The economic base of the area has traditionally been logging, forest products manufacture and shipping, commercial fishing, and dairy farming. However, in recent years dairy farming has declined and there has been an influx of retired persons as residents and a rise in tourism. Many coastal communities now consider tourism to be their primary or second-most-important business enterprise. Tourist facilities, such as motels and restaurants have developed giving some sections of the main highways a "strip" appearance. Charter boats for ocean sports fishing operate from the ports in sizable numbers.

While Florence and Reedsport have modest port facilities, Coos Bay ships the greatest tonnage of forest products annually of any port in the world. Community leaders envision their area growing into a major manufacturing and shipping center. Their expansion plans, although very general in nature, include a part of the south end of the proposed National Recreation Area. A major source of present and future municipal and industrial water for the Coos Bay area is the sand dunes acquifer which, according to U.S. Geological Survey studies, has a potential sustained yield of 32 million gallons per day. To date, 16 of a planned total of 64 wells have been established along with several miles of pipeline and a treatment plant located outside the Dunes. The operation is carried on under a Forest Service special-use permit that contains provisions protecting ground water quality, lake levels, and appearance of the area; and a water right from the State of Oregon.

Another major industrial facility that affects the area is a 600-ton per day Kraft pulp and linerboard mill on the Umpqua River at Gardiner. The water supply for the mill is appropriated from Siltcoos and Tahkenitch Lakes, which lie adjacent to the proposed National Recreation Area. Low dams on both lakes retain lake levels at normal annual peak levels and the mill uses the excess storage thus created. Effluent from the mill goes through a short detention settling pond then is carried through a buried pipeline about a mile of which is within the National Recreation Area and empties into the ocean about 3,000 feet offshore from the mouth of Threemile Creek. Daily discharge is about 10 to 13 million gallons with about 23,000 pounds BOD and about 30,000 pounds of suspended solids. A survey by the Federal Water Pollution Control Administration in January 1969 determined there was chemically measurable surface evidence of the outfall for a half mile or more down current from the outfall. However, dilution was found to be rapid so that there was virtually no effect on water quality at the beach or in the surf. There were no detectable "off" odors or other signs of contamination in either the surf or the beach sands. Bottom grab samples and a beach survey indicated that the effluent discharge has had no measurable effect on the biological communities in the vicinity of the outfall. The outfall is presently under a permit from the Oregon Department of Environmental Quality. The permit expires in June 1974. The permit requires improved primary treatment that will decrease discharge of the suspended solids to 4,000 pounds per day after July 1973. The company is also required to propose a specific program to provide "maximum practicable waste treatment and control considering overall environmental impact" in accordance with State water quality standards.

Several mining claims were filed some years ago on the dunes north of Coos Bay on the basis that the sand had unusual qualities for certain forms of glass manufacture. The mining claimants have been unable to establish a market for the sand and a November 23, 1970, decision of the Board of Appeals, U.S. Department of the Interior, affirmed an earlier decision that the claims are null and void. No other significant mineral values are known to exist.

The Corps of Engineers maintains jetties and navigation channels on the Siuslaw and Umpqua Rivers in or adjacent to the proposed National Recreation Area.

The Coast Guard maintains a telephone line that runs the length of the proposed National Recreation Area, just inland from the beach.

Much of the land along the east of U.S. Highway 101 between Siltcoos Lake and Reedsport is in commercial tree farm ownership and presently supports 10to 30-year-old second growth coniferous and red alder stands. Most of the raw material supply for the forest products industry in the area today comes from public land in the Coast Range to the east.

There is residential development of varying density along U.S. Highway 101 between Reedsport and Coos Bay and between Florence and Siltcoos Lake. All but about 45 residences are outside the proposed National Recreation Area.

Tourism is centered around the natural features of the area-the ocean, beaches, sand dunes, and lakes. Camping; picnicking, sports fishing in lakes, estuaries and ocean; hiking; beachcombing; and cross-country vehicle travel in

the dunes are the most popular activities. Tourist services are provided by public campgrounds, picnic grounds and boat launching facilities and by private motels, trailer parks, marinas, eating places, and stores. National Forest land in the Oregon Dunes had an estimated 569,000 visitor days use in 1970. Recreational use of all land and water within 5 miles of the beach between Florence and Coos Bay probably totaled five times as much.

