Water Recreation Opportunity Spectrum User’s Guidebook | CSS 386, Study notes of Humanities

Download Water Recreation Opportunity Spectrum User’s Guidebook | CSS 386 and more Study notes Humanities in PDF only on Docsity! United States Department of the Interior Bureau of Reclamation Users’ Guidebook July 2004 Water Recreation Opportunity Spectrum Allegheny River, Pennsylvania Lake Amistad, Texas Saquaro Lake, Arizona American River, California Lake Cumberland, Kentucky Lake Shasta, California Lake Sakakawea, North Dakota Frequently Asked Questions 1. Will WROS help managers and local government officials make better decisions? 2. Does WROS give managers flexibility? 3. Will WROS constrain reservoir operations? 4. Will water drawdown or flows affect WROS? 5. Can WROS change by season? Yes, WROS is a framework and procedure to help make better decisions and it can be used by agency planners and managers, county planning commissions, city councils, and stakeholder groups. It is not intended to make decisions or to take the place of sound professional judgment. It is intended to help yield decisions that are principled, reasoned, systematic, deliberate, trackable, and legally defensible. WROS is flexible. WROS recognizes that there will be special circumstances and situations in which flexibility and adaptation is necessary. There may be instances where the mapping criteria or certain standards will not work. That is acceptable. On the other hand, maintaining the integrity of WROS as a professional tool is very important. Changes and adaptations to WROS should be made only with reasonable care and clear justification. WROS will not constrain any resource use, purpose, or public or private priorities of water resources, but rather, will help to optimize the net public benefits for reservoir operations. It is a tool that helps to integrate recreation considerations into complex water use allocation decisions and helps to recognize and assess the tradeoffs and consequences of proposed alternatives. Water drawdown and flows can affect the type and amount of recreation opportunities on a water resource and the WROS classification. For example, the water surface acres classified as “rural natural” in early spring (high water level) may change to “rural developed” in the late summer. For many reservoirs, it would be useful to have two or more WROS maps (e.g., early, middle, and late season) to help understand change in recreation opportunities. The reservoir drawdown effect on WROS should not be viewed as a constraint or limitation, but rather as one of many factors that contributes to the diversity of WROS. Yes, WROS can change by season. Features such as ice, snow, road closures, wildlife migration, and special activity seasons (e.g., waterfowl hunting) can affect WROS. For many water bodies, there is considerable change and difference from season to season or even within a season. Having a WROS map for each of the primary seasons of interest would help to understand the recreation situation. Water Recreation Opportunity Spectrum xi xiv Water Recreation Opportunity Spectrum 14. Does WROS require a special planning process? 15. Can WROS help make daily management decisions? 16. How does WROS help justify budgets and personnel? 17. What if current conditions are not consistent with the WROS guidelines? WROS does not require a special planning process. By analogy, if the main stem of a tree is considered the agency planning process, WROS is part of the recreation branch that brings recreation information into the main stem. WROS is a tool that helps to integrate recreation considerations into a larger comprehensive planning effort where multiple uses and allocation decisions are necessary. Although the Bureau of Reclamation has taken the lead in developing WROS, the system has been designed to interface with any local, State, or Federal agency planning process. Yes, WROS can help make daily management decisions. The WROS map representing the desired recreation opportunities or the preferred alternative can help remind managers of the appropriate activities, setting attributes, and experiences for each WROS zone. Invariably, there are requests and appeals for special exceptions that may not be appropriate for a specific time or location. An understanding of WROS can help managers make better decisions and can provide a logical and defensible explanation for the decision. Furthermore, the management guidelines are very useful for daily or annual operation and maintenance activities, budget planning and justification, assigning volunteer work crews, responding to media and local tourism boards, dealing with visitor capacity and conflict issues, and mitigating unforeseen impacts. A key component of WROS is a set of management guidelines for many of the components requiring time or effort (e.g., budget and personnel). For example, the maintenance and patrol standards will differ between a semi primitive and a rural developed WROS class. While many of the guidelines are of a qualitative nature, continuing research and professional experience with WROS will help in developing more quantitative standards that can be more easily expressed as cost items in a budget or personnel request. WROS helps to determine where inconsistencies might exist; that is, locations or situations where the current conditions are not consistent with the WROS management guidelines. Inconsistencies are often found in the initial application of WROS to an area, and over a number of years they would be expected to decline as management makes adjustments. Inconsistencies can be mapped and prioritized on a scale of Some recreation activities such as hunting are very seasonal. negligible, minor, moderate, or major consequence. WROS does not obligate and direct any action, but rather helps to identify the type and location of inconsistencies and helps to mitigate them over time. WROS can be applied to any water resource, although its practicality on very small areas should be limited. Use of WROS would be justified when the planning area has water-related recreation use that is a value to the public. The water resources are a dominant natural resource feature, or water management is a significant public issue, management concern, or future opportunity. Sound professional judgment is the standard to make this decision. Recreationists visit a geographic area called a “visitation range,” analogous to an animal’s home range or a river’s watershed. From their overnight locations, visitors take short excursions to experience different locations throughout the visitation range. For example, a family might camp for several days at a full service State park campground on a large lake, but also spend one day fishing10 miles downstream and another day hiking upstream into the headwaters to visit a popular vista. Thus, a recreation management decision in one location may affect the quality or nature of the recreation opportunity in another location within the visitation range. The answer to this question is answered by another question: What is the visitation range for the most of the recreationists and tourists visiting the area? Of course, the final decision must also consider other factors such as the practicality of the size of the study area and the number of other agencies that would need to collaborate. ROS (Recreation Opportunity Spectrum) was developed for land areas managed by the United States Forest Service and Bureau of Land Management. WROS builds upon ROS and provides more detailed guidance for water resources such as lakes, reservoirs, rivers, coastal zones, bays, estuaries, inlets, and marine protected areas. Both ROS and WROS use a similar type and number of classifications or zones, names, mapping criteria, descriptions of recreation experiences, and steps. In cases where large land areas (e.g., wilderness and national forest) are adjacent to the water resources under consideration, ROS can be used and blended with the WROS classes. In 18. What size river, stream, inlet, or other water resource is practical for WROS? 19. Should WROS be used on streams and rivers above and below a lake or reservoir? 20. How does WROS blend with ROS? Water Recreation Opportunity Spectrum xv Fishing is a recreational activity possible in virtually all areas. xvi Water Recreation Opportunity Spectrum cases where the planning area contains a relatively small terrestrial area and the primary visitation is water-based recreation, WROS can be used for the land and water resources. ROS was developed for large terrestrial landscapes and provides a small amount of management direction for some water resources (e.g., wild and scenic rivers). WROS is a logical extension of ROS and has greatly expanded the water recreation management guidelines. A reasonable rule of thumb is that if the stream, river, or other water resource is incidental to the primary recreation opportunities in the planning area, ROS may be the preferred tool. Conversely, WROS may be the preferred tool where the water-recreation opportunities are significant (not incidental), distinct from adjacent land-based recreation, and highly valued by the visitors and local communities. Yes. WROS is a tool with universal appeal. Its overarching goal is to provide planners and managers with a framework and procedure for making better decisions for conserving a spectrum of high quality and diverse water recreation opportunities. WROS improves our understanding of the complexity of outdoor recreation and tourism management, strengthens sound professional judgment, and enables a manager to make better and more defensible decisions. For example, many international protected areas have significant marine, coastal zone, reef, lake, and river resources. These areas are very popular for tourists and adventure travelers and can be both a bane and blessing for a local community and a nation’s welfare. The management challenges and opportunities associated with visitors to the world’s protected areas, be they called recreationists or tourists, are basically the same. The underlying foundation and strategy employed by WROS to conserve water resources and recreation opportunities have universal application. They also have the flexibility and adaptability for managers to tailor parts of WROS (e.g., some terms, pictures, descriptions, standards) to more closely reflect their local social, cultural, and environmental situation. 21. How does WROS interface with ROS in dealing with streams, rivers, and wetlands? 2. Can WROS be applied to water resources in other countries and international protected areas? 