Vermont Recreation Plan, 1998

(Statewide Comprehensive Outdoor Recreation Plan)

(SCORP)

Introduction

The 1998 Vermont Recreation Plan fulfills requirements under the federal Land and Water Conservation Fund (L&WCF) Act of 1965 and correlates with the following L&WCF grants manual's "Plan Requirements":

• Section A. Describes the process and methodology chosen for the plan.
• Sections C1-C3. A comprehensive plan identifies outdoor recreation issues of statewide importance, evaluates demand for public outdoor recreation preference, and evaluates the supply of outdoor recreation resources and facilities.
• Section D. The plan must have an implementation program which identifies the State's strategies, priorities, and actions for the obligation of its L&WCF apportionment.
• Section E. The plan must contain a wetlands priority component.

Section B, ample public participation is included in a cover letter sent with this document.

Process and Methodology

The 1998 Vermont Recreation Plan was developed through a variety of planning processes that took place from 1990 to 1999, resulting in the following documents:

Finding Common Ground: Conserving the Northern Forest, 1994 (process began in 1990 by the Northern Forest Lands Council)

Vermont State Parks Long Range Plan, 1997-2001

Lands Conservation Plan, October 1999

1999 Vermont Forest Resource Plan

Vermont Outdoor Recreation Inventory, Summary Report, June 1999

Agency of Natural Resources Land Management Planning Process

Strategic Plans: Vermont Agency of Natural Resources, Vermont Department of Forests, Parks and Recreation, and the Vermont Department of Fish and Wildlife, 1999.

The planning documents listed above included recreation and the needs of recreationists as integral components, resulting in recreation being considered in depth from a number of different perspectives in the planning process. These plans represent the collective efforts of thousands of people.

Each of the pertinent findings from these reports is presented below within its appropriate category as listed in the L&WCF Grants Manual. Each finding contains the name of the plan or plans in parentheses ( ) from which that finding was derived.

The format chosen for this plan--a listing of "findings" from the plans named above--was chosen so that applicants to the L&WCF would have the opportunity to make connections between their proposal(s) and the Vermont recreational planning process.

Issues of Statewide Importance Identified through

Vermont's Planning Processes, 1994-1999:

• Clean water is fundamental to residents' quality of life and provides the basis for much of the region's recreation and tourism. (Northern Forest Lands Council)
• Water represents a principal attraction or component of many if not most outdoor recreation activities and should continue to be a focus... (Lands Conservation Plan)
• Lack of public access to water resources (Lands Conservation Plan)
• Maintaining the park system to provide a reasonably safe, healthy, accessible, and enjoyable park experience. (Parks Long Range Plan)
• Increased uses and pressure are causing congestion, overcrowding, and resource degradation at more popular (recreation) sites. The public is concerned about traffic, loss of property taxes, noise, and fees at parks facilities. (Parks Long Range Plan) (Lands Conservation Plan)
• Poor upkeep and maintenance of facilities affects one's recreational experience. (Northern Forest Lands Council)
• Providing a quality outdoor recreation experience for parks visitors while complementing the providers of similar recreation services and facilities. (Parks Long Range Plan)
• Identifying, preserving, and interpreting the cultural resources of the park system. (Parks Long Range Plan)
• Out-of-state campers outnumber resident campers by a 3 to 1 margin at state park campgrounds. (Forest Resource Plan)
• Involving the public to the greatest extent feasible in planning and development of park facilities and services. (Parks Long Range Plan)
• Conflict resolution, resource use, and management tradeoffs. (Lands Conservation Plan)
• Limits of acceptable change, human carrying capacity, limits of growth, sustainability, cumulative impacts of increased development. (Lands Conservation Plan)
• Adverse encroachments and other incompatible land uses, inappropriate uses and overuse by some forms of recreational activities. (Lands Conservation Plan)
• Loss of scenic landscape. (Lands Conservation Plan)
• Recreation has different meanings and values from person to person and community to community. (Forest Resource Plan)
• Because 85 percent of recreational activities in Vermont occurs on private land, landowners' decisions whether or not to allow public access to their land affects the availability of recreational opportunities. Many factors come into play when land is posted, including landowner liability, disregard for private property, and property tax structure. (Forest Resource Plan)
• The number of ski areas in Vermont has declined 20 percent in the past ten years. (Lease payments by eight ski areas located on state lands support nearly 45 percent of Vermont's State Park budget.) (Forest Resource Plan)
• Recreation and tourism are important activities for economic diversification, a basis for a strong economy. (Northern Forest Lands Council)
• Recreational use and benefits to the forest-based economy will continue to increase over time, and investments in forest-based recreation will place financial burdens on public agencies. (Forest Resource Plan)
• There is a need for better sharing of information and discussion of issues concerning the compatibility between recreation and tourism, and the wood products industry. (Northern Forest Lands Council)
• There is a lack of information about appropriate user behavior on...public lands among land users, recreation and tourism providers and the public. (Northern Forest Lands Council)
• There is a lack of information regarding existing recreation and tourism opportunities among visitors to the region. (Northern Forest Lands Council)
• There is a growing body of law and regulation requiring protection of certain natural and cultural resources necessarily restricting public access and use. (Parks Long Range Plan)

