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Chapter 5
Merced Wild and Scenic River Comprehensive Management Plan
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Introduction

The Merced River was designated a Wild and Scenic River in 1987. The purpose of the Wild and Scenic River Act is to protect rivers in their free-flowing condition and to protect their water quality and values determined to be "outstandingly remarkable." The Merced River Plan provides the criteria by which project implementation plans will be judged to determine whether such projects will protect and enhance the values for which the Merced River was designated Wild and Scenic.

Merced Wild and Scenic River Management Elements

The Merced River Plan criteria and considerations applies seven management elements to prescribe desired future conditions, typical visitor activities and experiences, and park facilities and management activities allowed in the river corridor. The management elements include the following: boundaries, classifications, Outstandingly Remarkable Values, the Wild and Scenic Rivers Act Section 7 determination process, the River Protection Overlay, management zones, and the Visitor Experience and Resource Protection (VERP) framework. These management elements are described briefly below as they relate to the Lower Yosemite Fall Project. For additional information, please refer to the Merced River Plan (NPS 2001b). The Merced River Plan is available on the Internet at http://www.nps.gov/yose/planning.htm.

Boundaries define the areas to be managed under the Merced River Plan. In the vicinity of Lower Yosemite Fall area, the river boundary is defined as ¼ mile from ordinary high water (as defined by the U.S. Army Corps of Engineers in 33 CFR Section 328.3). Ordinary high water is the line on the shore established by the fluctuations of water and indicated by physical characteristics such as a clear, natural line impressed on the bank; shelving; changes in the character of soil; destruction of terrestrial vegetation; the presence of litter and debris; or other appropriate means that consider the characteristics of the surrounding area. Most of the Lower Yosemite Fall area is not located within the Wild and Scenic boundaries of the Merced River. Only a small portion of the proposed project would occur within the Merced Wild and Scenic River Boundary in Segment 2, Yosemite Valley. Those parts of the project within the boundary include Bridges #4, #5, and #6; the pedestrian/bicycle bridge and corresponding trails, and the parking area, as shown on Figure 2 of the Merced River Plan.

Classifications (Wild, Scenic, or Recreational) are applied to each segment of the river corridor and are based on the existing condition of the river at the time of river designation. The classification of a river segment indicates the level of development on the shorelines, the level of development in the watershed, and the degree of accessibility by road or trail. Yosemite Valley (Segment 2) is classified as Recreational because of its accessibility and the amount of development within the boundary (NPS 2001b).

Outstandingly Remarkable Values are the river-related values that make the river segment unique and worthy of special protection. They form the basis for the river’s designation as a Wild and Scenic River. Outstandingly Remarkable Values identified for the Yosemite Valley segment of the Merced River include:¹

• Scientific
  
• Scenic
  
• Geologic Processes/Conditions
  
• Recreation
  
• Biological
  
• Cultural
  
• Hydrologic Processes

When Congress enacted the Wild and Scenic Rivers Act in 1968, it sought to end decades of damming, dredging, and diversion of some of the nation’s most spectacular waterways. Although the Wild and Scenic Rivers Act does not prohibit development along a river corridor, it does specify guidelines for the determination of appropriate actions within the bed and banks of a Wild and Scenic River. Section 7 of the Wild and Scenic Rivers Act specifies restrictions on hydrologic and water resources development projects. A key management element for guiding future decisions regarding the Merced River is carried out through a Section 7 determination process. Water resources projects, that is, those that are within the bed or banks of the Merced River and that affect the river’s free-flowing condition, are subject to Section 7 of the Wild and Scenic Rivers Act (16 USC 1278). The National Park Service must carry out a Section 7 determination on all proposed water resources projects to ensure they do not directly and adversely impact the values for which the river was designated Wild and Scenic. The National Park Service must also follow Section 7 procedures to determine whether projects above or below the designated river or on its tributary streams would invade the area or unreasonably diminish the scenic, recreational, and fish and wildlife values present in the designated river corridor.

The Lower Yosemite Fall Project not located within the bed and banks of the Merced River, but the Lower Yosemite Fall area does include a tributary to the Merced River. Because elements of the Lower Yosemite Fall Project would involve construction in Yosemite Creek and on its banks, this project is subject to Section 7 procedures.

To ensure that the river channel itself and the areas immediately adjacent to the river are protected, the Merced River Plan includes a management tool called the River Protection Overlay². The River Protection Overlay includes the river channel itself and extends 150 feet on both sides of the river. The Lower Yosemite Fall Project is more than 150 feet away from the river channel, and is therefore not subject to the River Protection Overlay.