2 Water Recreation Opportunity Spectrum iii WROS is designed to be dynamic and adaptive. As WROS is applied by more people, agencies, and in different locations and circumstances, we will collectively learn from experience and be able to improve WROS. Your comments, questions, and suggestions are encouraged. The author's contact information is provided in Appendix B. This guidebook is also intended to be dynamic, reflecting the input from professionals and stakeholders over time. The most recent version of this guidebook, including a listing of those sections where improvements have been made, will be maintained on Reclamation’s website: http://www.usbr.gov iv Water Recreation Opportunity Spectrum What are you Thinking? Executive Summary Frequently Asked Questions Acknowledgments Chapter 1: Introduction Chapter 2: WROS Inventory The Foundation of WROS The average visitor does not exist Don't try to be all things to all people Managers provide recreation opportunities A seamless system of water recreation opportunities An Overview of WROS The goal of WROS The WROS classifications The planning and management value of WROS Design Criteria Used in Developing WROS The Standard for WROS Decision Making Sound professional judgment Preponderance of the evidence Rule of reasonableness Sliding scale rule of analysis Scale of degree Defining the Scope Develop a comprehensive base map Define the geographic location or planning area for the WROS inventory Decide the level of resolution or appropriate scale of the base map Decide the time period for applying WROS Decide if WROS will be used in a resource management planning process Determine the effective WROS area under consideration Identify other important planning consideration that will affect WROS Develop a basic profile of the planning area Contents vii viii xi xvii 1 29 3 3 3 4 5 5 5 5 22 23 23 24 24 25 25 27 30 30 31 31 32 32 32 33 33 36 40 44 48 Water Recreation Opportunity Spectrum v The WROS Inventory Attributes and Protocol Mapping the Current Supply of Recreation Opportunities Delineation of Current Overall WROS Class Inconsistency Mitigation Scoping Planning Criteria Inventorying Formulating Alternatives Evaluating Alternatives Implementing and Monitoring Evaluating and Adapting Management Guidelines Boating Capacity Reasonable Recreation Boating Capacity Coefficients A. Glossary of Key Terms B. A Directory of Related Systems and Sources of Information Chapter 3: WROS Planning Chapter 4: WROS Management Appendices 51 52 52 53 57 57 57 60 61 63 78 94 97 98 100 Chapter 1: Introduction Introduction 2 Chapter 1: Introduction Above, some visitors need special facilities. Below, reasonable access is an important issue. The outdoor recreation profession has become much more sophisticated in the 41 years since the government’s first comprehensive assessment in 1962, entitled the Outdoor Recreation Resources Review Commission. Water is a focal point of outdoor recreation. . . . Urban or rural, water is a magnet. Wherever they live, people show a strong urge for water- oriented recreation. There are many other reasons (purposes) for water resource programs, and recreation use often is incidental and unplanned. To say this, however, is to note how great are the opportunities. Today, the Bureau of Reclamation (Reclamation) recognizes that water recreation management is no longer a matter of simply building a boat ramp, dock, parking area, and restroom. Water recreation management involves a thorough understanding of the water resource and its capability, current and future visitors, the type of experiences sought, regional recreation demand and supply, resource management planning, economic and non-economic valuation, visitor capacity, and other dimensions. The Water Recreation Opportunity Spectrum (WROS) is a tool that planners and managers can use to make better decisions. It is modeled after the Recreation Opportunity Spectrum (ROS) system, yet tailored to water resources such as reservoirs, lakes, rivers, bays, estuaries, wetlands, coastal zones, and marine protected areas. This guidebook provides operational guidance on how to implement WROS in inventorying, planning, and managing recreation opportunities on and adjacent to water resources. It is intended to be adaptive, given changing public recreation use, new information from monitoring or science, and the practical field experience gained by its application. This guidebook contains four chapters. Chapter 1: Introduction provides important background information on the system. Chapter 2: WROS Inventory describes the procedural steps to map the current water recreation opportunities that an area is providing and identifies inconsistencies where management action might be appropriate. Chapter 3: WROS Planning overviews how WROS inventory information can interface with a resource management planning process. And Chapter 4: WROS Management provides a set of management guidelines for recreation-related elements in each of the WROS classes. The appendix contains important supporting information and references to other sources of information. Different boats have different requirements. The Foundation of WROS The average visitor does not exist. Don’t try to be all things to all people. Several popular concepts in the outdoor recreation profession serve as the foundation for WROS. Recreation science has revealed the great diversity in what outdoor recreationists desire for a recreation experience, expect upon arriving at a recreation site, and perceive and enjoy while recreating. Not only is there diversity among different recreation activity participants such as boaters, anglers, and campers, but there is also diversity among participants in each of these activities. For example, the recreation experience of sailing on a 200-acre urban reservoir for a few hours is certainly different from that of sailing on a 50-mile long rural reservoir for several days. In much the same way as consumers can be segmented into groups by retailers based on some shared buying preferences, outdoor recreationists can be segmented into groups based on the recreation experiences they desire. Recreationists also differ in other characteristics such as their place of residence, travel distance, recreational equipment, socioeconomic situation, racial and ethnic background, education, and knowledge of available opportunities. The implication is that to plan and manage for a mythical average user is not appropriate because such an approach will leave out or not accommodate the diversity of the public interested in water resources. The conservation of recreation diversity is a fundamental purpose of the WROS system. A specific lake, reservoir, or other body of water is a single resource within a regional and national system of water recreation opportunities. Each water resource can have special capabilities and opportunities to make an important contribution to the integrity of the larger system. Any individual lake, river, or reservoir cannot be all things to all people. Therefore, managers must identify the recreational role or niche of the water resource within the context of local, regional, and in some cases, national interests. The implication is that it is not practical to plan and manage each water resource so that it provides all opportunities for all visitors. Each water resource should serve a particular recreational role or fill a niche within a larger Chapter 1: Introduction 3 Don’t try to be all things to all people. A specific lake, reservoir, or other body of water is a single resource within a regional and national system of water recreation opportunities. Figure 2. The Water Recreation Opportunity Spectrum 6 Chapter 1: Introduction Spectrum Descriptors Recreation Activities Recreation Setting - physical attributes - social attributes - managerial attributes Recreation Experiences Recreation Benefits A Spectrum of Six WROS Classifications Urban Suburban RuralNatural Rural Developed Semi Primitive Primitive Integrated Packages Recreation activities are the leisure pursuits most commonly understood and referred to in the literature. There are hundreds of examples of recreation activities, and the list continues to grow because of new technology and changing public interests. Of course, not all activities can be provided in the same location, and a manager must decide which activities are appropriate for an area. WROS helps managers decide the appropriateness of various recreation activities by offering a general illustration of those that may be appropriate in each WROS class. (See figure 3.) It is important to note that figure 3 illustrates the general framework of WROS. There will be situations where a particular activity may or may not be appropriate. Sound professional judgment and due consideration of the local situation is needed to decide what are appropriate recreation activities. Left, wildlife contribute to a visitor’s experience. Right, dramatic and expansive views are attractive to people. Chapter 1: Introduction 7 Water-Based Activities water skiing/wake boarding jet boating personal water craft low-speed motor boating fishing houseboating rafting canoeing kayaking swimming diving/snorkeling para-sailing Water-Related Land Activities developed campgrounds rustic campgrounds backpacking off-highway vehicles horseback riding wildlife viewing hunting golfing swim beaches snowmobiling picnicking interpretive programs hiking Figure 3. A Generalized Representation of Recreation Activities by WROS Class Urban Suburban RuralNatural Rural Developed Semi Primitive Primitive 8 Chapter 1: Introduction A recreation setting is composed of physical, social, and managerial attributes. It is the combination of attributes that shapes or molds a specific activity into a particular experience. Managers spend most of their time and effort managing the recreation setting. The management guidelines in Chapter 4: WROS Management provide more detailed guidance for achieving optimum results. Figure 4 illustrates various physical, social, and managerial attributes that can affect the desired recreation experience for an area. Figure 4 is not intended to be an exhaustive list, nor is it intended to suggest that each of these attributes must be considered. Furthermore, some attributes could be listed in more than one column (e.g., historic resources). Figure 4. Examples of Recreation Setting Attributes aquatic vegetation recreationists (type, number) recreation facilities water quality visitor expectations water storage facilities soils/rocks/cliffs patterns of visitation water delivery systems topography/slope visitor behaviors rules/regulations fish and wildlife visitor safety issues interpretation natural sounds visitor conflicts fees and charges visual resources vandalism and litter site design water flows automobiles and trains health and safety closures water elevations historic sites length of season lightscapes cultural resources recreation maintenance terrestrial vegetation adjacent private land uses recreation programs endangered species special uses or permits law enforcement/security human development special values signage -- industrial/commercial density of use restoration activities -- municipal/residential types, size, and speed of boats administrative sites -- man-made structures shoreline activity reservoir drawdown -- infrastructure airplanes water safety lights/markers water surface acreage commercial shipping timed flow releases river length, width, gradient type and level of unnatural fishery management natural hazards sounds (noise) vegetative management air quality nuisance behavior access roads/launches natural beauty unlawful activities accessible facilities geologic formations personnel and volunteers climate and winds level of patrol Physical Attributes Social Attributes Managerial Attributes A recreation experience is the psychological and physiological response to participating in a particular recreation activity and setting. The experience is the output of management’s efforts and represents what is consumed by the recreationist. WROS helps planners and managers to focus on the recreation experience that is being provided and provides a general description of recreation experience for each WROS class. Recreation science has contributed to identifying the important dimensions of a recreation experience, often referred to as motivations, psychological outcomes, or multiple satisfactions. Recreation science also recognizes that humans use all five senses to perceive or experience a situation; that is, a recreation experience can be affected by what one sees (e.g., wildlife and litter), hears (e.g., natural sounds and loud engine noises), smells (e.g., grasses and trees, barbecue, and pollution), touches (e.g., water temperature, beach sand, and broken glass), and tastes (e.g., water, food, and exhaust fumes). Figures 6 and 7 provide a general description of the important dimensions and senses that define the recreation experience in each WROS class. It is important to bear in mind that these generalizations are just generalizations and may need to be adapted to more accurately reflect a particular local situation. WROS encourages flexibility and adaptability based on sound professional judgment. The speed, wake, and sound of boats can alter a recreation setting. Safety considerations are very important. Management rules and regulations can alter a recreation setting. Chapter 1: Introduction 11 A recreation experience is the psychological and physiological response to participating in a particular recreation activity and setting. 