On July 16, 2008, the National Park Service issued a Record of Decision Amendment – Sylvan Pass Management (345 Kb). The Amendment only addresses avalanche management at Sylvan Pass in Yellowstone National Park. Unless specifically modified by the Amendment, all other elements of the November 20, 2007, Record of Decision (see below) remain in place. The Amendment takes into consideration the work of the Sylvan Pass Study Group (the National Park Service, State of Wyoming, Park County, Wyoming, and the City of Cody) and their June 3, 2008, recommendation to the Intermountain Regional Director of the National Park Service. The Amended decision states that Sylvan Pass will be open for oversnow travel (both motorized and non-motorized) for a limited core season, from December 22 through March 1 each winter, subject to weather-related constraints and NPS fiscal, staff, infrastructural, equipment, and other safety-related capacities. A combination of avalanche mitigation techniques may be used, including forecasting and helicopter and howitzer dispensed explosives. The results of previous safety evaluations of Sylvan Pass by the Occupational Safety and Health Administration (OSHA) and an Operational Risk Management Assessment (ORMA) will be reviewed and updated, and the NPS will evaluate additional avalanche mitigation techniques and risk assessment tools in order to further improve safety and visitor access. New rulemaking is not necessary to implement the Amendment. The December 13, 2007, Final Rule (see below) stated that the East Entrance Road would be open to snowmobile and snowcoach travel. The rule does not specify the avalanche control methods. Also, the rule states that the Superintendent will determine operating hours and dates. Thus new rulemaking is not required.

On December 13, 2007, the National Park Service (NPS) published the Final Rule guiding management of winter use in Yellowstone and Grand Teton National Parks and the John D. Rockefeller, Jr., Memorial Parkway. This rule is similar to the Record of Decision (ROD) (285 Kb pdf) signed by the Director of the NPS Intermountain Region on November 20, 2007.

The ROD and Final Rule are based on the "Winter Use Plans Final Environmental Impact Statement" (FEIS) for Yellowstone and Grand Teton National Parks and the John D. Rockefeller, Jr. Memorial Parkway, which the NPS released on September 24, 2007 (the FEIS is a large document available by chapter at http://www.nps.gov/yell/parkmgmt/winterusetechnicaldocuments.htm).

The purpose of all three documents is to ensure that park visitors have a range of appropriate winter recreational opportunities, while ensuring that these recreational activities do not impair or irreparably harm park resources or values. The FEIS examined the environmental impacts of seven different alternatives for managing snowmobile, snowcoach, and/or wheeled vehicle use in the parks. This 14-page document (178 KB pdf) summarizes the alternatives and their predicted impacts upon park soundscapes, air quality, wildlife, regional socioeconomics, visitor access, visitor experience, and park operations. The FEIS was not a decision document. The ROD specifies the agency’s decision, and the Final Rule translates that decision into actual regulations that are enforceable.

From the winter of 2008-09 forward, the Final Rule will allow fewer snowmobiles in Yellowstone than were allowed previously—540 per day. Eighty-three snowcoaches will be allowed in Yellowstone per day. Beginning with the 2011-2012 season, all snowcoaches operating in the parks will be required to meet BAT emission and sound level requirements. All snowmobiles and snowcoaches in Yellowstone will be 100% commercially guided. Snowmobile and snowcoach travel will continue to be restricted to existing park roads groomed for their use.

In Grand Teton and the Parkway, grooming and motorized oversnow travel on the Continental Divide Snowmobile Trail (CDST) between Moran Junction and Flagg Ranch will be discontinued. Those interested in through travel on the CDST will be able to haul their snowmobiles via wheeled vehicle between these locations. Twenty-five snowmobiles a day will be allowed to travel on the Grassy Lake Road (as counted at Flagg Ranch), with no BAT or guiding requirement there. Forty unguided, BAT snowmobiles a day will be allowed on Jackson Lake to facilitate ice fishing by those possessing appropriate fishing gear and a valid State of Wyoming fishing license.

To better involve the public, non-governmental organizations, and cooperating agencies throughout this process, the NPS contracted with Cadence, Inc., a team of experienced public engagement practitioners, to help develop a public involvement process for the new plan and EIS. In 2005, Cadence conducted a series of interviews with various stakeholders that led to a situation assessment and eventually, a public engagement plan. We invite you to read the Participation Plan (274KB) that was developed to inform our public engagement process.

With the assistance of Cadence, public participation helped shape the Final Rule, FEIS and associated long-term winter use plan. The NPS accepted public comment at three periods during development of the FEIS and Final Rule, with summaries of such comment available: 1) on the scope of the Draft Environmental Impact Statement (DEIS) (scoping report, 748 KB pdf); 2) on the DEIS itself (summary, 295 KB pdf); and 3) on the proposed rule (summary, 274 Kb pdf).

The FEIS also reflects the comments from ten cooperating agencies, who have participated in the planning process under a Memoranda of Understanding with the National Park Service. These agencies are the states of Wyoming, Montana, and Idaho; counties of Park and Gallatin in Montana, Park and Teton in Wyoming, and Fremont in Idaho; the Environmental Protection Agency; and the U.S. Forest Service. Throughout this winter use planning process, the National Park Service has provided the Cooperating Agencies with opportunities to review preliminary documents before they are finalized.