Chapter 1 – Introduction ...... 1-1 Purpose ...... 1-1 Background ...... 1-1 Location of the Plan Area ...... 1-1 Administrative Units in the NCA ...... 1-3 Units Within the NCA ...... 1-3 Cebolla Wilderness ...... 1-3 West Malpais Wilderness ...... 1-3 Chain of Craters WSA ...... 1-3 Canyons WSA ...... 1-6 Brazo Unit ...... 1-6 Breaks Unit ...... 1-6 Cerritos de Jaspe Unit ...... 1-6 Cerro Brillante Unit ...... 1-6 Continental Divide Unit ...... 1-7 Neck Unit ...... 1-7 Spur Unit ...... 1-7 Units Within the Plan Area But Outside the NCA ...... 1-7 Brazo Non-NCA Unit ...... 1-7 Breaks Non-NCA Unit ...... 1-7 Units Outside the Plan Area & NCA ...... 1-7 Cerro Brillante-AFO Unit ...... 1-7 Continental Divide-AFO Unit ...... 1-8 Tank Canyon-SFO Unit ...... 1-8 Techado Mesa-SFO Unit ...... 1-8 Management of the NCA Since Its Establishment ...... 1-8 The BLM Planning Process ...... 1-8 Plan Amendments ...... 1-8 Planning Issues & Criteria for the Approved Plan ...... 1-9 Planning Issues & Criteria for the Rio Puerco RMP ...... 1-13 Implementation ...... 1-13 Monitoring and Evaluating the Plan ...... 1-14 Maintaining the Plan ...... 1-14 Changing the Plan ...... 1-14 Relationship to Other BLM Planning Levels and Studies ...... 1-14 Public Participation ...... 1-14

Chapter 2 – Resource Plans ...... 2-1 Introduction ...... 2-1 Format ...... 2-1

Recreation Program Goals ...... 2-3 Management Guidance ...... 2-3 Policy and Authorities ...... 2-3 Field Office Program Guidance ...... 2-3 Decisions From Approved El Malpais Plan ...... 2-6 Criteria for Resolution of El Malpais Plan Issues ...... 2-8 Guidance From Rio Puerco RMP ...... 2-8 Criteria for Resolution of RMP Issues ...... 2-8 Implementation Guidance From RMP ...... 2-9 Decisions Carried Forward From Previous Planning ...... 2-8 Monitoring/Studies ...... 2-9 Implementation Priorities ...... 2-9 Support Needs ...... 2-10

Interpretation/Public Education Program ...... 2-11 Program Goals ...... 2-11 Management Guidance ...... 2-11 Policy and Authorities ...... 2-11 Field Office Program Guidance ...... 2-11 Decisions From the Approved Plan ...... 2-14 Criteria for Resolution of El Malpais Plan Issues ...... 2-14 Guidance From Rio Puerco RMP ...... 2-14 Criteria for Resolution of RMP Issues ...... 2-14 Decisions Carried Forward From Previous Planning ...... 2-14 Monitoring/Studies ...... 2-14 Implementation Priorities ...... 2-14 Support Needs ...... 2-15

Visual Resource Management ...... 2-17 Program Goals ...... 2-17 Management Guidance ...... 2-17 Policy and Authorities ...... 2-17 Field Office Program Guidance ...... 2-17 Decisions From Approved El Malpais Plan ...... 2-19 Criteria for Resolution of El Malpais Plan Issues ...... 2-19 Guidance From Rio Puerco RMP ...... 2-21 Criteria for Resolution of RMP Issues ...... 2-21 Monitoring/Studies ...... 2-21 Implementation Priorities ...... 2-21 Support Needs ...... 2-21

Recreation Facilities Development ...... 2-23 Program Goals ...... 2-23 Management Guidance ...... 2-23 Policy and Authorities ...... 2-23 Field Office Program Guidance ...... 2-23 Decisions From Approved El Malpais Plan ...... 2-24 General Recreation Facilities ...... 2-25 Trails, Trailheads, and Access Points ...... 2-30 Criteria for Resolution of El Malpais Plan Issues ...... 2-34 Guidance From Rio Puerco RMP ...... 2-34 Criteria for Resolution of RMP Issues ...... 2-34 Implementation Guidance From RMP ...... 2-36 Decisions Carried Forward From Previous Planning ...... 2-36 Monitoring/Studies ...... 2-36 Implementation Priorities ...... 2-37 Support Needs ...... 2-38

Off-Highway Vehicles ...... 2-41 Program Goals ...... 2-41 Management Guidance ...... 2-41 Policy and Authorities ...... 2-41 Field Office Program Guidance ...... 2-41 Decisions From Approved El Malpais Plan ...... 2-42 Criteria for Resolution of El Malpais Plan Issue ...... 2-71 Guidance from Rio Puerco RMP ...... 2-71 Criteria for Resolution of RMP Issues ...... 2-71 Implementation Guidance from RMP ...... 2-71 Monitoring/Studies ...... 2-71 Implementation Priorities ...... 2-72 Support Needs ...... 2-72

Wilderness Management ...... 2-75 Program Goals Management Guidance ...... 2-75 Policy and Authorities ...... 2-75 Field Office Program Guidance ...... 2-75 Decisions From Approved El Malpais Plan ...... 2-77 Designated Wilderness (Cebolla & West Malpais Wildernesses) ...... 2-77 Wilderness Study Areas (Chain of Craters & Canyons WSAs) ...... 2-79 Criteria for Resolution of El Malpais Plan Issues ...... 2-85 Guidance From Rio Puerco RMP ...... 2-85 Criteria for Resolution of RMP Issues ...... 2-85 Monitoring/Studies ...... 2-85 Implementation Priorities ...... 2-86 Support Needs ...... 2-86

American Indian Uses & Traditional Cultural Practices ...... 2-89 Program Goals ...... 2-89 Management Guidance ...... 2-89 Policy and Authorities ...... 2-89 Field Office Program Guidance ...... 2-89 Decisions From Approved El Malpais Plan ...... 2-90 Criteria for Resolution of El Malpais Plan Issues ...... 2-90 Guidance from Rio Puerco RMP ...... 2-90 Monitoring/Studies ...... 2-90 Support Needs ...... 2-91

