. However, the USFS has decided to 

defer any activity that may conflict with court rulings (to manage for IRAs or not manage for IRAs). 

Thus, the restrictions on road construction and timber harvest of the Roadless Rule still apply. 

Unroaded and Undeveloped Areas 

As part of the DNF Plan revision process, the USFS conducted an inventory to identify lands with 

wilderness characteristics and to consider possible additions to the National Wilderness Preservation 

System. There are four unroaded and undeveloped areas on the Forest in proximity to the Project Area, 

including Red Canyon North (15,131 acres), Red Canyon South (5,597 acres), Shakespear Point (1,280 

acres), and Table Cliffs – Henderson Canyon (19,614 acres). These unroaded areas generally coincide 

with the existing IRAs described above, although Red Canyon South unroaded area is somewhat larger 

than the Red Canyon South IRA. The Red Canyon South unroaded area also includes the Red Canyon 

Botanical Area (see Figure 1.2-1). 

Since the Forest Plan revision is currently on hold, no direction was prescribed for these four unroaded 

areas. The inventory just identifies lands that have wilderness characteristics. Management of these lands 

is currently guided by the existing LRMP for the DNF (USFS 1986). 

Research Natural Areas 

The Red Canyon Research Natural Area (RNA) lies in proximity to the existing 69 kV power line in Red 

Canyon. The objective for management of the RNA is to protect the ecosystem structure and function of 

the xeric forest and woodland, typical of parts of the Utah high plateaus, and to maintain the habitat for 

endemic and rare plants. The objectives are accomplished without any special management actions, other 

than protection against uses that might jeopardize the values for which the RNA was designated. No 

special vegetation management practices (such as prescribed burning) or livestock grazing systems are 

needed to maintain ecological conditions. There is, at present, no need for management structures, such as 

fencing to protect any part of the RNA. The RNA is completely within the Red Canyon North Inventoried 

Roadless Area. The management prescription to protect the roadless and undeveloped character of the 

IRA will afford supplemental protection to the RNA values. 

See Section 1.2.3.1 for a description of the Red Canyon Research Natural Area. 

Botanical Areas 

The management objective for the Red Canyon Botanical Area south of Red Canyon (see Figure 1.2-1) is 

to ensure persistence of the sensitive plants. To achieve this objective, several actions would be 

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implemented, including monitoring the effects of off-highway vehicle use, regulating recreational use, 

and regulating road construction. The botanical area contains no foot trails, though walking is permitted 

in the area. 

1.2.3.2. Bureau of Land Management 

Wilderness Study Areas (WSA) 

There is one WSA in the Project Area: The Blues WSA (18,776 acres) east of Cedar Fork Canyon in the 

GSENM, northeast of the town of Tropic. This WSA is described in Section 1.2.3.2 Wilderness Study 

Areas. No alternative power line rights-of-way or alignments are proposed in the WSA. 

Wilderness study areas are public lands managed by the BLM that contain wilderness characteristics as 

defined in the Wilderness Act of 1964 (P.L. 88-577). Under FLPMA (P.L. 94-579), the BLM is mandated 

to protect WSAs until Congress either designates them wilderness or releases them for other uses. To 

implement the protective mandate of FLPMA, BLM established the Interim Management Policy and 

Guideline for Lands Under Wilderness Review (IMP) (BLM Manual H-8550-1). In the IMP, BLM 

identifies specific policy on management of other resource values and uses in WSAs to meet the 

protective requirement of FLPMA. 

The basic tenet of the IMP requires that BLM allow no permanent structures or surface disturbance that 

would impair the wilderness characteristics of the WSA and preclude Congress’ prerogative to designate 

the area as wilderness, subject to allowable grandfathered uses and valid existing rights. According to the 

IMP, only temporary rights-of-way that would not impair the wilderness characteristics of a WSA would 

be permitted. The nature and intent of this project is not likely to meet that standard. 

The BLM’s GSENM Management Plan (BLM 2000) includes two specific decisions regarding 

management of WSAs in the national monument. 

WSA – 1 Existing WSAs in the Monument will be managed under the BLM’s Interim Management 

Policy (IMP) and Guidelines for Lands Under Wilderness Review (BLM Manual H8850-1) until legislation takes effect to change their status. The major objective of the 

IMP is to manage lands under wilderness review in a manner that does not impair their 

suitability for designation as wilderness. In general, the only activities permissible under 

the IMP are temporary uses that create no new surface disturbance nor involve permanent 

placement of structures. Temporary, non-disturbing activities, as well as activities 

governed by valid existing rights, may generally continue in WSAs. 

WSA – 2 Actions allowed under the IMP will also be subject to other BLM laws and policies that 

govern the use of public land, including management prescriptions or other restrictions 

developed in this Plan (where they are consistent with the IMP). It is important to note 

that some uses and activities described in this Plan may not be achievable under the IMP. 

Where conflicts occur between the zone prescriptions and IMP, IMP will take precedence 

until action is taken by Congress to either designate the WSAs as Wilderness or release 

them from further protection. This Plan and zone prescription will apply to all public land 

within the Monument if Congress releases them from WSA status. 

Non-WSA Lands with Wilderness Characteristics and Natural Areas 

Other public lands in Utah, outside existing WSAs, were inventoried between 1996 and 1999 and found 

to have wilderness characteristics as defined in the Wilderness Act of 1964 (P.L. 88-577). These lands are 

not WSAs nor managed under the protective provisions of the IMP (BLM 1995). They are managed 

according to the BLM land use plan in effect for the area. There are two non-WSA areas of public lands 

that were found to have wilderness characteristics in the 1996 – 1999 inventory (BLM 1999): Box 

Canyon (2,928 acres) and the East of Bryce natural area (867 acres). 

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Box Canyon is located northeast of the town of Tropic and west of The Blues WSA across the existing 

230 kV Rocky Mountain Power line. It is managed according to the GSENM management plan. The 

GSENM management plan allocates a large portion of the monument (65 percent) to management as a 

Primitive Zone, including the Box Canyon area with wilderness characteristics. The monument 

management plan says: 

The Primitive Zone . . . is intended to provide an undeveloped, primitive and self-directed visitor 

experience without motorized or mechanized access. Some administrative routes are included in 

this zone, which could allow for very limited motorized access. Facilities would be non-existent, 

except for limited signs for resource protection or public safety. The zone is intended to facilitate 

landscape-scale research and therefore connects each of the three major landscapes (Escalante 

Canyons, Kaiparowits Plateau, and Grand Staircase), as well as linking low elevation areas to 

higher elevations. This zone is also intended to connect primitive and undeveloped areas on 

surrounding lands managed by other federal agencies. 

According to the KFO RMP, BLM natural areas will be managed to protect, preserve, and maintain 

values of primitive recreation, the appearance of naturalness and solitude (BLM 2008). The East of Bryce 

natural area is located northwest of the town of Tropic, contiguous to BRCA. It is managed according to 

the KFO RMP (BLM 2008), which allocates these lands to protection of their wilderness characteristics. 

Specifically, the RMP says: 

Manage the following non-WSA lands with wilderness characteristics (27,700 acres) specifically 

to protect, preserve, and maintain their wilderness characteristics: East of Bryce (850 acres) . . . 

Protect, preserve, and maintain wilderness characteristics through the following prescriptions: 

• Designate as VRM Class II 

• Close to commercial and personal-use forest and woodland product harvest (e.g., pole, post, 

firewood cutting, Christmas tree, seed collection, and wildlings) except for incidental 

collection for onsite campfire use and administrative purposes. 

• Limited to designated routes. 

• Avoid new rights-of-way (linear, communication sites, and wind and solar projects). 

• Retain public lands in federal ownership. 

• Close to mineral material disposals. 

• Open to fluid mineral leasing with major constraints (NSO). 

Primitive Zones 

Public lands administered by the BLM north of the town of Tropic, south of the DNF, and east of BRCA 

are included in the GSENM. This portion of the monument is managed as a Primitive Zone (see Figure 

1.2-1) and includes The Blues WSA and Box Canyon non-WSA lands with wilderness characteristics. As 

a Primitive Zone, the monument management plan prescribes that the Primitive Zone— 

... is intended to provide an undeveloped, primitive and self-directed visitor experience without 

motorized or mechanized access. Some administrative routes are included in this zone, which 

could allow very limited motorized access. Facilities will be non-existent, except for limited signs 

for resource protection or public safety. The zone is intended to facilitate landscape-scale research 

. . . [C]onnect primitive and undeveloped areas on surrounding lands managed by other Federal 

agencies. 

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Figure 1.2-1 Distinctive Land Areas in Project Area Vicinity 

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1.2.3.3. National Park Service 

Recommended Wilderness Areas 

Two parcels are recommended for wilderness: one unnamed area north of Highway 12 at the northern end 

of the Park (2,592 acres) and a second, much larger, unnamed parcel in the eastern portion of the park 

south of Highway 12 and east of the main park road (19,038 acres). See Figure 1.2-1. 

The general management plan for BRCA, prepared in 1987, zoned 62 percent (22,325 acres) of the Park 

as the wilderness subzone, stating: 

The majority of the park lands are further classified as wilderness subzone to reflect the park’s 

wilderness recommendation. These lands are primarily located below the rim of the canyon. The 

Bryce Amphitheater and several other parcels of land below the rim are excluded from the 

wilderness subzone. Management of this zone strictly conforms to the wilderness management 

policy. 

Wilderness resource management policy, as defined in Management Policies 2006 (NPS 2006), says: 

In addition to managing these areas for the preservation of the physical wilderness resources, 

planning for these areas must ensure that the wilderness character is likewise preserved. This 

policy will be applied to all planning document affecting wilderness. 

“These areas” refers to NPS areas in the following wilderness categories: eligible, study, proposed, 

recommended, and designated wilderness. The policy goes on to say: 

The National Park Service will take no action that would diminish the wilderness eligibility of an 

area possessing wilderness characteristic until the legislative process of wilderness designation 

has been completed. Until that time, management decisions will be made in expectation of 

eventual wilderness designation. This policy also applies to potential wilderness, requiring it to be 

managed as wilderness to the extent that existing nonconforming conditions allow. . . . All 

management decisions affecting wilderness will further apply the concept of “minimum 

requirement” for the administration of the area regardless of wilderness category. The only 

exception is for areas that have been found eligible, but for which, after completion of a 

wilderness study, the Service has not proposed wilderness designation. However, those lands will 

still be managed to preserve their eligibility for designation. 

National Historic Landmarks 

The Bryce Canyon Lodge National Historic Landmark is located about 4 miles south of the Project Area 

in the National Park. National Historic Landmarks (NHLs) are buildings, sites, structures, objects, or 

districts recognized for their historical significance and listed on the National Register of Historic Places. 

NHLs are designated by the Secretary of the Interior because they are: 

- Places where events of national historic significance occurred 

- Places where prominent people lived or worked 

- Icons of ideals that shaped our nation 

- Outstanding examples of design or construction 

- Places that characterize a way of life 

- Archaeological sites able to yield information 

The program began in 1960, and today there are about 2,500 NHLs. 

12
The Bryce Canyon Lodge was designated as a National Historic Landmark in 1987 because it possesses 

the following aspects of integrity: an historic setting, its physical structure, and the feeling the visitor 

experiences while at the lodge. 

1.2.4. Distinctive Land Areas 

1.2.4.1. U. S. Forest Service 

Inventoried Roadless Areas (IRAs) 

Table Cliffs - Henderson Canyon

The 19,566-acre roadless area (see Figure 1.2-1) is about 5 miles northeast of the town of Tropic and 20 

miles west of the town of Escalante, Utah. Access to the IRA is poor, via low-standard, dry-weather dirt 

road suitable for high-clearance travel only. The Burro Canyon, Henderson Canyon, and Under the Point 

Trails are present in the area (USFS 2004). 

The area is north and east of BRCA. The Table Cliff Plateau is about 10,000 feet in elevation and nearly 

flat on top. Because of its elevation and topography, it supports mixed stands of spruce, subalpine fir, 

aspen, and bristlecone pine. Some of the bristlecone is estimated to be 3,000 years old. The southern tip of 

the area, Powell Point, provides excellent views of the southern Utah desert and prominent land features. 

Most noticeable are BRCA, Navajo Mountain, and the Henry Mountains. Vertical cliffs drop about 2,000 

feet on either side of the plateau. The cliff faces are colored with shades of pink, red, white, and purple. 

Ponderosa pine is the dominant vegetation in the upper end of Henderson Canyon. The canyon also 

contains some spruce and Douglas-fir. At lower elevations, the dominant trees are pinyon pine and 

juniper. 

The area west of the Table Cliffs Plateau forms part of the headwaters of the Paria River that drains into 

the Colorado River at Lee’s Ferry. The area has been carved by erosion leaving flat mesas and long, flat 

ridges divided by steep, rough canyons with nearly vertical rock walls. These canyons are covered with 

sage brush, pinyon, and juniper. 

In the early 1900s, a small sawmill was set up in Henderson Canyon and a part of the ponderosa stands 

were logged. A communication site and the Rocky Mountain Power/PacifiCorp 230 kV transmission line 

and 100-foot right-of-way along with 2.25 miles of access routes are located in the western portion of the 

area. 

The inventoried roadless area is contiguous to The Blues WSA in BLM’s GSENM. 

The proposed power line would be located adjacent to the existing 230 kV Rocky Mountain Power line in 

Cedar Fork Canyon under both Alternatives A and C. The existing power line crosses the western portion 

of the Table Cliffs – Henderson Canyon IRA. A portion of the proposed right-of-way and power line 

would be located in the IRA under both alternatives. 

Shakespear Point

The 751-acre roadless area (see Figure 1.2-1) is about 5 miles northeast of the town of Tropic and 30 

miles west of the town of Escalante, Utah. Access roads to the IRA are poor, low-standard, dry-weather 

dirt roads suitable for high-clearance travel only. The IRA, by itself, has little wilderness potential, as it is 

only 751 acres in size. The area, however, is contiguous to a recommended wilderness area in BRCA 

(USFS 2004) and BLM’s Box Canyon non-WSA lands with wilderness characteristics. 

The topography is steep and rocky. Elevations average about 9,000 feet. Surface water is sparse, and the 

area is vegetated primarily with pinyon pine and juniper trees. Areas of sagebrush and mountain shrubs 

also occur. Sparse understory ground cover in the pinyon/juniper stands facilitates considerable soil 

erosion during rainfall events. 

13
The principal use of the area is dispersed recreation, mostly big game hunting. The annual recreation use 

is light. 

The proposed power line would be located adjacent to the existing Rocky Mountain Power line in Cedar 

Fork Canyon under both Alternative A and Alternative C. A portion of the proposed right-of-way (2.9 

acres) would be located in the IRA under Alternative A. Under Alternative C, 4.3 acres of the right-ofway would be located in the IRA. 

Red Canyon North

The 9,435-acre inventoried roadless area (see Figure 1.2-1) is about 10 miles southeast of Panguitch, 

Utah. Access to the IRA varies from good to poor. Low-standard, dry-weather roads suitable for highclearance vehicles provide access to the northern and eastern portions of the roadless area. Highway 12 

provides all-weather, year-round access to the southern part of the area (USFS 2004). 

The landform is characterized by the pink and white limestone cliffs of the Claron Formation. Surface 

water is extremely sparse. Vegetation is scattered and sparse. The dominant tree species are ponderosa 

pine and pinyon pine with lesser amounts of Douglas-fir, spruce, and bristlecone pine. Sparse understory 

cover facilitates considerable erosion during storms. 

The principal uses are livestock trailing, hiking, horseback riding, and mountain bike riding. There is a 

large network of non-motorized trails in the area that draw heavy use. Outfitters and guides use the area 

for mountain bike and horseback riding. Stands of commercial timber are limited, and timber harvesting 

has not occurred recently. Some logging has occurred in the area, however, and evidence of roads and 

stumps is obvious. 

Scenic values are high due to the colorful rock formations and highly dissected landform. Sightseeing, or 

viewing scenery, is a main attraction to the area. The area contains habitat for rare and endemic plants. A 

Research Natural Area (RNA) exists within the area. 

The existing 69 kV power line and the proposed power line under Alternative B would pass about 1 mile 

south of the southern boundary of the IRA. 

Red Canyon South

The 3,731-acre inventoried roadless area (see Figure 1.2-1) is about 10 miles southeast of Panguitch, 

Utah. Access to the IRA varies from good to poor. Low-standard roads, dry-weather roads, suitable for 

high-clearance vehicles, provide access to the southern and eastern portions of the roadless area (USFS 

2004). 

The landform is characterized by the pink and white limestone cliffs of the Claron Formation capped with 

sandstones and conglomerates of the Wasatch Formation. Surface water is extremely sparse. Vegetation is 

scattered and sparse. The dominant tree species are ponderosa pine, pinyon pine, and lesser amounts of 

Douglas-fir, spruce, bristlecone pine, and limber pine. Sparse understory cover facilitates considerable 

erosion during storms. 

The principal use of the area is dispersed recreation, mostly viewing scenery. Scenic values are high due 

to colorful rock formations and highly dissected topography. The Thunder Mountain Trail is located in 

this area and is popular with hikers, mountain bikers, and horseback riders. Outfitters and guides provide 

horseback-riding trips using the Thunder Mountain Trail. Annual recreation use is low. 

Small amounts of logging have occurred. The stands of commercial timber are limited and scattered, 

which has precluded harvesting over most of the area. 