Predicted future economic trends, according to a study by the University of Oregon, indicate relative stability in the forest products industry, except for expansion in secondary manufacture in the Coos Bay area; some expansion in shipping; some expansion in commercial fishing and fish processing; less employment in industry due to substitution of machines for labor; increasing percentage of retired and independent income persons; and a steady increase in tourism. There has been no zoning or other land use control by the counties in the area. Minimum zoning was required by an act of the 1969 State Legislature and the counties are moving to meet the requirements established. There is increasing conflict within Oregon over who should control management of the Oregon Coast. Coastal residents see the area as the source of their livelihood and its resources to be used for their benefit. Persons from Portland-Willamette Valley, Oregon, area, in contrast, see the area as a playground and open space for respite from their increasingly crowded and polluted home environment. They see the coast as having Statewide significance and, therefore, feel its future should be given direction by persons from throughout the State. In 1971, the State Legislature established the Oregon Coastal Conservation and Development Commission.

III. ENVIRONMENTAL IMPACT

The proposed legislation, if enacted, would attract additional people to the area because of the broad recognition of the special status of a National Recreation Area. The area's ability to accommodate people in a specified environment is limited by its ecological limits, the quality of recreational experience that can be provided under various levels of use, and the capacity of the transportation system. Increased use would occur regardless of the legislation, but the NRA designation would accelerate the use and rate of increase.

Minimizing the environmental impact resulting from enactment of the proposed Oregon Dunes National Recreation Area would generally require control and regulation of the amount and kind of recreation and resource use. Uncontrolled use would result in severe damage to the natural values of the area.

The proposed legislation emphasizes recreational, scenic, scientific, historic, and other values contributing to public enjoyment of lands and waters. It is with this emphasis that the following categories are described:

A. Recreation experience

Increased use, such as may reasonably be expected in an NRA, would tend to reduce the quality of the recreation experience. However, with reasonable controls, more people could enjoy the area at the level of experience they are motivated to seek.

Many persons would visit the area to enjoy the recreational experiences offered by campgrounds and similar developed and modified areas. Others, for at least part of the time, would want to enjoy the experiences offered by undeveloped areas, including varying degrees of solitude. Although there is no opportunity for Wilderness as defined in the Wilderness Act in the area, the opportunity for solitude is remarkable considering the size of the area.

Existing developed recreation sites are heavily used. With future use of the proposed NRA projected at 4.3 million visitor days by the year 2000, considerable additional development would be needed. Roads, trails, campgrounds, and other facilities would all intrude upon some parts of the area that are presently undisturbed. Users would fan out into adjacent areas for hiking, scenic enjoyment and related activities. However, by limiting development to a few complexes that are physically able to withstand heavy use, by limiting the amount of roads to that needed to provide adequate access to sites and dispersed areas, and by reasonably regulating use, the needs of the social camper can be met and still leave considerable undeveloped areas.

Those who visit campgrounds and resorts expect to see more people and, therefore, tolerate them. Many seek out recreation places where people congregate because they enjoy visiting with others. Studies show that campground visitors feel a sense of freedom in an outdoor setting where they enjoy a sense of anonymity. Some want to see or wish to know that other people are nearby. Presence 72-791 0-724

of others gives them a sense of well-being and eases their concern during stress situations caused by being in an unfamiliar environment.

By contrast, persons who seek dispersed area or back-country experiences emphasize the solitude and challenge such experiences afford. The desire for solitude varies among users of undeveloped areas. There is a feeling of kinship with others who are in the area for the same purpose and are encountered occasionally. However, as encounters become more frequent, a point is reached where the experience becomes less gratifying.

Use of various parts of the undeveloped areas will be directly related to ease of access. Most persons quickly become tired from walking in soft sand or through dense vegetation. Those who really want to will be able to find relative solitude beyond a half mile from the nearest vehicle access in sand and only a few yards from the nearest road or trail in vegetated areas, even with the total area use expected in the year 2000.

Cross-country vehicle travel is increasing in popularity and will pose some special problems in the future because almost no area of open sand is physically in accessible to such travel and the possibilities of solitude in such areas are thereby diminished. However, by control of cross-country vehicle travel in some areas, a variety of recreational experience can be maintained and hazardous situations for walkers prevented.

The carrying capacity for use of various sites and areas will have to be determined and as use approaches that capacity, controls instituted to limit use. Short of that point, regulation of the kinds of use permitted can help to maximize the number of persons that can be accommodated.