12 Chapter 1: Introduction Figure 6. Examples of Recreation Experiences by WROS Class Often Common Across Spectrum ·Enjoy the outdoors ·Get refreshed ·Have fun and pleasure ·Enjoy friends and family ·Change of pace ·Get away from usual demands of life ·Reduce stress ·Chance to think and ponder ·Enjoy physical exercise ·Bond with family and friends ·Help others develop skills WROS Spectrum Urban Suburban RuralNatural Rural Developed Semi Primitive Primitive Important in all Settings Less Important More Important Less Important More Important Often Varies Across Spectrum ·Experience the sights, sounds, and smells of nature ·Learn about nature and culture ·Chance to dream and reflect ·Sense of adventure and challenge ·Sense of awe, wonder, humility ·View wildlife and natural wonders ·Experience challenge and risks ·Sense of self reliance, freedom, choice ·Experience tranquility and peacefulness ·Experience solitude ·Experience new and different things ·Sense of physical exertion ·Feel inspired Often Varies Across Spectrum ·Chance to watch and be around other people ·Opportunity to socialize ·Opportunity to meet new people ·Sense of competition with others ·Exhilaration of speed and thrills ·Test one's skills and equipment ·Feel safe and secure in the outdoors ·Enjoy comforts and conveniences in the outdoors ·Opportunity for a brief respite from everyday life Chapter 1: Introduction 13 Figure 7. A Generalized Description of the Recreation Experiences by WROS Class Urban Recreation Experience: Area provides very limited opportunities to see, hear, or smell the natural resources (e.g., forests, wildlife, aesthetics) because of the extensive level of development, human activity, and natural resource modification; watching and meeting other visitors is expected and desired; large group activities such as guided fishing, tour boat sightseeing, and beach sports are popular; opportunity to briefly relieve stress and to alter everyday routines is important; socializing with family and friends is important; large groups and families are common; a high sense of safety, security, comfort, and convenience is central and dominant; the mix of recreation activities may be diverse, ranging from those of relaxation and contemplation (e.g., sunbathing, reading, nature walking) to those of physical exertion, thrills, excitement, and challenge (e.g., para sailing, jet boating, water skiing); area often attractive to short time visitors, large affinity groups, tours, school groups; area may serve as a transportation corridor for transient visitors or as a staging area for others traveling to nonurban settings; area is popular with local urban residents as well as nonresident first-time tourists. Suburban Recreation Experience: Area provides little opportunity to see, hear, or smell the natural resources (e.g., forests, wildlife, aesthetics) because of the widespread and very prevalent level of development, human activity, and natural resource modification; watching and meeting other visitors is expected and desired; opportunity to briefly relieve stress and to alter everyday routines is important; socializing with family and friends is important; large groups and families are common; a high sense of safety, security, comfort, and convenience is central and dominant; the mix of recreation activities may be diverse, ranging from relaxation and contemplation (e.g., sunbathing, reading, and nature walking) to physical exertion, thrills, excitement, and challenge (e.g., para- sailing, jet boating, and water skiing); learning about natural or cultural history, ecology, and reservoir and river operations are important to some; area is popular with local suburban residents. Rural Developed Recreation Experience: Area provides occasional or periodic opportunities to see, hear, or smell the natural resources (e.g., forests, wildlife, aesthetics) because development, human activity, and natural resource modification are common and frequently encountered: area is less developed and more tranquil than a suburban setting; opportunity to experience brief periods of solitude and change from everyday sights and sounds is important; socialization within and outside one’s group is typical, and the presence of other visitors is expected; opportunity to relieve stress and to alter everyday routines is important; a moderate level of comfort and convenience is important; a sense of safety and security is important; the array of recreation activities may be diverse, ranging from relaxation and contemplation (e.g., sunbathing, sailboating, shoreline fishing) to physical exertion and challenge (e.g., competing in shoreline and water sports, tournament fishing, ice fishing, water skiing, and kayaking); area is typically attractive for day-use and weekend visitors from local metropolitan areas or nearby communities, short-term campers, recreation vehicle users, large groups, and adventure tourists within a day’s drive. Rural Natural Recreation Experience: Area provides frequent opportunities to see, hear, or smell the natural resources (e.g., forests, wildlife, and aesthetics) because development, human activity, and natural resource modifications may be occasional and infrequent; noticeably more natural, less developed, and more tranquil than an urban setting; socialization with others outside one’s group is not very important, although the presence of others is expected and tolerated; opportunity to relieve stress and to get away from built environment is important; a high sense of safety, security, comfort, and convenience is not important or expected; a sense of independence and freedom with a moderate level of management presence is important; moments of solitude, tranquility, and 16 Chapter 1: Introduction Activity Physical Social Managerial Photo Examples Urban WROS Class Chapter 1: Introduction 17 Activity Physical Social Managerial Photo Examples Suburban WROS Class 18 Chapter 1: Introduction Activity Physical Social Managerial Photo Examples Rural Developed WROS Class Chapter 1: Introduction 21 Activity Physical Social Managerial Photo Examples Primitive WROS Class 22 Chapter 1: Introduction The planning and management value of WROS. WROS is an inventory, planning, and management tool. As such, it is valuable to the managing agencies, local communities, recreationists, and the private sector (e.g., tourism industry) for those tasks listed below: · Inventory and map water recreation opportunities. · Integrate recreation into the agency planning process. · Compare recreation demand to the recreation supply of available opportunities. · Provide a visual map (GIS compatible) of proposed planning alternatives. · Evaluate the benefits and costs of proposed alternatives. · Identify and manage a tourism niche for communities and the private sector. · Plan and manage a regional system of water recreation opportunities. · Identify and protect important natural and cultural resources. · Increase public awareness of recreation choices and available opportunities. · Decide type and location of visitor management activities. · Prioritize, design, and locate facilities. · Develop visitor capacities. · Justify budget and personnel needs. · Legally justify planning and management decisions. · Provide interagency communication, consistency, collaboration, and coordination. · Conserve a diversity of water recreation opportunities. · Ensure high quality recreation experiences and benefits for current and future visitors and the local community. WROS is an inventory, planning, and management tool. Chapter 1: Introduction 23 Design Criteria Used in Developing WROS The Standard for WROS Decision Making A variety of important considerations were identified early in the development of WROS. Design criteria were developed to help ensure that WROS would be efficient, effective, and of value to water resource planners and managers. The design criteria included: · Interface with Reclamation’s Resource Management Planning process and other NEPA-compliant planning processes used by other agencies. · Interface with the ROS system used by the USFS and BLM. · Be consistent with the prevailing expert opinion in the recreation profession. · Be relatively easy and inexpensive to use. · Be able to integrate with other planning tools, data bases, and processes. · Be appealing and understandable to recreating publics, communities, stakeholders, and private sector businesses. · Provide objective criteria for reasoned and deliberate decision making. · Accommodate flexibility and adaptation to special field situations. · Use best available social and biophysical science. · Accommodate change and adaptation through monitoring, research, and experience. · Be reasonably applicable to a variety of water resource settings. · Help ensure a high quality, safe, and enjoyable recreation experience. WROS is a framework that is flexible and adaptable to specific field situations. WROS does not replace management discretion and decision making, but rather, is a tool to help make decisions that are principled, reasoned, systematic, logical, tractable, and defensible. While local planners and managers are empowered to adapt WROS to the local situation, it is important that these decisions be carefully considered so as to maintain the integrity of WROS. This section provides guidance on Parks and beaches provide for multiple recreation uses. 26 Chapter 1: Introduction Figure 9. Three Levels of WROS Analysis Level 1 Coarse Filter General administrative inventory; visitor brochures; routine visitor, resource, and maintenance decisions, etc. Slight or low level of detail, intensity, effort, data, time, and precision. Level 1 can be done by a knowledgeable recreation staff person with available information, no original data collection or field inventory, and in a relatively short period of _time (e.g., 1 2 days of effort). Level 2 Moderate Filter Regional inventories and plans; environmental assessments; assessments of impacts from proposed small to moderate scale changes in facilities, land and water uses, visitor regulations, etc. Ordinary or moderate level of detail, intensity, effort, data, time, and precision. Level 2 should involve a small interdisciplinary team of recreation experts, a field inventory using the WROS inventory protocol, development of a current and comprehensive water resource base map, and possibly some original data collection. Level 2 can be completed with a modest effort _(e.g., 2 4 days