The demand for public outdoor recreation preferences in Vermont is demonstrated by the following findings:

• The numbers of participants will continue to increase for almost all recreational activities. The family travel and recreation market will continue to increase. (Land Conservation Plan's Recreation Work Group's White Paper)
• Nationally, activities to have the greatest growth rates through 2040 are downhill and cross-country skiing, day hiking, pool swimming, backpacking, visiting pre-historic sites, and running/jogging. (Northern Forest Lands Council)
• Participation in hunting and trapping will likely decline because of increased average age, more urbanized lifestyles, and changing cultural backgrounds. (Northern Forest Lands Council)
• Hunting, fishing, boating, trapping, hiking, canoeing, and active winter recreation travel will continue to have their niches in the travel market. (Northern Forest Lands Council)

• New emerging "consumer" trends include the desire for convenience over complexity. Requests from potential park visitors indicate changing demands...to a more active, more interesting, and more comfortable experience. Request increases include cabins to rent, what to do in a park and surrounding area, and hookups for recreational vehicles. (Land Conservation Plan's Recreation Work Group's White Paper) (Parks Long Range Plan)
• Recreationists and travelers will seek more "back-to-nature" and personally enriching experiences. (Land Conservation Plan's Recreation Work Group's White Paper)
• More than 80 percent of survey respondents supported expansion of environmental education and interpretation efforts in the form of the park naturalist program. (Parks Long Range Plan)
• More programs and activities will need to be focused on the aging Baby Boomers as they have, and will continue to, participate(d) in very active leisure pursuits. (Land Conservation Plan's Recreation Work Group's White Paper)
• There will need to be more diverse programs and activities that are related to diverse cultural groups. (Land Conservation Plan's Recreation Work Group's White Paper)
• Technology is aiding the development of new equipment to make access more possible and effective for persons with disabilities, therefore, increasing the demand for opportunities. (Land Conservation Plan's Recreation Work Group's White Paper)
• Tourists and recreationists will tend to become more destination-oriented, resulting in increased numbers of visitors and impacts to the environment. (Land Conservation Plan's Recreation Work Group's White Paper)
• There is more pressure for privatization of public lands for ecotourism, skiing, RV and ATV parks. (Land Conservation Plan's Recreation Work Group's White Paper)
• An example of rate of increase in demand on public lands is the projection of increase of recreational use of the Green Mountain National Forest in Vermont at 5 percent per year. The number of visitors paying to use the Vermont state parks system is nearly 1 million per year. (Forest Resource Plan)
• The posting of private land, making it unavailable for public use, increased from 108,914 acres in 1988 to 255,400 acres in 1997. (Forest Resource Plan)
• There is the emergence of more and more splinter groups vying with each other for limited resources. (Land Conservation Plan's Recreation Work Group's White Paper)
• Recreational use of and benefits to the forest-based economy will continue to increase over time. (Forest Resource Plan)

The supply of outdoor recreation resources and facilities in Vermont is demonstrated by the following findings:

• Nearly 19 percent of Vermont's land base, including federal, state, municipal, and private holdings, is permanently conserved. State conserved lands represent 6.32 percent. (Lands Conservation Plan)
• State parks and forests, wildlife management areas, and other public lands provide a variety of opportunities for recreating, enjoying nature, and getting away to a peaceful place. State-owned properties are found in all 14 counties. (Lands Conservation Plan)
• Vermont has 285 lakes larger than 20 acres. Nine are classified as wilderness. More than half have state or partial ownership of their shorelines. Of the 39 wilderness-like lakes, 15 percent had state or partial state ownership of their shorelines. (Lands Conservation Plan)
• The state provides 38 forests, 55 parks, 151 boating access areas, 5 fish hatcheries, 31 pond sites, 12 stream banks, 84 wildlife management areas, 88 dam properties, and 22 miscellaneous properties. (Forest Resource Plan)
• State parks provide 36 developed campgrounds, with more than 2,200 campsites (of which 900 are lean-to's), 25 picnic shelters, and 20 swimming beaches. (Lands Conservation Plan)
• There are 33 State Natural Areas, comprising more than 18,000 acres within State Parks and Forests. (Lands Conservation Plan)
• The park system offers only basic services--no hookups for camping, natural swimming areas, and few amenities. (Parks Long Range Plan)
• Use of public land has increased...; Facilities have fallen into disrepair; some even pose threats to public safety; Maintenance of buildings, comfort facilities, and trails in public parks and forests is often lacking. (Northern Forest Lands Council)
• The special events and park naturalist programs are still in place and increasing in popularity. (Parks Long Range Plan)
• Some towns hold special events in parks by special arrangement. (Parks Long Range Plan)
• There is a recycling program in campgrounds and a "carry-in/carry-out" rubbish policy. Collection centers in some parks are being opened to residents without a facility. (Parks Long Range Plan)
• Many day-use areas have private food concessions, and some of these areas rent boats and canoes. (Parks Long Range Plan)
• Access for the disabled is provided at many sites. (Parks Long Range Plan)
• Many historical buildings in the parks have been preserved, rehabilitated, interpreted, and retrofitted for public use. (Parks Long Range Plan)
• Visitors have pointed out the unavailability of laundries, stores, water and electric hookups, remote and canoe or kayak camping, horse riding and "horse camping" at state parks. (Parks Long Range Plan)
• Black bears need large forested blocks of sufficient size to meet the home range and food requirements of female bears and cubs. The existing range, approximately 60 percent of the state, supports the present population. A significant loss of habitat base would threaten the ability of Vermont to support them. (Forest Resource Plan)
• Vermont's turkey population continues to expand and is found in every county of the state. (Forest Resource Plan)
• The most important game animal in Vermont, the white-tailed deer, increased its population approximately 50 percent from 1989 to 1998. (Forest Resource Plan)
• The annual net growth of statewide moose population is estimated at 10 percent. Moose sign or sightings have been recorded in 231 (92 percent) of all towns in Vermont. (Forest Resource Plan)

Implementation Program--strategies, priorities, and actions for Vermont recreational opportunities

The following three "publications" provide evidence of Vermont's readiness to implement its 1998 recreational plan:

Vermont Outdoor Recreation Inventory, Summary Report, June 1999.

A summary of the availability and accessibility of outdoor recreational opportunities provided by both the public and private sectors on a county-by-county basis. The inventory provides information for local, regional, and state-wide planning efforts as well as for a centralized travel database for residents and visitors.

A list of some of the highest priority outdoor recreation projects occurring on the "wish lists" and Recreation Master Plans of several of Vermont's largest communities, Vermont State Lands, and Vermont State Parks, June 1997.

The list includes municipal recreation projects from more than 37 towns, two land acquisition projects for the Winooski Valley Park District, 20 handicapped accessibility projects at state parks, and water system improvements at 15 state parks.

Agency of Natural Resources Land Acquisition and Conservation Priorities (FY 2000-2001), December 1999

A list of 22 parcels that are high priorities for conservation and acquisition by the state, representing nearly 11,000 acres, as recommended by the Agency's Land Acquisition Review Committee (LARC). This list remains confidential to protect the interests of land owners involved in the potential transactions.

Other strategies, priorities, and actions for implementation developed during the planning process:

• Assess water quality trends within the Northern Forest from existing data, report on suspected or confirmed causes of identified deterioration, and propose revisions to state water pollution laws. (Northern Forest Lands Council)
• Develop a policy through statewide recreation planning that addresses the environmental and economic impact of recreation on the natural environment (Forest Resource Plan)
• Promote natural resource education, focusing on forest resources, natural processes, and resource management, for the general public, from youth to adult. (Northern Forest Lands Council)
• Educate users regarding appropriate behaviors, uses, and ethics for using...public land for recreation. (Forest Resource Plan)
• Designate formal access points, including handicapped accessible sites. (Forest Resource Plan)
• Cooperate with partnering organizations in the maintenance, replacement, and/or rehabilitation of recreational trails on state-owned land. (Forest Resource Plan)