Cultural Resources ...... 2-93 Program Goals ...... 2-93 Management Guidance ...... 2-93 Policy and Authorities ...... 2-93 Field Office Program Guidance ...... 2-93 Decisions From Approved El Malpais Plan ...... 2-94 Use Allocation ...... 2-95 Compliance with the National Historic Preservation Act ...... 2-95 Inventory & Baseline Condition ...... 2-95 Scientific Investigation ...... 2-95 Pottery Collection ...... 2-96 Signs ...... 2-96 Recreation & Recreation Facilities ...... 2-96 Prairie Dog Colony Enhancement Area ...... 2-97 Access Easements & Consolidation of Ownership ...... 2-97 Road Closure ...... 2-97 Formal Monitoring ...... 2-97 Stabilization ...... 2-98 Fire Management ...... 2-98 Vegetation ...... 2-98 Rangeland Resources ...... 2-98 Special Designations ...... 2-100 Public Interpretation ...... 2-100 Criteria for Resolution of El Malpais Plan Issues ...... 2-100 Guidance From Rio Puerco RMP ...... 2-100 Criteria for Resolution of RMP Issues ...... 2-101 Implementation Guidance From RMP ...... 2-101 Decisions Carried Forward From Previous Planning ...... 2-101 Monitoring/Studies ...... 2-101 Implementation Priorities ...... 2-102 Support Needs ...... 2-102

Wildlife Habitat Management ...... 2-105 Program Goals ...... 2-105 Management Guidance ...... 2-105 Policy and Authorities ...... 2-105 Field Office Program Guidance ...... 2-105 Decisions From Approved El Malpais Plan ...... 2-108 Prescribed Fire & Wildland Fire Use ...... 2-108 Prairie Dog Colony Enhancement Area ...... 2-108 Wildlife Water Catchments ...... 2-109 Riparian Fencing ...... 2-109 Wildlife Re-Introductions ...... 2-109 Miscellaneous Wildlife Projects/Operations ...... 2-109 Criteria for Resolution of El Malpais Plan Issues ...... 2-110 Guidance From Rio Puerco RMP ...... 2-110 Criteria for Resolution of RMP Issues ...... 2-110 Implementation Guidance From RMP ...... 2-110 Decisions Carried Forward From Previous Planning ...... 2-111 Monitoring/Studies ...... 2-111 Implementation Priorities ...... 2-112 Support Needs ...... 2-112

Threatened and Endangered & Other Special-Status Species ...... 2-115 Program Goals ...... 2-115 Management Guidance ...... 2-115 Policy and Authorities ...... 2-115 Field Office Program Guidance ...... 2-115 Decisions From Approved El Malpais Plan ...... 2-117 Prescribed Fire & Wildland Fire Use ...... 2-117 Prairie Dog Colony Enhancement Area ...... 2-117 Riparian Fencing ...... 2-117 Wildlife Re-Introductions ...... 2-118 Miscellaneous Wildlife Projects/Operations ...... 2-118 Criteria for Resolution of El Malpais Plan Issues ...... 2-118 Guidance From Rio Puerco RMP ...... 2-118 Criteria for Resolution of RMP Issues ...... 2-118 Implementation Guidance From RMP ...... 2-118 Decisions Carried Forward From Previous Planning ...... 2-119 Monitoring/Studies ...... 2-119 Implementation Priorities ...... 2-119 Support Needs ...... 2-120 Vegetation/Potential Natural Communities ...... 2-121 Program Goals ...... 2-121 Management Guidance ...... 2-121 Policy and Authorities ...... 2-121 Field Office Program Guidance ...... 2-121 Decisions From Approved El Malpais Plan ...... 2-123 Criteria for Resolution of El Malpais Plan Issues ...... 2-124 Monitoring/Studies ...... 2-124 Implementation Priorities ...... 2-125 Support Needs ...... 2-125

Forest and Woodland Resources ...... 2-127 Program Goals ...... 2-127 Management Guidance ...... 2-127 Policy and Authorities ...... 2-127 Field Office Program Guidance ...... 2-127 Decisions From Approved El Malpais Plan ...... 2-128 Criteria for Resolution of El Malpais Plan Issues ...... 2-129 Guidance From Rio Puerco RMP ...... 2-129 Criteria for Resolution of RMP Issues ...... 2-129 Implementation Guidance From RMP ...... 2-130 Decisions Carried Forward From Previous Planning ...... 2-131 Monitoring/Studies ...... 2-131 Implementation Priorities ...... 2-131 Support Needs ...... 2-131

Rangeland Resources ...... 2-133 Program Goals ...... 2-133 Management Guidance ...... 2-133 Policy and Authorities ...... 2-133 Field Office Program Guidance ...... 2-133 Decisions From Approved El Malpais Plan ...... 2-139 Criteria for Resolution of El Malpais Plan Issues ...... 2-140 Guidance From Rio Puerco RMP ...... 2-141 Criteria for Resolution of RMP Issues ...... 2-141 Decisions Carried Forward From Previous Plans ...... 2-141 Monitoring/Studies ...... 2-142 Implementation Priorities ...... 2-142 Support Needs ...... 2-143

Riparian ...... 2-145 Program Goals ...... 2-145 Management Guidance ...... 2-145 Policy and Authorities ...... 2-145 Field Office Program Guidance ...... 2-146 Decisions From Approved El Malpais Plan ...... 2-146 Guidance From Rio Puerco RMP ...... 2-147 Criteria for Resolution of RMP Issues ...... 2-147 Decisions Carried Forward From Previous Plans ...... 2-147 Decisions From Riparian EIS ...... 2-147 Monitoring/Studies ...... 2-148 Implementation Priorities ...... 2-148 Support Needs ...... 2-148 Soil, Water, & Air Resources ...... 2-149 Program Goals ...... 2-149 Management Guidance ...... 2-149 Policy and Authorities ...... 2-149 Field Office Program Guidance ...... 2-149 Decisions From Approved El Malpais Plan ...... 2-150 Criteria for Resolution of El Malpais Plan Issues ...... 2-151 Guidance From Rio Puerco RMP ...... 2-151 Criteria for Resolution of RMP Issues ...... 2-151 Implementation Guidance From RMP ...... 2-151 Decisions Carried Forward From Previous Planning ...... 2-151 Monitoring/Studies ...... 2-152 Implementation Priorities ...... 2-152 Support Needs ...... 2-152

Fire Management ...... 2-153 Program Goals ...... 2-153 Management Guidance ...... 2-153 Policy and Authorities ...... 2-153 Field Office Program Guidance ...... 2-153 Decisions From Approved El Malpais Plan ...... 2-154 Joint Fire Management Plan ...... 2-154 Approved Plan Resource Decisions ...... 2-157 Criteria for Resolution of El Malpais Plan Issues ...... 2-158 Guidance From Rio Puerco RMP ...... 2-158 Criteria for Resolution of RMP Issues ...... 2-158 Decisions Carried Forward From Previous Planning ...... 2-158 Monitoring/Studies ...... 2-158 Implementation Priorities ...... 2-159 Support Needs ...... 2-159

