Chapter I: Purpose and Need

Background

Yosemite Valley is the primary visitor destination within Yosemite National Park. The Valley stretches approximately 10 miles in a roughly east-west direction, with most of the development in the eastern third of the narrow Valley. Yosemite Valley contains a variety of infrastructure and facilities, including trails, roads, bridges, tunnels, campgrounds, lodging, and utilities. A wide range of recreational experiences for the visitor is available, including hiking, picnicking, camping, rock climbing, cross-country skiing and snowshoeing in winter, fishing, photography, swimming, nature study, stock use, bicycling, sightseeing, and rafting.

To provide a comprehensive approach to managing the varied activities undertaken in the Valley, the National Park Service developed the Yosemite Valley Plan. The actions proposed in the Yosemite Valley Plan incorporated many of the goals of several previous planning efforts and re-evaluated their potential actions and relationships. The actions proposed in the Yosemite Valley Plan were consistent with the revised Record of Decision for the Merced Wild and Scenic River Comprehensive Management Plan/Final Environmental Impact Statement (NPS 2000b). The Yosemite Valley Plan actions implement the guidance and direction prescribed for the Merced River by the Merced Wild and Scenic River Comprehensive Management Plan (NPS 2001a) in any areas affected by specific Yosemite Valley Plan actions.

The purpose of the Yosemite Valley Plan was to present a comprehensive management plan for Yosemite Valley, from Happy Isles at the east end of the Valley to the intersection of the El Portal and Big Oak Flat Roads at the west end. It also presents actions in adjacent areas of the park and the El Portal Administrative Site that directly relate to actions proposed in Yosemite Valley. The specific purposes of the Yosemite Valley Plan within Yosemite Valley are to:

§         Restore, protect, and enhance the resources of Yosemite Valley

§         Provide opportunities for high-quality, resource-based visitor experiences

§         Reduce traffic congestion

§         Provide effective park operation, including employee housing, to meet the mission of the National Park Service

The National Park Service selected the Yosemite Valley Plan Alternative 2 as described in the Final Yosemite Valley Plan/Supplemental Environmental Impact Statement (NPS 2000a), because it would provide an overall combination of actions to restore natural processes in Yosemite Valley, preserve cultural resource values, reduce harmful environmental impacts (including those related to traffic congestion), and continue to provide opportunities for high-quality visitor experiences based on resource values. The Yosemite Valley Plan Alternative 2 outlined specific actions for the Curry Village and the east Yosemite Valley campgrounds as well as a conceptual plan delineating the appropriate areas for redevelopment. These approved actions for Curry Village and the east Yosemite Valley campgrounds were intended to reduce visitor impacts on sensitive resources and update visitor facilities to meet current and future demands. The Yosemite Valley Plan Alternative 2 was developed to accommodate a projected total daily visitation of 18,214 visitors. Table I‑1 lists the actions identified in the Yosemite Valley Plan for Curry Village and the campgrounds in east Yosemite Valley. A more detailed listing of actions for Curry Village and the east Yosemite Valley campgrounds is provided in Chapter II, table II‑4.

Source: NPS 2000a

 Purpose Of and Need For the Project

Purpose Of the Project

The National Park Service is in the process of implementing the design and regulatory compliance phases of the projects outlined in the Yosemite Valley Plan. The primary purpose of this project is to provide detailed location, program, and design criteria for the Yosemite Valley Plan–approved actions in Curry Village and the east Yosemite Valley campground areas, as listed in table I‑1, above. The project location is shown in figure I‑1. The Yosemite Valley Plan does not provide specific design information for implementation of individual projects. The Curry Village and East Yosemite Valley Campground Improvements Project provides the detailed planning and design to implement the concepts and actions developed by the Yosemite Valley Plan. The project defines the locations of new facilities and road configurations and provides more detailed plans for Curry Village and the campgrounds. All new development occurs within the approved zones identified by the Yosemite Valley Plan.

Need For the Project

The need for the project, as identified in the Yosemite Valley Plan, developed over time due to increased visitor use and the resulting impacts to Curry Village and the campgrounds as well as to visitor demand for expanded or additional facilities. In addition, the 1997 flood damaged several areas and facilities within the project area, resulting in a need for upgrades to these facilities. A goal of the Yosemite Valley Plan is to increase the overall number and the quality of campsites, while removing sites from the Merced River floodplain and avoiding rockfall zones. The Curry Village and East Yosemite Valley Improvements Project would provide the required design documentation to enable implementation of conceptual improvements identified in the Yosemite Valley Plan.