The area is quite scenic due to the colorful rock formations and highly dissected landforms. Viewing 

scenery is the principal attraction to the area. The area also contains several threatened and endangered 

plants. The Red Canyon Botanical Area, designated for rare and endemic plants, is located about 1⁄2 mile 

east of the IRA (see Red Canyon Botanical Area discussion below). 

14
The existing 69 kV power line forms the northern boundary of the IRA. The proposed 138 kV power line 

would be located adjacent to the existing 69 kV line under Alternative B. If topography does not allow the 

proposed 138 kV line to be built within the 69 kV line right-of-way, portions of the new line may need to 

be located in the IRA. Since the 69 kV line would remain in service until the new 138 kV line is 

completed, there would be a temporary doubling of effects on the ground, pending decommissioning and 

rehabilitation of the 69 kV line. 

Unroaded and Undeveloped Areas 

As part of the DNF Plan revision process, the DNF conducted an inventory to identify lands with 

wilderness characteristics and to consider possible additions to the National Wilderness Preservation 

System. There are four unroaded and undeveloped areas in and adjacent to the Project Area: Table Cliffs–

Henderson Canyon (19,614 acres), Shakespear Point (1,280 acres), Red Canyon North (15,131 acres), and 

Red Canyon South (5,597 acres). These areas were inventoried for their wilderness characteristics as part 

of the DNF LRMP revision process and are generally the same lands as the IRAs described above (see 

Figure 1.2-1). They are approximately the same size and configuration, have the same resource values, 

and are used for the same purposes as described above. However, there are three differences worthy of 

identification. 

First, the southern boundary of the Red Canyon North unroaded area extends south to SR 12. The IRA 

boundary does not. Second, the size and configuration of the Red Canyon South unroaded area is notably 

different from the IRA. It extends about 1 mile east and includes the Red Canyon Botanical Area, and it 

extends about 1.5 miles further south than the IRA. The proposed transmission line under Alternative A 

would cross about 1.5 miles of the southeastern and southwestern parts of the unroaded area. Alternative 

A bisects the unroaded area in the Hillsdale Canyon–Ahlstrom Hollow acceptable window for power 

corridors. Third, the Rocky Mountain Power/PacifiCorp 230 kV transmission line forms the boundary 

between the Table Cliffs–Henderson Canyon and Shakespear Point unroaded areas, whereas the 

transmission line lies within the western portion of the Table Cliffs–Henderson Canyon IRA. Both of 

these areas are within the Johns Valley–Upper Valley acceptable window for power corridors. 

Since the LRMP revision is currently on hold, no direction was prescribed for these four unroaded areas. 

The inventory just identifies lands that have wilderness characteristics. Management of these lands is 

currently guided by the existing LRMP for the DNF (USFS 1986) and is not based on unroaded 

characteristics. 

Research Natural Areas 

Red Canyon Research Natural Area

The Red Canyon Research Natural Area (RNA) is a small watershed near the western edge of the 

Paunsaugunt Plateau. The RNA is located north of Highway 12 near the western edge of the DNF. At 460 

acres in size, the RNA contains mixed-conifer forests and woodlands on contrasting geologic substrates. 

The RNA also includes an unusually rich assemblage of endemic plants, some of which are rare. Field 

studies in 1983 and 1984 found the site eligible for RNA status. Red Canyon was identified as a candidate 

RNA in the DNF LRMP (USFS 1986) and designated in 1987. 

Red Canyon RNA contains small but significant examples of xeric woodland and shrubland communities, 

which are poorly represented in the existing RNA system. The site supports coniferous forest 

communities on two contrasting geologic substrates. Small stands of mixed-conifers, primarily ponderosa 

pine and Douglas-fir, occur on sites where soils and aspect are favorable. An understory of greenleaf 

manzanita is found on limestone soils and curlleaf mountain mahogany occurs on basalt. Pinyon-juniper, 

curlleaf mountain mahogany, and black sagebrush vegetation communities are also present. The eastern 

part of the RNA consists of sparsely-vegetated slopes and outcrops of limestone. These barren habitats 

support most of the rare plant populations. 

15
This combination of vegetation and geology is poorly represented in the existing RNA system. These 

forest stands are not strongly typical of stands under timber management, but representative of forests that 

occupy wide areas on the dissected flanks of the Paunsaugunt and adjacent plateaus. 

The RNA is also known among botanists as an unusually rich center of plant endemism. Red Canyon 

RNA contains occurrences of 13 endemic or otherwise rare plant taxa, and has the potential for three 

more endemics that occur nearby. While none of these 16 endemic plants are listed as threatened or 

endangered under the Endangered Species Act, six are candidates for such listing. Management of the 

RNA protects portions of the habitat for these taxa, so that future listing is unneeded. 

The Red Canyon RNA supports research and educational uses. As a small but entire watershed, the RNA 

affords opportunities for research that would be unaffected by upstream influences. Further, the 

juxtaposition of contrasting geologic materials (basalt and limestone) provides the opportunities to study 

vegetational differences based on differing parent material when climate is the same (USFS 1987). 

The existing 69 kV power line and the proposed 138 kV power line under Alternative B are located south 

of Highway 12, about 1 to 1.5 miles south of the RNA. The power line would not cross the RNA under 

any alternative. 

Botanical Areas 

Red Canyon Botanical Area

The Red Canyon Botanical Area is approximately 212 acres located south of Highway 12 near the upper 

end of Red Canyon. The botanical area is a small watershed that contains a concentration of seven 

endemic plants known only to inhabit the Tertiary Claron (limestone) Formation. These species include 

revel paintbrush (Castilleja parvula var revealii), yellow-white cryptantha (Cryptantha ochroleuca), least 

spring parsley (Cymopterus minimus), Widstoe buckwheat (Eriogonum aretioides), Claron pepperplant 

(Lepidium montanum var. claronense), Red Canyon beardtongue (Penstemon bracteatus), and Maguire 

campion (Silene petersonii). Bristlecone pine (Pinus longaeva) are also present in the botanical area, 

which is characterized by barren slopes, hills, a plateau, and cliffs with limited vegetation and soils 

derived from highly erosive Claron Limestone (USFS 2000). 

The Botanical Area is located about 0.5 mile south of the existing 69 kV power line and the proposed 138 

kV power line under Alternative B, and about 1 mile north of the proposed 138 kV power line under 

Alternative A. The Botanical Areas is within the Red Canyon South unroaded/undeveloped area. The 

power line would not cross the Botanical Area under any alternative. 

1.2.4.2. Bureau of Land Management 

Wilderness Study Areas (WSAs) 

The Blues WSA

The Blues WSA (18,776 acres, see Figure 1.2-1), which is located in BLM’s GSENM about 5 miles 

northeast of the town of Tropic. The Rocky Mountain Power/PacifiCorp transmission line access road 

borders its southern side and parts of its eastern side. The Tropic Valley lies to the west. 

The Blues WSA is characterized by pinyon pine and juniper woodlands, cliffs, escarpments, rolling hills, 

and blue-gray badlands. Elevations range from 8,200 feet near the DNF to 6,400 feet on the west near the 

Tropic Valley. 

The Blues WSA is about 6 miles long north to south and 11 miles wide east to west, and is highly natural, 

with few imprints of human development. The area offers outstanding opportunities for solitude due to its 

size, configuration, and vegetative and topographic diversity. Opportunities for primitive forms of 

recreation are also outstanding and include hunting, hiking, backpacking, rock climbing, sightseeing, and 

exploring. Supplemental wilderness values include Threatened, Endangered, and Sensitive plant and 

animal species. 

16
The WSA is bordered on the north by the DNF Table Cliffs–Henderson Canyon IRA. The existing Rocky 

Mountain Power/PacifiCorp 230 kV transmission line right-of-way forms the western boundary of The 

Blues WSA. The proposed 138 kV transmission line would be located adjacent to this transmission line, 

but outside the WSA, under Alternatives A and C. No alternative transmission line rights-of-way or 

alignments are proposed in the WSA. 

Non-WSA Lands with Wilderness Characteristics and Natural Areas 

Box Canyon Non-WSA Lands with Wilderness Characteristics

Box Canyon is located northeast of the town of Tropic and west of The Blues WSA across the existing 

230 kV Rocky Mountain Power/PacifiCorp line. It is managed according to the GSENM management 

plan. The GSENM management plan (BLM 2000) allocates a large portion of the Monument (65 percent) 

to management as a Primitive Zone, including the Box Canyon area with wilderness characteristics. See 

the section titled “Primitive Zone” below for detailed information on Primitive Zone land management. 

The Box Canyon non–wilderness study area lands with wilderness characteristics (see Figure 1.2-1)—

2,928 acres—is located contiguous to the northeastern corner of BRCA, about 3 miles north of the town 

of Tropic. The area consists of a steep portion of Bull Dog Bench. Box Canyon, Dry Canyon, and other 

unnamed canyons drain south to the Paria River. The northern canyons and benches are lightly forested 

with pinyon pine and juniper. The lower, south-facing valleys and hills are covered with sagebrush and 

shrubs. 

Most of the area retains its natural characteristics, with upper elevations nearly pristine. Some surface 

disturbance and human-made development occur adjacent to private lands, but these disturbances are 

naturally rehabilitating. 

The area is not large enough to have wilderness characteristics of its own, but the area is contiguous to 

lands in BRCA that have been recommended for wilderness designation. Together, these lands offer 

outstanding opportunities for solitude and primitive forms of recreation including hiking, horseback 

riding, and sightseeing. 

The existing Rocky Mountain Power/PacifiCorp 230 kV transmission line right-of-way forms the eastern 

boundary of the Box Canyon non–wilderness study area lands with wilderness characteristics. The 

proposed 138 kV transmission line would be located adjacent to this line and would cross portions of this 

area under Alternatives A and C. 

East of Bryce Natural Area

According to the KFO RMP, BLM natural areas will be managed to protect, preserve, and maintain 

values of primitive recreation, the appearance of naturalness and solitude (BLM 2008). The East of Bryce 

natural area (867 acres) is located about 1 mile northwest of the town of Tropic, contiguous to BRCA. It 

is managed according to the KFO RMP (BLM 2008), which allocates these lands to protection of their 

wilderness characteristics. The area includes a large mesa overlooking Tropic Valley to the east and 

Bryce Canyon to the west. Several drainages flow from the mesa to the south and east. Vegetation is 

predominantly pinyon pine and juniper on the mesa top and finger ridges, with sagebrush and shrubs on 

the hillsides to the south and east. 

The area retains its natural characteristics, with undeveloped landscapes and little evidence of human 

development. The area, however, is not large enough to possess wilderness characteristics on its own but 

is contiguous to lands in BRCA that have been recommended for wilderness designation. Together, the 

lands provide outstanding opportunities for solitude and primitive forms of recreation, including hiking, 

backpacking, and photography. Exceptional views from the mesa top supplement the wilderness 

characteristics of the area. 

17
Under the KFO RMP (BLM 2008), 850 acres of East of Bryce natural area is managed with emphasis on 

protection of those wilderness characteristics. 

The northern boundary of the East of Bryce natural area was set a few hundred feet southwest of the 

existing 69 kV transmission line, enough to accommodate placement of another transmission line rightof-way without infringing upon the lands managed for protection of their wilderness characteristics 

(personal communication, H. Wolfe, March 20, 2009). 

Primitive Zones 

Grand Staircase-Escalante National Monument

Public lands administered by the BLM north of the town of Tropic, south of the DNF, and east of BRCA 

are included in the GSENM. This portion of the GSENM is managed as a Primitive Zone (see Figure 1.2-

1) and includes The Blues WSA and Box Canyon non–wilderness study area lands with wilderness 

characteristics. This is the largest zone within the Monument, comprising 65 percent of the GSENM and 

totaling 1,210,579 acres. Management prescriptions within the primitive zone facilitate “undeveloped, 

primitive, self-directed visitor experience without motorized or mechanized access” (BLM 2000). This 

zone intends to connect primitive lands within the Monument to other undeveloped lands managed by 

other federal agencies. 

Some administrative routes are included in this zone, which could allow very limited motorized access. 

Facilities will be non-existent, except for limited signs for resource protection or public safety. The zone 

is intended to facilitate landscape-scale research. 

The existing Rocky Mountain Power/PacifiCorp 230 kV transmission line, which crosses the Primitive 

Zone of the GSENM, was built in 1964 prior to its establishment. The proposed 138 kV line would abut 

and parallel that alignment to the west, crossing the Primitive Zone under both Alternatives A and C. 

1.2.4.3. National Park Service 

Recommended Wilderness 

NPS lands that have been recommended to Congress by the President for wilderness designation are 

referred to as Recommended Wilderness. These lands are managed in the same manner as designated 

wilderness so that if they become wilderness, their wilderness character is preserved (Wilderness.net 

2008). 

The general management plan for BRCA, prepared in 1987, zoned 62 percent (22,325 acres) of the 

national park as the wilderness subzone. Two parcels within BRCA are recommended for wilderness: one 

unnamed area north of SR 12 at the northern end of the Park (2,592 acres) and a second, much larger, 

unnamed parcel in the eastern portion of the park, south of SR 12 and east of the main park road (19,038 

acres). See Figure 1.2-1. These lands are located primarily below the rim of the canyon. 

National Historic Landmarks 

Bryce Canyon Lodge National Historic Landmark

The historic Bryce Canyon Lodge (see Figure 1.2-1) was constructed during the period between 1925 and 

1929. The lodge is a two-story, wood-framed building of about 23,920 square feet. It provides a variety of 

services to visitors to the park and is divided into functional units including the kitchen, dining room, 

lobby, gift shop, auditorium, rest rooms, and offices on the first floor. A dormitory is located on the 

second floor. 

Bryce Canyon Lodge was nominated as a National Historic Landmark in 1986 and designated as a 

landmark in 1987. The lodge was designated because of its historic setting, its physical structure, and the 

feeling the visitor experiences while at the lodge (aspects of integrity). 

18
1.3. IMPACT ANALYSIS 

1.3.1. Direct and Indirect Effects 

The Proposed Action and Alternatives outlined in previous sections may cause, directly or indirectly, 

changes in the human environment. This report assesses and analyzes these potential changes for 

inclusion in the EIS prepared for this proposed project. 

The terms “effect” and “impact” are synonymous under NEPA. Effects may refer to adverse or beneficial 

ecological, aesthetic, historical, cultural, economic, social, or health-related phenomena that may be 

caused by the Proposed Action or Alternatives (40 CFR 1508.8). Effects may be direct, indirect, or 

cumulative in nature. A direct effect occurs at the same time and place as the action (40 CFR 1508.8(a)). 

Indirect effects are reasonably foreseeable effects that occur later in time or are removed in distance from 

the action (40 CFR 1508(b)). In this report, direct and indirect effects are discussed in combination under 

each affected resource. 

1.3.1.1. Indicators and Methods of Analysis 

The analysis of the impacts of the Proposed Action and Action Alternatives on the distinctive land areas 

that occur along the various alignments was prepared using a typical “cause and effect” analysis. The 

analysis examined the location of surface disturbance that would be created by each element of 

construction and operation of the transmission line, as guided by agency policy for management of the 

distinctive land areas. 

Wilderness Characteristics 

The resource impact indicators that will be analyzed for the various categories of lands with wilderness 

characteristics include a quantitative measure of acres of roadless or natural characteristics lost due to 

surface-disturbing actions and placement of human-made structures on the landscape, the percentage of 

the total acreage with wilderness characteristics; and a qualitative judgment of lost opportunities for 

experiences of solitude and participation in primitive recreational activities in the short- and long-term 

(Table 1.3-1). 

A short-term loss of wilderness characteristics will be considered a “minor” impact, and typically include 

short-term loss of opportunities for solitude or primitive recreation due to the presence and noise of 

construction. Once construction activities are over, these effects would end. Impact on the natural 

characteristics of lands with wilderness characteristics would normally not be considered “minor,” as 

rehabilitation would be required to restore natural landscapes, and restoration would likely take longer 

than the construction time period (up to 12 months). 

A short-term loss of wilderness characteristics will be considered a “moderate” impact, and typically 

include surface disturbance that requires reclamation – recontouring of the land and revegetation. This 

effect would be “moderate” as time would be needed (up to 5 years) for successful revegetation to restore 

the natural landscape. 

A long-term or permanent loss of wilderness characteristics will be considered a “major” impact and may 

include surface disturbances or placement of structures on the landscape and changes to the undeveloped 

setting required to support opportunities for solitude and primitive recreation activities. Agency policies 

mandate protection of the wilderness characteristics of all of these lands, except for Box Canyon nonWSA lands with wilderness characteristics. Box Canyon, however, is located in the Primitive Zone of 

BLM’s GSENM, which requires protection of values similar to wilderness characteristics (see Table 1.3-

2). 

19
Table 1.3-1. Description of Wilderness Characteristics Impacts Levels 

ACRES OF NATURAL 

CHARACTERISTICS LOST;

OPPORTUNITIES FOR SOLITUDE OR 

PRIMITIVE RECREATION LOST

DESCRIPTION RELATIVE TO DISTINCTIVE LAND AREAS –

WILDERNESS CHARACTERISTICS

Magnitude 

Negligible A minimal effect on wilderness characteristics either 

temporally or spatially. 

Minor A short-term loss of wilderness characteristics typically 

opportunities for solitude or primitive forms of recreation. 

Moderate A short-term loss of wilderness characteristics including 

roadless character, natural characteristics, or opportunities 

for solitude or primitive forms of recreation. 

Major A long-term loss of wilderness characteristics including 

roadless character, natural characteristics, or opportunities 

for solitude or primitive forms of recreation. 

Duration 

Short-term During construction and rehabilitation following construction; 

up to 5 years. 