Lands & Realty ...... 2-161 Program Goals ...... 2-161 Management Guidance ...... 2-161 Policy and Authorities ...... 2-161 Field Office Program Guidance ...... 2-161 Decisions From Approved El Malpais Plan ...... 2-162 Criteria for Resolution of El Malpais Plan Issues ...... 2-165 Guidance From Rio Puerco RMP ...... 2-165 Criteria for Resolution of RMP Issues ...... 2-165 Implementation Guidance from RMP ...... 2-165 Decisions Carried Forward from Previous Planning ...... 2-166 Guidance from El Malpais NCA Land Protection Plan ...... 2-167 Priorities and Rationale ...... 2-167 Monitoring/Studies ...... 2-173 Implementation Priorities ...... 2-173 Support Needs ...... 2-173

Geology & Paleontology ...... 2-175 Program Goals ...... 2-175 Management Guidance ...... 2-175 Policy and Authorities ...... 2-175 Field Office Program Guidance ...... 2-175 Decisions From Approved El Malpais Plan ...... 2-175 Guidance From Rio Puerco RMP ...... 2-175 Criteria for Resolution of RMP Issues ...... 2-175 Implementation Guidance From RMP ...... 2-176 Decisions Carried Forward From Previous Planning ...... 2-176 Monitoring/Studies ...... 2-176 Implementation Priorities ...... 2-176 Support Needs ...... 2-176

Mineral Resources ...... 2-177 Program Goals ...... 2-177 Management Guidance ...... 2-177 Policy and Authorities ...... 2-177 Field Office Program Guidance ...... 2-177 Decisions From Approved El Malpais Plan ...... 2-178 Guidance From Rio Puerco RMP ...... 2-178 Criteria for Resolution of RMP Issues ...... 2-179 Implementation Guidance From RMP ...... 2-179 Monitoring/Studies ...... 2-179 Implementation Priorities ...... 2-179 Support Needs ...... 2-179

Hazardous Materials Management ...... 2-181 Program Goals ...... 2-181 Management Guidance ...... 2-181 Policy and Authorities ...... 2-181 Field Office Program Guidance ...... 2-181 Decisions From Approved El Malpais Plan ...... 2-181 Criteria for Resolution of El Malpais Plan Issues ...... 2-182 Guidance From Rio Puerco RMP ...... 2-182 Monitoring/Studies ...... 2-182 Implementation Priorities ...... 2-182 Support Needs ...... 2-182

Invasive & Noxious Plants ...... 2-183 Management Guidance ...... 2-183 Policy & Authorities ...... 2-183 Program Goals ...... 2-183 Management Guidance ...... 2-183 Policy and Authorities ...... 2-183 Field Office Program Guidance ...... 2-183 Decisions From Approved El Malpais Plan ...... 2-184 Criteria for Resolution of El Malpais Plan Issues ...... 2-184 Guidance From Rio Puerco RMP ...... 2-184 Implementation Guidance From RMP ...... 2-184 Monitoring/Studies ...... 2-185 Implementation Priorities ...... 2-185 Support Needs ...... 2-185

Appendices Appendix A–Highlights of the El Malpais Act (PL 100-225) Appendix B–Record of Decision for the El Malpais Plan Appendix C–Recreation Opportunity Spectrum Appendix D–Limits of Acceptable Change Appendix E–Wildlife Species Known or Potentially Occurring within Cibola County Appendix F–Common & Special-Status Plant Species (Vascular) Appendix G–Background Information on Potential Natural Vegetative Communities Appendix H–Changes in Livestock Grazing Management

Abbreviations & Acronyms

Glossary

References LIST OF MAPS, FIGURES, & TABLES

Maps Map 1-1 El Malpais General Location ...... 1-2 Map 1-2 Plan Area NCA Units ...... 1-4 Map 2-1 Recreation Opportunity Spectrum ...... 2-4 Map 2-2 Recreation Facilities ...... 2-7 Map 2-3 Visual Resource Management (VRM) Classes ...... 2-20 Map 2-4 Routes ...... 2-43 Map 2-5 Route Designation Index Map ...... 2-44 Map 2-5a Grants ...... 2-45 Map 2-5b Grants SE ...... 2-46 Map 2-5c San Rafael ...... 2-47 Map 2-5d Paxton Springs ...... 2-48 Map 2-5e Valle Largo ...... 2-49 Map 2-5f Goat Hill ...... 2-50 Map 2-5g Cerro Hueco ...... 2-51 Map 2-5h Ice Caves ...... 2-52 Map 2-5i Arrosa Ranch ...... 2-53 Map 2-5j Los Pilares ...... 2-54 Map 2-5k Laguna Honda ...... 2-55 Map 2-5l North Pasture ...... 2-56 Map 2-5m Ice Caves SE ...... 2-57 Map 2-5n Cerro Brillante ...... 2-58 Map 2-5o Cerro Alto ...... 2-59 Map 2-5p Cerro Pomo ...... 2-60 Map 2-5q La Rendija ...... 2-61 Map 2-5r York Ranch ...... 2-62 Map 2-5s Sand Canyon ...... 2-63 Map 2-5t Cebollita Peak ...... 2-64 Map 2-5u Mecate Meadow ...... 2-65 Map 2-5v Wiley Mesa ...... 2-66 Map 2-5w Wild Horse Canyon ...... 2-67 Map 2-5x Bonine Canyon ...... 2-68 Map 2-5y York Ranch SE ...... 2-69 Map 2-6 Canyons WSA Index Map ...... 2-80 Map 2-6a North Pasture ...... 2-81 Map 2-6b Sand Canyon ...... 2-82 Map 2-6c Cebollita Peak ...... 2-83 Map 2-6d Bonine Canyon ...... 2-84 Map 2-7 Relative Density of Anasazi Sites ...... 2-99 Map 2-8 Overlap of Grazing Allotments w/Plan Area Boundaries ...... 2-135 Map 2-9 Fire Management Units ...... 2-156 Map 2-10 Proposed NCA Boundary ...... 2-164 Map 2-11 Private Minerals in NCA ...... 2-169 Map 2-12 Private Inholdings in NCA ...... 2-171 Map D Opportunity Classification for Limits of Acceptable Change ...... D-2

Figures Figure 2-a The Narrows Day-Use Recreational Site ...... 2-26 Figure 2-b Back Country Byway Sign ...... 2-27 Figure 2-c Typical Kiosk ...... 2-27 Figure 2-d Typical Pullout for Sign & Kiosk ...... 2-28 Figure 2-e Typical Off-Roadway Kiosk ...... 2-29 Figure 2-f Dittert Site/Armijo Canyon Homestead Trailhead Facility to Accommodate Horseback Riders 2-32 Figure 2-g Typical Trailhead Facility to Accommodate Horseback Riders ...... 2-34 Figure 2-h Typical Pullout Trailhead Facility ...... 2-35 Figure 2-i Typical Off-Roadway Trailhead Facility ...... 2-35