The project would upgrade existing facilities and increase the number of campsites in the area to serve the increased visitor demand. The number of cabins-with-bath in Curry Village would also be increased. The project would implement the River Protection Overlay, as identified in the Yosemite Valley Plan, which would improve visitor safety by removing campsites from the floodplain and allow for the future ecological restoration of the vegetation along the Merced River.

Planning Context

Relationship to Yosemite National Park Plans

Planning in Yosemite National Park takes two different forms: general management planning and implementation planning. General management plans are required for all national parks by the National Park and Recreation Act of 1978.

The purpose of a general management plan is to set a “clearly defined direction for resource preservation and visitor use” (NPS 1998a), and to provide general directions and policies to guide planning and management in the park. The General Management Plan (NPS 1980) is the overall planning document for Yosemite National Park.

The Merced Wild and Scenic River Comprehensive Management Plan (Merced River Plan) is a planning document with weight equal to that of the General Management Plan. In designating the Merced River as a Wild and Scenic River, Congress authorized the National Park Service to prepare its management plan for the river by making appropriate revisions to the park’s General Management Plan (16 United States Code 1274[a][62]). The Merced River Plan provides a framework for decision-making on future management actions within the Merced Wild and Scenic River corridor. It applies seven management elements: boundaries, classifications, Outstandingly Remarkable Values, the Section 7 determination process, management zoning, the River Protection Overlay, and the Visitor Experience and Resource Protection framework.

Additionally, the Merced River Plan defines management zones that guide the types of development that should occur. The base zoning of the east Valley is Day Use (2C). The plan states that “facilities could include some roads, improved trails, shuttle bus stops, restrooms, picnic tables, non-motorized watercraft launch and removal facilities, and other facilities to support active individual and group recreation use and access to the river.” Additionally, the Merced River Plan classifies the project area as follows:

§         Curry Village –3B Visitor Base and Lodging

§         South Camp – 3A Camping and Non-Wilderness

§         Lower Pines – 3A Camping

§         Upper Pines – 3A Camping

§         Amphitheater – 3A Camping

Implementation plans, which tier off of the General Management Plan and Merced River Plan, focus on “how to implement an activity or project needed to achieve a long-term goal” (NPS 1998a). Implementation plans may direct specific projects as well as ongoing management activities or programs—and typically provide a more extensive level of detail and analysis.

The Yosemite Valley Plan outlines specific actions that would enable the National Park Service to meet the General Management Plan’s broad goals for Yosemite Valley and modifies other provisions based on new and updated information. Because of changes proposed by the Yosemite Valley Plan to the General Management Plan that were guided by new information developed since 1980, the National Park Service prepared a final environmental impact statement for the Yosemite Valley Plan to amend the General Management Plan for Yosemite National Park. The Curry Village and East Yosemite Valley Campground Improvements Project complies with conditions outlined in the Yosemite Valley Plan, the Merced River Plan, and other applicable planning documents and regulations.

Regulations and Policies

The Curry Village and East Yosemite Valley Campground Improvements Project Environmental Assessment is written within a complex set of regulations and policies. The project and assessment must not only comply with requirements of the National Environmental Policy Act, but must do so within the parameters of other legislation that governs land use within Yosemite National Park (see Appendix A).

National Park Service Organic Act

The National Park Service Organic Act of 1916 established the National Park Service in order to “promote and regulate the use of parks” and defined the purpose of the national parks as “to conserve the scenery and natural and historic objects and wildlife therein and to provide for the enjoyment of the same in such manner and by such means as will leave them unimpaired for the enjoyment of future generations.” The Organic Act provides overall guidance for the management of Yosemite National Park.

The Prohibition on Impairment of Park Resources and Values

The Organic Act establishes the management responsibilities of the National Park Service. While Congress has given the National Park Service management discretion to allow certain impacts within parks, that discretion is limited by the statutory requirement that park resources and values be left unimpaired, unless a particular law directly and specifically provides otherwise. This cornerstone of the Organic Act establishes the primary responsibility of the National Park Service and ensures that park resources and values will continue to exist in a condition that will allow the American people to have present and future opportunities for enjoyment of them. The National Park Service Management Policies 2001 provides guidance on addressing impairment.