Long-term Permanent loss of wilderness characteristics; greater than 5 

years. 

Primitive Zone Management Objectives 

The resource impact indicators that will be analyzed for the Primitive Zone of the GSENM include a 

quantitative measure of acres of the Project Area, under each alternative, that would be inconsistent with 

the prohibition on facility development in the Primitive Zone resulting from surface disturbance for 

construction of roads and location of human-made facilities; and the percentage of the total acreage of the 

Primitive Zone. The impact analysis will also include a qualitative judgment of loss to a primitive and 

self-directed visitor experience resulting from construction and operation of a transmission line (Table 

1.3-2). 

A short-term inconsistency with primitive area objectives will be considered a minor impact, and 

typically include short-term loss of primitive and self-directed visitor experiences due to the presence and 

noise of construction. Once construction activities are over, these effects would end. Impacts on the 

undeveloped setting of the Primitive Zone would normally not be considered minor, as rehabilitation 

would be required to restore natural landscapes, and restoration would likely take longer than the 

construction time period (up to 12 months). 

A short-term inconsistency with primitive area objectives will be considered a moderate impact, and 

typically include surface disturbances that require reclamation – recontouring of the land and 

revegetation. This effect would be moderate as time would be needed (up to 5 years) for successful 

revegetation to restore the natural landscape. 

A long-term or permanent inconsistency with primitive area objectives will be considered a major impact 

and may include surface disturbances or placement of structures on the landscape and changes to the 

undeveloped setting required to support primitive and self-directed visitor experiences. The GSENM 

management plan requires compliance with these objectives. 

20
Table 1.3-2. Description of Primitive Zone Management Objectives Impacts Levels 

ACRES OF LANDS IN THE PRIMITIVE 

ZONE WHERE OBJECTIVES WOULD 

NOT BE ACCOMPLISHED

DESCRIPTION RELATIVE TO DISTINCTIVE LAND AREAS –

PRIMITIVE MANAGEMENT OBJECTIVES

Magnitude 

Negligible A minimal effect on the primitive or undeveloped setting 

and/or self-directed visitor experience either temporally or 

spatially. 

Minor A short-term inconsistency with primitive management 

objectives. 

Moderate A short-term inconsistency with primitive management 

objectives. 

Major A long-term or permanent inconsistency with primitive 

management objectives. 

Duration 

Short-term During construction and rehabilitation following construction; 

up to 5 years. 

Long-term Inconsistency with primitive management objectives for 

greater than 5 years. 

 

The quantitative analysis was performed using GIS technology, overlaying areas of physical disturbance 

with distinctive land areas. The qualitative analysis was based on the professional judgment and 

experience of the ID team member with expertise in special areas management. 

1.3.1.2. Direct and Indirect Effects by Alternative 

Because the Bryce Canyon Lodge National Historic Landmark is a few miles south of any proposed 

transmission line alignment, and is not expected to be affected by construction or operation of a 

transmission line, it would be unaffected by the Proposed Action or Action Alternatives and will not be 

part of the analysis area for this impact analysis. 

The Red Canyon Research Natural Area (RNA) and Red Canyon Botanical Area are located near the 

Project Area. Since none of the power line alternative alignments under the Proposed Action or Action 

Alternatives would pass through the RNA or Botanical Area, and there would be no anticipated surface 

disturbance to the botanical or geologic values of either area, they will not be part of the analysis area for 

this impact analysis. 

General project acreage tables are provided in Appendix A. 

Impacts Common to All Action Alternatives 

Construction of distribution lines in conjunction with removal of the existing Tropic Substation or either 

of the new Bryce Substation options would not impact distinctive land areas as all distribution lines are 

anticipated to be located on private property. 

 

Alternative A: Proposed Action 

Impacts as a Result of Amending the GSENM Management Plan

The GSENM Management Plan decision LAND-7 states: “In the Primitive Zone, utility rights-of-way 

will not be permitted. In cases of extreme need for local (not regional) needs and where other alternatives 

are not available, a plan amendment could be considered for these facilities in the Primitive Zone.” 

The GSENM Management Plan would be amended to designate a 100-foot-wide Passage Zone through 

the existing Primitive Zone, and to change the existing VRM objectives from Management Class II to 

21
Class III within this Passage Zone. Designation of the Passage Zone to include only Garkane’s 138 kV 

line would reduce the size of the Primitive Zone by 44.58 acres, as well as affect the natural character of 

the area, which would be less than 0.01 percent of the entire Primitive Zone. 

Creation of the 100-foot-wide Passage Zone along the eastern boundary of the Box Canyon non-WSA 

lands with wilderness characteristics to include the proposed Garkane line would also reduce the size and 

wilderness characteristics of the Box Canyon non-WSA area that has wilderness characteristics. 

Development of the proposed right-of-way would occupy 100 feet of the Passage Zone, reducing the 

natural characteristics, primitive recreational setting, and size of Box Canyon non-WSA lands with 

wilderness characteristics by 20.48 acres, which would be approximately 0.7 percent of Box Canyon nonWSA lands with wilderness characteristics. 

Under Alternative A, the amendment would not provide a Passage Zone for the existing Rocky Mountain 

Power/PacifiCorp right-of-way averaging 130 feet wide for the 230 kV transmission line across the 

Monument adjacent to the route proposed for the Garkane transmission line. 

Construction

Under Alternative A, 30.41 miles of 138 kV transmission line would be constructed from Tropic to 

Hatch, Utah. Along its length, the line would cross the Primitive Zone of the GSENM, including Box 

Canyon non-WSA lands with wilderness characteristics; Table Cliffs – Henderson Canyon and 

Shakespear Point IRAs; and the Table Cliffs – Henderson Canyon, Shakespear Point, and Red Canyon 

South unroaded/undeveloped areas. The line would be located adjacent to, or within 1 mile of, other 

distinctive land areas including The Blues WSA, the smaller NPS-recommended wilderness area, and Red 

Canyon South IRA. 

To support construction of the transmission line, pulling sites would also be constructed along the 

alignment adjacent to each of these areas. Existing travel routes would be improved as needed to provide 

access for construction. Due to the steep and rugged nature of the land, access and construction would be 

provided by helicopter in the central portion of Cedar Fork Canyon and in the southeastern corner of Red 

Canyon South unroaded/undeveloped area. 

U.S. Forest Service Inventoried Roadless Areas (IRAs). Under this alternative, surface disturbance 

associated with construction of the transmission line and placement of the transmission line in Cedar Fork 

Canyon, construction of pulling sites, and improvement of existing routes to provide access for 

construction would degrade the landscape character and integrity of a portion of the Shakespear Point and 

Table Cliffs – Henderson Canyon IRAs. The presence and noise of people, vehicles, equipment, and 

aircraft would result in a short-term minor conflict with primitive and semi-primitive classes of recreation 

in portions of these IRAs, as well as the southern portion of Red Canyon South IRA. While removal of 

the existing 69 kV transmission line from the Bryce Substation near Bryce Canyon City to the Hatch 

Mountain Substation north of Hatch would restore long-term landscape character and integrity adjacent to 

the northern boundary of the Red Canyon South IRA, the noise and presence of people, vehicles, 

equipment, and aircraft needed to remove that portion of the line would also create a short-term minor 

conflict with primitive and semi-primitive classes of recreation. 

Authorizing this project would establish a long-term right-of-way through 2.9 acres of the Shakespear 

Point IRA and 36.6 acres of the Table Cliffs – Henderson Canyon IRA. Establishing the right-of-way and 

constructing the transmission line would result in long-term disturbance or effects to the landscape 

character or integrity of the Shakespear Point IRA. Placement of power poles and conductors in the IRA 

would degrade the natural landscape character and integrity of the IRA and result in the long-term major 

disturbance of 0.01 acre of the IRA. Transmission line construction and access improvement would result 

in 4.8 acres (0.02 percent) of long-term, major disturbance to the Table Cliffs – Henderson Canyon IRA, 

including placement of human-made structures on the landscape. This disturbance and these structures 

would degrade the landscape character and integrity of this portion of the IRA, but no more so than the 

existing Rocky Mountain 230kV transmission line, which is adjacent to the proposed right of way. Soil 

22
leveling and vegetation clearing needed for the creation of pulling sites and construction of power poles 

would result in surface disturbance that would cause the minor short-term and moderate long-term loss of 

landscape character and integrity of 19.64 acres of the Table Cliffs – Henderson Canyon IRA; 1.14 acres 

of short-term minor disturbance would occur in the Shakespear Point IRA under this alternative. 

The presence and noise of people, vehicles, equipment, and aircraft needed for construction of the 

transmission line would result in a temporary minor conflict with primitive and semi-primitive forms of 

recreation. The effect on a visitor’s desired recreation experience would vary with each individual. The 

disruption of the desired recreation experience would be short-term and fleeting to some visitors but more 

lasting to others, affecting a person’s entire trip or experience. The noise and presence of construction 

would eventually end upon completion of the project. 

Construction of the transmission line and upgrading of roads to provide access for construction and 

operation of the line under Alternative A would separate seven portions (areas) of the Table Cliffs – 

Henderson Canyon IRA from the main body of the IRA and one portion (area) of the Shakespear Point 

IRA from the main body of that IRA. In Table Cliffs – Henderson Canyon IRA, placement of the 

transmission line and upgrading of access roads would increase the presence of structures and other 

human development, reducing the undeveloped character of the IRA by 140.3 acres (0.72 percent). In the 

Shakespear Point IRA, placement of the transmission line would reduce the undeveloped character of the 

IRA by 4 acres (0.53 percent). These would be long-term major impacts on the undeveloped character of 

the IRAs. Even with the exclusion of areas that would lose their undeveloped character by construction of 

the transmission line and re-construction of access roads, the remaining main body of each of the IRAs 

would still be large enough to consider for management of undeveloped values (see Figure 1.3-1).

Construction, expansion, and removal of substations, as part of this alternative, would have no effect on 

IRAs as none of the substations are located in or near the IRAs. 

U.S. Forest Service Unroaded and Undeveloped Areas. The effects of construction and operation of the 

proposed 138 kV transmission line on the values of the Table Cliffs – Henderson Canyon, Shakespear 

Point, Red Canyon South, and Red Canyon North unroaded and undeveloped areas would be the same as 

described above for the corresponding IRAs, as the location, size, and configuration of unroaded areas 

generally coincides with the IRAs. Surface disturbance and placement of the transmission line structures 

on the land would have generally the same effect on the undeveloped character of the unroaded areas as 

the landscape character and integrity of the IRAs. The effect of construction and operation of the 

transmission line on the desired recreation experiences of the unroaded areas would also be generally the 

same as described for the primitive and semi-primitive recreation objectives of the IRAs. There are, 

however, some exceptions. 

Since the boundary of the Table Cliffs – Henderson Canyon unroaded area and the Shakespear Point 

unroaded area follows the existing Rocky Mountain Power/PacifiCorp 230 kV transmission line, most of 

the proposed 138 kV transmission line disturbance and all of the right-of-way would be located in the 

Shakespear Point unroaded area. Under this alternative, the right-of-way would cross 36.99 acres of the 

Shakespear Point unroaded area, but 0.0 acres of the Table Cliffs – Henderson Canyon unroaded area. 

23
Figure 1.3-1. Alternative Routes in Relation to IRAs in the Project Area 

The short-term moderate disturbance for pulling and splicing areas and/or construction of power poles 

would disturb 0.60 acre of the Table Cliffs – Henderson Canyon unroaded area and 17.2 acres of the 

Shakespear Point unroaded area. Long-term major disturbance from improvement of access to the Project 

Area and/or placement of power poles would affect 0.41 acre (0.002 percent) of the Table Cliffs – 

Henderson Canyon unroaded area and 4.25 acres (0.3 percent) of the Shakespear Point unroaded area. 

Under this alternative, the proposed 138 kV transmission line would cross the southeastern and 

southwestern portions of the Red Canyon South unroaded area. Most of the line in the southeastern 

portion of the unroaded area would be constructed by helicopter due to rugged and remote terrain. The 

right-of-way would cross 17.38 acres of the unroaded area. Surface disturbance for pulling and splicing 

areas and construction and placement of power poles would result in a short-term moderate reduction of 

the undeveloped character of 9.08 acres of the unroaded area. Long-term disturbance resulting from 

improvement of access to the Project Area and placement of power poles would reduce the undeveloped 

character of 1.41 acre (0.03 percent) of the unroaded area. 

The noise and presence of people, vehicles, equipment, and helicopters used for construction of the 

transmission line would have the same effect on the desired recreation experience of Table Cliffs – 

Henderson Canyon, Shakespear Point, Red Canyon South, and Red Canyon North unroaded areas as 

described for the respective IRAs above. 

24
Construction of the transmission line and upgrading of roads to provide access for construction and 

operation of the line under Alternative A would separate five portions (areas) of the Table Cliffs – 

Henderson Canyon unroaded/undeveloped area from the main body of the unroaded area, eight portions 

(areas) of the Shakespear Point unroaded/undeveloped area from the main body of that unroaded area, and 

two portions (areas) of the Red Canyon South unroaded/undeveloped area from the main body of that 

unroaded area. In the Table Cliffs – Henderson Canyon unroaded area, upgrading of access roads would 

increase the presence of human development, reducing the undeveloped character of the unroaded area by 

34.14 acres (0.25 percent). In the Shakespear Point unroaded area, placement of the transmission line and 

re-construction of access roads would reduce the undeveloped character of the unroaded area by 115.25 

acres (9.0 percent). In the Red Canyon South unroaded areas, placement of the transmission line would 

reduce the undeveloped character of the unroaded areas by 238.95 acres (4.3 percent). Even with the 

exclusion of areas that would lose their unroaded and undeveloped character by construction of the 

transmission line and re-construction of access roads, the remaining main body of each of the three 

unroaded areas would still be large enough to consider for management of unroaded and undeveloped 

values (see Figure 1.3-1).

BLM Wilderness Study Areas (WSAs). Under this alternative, no right-of-way, surface disturbance, or 

placement of transmission line structures or access would occur in The Blues WSA. Under BLM’s 

mandate to preserve the wilderness characteristics of the WSA (through the IMP), these disturbances and 

developments would not be permitted. Thus, there would be no degradation of the roadless or natural 

characteristics of the WSA. 

However, the presence and noise of people, vehicles, and equipment needed for construction and 

occasional maintenance or emergency repair of the transmission line adjacent to the western boundary of 

the WSA would diminish opportunities for solitude, making it difficult for a visitor to find seclusion and 

isolation from the developed world. This would only be during construction and the impact would be 

short-term and minor. As described under USFS IRAs above, the effect on a visitor’s desired experience 

would vary with each individual. For some visitors, the disruption of quiet and solitude would be shortterm and fleeting. To other visitors, the effects would be lasting due to the short length of a visitor’s trip, 

affecting their entire trip and experience. The noise and presence of construction would end upon 

completion of the project. 

While construction of the transmission line adjacent to the western boundary of the WSA would have an 

effect on opportunities for solitude and primitive forms of recreation, the effect would be short-term and 

minor. Since there would be no impact on the natural or roadless character of the WSA, or lasting impact 

on opportunities for solitude or primitive recreation, construction of the transmission line under this 

alternative would not disqualify the WSA for consideration as wilderness or constrain Congress from 

making that decision. 

BLM Non-WSA Lands with Wilderness Characteristics. Under this alternative, surface disturbance 

associated with construction of the transmission line and the location of the line on BLM lands would 

degrade the natural characteristics of the Box Canyon non-WSA lands with wilderness characteristics. 

The presence and noise of people, vehicles, and equipment would temporarily diminish opportunities for 

solitude and conflict with primitive recreational activities in the non-WSA lands with wilderness 

characteristics. 

Authorizing this project would establish a long-term right-of-way through 20.48 acres of the eastern 

portion of the Box Canyon non-WSA lands that have wilderness characteristics. Establishing the right-ofway, building the transmission line, and improving access would result in 2.8 acres of long-term major 

surface disturbance and the location of a human-made structure that would reduce the size by 20.48 acres 

(0.7 percent) and natural characteristics of 0.1 percent of the non-WSA lands with wilderness 

characteristics. Soil leveling and vegetation clearing needed for the creation of temporary work spaces 

and pulling/splicing areas and pole placement would result in surface disturbance that would cause the 

25
short-term minor to moderate loss of natural characteristics of 7.79 acres of the non-WSA lands with 

wilderness characteristics. 

As discussed in The Blues WSA analysis above, the presence and noise of people, vehicles, and 

equipment needed for construction of the transmission line would also reduce opportunities for solitude in 

the Box Canyon non-WSA lands with wilderness characteristics. These visual and audible intrusions 

would make it difficult for a visitor to find seclusion and isolation from the developed world, though the 

degree of impact would vary with each individual visitor. The noise and presence, however, would 

eventually end with completion of construction. The presence of a transmission line, however, would 

modify the undeveloped setting needed to support opportunities for solitude and primitive forms of 

recreation on the eastern edge of the non-WSA lands with wilderness characteristics. 

Construction of the transmission line inside the eastern boundary of the Box Canyon non-WSA lands with 

wilderness characteristics would result in the expansion of the right-of-way and long-term and major 

surface disturbance and placement of facilities that would disqualify 20.48 acres (0.7 percent) of the nonWSA lands consideration as wilderness. Surface disturbance and placement of the transmission line in the 

non-WSA lands would reduce the natural characteristics and the setting required to support opportunities 

for solitude and primitive recreation in this portion of Box Canyon non-WSA lands with wilderness 

characteristics. While 20.48 acres would lose their wilderness characteristics and no longer be eligible for 

consideration as wilderness, it should be noted that BLM does not manage this portion of the GSENM to 

preserve its wilderness values. These lands are managed similarly to achieve Primitive Zone objectives 

under the GSENM management plan (see the following section for effects on Primitive objectives). 