Tables Table 1-1 Acreage for El Malpais National Conservation Area, the Plan Area & Areas Recommended for Addition to the NCA ...... 1-5 Table 2-1 Recreation Opportunity Spectrum Classifications for the Plan Area ...... 2-3 Table 2-2 VRM Classes Assigned to Public Land in the Plan Area ...... 2-19 Table 2-3 Trailheads in the Plan Area ...... 2-31 Table 2-4 Motor Vehicle Designations in the Plan Area ...... 2-42 Table 2-5 Status of Motor Vehicle Access Routes Within the Limited Area ...... 2-70 Table 2-6 Cultural Resource Management Objectives and Use Allocations ...... 2-93 Table 2-7 Wildlife Projects To Be Maintained Under the El Malpais Plan ...... 2-107 Table 2-8 PNC Objectives for Grass-Shrublands ...... 2-122 Table 2-9 PNC Objectives for Forests and Woodlands & Forests ...... 2-122 Table 2-10 Allotment Categorization Criteria ...... 2-136 Table 2-11 Selective Management Categories for Grazing Allotments Overlapping the Plan Area ...... 2-137 Table D-1 El Malpais Conservation Area – Limits of Acceptable Change I ...... D-4 Table D-2 El Malpais Conservation Area – Limits of Acceptable Change II ...... D-5 Table D-3 El Malpais Conservation Area – Limits of Acceptable Change III ...... D-6 Table D-4 El Malpais Conservation Area – Limits of Acceptable Change IV ...... D-7 Table E Wildlife Species Known or Potentially Occurring w/in Cibola County (El Malpais Plan Area) ..E-1 Table F Common & Special-Status Plant Species Known or Potentially Occurring w/in Cibola County . F-1 Table G Potential Natural Communities Compared With Existing Vegetation in El Malpais NCA ...... G-2 Table G-2 Seral Stages in the Plan Area ...... G-3 Table G-3 Ecological Condition of Grazing Allotments Within the Plan Area ...... G-3 Table H-1 Adjustments in Grazing Preference in the Planning Area (1992) ...... H-2 Table H-2 Ongoing Grazing Management Planning for Allotments Overlapping the Planning Area ...... H-2 CHAPTER 1

INTRODUCTION

Purpose also required an implementation plan for a continuing program of interpretive and public education, a proposal for public facilities development, natural and The Albuquerque Field Office (AFO) of the Bureau of cultural resources management plans, a wildlife re- Land Management (BLM) completed the land-use sources management plans, and a wilderness suitabil- planning process for El Malpais National Conserva- ity recommendation for the Chain of Craters Wilder- tion Area (NCA) and certain adjoining lands in Sep- ness Study Area (WSA). In 2000, the NCA became a tember 2001 with the approval of the Record of Deci- part of BLM’s new National Landscape Conservation sion (see Appendix B) for the Proposed El Malpais System (NLCS). The BLM is requiring development Plan and Final Environmental Impact Statement of stand-alone management plans for all units of the (USDI, BLM 2000b). The Approved El Malpais Plan NLCS. The El Malpais Plan has been prepared to amends the Rio Puerco Resource Management Plan meet all of these planning requirements in a single (RMP; USDI, BLM 1986), the land management plan document. It includes all decisions and management for the entire Albuquerque Field Office. RMP deci- guidance currently applicable to the El Malpais Plan sions applicable to the El Malpais Plan Area (see Map Area. The Plan 1-1) continue to be valid except as they were amended recommends a number by the Approved Plan. The Approved Plan also of changes in the included activity-level decisions for management of boundary of the NCA; the resources of the Plan Area. The AFO has pre- these recommenda- pared this “stand-alone plan”–the El Malpais Plan–to tions, as well as the consolidate the RMP amendment decisions and activ- wilderness suitability ity decisions of the Approved El Malpais Plan with the recommendations, can- still applicable Rio Puerco RMP decisions. Implemen- not be implemented tation of the El Malpais Plan will conserve public without Congressional resources while allowing for their use and enjoyment action. by the American people. The Plan will guide the development and use of public resources in the El Malpais Plan Area. Location of the Plan Area Background The El Malpais Plan Area lies south of the city of On December 31, 1987, land previously managed by Grants, New Mexico, primarily in Cibola County (see the Rio Puerco Resource Area of the Albuquerque Map 1-1). This was the Planning Area for the Ap- District (now the AFO) was designated by Congress proved El Malpais Plan, and is the area covered by as El Malpais NCA and El Malpais National Monu- this stand-alone El Malpais Plan. The Plan Area ment. Until that date, the “El Malpais Special Man- encompasses approximately 249,200 acres of Federal agement Area” was administered under the land-use land, 34,600 acres of private land, and 2,500 acres of decisions of the Rio Puerco RMP. On that date, Con- Indian land. It is bordered on the east by the Acoma gress passed the El Malpais Act (Public Law 100-225) Indian Reservation, on the south by Catron and which, in addition to designating El Malpais National Socorro Counties, on the west by Ramah Navajo land, Monument to be managed by the National Park Ser- and on the north by the Zuni Mountain portion of the vice (NPS) and El Malpais NCA to be managed by the Cibola National Forest (see Map 1-1). The northern BLM, required the BLM to develop a general man- section of the Plan Area nearly surrounds, but does agement plan for management of the NCA. The Act not include, El Malpais National Monument,

1-1 Map 1-1 8 ½ x 11

1-2 Introduction Chapter 1 administered by the NPS. The Approved Plan recom- Units Within the NCA mends approximately 15,100 acres in Catron and Socorro Counties managed by the BLM Socorro Field Cebolla Wilderness Office for inclusion in the NCA (see Map 1-2). This recommendation cannot be implemented without This wilderness is located along the east side of New Congressional action. Mexico (NM) 117 from The Narrows to County Road (CR) 41 (the Pietown road). The area encom- Administrative Units in the NCA passes approximately 62,000 acres, of which 99 percent is under BLM administration. The NCA is the primary area addressed in the Plan. It Mesas, canyons, buttes, and wide grassy valleys char- contains four administrative units with additional spe- acterize the area. Sandstone forms a cliff face along cial designations: the Cebolla Wilderness, the West Malpais Wilderness, the Chain of Craters WSA, and the east side of the unit at the base of Cebollita Mesa. The sides of the mesa are covered by recent landslide the new Canyons WSA. For management and de- deposits, while the top is capped by lava flows ap- scriptive purposes, the remainder of the NCA has proximately 2.5 million years old. La Ventana Natural been divided into seven other geographic units: the Brazo, Breaks, Cerritos de Jaspe, Cerro Brillante, Arch, one of the largest in New Mexico, is located in Continental Divide, Neck, and Spur Units (see Map this wilderness, approximately 8 miles south of the 1-2; see Table 1-1 for acreage). The Plan also covers BLM Ranger Station. lands acquired by the BLM since 1987 that are within or adjacent to the NCA. West Malpais Wilderness