Management Goals

Management goals identify long-range direction for Yosemite National Park. Any proposed project must carefully balance multiple goals and constraints, especially in a park as large and complex as Yosemite National Park. This section presents the goals from Yosemite’s General Management Plan, the Merced River Plan, and the Yosemite Valley Plan.

General Management Plan Goals

The General Management Plan for Yosemite National Park sets forth five broad goals for management of the park as a whole:

§         Reclaim priceless natural beauty

§         Allow natural processes to prevail

§         Promote visitor understanding and enjoyment

§         Markedly reduce traffic congestion

§         Reduce crowding

Merced River Plan Goals

While the Merced River Plan works in concert with the goals set forth in the General Management Plan, it also outlines an additional set of goals for management of the Merced Wild and Scenic River. The main stem and south fork of the Merced River were designated by Congress in 1987 for protection under the Wild and Scenic Rivers Act. The National Park Service developed the five goals of the Merced River Plan to further the policy established by the Wild and Scenic Rivers Act, namely to preserve designated rivers in their free-flowing condition and to protect and enhance a river’s Outstandingly Remarkable Values. The Merced River Plan goals include:

§         Protect and enhance river-related natural resources

§         Protect and restore natural hydrological and geomorphic processes

§         Protect and enhance river-related cultural resources

§         Provide diverse river-related recreational and educational experiences

§         Provide appropriate land uses

The Merced River Plan applies seven management elements in order to prescribe desired future conditions, typical visitor activities and experiences, and park facilities and management activities allowed in the river corridor. The management elements as they relate to the Curry Village and East Yosemite Valley Campground Improvements Project are discussed in Chapter V, Merced Wild and Scenic River.

Yosemite Valley Plan Goals

The Yosemite Valley Plan carries forward the goals of the General Management Plan. In addition, the Yosemite Valley Plan identifies four specific purposes of the plan, which were listed previously in this chapter. The Yosemite Valley Plan also identifies four primary criteria for accomplishing the broad goals of the 1980 General Management Plan in Yosemite Valley and the specific purposes of the Yosemite Valley Plan. These criteria include:

§         Protect and enhance natural and cultural resources

§         Enhance visitor experience

§         Provide effective operations

§         Provide appropriate land uses

Issues and Concerns

The following issues were identified during the public scoping process (see Chapter VI, Consultation and Coordination) and by National Park Service staff. These issues are addressed in the analysis presented in Chapter IV, Environmental Consequences.

Natural Resources
Geotechnical Conditions

Yosemite Valley is subject to rockfall activity, which could potentially affect public safety. Development in Curry Village currently includes lodging, housing, and other visitor facilities, some of which are located in the talus zone and are subject to rockfall. Under the proposed project, some buildings would be removed from the talus zone, a small portion of new development at the new South Camp walk-in campground would be located in the talus zone, and part of the new Mountain Shop building would be located in the talus zone. Some existing buildings will remain in the talus zone.

Floodplains and Water Quality

The proposed project would maintain several existing facilities in the floodplain in their current locations and would construct additional facilities in floodplains, the most notable of which is the proposed amphitheater. In addition to floodplain-related issues, the project would increase the number of campsites, decrease the number of lodging units, relocate several activity areas, and require substantial construction and demolition activities, all of which could affect water quality in the Merced River.

Fish, Wildlife, and Vegetation Habitat

Yosemite Valley supports diverse terrestrial, wetland, aquatic, and riparian habitats for vegetation and wildlife species. Natural habitats at the project sites have been altered by lodging, campgrounds, and other visitor-serving facilities, as well as decades of human use, resulting in a variety of impacts on plant and wildlife species. Design and layout of the campgrounds and Curry Village lodging would avoid wetlands and sensitive plant and wildlife habitat and enhance remaining wetlands and habitat as much as possible.

Air Quality

Under the Clean Air Act, Yosemite National Park is classified as a Class I airshed and therefore must maintain the highest standards of air quality. Construction- and demolition-related activity could have temporary adverse effects on local air quality.

Noise

The effect of vehicle-, aircraft-, and visitor-related noise on the environment of Yosemite Valley is a major issue, as the noise environment is closely linked to the natural feel of the setting and to visitor experience. Construction- and demolition-related activity may have temporary adverse noise effects.

Cultural Resources

A number of archeological sites, cultural landscapes, and historic structures are located throughout the project area. The proposed action alternatives have the potential to impact both known and unknown cultural resources, requiring careful study of the area to avoid adverse impacts on sensitive resources.