B. Scenery

Scenic attractions of parts of the area would be altered through substantial numbers of additional people and their attendant facilities intruding upon the landscape. The aspect would change from the present generally natural environment to one with increasing numbers of people and the necessities for their wellbeing, use, and enjoyment.

Additional roads and recreational facilities would become necessary. Vegetation would need to be removed in places for construction of roads and other facilities. Dust and smoke would result from construction and subsequent use. Trampling of vegetation and littering would be more prevalent. All of these effects would change the scenic environment. Adverse impacts would be minimized through adequate control measures and proper management techniques. In undeveloped areas, impact would be less obvious, but could be even more important. People would tend to see fewer wild animals in their natural habitat. They would see more people, camping gear, trails, minimal campsite improvements, littering, and damage to vegetation. These would all lessen the scenic attractions and be objectionable to those seeking a back-country experience. As such effects become more objectionable, reasonable controls on the amount and kind of use would be required to keep the naturalness of the scene at an acceptable level.

The proposed legislation provides for administering the area to provide for public outdoor recreation use and enjoyment and conservation of scenic, scientific, historic, and other values contributing to such enjoyment. The area covered is greater than that presently within the National Forest boundary, so there is opportunity for protection of a larger area than is possible under existing authority. Future incompatible development on private land would be prevented through a combination of fee title or scenic easement acquisition and cooperative efforts of the Forest Service, other levels of Government, and the private owners. Within the Dunes Sector, acquisition of all of the private land is permitted by the proposed legislation and is probably desirable. In the Inland Sector acquisition will generally be only with consent of the owner and will generally be limited to fee acquisition of land needed for public facilities and scenic and travel easements. The emphasis in the Inland Sector will be on a cooperative effort to stabilize and maintain the scenic appearance. Existing private residential, commercial, and industrial developments in the Inland Sector and most uses covered by special-use permit on National Forest land are protected by the proposed legislation. Future changes in private land use would be permissible,. but if not compatible with the purposes of the NRA, would expose the landowner to potential Federal acquisition of his land. Additional special land uses on National Forest land would be permissible, if compatible with the purposes of the NRA.

The proposed legislation would withdraw the area from mineral entry and disposition. Most of the National Forest lands within the proposed area are not open to mineral entry based on administrative action. The proposed legislation would extend the withdrawal over a larger area and also eliminate mineral disposal through lease or permit. The possibility of scarring of the landscape through widespread sand mining would thus be eliminated.

With control over private land use and development, and expanded National Forest boundary and National Forest ownership, continued control over special land uses on National Forest land, and the cooperative efforts of all concerned public agencies and private owners, the existing attractiveness of much of the area can be maintained.

C. Wildlife

The proposed legislation would not affect existing authority to manage wildlife species or habitat. It would give impetus to wildlife management as an important segment of total recreation opportunities.

Appreciative uses of wildlife such as observation and photography are increasing in popularity. Such activity could increase considerably without damage. Hunting is a moderately important wildlife use that could be continued and improved. Hunting closures are allowed for reasons of public safety, administration, or public use and enjoyment. Opportunities exist for introduction of additional adaptable species, such as the rare Columbian white-tailed deer and habitat improvement.

Such recreational activities as camping and cross-country vehicle travel could cause displacement of some animals and destruction of young. Recreational facilities could occupy sites used by wildlife and cause decrease in numbers. Careful location of facilities and regulation of activities would help assure a continued varied wildlife population.

D. Vegetation

Vegetation in the more developed parts of the area would be altered or diminished through clearing for roads and facilities, artificial plantings, and the impact of substantial numbers of additional people. Adverse impacts would be minimized by placing development on areas of stable soils and resistant vegetation, by careful planning of facility layout, and by adequate control over public

use.

In undeveloped areas damage to vegetation would be most likely and serious on the fragile pioneering plant communities. Cross-country vehicle travel, camping, and wildfire would be the most probable sources of damage. Control over use of such areas and an aggressive fire prevention and control effort would keep damage to a minimum.