The Plan recommends five areas adjoining the NCA This wilderness is located north and east of CR 42 and for incorporation into the NCA. Two of these units southwest of El Malpais National Monument. Vehic- consist of lands outside the NCA but within the Plan ular access along the west side of the area is depend- Area–the Brazo Non-NCA Unit and the Breaks Non- ent on the condition of CR 42, which can become NCA Unit (see Map 1-2). Three units recommended impassable in wet weather. The wilderness encom- for inclusion in the NCA lie completely outside the passes approximately 39,800 acres, of which 99 per- Plan Area–the Continental Divide-AFO Unit (man- cent is under BLM administration. aged by the Albuquerque Field Office), and the Techado Mesa-SFO and Tank Canyon-SFO Units Within the wilderness, volcanic landscapes dominate. (both managed by the BLM Socorro Field Office). Lava flows 800,000 years old and portions of younger Congressional action would be required before any of flows from the National Monument are found in and these adjoining units could become part of the NCA. surround the area. If Congressional action resulted in addition of lands managed by the Socorro Field Office to the NCA, Chain of Craters WSA management would nevertheless continue under the Socorro RMP. The Socorro RMP is currently being This unit is located along the western edge of the amended. The uses proposed for these units by the El NCA between CR 42 and Ramah Navajo Indian land. Malpais Plan will be considered in some of the alter- It encompasses approximately 18,300 acres, all of natives. which are under BLM administration. The Continen- tal Divide and the CDNST cross the western portion A sixth unit, the Cerro Brillante-AFO Unit (within the of the Plan Area in the WSA. area managed by the AFO), includes private lands where BLM would seek only an access easement for Within the WSA, volcanic landscapes predominate. A the Continental Divide National Scenic Trail series of cinder cones is scattered through this area, as (CDNST) unless owners were willing to sell or make well as to the north, rising above a floor of 800,000- an exchange. This unit is outside the Plan Area and is year-old lava flows. The older flows are covered with not proposed for addition to the NCA. Descriptions grass, low shrubs, and piñons and junipers. The high- of all seventeen units follow. est point is Cerro Lobo, at an elevation of 8,345 feet.

1-3 Introduction Chapter 1

Map 1-2 8 ½ x 11

1-4 Introduction Chapter 1

TABLE 1-1

ACREAGE FOR EL MALPAIS NATIONAL CONSERVATION AREA (NCA), THE PLAN AREA, AND AREAS RECOMMENDED FOR ADDITION TO THE NCA (rounded to nearest 100 acres)

Unit BLM Private Indian Total

Within NCA Cebolla Wilderness 61,500 300 200 62,000

West Malpais Wilderness 39,400 400 0 39,800

Chain of Craters Wilderness Study Area 18,300 0 0 18,300

Brazo a 28,700 900 0 29,600

Breaks a 6,500 0 b 0 6,500

Cerritos de Jaspe 10,100 2,600 0 12,700

Cerro Brillante 34,400 1,700 0 36,100

Continental Divide 17,500 6,800 0 24,300

Neck 6,100 19,600 1,500 27,200

Spur 4,600 200 800 5,600

Subtotal NCA 227,100 32,500(+) b 2,500 262,100

Within Plan Area/Outside NCA Brazo Non-NCA (Cibola County) a 10,400 1,700 0 12,100

Breaks Non-NCA (Cibola County) 11,700 400 0 12,100

Subtotal Non-NCA 22,100 2,100 0 24,200

Total Plan Area 249,200 34,600 2,500 286,300

Outside Plan Area & NCA Cerro Brillante-AFO (Cibola County) c 0 2,000 0 2,000

Continental Divide-AFO (Cibola County) 2,000 0 0 2,000

Tank Canyon-SFO (Catron County) d 9,900 200 0 10,100

Techado Mesa-SFO (Catron, Socorro Counties) 5,000 0 e 0 5,000

Subtotal 16,900 2,200(+) e 0 19,100

Grand Total 266,100 36,800 2,500 305,400 Notes: a The new Canyons WSA consists of 3,930 acres (all BLM) in 9 parcels from the Breaks (3,430 acres), Brazo (120 acres), and Brazo Non-NCA (380 acres) Units. If designated by Congress, these parcels will be added to the Cebolla Wilderness. If not designated, they will return to the units they were drawn from. The acreages of these units have not been reduced. b The Breaks Unit contains 22 acres of private land. c AFO is the Albuquerque Field Office (formerly the Rio Puerco Resource Area of the Albuquerque District). BLM will seek an easement for the CDNST across this unit, but the Plan does not recommend its inclusion in the NCA. d SFO is the Socorro Field Office (formerly the Socorro Resource Area of the Las Cruces District). e The Techado Mesa-SFO Unit contains 40 acres of private land. Introduction Chapter 1