of effort after selecting and training the team). Level 3 Fine Filter NEPA-compliant planning, resource management plans, general management plans, assessments of impacts from proposed moderate to large scale changes in facilities, resource use, visitor management, etc. Extraordinary or high level of detail, intensity, effort, data, time, and precision. Level 3 should involve a larger interdisciplinary team of recreation experts and several long-time visitors to the area, an intensive field inventory using the WROS inventory protocol, a detailed and current base map, visitor survey information, and possibly some resource data collection. Level 3 requires _substantial effort (e.g., 10 20 days of effort after selecting and training the team and excluding the visitor survey task). Sliding scale of WROS analysis Type of use for the WROS analysis Level of detail and precision Description of the WROS inventory Chapter 1: Introduction 27 Figure 10. The Scale of Degree Used in WROS 80-100% 50-80% 20-50% 10-20% 3-10% 0-3% Dominant Very prevalent Prevalent Occasional Minor Very minor Extensive Widespread Common Infrequent Little Very little A great deal Very obvious Apparent Periodic Seldom Rare Extremely Very Moderately Somewhat Slightly Not at all Urban Suburban RuralNatural Rural Developed Semi Primitive Primitive Scale of degree. The scale of degree in WROS is analogous to a yardstick used to measure inches and feet. For the yardstick to be effective, society needed to agree on, or standardize, the measurement of an inch and foot. In much the same way, the scale of degree in WROS is intended to help standardize the measurement of attributes for each WROS class. The scale of degree contains several qualitative terms and a quantitative expression. The terms listed under the six WROS classes in figure 10 are synonymous and are used interchangeably in the WROS inventory protocol (chapter 2) and in the management guidelines (chapter 4). In the WROS inventory stage, a series of inventory sites on the water body are selected and inventoried by a team of experts. At each inventory site, the expert team is asked to circle the degree, extent, or magnitude that the following attributes are present at this site. In response, each team member circles the set of terms along the scale of degree in figure 8 that best represents his or her view. For example, structures and human activity in an urban setting are characterized as dominant, extensive, a great deal, extreme, or apparent in 80 percent or more of the setting. Conversely, evidence of other recreation use in a primitive setting is characterized as very minor, rare, very little, or apparent on 3 percent or less of the area. Use of the scale of degree in the WROS Inventory Protocol is described in Chapter 2: WROS Inventory. In Chapter 4: WROS Management, the scale of degree is used in the guidelines to indicate the degree, extent, or magnitude that an attribute is appropriate in each WROS class. For example, the presence of full service bath facilities in an urban setting is characterized as being extensive, and conversely, not at all appropriate in a primitive setting. Note that there are a few attributes in chapter 4 and in the WROS Inventory Protocol (e.g., degree of solitude, degree of natural ambiance) where the scale has been reversed to ensure logic and integrity of the recreation opportunity. 28 Chapter 1: Introduction Accessible facilities are important. Popular recreation sites often require intensive management. Different types of fishing activities require different site attributes. · Visitor use statistics, trends, studies, road counts, surveys. · Regional map showing the location of other water recreation opportunities. · Reports, studies, trends, or other materials from county, State, or Federal partners. · List of important contacts (e.g., local, State, and Federal agencies; local communities; tourism offices; special interest groups; universities). While agencies have jurisdictional boundaries, the visiting public often enjoys multiple local, State, and Federal areas on a single visit. The public’s “visitation range” is often larger than a single agency’s jurisdiction, and includes adjacent lands and waters where visitors spend time traveling, recreating, or viewing. Thus, the question is how large should the study area be to make good management decisions on the lands and waters within a manager’s jurisdiction? A reasonable rule of thumb is to define the study area for the WROS inventory to include those lands and waters that may affect the quality of the water recreation opportunity. It might also be helpful to think from the perspective of the visitor: (1) What is the visitation range (i.e., analogous to a wildlife’s home range) or area that most visitors also visit when they are visiting the general area? (2) Where do visitors go and what do they do beyond the primary water resource in question? (3) Are there land uses adjacent to or within the study area that may affect the recreation opportunities? Detailed WROS inventory, planning, and management will only occur within the study area and within the jurisdiction of the managing agency. Yet, it may be necessary and beneficial to consider, particularly during WROS inventory and planning stages, the larger area of influence beyond the study area in order to help decide how to manage the recreation opportunities in the study area. In theory, one could conduct a WROS inventory on any size area (e.g., 50 square miles, 10,000 acres, 1 acre). The real question is what scale is practical, usable, and compatible with other resource inventories and accommodates a GIS interface. A reasonable scale for WROS inventory mapping is a minimum of 160 acres, or 1/4 of a section; that is, a WROS zone should be at least 160 acres to be mapped as a separate and distinct WROS class. Furthermore, maps of a 1:50,000 scale have been found to be reasonable, although a 1:24,000 scale might be better for small study areas. Define the geographic location or study area for the WROS inventory. Decide the level of resolution or appropriate scale of the base map. Chapter 2: WROS Inventory 31 A reasonable rule of thumb is that the minimum size or acreage for an area should be practical and useful for planning and management purposes and should be compatible with other inventory and mapping efforts. Water recreation opportunities and management direction change during the year because of weather, water uses, type and pattern of visitation, facility closures, water operations, personnel staffing, and many other factors. Thus, an important decision relates to the period of time to which WROS is being applied. It is reasonable to develop WROS inventory maps for the major recreation seasons, for the high and low water periods, or for periods when major changes are anticipated. A reasonable rule of thumb is that the time period will be defined by the important public concerns and management issues that are driving the analysis or planning process. The WROS inventory can be used either as input to a comprehensive resource management planning process or directly by managers to implement recreation management direction for the area. If the inventory will be used in a resource management planning process, it is important to anticipate and to be consistent with other criteria being used in the process (e.g., scale, planning horizon, public process, timetable, and level of analysis). The WROS inventory will describe the type and location of current water recreation opportunities and identify inconsistencies that may be affecting the quality of the current opportunities. Thus, if a planning process is not to be implemented in the near future, WROS can directly and immediately help manage the current recreation situation by dealing with those inconsistencies of consequence or by changing the current situation to another desired water recreation opportunity. The effective WROS area consists of those acres that are available and suitable for recreation purposes. Identifying and demarking on the base map all the areas that are not suitable for recreational purposes is important early in the inventory process. For example, unsuitable lands and waters could include security areas, water storage and power facilities, private inholdings, municipal or industrial operations, commercial shipping or barge lanes, ecologically sensitive areas, public hazard areas, cultural and historic sites, wildlife nesting areas, shallows and wetlands, or locations that are undesirable because of smells, sounds, and views. Decide the time period for applying WROS. Decide if WROS will be used in a resource management planning process. Determine the effective WROS area under consideration. 32 Chapter 2: WROS Inventory The effective WROS area consists of those acres that are available and suitable for recreation purposes. The effective supply of recreation opportunities can change weekly (e.g., no commercial transport on weekends) or seasonally because of fish and wildlife migration, hunting seasons, facility closure, reservoir drawdown, weather, and many other factors. The application of WROS will be affected by other considerations in defining the scope. Examples include: What are the primary uses and commitments of the water resources? What are the major forces or interests driving the application of WROS at this time? What is the level of public concern or controversy? What is the timetable and schedule of major activities? How many person days and dollars are allocated to the effort? Who constitutes the WROS team and what is the responsibility of each member? Who is the decision maker or the responsible official? What criteria will be used to arrive at a decision? What is the planning horizon or the number of years into the future that should be targeted? What will be the nature of external collaboration with the visitors, community, private sector, and other stakeholders? What external experts will be used, if any, and what will be their role? What changes to the current water operations, recreation opportunities, adjacent land use, or other considerations are not reasonable or are beyond the scope of the planning effort? Figure 11 is an example of a profile tool to assemble and record important recreation and water resource information useful in WROS. Identify any other important planning considerations that may affect WROS. Develop a basic profile of the planning area. Water operation facilities and security areas often remove an area from recreation use. Adjacent land uses need to be identified early in WROS. Wildlife nesting areas and migration patterns should be considered in WROS. Chapter 2: WROS Inventory 33 The WROS Inventory Attributes and Protocol The WROS inventory produces a map delineating the type and location of the current WROS classes; that is, a map that shows the current supply of available recreation opportunities. This section explains the WROS inventory protocol and the attributes used in the inventory and details the steps necessary for a WROS inventory of the current situation. As previously described in chapter 1, a recreation setting consists of physical, social, and managerial attributes that affect the quality or nature of the recreation experience (See figure 4.) Since it is not practical to inventory every possible setting attribute, WROS uses 15 attributes as the basis for delineating the type and location of the existing WROS classes. Five physical, six social, and four management attributes have been chosen because each can have a