| Below are the minutes from the first Browns Canyon private boating permit system meeting and some key points regarding the management plan when it comes to this issue to give everyone some background on how we got to this point. Please feel free to e-mail me with any questions or comments, Mike Harvey. The Arkansas River Management Plan sets both commercial and private, boats per day, limits on every section of the river. In Browns Canyon these limits are 150 boats per day for privates and 450 boats per day for commercial companies. When any user group exceeds these carrying capacity numbers on any five days during a season, which private boaters did last year in Browns, a rationing or permit system is triggered. The State Parks conducts counts throughout the summer at Hecla Junction and other sites along the river. Commercial companies have already exceed capacity in several sections of the Arkansas including, Browns, Parkdale, Numbers, and the Royal Gorge, and thus their use is rationed in each of these sections. The permit system is Browns will only be instituted during weekends and holidays next summer. If Private Boater numbers drop below carrying capacity for two consecutive summers the permit system will be removed for that section of river. In other words if enough people choose to run other sections of river on weekends for the next two summers the permit system will go away. None of the other sections of river are very close to capacity for private boaters. The Numbers has the largest capacity at 350 private boats per day.
November 15, 2001 Arkansas Headwaters Recreation Office Salida, Colorado Attendance: AHRA Staff: Rob White; Mike Walker; Rose Bayless; Dave Taliaferro; John Nahomenuk; Dave Spencer; Stew Pappenfort. Private Boater Representatives: Jay Kenney; Mike Harvey; Pat Willyard; Craig Stuller; Chad Gorby; P.T. Wood; Rich Johnson; Patricia Supanich After thoroughly reviewing all issues during this meeting, the following items were accepted as Permit System Direction, with several items listed for Further Discussion. The content of the meeting itself follows these conclusions: Permit System Direction
For Further Discussion Welcome and Introductions
The meeting was called to order at 10:00 a.m. and AHRA Park Manager, Rob White, thanked everyone for helping with this process. Each member of the group was introduced, and they each gave a brief biography. Notes of the meeting will be compiled and routed to those present to share with their constituents.
Management Plan Direction
Mike explained that when the original management plan was created, capacities were set for both private and commercial boating. The river itself was divided into segments with separate capacities for commercial and private use in each section. Triggers were also set into the plan that when 75% of any capacity had been reached or exceeded five times or more during one season, a process to plan for rationing/permits would begin. Soon after AHRA began managing the river, 75% or more of the commercial boating capacities were being met and AHRA began planning for a commercial rationing plan. In 1993 a rationing plan was approved for commercial boating, and in 1994 AHRA first rationed commercial use on the river in the Parkdale section. Browns Canyon became rationed commercially in 1999, and now we are looking at also rationing private boats in Browns. The private capacity in Browns Canyon is 150 boats per day (bpd), and Mike pointed out that privates not only reached or exceeded 75%, but also reached 100% of capacity several times this past summer. This triggered the process and the need to not only begin planning this year, but to implement the private boater permit system in 2002, which is the purpose for today?s meeting.
Jay asked by how many bpd did we exceed capacity. Mike first explained the method of observation by the count crew, which includes private boaters as well as all uses on the river. AHRA still uses the same system that has been in place for the past 12 years. Each month is divided into two parts, beginning the end of May through Labor Day. The count crew is stationed 3 days upriver during the middle of one week and 3 days downriver the following week. They also are stationed upriver on one weekend day and downriver on one weekend day. In this manner, they compile a record of use both up and down river on weekdays and weekends. This data is entered into a computer program that takes the hard data from the days counted and extrapolates it into AHRA usage for the time period.
The days that private capacities were exceeded in Browns Canyon were ?hard? counts. There were 5 days over 75%, and 3 of these were over 100%. Therefore, we can extrapolate with our sampling technique and formula that we met or exceeded 100% at least five days during the entire season, and these were Saturdays and Sundays. The days and dates are on a print out, and Mike handed this out and for review. The chart represents 1/3 of all days that could have been counted, and these are actual counts. If we take into consideration the other 2/3 of the days, we can extrapolate that at least 5 of these reached 100% of capacity. There is a significant drop off on weekdays. On busy weekend days there is the potential for 600 bpd in Browns - 450 commercial and 150 private. We are not this close to private capacities being reached on any other section. Mike also pointed out that the breakdown of private use by type of boat in Browns is 70% kayaks and 30% rafts.