Canyons WSA Sandstone mesas, canyons, buttes, and wide grassy valleys characterize the unit. The area is predomi- The new Canyons WSA consists of nine separate nantly piñon-juniper woodlands with scattered sec- parcels located on the periphery of the Cebolla Wil- tions of ponderosa pine forest. Access is by dirt roads derness. These parcels encompass approximately that often become impassable during wet weather. 4,000 acres of BLM-administered land contiguous to the designated wilderness (see Map 2-6 in Chapter 2). Breaks Unit These lands, acquired by BLM through exchange following passage of the El Malpais Act, are located The Breaks Unit is located in the southeastern portion between the current wilderness boundary and high- of the Plan Area just east of NM 117, and is sur- ways, bladed roads, and rights-of-way. Prior to des- rounded by the Cebolla Wilderness. The unit encom- ignation as a WSA they were included within the passes approximately 6,500 acres, all but 22 acres of Breaks (seven parcels), Brazo (one parcel), and Brazo which are under BLM administration. This acreage Non-NCA (one parcel) Units as shown in the Pro- figure includes 3,430 acres for the seven parcels which posed Plan and Final EIS. If Congress designates have been removed from the Breaks Unit for inclusion these lands as wilderness, they will be added to the in the Canyons WSA. These parcels will be returned Cebolla Wilderness. Until all or portions of these to the Breaks Unit if Congress does not add them to lands are either designated by Congress as wilderness the Cebolla Wilderness or released from wilderness study, they will remain in WSA status and be managed under the Interim Man- Mesas, canyons, buttes, and wide grassy valleys make agement Policy (USDI, BLM 1995). If all or any up the unit. The dominant vegetation is shrub-grass- portion of these lands are not designated as wilderness land with intermingled piñon-juniper woodland. by Congress and are released from further wilderness review, they will be returned to the Breaks, Brazo, Cerritos de Jaspe Unit and Brazo Non-NCA Units and managed as prescribed under this Plan. The Cerritos de Jaspe Unit, located in the north-central portion of the Plan Area, is surrounded by the Landscape features found in these lands vary from National Monument, except for about 3 miles along grassy valley bottoms and piñon-juniper woodlands to NM 53. Approximately 12,700 acres make up the ponderosa pine and sandstone mesas. These predomi- unit, with about 80 percent under BLM administra- nantly natural-appearing roadless lands provide an tion. extension of the naturalness, as well as the opportunities for primitive and unconfined recreation and soli- Volcanic landscapes dominate the interior of this unit, tude, which characterize the Cebolla Wilderness. while ancient lava flows and portions of younger These lands have been used primarily for grazing, flows in the National Monument surround it. This recreational activities, and as wildlife habitat. volcanic terrain is combined with sandstone and lime- stone ridges, resulting in a diversity of natural fea- Brazo Unit tures. The ridges are the south end of the Zuni Moun- tains; they support a complex of Douglas fir and pon- The Brazo Unit is located in the extreme southeastern derosa pine forest found here at elevations lower than corner of the NCA, east of the Cebolla Wilderness usually expected. The CDNST crosses the northeast- and south of the Acoma Indian Reservation. This unit ern portion of this unit. provides access to the Cebolla Wilderness from the east-southeast, and encompasses approximately Cerro Brillante Unit 29,600 acres, of which 97 percent is under BLM administration. This acreage figure includes 120 acres The Cerro Brillante Unit extends from the southwest- for the parcel which has been removed from the Brazo ern corner of the NCA along the southern boundary Unit for inclusion in the Canyons WSA. This parcel and to NM 117. The northern boundary is CR 42, will be returned to the Brazo Unit if Congress does which also forms the southern and western boundary not add it to the Cebolla Wilderness. of the West Malpais Wilderness. Approximately

1-6 Introduction Chapter 1

36,100 acres lie within the unit, with 95 percent under woodlands dominate the vegetation. The CDNST BLM administration. follows NM 117 in the Spur Unit.

The landscape of this unit is dominated by rolling hills Units Within the Plan Area But and swales covered with shrub-grasslands and small Outside the NCA clumps of piñon-juniper woodlands. Cerro Brillante, a cinder cone reaching an elevation of approximately Brazo Non-NCA Unit 8,050 feet, gives the unit its name. La Rendija, a large crack in the old basalt flows, bisects the unit from Located just south of the Brazo Unit, this unit con- north to south along the corridor for the CDNST. tains approximately 12,100 acres, of which 86 percent is under BLM administration. This acreage figure Continental Divide Unit includes 380 acres for the parcel which has been removed from the Brazo Non-NCA Unit for inclusion in This unit is located in the northwestern portion of the the Canyons WSA. This parcel will be returned to the NCA, bordered on the east by the National Monu- Brazo Non-NCA Unit if Congress does not add it to ment. The unit encompasses approximately 24,300 the Cebolla Wilderness. These lands have similar acres, about 72 percent of which is under BLM ad- topography and resource values to those of the adja- ministration. A series of aligned, steep-sided volcanic cent Brazo Unit. cinder cones and craters passes through this unit and the Chain of Craters WSA to the southwest. The Breaks Non-NCA Unit corridor for the CDNST also crosses this unit. The Breaks Non-NCA Unit is located just west and Neck Unit south of the Cebolla Wilderness, generally along CR 41. It encompasses approximately 12,100 acres, of The Neck Unit is bounded on the north by Interstate which 97 percent is under BLM administration. More 40 and along the west by NM 53 and the community than 70 percent of this total BLM acreage was ac- of San Rafael. The eastern edge of the unit runs along quired as part of recent land exchanges. NM 117, with the National Monument as its southern boundary. The unit encompasses approximately Open grasslands characterize the unit. Vegetation 27,200 acres, with 22 percent under BLM administra- consists of grasses and shrubs, including blue grama tion. and fringed sage. Part of the unit is classified as having the "sparse to bare" vegetation type, which is This unit is a basalt-floored valley between the Zuni extremely sensitive to climatic variation and surface Mountains on the west and Las Ventanas Ridge on disturbance. the east. It is truncated on the north by Interstate 40. The Rio San Jose and Horace Mesa (southwest of Units Outside the Plan Area & NCA Mount Taylor) lie to the north of this unit. Vegeta- tion is mostly woody shrubs and grasses striving to Cerro Brillante-AFO Unit exist on the older lava flows. The CDNST follows NM 117 in the Neck Unit. This unit within the area managed by the AFO is located on the southern edge of the Cerro Brillante Spur Unit Unit, and consists of three sections of private land outside the current NCA boundary south to NM 117. The Spur Unit is located on the eastern edge of the Like the Cerro Brillante Unit, this unit is dominated NCA, just east of NM 117 and south of the Neck by rolling hills of old lava with open shrub-grassland Unit. The BLM Ranger Station is located within this vegetation. Approximately 3 miles of the route se- unit, which encompasses approximately 5,600 acres lected for the location of the CDNST treadway lie (with 80 percent under BLM administration). within the unit (on 2,000 acres of privately owned land). There is no BLM-administered land within this The unit consists of sandy-bottomed valleys with unit, and the BLM would seek only an access rocky mesa topography along NM 117. Piñon-juniper

1-7 Introduction Chapter 1 easement for the CDNST here unless owners were plans, and project-level plans. An RMP is a general willing to sell or make an exchange. land-use plan as prescribed by the Federal Land Policy and Management Act of 1976 (FLPMA). An RMP Continental Divide-AFO Unit amendment is a modification of a portion of an original RMP. An RMP or RMP amendment is always This unit managed by the AFO is located along the accompanied by an environmental assessment (EA) or northwestern edge of the Continental Divide Unit, environmental impact statement (EIS) in compliance bordered on the south and east by the NCA boundary with the National Environmental Policy Act (NEPA). and on the north and west by private lands. It encompasses approximately 2,000 acres, all of which are An activity plan is a more detailed and specific plan under BLM administration. The topography of the for managing a single resource program or special unit is similar to that of the adjacent Continental Di- management unit. Examples include a cultural re- vide Unit. sources management plan, a wildlife habitat management plan, or a wilderness management plan. An Tank Canyon-SFO Unit activity plan is accompanied by a NEPA document, usually an EA, but occasionally in a more complex This unit managed by the BLM Socorro Field Office situation, by an EIS. (SFO) adjoins the southwestern edge of the Plan Area south of the Breaks Non-NCA Unit, and contains A project plan is a detailed, site-specific plan for de- approximately 10,100 acres. Most of the unit is con- veloping a particular project, such as an interpretive tained in a scenic area of rolling topography, with kiosk, a wildlife guzzler, or a campground. Project dominant piñon and juniper vegetation. plans are usually accompanied by an EA.

