CHICKAMAUGA AND CHATTANOOGA
NATIONAL MILITARY PARK
Prepared by
Sam Weddle
Chief, Interpretation and Resources Management Division
November 1998
Background and Need for Action
Rock climbing activity at Sunset Rock and surrounding areas of the park’s Lookout Mountain Unit has steadily increased over the years. This increased level of use has impacted the soil and vegetation in the area, and the solitude traditionally associated with Sunset Rock. In addition, the increased number of climbers has added to parking problems at Sunset Rock and surrounding areas, and increased tension between park users and nearby residents. In recognition of these issues, the park initiated efforts to address climbing management impacts through a Climbing Management Plan. The objectives of the plan are to manage climbing activities to preserve park resources while providing high quality experiences for climbers and other visitors.
History of Planning and Public Involvement
Park interest in managing climbing activities began in 1987, when a public meeting was held to discuss concerns. Over the next few years some changes were implemented, but major issues remained unresolved. In 1994 the park began a new initiative to address climbing related impacts at Sunset Rock. As part of that process, the park conducted public meetings and received input from both climbers and members of the local community. Information gained through that process was used in developing a draft climbing management plan and preliminary environmental assessment, which were completed in May 1998. Approximately 150 copies of these documents were mailed to interested parties and organizations. Two public meetings were conducted in June, and a total of sixty written comments were received during the sixty-day response period. A summary of comments and responses to specific issues is included in Attachment 2. A record of persons, groups, and government agencies consulted in preparing the plan is included in the environmental assessment and draft plan, Attachment 1. The United States Fish and Wildlife Service, Tennessee State Historical Commission, and Advisory Council on Historic Preservation have reviewed the Environmental Assessment and Plan. Correspondence related to those reviews is included in Attachment 3. The final Climbing Management Plan is included in Attachment 4.
Alternatives Considered
In developing the Draft Environmental Assessment and Climbing Management Plan, the park considered four alternatives. Alternative A would continue present management practices. Alternative D would allow climbing by permit only. Alternatives B and C propose more intensive climbing management than Alternative A, but are less restrictive than Alternative D. Closing the entire park to climbing and permitting unrestricted climbing to take place were both considered and rejected, as neither alternative would accomplish management objectives.
Major concerns included threats to natural resources, conflicts with other park users and neighbors, and lack of adequate parking.
The preferred alternative, Alternative B, included continued closure of the east brow of Lookout Mountain and the "Point Park" area, with the additional closure of the cliff face within view from Sunset Rock looking south. Fixed protection would be placed 1 to 2 feet below the rim at Sunset Rock . The National Park Service would authorize the location of these anchors and fixed protection installed in other areas. Rigging to trees would be prohibited in areas where fixed protection was installed at the top of routes. Bolts and other fixed protection located in closed areas would be removed. Group size could not exceed twenty climbers. A fee system for climbing would be explored and implemented, if feasible, to fund rehabilitation projects in climbing areas and to offset the costs of managing the climbing program. Sport rappelling would be restricted to the "Eagles Nest" area, also located in the park on Lookout Mountain.
Selected Alternative
The selected alternative is Alternative B, the preferred alternative from the Draft Climbing Management Plan, with minor changes based primarily on public comments. The Climbing Management Plan will be developed as a changeable guide to climbing management, with the intent of evaluating the program on an annual basis and making adjustments as needed based on that evaluation. Information obtained through monitoring climbing sites and conducting research on climbing impacts, along with public input, will be included in the evaluation process. If an acceptable level of resource impact is not achieved under Alternative B, a permit system may be considered in the future, based on supporting research.
Justification
The purpose of Chickamauga and Chattanooga National Military Park is to preserve the significant resources of the Civil War campaigns and battles of Chickamauga and Chattanooga, and to educate the public about the events memorialized. Recreational use is permitted provided it meets National Park Service policy guidelines, and its effects can be managed at an acceptable level to protect cultural and natural resources and preserve the visitor experience. All recreational activities have impacts on park resources. It is the duty and responsibility of the National Park Service to evaluate these impacts, and to act when these impacts become unacceptable.
The additional closure of the cliff face located immediately south of, and in view from, Sunset Rock, removes the potential distraction of climbing activities from view at this historic Civil War site where Confederate Generals Bragg and Longstreet planned the Battle of Wauhatchie in October, 1863. This closure supports the park’s management objective "to provide a non-distracting, contemplative environment in order to enhance the visitors’ educational and emotional experience". The park will analyze Sunset Rock area visitor use data collected over the first year of the plan’s implementation as part of the annual evaluation process.
The loss of vegetation and soil, soil compaction, and damage to trees are serious and unacceptable impacts to the park’s natural resources. The documented loss of vegetation and soil in areas where climbing is permitted, along with dead and damaged trees, requires a change in management practices that will eliminate or at a minimum reduce the impact of climbing on these natural resources to acceptable levels. The installation of
fixed anchors in areas where these resources have been impacted, and in other areas where resources are threatened, is necessary to allow the natural scene to be restored and maintained. Installing fixed anchors below the rim at Sunset Rock will allow climbing to continue in that location but will greatly reduce the damage to soil, trees, and other vegetation found at the top. This change will also greatly reduce the amount of climbing gear and other climber related equipment found at the top, reducing the trip hazard created by having the equipment concentrated in that area. Prohibiting rigging to trees in areas where fixed anchors are installed will eliminate tree damage and death, allowing the natural scene to be restored over time.
The removal of bolts and other fixed protection from areas closed to climbing is necessary to restore these areas to their natural state, and to eliminate a source of potential confusion for climbers regarding the status of the closed areas.
Establishing a maximum group size of twenty is needed to distribute climbing activities more evenly at Sunset Rock and other climbing areas. This requirement also reduces the amount of congestion along hiking trails located adjacent to climbing routes.
Because the management of climbing activities requires substantial staff time to monitor compliance and threats to resources, a fee system for climbing will be explored. If a fee system is found to be practical, it will not be initiated until the results of implementing the climbing management plan without fees have been evaluated for effectiveness utilizing existing staff and funds.
Sport rappelling will be restricted to the "Eagles Nest" area since that area is more suitable for that type of climbing. Moving this activity to the "Eagles Nest" will also reduce impacts on the Sunset Rock area.
Climbing areas that have suffered significant resource damage will be closed until they can be rehabilitated. These areas will be evaluated to determine the source of the damage and actions needed to keep the damage from recurring. The areas will be reopened if climbing activities can be conducted without further damaging the resource.
Why Other Alternatives Were Not Selected
Alternative A was not selected because existing resource damage, safety hazards, and impacts on the visitor experience would continue, especially at Sunset Rock.
Alternative C was not selected because the presence of climbers on the cliff face south of Sunset Rock is potentially distracting to Sunset Rock visitors interested in that area’s Civil War significance. This intrusion on the historic scene conflicts with the park’s management objective "to provide a non-distracting, contemplative environment in order to enhance the visitors’ educational and emotional experience".
Alternative D was not selected because it would unduly restrict climbing activity and increase the burden on park staff to monitor activities and compliance. In addition, the park does not currently have adequate data to establish carrying capacities for specific climbing areas.
Finding of No Significant Impact
Based on the analysis in the Environmental Assessment, the National Park Service has determined that the implementation of the selected alternative does not constitute a major Federal action significantly affecting the human environment within the meaning of the National Environmental Policy Act of 1969. Therefore, the preparation of an Environmental Impact Statement is not required, and the National Park Service is issuing this Finding of No Significant Impact.
Signature
/s/ Daniel W. Brown for Jerry Belson
Regional Director
Southeast Region