[Federal Register Volume 77, Number 199 (Monday, October 15, 2012)]
[Proposed Rules]
[Pages 62476-62479]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2012-25138]
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DEPARTMENT OF THE INTERIOR
National Park Service
36 CFR Part 7
[NPS-SLBE-10552; 6620-SZM]
RIN 1024-AE11
Special Regulations; Areas of the National Park System, Sleeping
Bear Dunes National Lakeshore, Bicycling
AGENCY: National Park Service, Interior.
ACTION: Proposed rule.
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SUMMARY: The National Park Service proposes to designate the Sleeping
Bear Heritage Trail currently under construction within Sleeping Bear
Dunes National Lakeshore as a route for bicycle use. The approximately
27-mile-long trail will generally parallel major state highways and
offer visitors safe, non-motorized access to the park. National Park
Service general regulations require promulgation of a special
regulation to designate routes for bicycle use outside developed areas
or off park roads.
DATES: Comments must be received by December 14, 2012.
ADDRESSES: You may submit your comments, identified by Regulation
Identifier Number (RIN), by any of the following methods:
Federal eRulemaking Portal: http://www.regulations.gov.
Follow the instructions for submitting comments.
Mail or Hand Deliver to: Superintendent's Office, Sleeping
Bear Dunes National Lakeshore, 9922 Front Street, Empire, Michigan
49630.
FOR FURTHER INFORMATION CONTACT: Phil Akers, Chief Ranger, Sleeping
Bear Dunes National Lakeshore, 231-326-5135, or at 9922 Front Street,
Empire, Michigan 49630.
SUPPLEMENTARY INFORMATION:
Background
Sleeping Bear Dunes National Lakeshore (SLBE or Lakeshore) was
established in 1970 ``for the benefit, inspiration, education,
recreation, and enjoyment of the public.'' (16 U.S.C. 460x). SLBE's
enabling legislation requires the National Park Service (NPS) to
``administer and protect [the Lakeshore] in a manner which provides for
recreational opportunities consistent with the maximum protection of
the natural environment within the area.'' (16 U.S.C. 460x). The
71,000-acre Lakeshore is located in the northwest portion of Michigan's
Lower Peninsula and encompasses a 35-mile stretch of Lake Michigan's
eastern coastline as well as North Manitou and South Manitou islands.
The mainland portion is located within Benzie and Leelanau counties.
The Manitou Islands, in Leelanau County, are located to the northwest
in Lake Michigan, about seven miles from the shore. The nearest city is
Traverse City, Michigan (population 15,000), located 30 miles east of
the Lakeshore. Smaller communities such as Empire, Glen Arbor, and
Frankfort are closer.
Named after a complex of coastal sand dunes, the Lakeshore features
white sand beaches, steep bluffs reaching as high as 450 feet above
Lake Michigan, thick maple and beech forests, and clear inland lakes.
The Lakeshore's most notable features--the ancient sand dunes--are
products of wind, ice, and water action over thousands of years. The
high, perched dunes afford spectacular views across Lake Michigan and
of other glacially formed landscapes. The contrast between the open,
sunny environment of the dunes and the adjacent lush beech-maple
forests is striking.
The Robert H. Manning Memorial Lighthouse, three former U.S. Life-
Saving Service/Coast Guard stations, several coastal villages, and
picturesque farmsteads reflect the Lakeshore's rich maritime,
agricultural, and recreational history. The region surrounding the
Lakeshore is a popular vacation and summer home destination. SLBE
offers visitors recreational activities such as hiking, backpacking,
kayaking, cross-country skiing, backcountry camping, hunting, fishing,
and boating.
Over 1.1 million people visit the Lakeshore annually. SLBE's main
visitor attractions include the Dune Climb (330,000+ visitors/year),
Pierce Stocking Scenic Drive (430,000 visitors/year), and the Visitor
Center (130,000+ visitors/year). Traffic and parking congestion are a
concern at these locations. A multi-use trail connecting the main
visitor destinations would help relieve these traffic concerns while
simultaneously enhancing visitor access to a variety of recreational
activities.
History of Bicycle Use
Currently, bicycling within SLBE is allowed only on a lane shared
with motor vehicles on Pierce Stocking Scenic Drive and on the road
shoulders of state highways (M-22 and M-109) and county roads than run
through the Lakeshore.