Techado Mesa-SFO Unit Both RMP decisions (from the Rio Puerco RMP and subsequent amendments, including the Approved El This unit managed by the SFO adjoins the southeast- Malpais Plan) and activity-level decisions (from the ern edge of the Plan Area south of the Brazo Non- Approved El Malpais Plan) are included in this Plan. NCA Unit, and contains approximately 5,000 acres, All decisions have been analyzed through the NEPA only 40 acres of which is privately owned. This area process. Because the activity-level decisions were has rolling topography and a high, steep-sided mesa included for analysis in the EIS associated with the capped by lava flows. Vegetation is dominated by Proposed Plan, they will require only site-specific piñon-juniper woodland and ponderosa pine forest cultural resources clearances, special-status species with some oak/deciduous understory. Small playa clearances, and in some cases, American Indian con- lakes form seasonally on the mesa top. sultation, to complete compliance with NEPA before implementation. Management of the NCA Since Plan Amendments Its Establishment Decisions for four of the ten issues in the Approved El The El Malpais Act contains specific directives for the Malpais Plan amended the Rio Puerco RMP: Issue 1– BLM regarding planning and management of the Recreation/Visual Resource Management (VRM), NCA. See Appendix A for legislative highlights. Issue 3–Access and Transportation, Issue 5– Since the signing of the Act on December 31, 1987, Wilderness Suitability, and Issue 10–Boundary and the AFO (along with other agencies and groups) has Land Ownership Adjustments. completed a number of actions in the NCA under the Rio Puerco RMP. The Approved Plan decisions amended the Rio Puerco RMP by adjusting some previously assigned The BLM Planning Process VRM classes within the NCA, and by assigning classes to lands acquired outside the NCA after com- The BLM develops three types of land-use plans: pletion of the RMP. VRM classes influence the loca- RMPs (including RMP amendments), activity-level tion of recreational and other facilities.

1-8 Introduction Chapter 1

The Approved Plan specified motor vehicle use Issue 1–Recreation designations. The designated wildernesses are closed to motor vehicles. Motor vehicle use is limited to Designation of the NCA by Congress gave formal designated routes and trails in the remainder of the recognition to the area's public recreational values. Plan Area. In addition, approximately 84 miles of The area is relatively undeveloped but attracts visitors road within the Plan Area will be closed and re- who want to participate in a variety of recreational claimed. All changes in motor vehicle use area desig- activities and settings. The recreational demand in the nations and route designations amended the RMP. Planning Area is expected to increase because of population growth within a day's driving time of the area, For the Wilderness Suitability Issue, the Approved its accessibility from three highways, and the in- Plan recommended approximately 4,000 acres for creased publicity the area is receiving. designation by Congress as wilderness. This land, in nine parcels contiguous to the Cebolla Wilderness, Issue Questions was formerly part of the Breaks, Brazo, and Brazo Non-NCA Units. These scattered parcels now form ! What range of recreational opportunities (e.g., the Canyons WSA (see Map 2-6 in Chapter 2). The off-road vehicle touring, biking, horseback riding, Chain of Craters WSA was not recommended as suit- backpacking, hiking) should be provided to meet able for designation as wilderness. the wide variety of public demands?

The Approved Plan amended the RMP for Issue 10, ! What BLM actions are needed to provide these Boundary and Land Ownership Adjustments, by rec- recreational opportunities? ommending various changes in the boundary of the NCA. These changes are described in detail in Planning Criteria Chapter 2, and require Congressional approval. The BLM will consider the following factors in devel- Planning Issues & Criteria for the oping answers to the above questions: Approved Plan Ë Existing recreational use and facilities;

The ten issues resolved through the RMP amendment Ë Public demand for recreational activities, settings, process in the Approved El Malpais Plan were identi- and opportunities; fied based upon the judgement of an interdisciplinary team of resource specialists, interagency consultation, Ë Compatibility with other land and resources uses; local, State and Tribal government input, review by BLM managers, and through extensive discussions Ë Public health and safety; with individuals, industry representatives, and public interest groups. Ë Public interests and concerns; and

Resolution of some of the issues was dependent on Ë Coordination with the NPS. data available at the time of preparation of the Pro- posed El Malpais Plan and Final EIS. The decisions Issue 2–Facility Development for these issues provide that future actions based on new data may be approved as long as such actions The Planning Area is characterized as a predominantly conform with goals of the Approved Plan and the natural environment with few facilities for the comfort planning criteria used originally to guide resolution of and convenience of visitors. Current facilities include the issue. For some issues, implementation of the a Ranger Station with interpretive exhibits on the east decisions of the Approved Plan relies on future activ- side; a parking area, trail and restrooms at La Ventana ity planning. The criteria will continue to apply as Natural Arch; and a picnic/camping area at the south guidelines for preparation of activity plans. For this end of The Narrows. Examples of facilities that could reason, the issues and criteria formulated at the begin- be developed are trailheads, kiosks, interpretive sign- ning of the planning process are listed below. ing, parking areas, toilets, water sources, and visitor centers.

1-9 Introduction Chapter 1

Issue Questions ! Are new easement acquisitions not identified in the BLM's NCA Land Protection Plan (USDI, ! What level of facility development is appropriate? BLM 1989b) needed to ensure public access?

! Where should the BLM provide facilities? Planning Criteria

Planning Criteria The BLM will consider the following information in answering these issue questions: The BLM will examine the following factors in answering these issue questions: Ë Existing roads and trails;

Ë Existing facilities; Ë Compatibility with other land and resource uses; and Ë Resource protection; Ë Public interests and concerns, including those of Ë Visitor health and safety; local American Indian groups.

Ë Site location and design; Issue 4–Wilderness Management

Ë Public interests and concerns; and The El Malpais Act designated two wildernesses within the NCA, the West Malpais Wilderness (39,800 Ë Coordination with the NPS. acres) and the Cebolla Wilderness (62,000 acres). The El Malpais Act allows for the continuation of Issue 3–Access & Transportation livestock grazing, hunting, and trapping in these areas. (Motorized & Non-Motorized) The Act also recognizes the need for access by local American Indians for traditional cultural and religious Through the Rio Puerco RMP, the BLM limited vehi- practices, and provides for the scientific use of arche- cle use in the area to existing roads and trails. The ological resources in the Cebolla Wilderness. exception is in the two wildernesses (Issue 4), where vehicle use and mechanized travel are prohibited. Issue Questions [Following definition of this issue, it was determined that a small portion of the Planning Area had been left ! What actions are needed to protect and preserve open to motor vehicle use under the RMP.] County the natural features of each wilderness, while Roads 41, 42 and 103, and State Highways 53 and offering visitors an outstanding opportunity for 117 provide access to the Planning Area. Numerous solitude or a primitive and unconfined type of routes exist outside the wildernesses; from these, recreation? people use their cars, off-highway vehicles, bicycles, horses, and other means to gain access into the Plan- ning Area. The BLM has inventoried these routes.