Construction, expansion, and removal of substations, as part of this alternative, would have no effect on 

the non-WSA lands with wilderness characteristics, as none of the substations are located in the two nonWSA areas. 

BLM Grand Staircase-Escalante National Monument Primitive Zone. The Primitive Zone of the GSENM, 

in the Project Area, includes The Blues WSA and the Box Canyon non-WSA lands with wilderness 

characteristics. Because the management objectives for the Primitive Zone are comparable to 

management objectives for protection of wilderness characteristics, the effects of transmission line 

construction and operation on the primitive objectives of the GSENM can be compared to the effects on 

wilderness characteristics. However, since the right-of-way and transmission line would not be located in 

the WSA (as per the IMP), the analysis of effects of the project on the wilderness values of the WSA will 

not be considered. Under this alternative, the effects of construction of the transmission line on the 

primitive characteristics of the GSENM would be the same as described under the Box Canyon non-WSA 

lands with wilderness characteristics analysis above. The long-term right-of-way, however, would 

encumber 44.58 acres of the Primitive Zone (0.004 percent); long-term major surface disturbance would 

affect 6.74 acres of the Primitive Zone; and short-term minor uses would disturb 23.27 acres of the 

Primitive Zone. 

Construction, expansion, and removal of substations, as part of this alternative, would have no effect on 

the Primitive Zone of the Monument, as none of the substations are located in the Primitive Zone of the 

Monument. 

National Park Service Recommended Wilderness. Under this alternative, surface disturbance associated 

with construction of the 138 kV transmission line would have no effect on the roadless or natural 

characteristics of the two areas recommended for wilderness in BRCA. The transmission line, under this 

alternative, would not be located across or in proximity to these areas. 

A short segment of the transmission line on the DNF in Cedar Fork Canyon would be located within 

about 0.25 mile of the smaller recommended wilderness on the park (see Figure 1.2-1). Thus, the 

presence and noise of people, vehicles, equipment, and aircraft needed for construction of that segment of 

the transmission line would result in a short-term minor reduction in opportunities for solitude, making it 

26
difficult for a visitor to find seclusion and isolation from the developed world, as described above in the 

analysis for the BLM WSA and non-WSA lands with wilderness characteristics. 

Construction, expansion, and removal of substations, as part of this alternative, would have no effect on 

recommended wilderness in the park, as none of the substations are located in or near the recommended 

areas. 

Operations and Maintenance 

U.S. Forest Service Inventoried Roadless Areas. Use of motorized vehicles and equipment for operation 

of the transmission line would periodically result in a short-term minor conflict with primitive and semiprimitive forms of recreation. The effect on a visitor’s desired recreation experience would vary with each 

individual. The disruption of the desired recreation experience would be short-term and minor, fleeting to 

some visitors but more lasting to others, affecting a person’s entire trip or experience. The noise and 

presence of construction would be intermittent and short-lived. While motorized uses may be permitted in 

IRAs, the occasional use of vehicles for operation and maintenance of the transmission line would result 

in a short-term minor conflict with the desired primitive and semi-primitive recreation objectives. These 

visual and audible effects would occur on the perimeter of the IRAs. Visitors seeking these types of 

recreation experiences would be expected to move away from the sights or sources of noise and presence, 

and the effect would lessen and eventually disappear as they move deeper into the core of the IRAs. The 

presence of a transmission line would also modify the undeveloped setting needed to support 

opportunities for primitive and semi-primitive forms of recreation. 

U.S. Forest Service Unroaded and Undeveloped Areas. The noise and presence of people, vehicles, and 

equipment used for operation and maintenance of the transmission line would have the same effect on the 

desired recreation experience of Table Cliffs – Henderson Canyon, Shakespear Point, Red Canyon South, 

and Red Canyon North unroaded areas as described for the respective IRAs above. 

BLM Wilderness Study Areas. Use of motorized vehicles and equipment for operation and maintenance of 

the transmission line would periodically introduce short-term minor impacts as described for the IRAs 

above. The use of motorized and mechanical vehicles and equipment would also conflict with primitive 

(non-motorized) forms of recreation desired by visitors to areas with wilderness characteristics. These 

visual and audible effects would occur, however, on the western edge of the WSA, and visitors would be 

expected to move away from the sources of the sight and noise, further into the WSA. Thus, the effect 

would lessen and eventually disappear. 

BLM Non-WSA Lands with Wilderness Characteristics. Use of motorized vehicles and equipment for 

occasional or periodic maintenance of the transmission line would periodically introduce short-term 

minor impacts as described under IRAs above, and would conflict with primitive forms of recreation 

desired by wilderness visitors. These visual and audible effects would occur on the perimeter of the nonWSA lands with wilderness characteristics, and as visitors move deeper into the non-WSA lands with 

wilderness characteristics, away from the source of noise, the effect would lessen and eventually 

disappear. 

BLM Grand Staircase-Escalante National Monument Primitive Zone. Under this alternative, the effects of 

operation and maintenance of the transmission line on the primitive characteristics of the GSENM would 

be the same as described under the non-WSA lands with wilderness characteristics analysis above. 

National Park Service Recommended Wilderness. The presence and noise of people, vehicles, equipment, 

and aircraft needed for operation and maintenance of that segment of the transmission line in proximity to 

NPS-Recommended Wilderness would reduce opportunities for solitude, making it difficult for a visitor 

to find seclusion and isolation from the developed world, as described above in the analysis for the BLM 

WSA and non-WSA lands with wilderness characteristics. The use of motorized vehicles and equipment 

for operation and maintenance of the transmission line would reintroduce these impacts periodically and 

27
result in a short-term minor conflict with primitive forms of recreation often desired by visitors to areas 

with wilderness characteristics. 

Removal of 69kV Transmission Line 

U.S. Forest Service Inventoried Roadless Areas and Unroaded and Undeveloped Areas. Removal and 

reclamation of the 69 kV transmission line from the existing Bryce Substation near Bryce Canyon City to 

the Hatch Mountain Substation north of Hatch would restore the landscape character and integrity to 

lands adjacent to the northern boundary of the Red Canyon South IRA, enhancing the undeveloped 

landscape character of the IRA in the long term. The presence and noise of people, vehicles, equipment, 

and aircraft needed to remove the line, however, would disrupt opportunities for primitive and semiprimitive recreation experiences in the northern part of the IRA, a short–term minor impact. During 

removal of the line, the sights and sounds of people and motorized equipment would conflict with 

primitive and semi-primitive (non-motorized) forms of recreation visitors seek when visiting the IRA. 

Since the existing transmission line is separated from the Red Canyon North IRA by SR 12, removal of 

the line would have no effect on the landscape character and integrity of Red Canyon North IRA. 

However, given the proximity of the transmission line being removed under this alternative to the 

southern boundary of the Red Canyon North IRA, there would be short-term minor disruption of desired 

primitive and semi-primitive recreation experiences in the southern part of the IRA. Like in Red Canyon 

South, however, visitors would likely move away from the source of noise and presence of people, 

equipment, and aircraft to find the desired experience further north in the IRA. 

BLM Wilderness Study Areas. Removal of the 69kV transmission line under Alternative A would have no 

impact on the BLM WSA because it is located a few miles west of the WSA. 

BLM Non-WSA Lands with Wilderness Characteristics and Natural Areas. Removal of the 69 kV 

transmission line from the existing Bryce Substation near Bryce Canyon City to the Hatch Mountain 

Substation north of Hatch would have no effect on the wilderness characteristics of the Box Canyon nonWSA lands with wilderness characteristics or the East of Bryce natural area as the portion of the existing 

transmission line to be removed is approximately 3 to 5 miles west of the non-WSA lands with wilderness 

characteristics. 

BLM Grand Staircase-Escalante National Monument Primitive Zone. Removal of the 69 kV transmission 

line from the existing Bryce Substation near Bryce Canyon City to the Hatch Mountain Substation north 

of Hatch would have no effect on the management objectives of the Primitive Zone of the GSENM as that 

segment of the line does not pass through or near the Monument lands. 

National Park Service Recommended Wilderness. Removal of the 69 kV transmission line from the 

existing Bryce Substation near Bryce Canyon City to the Hatch Mountain Substation north of Hatch 

would have no effect on the wilderness characteristics of the two areas recommended for wilderness in 

BRCA. The section of the existing line slated for removal is west of the park and the areas recommended 

for wilderness. 

Alternative A Summary 

Table 1.3-3 summarizes right-of-way and disturbance acres for each distinctive land area under 

Alternative A. 

Table 1.3-3. Right-of-Way and Disturbance Acres for Alternative A 

DISTINCTIVE LAND AREA

LONG-TERM 

PASSAGE 

ZONE ACRES

LONG-TERM 

RIGHT-OFWAY ACRES

LONG-TERM 

DISTURBANCE 

ACRES

SHORT-TERM 

DISTURBANC

E ACRES

Shakespear Point IRA 0.00 2.90 0.01 1.14

Table Cliffs - Henderson Canyon IRA 0.00 36.60 4.80 19.64

Red Canyon South IRA 0.00 0.00 0.00 0.00

28
LONG-TERM LONG-TERM LONG-TERM SHORT-TERM 

DISTINCTIVE LAND AREA

PASSAGE 

ZONE ACRES

RIGHT-OFWAY ACRESDISTURBANCE DISTURBANC

ACRES E ACRES

Red Canyon North IRA 0.00 0.00 0.00 0.00

Shakespear Point 

Unroaded/Undeveloped Area 

0.00 36.99 4.25 17.20

Table Cliffs - Henderson Canyon 

Unroaded/ Undeveloped Area 

0.00 0.00 0.41 0.60

Red Canyon South 

Unroaded/Undeveloped Area 

0.00 17.38 1.41 9.08

Red Canyon North 

Unroaded/Undeveloped Area 

0.00 0.00 0.00 0.00

The Blues WSA 0.00 0.00 0.00 0.00

Box Canyon non-WSA1 20.48 20.48 2.80 7.79

East of Bryce natural area 0.00 0.00 0.00 0.00

GSENM Primitive Zone1 44.58 44.58 6.74 23.27

NPS Recommended Wilderness 0.00 0.00 0.00 0.00

1

 The right-of-way acres and disturbance acres of Box Canyon non-WSA are also counted in the figures for GSENM 

Primitive Zone acres, as the non-WSA lands are located in the Primitive Zone of the GSENM. 

Table 1.3-4 summarizes the acres of undeveloped or natural characteristics of distinctive land areas 

separated from the main body of the distinctive land area as a result of construction of the transmission 

line and re-construction of access roads. 

Table 1.3-4. Loss of Undeveloped or Natural Character under Alternative A 

DISTINCTIVE LAND AREA

ACRES OF 

UNDEVELOPED OR 

NATURAL CHARACTER 

LOST

PERCENTAGE OF 

DISTINCTIVE LAND 

AREA

Table Cliffs – Henderson Canyon IRA 140.30 0.72

Shakespear Point IRA 4.00 0.53

Red Canyon North IRA 0.00 0.00

Red Canyon South IRA 0.00 0.00

Table Cliffs – Henderson Canyon Unroaded/ 

Undeveloped Area 

34.14 0.25

Shakespear Point Unroaded/Undeveloped Area 115.25 9.00

Red Canyon North Unroaded/Undeveloped Area 0.00 0.00

Red Canyon South Unroaded/Undeveloped 

Area 

238.95 4.30

The Blues WSA 0.00 0.00

Primitive Zone of the GSENM 44.58 0.004

Box Canyon non-WSA Land with Wilderness 

Characteristics 

20.48 0.70

East of Bryce natural area 0.00 0.00

29
ACRES OF PERCENTAGE OF 

DISTINCTIVE LAND AREA

UNDEVELOPED OR DISTINCTIVE LAND 

NATURAL CHARACTER AREA

LOST

NPS Recommended Wilderness 0.00 0.00

Alternative B: Parallel Existing 69 kV Route 

Construction

Under this alternative, the proposed transmission line would be 29.11 miles in length, generally following 

the existing 69 kV line from Tropic to Hatch, through BRCA. Upon construction of the new 138 kV line 

and energizing of the new line, the old line from about the Tropic Substation west to the Hatch Mountain 

Substation would be removed. Under this alternative, the two recommended wilderness areas in BRCA, 

the USFS Red Canyon South and Red Canyon North IRAs, the USFS Red Canyon South and Red 

Canyon North unroaded and undeveloped areas, and BLM’s East of Bryce natural area would be affected 

by construction and operation of the new transmission line and removal of the existing line (see Figure 

1.2-1). 

U.S. Forest Service Inventoried Roadless Areas (IRAs). At the western end of this alternative alignment, 

the transmission line passes between the Red Canyon South and Red Canyon North IRAs. It is anticipated 

that construction would be confined to the right-of-way outside the two IRAs and there would be no 

physical disturbance to the undeveloped landscape of the IRAs. Given the highly dissected nature of the 

landform, however, it may not be possible to safely locate the new 138 kV line in the existing 69 kV 

right-of-way, prior to decommissioning the existing 69 kV line. Thus, it may be necessary to place some 

portion of the new 138 kV line within the northern portion of the Red Canyon South IRA. Since this 

portion of the line would be constructed with use of a helicopter, there would be no anticipated short-term 

minor or long-term major surface disturbance in the IRA. There would, however, be the potential for 

placement of pole structures and conductors in the IRA. The placement of this human-made structure 

would have a long-term major negative effect on the landscape character and integrity. 

During construction, the presence and noise of people, vehicles, other equipment, and aircraft would 

diminish opportunities for the desired primitive and semi-primitive recreation experiences in the northern 

portion of Red Canyon South IRA and the southern portion of Red Canyon North IRA. These impacts 

would be short-term and minor, lasting only during construction. During that time, visitors seeking a 

primitive recreation experience in an undeveloped setting would likely venture deeper into the heart of 

each IRA to escape the noise and presence of transmission line construction. 

Construction, expansion, and removal of substations under this alternative would have no effect on the 

IRA values, as none of the substations are located in or near the IRAs. 

U.S. Forest Service Unroaded and Undeveloped Areas. The effects of construction and operation of the 

proposed 138 kV transmission line on the values of the Red Canyon South and Red Canyon North 

unroaded and undeveloped areas would be the same as described above for the corresponding IRAs, as 

the location, size, and configuration of unroaded areas are generally the same as the IRAs. Possible 

placement of the transmission line structures in the northern portion of Red Canyon South unroaded area 

would have generally the same effect on the undeveloped character of the unroaded area as the landscape 

character and integrity of the IRA. The effect of construction and operation of the transmission line on the 

desired recreation experiences of the unroaded areas would also be generally the same as described for the 

primitive and semi-primitive recreation objectives of the IRAs. 

The noise and presence of people, vehicles, equipment, and helicopters used for construction of the 

transmission line would have the same effect on the desired recreation experience of Red Canyon South 

and Red Canyon North unroaded areas as described for the respective IRAs above. 

30
BLM Wilderness Study Areas (WSAs). Construction of the transmission line under this alternative and 

removal of the existing 69 kV transmission line west of the Tropic Substation would have no effect on the 

wilderness characteristics of The Blues WSA. The proposed alignment under this alternative would not 

cross the WSA. Thus, there would be no surface disturbance associated with construction or placement of 

structures that would affect the natural characteristics of the WSA. Further, the line would be far enough 

removed from the WSA that there would be little to no short-term effect of noise and presence of 

construction or rehabilitation on the opportunities for solitude or primitive recreation. Construction, 

expansion, and removal of substations under this alternative would have no effect on the wilderness 

values, as none of the substations are located in or near the WSA. 

BLM Non-WSA Lands with Wilderness Characteristics and Natural Areas. The existing 69 kV right-ofway lies a few hundred feet to the north of that portion of the East of Bryce natural area. Under this 

alternative, the existing transmission line right-of-way would be expanded to accommodate the new 

transmission line, but would be located outside (north) of the natural area. There would be no reduction in 

the size of the natural area and no surface disturbance associated with the placement of power pole 

structures. 

Because of the proximity of the transmission line project to the East of Bryce natural area, and the Box 

Canyon non-WSA lands with wilderness characteristics less than 1 mile north of the line, the presence 

and noise of people, vehicles, construction equipment, and aircraft associated with construction would 

have the same impacts to opportunities for solitude and primitive forms of recreation as described above 

for BLM non-WSA lands with wilderness characteristics under Alternative A. 

The Tropic Substation is located near SR 12 and the town of Tropic; therefore opportunities for solitude 

and primitive experiences in the area adjacent to the substation are already somewhat compromised by the 

noise and presence of people and equipment used in the operation of the substation. The presence and 

noise of people, vehicles, and equipment needed to remove the Tropic Substation under this alternative 

would have some affect on opportunities for solitude and primitive recreation of the non-WSA lands, 

similar to those described for construction of the transmission line and removal of the existing 

transmission line, but lower in intensity as it would take less time (thus less effect on opportunities for 

solitude and primitive recreation) to remove the substation than to construct the new transmission line and 

remove the existing line. 