The Sleeping Bear Heritage Trail
The Sleeping Bear Heritage Trail (SBHT) will be a hard-surfaced,
approximately 27-mile-long trail from the southern Leelanau County line
at Manning Road to County Road 651 at
[[Page 62477]]
Good Harbor Beach. The trail will be separated from the roadway
wherever possible, providing a safe, non-motorized route connecting the
Lakeshore's main visitor destinations with neighboring communities in
Glen Arbor and Empire. Construction of the first segment of the trail
was completed in June 2012, with the remainder to be constructed over a
period of approximately 10 years. The route will generally parallel
state highways M-22 and M-109, but will occasionally depart from these
rights-of-way to take advantage of other existing corridors, such as
old logging trails and a narrow gauge railbed. By using other disturbed
areas whenever feasible, the location of the SBHT will minimize
disturbance to Lakeshore resources. The SBHT will be located entirely
on public lands within the Lakeshore.
Moving bicycle traffic off roads used by motor vehicles will reduce
safety hazards and enhance opportunities for non-motorized enjoyment of
the Lakeshore. It will also encourage the use of alternate means of
transportation by park employees and park visitors to access these
extremely popular areas. The SBHT will give bicyclists, walkers,
runners, wheelchair users, rollerbladers, and cross-country skiers a
safe, enjoyable, and healthy way to access and explore the Lakeshore.
Maps depicting the planned trail route including the completed
first segment are available for review in the office of the
Superintendent and on the Lakeshore's Web site at http://www.nps.gov/slbe/parkmgmt/planning.htm.
Trail Planning and Environmental Analyses
The idea for a multi-use trail came from the Leelanau Scenic
Heritage Route Committee (LSHR), which was created by the State of
Michigan to preserve the historical integrity and safety of state
highways M-22, M-109, and M-204. The LSHR is a broad partnership with
representatives from 12 municipalities, the Lakeshore, the Michigan
Department of Transportation, the Grand Traverse Band of Ottawa and
Chippewa Indians, the Leelanau Conservancy, the Leelanau County Road
Commission, the Leelanau County Planning Commission, chambers of
commerce, interested organizations, and citizens.
Planning for the trail began in 2005 when the LSHR suggested the
concept to the NPS. In 2006, the LSHR created a Trailway Work Group to
develop a multi-use trail along the M-22 and M-109 corridor in the
Lakeshore. The Work Group included representatives of SLBE, the
Michigan Department of Transportation, local townships and villages,
and other interested groups and citizens. Through the LSHR, the public
had many opportunities for involvement in planning the SBHT. The public
provided input and review at various meetings and activities, including
over 25 LSHR Committee meetings and 15 Trailway Work Group meetings
from 2005 to 2008, and Port Oneida Days at the Lakeshore in August 2006
and 2007. In 2006 the LSHR staff also made introductory presentations
to local governments, with follow-up presentations made in 2008.
The multi-use trail concept, including bicycle use, and the trail
route were considered in the preferred alternative of SLBE's October
2008 Final General Management Plan/Wilderness Study/Environmental
Impact Statement (GMP/EIS) and Record of Decision (ROD) signed by the
NPS SLBE Superintendent and NPS Mid-West Regional Director in January
2009. In March 2009, SLBE published the Leelanau Scenic Heritage Route
Trailway Plan and Environmental Assessment (EA) which evaluated the
environmental impacts of a no-action alterative and two action
alternatives, including one identified as the preferred alternative.
The Leelanau Scenic Heritage Trailway route was named the Sleeping
Bear Heritage Trail, and in August 2009, the NPS SLBE Superintendent
and NPS Mid-West Regional Director signed a Finding of No Significant
Impact (FONSI). The FONSI identified the preferred alternative as the
selected action and concluded that the construction of the multi-use
trail, which would include bicycle use, would not have a significant
effect on the human environment. The GMP/EIS, ROD, EA, FONSI, and
related documents may be viewed on the Lakeshore's planning Web site at
http://www.nps.gov/slbe/parkmgmt/planning.htm.
Proposed Rule
The SBHT will generally be constructed in M-22/M-109 and county
road rights-of-way, and primarily within developed area zones as
described in the Lakeshore's GMP. However, the trail route will
occasionally deviate from the highway corridor and outside of developed
areas as previously described in this rule, to provide access to
natural, cultural, and recreation resources, and to promote a broader
variety of experiences for the trailway user. Therefore SLBE is
pursuing promulgation of a special regulation for bicycle use, as
required by 36 CFR 4.30.
