U.S.

Department of the Interior

Bureau of Land Management
Northwest District
Little Snake Field Office
455 Emerson St.
Craig, CO 81625

March 22, 2019

Business Plan for BLM

Little Snake Field Office Sarvis Cabin
 Business Plan for BLM
Little Snake Field Office Sarvis Cabin

Prepared by: _____________________________________________________

Outdoor Recreation Planner Date

Reviewed by: _____________________________________________________

NEPA/Planning Coordinator Date

Recommended by: _____________________________________________________

Associate Field Manager, Non-Renewable Resources Date

Approved by: _____________________________________________________

Field Manager, Little Snake Field Office Date
 Table of Contents
Dear Reader: ................................................................................................................................. 1
Introduction ................................................................................................................................... 1
Background and Authorities........................................................................................................ 1
A. Introduction to the Little Snake Field Office Recreation Fee Program: ............................................ 2
B. Description of the Sarvis Cabin Proposed Fee Site: .......................................................................... 5
C. Proposed Recreation Fee Rate Rationale: ........................................................................................ 6
D. Average Annual Operating Costs: ..................................................................................................... 7
E. Priorities for Future Expenditures: ................................................................................................... 9
F. Analysis of Recreation Fee Rates: ..................................................................................................... 9
G. Impacts of Alternative Fee Rates: ................................................................................................... 10
i. Fees Lower than Regional Average ............................................................................................. 10
ii. Fees Higher than Regional Average ............................................................................................ 11
H. Public Outreach:.............................................................................................................................. 11
I. Acronyms: ....................................................................................................................................... 11
Table of Figures

Figure 1 - LSFO Estimated Annual Visitation ................................................................................................. 4

Figure 2 - Proposed Sarvis Cabin fee comparable to nearby Cabin Rentals………………………………………………7

List of Tables

Table 1 – Estimated Cabin Operating Costs .................................................................................................. 9

Table 2 - Cabin Comparison ........................................................................................................................ 10

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Dear Reader:

I would like to present for your review and comment the Draft Business Plan for BLM Little
Snake Field Office Sarvis Cabin. The Sarvis Cabin and an associated 45 acres became a public
asset in 2014 when the property was acquired through the America’s Great Outdoors Initiate.
The BLM Little Snake Field Office proposes to open this facility to the public through a
recreational rental program, which is discussed here.

The Federal Land Policy and Management Act (FLPMA) of 1976 authorizes the BLM to
regulate the use of the public lands, and the Federal Lands Recreation Enhancement Act
(FLREA) of 2004 authorizes the BLM to collect recreational fees when sites and areas meet
specific criteria. Under these authorities the BLM Little Snake Field Office proposes to manage
the Sarvis Cabin in Routt County, Colorado.

The cabin has recently been renovated to meet building code requirements. Improvements made
to date include replacing doors and windows, new propane appliances, as well as structural and
loft improvements. Future improvements may include an outdoor vault toilet to replace the
existing rental porta-potty, American Disability Act (ADA) accessible patio, upgraded picnic
tables, and various other outdoor amenities. BLM anticipates maintenance and operating costs
will include vegetation clearing and mowing, cabin cleaning, propane refills, and expenses
associated with the outdoor restroom.

In order to help offset current and future upgrades and operating costs, the BLM proposes to set
daily rental fees as follows:

The objective of the Draft Business Plan for BLM Little Snake Field Office Savis Cabin is to
provide you with information about this public facility and give you the opportunity to submit
comments on its proposed management and fee structure. If you would like to provide public
input, you can mail written comments to our office at: BLM Little Snake Field Office, 455
Emerson St. Craig, Colorado 81625, Attn: Kathy McKinstry, Assistant Field Manager ; or you
may submit comments via email to [email protected] Please list “Sarvis Cabin Business Plan”
in the subject line and provide any comments by ________ 2019.

Thank you for your interest and input in managing your public lands.