BLM Grand Staircase-Escalante National Monument Primitive Zone. The Primitive Zone of the GSENM, 

in the Project Area, coincides with The Blues WSA and the Box Canyon non-WSA lands with wilderness 

characteristics. Under this alternative, construction of the transmission line would have no effect on the 

undeveloped landscape objectives of the GSENM Primitive Zone, as the right-of-way and transmission 

line would not be located in the GSENM. The presence and noise of people, vehicles, equipment, and 

aircraft required for construction of the proposed 138 kV transmission line would have the same effects 

on the primitive and self-directed visitor experience desired in the Primitive Zone of the GSENM as 

identified for opportunities for solitude and primitive recreation in the Box Canyon non-WSA lands with 

wilderness characteristics above under this alternative. The degree of effect would vary by individual 

visitor and most visitors would be expected to travel north, further into the heart of the Primitive Zone to 

escape the intrusion of construction on their desire experience. 

The East Valley Substation would be located outside the GSENM by approximately 1 mile. Construction 

of the East Valley Substation and removal of the Tropic Substation under this alternative would create 

noise and presence of people, vehicles, and equipment that could conflict with primitive forms of 

recreation provided for on lands in the GSENM in the vicinity of construction. It is expected, however, 

that visitors would easily move north, further into the Monument, to escape the noise and presence of 

these intrusions. 

National Park Service Recommended Wilderness. Under this alternative, the transmission line crossing 

BRCA would be constructed within the Natural Environment Subzone, adjacent to the existing right-ofway. A portion of the proposed transmission line would be constructed contiguous with the existing right31
of-way for about 1.25 miles south of Mossy Cave, but would not be located in the adjacent recommended 

wilderness area. Following this alignment, the new line would result in no surface disturbance to the 

recommended wilderness south of SR 12 and east of the main park road and, thus, there would be no 

adverse impacts to the natural characteristics of the recommended wilderness area. 

There would be no vehicles or mechanized construction equipment permitted within the right-of-way on 

lands managed by BRCA. People and equipment would be transported on foot or by helicopter, and 

motorized hand augers and hand tools would be used to install the power poles. The presence and noise of 

people, vehicles, equipment, and helicopters used in installation of the new transmission line would 

temporarily diminish opportunities for solitude and conflict with primitive forms of recreation in the 

northern portion of the recommended wilderness south of SR 12. The noise of helicopters and motorized 

equipment would make it difficult for visitors to find a location to be alone and secluded from the outside 

sights and sounds of the developed world. And the presence of a helicopter and motorized equipment 

would conflict with the setting needed to support primitive forms of recreation visitors expect to 

encounter and experience in lands with wilderness values. The recommended wilderness is large, and 

visitors would be expected to move farther south into the heart of the recommended wilderness to escape 

this temporary degradation of opportunities for solitude and primitive recreation. 

A second, smaller area of BRCA is also recommended for wilderness designation and being managed to 

preserve those values north of SR 12. Because this area is separated from the current right-of-way by SR 

12, construction of a new transmission line in the existing right-of-way would have no effect on the 

natural landscape and characteristics of this Park Service–recommended wilderness. However, because 

this area is just a short distance north of the existing right-of-way and the new transmission line, under 

this alternative, the noise and presence of construction would have the same effects on opportunities for 

solitude and primitive recreation as described above for the larger recommended wilderness. Eventually, 

upon completion of construction, these opportunities would return with no lasting effects on either the 

natural landscape or opportunities for solitude and primitive forms of recreation. 

Construction, expansion, and removal of substations under this alternative would have no effect on the 

wilderness characteristics of the recommended wilderness areas, nor the adjacent Natural Environment 

Subzone, as none of the substations are located in or near these areas. 

Operations and Maintenance

U.S. Forest Service Inventoried Roadless Areas. During operation and maintenance activities within the 

right-of-way, the presence and noise of people, vehicles, and other equipment would diminish 

opportunities for the desired primitive and semi-primitive recreation experiences in the northern portion 

of Red Canyon South IRA and the southern portion of Red Canyon North IRA. These impacts would be 

intermittent and short-term and minor, lasting only during operations and maintenance activities. During 

that time, visitors seeking a primitive recreation experience in an undeveloped setting would likely 

venture deeper into the heart of each IRA to escape the noise and presence of operation and maintenance 

activities. 

U.S. Forest Service Unroaded and Undeveloped Areas. The noise and presence of people, vehicles, and 

equipment used for operation and maintenance of the transmission line within the right-of-way would 

have the same effect on the desired recreation experience of Red Canyon South and Red Canyon North 

unroaded areas as described for the respective IRAs above. 

BLM Wilderness Study Areas. Operations and maintenance of the transmission line within the right-ofway under this alternative would have no effect on the wilderness characteristics of The Blues WSA, as 

the line does not cross through or near the WSA. 

BLM Non-WSA Lands with Wilderness Characteristics and Natural Areas. Because of the proximity of 

the transmission line project to the East of Bryce (on the northern boundary) natural area, and the Box 

Canyon non-WSA lands with wilderness characteristics less than 1 mile north of the line, the presence 

32
and noise of people, vehicles, and equipment associated with operation and maintenance activities within 

the right-of-way would have the same impacts to opportunities for solitude and primitive forms of 

recreation as described above for BLM non-WSA lands with wilderness characteristics under Alternative 

A.

BLM Grand Staircase-Escalante National Monument Primitive Zone. While the right-of-way and 

transmission line would not be located in the GSENM under this alternative, the line would lie about 1 

mile south of the Monument. The presence and noise of annual overflights and people, vehicles, and 

equipment needed for operation and maintenance activities within the right-of-way would have the same 

impacts to the undeveloped and self-directed objectives as described for the Primitive Zone under 

Alternative A. 

National Park Service Recommended Wilderness. As with construction, there would be no vehicles or 

mechanized construction equipment permitted within the right-of-way on lands managed by BRCA for 

operation and maintenance of the proposed transmission line. The line, however, would be flown annually 

to determine maintenance needs. While the recommended wilderness is large, on those occasions when 

operations and maintenance within the right-of-way outside BRCA creates disturbances perceivable 

within the recommended wilderness, visitors would be expected to move farther south into the heart of 

the recommended wilderness to escape this temporary degradation of opportunities for solitude and 

primitive recreation. 

Removal of 69kV Transmission Line

U.S. Forest Service Inventoried Roadless Areas. Upon completion of construction and energizing of the 

new line, the existing line would be removed. With the presence of the new transmission line, removal of 

the old line would provide no net benefit to the landscape character and integrity of the lands adjacent to 

the IRAs. The continued noise and presence of people, vehicles, equipment, and aircraft needed for 

removal of the old line would extend the short-term minor reduction in opportunities for primitive and 

semi-primitive recreation experiences in the IRAs. Once the impacts of removal and rehabilitation of the 

old line are complete, the impacts would be gone and the desired recreation setting and experience would 

return to the northern portion of the Red Canyon South IRA and the southern portion of the Red Canyon 

North IRA. 

U.S. Forest Service Unroaded and Undeveloped Areas. The removal of the 69 kV transmission line under 

this alternative would have the same effect on the Red Canyon South and Red Canyon North unroaded 

areas as described for those same two IRAs above. 

BLM Wilderness Study Areas. Under Alternative B, removal of the existing 69 kV transmission line west 

of the Tropic Substation would have no effect on the wilderness characteristics of The Blues WSA as the 

line removal would begin about 3 miles west of the WSA. 

BLM Non-WSA Lands with Wilderness Characteristics and Natural Areas. Because of the proximity of 

the existing 69 kV transmission line to the East of Bryce natural area (on the northern boundary) and the 

Box Canyon non-WSA lands with wilderness characteristics (less than 1 mile north of the line), the 

presence and noise of people, vehicles, and equipment associated with removal of the existing 

transmission line would result in a short-term, minor reduction in opportunities for solitude and conflict 

with the desired setting for primitive recreation activities. It is expected, however, that visitors would 

move deeper into the heart of adjacent lands with wilderness characteristics to escape the effects of the 

presence and noise of people and equipment. Once the line removal and rehabilitation are complete, these 

impacts on opportunities for solitude and primitive recreation would cease and the opportunities would 

return. 

BLM Grand Staircase-Escalante National Monument Primitive Zone. Impacts to the Primitive Zone 

within GSENM from removal of the existing 69 kV transmission line would be the same as those 

33
described for the BLM non-WSA lands with wilderness characteristics above, as the Primitive Zone 

generally coincides with these lands. 

National Park Service Recommended Wilderness. Upon completion of construction and energizing of the 

new line, the existing line would be removed. With the presence of the new transmission line, removal of 

the old line would provide no net benefit to the natural character of the lands adjacent to the 

recommended wilderness areas. The continued noise and presence of people, vehicles, equipment, and 

aircraft needed for removal of the old line would extend the short-term minor reduction in opportunities 

for solitude and primitive recreation experiences in the two recommended wilderness areas. Once the 

impacts of removal and rehabilitation of the old line are complete, the intrusions would be gone and 

opportunities for solitude and primitive recreation would return to the northern portion of the larger 

recommended wilderness and the southern portion of the smaller recommended wilderness. 

National Park Service Statement of Impairment or Unacceptable Impacts

Because there would be no major adverse impacts to a resource or value whose conservation is (1) a 

necessity to fulfill specific purposes identified in the park’s establishing legislation, (2) key to the natural 

or cultural integrity of the park or to opportunities for enjoyment of the park, or (3) identified as a goal in 

the park’s general management plan or other relevant NPS planning documents, there would be no 

impairment of park resources or values relative to Distinctive Land Areas, which in this case include 

recommended wilderness within BRCA. Implementation of this alternative would not result in any 

unacceptable impacts and is consistent with §1.4.7.1 of NPS Management Policies (2006). 

Alternative B Summary

Under Alternative B, it is not anticipated that construction of the transmission line would reduce or 

degrade the wilderness or primitive values of any of the distinctive land areas as the right-of-way and 

transmission line would not cross any of the areas with these values. Given the nature of the landform, 

however, it may not be possible to safely locate the new 138 kV line in the existing 69 kV right-of-way 

adjacent to the Red Canyon South IRA and Red Canyon South unroaded area, prior to decommissioning 

the existing 69 kV line. If that is the case, it may be necessary to place some of the 138 kV line within the 

northern portion of the IRA and unroaded area. Placement of power poles in the IRA/unroaded area 

would reduce the landscape character and integrity of the area in the long-term. The presence and noise of 

people, aircraft, vehicles, and equipment needed for construction, operation, and maintenance activities 

within the adjacent right-of-way would diminish opportunities for the desired primitive and semiprimitive recreation experiences and setting in portions of several of the distinctive land areas. These 

impacts would be short-term and minor, lasting only during the construction or maintenance operation. 

During those times, visitors seeking a primitive recreation experience in an undeveloped setting would 

likely venture deeper into the heart of each distinctive land area to escape the noise and presence of the 

operation. 

Alternative C: Cedar Fork Southern Route 

Impacts as a Result of Amending the GSENM Management Plan

The existing Rocky Mountain Power/PacifiCorp right-of-way for 230 kV transmission line averaging 130 

feet wide across the Monument forms the western boundary of The Blues WSA and the eastern boundary 

of Box Canyon non-WSA lands with wilderness characteristics. While this right-of-way is within the 

Primitive Zone, it is not within either The Blues WSA or Box Canyon non-WSA lands with wilderness 

characteristics. 

Under Alternative C, the GSENM Management Plan would be amended to designate a 300-foot-wide 

Passage Zone through the existing Primitive Zone, and to change the existing VRM objectives from 

Management Class II to Class III within the Passage Zone. The amendment would provide a Passage 

Zone for the existing Rocky Mountain Power/PacifiCorp right-of-way and 230 kV transmission line 

across the Monument adjacent to the right-of-way proposed for the Garkane transmission line. The plan 

34
amendment would bring this existing right-of-way and the proposed right-of-way into conformance with 

the plan objectives and decisions. Designation of the Passage Zone to include of the existing Rocky 

Mountain Power/PacifiCorp 230 kV transmission line and Garkane’s 138 kV line would reduce the size 

of the Primitive Zone by 133.82 acres, which would be approximately 0.01 percent of the entire Primitive 

Zone. 

Creation of the 300-foot-wide Passage Zone along the eastern boundary of the Box Canyon non-WSA 

lands with wilderness characteristics to include the existing Rocky Mountain Power/PacifiCorp 230 kV 

transmission line and proposed Garkane right-of-way would also reduce the size and wilderness 

characteristics of the Box Canyon non-WSA area that has wilderness characteristics. The existing Rocky 

Mountain Power/PacifiCorp right-of-way, averaging 130 feet wide, already forms the boundary of the 

non-WSA lands, so inclusion of this right-of-way in the Passage Zone would have no additional effect on 

the wilderness characteristics of Box Canyon. Development of the proposed right-of-way would occupy 

100 feet of the Passage Zone adjacent to the Rocky Mountain Power/PacifiCorp right-of-way, further 

reducing the natural characteristics, primitive recreational setting, and size of Box Canyon non-WSA 

lands with wilderness characteristics by 20.48 acres. Currently, there are no proposals to develop the 

remaining 70 feet of the Passage Zone, so there would be no further effect on the wilderness 

characteristics of Box Canyon. However, in the future, if an additional utility line(s) is proposed in the 

Passage Zone, establishing a right-of-way and developing that right-of-way would further reduce the size 

and wilderness characteristics of the Box Canyon non-WSA lands with wilderness characteristics by as 

much as another 14.34 acres. 

Construction

The proposed transmission line under Alternative C generally follows the same alignment as Alternative 

A where it passes through or adjacent to the Primitive Zone of the GSENM, including the Box Canyon 

non-WSA lands with wilderness characteristics, The Blues WSA, Table Cliffs – Henderson Canyon and 

Shakespear Point IRAs, and Table Cliffs – Henderson Canyon and Shakespear Point 

unroaded/undeveloped areas. Under this alternative the alignment of the transmission line does not cross 

through the Red Canyon South unroaded/undeveloped area, but passes within 0.25 mile of the southern 

boundary of the unroaded area. The methods of construction of the transmission line through and adjacent 

to distinctive land areas would be the same as described for Alternative A. The line would be 29.78 miles 

long. 

Because construction of the transmission line would generally follow the same alignment across and 

adjacent to the Primitive Zone of the GSENM, The Blues WSA, Box Canyon non-WSA lands with 

wilderness characteristics, Table Cliffs – Henderson Canyon and Shakespear Point IRAs, and Table Cliffs 

– Henderson Canyon and Shakespear Point unroaded/undeveloped areas as the Proposed Action and 

because the transmission line would be constructed using the same methods as under Alternative A, the 

effects on the wilderness characteristics, roadless area values, unroaded/undeveloped values, and 

primitive values would generally be the same as described under Alternative A. The acres of lands 

affected under Alternative C, however, would be similar, but not identical, to the number of acres 

disturbed under Alternative A. 

U.S. Forest Service Inventoried Roadless Areas (IRAs). Construction of the transmission line and 

upgrading of access for construction of the line under the Alternative C would separate eight portions 

(areas) of the Table Cliffs – Henderson Canyon IRA from the main body of the IRA and two portions 

(areas) of the Shakespear Point IRA from the main body of that IRA. In the Table Cliffs – Henderson 

Canyon IRA, placement of the transmission line and upgrading of access would introduce or increase the 

presence of structures and access roads, reducing the undeveloped character of the IRA by 160.7 acres 

(0.82 percent). In the Shakespear Point IRA, placement of the transmission line would reduce the 

undeveloped character of the IRA by 11.3 acres (1.5 percent). Even with the exclusion of areas that would 

lose their undeveloped character by construction of the transmission line and re-construction of access 

35
roads, the remaining main body of each of the IRAs would still be large enough to consider for 

management of undeveloped values (see Figure 1.3-1).

U.S. Forest Service Unroaded and Undeveloped Areas. The proposed 138 kV transmission line under 

Alternative C would pass within 0.25 mile of the southern boundary of the Red Canyon South 

unroaded/undeveloped area, but not cross through it as in Alternative A. Thus, there would be no right-ofway, short-term minor or long-term major surface disturbance, or placement of power poles in the 

unroaded/undeveloped area. The presence and noise of people, vehicles, equipment, and aircraft needed 

for construction of the transmission line along this portion of the alignment, however, would result in a 

short-term minor reduction of the opportunities for primitive forms of recreation, and the setting required 

to support those recreation activities in the southern portion of the unroaded/undeveloped area. These 

impacts would be short-term, lasting only during the construction period, and minor in magnitude. During 

that time, visitors seeking a primitive recreation experience in an undeveloped setting would likely 

venture further north into the heart of the unroaded area to escape the noise and presence of transmission 

line construction. 

Construction of the transmission line and re-construction of access for construction of the line under the 

Alternative C would separate five portions (areas) of the Table Cliffs – Henderson Canyon 

unroaded/undeveloped area from the main body of the unroaded area and nine portions (areas) of the 

Shakespear Point unroaded/undeveloped area from the main body of that unroaded area. In the Table 

Cliffs – Henderson Canyon unroaded area, re-construction of access would increase the presence of 

access roads, reducing the undeveloped character of the unroaded area by 34.14 acres (0.17 percent). In 

the Shakespear Point unroaded area, placement of the transmission line and re-construction of access 

would reduce the undeveloped character of the unroaded area by 123.9 acres (9.7 percent). Even with the 

exclusion of areas that would lose their unroaded and undeveloped character by construction of the 

transmission line and re-construction of access roads, the remaining main body of each of the unroaded 

areas would still be large enough to consider for management of unroaded and undeveloped values (see 

Figure 1.3-1).