Accordingly, the proposed rule would add a new paragraph to 36 CFR
7.80, designating the proposed 27-mile-long SBHT as a route for bicycle
use. The proposed rule also grants the Superintendent the authority to
impose closures or restrictions upon bicycle use on designated trails
after taking into consideration public health and safety, resource
protection, and other management activities and objectives, provided
public notice is given under 36 CFR 1.7.
The NPS now seeks comments on its proposal to designate this as a
route for bicycle use. The construction of the SBHT as a multi-use
trail, as stated above, was a separate decision and is not at issue in
this proposal.
Compliance With Other Laws and Executive Orders
Regulatory Planning and Review (Executive Orders 12866 and 13563)
Executive Order 12866 provides that the Office of Information and
Regulatory Affairs (OIRA) will review all significant rules. OIRA has
determined that this rule is not significant.
Executive Order 13563 reaffirms the principles of Executive Order
12866 while calling for improvements in the nation's regulatory system
to promote predictability, to reduce uncertainty, and to use the best,
most innovative, and least burdensome tools for achieving regulatory
ends. The executive order directs agencies to consider regulatory
approaches that reduce burdens and maintain flexibility and freedom of
choice for the public where these approaches are relevant, feasible,
and consistent with regulatory objectives. Executive Order 13563
emphasizes further that regulations must be based on the best available
science and that the rulemaking process must allow for public
participation and an open exchange of ideas. We have developed this
rule in a manner consistent with these requirements.
Regulatory Flexibility Act (RFA)
This rule will not have a significant economic effect on a
substantial number of small entities under the RFA (5 U.S.C. 601 et
seq.). This certification is based on information contained in the
report entitled ``Cost-Benefit and Regulatory Flexibility Analyses
Leelanau Scenic Heritage Route Trailway, Sleeping Bear Dunes National
Lakeshore'' (NPS Environmental Quality Division--May 2012), available
for review at http://www.nps.gov/slbe/parkmgmt/planning.htm.
[[Page 62478]]
Small Business Regulatory Enforcement Fairness Act (SBREFA)
This rule is not a major rule under 5 U.S.C. 804(2), the SBREFA.
This rule:
a. Does not have an annual effect on the economy of $100 million or
more.
b. Will not cause a major increase in costs or prices for
consumers, individual industries, Federal, State, or local government
agencies, or geographic regions.
c. Does not have significant adverse effects on competition,
employment, investment, productivity, innovation, or the ability of
U.S.-based enterprises to compete with foreign-based enterprises. The
rule would not require fees, or involve other measures that would
increase costs to visitors or businesses. Rather, this rule would
reasonably increase Lakeshore visitation and thereby generate benefits
for businesses through increased visitor spending.
Unfunded Mandates Reform Act (UMRA)
This rule does not impose an unfunded mandate on State, local, or
tribal governments or the private sector of more than $100 million per
year. The rule does not have a significant or unique effect on State,
local or tribal governments or the private sector. It addresses public
use of national park lands, and imposes no requirements on other
agencies or governments. A statement containing the information
required by the UMRA (2 U.S.C. 1531 et seq.) is not required.
Takings (Executive Order 12630)
Under the criteria in section 2 of Executive Order 12630, this rule
does not have significant takings implications. The rule will not deny
any property owner beneficial uses, or reduce the value, of their land.
No taking of property will occur as a result of this rule. A takings
implication assessment is not required.
Federalism (Executive Order 13132)
Under the criteria in section 1 of Executive Order 13132, the rule
does not have sufficient federalism implications to warrant the
preparation of a Federalism summary impact statement. This proposed
rule only affects use of NPS administered lands and waters. It has no
outside effects on other areas. A Federalism summary impact statement
is not required.
Civil Justice Reform (Executive Order 12988)
This rule complies with the requirements of Executive Order 12988.
Specifically, this rule:
(a) Meets the criteria of section 3(a) requiring that all
regulations be reviewed to eliminate errors and ambiguity and be
written to minimize litigation; and
(b) Meets the criteria of section 3(b)(2) requiring that all
regulations be written in clear language and contain clear legal
standards.
Consultation With Indian Tribes (Executive Order 13175 and Department
Policy)
The Department of the Interior strives to strengthen its
government-to-government relationship with Indian tribes through a
commitment to consultation with Indian tribes and recognition of their
right to self-governance and tribal sovereignty. We have evaluated this
rule under the Department's consultation policy and under the criteria
in Executive Order 13175 and have determined that it has no substantial
direct effects on federally recognized Indian tribes and that
consultation under the Department's tribal consultation policy is not
required.