Sincerely,

Bruce Sillitoe
Field Manager
BLM Little Snake Field Office

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 Business Plan for
BLM Little Snake Field Office
Sarvis Cabin
Recreation Use Permits
Little Snake Field Office

Introduction

This business plan has been prepared to meet the criteria defined in the “Federal Lands Recreation
Enhancement Act, 2004” (FLREA). The Bureau of Land Management (BLM) originally began
collecting fees for the recreational use of public lands under the authority of the Federal Land
Policy and Management Act (1976) – known as the “organic act”. FLREA recognizes the Bureau
of Land Management’s authority to collect Special Recreation Permit fees for the recreational use
of certain areas. FLREA specifically allows collected Special Recreation Permit fees, as well as
Special Area fees, to be retained locally and outlines how revenues are to be used for such things
as facility repair, maintenance, enhancement, interpretation, visitor information, visitor services,
visitor needs assessments, signs, habitat restoration, law enforcement related to public use and
recreation, and direct operating or capital costs associated with the Recreation and Visitor Services
program.

Accordingly, at the Little Snake Field Office (LSFO), the recreational use of the Sarvis Cabin will
be managed through the Recreation Use Permit Program and any funds collected at Sarvis Cabin
will be used for the benefit there: cabin rental revenues will be deposited in the LSFO recreation
fee account (1232). These deposits include revenues from nightly rentals, which this business plan
covers.

BLM Manual 2930, Recreation Permits and Fees, requires that each fee program have a business
plan which thoroughly discusses fees and explains how fees are consistent with the criteria set
forth in FLREA. Business plans are to assist management in determining the appropriateness and
level of fees, cost of administering fee programs, and provide a structured communication and
marketing plan. The primary purpose of the plans is to serve as public notification of the objectives
for use of recreation fee revenues and to provide the public an opportunity to comment on these
objectives.

The data used to analyze and prepare this business plan was obtained through internal BLM
tracking and accounting mechanisms such as the Recreation Management Information System
(RMIS), Collections and Billing System (CBS), Federal Business Management System (FBMS),
and other locally-generated recreation and visitor use tracking spreadsheets. For more detailed
information, please contact the BLM LSFO point of contact. Some of the additional data may be
subject to Privacy Act requirements.

Background and Authorities

This business plan has been prepared to meet the criteria defined in the “Federal Lands Recreation
Enhancement Act 2004” (P.L.108-447). The authorities and regulations for this business plan,
including recreation fee collection for cabins, are:

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  The Federal Land Policy and Management Act (FLPMA), 1976, [Public Law 94-579],
contains BLM’s general land use management authority over the public lands, and
establishes outdoor recreation as one of the principal uses of those lands. Section 302 (b)
of FLPMA directs the Secretary of the Interior to regulate through permits or other
instruments the use of the public lands. Section 303 of FLPMA contains BLM’s authority
to enforce the regulations and impose penalties.

 The Federal Lands Recreation Enhancement Act (FLREA), 2004, repealed applicable
portions of the Land and Water Conservation Fund Act and replaced BLM’s authority to
collect recreation fees in 2004. This current law authorizes BLM to collect recreation fees
at sites that meet certain requirements, allows BLM to keep the fee revenues at the local
offices where they were collected, and directs how BLM will manage and utilize these
revenues. FLREA also established the America the Beautiful program – The National
Parks and Federal Recreational Lands Pass program.

This business plan has also been prepared pursuant to all applicable BLM recreation fee program
policies and guidance, including: my condolence

 BLM Manual 2930, Recreation Permits and Fees, Rel. 2-295 dated November 17, 2014.
 BLM Handbook 2930-1, Recreation Permit Administration, Rel. 2-295 dated August 7,
2006.
 BLM Recreation Fee Proposals Step-by-Step Review & Approval Process, March 22, 2007
 BLM Instruction Memorandum 2007-028: Federal Lands Recreation Enhancement Act –
Final Public Participation Policy for Certain Recreation Fee Adjustments and Proposed
New Fee Sites/Areas

The BLM strives to manage recreation and visitor services to serve the diversity of public outdoor
recreation demands while helping the agency maintain healthy and sustainable resource conditions
so the visitors desired recreation opportunities and experiences remain available. The BLM’s goals
for delivering recreation benefits from BLM-administered lands to the American people and their
communities are:

 Improve access to appropriate recreation opportunities;

 Ensure a quality experience and enjoyment of natural and cultural resources; and
 Provide for and receive fair value in recreation.

This business plan will assist the LSFO in meeting these visitor service goals. This plan is specific
only to the Sarvis Cabin, located on public lands in Routt County, Colorado.