BLM Wilderness Study Areas (WSAs), BLM Non-WSA Lands with Wilderness Characteristics and 

Natural areas; and BLM Grand Staircase-Escalante National Monument Primitive Zone. Impacts to these 

BLM distinctive land areas under Alternative C would be the same as those described for Alternative A, 

as the Segment C-1 follows the same route as Segment A-1 through or adjacent to these areas. 

National Park Service Recommended Wilderness. Impacts to NPS Recommended Wilderness under 

Alternative C would be similar to those under Alternative A. Under this alternative, surface disturbance 

associated with construction of the 138 kV transmission line would have no effect on the roadless or 

natural characteristics of the two areas recommended for wilderness in BRCA. The transmission line, 

under this alternative, would not be located across these areas. 

A portion of Alternative C would circumnavigate the northern boundary of BRCA, approximately 0.50 

mile north of the smaller recommended wilderness on the park (see Figure 1.2-1). Thus, the presence and 

noise of people, vehicles, equipment, and aircraft needed for construction of that segment of the 

transmission line would result in a short-term minor reduction in opportunities for solitude, making it 

difficult for a visitor to find seclusion and isolation from the developed world, as described above in 

Alternative A analysis for the BLM WSA and non-WSA lands with wilderness characteristics. 

Construction, expansion, and removal of substations, as part of this alternative, would have no effect on 

recommended wilderness in the park, as none of the substations are located in the recommended areas. 

Operations and Maintenance

U.S. Forest Service Inventoried Roadless Areas. Operations and maintenance of the proposed 138 kV 

transmission line under Alternative C would result in impacts similar to those described under Alternative 

A as the Segment C-1 follows a route similar to that of Segment A-1 through this area. 

36
U.S. Forest Service Unroaded and Undeveloped Areas. Intermittent operations and maintenance activities 

within the right-of-way in Segment C-3 south of the Red Canyon South unroaded area boundary could 

disrupt visitors’ primitive experiences, as described for Red Canyon South unroaded area under 

Alternative A. However, visitors could easily travel north deeper into the unroaded area to escape the 

disruption. 

BLM Wilderness Study Areas, BLM Non-WSA Lands with Wilderness Characteristics and Natural Areas; 

and BLM Grand Staircase-Escalante National Monument Primitive Zone. Operations and maintenance 

activity impacts on these BLM distinctive land areas would be the same as those described under 

Alternative A. 

National Park Service Recommended Wilderness. Intermittent operations and maintenance activities 

within the right-of-way under Alternative C would occur in proximity to the smaller area of 

recommended wilderness within BRCA; noise and activity could potentially disrupt the wilderness 

experience of visitors, but would not jeopardize the wilderness designation of this area. 

Removal of 69kV Transmission Line

Removal of the 69 kV transmission line from the Bryce Substation to the Hatch Mountain Substation 

would have the same effects on distinctive land areas and values as described under Alternative A. 

Alternative C Summary

Table 1.3-5 summarizes right-of-way and disturbance acres for each distinctive land area under 

Alternative C. 

Table 1.3-5. Passage Zone, Right-of-Way and Disturbance Acres for Alternative C 

DISTINCTIVE LAND AREA

LONG-TERM 

PASSAGE ZONE 

ACRES

LONG-TERM 

RIGHT-OF-WAY 

ACRES

LONG-TERM 

DISTURBANCE 

ACRES

SHORT-TERM 

DISTURBANCE 

ACRES

Shakespear Point IRA 4.30 0.14 0.47

Table Cliffs - Henderson Canyon 

IRA 

0.00 33.80 4.55 23.25

Red Canyon South IRA 0.00 0.00 0.00 0.00

Red Canyon North IRA 0.00 0.00 0.00 0.00

Shakespear Point 

Unroaded/Undeveloped Area 

0.00 35.63 4.08 18.70

Table Cliffs - Henderson Canyon 

Unroaded/ Undeveloped Area 

0.00 0.00 0.41 1.41

Red Canyon South 

Unroaded/Undeveloped Area 

0.00 0.00 0.00 0.00

Red Canyon North 

Unroaded/Undeveloped Area 

0.00 0.00 0.00 0.00

The Blues WSA 0.00 0.00 0.00 0.00

Box Canyon non-WSA1 20.48 20.48 2.80 7.79

East of Bryce natural area 0.00 0.00 0.00 0.00

NPS Recommended Wilderness 0.00 0.00 0.00 0.00

GSENM Primitive Zone1 133.82 44.58 6.74 23.27

1

 The right-of-way acres and disturbance acres of Box Canyon non-WSA are also counted in the figures for GSENM 

Primitive Zone acres, as the non-WSA lands are located in the Primitive Zone of the GSENM. 

37
Table 1.3-6 summarizes the acres of undeveloped or natural characteristics of distinctive land areas 

separated from the main body of the distinctive land area as a result of construction of the transmission 

line and re-construction of access roads. 

Table 1.3-6. Loss of Undeveloped or Natural Character under Alternative C 

DISTINCTIVE LAND AREA 

ACRES OF UNDEVELOPED 

OR NATURAL CHARACTER 

LOST 

PERCENTAGE OF 

DISTINCTIVE LAND AREA 

Table Cliffs – Henderson Canyon IRA 160.70 0.82

Shakespear Point IRA 11.30 1.50

Red Canyon North IRA 0.00 0.00

Red Canyon South IRA 0.00 0.00

Table Cliffs – Henderson Canyon Unroaded/ 

Undeveloped Area 

34.14 0.17

Shakespear Point Unroaded/Undeveloped 

Area 

123.90 9.70

Red Canyon North Unroaded/Undeveloped 

Area 

0.00 0.00

Red Canyon South Unroaded/Undeveloped 

Area 

0.00 0.00

The Blues WSA 0.00 0.00

Primitive Zone of the GSENM 44.58 0.004

Box Canyon non-WSA Land with Wilderness 

Characteristics 

20.48 0.70

East of Bryce natural area 0.00 0.00

NPS Recommended Wilderness 0.00 0.00

Interconnect Options 

Construction

Neither of the interconnect options would be located in any distinctive land area. Thus, there would be no 

surface disturbance or placement of power poles that would affect the roadless character or degrade the 

natural character and integrity of these areas, including IRAs; USFS unroaded/undeveloped areas; and 

recommended wilderness, WSAs, or non-WSAs with wilderness characteristics. The western end of the 

East - West interconnect touches on the boundary of the Red Canyon South unroaded/undeveloped area. 

Given its proximity to the boundary of the unroaded area, the noise and presence of transmission line 

construction along this alignment would result in a short-term minor reduction of opportunities for 

primitive forms of recreation and the desired recreation experience. Once construction is complete, these 

intrusions would cease, and opportunities for these recreational activities and experiences would return. It 

is anticipated that during construction, visitors seeking a primitive recreation experience in an 

undeveloped setting would likely venture further north into the heart of the unroaded area to escape the 

noise and presence of transmission line construction. 

Operations and Maintenance

Because the interconnect options would occur only on DNF-managed lands, and are not in proximity to 

any distinctive land areas on lands managed by other agencies, only USFS distinctive land areas could 

potentially be affected. 

38
39

Both the North-South and East-West Interconnects intersect Alternative A in proximity to the Red 

Canyon South IRA and unroaded/undeveloped area. Impacts to these distinctive land areas from 

operations and maintenance activities within the right-of-way of the interconnect options would be the 

same as those described under Alternative A. 

Alternative D: No Action 

Under the No Action Alternative, no new transmission line would be constructed. Garkane Energy would 

continue to operate the existing 69 kV transmission line located in the existing right-of-way. Since this 

line does not cross any of the distinctive land areas in the Project Area, there would be no effects on the 

natural characteristics of the lands with wilderness characteristics or to the undeveloped landscape that is 

a part of the USFS IRAs and unroaded/undeveloped areas, or the Primitive Zone of BLM’s GSENM. The 

existing transmission line would be overhauled including the possible replacement of conductor wire and 

the majority of the poles. Future maintenance and line operations would be similar to current levels. The 

use of motorized vehicles, equipment, and aircraft to inspect the transmission line and the occasional need 

to use motorized and mechanized equipment to maintain a portion of the existing line would result in a 

presence and noise that would create a short-term minor reduction in opportunities for solitude in lands 

with wilderness values and characteristics and conflict with primitive non-motorized and self-directed 

recreation uses of the distinctive land areas adjacent or in proximity to the right-of-way. 

1.3.1.3. Summary 

Table 1.3-7 provides a summary of right-of-way and disturbance acres by alternative. 
Table 1.3-7. Summary of Right-of-Way and Disturbance Acres 

DISTINCTIVE 

LAND 

AREA

LONG-TERM 

PASSAGE 

ZONE 

ACRES

LONG- TERM 

RIGHT-OFWAY 

ACRES

LONG-TERM 

DISTURBANCE 

ACRES

SHORT-TERM 

DISTURBANCE 

AC

ALT. A 

ALT.

B2 ALT. C

ALT. A

ALT. B

ALT. C

ALT. A

ALT. B 

ALT. C

ALT. A

ALT. B

A

Shakespear Point IRA 

0.0 N/A 0.0 2.90 0.0 4.30 0.01 0.0 0.14 1.14 0.0 

Table Cliffs - Henderson Canyon IRA 

0.0 N/A 0.0 36.60 0.0 33.80 4.80 0.0 4.55 19.64 0.0 

Red Canyon South IRA 

0.0 N/A 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 

Red Canyon North IRA 

0.0 N/A 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 

Shakespear Point Unroaded/ Undeveloped Area 

0.0 N/A 0.0 36.99 0.0 35.63 4.25 0.0 4.08 17.2 0.0 

Table Cliffs – Henderson Canyon Unroaded/ Undeveloped Area 

0.0 N/A 0.0 0.0 0.0 0.0 0.41 0.0 0.41 0.60 0.0 

Red Canyon South Unroaded/ Undeveloped Area 

0.0 N/A 0.0 17.38 0.0 0.0 1.41 0.0 0.0 9.08 0.0 

Red Canyon North Unroaded/ Undeveloped Area 

0.0 N/A 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 

The Blues WSA 0.0 N/A 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 

40
41

DISTINCTIVE 

LAND AREA

LONG-TERM PASSAGE 

ZONE ACRES

LONG- TERM RIGHT-OFWAY ACRES LONG-TERM DISTURBANCE ACRES SHORT-TERM DISTURBANCE AC

ALT. A 

ALT.

B2 ALT. C ALT. A ALT. B ALT. C ALT. A ALT. B ALT. C ALT. A ALT. B A

Box Canyon non-WSA1 

20.48 N/A 20.48 20.48 0.0 20.48 2.80 0.0 2.80 7.79 0.0 

East of Bryce natural area 

0.0 N/A 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 4.23 

NPS Recommended Wilderness 

0.0 N/A 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 

GSENM Primitive Zone1 

44.58 N/A 133.8

1

44.58 0.0 44.58 6.74 0.0 6.74 23.27 0.0 

1 The right-of-way acres and disturbance acres of Box Canyon non-WSA are also counted in the figures for GSENM Primitive Zone acre

are located in the Primitive Zone of the GSENM. 

2 The Alternative B route would not pass through GSENM therefore there would be no Monument Management Plan Amendment and no 

under this alternative.
Table 1.3-8 provides a summary of acres of undeveloped or natural characteristics of distinctive land 

areas separated from the main body of the distinctive land area (lost) as a result of construction of the 

transmission line and re-construction of access roads. 

Table 1.3-8. Summary of Loss of Undeveloped or Natural Character 

DISTINCTIVE LAND AREA

ACRES OF UNDEVELOPED OR NATURAL CHARACTER LOST

ALTERNATIVE A ALTERNATIVE B ALTERNATIVE C 

Table Cliffs – 

Henderson Canyon IRA 

140.30 0.00 160.70

Shakespear Point IRA 4.00 0.00 11.30

Red Canyon North IRA 0.00 0.00 0.00

Red Canyon South IRA 0.00 0.00 0.00

Table Cliffs – 

Henderson Canyon 

Unroaded/ 

Undeveloped Area 

34.14 0.00 34.14

Shakespear Point 

Unroaded/Undeveloped 

Area 

115.25 0.00 123.9

Red Canyon North 

Unroaded/Undeveloped 

Area 

0.00 0.00 0.00

Red Canyon South 

Unroaded/Undeveloped 

Area 

238.95 0.00 0.00

The Blues WSA 0.00 0.00 0.00

Primitive Zone of the 

GSENM 

44.58 0.00 44.58

Box Canyon non-WSA 

Land with Wilderness 

Characteristics 

20.48 0.00 20.48

East of Bryce natural 

area Characteristics 

0.00 0.00 0.00

NPS Recommended 

Wilderness 

0.00 0.00 0.00

1.3.2. Cumulative Effects 

This section addresses potential cumulative effects that would result from the effects of the Proposed 

Action or Action Alternatives when combined with the effects of other past, present, and reasonably 

foreseeable future projects. Cumulative effects are incremental in nature. They can result from 

individually minor, but collectively significant, actions taken over a period of time. 

1.3.2.1. Cumulative Effects Area 

The general cumulative effects area (Figure 1.3-2) for the project for all resources except wildlife, special 

status species, and socioeconomics includes all HUC 12 (6th level) watersheds that come within 0.5 mile 

of the project components. The cumulative effects area encompasses 237,010 acres (Table 1.3-9). Land 

42
management agencies responsible for managing a range of uses on 204,559 acres of public land are the 

DNF Powell and Escalante Ranger Districts, the KFO and GSENM, BRCA, and SITLA. Private land 

ownership accounts for 13.7 percent (32,451 acres) of land within the cumulative effects area. 

Table 1.3-9. Cumulative Effects Area – Acreage by Land Ownership/Management 

LAND OWNERSHIP/MANAGEMENT ACRES

U. S. Forest Service - DNF 121,852.4

Bureau of Land Management – KFO 35,133.9

Bureau of Land Management – GSENM 11,981.5

National Park Service – BRCA 17,067.3

SITLA 18,524.1

Private 32,450.9

Total 237,010.1

1.3.2.2. Past, Present, and Reasonably Foreseeable Actions 

National Forest lands and BLM lands administered by KFO are managed for multiple resource values and 

uses. In the cumulative effects area, past and present uses include timber and woodland product harvest; 

livestock grazing; and recreation uses including hunting, fishing, camping, picnicking, hiking, back 

country driving, and mountain biking. Lands are also available for mining, oil and gas development, and 

production of mineral materials (building stone and sand and gravel). Roads, transmission lines, pipelines, 

and communication sites are located on National Forest and other public lands. While these types of uses 

have resulted in an unknown amount of surface or subsurface disturbance and placement of human-made 

structures on the landscape, the National Forest and public lands still retain a largely undeveloped 

appearance. These lands are not characterized by urban or commercial development that is typical of 

cities and towns. 

The GSENM is managed for a variety of resource values and uses, with a mandate from the Presidential 

Proclamation that established the Monument to protect myriad historic and scientific resources. To meet 

this objective, BLM manages the Monument to protect its primitive frontier state and safeguard its remote 

and undeveloped character. Further, BLM manages the Monument to provide opportunities for study of 

scientific and historic resources. Within this management focus, past and present uses of public lands in 

the Monument include livestock grazing, recreation, and realty actions. While the Monument is closed to 

mining and oil and gas development, roads, transmission lines, pipelines, and communication sites are 

located on these public lands. These uses have resulted in an undetermined amount of surface and 

subsurface disturbance and placement of human-made structures on the landscape, but public lands in the 

Monument still retain a largely undeveloped appearance. 

BRCA, on the other hand, is managed with an emphasis on protection and enhancement of its unusual 

scenic beauty and its value for science and education, and for the benefit and enjoyment of the public. 

Even with this focus on protection and preservation, some past and present development has occurred in 

the Park for management of visitor use and the protection of Park resources. A paved access road runs the 

length of the Park, providing access to many sites and facilities, including administrative offices and 

buildings, Bryce Canyon Lodge, campgrounds, trails, interpretive sites, and others. Other infrastructure, 

including transmission lines, is also present. Garkane’s existing 69 kV transmission line crosses the 

northern end of the park, as does SR 12. However, even with this development, the vast majority of the 

Park in the cumulative effects area is undeveloped, and presents a natural landscape. 

43
Figure 1.3-2. General Cumulative Effects Area 

44
State lands in the cumulative effects area are managed by SITLA to produce revenue for the State school 

system. State lands are managed for a variety of uses that produce revenue, and past and present uses 

include livestock grazing, recreation uses, roads, highways, utility lines, and other commercial uses. 

Lands are occasionally sold for private development. As with federal lands, these uses result in surface 

disturbances, but generally, State lands retain an undeveloped appearance. The current amount of surface 

and subsurface disturbance is unknown. 

Private lands in the cumulative effects area are used and developed for a variety of purposes, including 

residential, commercial, and industrial development in and adjacent to cities and towns. Many acres of 

private land are in farmland production, including irrigated pastures, range pastures, and hay, grain, and 

alfalfa. 

Reasonably foreseeable future actions within the cumulative effects area that are currently planned or 

under review include activities that fall into several broad categories: 

• Energy and communications 

• Transportation 

• Vegetation and fire fuels management 

• Habitat improvement 

• Land use and management 

• Recreation 

• Mining 

• Miscellaneous 

Table 1.3-10 shows activities currently planned, under review, or in permitting in Garfield County that 

may be pertinent to cumulative effects for one or more resource areas. Projects within Garfield County 

but outside the cumulative effects area for all resources (except socioeconomics) are labeled “socio only.” 

The table is organized generally by project type (energy, transportation, forest fuels management, etc.), 

but many of the entries could easily fit into more than one classification. 