Representatives of the five Indian tribes affiliated with SLBE were
consulted during the evaluation of the trail concept and route in the
preparation of the GMP/EIS. Representatives of the nearest affiliated
tribe, the Grand Traverse Band of Ottawa and Chippewa Indians, are
members of the LSHR that proposed the trail and helped to prepare the
EA.
Paperwork Reduction Act (PRA)
This rule does not contain information collection requirements, and
a submission under the PRA is not required.
National Environmental Policy Act (NEPA)
This rule does not constitute a major Federal action significantly
affecting the quality of the human environment. A detailed statement
under the NEPA is not required because we reached a FONSI. The GMP/EIS,
EA, FONSI, and related documents may be viewed on the Lakeshore's
planning Web site http://www.nps.gov/slbe/parkmgmt/planning.htm.
Effects on the Energy Supply (Executive Order 13211)
This rule is not a significant energy action under the definition
in Executive Order 13211. A statement of Energy Effects is not
required.
Clarity of This Regulation
We are required by Executive Orders 12866 (section 1(b)(12)) and
12988 (section 3(b)(1)(B)), and 13563 (section 1(a), and by the
Presidential Memorandum of June 1, 1998, to write all rules in plain
language. This means that each rule we publish must:
(a) Be logically organized;
(b) Use the active voice to address readers directly;
(c) Use common, everyday words and clear language rather than
jargon;
(d) Be divided into short sections and sentences; and
(e) Use lists and tables wherever possible.
If you feel that we have not met these requirements, send us
comments by one of the methods listed in the ADDRESSES section. To
better help us revise the rule, your comments should be as specific as
possible. For example, you should tell us the numbers of the sections
or paragraphs that you find unclear, which sections or sentences are
too long, the sections where you feel lists or tables would be useful,
etc.
Drafting Information: The primary authors of this regulation were
Tom Ulrich, Deputy Superintendent, Sleeping Bear Dunes National
Lakeshore, Michael Tiernan, Office of the Solicitor, U.S. Department of
the Interior, Washington, DC, A.J. North, Jay P. Calhoun, and Rose
Wilkinson, NPS Regulations and Special Park Uses, Washington, DC.
Public Participation
It is the policy of NPS, whenever practicable, to afford the public
an opportunity to participate in the rulemaking process. Accordingly,
interested parties may submit written comments, suggestions, or
objections regarding this proposed rule to the addresses noted at the
beginning of this rule.
Public Availability of Comments
Before including your address, phone number, email address, or
other personal identifying information in your comment, you should be
aware that your entire comment--including your personal identifying
information--may be made publicly available at any time. While you can
ask us in your comment to withhold your personal identifying
information from public review, we cannot guarantee that we will be
able to do so.
List of Subjects in 36 CFR Part 7
National Parks, Reporting and recordkeeping requirements.
In consideration of the foregoing, the National Park Service
proposes to amend 36 CFR part 7 as set forth below:
[[Page 62479]]
PART 7--SPECIAL REGULATIONS, AREAS OF THE NATIONAL PARK SYSTEM
1. The authority for Part 7 continues to read as follows:
Authority: 16 U.S.C. 1, 3, 9a, 462(k); Sec. 7.96 also issued
under 36 U.S.C. 501-511, D.C. Code 10-137 (2001) and D.C. Code 50-
2201 (2001).
2. In Sec. 7.80 add paragraph (c) to read as follows:
Sec. 7.80 Sleeping Bear Dunes National Lakeshore.
* * * * *
(c) Bicycling. (1) The Sleeping Bear Heritage Trail, approximately
27 miles in length from the southern Leelanau County line at Manning
Road to County Road 651 at Good Harbor Beach, is designated as a route
for bicycle use.
(2) The Superintendent may open or close designated routes, or
portions thereof, or impose conditions or restrictions for bicycle use
after taking into consideration public health and safety, natural and
cultural resource protection, and other management activities and
objectives.
(i) The Superintendent will provide public notice of all such
actions through one or more of the methods listed in Sec. 1.7 of this
chapter.
(ii) Violating a closure, condition, or restriction is prohibited.
Rachel Jacobson,
Principal Deputy Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 2012-25138 Filed 10-12-12; 8:45 am]
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