major influence on the type of recreation opportunity that is currently available. With due deliberation and justification, there also may be situations where managers add or delete attributes to the inventory protocol. The inventory attributes are packaged into the WROS Inventory Protocol (Protocol). The Protocol is an inventory “booklet” completed by each trained person at each inventory site. Figure 12 depicts the front page of the Protocol. Inside the Protocol is a page for each of the physical, social, and managerial attributes. Figures 13, 14, and 15 show the three pages in the Protocol, the 15 inventory attributes used to delineate the WROS class, and the scale of degree previously discussed in chapter 1. (Note that the scale of degree presented in figure 10 is reversed for two attributes and is replaced with a mileage measurement for the distance attribute.) Figure 12. The WROS Inventory Protocol 36 Chapter 2: WROS Inventory Name of Water Resource: Date: Your Name and Title: Inventory Site No: Local Name: GPS Coordinates: Planning Period Under Consideration: Figure 13. WROS Physical Inventory Physical attributes are features that are relatively permanent or fixed within the landscape and are not likely to change soon. Field Notes: Circle the degree, extent, or magnitude that the following attributes are present at this site. Degree of Development Degree that dams, major bridges, marinas, parks, resorts, highways, or other municipal, industrial, or commercial structures are present. Sense of Closeness to a Community Degree that visitors sense that they are close to the sights, sounds, and smells typical of a community. Degree of Natural Resource Modification Degree that the visitors are aware that the natural resources have been altered by human activity, technology, or development. Distance from Development on or Adjacent to the Water Resource Mileage from dams, major bridges, marinas, resorts, or other municipal, industrial, commercial, or residential areas. Degree that Natural Ambiance Dominates the Area. Degree that there is a sense of tranquility and opportunity to see, hear, and smell nature. Extensive, dominant 80-100% Extensive, dominant 80-100% Extensive, dominant 80-100% Less than 0.5 mile Very minor, very little, or rare 0-3% Very prevalent or widespread 50-80% Very prevalent or widespread 50-80% Very prevalent or widespread 50-80% 0.5-2 Miles 2-5 Miles 5-8 Miles 8-10 Miles Minor, little, or seldom 3-10% Prevalent, common, or apparent 20-50% Prevalent, common, or apparent 20-50% Prevalent, common, or apparent 20-50% Occasional, infrequent, or periodic 10-20% Occasional, infrequent, or periodic 10-20% Occasional, infrequent, or periodic 10-20% Occasional, infrequent, or periodic 10-20% Prevalent, common, or apparent 20-50% Minor, little, or seldom 3-10% Minor, little, or seldom 3-10% Minor, little, or seldom 3-10% Very prevalent or widespread 50-80% Very minor, very little, or rare 0-3% Very minor, very little, or rare 0-3% Very minor, very little, or rare 0-3% More than 10 miles Extensive, dominant 80-100% Circle the number that best represents your overall judgment of the area. Scores with one decimal point such as 5.5 are acceptable. 1 2 3 4 5 6 7 8 9 10 11 Urban Suburban Rural Rural Semi Primitive Developed Natural Primitive Chapter 2: WROS Inventory 37 Figure 14. WROS Social Inventory Social attributes are features associated with visitor’s activities, behaviors, and perceptions of the area. Field Notes: Circle the degree, extent, or magnitude that the following attributes are present at this site. Degree of Visitor Presence Degree that the sights, sounds, and smells of other visitors, their equipment, their impacts, or litter are present. Degree of Visitor Concentration Degree that visitors congregate on the shore or water in the area (e.g., coves, launches, swim areas, good fishing spots, camp areas). Degree of Recreation Diversity Degree that there is a mixture of recreation activities being participated in or equipment being used. Degree of Visitor Comforts Degree that visitors know that conveniences, comforts, safety, and security are nearby. Degree of Solitude and Remoteness Degree that visitors view themselves as being alone and far away from civilization in a wild and remote place. Degree of Non-Recreational Use, if Any Degree that the sights, sounds, and smells of non-recreational use and users are present (i.e., activities associated with commerce, work places, industry, roads, airplanes, agriculture, or communications). Circle the number that best represents your overall judgment of the area. Scores with one decimal point such as 5.5 are acceptable. 1 2 3 4 5 6 7 8 9 10 11 Urban Suburban Rural Rural Semi Primitive Developed Natural Primitive 38 Chapter 2: WROS Inventory Extensive, dominant 80-100% Extensive, dominant 80-100% Extensive, dominant 80-100% Extensive, dominant 80-100% Extensive, dominant 80-100% Very prevalent or widespread 50-80% Very prevalent or widespread 50-80% Very prevalent or widespread 50-80% Very prevalent or widespread 50-80% Very prevalent or widespread 50-80% Prevalent, common, or apparent 20-50% Prevalent, common, or apparent 20-50% Prevalent, common, or apparent 20-50% Prevalent, common, or apparent 20-50% Prevalent, common, or apparent 20-50% Occasional, infrequent, or periodic 10-20% Occasional, infrequent, or periodic 10-20% Occasional, infrequent, or periodic 10-20% Occasional, infrequent, or periodic 10-20% Occasional, infrequent, or periodic 10-20% Minor, little, or seldom 3-10% Minor, little, or seldom 3-10% Minor, little, or seldom 3-10% Minor, little, or seldom 3-10% Minor, little, or seldom 3-10% Very minor, very little, or rare 0-3% Very minor, very little, or rare 0-3% Very minor, very little, or rare 0-3% Very minor, very little, or rare 0-3% Very minor, very little, or rare 0-3% Very minor, very little, or rare 0-3% Minor, little, or seldom 3-10% Occasional, infrequent, or periodic 10-20% Prevalent, common, or apparent 20-50% Very prevalent or widespread 50-80% Extensive, dominant 80-100% Chapter 2: WROS Inventory 41 4. The field inventory typically begins in the vicinity of the most highly developed portion of the water resource (e.g., marina, subdivision, industrial activity, or developed park complex). 5. At each inventory site, the boat should be stopped, the engine turned off, and the team should take a few minutes to “experience” the setting. After a few minutes, the team members familiar with the location have a chance to present their views of the type and nature of the recreation use for the planning period in question (e.g., describe how, when, and why recreationists use the area, and the type and amount of management, and who the recreationists are). Team members can ask questions or offer information that might be important. It is also important for the team to have a common understanding of the area under consideration at the inventory site. For example, the inventory site might include the water and land resources within a 2- mile radius of the boat or the area within the cove or the area within the viewshed. It is also important to remind the team of the period that is under consideration (e.g., weekend, May, summer). 6. Each team member is provided a copy of the WROS Inventory Protocol. The attributes listed on the left side of the Protocol are considered the important characteristics of the setting. Each rater is asked to circle the degree, extent, or magnitude that the following attributes are present at this site. To the right of each attribute is the scale of degree previously discussed in chapter 1 and displayed in figure 10. There will be instances when a listed attribute is not considered relevant or when some other attribute should be added for consideration. As described in chapter 1, WROS is flexible and operates on the standards of the rule of reasonableness and sound professional judgment. 7. Working individually, each rater completes the WROS physical inventory page in the Protocol (see figure 13) by considering each attribute in the left column and then circling or checking the cell that best describes the attribute’s presence at that site. Note that, on the physical inventory, the distance from development attribute is measured in miles, and the degree of natural ambiance reverses the scale of degree from very minor on the left to dominant on the right. Long time lake users can help in the inventory. Each rater evaluates the recreation setting. After each attribute is checked or circled on the scale of degree, each rater is asked at the bottom of the page to circle the number which best represents your overall judgment of the area. Each person individually circles a number, ranging from 1 to 11, that best represents his or her overall judgment of the WROS class at the inventory site. The odd numbers represent the six WROS classes, while the even numbers represent the mid-point between two WROS classes. This decision should be based on the sound professional judgment of the raters, preponderance of the evidence, and how the attributes were circled in the cells above. There is no formula or mathematical calculation to arrive at this overall judgment for the area. 8. After all raters complete their physical inventory, a “straw” vote is taken and each person states the overall number at the bottom. After all raters have a chance to express what factors influenced their scores, a second straw vote is taken and duly recorded on a master form. Typically, the results of the second vote (i.e., the overall numbers expressed after some discussion) will converge and there will be team consensus. Recording the average score to one decimal point is acceptable. In cases where there is significant divergence, more discussion is advised until team consensus is approached. In some cases, it may be helpful to dismiss the two extreme outliers or revisit the inventory site after the other sites on the water resource have been inventoried or make a final decision after more information is made available back in the office. 9. It is important for the team leader to keep asking the team which of the six WROS recreation experiences best describes the type of experience a visitor is being provided at this location? It is important during the inventory process, particularly for those inexperienced with WROS, to periodically reread the descriptions of the recreation experiences for each WROS class. (See figures 6 and 7 in chapter 1.) 10. The process used for completing the physical inventory is repeated for the social and managerial inventory (see figures 14 and 15) contained within the protocol. 42 Chapter 2: WROS Inventory Local groups know a great deal about the lakes recreation use. They are experts to be included in the WROS inventory. 11. The results of these efforts are three numbers for each inventory site; that is, a number from 1 to 11 for the physical setting, social setting, and managerial setting. These numbers are recorded on a master map that is maintained during the field inventory, and the team forms are collected and filed for the administrative record. The first site inventoried may take 30 to 45 minutes with inexperienced people. The time at each subsequent inventory site will shorten to perhaps 15 minutes after a half-dozen trials by the team. The first three or four inventory sites should be viewed as practice tests or trials. Thus, it is advisable to return to these sites after the entire water resource has been surveyed to see if adjustments would be appropriate. 