A. Introduction to the Little Snake Field Office Recreation Fee Program:

Administrative Unit

The BLM LSFO falls under the Northwest District (NWD) and encompasses 1.3 million acres of
public lands within Moffat, Routt, and Rio Blanco counties. Public lands within the LSFO are
within Colorado’s 3rd Congressional district. Congressman Scott Tipton represents the 3rd
Congressional District.

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LSFO Recreation Program and Visitation

The recreation program within the LSFO serves a diverse and growing population. The LSFO
area serves as a regional recreation destination in Colorado and visitors come from local
communities, from throughout the intermountain region, as well as nationally and internationally,
primarily visiting public lands in west Moffat County and specific sites in Routt County. The
Routt County sites include Emerald Mountain Special Recreation Management Area and public
lands adjacent to the Sarvis Cabin.

Major recreation opportunities within the LSFO include the Emerald Mountain, Cedar Mountain,
and South Sand Wash Special Recreation Management Areas (SRMAs). Attractions in the
immediate surrounding area of the Sarvis Cabin are; the internationally known community of
Steamboat Springs and the Steamboat Mountain Ski Resort, Stage Coach Reservoir and the Sarvis
Creek Wilderness Area.

Primary recreation activities that occur within the LSFO include OHV use, mountain biking, snow
shoeing, cross country skiing, horseback riding, hunting, fishing, dispersed camping and hiking,
rock hounding, and wildlife and wild horse viewing.

Other popular public recreation destinations found nearby in northwestern Colorado include the
Zirkel and Flattops Wilderness Areas, the Routt and Medicine Bow National Forests, the Grand
Mesa near Grand Junction, Grand Lakes located near Granby Colorado, and the North Sand Hills
OHV Area near Kremmling Colorado.

Annual recreation visitation within the LSFO, as reported under BLM’s Recreation Management
Information System (RMIS), is based on field monitoring. In fiscal year (FY) 2018, the LSFO’s
visitation was recorded at 391,626 visits. The five-year average for annual visitation from FY
2012 – FY 2017 is 321,774 visits. Within the last decade, annual visitation within the LSFO has
generally fluctuated with dispersed camping, OHV and mountain biking activities on the rise while
some other types of use have decreased. Overall use numbers, different types of uses, and seasons
of use are all increasing.

Future recreation use and visitation in the LSFO is expected to increase with the introduction of
the Sarvis Cabin, and the South Shore at Stagecoach and Cedar Mountain trail projects. The
communities of Steamboat Springs and Craig continue to strongly support the Little Snakes Field
Office BLM recreation strategy with a focus on connecting to communities. Economic
diversification continues to be a key driver for both communities with local recreational strategies,
goals and foreseeable outcomes in the forefront.

It’s important to note that BLM managed land in the LSFO is open and accessible year-round to
all types of users while actual access to popular recreation destinations in Northwest Colorado is
often limited for extended times by snow cover or inclement weather conditions.

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Figure 1 - LSFO Estimated Annual Visitation

400,000

350,000

300,000
Annual Visitation

250,000

200,000

150,000

100,000

50,000

0
FY 2013 FY 2014 FY 2015 FY 2016 FY 2017
Number of Visits 289,639 304,883 320,929 337,820 355,600

Most public land users who visit the LSFO are from Colorado or the adjacent states of Wyoming
and Utah whereas the visitors to the Steamboat Springs Area are a mix of out of state and
international tourists. There seems to be a big difference between the visitors who use the BLM
managed lands in the LSFO area verses the Steamboat Springs Area. Many visitors who use the
BLM lands like to engage in such activities as recreational vehicle (RV) camping, OHV use,
hunting, and target shooting while the Steamboat Springs visitors stay in hotels, patronize the
restaurants, visit the hot springs, tube the river, and bike, hike and ski on local trails. Recently
local citizens from both Craig and Steamboat have formed trail user groups which provide a
reliable source of volunteer assistance to the BLM.

Applicable Land Use Plans

The LSFO recreation program falls under the governance of the Little Snake Resource
Management Plan (RMP) signed in 2011. Other local activity-level plans that govern recreation
management in the LSFO includes the Emerald Mountain SRMA plan. The only LSFO site
encompassed under this business plan is the Sarvis Cabin.

