Kane County has authority under the 1866 mining law, RS2477, that allowed local governments to claim rights of way across federal land.
http://www.heraldextra.com/content/view/182246/
San Juan, Kane and Garfield counties graded 16 routes they claimed under the RS2477 law. Six of the routes were in wilderness study areas and nine in the national monument.
“Six others traverse a mesa overlooking the entrance corridor to the Needles District of Canyonlands National Park,”
http://www.deseretnews.com/article/1,5143,635163187,00.html?pg=3