12. After the initial site inventory is complete, the team travels by boat to the next inventory site. Two strategies have worked well. One, the next inventory site can be chosen when there is an apparent change in the physical, social, or management attributes of the setting or when the team has traveled a significant distance (e.g., several miles) from the previous site. Two, the next inventory site might be the location with the least development (compared to the first inventory site) and in the most remote part of the water resource. This allows the team to get a sense for the WROS diversity in the study area, although the logistics of travel and time may not be reasonable. 13. If there are very popular shoreline locations (e.g., campgrounds, swimming beaches) or very popular islands, it may be helpful to do a site inventory from land. Also, on a very large water resource (e.g., 100-mile-long study area), it may be decided to do initial WROS inventories every 5 or 10 miles, while recognizing that a more detailed or finer-level inventory might be necessary for parts of the body of the water resource on a follow-up trip. 14. The final results of the field inventory include (1) a working map of the study area that identifies the inventory sites, (2) the team’s overall ratings from 1 to 11 for the physical, social, and managerial inventories, and (3) a file of the completed protocols for the administrative record. Chapter 2: WROS Inventory 43 Above, it is important to inventory on the water. Below, WROS engages stakeholders to ensure better decisions. The following four maps illustrate how the overall WROS classes can be depicted and show the type and location of water recreation opportunities currently available. The New Melones map is the most basic and uses the initials of the six WROS classes, while the Lake Shasta, Millerton Lake, and San Luis maps show a finer level of detail and how the six WROS classes can be subdivided for purposes of the WROS inventory. SP RN RD RN RN 46 Chapter 2: WROS Inventory WROS INVENTORY SCALE 1 2 3 4 5 6 7 8 9 10 11 U S RD RN SP P Current WROS Inventory and Management Alternative #1 for the Millerton Lake State Recreation Area S3S3 RD5 RD5 RN7 SP8 SP8 RN7 SP9 WROS INVENTORY SCALE 1 2 3 4 5 6 7 8 9 10 11 U S RD RN SP P Current WROS Inventory for the San Luis Reservoir State Recreation Area S3 RD5RD6 RD4 RD4 RN6 RN7 RN6 Wil dlif e A rea 48 Chapter 2: WROS Inventory Inconsistency Mitigation An inconsistency is a situation where the physical, social, and managerial ratings are different (e.g., sites 2, 3, and 4 of figure 16); that is, where the physical, social, and managerial attributes are not aligned or are not consistent. For example, the physical and social attributes might depict a rural developed WROS class, yet the lack of management signage, facilities, and patrols might be more consistent with a primitive WROS class. Another example might be weekends in June when the social attributes depict a suburban WROS class (e.g., large numbers of diverse recreationists), while the physical and managerial attributes depict a rural natural WROS class. A final WROS INVENTORY SCALE 1 2 3 4 5 6 7 8 9 10 11 U S RD RN SP P WROS Inventory Map of the Current Recreation Situation on Lake Shasta, California Chapter 3: WROS Planning Above, wildlife resources are often significant public issues and attractions on or near water. Below, accessibility is often a significant public issue. WROS Planning WROS is not a special or unique planning process. WROS is a tool that helps bring water recreation considerations into a comprehensive and integrated planning process. Metaphorically, WROS is like a tree branch that connects to the main stem or trunk of the tree; that is, WROS is one of many inventory tools that feed into an agency planning process. Reclamation, along with all local, State, and Federal land and water agencies, has regulations and procedures describing in detail each step of its planning process. This chapter discusses how WROS integrates with and supplements the key steps of a public recreation or resource planning process. · Identify significant recreation-related public issues, management concerns, opportunities, and constraints. · Identify recreation stakeholders and develop a plan for collaboration. · Assess quality and quantity of best available recreation-related science and monitoring information. · Identify those areas or times unsuitable for recreation use. · Compile important local, State, and Federal laws, regulations, policies, resource commitments, concession contracts, maps, and plans. · Establish operating principles (e.g., recreation management, ecosystem management, NEPA, and visitor capacity decision making). · Define planning area, time horizon, available resources, procedural steps, and responsibilities. · Develop a working base map, determine an appropriate scale of analysis, assess GIS capabilities, and secure current air photos. · Select the decision criteria to be used to evaluate alternatives and assess recreational tradeoffs. · Identify other administrative units or projects (comparables or analogs) that have similar recreation situations, uses, and patterns. Scoping Planning Criteria 52 Chapter 3: WROS Planning Inventorying · Integrate inventory maps depicting the overall current WROS classifications for the study area and all associated information in the development of WROS inventory. (See Chapter 2: WROS Inventory in this guidebook.) · Develop WROS GIS overlays, if possible, that are compatible with other GIS overlays (e.g., vegetation, recreation facilities, roads, wildlife habitat, topography, private land, and heritage resources). · Identify current and future recreation demand. Measuring the demand for any public good or service is both an art and a science. It involves identifying current use and users in the study area, their use locations, type of activity, duration, travel patterns, origins, participation percentages, and quality of recreation opportunities. It may also involve asking (i.e., using social surveys) what the public in the local or regional area would like to have available that is not currently available. Figures18 and 19 depict several dimensions of measuring recreation demand: who, what, and how. Chapter 3: WROS Planning 53 Planning Criteria Inventorying Formulating Alternatives Evaluating Alternatives Selecting Alternatives Implementing/ Monitoring Evaluating/ Adapting WROS Scoping Agency Planning Process 56 Chapter 3: WROS Planning Folsom (11,400/75) 0 20 70 10 0 0 Pardee (2,257/37) 0 0 30 60 10 0 Comanche (7,700/53) 0 0 75 25 0 0 New Hogan (4,400/50) 0 0 60 40 0 0 Tulloch (1,260/31) 0 80 20 0 0 0 Don Pedro (12,960/160) 0 0 50 50 0 0 Lake McClure (7,400/80) 0 0 70 30 0 0 Millerton (4,900/51) 0 10 60 20 10 0 Figure 20. A Hypothetical Comparison of Reservoirs Based on the Percent of Water Surface Acres by WROS Class Regional Lakes (surface acres/ shoreline miles) Semi Primitive (%) Primitive (%) Rural Natural (%) Rural Developed (%) Suburban (%) Urban (%) Gross Averages 0 10 57 32 2 0 · Identify current and anticipated non-recreational use and users in the study area, location, duration, type of effect, and anticipated changes. County records on taxes, building permits, development plans, land use zoning, commerce trends, and other local and State reports can be helpful. · Inventory all human-built structures (recreation and nonrecreation), infrastructure, services, programs, personnel, budgets, partners, and expected operational changes. · Assess the regional recreation supply of water recreation opportunities including those provided by other agencies and the private sector within the “visitation” region. Figure 20 illustrates how the regional supply of opportunities can be depicted. · Compare current resource and social conditions with the desired quality standards and map locations of known or likely impairment. Formulating Alternatives Evaluating Alternatives · The WROS map generated in the WROS inventory depicts alternative 1, or the current recreation management situation, often referred to as the “no action’’ or “no change” alternative. · For each additional alternative considered in the planning process, a revised WROS map is generated to depict change from the current situation. · A matrix is developed to understand key differences and to ensure consideration of a reasonable range of alternatives. Figures 21, 22, and 23 provide examples of how WROS can be used to help create a reasonable range of alternatives and also how to display and evaluate alternatives. · Figures 21, 22, and 23 are examples of how WROS can be used to help evaluate the proposed alternatives. Furthermore, the decision criteria identified in the previous planning step (i.e., development of planning criteria) are used to evaluate the positive and negative consequences or impacts of each alternative. In this instance, the planning criteria can also be considered “key indicators” to assess the degree of change from one alternative to other alternatives, in particular, to compare the no action (existing condition) alternative to the other alternatives. · Each alternative will have different strengths and weaknesses, and it is likely that one or two of the alternatives among the range provided will be preferred. It is beneficial to examine the preferred alternatives more closely in order to mitigate their most significant negative consequences or impacts and to integrate the strengths from other alternatives. This facet of evaluating the alternatives has been called mitigation assessment and enhancement analysis. · This step involves the implementation of the selected or preferred alternative, which includes implementing the WROS strategy proposed in the alternative. Inconsistency mitigation and the matrix in figure 17 Implementing and Monitoring Chapter 3: WROS Planning 57 Figure 21. An Example Evaluation Matrix for Comparing Management Alternatives Using WROS Evaluation Criteria 1. Recreation management prescription for each WROS class (e.g., objectives and quality standards) 2. Number and percent of water and land acres by WROS class: a. Spring b. Summer c. Fall d. Winter 3. Percent of water surface acres by WROS class for other water bodies in the region 4. Major management actions and programs 5. Boat capacity for selected locations 6. Estimated budget and personnel needs 7. Economic benefits: a. Projected visitor expenditures b. Public valuation Alternative #1 U S RD RN SP P Alternative #2 U S RD RN SP P Figure 22. A Bar Graph Comparison of Four Alternatives Based on the Percent of Water Surface Acres for each WROS Class 0% 5% 10% 15% 20% 25% 30% 35% 40% A lte r. #1 A lte r. #2 A lte r. #3 A lte r. #4 Urban Suburban Rural Developed Rural Natural Semi Primitive Primitive 58 Chapter 3: WROS Planning Chapter 4: WROS Management Above, trails are important to access water. Center, monitoring recreation use is critical. Bottom, this patrol boat and the law enforcement it provides is a very important management tool. WROS Management Recall from Chapter 1: Introduction, that recreation managers provide recreation opportunities. Managers provide opportunities for visitors to participate in a type of recreation activity in a specific setting defined by its important physical, social, and management attributes to realize a particular type of experience and subsequent benefits. (See figure 1 in chapter 1.) This section contains recommended management guidelines for many setting attributes that, when considered together, compose and define the WROS class and its recreation opportunity. For