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 B. Description of the Sarvis Cabin Proposed Fee Site:

Description: The Sarvis cabin was constructed in 1956. The cabin has a rock and concrete
foundation, corrugated aluminum roof and is a 30’ x 30’ square shape with three rooms and a
loft. It also has cooking stove, refrigerator, heater and lights which are all run by propane from a
600-gallon propane tank located outside. A fireplace provides a supplemental heat source. This
was a summer cabin for the Hubbard family whose main livestock operation was inundated by
the construction of Stage Coach Reservoir Dam in 1989. The lands surrounding the cabin feature
moderate slopes running down to the Yampa River. The property consists largely of lodge pole
pine with some Engelmann spruce and willows lining the river bank. A meadow surrounds the
cabin, providing an ideal location for its construction in 1956.

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Activities: Fishing, camping, hiking, picnicking, mountain biking, cross country skiing,
horseback riding and snowshoeing.

Location: The Sarvis Cabin is located approximately 14 miles south of Steamboat Springs, 2
miles north of Stage Coach Reservoir and can be accessed by Routt Cnty Road 18. See attached
map.

Elevation: 7200 feet

Amenities:

Tent or Picnic Potable Access Fee Visitor Refuse Toilets Fire

trailer table water road collection protection containers (Porta- pits or
space Potty) grill
X X X X X X

Proposed Fees: $ 90.00 per night. Open year-round. Reservations required through
Recreation.gov on a first come first serve basis with a limit of three reservations per party, per
year.

Groups: Group size will be limited to 15 per visit.

C. Proposed Recreation Fee Rate Rationale:

The LSFO proposes to charge a fee for the public’s use of the Sarvis Cabin under the FLREA
which authorizes the BLM to collect recreational fees when sites and areas meet specific criteria

In recent years, annual operating budgets in the BLM have been on a downward trend. The LSFO
annual recreation funding for managing facilities like campgrounds, trailheads and cabins has also
decreased over the past 10 years, making it difficult to manage the facilities and meet public desires
and BLM maintenance standards. Annual revenues typically generate a fraction of the overall
operating costs. The remainder of annual operating costs for recreational facilities are absorbed by
the recreation program budget in general. Over time, renting the Sarvis Cabin is expected to help
offset LSFO annual recreational facilities costs.

The proposed fee is anticipated to cover annual operating costs associated with the site, generating
revenue with daily fees commensurate with other similar expanded-amenity sites found elsewhere
in Colorado. This will offset price inflation and allow the LSFO to provide visitor services at a
more sustainable level, provide better opportunities to upgrade the facilities at this Cabin and
provide the public with a new recreational experience not currently available in the LSFO.

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Figure 2 - Proposed Sarvis Cabin fee comparable to nearby Cabin Rentals

$200
$180
$160
$140
Fee Rate

$120
$100
$80
$60
$40
$20
$0
Current Fee w/ Current Fee w/
Proposed Fee
amenities Limited Amenities
Sarvis Cabin $0 $0 $90
Piney Guard Station $0 $50 $0
SeedHouse Guard Station $0 $65 0
Grizzly Guard Station $55 $0 $0
Hahn's Peak Road house $175

Piney Guard Station (USFS): The individual site fee reflects the overall popularity of the site.
All standard amenities are provided except for trash collection, propane, water, and electricity and
visitor protection.

Seedhouse Guard Station (USFS): The individual site fee reflects the overall popularity of the
site. All standard amenities are provided except for trash collection, propane, water, electricity,
and visitor protection.

Grizzly Creek Guard Station (USFS): All camping amenities provided except visitor protection.

Hahn’s Peak Road House (privately owned and rented): These cabins provide all camping
amenities.

D. Average Annual Operating Costs:

The White River and Medicine Bow-Routt National Forest operates and maintains 3 cabins in a
back county setting similar to the Sarvis Cabin as illustrated above. Annual operating costs for
these cabins include expenditures for visitor information services, group site reservations,
monitoring of visitor use, fee collection, law enforcement services, annual maintenance,
construction, toilet cleaning, and vault toilet pumping.
An average of 2 permanent and multiple seasonal employees provide services to the Medicine
Bow-Routt NF cabin program: Recreation program leads are responsible for various levels of
planning, maintenance, contracting, fee collection, and visitor use monitoring of the cabin or
cabins in their area; one permanent operations worker provides support for construction, and