Purpose of Planning Team
Rob reported he has been receiving a lot of calls and e-mails about whether or not we need to do this and how. He would like to look at the merits of a private permit plan today and not spend time debating the ?whys?. We need to follow the direction of the management plan, which has already addressed many of the ?whys?. Jay remarked that from a public relations perspective, we would have to deal with the ?whys?. He added if we put in a permit system that disperses use to other parts of the river instead of restricting Browns Canyon, this would be a successful system. Rob noted that the management plan states that if for two successive seasons demand does not meet capacities, then we can review this section to drop from rationing. Mike agreed this is in the Management Plan, but this would also have to be included in whatever private ?rationing? plan is developed. Also, it would need to be worded more specifically. Jay had hoped we would have one season before rationing to try and disperse use before going to a permit system, but realized we had reached both ?triggers? in one season.
Public Comment Period
Patricia Supanich is representing the Pikes Peak Whitewater Club in Colorado Springs. She had forwarded her comments to P.T. Patricia is a fairly new boater here and to Colorado. She is concerned about how the Management Plan was devised and that now private boater permits are being considered. She hasn?t seen issues where permitting is really needed in Browns Canyon. She also would hope that a permit fee would apply to commercial as well as private boaters.
Rich Johnson is representing High Country River Rafters, and is a member of the planning team. His group would rather not have a permit system because they thought it should regulate itself. Private boaters currently do this, i.e. they pull to side of river to let flotillas go down because they don?t want to be a part if it.
Private Boater Permit System Discussion
Rob explained that the Management Plan was set up since the beginning to allow for capacities and rationing. AHRA hired an intern last summer to survey the entire river. By far the most abundant public comment had to do with there being too many commercial and private boats in Browns Canyon. At the next Citizen Task Force meeting in January, we will discuss the number of commercial boats in Browns and whether we want to reduce this. Browns Canyon itself has been surveyed for the past 6 years, and there is also an environmental concern. This is one of the factors why we are considering reductions and limits on use for both commercial and private, to protect the resource.
Pat W commented other areas are similar to Browns in difficulty and access, but are not near capacity. For two seasons boaters should voluntarily choose those sections, then the permit system would be moot. Their behavior could eliminate a permit system
P.T. said one of key things privates are up in arms about is on other rivers that are permitted, privates have lost to commercials which causes animosity. Private boaters are not against preserving the resource, they just don?t want to lose out to commercials.
Rich agreed, and Rob said we must focus on building the best system
possible.
Patricia asked if commercials are at capacity in Browns, and Mike W replied there were 7 rationed days during the past summer.
P.T. pointed out that in one of the original drafts of the Management Plan, increasing the capacities for private boaters was suggested, but this would also include commercials. Therefore, privates were against that increase, so it reverted back to lower capacities for both.
Rob had a couple of handouts ? River Management Society News article ?Trends in the Use of Lotteries? and ?Why Do I Need a Boater Pass?? that deals with the Deschutes River in Oregon. Systems already exist, and we should compare these with what we think might work for AHRA. The Deschutes is managed by the BLM and is a web-based system, and a similar system seems like it would work for AHRA. Some of the discussions we have had regarding a private boater permit system is to make it as accessible and user friendly as possible. Weekends and holidays would be the focus of the system currently needed in Browns Canyon.
It was pointed out that boaters are opposed to a permit system if on January 1st they have to apply for a trip in June because they do not know their plans that far in advance. A permit system would be most usable if people can look at what is available on any given day so they can purchase a permit. A web-based system that can be used on the day people want to boat would be most practical. They can see what permits are available in Browns and purchase it that day, or they can plan in advance. They would enter information such as their name, address, DOB and credit card number, and receive a permit with a verification number. This would be widely accessible nationwide.
The group also discussed the necessity of certain businesses (Colorado Kayak Supply, River Runners, etc.) having a computer and information in their lobby so boaters could get a permit there as well. We will need to be sure we advertise and educate people so they know where they can go. Rob said that we would also issue press releases (such as about today?s meeting). Word is out already, and we need to keep people informed. This team will have to assist with a couple of public meetings where we present the proposal to private boaters.