example, if a manager is managing a section of a lake or river for rural developed recreation, the guidelines in the rural developed column should be duly considered. Management guidelines are intended to provide guidance, yet be flexible and adaptable to special local situations. They serve as triggers or trip-wires to signal that further assessment or action may be necessary (e.g., more monitoring, patrols, or discussion). The fact that a guideline or standard is not being met does not, in and of itself, obligate or direct management action, but does signal that the appropriate level of due deliberation and diligence be taken. Guidelines also are critical for a quality monitoring program because they provide a reference point, baseline, or anchor by which managers can compare current actual conditions to the desired conditions reflected by the guidelines. Deviation from the recommended guidelines will occur occasionally, yet a decision to deviate should be made only after careful and due deliberation of the facts and circumstances. It is important to thoughtfully address the basic questions: What is the justification for any deviation and will the deviation violate the integrity of the WROS system? Sound professional judgment and the rule of reasonableness (see chapter 1) should be the standards for decision making. It is also important to include a written detailed explanation in the administrative record for future administrative or judicial inquiries. This section provides guidelines for the physical, social, and management attributes across each WROS class. This section will continue to evolve and improve over time with management experience and greater input from professionals. For each specific attribute in this section, a qualitative or quantitative descriptor conveys the appropriateness or recommended degree or extent that Management Guidelines 62 Chapter 4: WROS Management Figure 10. (Repeated from Chapter 1) The Scale of Degree used in WROS 80-100% 50-80% 20-50% 10-20% 3-10% 0-3% Dominant Very prevalent Prevalent Occasional Minor Very minor Extensive Widespread Common Infrequent Little Very little A great deal Very obvious Apparent Periodic Seldom Rare Extremely Very Moderately Somewhat Slightly Not at all Urban Suburban RuralNatural Rural Developed Semi Primitive Primitive each attribute may be present for each WROS class. Figure 10 is repeated below for clarification of the descriptors used in following guidelines. Physical Setting Guidelines Physical Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive Degree of Development Degree that dams, major bridges, marinas, parks, resorts, highways, or other municipal, industrial, or commercial structures are present Sense of Closeness to a Community Degree that visitors sense that they are close to the sights, sounds, and smells typical of a community Extensive or dominant Extensive or dominant Very prevalent or widespread Very prevalent or widespread Prevalent, common, or apparent Prevalent, common, or apparent Occasional, infrequent, or periodic Occasional, infrequent, or periodic Minor, little, or seldom Minor, little, or seldom Very minor, very little, or rare Very minor, very little, or rare Chapter 4: WROS Management 63 Social Setting Guidelines - Continued Social Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive Degree of Solitude and Remoteness Degree that visitors view themselves as being alone and far away from civilization in a wild and remote place Degree of Non- Recreational Use, if Any Degree that the sights, sounds, and smells of non- recreational use and users are present (i.e., activities associated with commerce, work places, industry, roads, airplanes, agriculture, and communications) Reasonable standard for the percent of “extremely” or “very” satisfied visitors (see scale in Figure 10) Reasonable standard for the percent of “extremely” dissatisfied visitors (see scale in Figure 10) Reasonable standard for the percent of visitors who would like to visit the area again Extensive or dominant Very little 80 % 10 % 70 % Very prevalent or widespread Little 80 % 10 % 70 % Prevalent, common, or apparent Occasional 80 % 10 % 70 % Occasional, infrequent, or periodic Prevalent 80 % 10 % 70 % Minor, little, or seldom Very prevalent 80 % 10 % 70 % Very minor, very little, or rare Dominate or extensive 80 % 10 % 70 % 66 Chapter 4: WROS Management Social Setting Guidelines - Continued Social Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive Reasonable standard for the percent of visitors who would tell others that this site is a good place to visit Reasonable number of audio boat encounters per day Reasonable number of visual boat encounters per day Reasonable standard for percent of boating accidents per number of boat launches Reasonable standard for the percent of emergency medical responses per number of recreation groups Reasonable standard for the percent of verbal or physical conflicts per number of boat launches Reasonable standard for the percent of noise disturbances per number of recreation groups 80 % NA NA .01% .01% .01% 10% 80 % NA NA .01% .01% .01% 10% 80 % NA NA .01% .01% .01% 10% 80 % NA NA .005% .005% .005% 5% 80 % Less than 10 boats per day Less than 10 boats per day .005% .005% .005% 1% 80 % Less than 3 boats per day Less than 3 boats per day .001% .001% .001% 1% Chapter 4: WROS Management 67 Reasonable standard for the percent of visitors complaining about the same specific issue 10% Social Setting Guidelines - Continued Social Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive Reasonable standard for percent of visitors perceiving “extreme” or “very” high crowding (see scale in Figure 10) Reasonable standard for the percent of repeat visitors indicating the resource is “extremely” or “very” adversely effected (see scale in Figure 10) Reasonable standard for the percent of repeat visitors indicating the experience has been “extremely” or “very” adversely effected since a previous visit (see scale in Figure 10) 25% 20% 20% 20% 20% 20% 10% 20% 20% 20% 10% 10% 20% 20% 5% 5% 10% 20% 5% 5% 10% 20% 5% 68 Chapter 4: WROS Management Managerial Setting Guidelines - Continued Managerial Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive 3 per acre Minimum number of acres per group campsite in developed campground Campsites per acre in developed campground Picnic and day- use areas 5 5 to 10 per acre 5 5 to 10 per acre 5 3 to 5 per acre 10 NA NA NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA NA NA Minimum distance between dispersed shoreline campsites outside of developed campgrounds Minimum distance between floating campsites outside developed campgrounds NA NA NA NA 1/8 mile (220 yds) 1/8 mile (220 yds) ¼ mile (440 yds) ¼ mile (440 yds) and out of sight of other campsites ½ mile or out of sight and sound of other parties ½ mile and out of sight and sound of other campsites 1 mile or out of sight and sound of other parties 1 mile and out of sight and sound of other campsites Designated beach areas NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Paved boat ramps NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Unpaved boat ramps Appropriate and may be seldom NA NA Appropriate and may be common Appropriate and may be occasional NA Chapter 4: WROS Management 71 Overnight security lights NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Managerial Setting Guidelines - Continued Managerial Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive Marine sanitation devices on boats Modern restrooms (e.g., flush toilets, electricity) Appropriate and may be required Appropriate and may be required Appropriate and may be required Appropriate and may be required Appropriate and may be required Appropriate and may be required Rustic septic or vault toilets Designated campsites NA NA Appropriate and may be common Appropriate and may be common Appropriate and may be occasional Appropriate and may be occasional Appropriate and may be seldom Appropriate and may be seldom NA NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Floating camping platforms NA NA NA Appropriate and may be seldom Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional Appropriate and may be very little Interpretive signs Appropriate and may be seldom Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Directional signs Appropriate and may be seldom Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Regulatory signs Appropriate and may be seldom Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Visitor centers NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Paved trails NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Unpaved trails Appropriate and may be seldom NA NA Appropriate and may be common Appropriate and may be occasional Appropriate and may be very few 72 Chapter 4: WROS Management Water-based trails (e.g., boat, raft, scuba) Appropriate and may be seldom Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Managerial Setting Guidelines - Continued Managerial Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive Paved parking Unpaved parking Rustic or primitive campgrounds (e.g., no utilities) Appropriate and may be seldom NA NA Appropriate and may be common Appropriate and may be occasional NA Modern, full service RV and tent campgrounds Appropriate and may be seldom Appropriate and may be common Appropriate and may be occasional Large-group picnic and camping facilities Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Full service resorts Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common NA Full service marinas Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common NA Fuel services and storage NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA Golf courses NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common NA Sports fields Appropriate and may be common NAAppropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common NA NA Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional NA NA NA NA NA NA NANA NANA NA NAAppropriate and may be extensive Appropriate and may be very prevalent NANA Chapter 4: WROS Management 73 Minimum standard for monitoring visitor use (type, amount, location, duration) Daily in primary season, weekly in secondary Daily in primary season, weekly in secondary Daily in primary season, weekly in secondary Weekly in primary season, monthly in secondary Monthly in primary season, monthly in secondary Managerial Setting Guidelines - Continued Managerial Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive Minimum standard for monitoring visitor satisfaction/ perceptions/ preferences Every 3 years Every 3 years Every 3 years Limit on the number of visitors to protect the resources AppropriateAppropriate Appropriate Appropriate Appropriate Weekly in primary season, monthly in secondary Every 3 years Every 3 years Every 3 years Appropriate Limit on the number of visitors to protect quality of experience AppropriateAppropriate Appropriate Appropriate AppropriateAppropriate Limit on the number of visitors to protect special or important values AppropriateAppropriate Appropriate Appropriate AppropriateAppropriate Minimum standard for monitoring regional recreation demand and supply trends Every 6 years Every 6 years Every 6 yearsEvery 3 years Every 3 years Every 6 years 76 Chapter 4: WROS Management Limit on the number of visitors to protect health and human safety Managerial Setting Guidelines - Continued Managerial Attributes Urban Suburban Rural Natural Rural Developed Semi Primitive Primitive Management zoning (e.g., wakeless areas, no