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deferred maintenance; 1 seasonal technician is responsible for fee collection, visitor use
monitoring, annual maintenance, and spot cleaning of each cabin; 1 visitor information specialist
field public inquiries about cabin information and takes reservations; one full time employee
handles fee deposits and administration; and 1 permanent law enforcement officer provides safety
patrols for the cabins.
The cost of maintaining and cleaning the recreation sites includes full-time and seasonal labor,
purchase of supplies (i.e. paint, tools, hardware, lumber, garbage bags, cleaning products, etc.),
and a toilet cleaning contract. Seasonal recreation technicians are responsible for spot cleaning
recreation sites and doing basic infrastructure maintenance such as building repairs, painting, and
sign installation. Sanitation facilities are maintained through a toilet cleaning contract with a
private firm that is responsible for weekly, biweekly, or monthly cleaning of each vault toilet
based on season of use and location. Sewage is pumped from the vault toilets on average
annually or bi-annually based on amount of use. Operations personnel repair or replace worn-
out infrastructure, install new facilities as needed, and conduct periodic potable water testing.
Law enforcement rangers regularly patrol at the cabin for monitoring and compliance.

The program also supports government vehicles and equipment used to support patrols,
maintenance work, resource and visitor use monitoring, and law enforcement. Vehicles routinely
used include pick-up trucks, maintenance trucks, and law enforcement patrol vehicles. Cabin
maintenance and construction often requires the use of a backhoe, skid-steer loader, or other heavy
equipment as needed.

Cabin fees are paid by those receiving services at the cabin sites. Fees are either paid through
Recreation.gov or through the office for which the cabins are managed. All cabins managed by
the Medicine Bow-Routt and White River National Forest can be reserved and is paid for in
advance through Recreation.gov. Cabin fees are deposited into a recreation fee tracking account,
where the fees were collected.

Anticipated Revenue from Sarvis Cabin Fee

The LSFO recreation program has the goal of ensuring the overall sustainability of visitor
services delivery by generating sufficient funds to cover the operating costs for the Sarvis Cabin
and to provide funds for upkeep of other recreational facilities managed by the Little Snake Field
Office. This fee project is not intended as a profit-making enterprise. Anticipated annual revenue
generation from the proposed fee would total approximately $25,000.00.

Cabin fees to accomplish full cost recovery at the Sarvis Cabin would put daily use fee at a level
exceeding the similar Forest Service cabins. This is solely because the FS cabin rental structure
has some agency funding available while the LSFO does not have such funding and so must
anticipate recouping 100% of the operating costs, otherwise it cannot provide the service. For the
services and experiences provided, the Sarvis Cabin fee would be reasonable for the public and is
anticipated to result in a high occupancy rate.

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 E. Priorities for Future Expenditures:

Priorities for future expenditures include a level of service that maintains a standard of
cleanliness that would promote visitor health and safety, taking reservations, on-site patrols,
updated cabin amenities and regular maintenance of the cabin facilities including toilets, picnic
tables, fire pits, signs, and parking.

Table 1 below identifies estimated future expenditures for the Sarvis Cabin in descending order
of priority:

Table 1 – Estimated Cabin Operating Costs

Cost Type (Sarvis Cabin) 2021 Cabin 2022 Cabin 2023 Cabin
Cost Cost Cost
Maintenance (water system, sites) $1,000 $1000 $1500
Labor $1,500 $1,500 $2,000
Supplies $250 $300 $350
Customer service $2,500 $2,000 $1,500
Interpretation (signs, kiosks) $3,000 $100 $100
Fee collection, Rec.gov $1,000 $1,000 $1,000
Law enforcement $1,000 $1,500 $500
Toilet cleaning (contract) $2000 $2200 $2300
Toilet pumping $1,500 $1,700 $1,800
Deferred maintenance $500 $500 $250

Projected expenditures include only those necessary for continued program operations and minor
improvements. The proposed fee of $90/night alone would not result in the near term
accomplishment of the larger program infrastructure improvements previously described.
Towards this goal, BLM would continue its long term efforts to gradually improve the Sarvis
Cabins physical facilities through a combination of regular appropriated funds, internal one-time
project funds, external grants, and expenditure of user fees.