Management zoning is a technique used by the National Park Service to classify park areas and prescribe future desired resource conditions, visitor activities, use levels, and facilities. Management zoning was developed to protect and enhance the Outstandingly Remarkable Values within each segment of the Merced River. Management zoning prescribes certain uses and facilities that are allowed or not allowed in an area. Management zoning also provides opportunities for restoration of Outstandingly Remarkable Values in areas where lower use and facility levels are prescribed³. The Lower Yosemite Fall Project would be located within the two Merced River Plan management zones (NPS 2001b) described below.

The Day Use zone (2C) is intended to be applied to popular park destinations, where visitors could spend significant periods of time enjoying the park in a relatively accessible setting. The Day Use zone enhances opportunities for visitors to enjoy more intensive recreational activities near the Merced River and supports a range of active recreational opportunities such as swimming, picnicking, and rafting that contribute to the diversity of experiences specified in the recreation Outstandingly Remarkable Value. Visitors can expect moderate to high numbers of encounters with other park users and crowding on certain peak days. Large groups can use these areas. Day Use areas may be accessible by automobile, shuttle bus, and by bicycle, with interpretive trails or other marked trails leading to waterfalls, beaches, and scenic views. To accommodate heavier and more concentrated activity, facilities such as parking areas, restrooms, fencing of sensitive areas, picnic tables, and recycling and trash receptacles are allowed.

The Visitor Base and Lodging zone (3B) includes areas developed for visitor overnight use as well as support facilities and services such as orientation facilities, eating establishments, gift shops, and equipment rental. Most areas designated as Visitor Base and Lodging zones have been previously developed, including historic resources, which will be preserved under this zone. The visitor can expect a bustling atmosphere in these areas, with high incidence of visitor encounters during peak-use times. Facilities and lodging areas will be easily accessible by shuttle bus, automobile, trail, and bicycle.

The Visitor Base and Lodging zone supports visitor uses facilitated by development such as visitor centers, museums, and lodging, which enable visitors to access the park and learn about its natural and cultural resources. By concentrating relatively high-impact development to localized areas, this zone helps to protect and enhance natural and cultural resource Outstandingly Remarkable Values in the river corridor.

Visitor Experience and Resource Protection

The VERP framework is a tool developed by the National Park Service to address user capacities. The VERP framework protects both park resources and visitor experience from impacts associated with visitor use, and helps managers address visitor use issues. The VERP framework is an ongoing, iterative process of determining desired conditions (including desired cultural resource conditions, desired natural resource conditions, and desired visitor experiences), selecting and monitoring indicators and standards that reflect these desired conditions, and taking management action when the desired conditions are not being realized.

Yosemite National Park began development of the parkwide VERP framework in 1998 and continues to develop desired conditions, indicators, standards, and monitoring protocols. The VERP framework outlined in the Merced River Plan will be implemented by 2005. In the interim, Yosemite National Park will implement existing management activities and direction contained in the Merced River Plan (e.g., Wild and Scenic Rivers Act Section 7 determination, River Protection Overlay, or management zoning prescriptions) to address user capacity; protection and enhancement of Outstandingly Remarkable Values; and management of park resources, visitor use, and facilities. In addition, the National Park Service will initiate increased resource monitoring to ensure that conditions do not deteriorate. Appropriate management actions, consistent with existing management activities, will be implemented to prevent further degradation of resources⁴.

Methodology

This assessment of the Lower Yosemite Fall Project is based on the management elements developed in the Merced River Plan. The Merced Wild and Scenic River segment in which the Lower Yosemite Fall Project would be implemented is Segment 2, Yosemite Valley. The focus of the analysis is on long-term effects (e.g., effects that would last 10 years or more or would be permanent). Short-term effects are not addressed in this analysis unless they are of sufficient magnitude (having a substantial, highly noticeable influence) to degrade Outstandingly Remarkable Values.

The proposed project has been assessed with regard to: (1) boundaries; (2) classifications; (3) protection and enhancement of Outstandingly Remarkable Values; (4) Section 7 determination process; (5) consistency with the River Protection Overlay; (6) consistency with management zoning; and (7) the VERP framework and other considerations prescribed in the Merced River Plan.

Section 3 of the Wild and Scenic Rivers Act calls for the establishment of boundaries within a river corridor to define the area to be protected. The act allows for river corridor boundaries that average no more than 320 acres of land per river mile, measured from the ordinary high water mark on both sides of the river. The river corridor boundaries established in the Merced River Plan are based on the existing river channel. The Merced Wild and Scenic River is defined as one-quarter mile from ordinary high water for the length of the Merced River within Yosemite National Park.

The Lower Yosemite Fall Project was assessed for its compatibility with the Merced Wild and Scenic River recreational classification.