The controls over nonrecreational land uses afforded by the proposed legislation would enhance protection and wise management of private forest land in the Inland Sector. The National Forest boundary would be extended to include about 6,750 additional acres, about half of which is timberland that would be in the Inland Sector of the NRA. Within the Inland Sector, timberland under sustained Field would be protected from Federal acquisition without the owner's consent only if it was managed in accordance with standards no less stringent than those imposed on comparable National Forest land, and if it was not needed for public recreational purposes. Timberland owners who wanted to retain their lands would thus be encouraged to manage it in a way that would be an improvement over some present practices. Present Forest Service authority provides for general authority to acquire private land without the owner's consent inside the National Forest boundary. The proposed legislation would weaken this authority in the Inland Sector, but would enlarge the area over which the modified authority applied.

Lack of vegetation in some areas is a definite recreational asset. Artificial plantings of sand stabilizing plants are a detriment from this standpoint. Most such plantings in the past have been established to protect highways, residences, and other improved property. To reduce the necessity for further stabilization, it is necessary that a buffer of vegetated, undeveloped land be maintained between the active dunes and improved property. The Inland Sector of the proposed NRA would serve this purpose. Proper location of public recreational improvements so as to not be in the path of moving dunes would also reduce the need for further stabilization. This approach, currently followed by the Forest Service, would be continued under NRA designation.

Nevertheless, some additional sand stabilization, estimated at 300 to 500 acres, will be necessary in the future to protect existing improved property whose continued existence is protected by the legislation. Several hundred acres of existing plantings will also have to be maintained. The acreage would, however, be less than without NRA designation.

E. Water and aquatic habitat

Quality of water and aquatic habitat could be expected to remain high following establishment of an NRA if proper safeguards are taken.

Coliform contamination and excessive nutrient enrichment due to human use in developed areas could threaten water quality if high standard sanitary facilities are not provided. Full sewage treatment will be needed in many areas. Less sophisticated facilities will suffice in undeveloped areas with reasonable control of

use.

The soils of the area present little danger of water erosion and siltation. However, careful planning of road development will be necessary to avoid loss of aquatic habitat through filling and channel changes.

A few smaller lakes can provide a quality fishing experience for a limited number of persons or "put and take" fishing for large numbers of persons. The larger lakes have an immense capacity to accommodate fishing pressure. Increased use resulting from NRA designation can be accommodated through careful planning and reasonable regulation of use.

Water quality and aquatic habitat in the ocean and estuaries that border on the proposed NRA will be largely controlled by events outside the area. Oregon has established stringent water quality standards for estuarine waters. Management of the Oregon Dunes under NRA designation will contribute to meeting these standards.

Some existing water-related private activities that are protected by the proposed legislation bear on water quality. The ground water development north of Coos Bay is predicated upon protection of the acquifer from salt water intrusion and protection of lake levels from excessive drawdown. The provisions of the existing special-use permit that guard against these adverse effects would be continued under NRA designation and, in addition, development is made subject to existing and future water quality standards. The legislation could, however, be construed as weakening Forest Service authority to control the development because it "directs" that the development be permitted. Under present authority, the Forest Service has the authority to decide whether the water development will be permitted.

Piping of effluent from the pulp mill at Gardiner through the proposed NRA would be allowed to continue by the proposed legislation, subject to present and future water quality standards. Again, the Forest Service is "directed" to permit the land use to continue, subject to water quality standards and prior permission by the State of Oregon. However, it will not interfere with the State of Oregon's efforts to bring the discharge up to meet other quality standards.

The control over future land uses afforded by the proposed legislation would help maintain water quality in the area. The threat of pollution of ground water from widespread development in the area north of Coos Bay can largely be eliminated.

F. Air

Prevailing wind direction and velocity is such that air pollution problems are not likely in the proposed NRA, even with greatly increased recreational use bringing more vehicles and campfires. Relatively calm air conditions occur for a few days each year, but are of too short duration for pollutants to accumulate. Drift of pollutants from the Coos Bay industrial area, the pulp mill at Gardiner, and the Willamette Valley occurs occasionally now, but is not serious. Future problems from these sources can be solved through cooperative effort with other levels of Government.

G. Sound

As larger numbers of people visit the area, the noise of automobiles, dune buggies, aircraft, motorboats, and other motorized recreation vehicles will be increasingly noticeable. Acceptable levels of sound emission can be maintained under existing authority and provisions of the proposed legislation through limiting the amount of access roads, limiting the use of dune buggies and requiring adequate muffling of engine noise, establishing airspace use limitations, and similar measures.