camping, security areas) Speed limits on boats AppropriateAppropriate Appropriate Appropriate AppropriateAppropriate Volunteers AppropriateAppropriate Appropriate Appropriate AppropriateAppropriate Cooperating associations AppropriateAppropriate Appropriate Appropriate AppropriateAppropriate AppropriateAppropriate Appropriate Appropriate AppropriateAppropriate Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional Appropriate and may be very little Appropriate and may be seldom Law enforcement presence Appropriate and may be seldom Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional Appropriate and may be very little Reservoir drawdown Appropriate and may be seldom Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional Appropriate and may be very little In-stream flow or reservoir elevation modification Appropriate and may be seldom Appropriate and may be extensive Appropriate and may be very prevalent Appropriate and may be common Appropriate and may be occasional Appropriate and may be very little Chapter 4: WROS Management 77 Boating Capacity In 2002, the Federal Interagency Task Force on Visitor Capacity on Public Lands and Waters delivered its final report to the Assistant Secretary for Fish and Wildlife and Parks, U.S. Department of the Interior. The Task Force was a 2-year effort to improve visitor capacity decision making affecting the lands and waters managed by the Bureau of Land Management, Bureau of Reclamation, Fish and Wildlife Service, Forest Service, and National Park Service. The report contains important background information on the concept of visitor capacity, a set of principles and decision criteria for decision making, seven tools to help make better and more defensible capacity decisions, and a directory of 100 locations in the United States that have numerical visitor capacities. Pages 10-22 of the report are particularly relevant to WROS and to this guidebook and are excerpted below. The full report can be obtained by contacting the National Recreation and Park Association in Ashburn, Virginia, or at The citation for the final report is: Haas, G. E. 2002. Visitor Capacity on Public Lands and Waters: Making Better Decisions. A Report of the Federal Interagency Task Force on Public Lands. Submitted to the Assistant Secretary for Fish and Wildlife and Parks, U.S. Department of the Interior, Washington, D.C. May 1, 2002. Published by the National Recreation and Park Association, Ashburn, Virginia. (ISBN 0-929581-66-0) The excerpted pages are followed by a set of recommended boating capacity coefficients for each WROS class and a decision tool to help ensure that important factors are duly considered. www.nrpa.org. 78 Chapter 4: WROS Management Excerpt Figure 2. Multiple Purpose of a Visitor Capacity Chapter 4: WROS Management 81 Supply measurement: a numeric capacity is a measurement of the supply of available recreation opportunities that will be accommodated in an area. Trigger for actions and resources: a capacity is a trigger point (i.e., a number or numeric range), whereby as current use approaches or exceeds the available supply, predetermined management responses can be activated or resources allocated. A numeric capacity is, in effect, a trigger or signal to justify and activate a suite of management responses. In some instances, use exceeding capacity may justify the expansion of the supply of appropriate recreation opportunities, and in other instances, it may justify the alteration or limitation of use or demand. Public and resource risk management: a numeric capacity is a reasonable and responsible risk management tool for situations where nature or human activity creates a high-risk environment for the public, or where human behavior might put the natural or cultural resources at risk. Private sector and community predictability: a numeric capacity provides clarity for business people to act and plan accordingly. By comparing current demand with available supply, private sector permittees and communities can anticipate their growth trend and potential, plan appropriate investment opportunities or divestiture steps, or take collaborative actions with land managers to mitigate negative consequences of demand approaching or exceeding capacity. Visitor trip planning: a numeric capacity, particularly when compared to real-time use levels, can be very helpful information to a discerning recreationist. For example, visitors might find it useful to be informed that a beach, backcountry lake area, or battlefield is at 30%, 90%, or 120% of visitor capacity. This information may result in a “voluntary redistribution” of people across place or time while still allowing freedom of choice, and help the quality of the experience. Administrative and historic record: complex decisions need to have supporting documentation detailing how and why decisions were made, and the process that was used. This record becomes the historic anchor from which to learn by experience and to compare yesterday with today's new information, data, and circumstances. It also is vital in responding to judicial inquiries for demonstrable evidence of the sound professional judgment. Regional recreation planning: numeric capacities are fundamental for regional recreation planning, recreation demand and supply analysis, multi-jurisdictional allocation decisions, coordinated visitor trip planning information systems, identification of recreation facility needs and investment opportunities, and identification of alternate or substitute opportunities reasonably nearby when access is limited at a particular site. Allocation decisions: a numeric capacity is the supply of available recreation opportunities and is fundamental for making allocation decisions involving where, when, or how many of a particular recreation opportunity can be accommodated (e.g., outfitter and guide permittees, birders, concessionaires, mountain bikes, personal water craft, youth groups). Similarly, a numeric capacity metric is fundamental for making multiple use allocations decisions (e.g., timber harvesting, research closures, reservoir drawdown). Limiting public use: a numeric capacity can serve as the measurement of allowable use or access that is permissible for a certain time or place. Triggering a Change in Supply or Demand. A capacity can trigger a change in either the demand for, or supply of, visitor opportunities. During a planning process in which a visitor capacity is established, it would also be helpful to establish one or more trigger points that serve as agreed- upon visitation levels for activating a management review. That is, as visitor use (demand) increases towards or is within the capacity range, it would activate a pre-determined trigger(s) to signal consideration of alternative management responses. Figure 3 graphically depicts how a capacity can trigger a change in the supply or demand in visitor opportunities. Figure 3a depicts a desire to decrease the amount of visitor opportunity through one or more management actions (i.e., reducing visitor demand of an area). Figure 3b depicts a desire to increase the amount of visitor opportunity (i.e., increasing the supply or capacity of an area) through one or more management actions, while Figure 3c depicts the desire to reduce the supply of visitor opportunity (i.e., reducing the supply or capacity of an area). There are many management actions, and combinations of actions, that can affect the demand or supply of visitor opportunities in an area. Examples would include a change in the design, location, or type of facilities and infrastructure; site hardening; facility or site rehabilitation and restoration; a change in management presence or regulations; an increase in visitor interpretation or stewardship programs such as Leave No Trace, Tread Lightly, and OHV Safety Rider; an increase in interagency marketing efforts to provide better information about the available recreational opportunities in the region; a reallocation or tradeoff of visitor opportunities on nearby lands to mitigate for the change of opportunities on other lands; an alternative transportation system; an inducement for visitors to distribute themselves willingly across time or place of visit; a reservation system; a differential fee program; a real-time intelligent visitation system conveying the current use/capacity level ratio (e.g., 20%, 80%, 120% of capacity); designating location or time of visit (e.g., assigned campsite, climbing route, boat launch time, limited hunting unit, Tuesday mountain biking and Thursday horseback riding); and time or area closures. 82 Chapter 4: WROS Management Unacceptable a. Reduced Demand Pe rs on s at on e tim e Am ou nt and typ e o f u se Capacity Range CB A D Acceptable Time Unacceptable b. Increased Supply Pe rs on s at on e tim e Am ou nt an d t yp e o f u se Capacity Range CB A D Acceptable Time Unacceptable c. Reduced Supply Pe rs on s at on e tim e Am ou nt an d t yp e o f u se Capacity Range CB A D Acceptable Time Excerpt Figure 3. Capacity Can Trigger The Task Force wishes to highlight two important cautions. First, public land managers manage an area to provide a particular type of opportunity to the public. Each recreation opportunity is an integrated package of activities, settings, experiences, and benefits (see Figure 4). Thus, to change the setting might also change the type of experience being provided the public. For example, changing the infrastructure and low-site density of a primitive campground to one with paved roads, flush toilets, and high-site density would change the type of recreation experience. Any change in supply or demand must therefore be consistent with the agency's mandate, mission, policy, and management objectives for the area in question. Second, the Task Force embraces adaptive management and recognizes that visitor capacities will change with new science, professional experience, monitoring information, technology, trends, opportunities, and circumstances. Adaptive management embraces the concept that the quality of sound professional judgment is enhanced over time with clear and specific decisions, followed by adequate monitoring, learning, and adaption. However, any changes must not be arbitrary. A reasonable rule of thumb is that a change in capacity requires a level of information, science, analysis, certainty, and deliberateness that is greater than what was used to make the previous capacity decision. Conserving Resources and Recreation Opportunities. The overarching function of a visitor capacity is to help conserve resources, as well as the opportunities and values they afford. For some, the goal of sustaining recreation opportunities is not viewed as being compatible with the goal of sustaining resources. However, the Task Force sees the relationship as synergistic. Public land managers provide recreation opportunities to the public. A recreation opportunity can be defined as the opportunity for a person to participate in a particular activity in a specific setting, in order to realize a preferred type of experience and subsequent benefits. Figure 4 depicts that a recreation opportunity is an integrated package of activities, settings, experiences, and benefits. Excerpt Figure 4. A Recreation Opportunity Recreation Activity + Setting = Experience Benefits many activities physical resource attributes managerial attributes social attributes many dimensions multiple senses individual community economic environmental -- agencies provide -- -- recreationists consume -- -- society gains -- Chapter 4: WROS Management 83