Pursuant to Section 10(a) of the Wild and Scenic Rivers Act, the Act shall be administered to protect and enhance Outstandingly Remarkable Values within the Wild and Scenic River corridor boundary. Uses that are consistent with this provision and that do not substantially interfere with public enjoyment and use of these values should not be limited (16 USC 1281[a]). Outstandingly Remarkable Values located outside the Wild and Scenic River corridor boundary must also be protected (NPS 2001b).

Analysis of Outstandingly Remarkable Values is focused on segment-wide effects, rather than site-specific or localized effects. In terms of evaluating potential effects to Outstandingly Remarkable Values, actions that could degrade Outstandingly Remarkable Values on a segment-wide basis include actions with effects that would be discernable throughout the majority of the river segment or would be of sufficient magnitude to affect adjacent segments. For the Lower Yosemite Fall Project, Outstandingly Remarkable Values are evaluated based on effects to such values within Segment 2 of the Merced River.

For the purposes of this analysis, the following assumptions for each Outstandingly Remarkable Value were made:

• Scientific – The analysis considers whether the proposed action would affect the integrity of the Merced Wild and Scenic River as a scientific resource or would degrade the river’s value for research.
  
• Scenic – The analysis considers the characteristics of the scenic Outstandingly Remarkable Value for Segment 2, and potential effects to views are analyzed from the perspective of a person situated on the riverbank or on the river.
  
• Geologic Processes/Conditions – The analysis gives primary consideration to designated processes, and evidence of those processes (e.g., U-shaped valley, hanging valleys, or evidence of glaciation) that have been responsible for creating the river’s geologic landscape. Effects related to natural meandering of the Merced River are addressed in the hydrologic processes Outstandingly Remarkable Value.
  
• Recreation – The analysis considers whether opportunities to experience a spectrum of river-related recreational activities would be affected.
  
• Biological – The analysis focuses on effects to riparian areas, wetlands, low-elevation meadows, and other riverine areas that provide rich habitat for a diversity of river-related species.
  
• Cultural – The analysis considers effects to river-related cultural resources, including archeological sites, which provide evidence of thousands of years of human occupation, and continuing traditional use today. The analysis also considers effects on nationally significant historic resources, such as designed landscapes and developed areas, historic buildings, and circulation systems (trails, roads, and bridges) that provide visitor access to the sublime views of natural features that are culturally valuable.
  
• Hydrologic Processes – Consideration is given to designated processes such as river meandering, world-renowned waterfalls, an active flood regime, oxbows, and fluvial processes. Effects to wetlands are addressed in the biological Outstandingly Remarkable Value.

Pursuant to the Wild and Scenic Rivers Act, the National Park Service must carry out a Section 7 determination for water resources on the Merced River’s tributary streams. The Lower Yosemite Falls Project is on Yosemite Creek, a tributary of the Merced River, and is analyzed to determine whether it would invade the river or unreasonably diminish the scenic, recreational, and fish and wildlife values present in the river corridor.

The Lower Yosemite Fall Project was assessed for its compatibility with the River Protection Overlay prescriptions.

Zoning prescriptions list typical activities, allowed facilities, and examples of facilities not allowed in each zone. These lists provide representative examples of allowed activities and facilities. When determining whether a specific use or facility is appropriate to a management zone, park managers consider the general character of development and desired resource and visitor experience conditions described for that zone. Each zone prescribes the maximum level of activities and facilities. In general, the more intensive facilities allowed for in higher category zones would not be allowed in the lower category zones. Typical uses in lower-intensity zones are generally acceptable uses for higher-intensity zones. Within a given management zone, there may be some areas used for higher-intensity facilities or activities, while other areas within the same management zone are left natural and open.

The Lower Yosemite Fall Project was assessed for its compatibility with the Merced River Plan management zoning and corresponding zoning prescriptions. The Lower Yosemite Fall Project is located in the Day Use (2C) and Visitor Base and Lodging (3B) management zones.

Consistency with the Merced River Plan

Only a small portion of the proposed project would occur within the Merced Wild and Scenic River Boundary in Segment 2, Yosemite Valley. Those parts of the project within the boundary include Bridges #4, #5, and #6; the pedestrian/bicycle bridge and corresponding trails, and the parking area. The remaining components of the project would occur outside the boundary along the Yosemite Creek tributary.

The east Valley river segment in which part of the Lower Yosemite Fall Project is located is classified as Recreational due to its accessibility and the amount of development within the boundary. The proposed actions in the Lower Yosemite Fall area are designed to improve visitor use and enjoyment with less emphasis on the "built" environment. The actions would rearrange uses and rehabilitate facilities but not add any new uses or facilities that are inconsistent with the recreational classification. The proposed project is compatible with the Recreational classification.