For State Parks

• Continue to monitor and evaluate the opinions of park visitors. (Parks Long Range Plan)
• Periodically update the (State Parks) economic and social impact study. (Parks Long Range Plan)
• Assess all parks within the system to reduce risk of injury. Enhance public health and safety at existing facilities (Parks Long Range Plan; Forest Resource Plan)
• Include a section on historical and archeological resources in the long-range management plan for each park facility. (Parks Long Range Plan)
• Identify and include in revisions to the land management plans recommendations for capital improvements. (Parks Long Range Plan)
• Develop more partnerships and networks with the private sector. (Parks Long Range Plan)
• Explore special camping opportunities. (Parks Long Range Plan)

• Manage for the protection of water resources, including lakes, ponds, rivers, streams, and wetlands. (Parks Long Range Plan)
• Protect sensitive park resources from fire, insects, and diseases. (Parks Long Range Plan)
• Improve educational and interpretive materials for each park. (Parks Long Range Plan)
• Continue and expand relationships with communities. (Parks Long Range Plan)

For Land Acquisition:

• Employ a variety of conservation tools to enable public purchase of specific public recreation rights such as fishing and boating access and snowmobile, cross country skiing, and hiking trails. (Northern Forest Lands Council)
• Acquire public land or easements for outdoor recreation and resource protection with emphasis on access to water resources, trail corridors, needed additions to existing forests or parks, wildlife habitat, and special or unique resources. (Forest Resource Plan)
• Provide access to public waters, especially Lake Champlain and the Connecticut River. (Lands Conservation Plan)
• Provide access to public waters for non-motorized boating. (Lands Conservation Plan)
• Protect and preserve access to important public swimming areas. (Lands Conservation Plan)
• Protecting undeveloped/remote ponds, rivers, and undeveloped shoreline. (Lands Conservation Plan)
• Provide opportunities for primitive canoe-camping. (Lands Conservation Plan)
• Protect established or planned long-distance trail systems. (Lands Conservation Plan)
• Protect prominent mountaintops and ridgelines that have existing trails or are suitable for trails. (Lands Conservation Plan)
• Provide linkages between blocks of existing public land. (Lands Conservation Plan)
• Facilitate the development of loop trails and planned water recreation trails. (Lands Conservation Plan)
• Provide buffer to existing state parks. (Lands Conservation Plan)
• Acquire in-holdings and additions that "fill-out" existing parks as integrated units. (Lands Conservation Plan)
• Provide adjacent parcels for facility expansion or to enhance access. (Lands Conservation Plan)
• Serve an identified facility, infrastructure, or program need, such as expansion of a campground facility. (Lands Conservation Plan)

Wetlands priority component, consistent with Section 303 of the Emergency Wetlands Resources Act of 1986.

Through the Agency of Natural Resources (ANR) Land Management Planning Process, the following tasks which support wetlands that are rare or have declined within an ecoregion, wetland sites subject to identifiable threat of loss or degradation, and wetlands with diverse and important functions and values, and/or especially high or special value for specific wetland functions are routinely undertaken:

• In inventorying ecological resources found on state lands, surveying natural communities and for biodiversity, including an assessment of wetlands present at the sites, will be considered in the planning process. An inter-departmental group of biologists was consulted for this inventory method, based on a model the group developed at the Pine Mountain Wildlife Management Area (WMA) over a three-year period. The Pine Mountain WMA inventory process was based, in part, on statewide inventories of six wetland natural community types conducted by the Nongame and Natural Heritage Program in the Department of Fish and Wildlife.
• Wetlands are identified as one of five natural resource features on Vermont's Conserved Lands Database, which indicates in GIS format the distribution of these features by acre and percentage of state, federal, and other conserved lands categories.
• Wetlands are specifically addressed in the white paper entitled Consideration of Other Conservation Values as part of the Lands Conservation Plan. "The state has a special interest in protecting priority wetlands, which are threatened or unique, or part of a major wetland already in public ownership. The Agency has documented the importance of wetlands and, in cooperation with private conservation organizations, has identified wetlands worthy of public acquisition through publications such as the Vermont Wetlands Conservation Strategy and the Lake Champlain Wetlands Acquisition Study."
• A list of proposed land acquisition and conservation priorities for FY 2000-2001 was developed by the inter-departmental Land Acquisition Review Committee (LARC). At least five of the 22+ parcels on this list involve wetlands that meet the criteria developed for wetlands conservation in Vermont, some with multiple values, including providing habitat for fish and wildlife.

The above processes meet, if not exceed, the National Wetlands Priority Conservation Plan of the USFWS. The interdepartmental nature of these tasks indicates integral involvement with the Department of Fish and Wildlife, the state agency responsible for fish and wildlife resources in Vermont, in the wetlands planning process.