Social Resources
Scenic Resources

Views of the surrounding landscape would not be substantially altered by development of the project. Removal of Southside Drive from Stoneman Meadow would improve views from Curry Village. Increasing the number of campsites and the associated tree removal would alter views toward these areas and inside the campground areas.

Recreation

A range of recreational opportunities, including auto and bus touring, hiking, bicycling, stock use, fishing, swimming, nature study, and interpretive programs, would be affected by the proposed action alternatives. Though most recreational opportunities would be enhanced by the proposed alternatives, construction and demolition activities would likely temporarily inhibit recreation in some areas.

Park Operations and Facilities

Sanitary and wastewater flows and solid waste and recycling management could be affected by the proposed action alternatives. Utilities would also be temporarily affected by the relocation of existing infrastructure and construction of additional connections.

Transportation

Yosemite Valley is currently accessible to visitors using private vehicles. The project proposes changes to roadway and parking facilities, eliminates day-visitor parking, and closes Southside Drive through Stoneman Meadow, all of which would affect transportation throughout Yosemite Valley.

Visitor Experience

The recreational environment, wilderness access, and visitor services in Yosemite Valley are key components of visitor experience. Expansion and relocation of facilities associated with the proposed action would alter existing facilities locations, concession- and recreation-related services, and noise and lighting within the project area, which could impact visitor experience.

Socioeconomics

Overnight visitors to the park currently stay in motel- and hotel-type lodging, tent cabins, and campgrounds. This variety of lodging types allows visitors of varied socioeconomic positions to stay in Yosemite Valley overnight. The proposed project would increase the number of campsites in the project area and reduce the number of tent cabins in Curry Village, which could result in social and economic effects within the project area.

Other Issues: Planning Processes, Management, and Operations
Plans and Policies

This project implements specific actions identified in the Yosemite Valley Plan, which was previously evaluated for conformance with the General Management Plan in the Final Yosemite Valley Plan/Supplemental Environmental Impact Statement. Conformance with the Merced River Plan is addressed in Chapter V, Merced Wild and Scenic River.

Conflicts Between Protection of Natural Landscapes and Cultural Landscapes

Protection of one type of resource can sometimes require actions that are detrimental to the condition of other resources. For example, removal of tent cabins from the talus zone has the potential to affect the Yosemite Valley Historic District. Moreover, changes proposed to protect scenic resources, such as replacement of apple trees with native trees in the historic Curry Orchard, also have this potential.

Organization of the Environmental Assessment

The preferred and alternative plans for the improvements to Curry Village and the East Yosemite Valley campgrounds and the evaluation of potential impacts of these alternatives are integrated into this document and are referred to collectively as the Curry Village and East Yosemite Valley Campground Improvements Project. The contents of this document are as follows:

§         Chapter I: Purpose and Need – The first chapter includes a discussion of the project’s purpose and need, planning context, relationship to management goals and objectives, and the scope of this environmental assessment.

§         Chapter II: Alternatives – This chapter discusses the No Project Alternative and action alternatives under consideration by the National Park Service for the Curry Village and East Yosemite Valley Campground Improvements Project and provides a set of summary tables comparing the alternatives.

§         Chapter III: Affected Environment – This chapter provides an overview of the affected environment, describing the existing condition of natural, cultural, and social resources in the project area.

§         Chapter IV: Environmental Consequences – This chapter presents the analysis of the potential environmental impacts of each alternative.

§         Chapter V: Merced Wild and Scenic River – This chapter analyzes the consistency of the proposed action with the management elements of the Merced River Plan.

§         Chapter VI: Consultation and Coordination – This chapter summarizes the process relied upon in preparing and reviewing this document.

§         Chapter VII: List of Preparers and Reviewers – This chapter lists the names and qualifications of the persons who are primarily responsible for preparing and reviewing the document.

§         Chapter VIII: Glossary – This chapter defines the technical terms and acronyms used in this document.

§         Chapter IX: Bibliography – This chapter lists the references cited in this document.

In addition to the above, the following appendices to this environmental assessment provide additional supporting data and information.

§         Appendix A – Regulations and Policies

§         Appendix B – Yosemite Valley Geologic Hazard Guidelines

§         Appendix C – Special-Status Species Evaluation

§         Appendix D – Projects Included in the Cumulative Impact Analysis

§         Appendix E – Draft Wetland Statement of Findings

§         Appendix F – Draft Floodplain Statement of Findings

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