Mike H asked Rob to reiterate the time period when permits would be needed on weekends and holidays. Rob said this would be May 25th through Sept. 7th. Rob added we must keep the costs of this system down because we don?t want to have to pass inordinate costs on to the private boaters. If we use too many staff at sites, it would cost too much. Jay asked how many days this would be in the summer, and Mike W replied there would be 33 days. Jay wondered how much money would be made if we take this number times the number of permits for each day, and Mike referred to a chart for ?Private Boater Fee Determination? that was passed around.
Rob continued that we used 2001 use totals. If we assume a 30% reduction in private boater numbers in Browns Canyon next summer due to permit resistance, and if we use a fee structure of $5/kayak and $10/raft, $16,748 would be generated. AHRA is investigating using the same contractor that the State Parks reservation system currently uses. Reserve America charges $3 per reservation, and there also may be software development costs. We will also need staff in the field educating people and checking permits. So, the $5/$10 fee structure is bare bones. Jay was concerned if this could be accomplished legally, in reference to TABOR, and Rob replied that the proposal will need to be taken to the Management Team for review.
Craig was concerned about boaters not using their reservations, like happens for campsites. Rob agreed that we should design a system that encourages people to return unused permits. We must give people an incentive to release permits and send them back into the system if they can?t use it. Jay observed that airlines overbook, assuming 10% won?t show. Dave S commented this group would need to address the cancellation problem the same as the campground reservation system, and encourage people to call us ahead of time. If we don?t hear from them, we can?t release the site. Pat W noted that some rivers have penalties for no-shows.
Mike H asked how AHRA would mange enforcement, and Rob said Stew has done some research on the Deschutes. We will station a ranger at Hecla Junction to check permits. Mike H remarked that at the last CTF meeting, a regulation on groovers and camping was discussed. Mike wondered if AHRA has plans to enforce this, and Rob replied we are looking at putting this in the permit language. Currently we encourage this for private boaters but have no means to enforce it, but we do enforce this for commercials. Mike W clarified commercial capacities in Browns, which are 360 bpd on weekdays and 450 bpd on weekends.
Mike explained the ?Fee Determination? handout is a ?what if? document on charging for private boater permits. It is a working spreadsheet, and can be used for a variety of scenarios. The concept of overbooking does not exist. AHRA does not allow this for commercial boating because we would be setting an artificial bpd capacity. Jay said an overbooking system could be monitored. Rob recapped if we fall below 80%, we do not need the system in place, and overbooking would increase the bpd limit as well as the 80% limit, so it would defeat the purpose. Chad foresees people beginning to stop boating in Browns if they have to buy permits, but Rob didn?t think this was necessarily so, the RMS study showed that use continued to increase on permitted rivers.
Jay asked if AHRA would allow non-profits to run organized trips. Dave S replied AHRA encourages groups like CWWA to apply for a special activity agreement to put the activity in a different category. Jay then inquired if special events can be grandfathered in, and Dave stated we would have to look at this.
Pat W went back to enforcement. Upon being assigned a permit, some places assign a plastic boater tag. Stew said this would be hard to do on the internet because individual printers would print out paper permits. If we used plastic they would have to be mailed out or picked up, and expenses would go up. John pointed out that if boaters are camping in Browns, two permits would be needed, one for each day. AHRA?s system must be able to issue a 2-day permit, and Stew reported that Deschutes system takes care of this. He pointed out that only on allocated days would we have to follow an agenda, the other days we don?t have to.
Mike H said this raises other concerns, such as the number of campsites in Browns, and these being on a first come first serve basis. There is no guarantee there will be a site empty when boaters get there. John remarked we don?t want to create other impacts, and there are no plans to increase camping areas. Rob added that at this point we aren?t going to regulate private camping, but may have to look at this in the future.
Rob continued the discussion on what ideas we have on systems. If we use Reserve America as the site host, we would already have staff available to take reservations. In reality, people would need a window (7-days at least) to get a permit mailed to them or to pick it up at a specific location. Jay thought a permit could be picked up at AHRA, and Rob said that both purchasing and picking up a permit at AHRA is feasible. P.T. asked if there is a way to do this without a paper permit, such as a list. Dave S replied this would be a problem when a permit is issued on the same day as the trip, it wouldn?t show up on a pre-printed list. Stew reported the Deschutes has vendors all over Oregon, and they receive $1 for each permit a private vendor sells.