Table 1.3-10. Reasonably Foreseeable Future Actions in the Cumulative Effects Areas 

PROJECT (LEAD 

AGENCY) LOCATION DESCRIPTION

ESTIMATED

DISTURBANCE

(IF AVAILABLE) 

Energy & Communications 

Designation of 

Energy Corridors 

(USFS) 

Forest-wide 

Would designate energy corridors on the 

DNF and other federal land in 11 western 

states. Corridor 116-206 would be west of 

U.S. 89 in the cumulative effects area. 

Geothermal 

Leasing 

Programmatic 

EIS (USFS) 

Forest-wide 

USFS and BLM are preparing a joint 

programmatic EIS to analyze leasing of 

federal lands with moderate to high 

potential for geothermal resources in 11 

western states 

Oil and Gas 

Leasing Analysis 

(USFS) 

Forest-wide EIS to evaluate all BLM and USFS 

administered lands for oil and gas leasing 

45
ESTIMATED

PROJECT (LEAD DISTURBANCE

AGENCY) LOCATION DESCRIPTION (IF AVAILABLE) 

Panguitch Lake 

Power Line 

Realignment 

(DNF) 

Cedar City RD 

(Socio only) 

Authorization to PacifiCorp for the 

relocation of 1.2 miles of 12.5 kV power 

line. Work would involve construction of a 

new overhead power line and removal of 

the old line. Area is approximately 17 

miles southwest of Panguitch. 

South Central 

Utah Telephone 

Association 

(SCSRA) I-15 to 

U.S. 89 Fiber 

Optic Line (BLM) 

(Socio only) 

Fiber optic line from I-15 in Iron County to 

U.S. 89 in Garfield County 7.5 miles north 

of Panguitch requiring BLM right-of-way 

Oil and Gas 

Lease Sales 

(BLM) 

BLM 

Ongoing BLM program to lease lands 

suitable for oil and gas development, 

including lands in Garfield County 

classified as having high potential for oil & 

gas development 

Transportation 

DNF Motorized 

Travel Plan 

(DNF) 

Forest-wide 

To identify changes to the motorized 

travel system (roads) to meet 

administrative, fire, recreational, and 

resource needs; will generally prohibit 

cross-country (off-road) motorized travel 

on the Forest, but would remain open to 

hiking, horseback riding, cross-country 

skiing, and snowmobile use. 

Mammoth 

Highway 

Easement (DNF) 

Cedar City 

RD 

(Socio only) 

Issuance of a right-of-way easement to 

Garfield and Kane Counties for Mammoth 

Highway (Forest Road 068), northeast of 

Duck Creek Village, between State 

Highways 14 and 143. 

Tropic Canyon 

Highway 

Stabilization 

Project (BRCA) 

BRCA 

Repair and stabilize SR 12 and introduce 

water diversion into Tropic Wash, west of 

Tropic 

210 linear feet 

of road 

shoulder; 5 

stream barbs in 

Tropic Wash 

SR-12 

Environmental 

Study 

(UDOT, FHWA, 

GSENM) 

Escalante to 

Boulder (Socio 

only) 

EA for project to obtain over 14 miles of 

right-of-way from BLM and generally 

upgrade SR 12 

SR-12 Scenic 

Byway 

Improvements 

(UDOT, GSENM) 

SR 12 

throughout 

Garfield County 

Improve overlooks, interpretive sites, and 

gateway features 

46
ESTIMATED

PROJECT (LEAD DISTURBANCE

AGENCY) LOCATION DESCRIPTION (IF AVAILABLE) 

SR-12 Corridor 

Management 

Plan 

Implementation 

(UDOT, GSENM) 

SR 12 

throughout 

Garfield County 

Corridor Management Plan 

Implementation 

US-89 from SR14 to Hatch 

(UDOT) 

SR-14 to Hatch Bituminous pavement, reconstruction, 

widen shoulders 

Notom Road 

(UDOT) (Socio only) 

Engineering and environmental study, 

preparatory to road improvements 

Vegetation and Fire Fuels Management 

Aerial application 

of fire retardant 

(DNF, KFO, 

GSENM) 

Forest-wide 

The USFS proposes to continue the aerial 

application of fire retardant to fight fires on 

National Forest System lands, including 

the DNF. 

Right-of-way 

Lakes Timber 

Management 

(DNF) 

Freemont River 

RD 

(Socio only) 

Fuels Management Reduction on 

approximately 600 acres of forested land 

to reduce the impacts of insects and 

disease 

600 acres 

Stump Springs 

Fire Treatments 

(DNF) 

Escalante RD 

(Socio only) 

Project uses prescribed fire treatments to 

disturb vegetation, slowly moving 

heterogeneous patches towards a finegrained landscape that is more resistant 

and resilient to fire and other disturbance. 

Approximately 

5,400 acres 

over 9 years 

Clayton Salvage 

(DNF) 

Escalante RD 

(Socio only) 

Timber salvage of 248 acres of dead and 

dying spruce on the Griffin Top Plateau. 

248 acres 

(2008) 

Pockets 

Vegetation 

Management 

(DNF) 

Escalante RD 

(Socio only) 

The Project is designed to reduce bark 

beetle risk and improve habitat for 

northern goshawk. It would include 

commercial timber harvest, precommercial stand treatment, fencing, and 

travel management. The Project covers 

an area of 8,564 acres and would include 

commercial timber harvest on 4,721 acres 

of conifers and 2,647 acres of aspen, 

including 82 acres along the Antimony 

Creek drainage. Smaller areas would 

receive additional treatments. In addition, 

9 miles of new roads would be required, 

7.0 miles of unauthorized roads would be 

designated NFS roads, and 13.4 miles of 

existing NFS roads would be improved. 

8,564 acres 

9 miles of new 

roads 

7.0 miles 

added to 

system roads 

47
ESTIMATED

PROJECT (LEAD DISTURBANCE

AGENCY) LOCATION DESCRIPTION (IF AVAILABLE) 

Toad Salvage 

(DNF) 

Escalante RD 

(Socio only) 

Salvage of dead and dying ponderosa 

pine within the perimeter of a Wildland 

Fire Use burn area. September 2007, 

1400 acres burned. 

230 acres 

Boulder Town 

Fire Protection 

(DNF) 

Escalante RD 

(Socio only) 

Boulder was identified as a community at 

risk and a Community Wildland Fire 

Protection Plan was developed. 65 acres 

of prescribed burns and 186 acres of 

vegetative treatments are planned to 

provide community protection. 

251 acres 

Bug Lake 

Salvage Project 

(DNF) 

Escalante RD 

(Socio only) 

Timber Salvage of dead and dying spruce 

on the Aquarius plateau will use existing 

Forest roads with approximately 1 mile of 

road reconstruction. 

228 acres 

(2007) 

Dugout/Tarantula 

Mesa Veg. 

Project (BLM) 

Richfield FO 

(Socio only) 

Utilize mechanical (chainsaw, handsaws, 

etc.) to cut, lop, and scatter the pinyon 

and juniper trees that have encroached 

into the existing chainings that were 

established in the 1960s 

North Wash 

Tamarisk Control 

Project (BLM) 

Richfield FO 

(Socio only) 

Removal and chemical control of 20 acres 

of tamarisk (salt cedar) approximately 30 

miles southeast of Hanksville in the 

Fiddler Butte Wilderness Study Area 

Bear Creek Fire 

Salvage and 

Reforestation, 

DNF, CE 

Garfield County 

(Socio 

cumulative 

effects area 

only) 

Salvage fire killed and damaged trees 

within the 1400-acre Bear Creek burn 

area 

Corn Creek 

Salvage and 

Reforestation, 

DNF, EA 

Garfield County 

(Socio 

cumulative 

effects area 

only) 

Salvage dead and dying timber and 

reforest areas within burn with inadequate 

stocking in a 2270-acre burn 

Paunsaugunt 

Aspen Vegetation 

Management, 

DNF, EA 

Powell Ranger 

District 

Manage aspen stands to increase aspen 

regeneration, reduce conifer 

encroachment, and develop multi-aged 

aspen stands 

GSENM Plan 

Amendment & 

Rangeland Health 

EIS 

GSENM 

The GSENM Management Plan 

Amendment and Rangeland Health EIS 

describes and analyzes alternatives for 

management of livestock grazing on 

public lands administered by the BLM. 

2,168,726 

acres 

(GSENM, Glen 

Canyon NRA, 

& KFO) 

Habitat Improvement 

Cooperative 

Fisheries 

Enhancement 

Projects (DNF) 

Powell RD 

In cooperation with UDWR, re-establish 

native trout populations in 2 streams on 

the DNF (also 8 streams on the Fishlake 

National Forest) 

48
ESTIMATED

PROJECT (LEAD DISTURBANCE

AGENCY) LOCATION DESCRIPTION (IF AVAILABLE) 

Marshall Canyon 

Pinyon-Juniper 

Removal (DNF) 

Powell RD 

(Socio only) 

The Proposed Action is to treat up to 900 

acres within an existing chained area to 

improve wildlife habitat on the western 

portion of the Sevier Plateau (Mt. Dutton). 

The Proposed Action consists of the 

following actions: Remove pinyon pine 

and juniper mechanically on 

approximately 900 acres using a skid 

steer (bobcat) or other tractor type device, 

or through hand thinning with chainsaws. 

Broadcast seed into seedbed using forbs 

and grass mixture. Where needed, native 

seed will be part of this mixture. 

900 acres 

Antelope Springs 

Draw Sagebrush 

Steppe Habitat 

Enhancement 

(DNF) 

Escalante RD1 

(Socio only) 

Mow or brushbeat 500 acres of dense 

even-aged sagebrush and interseed a 

native grass and forb mixture. 

500 acres 

Dipping Vat 

Habitat 

Improvement 

Project (DNF) 

Escalante RD 

Project would include the thinning of pine 

forests and the mechanical treatment of 

sagebrush for habitat improvement and 

fuels reduction in Johns Valley, 

approximately 7 miles north of Tropic. The 

Project would affect approximately 1,132 

acres. 

1,132 acres 

(2010) 

Boulder Creek 

Wildlife Habitat 

Improvement 

(DNF) 

Escalante RD 

(Socio only) 

Removing encroaching conifers to restore 

Aspen Grove wildlife habitat 

Aquatic 

Monitoring 

Amendment, DNF 

Forest-wide 

Proposal to amend the Aquatic 

Management Indicator Species (MIS) in 

the DNF LRMP 

East Fork Boulder 

Creek Fish 

Passage 

Improvement 

DNF, CE 

Garfield County 

(Socio 

cumulative 

effects area 

only) 

Replace a culvert that is inhibiting fish 

passage on Road 166 with a new span 

designed for high and low flow 

maintenance of all aquatic species 

Land Use and Management 

Resources 

Management 

Plan (BLM) 

Richfield Field 

Office BLM 

(Socio only) 

Comprehensive Resource Management 

Plan for public lands and resources 

managed by the BLM RichfieldField Office 

Resources 

Management 

Plan (KFO) 

KFO 

FEIS and Resource Management Plan for 

public lands and resources managed by 

the KFO 

49
ESTIMATED

PROJECT (LEAD DISTURBANCE

AGENCY) LOCATION DESCRIPTION (IF AVAILABLE) 

First Annual 

Centennial 

Strategy for Bryce 

Canyon National 

Park (BRCA) 

BRCA 

Reduce private vehicle use by providing 

public transportation for park visitors; 

planning addition of a bicycle 

transportation system in park; restore 

historic buildings; treat 193 acres of exotic 

weed infestation; inventory and assess 

condition of 224 identified archaeological 

sites 

Panguitch Lake 

Resort 

Panguitch Lake 

(Socio only) 

RV timeshare resort around Panguitch 

Lake that is under development 

Incorporation of 

Ruby’s Inn Ruby’s Inn 

Ruby’s Inn was incorporated as Bryce 

Canyon City. Ruby’s Inn has a single land 

owner. The intention of incorporating is to 

prepare for subdivision and growth. 

Recreation 

Red Canyon bike 

trail extension 

(DNF) 

Powell RD 

Extend existing bike trail along SR 12 3.1 

miles east to the East Fork of the Sevier 

River Road. 

Canaan Mountain 

Reroute (DNF) 

Escalante RD 

(Socio only) 

The Canaan Mountain Loop Trail 

approximately 14.5 miles southwest of 

Escalante would be rerouted to move it off 

a waterline, reduce its grade, and provide 

for improved maintenance. 

Mossy Cave Trail 

Rehabilitation and 

Resource 

Protection 

(BRCA) 

BRCA 

Large boulders from Water Canyon 

adjacent to the trail will be moved to 

stabilize areas where the trail has eroded 

and footbridge abutments 

Grandview Trail 

Re-route (DNF) 

Powell Ranger 

District 

Construct several sections of nonmotorized trail to eliminate dual use by 

motorized and non-motorized 

recreationists 

King Creek 

Campground 

Non-commercial 

Thinning DNF, 

CE 

Powell Ranger 

District 

Thin heavily stocked ponderosa pine to 

improve vigor and forest health in a 

developed recreation area 

Mining 

Boulder Gravel 

Pit (DNF) 

Escalante RD 

(Socio only) 

A gravel pit will be developed and 

managed to provide gravel for county and 

Forest needs. 

< 5 acres 

Troy M Mine 

Phase Two (BLM) 

Richfield FO, 

near Ticaboo 

(Socio only) 

Extend existing underground workings; 

construct mine shaft and waste rock 

storage area; construct ventilation shafts 

and expand existing evaporation pond for 

mine dewatering 

50
ESTIMATED

PROJECT (LEAD DISTURBANCE

AGENCY) LOCATION DESCRIPTION (IF AVAILABLE) 

Phase II, 

Abandoned Mine 

Reclamation, 

(GSENM) 

GSENM 

EA to address potential environmental 

impacts associated with the Phase II 

Abandoned Mine Reclamation Project, 

which includes the Henrieville Prospect 

Site east of Tropic 

Reopening of 

Ticaboo uranium 

mill and mine 

Ticaboo/Bullfrog 

(Socio only) 

Garkane has been contacted regarding 

service to the Ticaboo/Bullfrog area for 

planned re-opening of the uranium mill; 

the mine has been re-opened and is 

supplying its own power with diesel 

generators 

Miscellaneous 

Wild and Scenic 

River Suitability 

Study – Utah 

(USFS) 

Pine Valley, 

Cedar City, and 

Escalante RDs 

A draft EIS has been prepared analyzing 

the suitability of 86 Utah river segments, 

including 8 on the DNF in Garfield 

County, for inclusion in the National Wild 

and Scenic River System 

West Dixie Water 

Improvement 

(DNF) 

Powell RD No Information 

3,000 acres 

(2007) 

2,000 acres 

(2008) 

2,000 acres 

(2009) 

2,000 acres 

(2010) 

West Deer Creek 

Grazing Allotment 

(DNF) 

Escalante RD 

(Socio only) 

Proposal to re-authorize livestock grazing 

on the West Deer Creek Allotment north 

of Boulder, Utah east of SR 12 

Ohio University 

Dinosaur 

Collection 

(GSENM) 

GSENM 

Proposal to excavate and remove 

remains of a horned dinosaur from 

GSENM. 

McGath Lake 

Dam (DNF) 

Escalante RD 

(Socio only) 

The McGath Lake Dam is deteriorating 

and in need of repair. Without action the 

dam is likely to fail and destroy an 

important fishery. McGath Lake is located 

approximately 16 miles north of 

Escalante. 

Dinosaur 

Documentary 

Film (BLM) 

GSENM & BLM 

Various locations within the GSENM, 

Wolverine Petrified Forest, The Blues 

Area, Red Canyon, Cocks Comb Road, 

etc, 

1.3.2.3. Cumulative Effects 

There are 237,010 acres in the cumulative effects area. While an undetermined amount of land has been 

developed and modified over time, development has been considerable, especially on private lands. There 

51
are ten areas in the cumulative effects area that are recognized for their undeveloped landscapes, 

including lands with wilderness characteristics, inventoried roadless areas, unroaded and undeveloped 

lands, and lands with primitive values. These lands total 57,287 acres, or 24.2 percent of the cumulative 

effects area. 

Under any of the Action Alternatives, construction of the transmission line would result in additional, 

long-term surface disturbance of distinctive land areas, including IRAs, unroaded/undeveloped areas, 

areas with wilderness characteristics, and lands with primitive values. Long-term disturbance includes the 

development and upgrading of access routes. Construction of the transmission line would also result in 

short-term disturbance, which typically includes temporary lay-down, splicing, and pulling areas and 

placement of power poles. Because of the relatively small amount of acreages involved, disturbances 

associated with the Proposed Project under any of the Action Alternatives would have a minor 

contribution to cumulative effects on distinctive land areas in the cumulative effect area. 

Neither of the interconnect options cross the distinctive land areas. Thus, they have no direct impacts on 

the values of these areas, and contribute nothing cumulatively to effects on the values of distinctive land 

areas in the cumulative effects area. 

Under the No Action Alternative, overhaul of the existing 69 kV transmission line may contribute to 

short-term effects to wilderness characteristics due to the presence and noise of people and equipment; 

however, the intensity of the overall short-term cumulative effect would depend on what other projects 

are occurring in the same time and space. Overhaul of the existing 69 kV transmission line would not be 

anticipated to contribute to long-term cumulative impacts to distinctive land areas as the line would be 

rehabilitated within its existing right-of-way with components replaced in kind. 