The LSFO will strive to maintain a positive fund balance in the deferred maintenance account of
approximately $30,000 to cover average annual operating costs at the Sarvis Cabin and a modest
amount of emergency funds. The reason for this goal is to have the flexibility to obtain matching
funds in applying for grants, effect emergency repairs, provide long-term stability for staff
services, provide capability to meet unanticipated costs or to take advantage of unforeseen
opportunities to improve services, or to use revenues to provide future recreation infrastructure to
support visitor use.

F. Analysis of Recreation Fee Rates:

BLM policy authorizes the use of either a cost-recovery or fair market calculation method to
analyze proposed fee rates. The LSFO is using a fair market comparison to support the need for

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 the Sarvis Cabin rental fee. With approximately $12,000 in annual operating costs and
anticipated annual cabin rental day fee of approximately $90, the LSFO will be able to cover
general maintenance and incidental cabin maintenance costs that occur on an annual basis.

Table 2 below compares fees being charged at cabins locally and regionally. The Sarvis Cabin is
similar to cabins on nearby U.S. Forest Service (USFS) and cheaper than similar privately owned
cabins that are rented in the Steamboat Springs Area. The fee proposed for the Sarvis Cabin is
above the governmental average rental fee due to the fact that the U.S. Forest Service has not
increased their cabin rental fees recently. The rate proposed for the Sarvis Cabin seems
reasonable using fair market value and taking the Steamboat Springs rental market into
consideration

The data provided in Table 2 below was collected from the Recreation.gov website at the
beginning of the 2020 summer camping season.

Fair Market Value Fee Calculation

Table 2 - Cabin Comparison

Fee rate Visitor

per Tent or trailer Picnic Potable Access protecti Refuse Fire pits
Site name night space table water road on container Toilets or grill
Piney Guard
$50     
Station
Seedhouse
$65     
Guard Station
Grizzly Guard
$55       
Station
Hahn’s Peak
Road House $175        
(Private)
Sarvis Cabin
$90
. . . . . .
Average $87        

G. Impacts of Alternative Fee Rates:

The following is an analysis of potential impacts or conditions from differing fee rates:

i. Fees Lower than Regional Average

 Recreational:
 Economic:
 Environmental:
 Socio-economic:

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 ii. Fees Higher than Regional Average

 Recreational:
 Economic:
 Environmental:
 Socio-economic:

H. Public Outreach:

Draft business plans must be made available for public review and comment for a minimum of
30 days. The draft Savis Cabin Business Plan was available online for public comment and
review from _________ to _________________. A letter was sent out to potential stakeholders
and a notice was posted at Sarvis Cabin. ________ Public comments were received, Comments
expressed……..

In addition, the LSFO presented the Sarvis Cabin fee proposals to the BLM Colorado Recreation
Resource Advisory Council (RAC) on ________ and received unanimous approval from the
council. The Colorado RAC is a ___-member advisory panel which provides advice and
recommendations to the BLM on resource and land management issues for _____ million acres
of public lands in Colorado. The Federal Lands Recreation Enhancement Act mandates that the
appropriate Recreation RAC review all BLM recreation fee proposals prior to approval.
Comments from both the public at large and the BLM Colorado RAC will be considered prior to
approval of the increase in the Sarvis Cabin fee.

A Notice of Intent to Collect Rental Fees at Sarvis Cabin was published in the Federal Register
on ___________. Implementation of the new fee will occur six months after this date.

Prior to increasing fees and/or implementing new site fees, the LSFO will conduct the following
outreach efforts to notify the public of the upcoming fee:

 Public Notice of intent

 Letter to interested parties

I. Acronyms:

BLM Bureau of Land Management

CBS Collection & Billing System
CCC Civilian Conservation Corps
FBMS Federal Business Management System
FO Field Office
FLPMA Federal Land Policy and Management Act
FLREA Federal Lands Recreation Enhancement Act
MFP Management Framework Plan

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MOU Memorandum of Understanding
NDAA National Defense Authorization Act
NEPA National Environmental Policy Act
NHT National Historic Trail
NPS National Park Service
OHV Off-Highway Vehicle
RAC Resource Advisory Council
RAMP Recreation Area Management Plan
RMIS Recreation Management Information System
RMP Resource Management Plan
RV Recreational Vehicle
LSFO Little Snake Field Office
SRMA Special Recreation Management Area
SRP Special Recreation Permit
SST Sweet Smelling Toilet
USFS United States Forest Service
WSA Wilderness Study Area

End of Document

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