Rob mentioned that the State Parks reservation system opens up April 1st, and people can make reservations up to 90 days in advance. Mike H remarked that cancellations would be the sticking point of the system. Rob said we also need to figure out how many permits a person can buy, and what information they need, i.e. name address and DOB. The system needs to be foolproof in order to be sure the permit has been generated by the permit system instead of being forged.
Mike W didn?t want to get wrapped up in the topic of fraud. People are always trying to find a way of beating the system. We are not trying to build a rock solid system, but a system that allows boaters to go boating when they wake up in the morning. Rob pointed out we don?t want situations like we have with our Parks Pass when 5 people are boating together, but only one buys a pass for everyone. When they are separated from the group, the others have no pass with them.
Chad agreed that boat tags would work well, but this would be difficult to get out to boaters. It would be good if there were places boaters could pick these up locally.
Mike Walker then did an on-screen review of the Deschutes River web site. There were questions and discussion on how this would work on the Arkansas, if it would be by boat, type of boat or per person. Since capacities are set by number of boats, one permit per boat seems like the cleanest way to issue permits. It was also discussed that we should look at a system whereby any craft carrying 3 or more people would be considered a raft, less than 3 would be considered a kayak. Pat W was concerned because 1 person in a raft would pay more, and we need to address how to make this equitable.
Dave T stressed the fact that we need to keep our system simple. Mike H said if there was a per head charge, we could still reach the same goal. Craig noted AHRA does this with a park pass, therefore only a boat permit should be needed. Rob agreed that private boaters would need both a permit and park pass, but if they are not using AHRA sites for access, only a boat permit would be needed. Stew remarked that regardless, from a law enforcement standpoint, each boat needs a permit.
P.T. was concerned that if AHRA is issuing boater permits to minimize impacts, 8 people per boat create more impacts that one person, so a per person charge would be more equitable. Rob said we could look at how many people are in each party and figure the permit fee accordingly. Dave S reported that according to AHRA?s river-wide calculations, there is an average of 1.3 people per boat. P.T. mentioned looking at the Westwater permit site also.
Jay said he is in favor of one permit for multiple people. The trip leader should be listed as the permit holder, but guests should not have to be listed by name. Rob thought this might create problems with verification, but Nomi commented the boat permit would be confirmation for the trip and would eliminate any problems. Chad suggested there should be a limit on how many permits one person can buy at a time, such as a limit of four.
Mike H would like to see a transferable permit, so if the person who made the reservation can?t use it, the permit can be used by another person and not wasted. Jay agreed we need flexibility for no-shows. Rob would like to encourage people to release their permits if they can?t use them, and also try to avoid a situation where someone gets ten permits in hopes that they will use them, but then only uses five. This means five are not being used, and a limit of one permit per boat/boater would prevent this. We need to be able to track permits, who used theirs and who didn?t, and Rob commented we will look into a way to track these.
John remarked there should be penalties for last minute cancellations, and Rob explained Reserve America always keeps their percentage regardless. If people don?t cancel in advance within a given time period, they lose the entire amount paid. Mike H recommended we have walk-in permits available for those who make a last-minute decision.
Jay suggested that information for the Date of Birth not be necessary. He also suggested linking the permit site with the AHRA State Parks site for easier access. Rich mentioned the initial system we develop should be simple, and we can always make changes as we go along.
This completed the review of the Deschutes program, and there was a short break for lunch.
Private Boater Permit System Discussion (Continued)
Pat W wondered if unused commercial user days could be transferred to the private sector, but Rob explained the Management Plan prohibits this.
Patricia was attending as a member of the public, but the committee decided that Patricia should participate as part of the planning team. She accepted the opportunity of being involved with the process.
To sum up the meeting Rob suggested that we list items everyone agreed to as important to the direction we should go. The group can take these initial ideas to their constituents, and by the next meeting a more solid plan will be prepared. We will also list items that require further investigation and discussion.
Minutes of this meeting will be compiled as soon as possible and sent to everyone present so these can be distributed. AHRA staff will also talk with other State Parks staff and Reserve America before the next meeting to answer some of the above questions. The next meeting was set for December 13th, 2001, at 10:00 a.m. at the Arkansas Headwaters office in Salida.
The meeting was adjourned at 1:20 p.m.
This and future information will be posted on www.arkrivertrust.org. If you would like to make comments regarding the Private Boater Permit System, you can contact the following committee members:
Private Boater Permit System Planning Team Meeting, 11-15-01
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