1.4. PLAN CONSISTENCY 

The Proposed Action and the Cedar Fork Southern Route alternatives would be inconsistent with BLM’s 

GSENM Management Plan, as they would authorize construction of the transmission line within a 

Primitive Zone in the monument. According to the monument management plan, the Primitive Zone is 

“intended to provide an undeveloped, primitive, and self-directed visitor experience.” Further, the plan 

says that “Facilities will be non-existent, except for limited signs for resource protection.” And, “The 

zone is also intended to connect primitive and undeveloped areas on surrounding lands managed by other 

Federal agencies.” Construction of a 138 kV power line would not be consistent with the primitive and 

undeveloped focus for this management of this zone in the GSENM. 

1.5. COMPLIANCE WITH OTHER LAWS AND REGULATIONS 

The following laws and regulations were analyzed to determine the compliance of this action with 

existing legislation and agency regulations. 

36 CFR Part 294, Special Areas; Roadless Area Conservation – This rulemaking required the USFS to 

manage IRAs to protect their identified characteristics until Forest LRMPs are completed to direct future 

management of the IRAs. This EIS will disclose the effects of the Proposed Action and alternatives on the 

four affected IRAs in accordance with direction from the Secretary’s Memorandum 1042-154 (USDA 

2009). 

The Federal Land Policy and Management Act – This law directed the BLM to review the lands it 

managed for their wilderness characteristics, conduct studies, and make recommendations to Congress on 

the areas that are suitable for designation as wilderness. Pending Congressional action on BLM’s 

recommendations, BLM is required to manage the areas to preserve the wilderness characteristics. The 

analysis of this EIS will disclose the effects to The Blues WSA. 

52
The National Environmental Policy Act – This law requires agencies to analyze the potential effects of 

federal actions on the environment; disclose the potential effects of their actions on the environment; 

provide measures to minimize or reduce the effects of federal actions on the environment; and make 

informed decisions based on thorough and thoughtful consideration of the analysis. This EIS process 

fulfills that legislative mandate. 

The National Historic Preservation Act – This law requires management to protect properties eligible 

for or listed on the National Register of Historic Places. The analysis of the EIS will disclose the effects 

of the Proposed Action and Alternatives on the Bryce Canyon Lodge National Historic Landmark to 

ensure consistency with this law. 

The Wilderness Act – This law established the National Wilderness Preservation System and is the basis 

for agency consideration of wilderness resources and recommendations for Congressional designation. 

Areas studied and recommended for designation must be managed to protect those values pending 

Congressional action on agency recommendations. Disclosure of the effects of the Proposed Action and 

Alternatives on BLM’s WSA and the two Park Service recommended wildernesses will ensure 

consistency with this legislation. 

1.6. LITERATURE CITED 

Bureau of Land Management (BLM). 2008. Kanab Field Office Record of Decision and Approved 

Resource Management Plan. 

 . 2000. Grand Staircase-Escalante National Monument Management Plan 

 . 1999. Utah Wilderness Inventory. 

 . 1990. Utah BLM Statewide Wilderness Final Environmental Impact Statement. 

National Park Service (NPS). 1987. General Management Plan, Bryce Canyon National Park. 

U.S. Department of Agriculture (USDA). 2009. Secretary of Agriculture Memorandum 1042-154 (May 

28, 2009). 

US Forest Service (USFS). 2000. Conservation Assessment, Strategy and Agreement for Sensitive Plant 

Species in the Red Canyon Area Dixie National Forest 

 . 1987Research Natural Area Establishment Record, Red Canyon Research Natural Area, Dixie 

National Forest. 

 . 1986. Land and Resource Management Plan for the Dixie National Forest. 

53
Appendix A – General Project Acreage Tables 

54
Project Area Calculations (Acres) 

Alt 

Segment 

Acres 

Private State BLM GSENM USFS NPS TOTAL 

A-1 21.19 41.48 50.58 153.14 266.39 

A-2 26.65 26.65 

A-3 13.93 14.4 51.45 61 140.78 

A TOTAL 35.12 55.88 51.45 50.58 240.79 0 433.82 

B 

Removal 27.44 3.94 8.37 9.89 49.64 

A TOTAL 

+ B 

Removal 62.56 59.82 59.82 50.58 250.68 0 483.46 

B 146.04 45.84 115.61 0 76.33 34.44 418.26 

C-1 118.44 14.63 50.58 92.86 276.51 

C-2 38.71 38.71 

C-3 4.97 14.4 53.71 78.5 151.58 

C TOTAL 123.41 29.03 53.71 50.58 210.07 0 466.80 

B 

Removal 6.35 3.94 8.37 9.89 28.55 

C TOTAL 

+ B 

Removal 129.76 32.97 62.08 50.58 219.96 0 495.35 

E-W 48.65 48.65 

N-S 27.24 27.24 

Total Long-Term Disturbance* Area (Acres) 

Alternative 

Long-Term Disturbance (Acres) 

Private State BLM GSENM USFS NPS Total 

A-1 5.31 5.01 0.00 6.74 17.72 0.00 34.78

A-2 0.00 0.00 0.00 0.00 2.87 0.00 2.87

A-3 2.67 1.68 5.23 0.00 5.88 0.00 15.47

A Total 7.97 6.70 5.23 6.74 26.47 0.00 53.12

B (Bryce 1 Substation 

on USFS land) 19.36 5.74 13.12 0.00 6.59 1.04 45.85 

B (Bryce 2 Substation 

on Private land) 21.30 (same) (same) (same) 4.52 (same) 45.62 

C-1 13.97 1.58 0.00 6.74 9.12 0.00 31.41

C-2 0.00 0.00 0.00 0.00 3.92 0.00 3.92

C-3 2.22 1.68 5.42 0.00 7.00 0.00 16.33

C Total 16.19 3.26 5.42 6.74 20.04 0.00 51.66

North-South Interconnect 0.00 0.00 0.00 0.00 2.91 0.00 2.91

East-West Interconnect 0.00 0.00 0.00 0.00 5.85 0.00 5.85

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Alternative 

Long-Term Disturbance (Acres) 

Private State BLM GSENM USFS NPS Total 

Interconnect Total 0.00 0.00 0.00 0.00 8.76 0.00 8.76

*Includes permanent disturbance associated with power poles (estimated), substations, substation 

access roads, existing access road upgrades, and 10-foot wide centerline access roads. 

Total Short-Term Disturbance Area by Alternative Segments and Land Ownership*

Alternative 

Short-Term Disturbance (Acres) 

Private State BLM GSENM USFS NPS Total 

A-1 8.76 18.14 0.00 23.27 70.55 0.00 120.72

A-2 0.00 0.00 0.00 0.00 14.21 0.00 14.21

A-3 9.19 6.96 28.14 0.00 23.08 0.00 67.37

A Total 17.94 25.10 28.14 23.27 107.84 0.00 202.29

B 75.38 20.19 54.08 0.00 18.48 0.78 168.91

C-1 68.72 7.23 0.00 23.27 48.30 0.00 147.52

C-2 0.00 0.00 0.00 0.00 21.69 0.00 21.69

C-3 1.74 6.95 29.34 0.00 36.19 0.00 74.22

C Total 70.47 14.18 29.34 23.27 106.18 0.00 243.44

North-South Interconnect 0.00 0.00 0.00 0.00 13.78 0.00 13.78

East-West Interconnect 0.00 0.00 0.00 0.00 24.97 0.00 24.97

Interconnect Total 0.00 0.00 0.00 0.00 38.75 0.00 38.75

*Includes temporary disturbance associated with pulling sites, laydown areas, and power pole (Hstructure) installation. Some overlap between disturbance areas exists because a single area could 

be used for multiple alternatives. "Limited Access" areas not analyzed for temporary disturbance 

associated with pole installation. 
Addendum to 

Distinctive Land Areas Specialist Report 

dated December 2009 

Prepared For: 

US Forest Service – Dixie National Forest 

National Park Service – Bryce Canyon National Park 

Bureau of Land Management – Kanab Field Office 

Bureau of Land Management – Grand Staircase-Escalante National Monument 

Prepared By: 

8160 South Highland Drive 

Sandy, Utah 84093 
This addendum updates the Distinctive Land Areas Specialist Report dated December 2009 by 

expanding the report to include the Agency Preferred Alternative and providing errata to expand 

on or correct data previously presented. 

Agency Preferred Alternative 

The Agency Preferred Alternative was developed through a joint effort of all agencies (USFS, 

BLM, and NPS) taking into consideration the impacts of all of the resources along the Action 

Alternatives. Alternative E is the Agency Preferred Alternative because it attains the project’s 

purpose and need while still being sensitive to other resource concerns within the Project Area, 

and the missions and management objectives of the various land management agencies 

responsible for the public lands that would be crossed by the Agency Preferred Alternative. 

The 100-foot-wide right-of-way for Alternative E, the Agency Preferred Alternative route 

(Figure 1) would begin with Segment C1 (17.36 miles), the East-West Interconnect option (3.70 

miles), and a combination of portions of Segments A-3 and C-3 (referred to as E-3). Alternative E 

contains the segment combining portions of Alternatives A and C called E-3. Segment E-3 begins 

where the East-West Interconnect joins the Alternative A route and terminates at the Hatch 

Substation. Segment E-3 would follow Segment A-3 for 1.6 miles to the point where it intersects 

Segment C-3 and would follow the remainder of Segment C-3, terminating at the Hatch 

Substation for 6.76 miles. The total length of the preferred route would be 29.41 miles. 

Approximately 16.23 miles of the existing 69 kV transmission line infrastructure from the Bryce 

Canyon Substation to the Hatch Mountain Substation would be removed. 

Alternative E, the Agency Preferred Alternative, would also require the amendment of the 

GSENM MP (BLM 2000) by changing the designation of a 300-foot-wide 3.68-mile stretch 

(133.74 acres) of the Primitive Zone to Passage Zone, and within this area, changing the existing 

VRM Management Class designation from Class II to Class III. 

1 
Figure 1. Alternative E, Agency Preferred Alternative Route 

2 
THIS PAGE INTENTIONALLY LEFT BLANK.
 

3 
Resource Impacts 

Alternative E, the Agency Preferred Alternative route, is comprised of segments or portions of 

segments analyzed under Alternatives A and C, which are fully analyzed in the original Specialist 

Report dated December 2009. Resource specific disturbance acreages and other data specific to 

Alternative E, the Agency Preferred Alternative, are provided in the table below. 

DISTINCTIVE LAND AREAS ALTERNATIVE E: 

PREFERRED ALTERNATIVE 

69 KV LINE REMOVAL, 

ALTERNATIVE E 

Acres of roadless/natural 

characteristics lost (DNF Only) 604.34 N/A 

Lost opportunity for solitude & 

primitive recreation experience 

Impacts to Table CliffsHenderson Canyon IRA & 

unroaded area, 

Shakespear Point IRA & 

unroaded area, and Red 

Canyon South unroaded 

area 

N/A 

Errata 

Some changes, clarification and updates to resource-specific data and analysis were made as a 

result of the comments received on the Draft Environmental Impact Statement. The errata below 

update the original Specialist Report dated December 2009. 

Page 3
 

The second paragraph under the heading 1.1.2.2 Alternative B: Parallel Existing 69 kV Route 

should read: 

The Alternative B Route would generally parallel the existing 69 kV line right-of-way, but must 

be separated from the existing 69 kV line right-of-way for constructability and safety reason, in 

order to safely build and energize the line prior to removal of the existing line. Alternative B 

would extend 29.11 miles. This alternative route would begin at the proposed East Valley 

Substation located east of Tropic and extend west through the Tropic Substation (the Tropic 

Substation would be decommissioned) and then cross SR 12 and continue across BRCA 

(deviating slightly from the existing right-of-way for approximately 1.5 miles) to a point near the 

current Bryce Canyon Substation near Bryce Canyon City. For this Alternative, the Bryce 

Canyon Substation would be decommissioned and a new replacement substation would be built at 

a new location approximately 1 mile to the west to allow for needed expansion. The route would 

extend approximately 0.5 mile to the north around Bryce Canyon City, west across SR 63 and 

then parallel Garkane’s existing 69 kV line right-of-way predominately across private and SITLA 

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lands. The alternative route would parallel the existing right-of-way just to the south across the 

plateau in a northwest direction to Red Canyon, where it would generally follow the existing 

right-of-way through Red Canyon into Long Valley where it would cross U.S. 89 and continue to 

the Hatch Mountain Substation. From there the route would follow the existing line south to the 

Hatch Substation. This route would cross 5.58 miles of DNF, 8.29 miles of KFO, 2.81 miles of 

BRCA, 3.63 miles of SITLA, and 8.80 miles of private lands. 

Appendix A: 

The tables below detail the land management, and long- and short-term disturbance associated 

with Alternative E, the Agency Preferred Alternative, and should be added to the tables presented 

in Appendix A of the Specialist Report of December 2009. 

Agency Preferred Alternative Project Area 

ALTERNATIVE E PROJECT AREA* (ACRES) 

SEGMENTS PRIVATE SITLA KFO GSENM DNF BRCA TOTAL 

Segment C-1 118.44 14.63 0.00 50.58 92.86 0.00 276.51 

East-West 

Interconnect 0.00 0.00 0.00 0.00 48.65 0.00 48.65 

Segment E-3 6.30 14.85 54.24 0.00 52.40 0.00 127.79 

69 kV Line Removal 

– Alternative E 6.35 3.94 8.37 0.00 9.89 0.00 28.55 

Alternative E Total 131.09 33.42 62.61 50.58 203.80 0.00 481.50 

*The Project Area contains the 100-foot right-of-way, substation sites and their associated access roads; all 

temporary work spaces outside the right-of-way; and the disturbance area associated with the existing 69 kV 

transmission line removal. 

Agency Preferred Alternative 100-foot Right-of-Way Encumbrances* 

ALTERNATIVE E RIGHT-OF-WAY (ACRES) 

SEGMENTS PRIVATE SITLA KFO GSENM DNF BRCA TOTAL 

Segment C-1 83.11 12.59 0.00 44.58 70.42 0.00 210.70 

East-West 

Interconnect 0.00 0.00 0.00 0.00 44.99 0.00 44.99 

Segment E-3 2.56 12.86 40.71 0.00 44.87 0.00 101.00 

Alternative E Total 85.67 25.45 40.71 44.58 160.28 0.00 356.69 

*Buffer of 50 feet on each side of transmission line. Not all acres would be disturbed within the right-of-way, 

but the right-of-way is considered to be long-term encumbrance for the duration of the permit. 

5 
 

 

 

 

 

 

 

 

Agency Preferred Alternative Total Long-Term Surface Disturbance and Land 

Ownership/Management 

ALTERNATIVE E LONG-TERM DISTURBANCE* (ACRES) 

SEGMENTS PRIVATE SITLA KFO GSENM DNF BRCA TOTAL 

Segment C-1 13.97 1.58 0.00 6.74 9.12 0.00 31.41 

East-West 

Interconnect 0.00 0.00 0.00 0.00 5.85 0.00 5.85 

Segment E-3 2.24 1.68 5.42 0.00 4.19 0.00 13.54 

Alternative E Total 16.21 3.26 5.42 6.74 19.16 0.00 50.80 

*Includes long-term disturbance associated with power poles, substations, substation access roads, existing 

access road upgrades, and a 10-foot-wide centerline access route. 

Agency Preferred Alternative Total Short-Term Surface Disturbance and Land 

Ownership/Management 

ALTERNATIVE E SHORT-TERM DISTURBANCE* (ACRES) 

SEGMENTS PRIVATE SITLA KFO GSENM DNF BRCA TOTAL 

Segment C-1 68.72 7.23 0.00 23.27 48.30 0.00 147.52 

East-West 

Interconnect 0.00 0.00 0.00 0.00 24.97 0.00 24.97 

Segment E-3 1.74 6.95 30.32 0.00 22.54 0.00 61.55 

Alternative E Total 70.46 14.18 30.32 23.27 95.81 0.00 234.04 

*Includes short-term disturbance associated with pulling and splicing sites, lay-down areas, and power pole 

(H-structure) installation. Some overlap between disturbance areas exists because a single area could be 

used for multiple alternatives. Limited access areas were not analyzed for short-term disturbance associated 

with pole installation. Alternative B also includes short-term disturbance associated with removal of the 

existing 69 kV transmission line. 

Short-Term Disturbance Associated with Removal of Existing 69 kV Line (Parallel 

to Alternative B) 

SHORT-TERM DISTURBANCE* (ACRES) 

PRIVATE SITLA KFO GSENM DNF BRCA TOTAL 

27.44 3.94 8.36 0.00 9.89 0.00 49.63 

*This short-term disturbance area includes lay-down yards and pulling and splicing sites needed for the 

existing 69 kV line removal. For analysis, short-term surface disturbance for line removal is assumed to 

include all of the short-term disturbance areas (i.e., lay-down areas, pulling/splicing sites) that are included 

under Alternative B. This effectively reduces the amount of disturbance shown for Alternative B as these 

areas are the same as those counted for the installation of the 138 kV line. In reality these areas needed for 

removal would be very similar to, but slightly offset from, the installation sites. 

6 
Consideration of Best Available Science 

The techniques and methodologies used in this analysis consider the best available science. The 

analysis includes a summary of the credible scientific evidence that is relevant to evaluating 

reasonably foreseeable impacts. In addition, the analysis also identifies the methods used and 

references the scientific sources relied on. When appropriate, the conclusions are based on a 

scientific analysis that shows a thorough review of relevant scientific information, a consideration 

of responsible opposing views, and the acknowledgment of incomplete or unavailable 

infmmation, scientific uncertainty, and risk. 

Name (Printed) Signature 

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