Table 5-1 presents an analysis of the project’s effects on the Outstandingly Remarkable Values for the Yosemite Valley segment of the Merced Wild and Scenic River Corridor.

The restroom relocation would improve the scenic view from the western trail in the Lower Yosemite Fall area but would not be visible from the river. The proposed bridge reconstructions and rehabilitations would minimize impediments or improve free flow on Yosemite Creek, thus providing minor beneficial effects to wildlife. The trail realignments would be minor and of negligible effect to wildlife; because of the high level of use by humans, there is limited wildlife use of the Lower Yosemite Fall area. Replacing a small portion of the parking area with a seating area and picnic area and relocating the bus parking would improve the visitor experience in the Lower Yosemite Fall area by reducing vehicle noise and congestion. The project would not change the spectrum of recreational opportunities available to visitors. Maintenance of view corridors through trimming of vegetation would improve scenic views in the Lower Yosemite Fall area, but these views would not be visible from the river or its banks. Vegetation removal would only have a minimal impact to wildlife habitat because of the limited area affected and the abundance of similar habitat nearby.

The project actions on Yosemite Creek, a tributary of the Merced River, would be localized and not of a sufficient magnitude to invade the river or unreasonably diminish the scenic, recreational, or fish and wildlife values of the river.

The Lower Yosemite Fall area is outside of the River Protection Overlay and therefore not subject to its criteria.

Portions of the Lower Yosemite Fall area are located within two management zones and are consistent with each of those zones, as described in the following paragraphs.

A portion of the Lower Yosemite Fall area (Bridges #4, #5, and #6, the pedestrian/bicycle bridge, and corresponding trails) is located within the Day Use zone (2C). Within the Day Use zone, visitors can expect moderate to high numbers of encounters with other park users and crowding on certain peak days. Day Use zone areas may be accessible by automobile, shuttle bus, and bicycle, with interpretive trails or other marked trails leading to waterfalls, beaches, and scenic views. In order to accommodate heavier and more concentrated activity, facilities such as parking areas, restrooms, fencing of sensitive areas, picnic tables, and recycling and trash receptacles are allowed.

The portion of the parking area that would be replaced with a seating area and picnic area is within the Visitor Base and Lodging zone (3B), which includes areas developed for visitor overnight use as well as support facilities and services. Most areas designated as Visitor Base and Lodging zones have been previously developed, as in the Lower Yosemite Fall area. The visitor can expect a bustling atmosphere in these areas, with high incidence of visitor encounters during peak-use times. The replacement of the parking area with a seating area or a picnic area would be a less intense use and development than is allowed in the Visitor Base and Lodging zone (3B); therefore, the project would be consistent with this zone.

Interim parking for up to 22 tour buses would be located on Northside Drive, which is also designated the Visitor Base and Lodging zone (3B). Bus parking is an allowed facility and use for this zone; therefore, the action would be consistent with the Visitor Base and Lodging zone (3B) classification.

The Lower Yosemite Fall Project meets criteria stated in the Merced River Plan for protecting and enhancing the Merced Wild and Scenic River. Accordingly, following are considerations that have been applied to the Lower Yosemite Fall Project design:

1. Minimize impacts by locating facilities outside the river corridor if there is a feasible alternative. Due to the proximity of Yosemite Falls to the river corridor and the importance of the integrity of the braided stream area, it is necessary to provide visitor accommodation for walking, picnicking, and vehicle access to Lower Yosemite Fall within the river corridor. However, with construction of the Lower Yosemite Fall Project, more development would be removed than replaced.
   
2. Design facilities or actions to minimize or mitigate impacts to the river. A reduction in vehicle congestion as a result of the Lower Yosemite Fall Project would lessen impacts to the river corridor.
   
3. Avoid, minimize, or otherwise mitigate negative impacts to visitor experience. The purpose of the Lower Yosemite Fall Project is to improve visitor experience of the natural phenomena of Yosemite Falls, restore the Yosemite Creek braided stream, and protect the Merced River corridor.

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¹ For a complete description of Outstandingly Remarkable Values, refer to page 40 of the Merced River Plan.

² For a complete description of the River Protection Overlay, refer to page 48 of the Merced River Plan.

³ For a complete description of Management Zoning, refer to page 56 of the Merced River Plan.

⁴ For a complete description of Visitor Experience and Resource Protection, refer to page 103 of the Merced River Plan.

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Main | Superintendent's Letter | Abstract | Executive Summary | Table of Contents | Chapter 1 | Chapter 2 | Chapter 3
Chapter 4 | Chapter 5 | Chapter 6 | Chapter 7 | Chapter 8 | Chapter 9 | Tables | Figures | Appendices