Also, a route through the Planning Area has been selected for the Continental Divide National Scenic Trail. Access to the route may need to be acquired.

Issue Questions

! What roads and trails should the BLM provide for access to or across the Planning Area's public Golden Eagle lands?

! Which roads and trails should be designated as open, limited, or closed to use?

1-10 Introduction Chapter 1

! How can the BLM provide access for traditional ! Do the recently acquired lands within the Plan- cultural and religious practices by local American ning Area have wilderness values suitable for Indians and still be consistent with the Wilderness inclusion in the NWPS? Act? Planning Criteria ! What forms of scientific use of archeological resources can or should be authorized in the The BLM will examine the following factors in an- Cebolla Wilderness? What permit conditions are swering these issue questions: needed? Ë Mandatory wilderness values of size, naturalness, Planning Criteria and an outstanding opportunity either for solitude or for primitive and unconfined recreation; The BLM has considered the following factors in answering these issue questions. Ë Special features, such as landforms or geological expressions; Ë Management proposals that benefit the wilderness resource; Ë Proximity to existing wilderness;

Ë Public interests and concerns; and Ë Contribution to the diversity in the NWPS;

Ë Maintenance requirements for range improve- Ë Ramah Navajo Indian concerns; and ments. Ë Manageability of the area as wilderness. Issue 5–Wilderness Suitability Issue 6–American Indian Uses Before passage of the El Malpais Act, the BLM had & Traditional Cultural Practices designated El Malpais as a Special Management Area. In addition, portions of El Malpais had been desig- Several American Indian groups use the Planning nated as an Outstanding Natural Area, a Natural Envi- Area for traditional religious and cultural practices. ronmental Area, and a National Natural Landmark. Acoma Pueblo and the Ramah Navajo have taken a Upon passage of the Act, these designations were strong interest in the BLM’s management of the area; superseded by the NCA and National Monument other tribes such as the Zuni, Laguna, Alamo Navajo, designations. and Cañoncito Navajo may also have concerns. Prin- cipal issues include access to sacred places and pri- By establishing the NCA, Congress recognized the vacy for religious practices, as well as continued ac- outstanding historic, scenic, natural, and cultural re- cess to areas used for hunting, piñon picking, and sources of the area. The El Malpais Act directs the gathering of other traditional plants and minerals. BLM to conduct a study of the Chain of Craters area and submit a recommendation as to its suitability for Issue Questions inclusion in the National Wilderness Preservation System (NWPS). ! How can the BLM facilitate traditional cultural and religious practices within the Planning Area? Since the designation of the NCA in 1987, the BLM has acquired additional lands contiguous to the ! What actions can the BLM take to minimize con- Cebolla Wilderness. These newly acquired lands are flict between traditional practices and other uses? also being evaluated for their wilderness suitability. Planning Criteria Issue Questions To answer these questions, the BLM has considered ! Is the Chain of Craters WSA suitable for recom- the following information: mendation for inclusion in the NWPS?

1-11 Introduction Chapter 1

Ë Traditional cultural and religious practices, uses Issue 8–Wildlife Habitat and sensitive areas, including scheduling and par- ticipants; Public lands in the Planning Area provide habitat for a variety of wildlife species. Special management atten- Ë NCA legislative requirements; and tion is needed to restore, maintain, or enhance priority species and their habitats. If these are not properly Ë Formal and informal means of communicating managed, other uses of the public land can impact and coordinating with local American Indian wildlife habitat. Integrating habitat management with groups and individuals. other resource programs requires careful planning to minimize impacts to priority species and their habitats, Issue 7–Cultural Resources while still providing for other uses of the public land.

The Planning Area is noted for its cultural resources. Issue Questions Archeological sites in this area span the past 12,000 years and are important for the scientific information ! What wildlife species and their habitats should they contain. At the same time, many of these same receive management priority? sites figure prominently in the history of several local American Indian tribes, and are very important in ! What maintenance, improvement, and expansion traditional cultural practices and belief. Other more objectives and actions (including vegetative ma- recent sites provide links to the Hispanic and Anglo nipulation) should the BLM identify for these history of this area. The BLM manages these re- species and habitats? sources for their information potential, for their public values, or for conservation. Planning Criteria

Issue Questions To help answer these questions, the BLM has considered the following factors: ! What management objectives should the BLM establish for cultural resources in the Planning Ë Input from Federal and State wildlife agencies Area? and the scientific community;

! What actions should the BLM take to achieve Ë Species and habitat of high public and scientific these objectives? interest;

Planning Criteria Ë Species habitat requirements;

To develop answers for these issue questions, the Ë Vegetative communities and habitat condition; BLM has considered the following information: Ë Conflicts between exotic and native species; and Ë The relative importance and sensitivity of known and anticipated cultural resources; Ë Maintenance and enhancement of biological diversity. Ë Their geographic distribution and density; Issue 9–Vegetation Ë Current and potential threats to these resources; Vegetation is the common element on which all users Ë Public interests and concerns, including those of of the landscape depend. It provides food and cover local American Indian groups; and for wildlife and domestic animals, as well as scenic enjoyment for visitors. It catches rainfall and slows Ë The legislative requirements and history of the El overland flows, reducing soil movement and increas- Malpais Act. ing the amount of water absorbed by the soil. Vege-

1-12 Introduction Chapter 1 tation thus affects the quantity and quality of water Issue Questions produced from watersheds, as well as the visual quality of an area's scenery. ! Should the BLM recommend to Congress that the NCA boundaries be modified, and if so, in Issue Questions which areas?

! What are the objectives for the vegetative com- ! Are there lands or interests in lands [not already munities the BLM will be managing to attain? identified in the Land Protection Plan] that the BLM should acquire through exchange, purchase, ! What measures are needed to attain these or donation to further the aims of the El Malpais objectives? Act?

Planning Criteria Planning Criteria

To help answer these questions, the BLM will To help answer the above questions for this issue, the consider the following factors: BLM will consider the following information:

Ë Protection and enhancement of watershed Ë Resource values that exist on lands within and conditions; adjacent to the NCA;

Ë Unique or fragile soils and vegetation, including Ë Concerns of local communities, governments, and threatened and endangered plant species; private landowners; and

Ë Areas that require increased vegetative cover to Ë The land ownership pattern. reduce soil erosion, increase forage production, and improve wildlife habitat; Planning Issues & Criteria for the Ë Vegetative treatments or manipulation methods, Rio Puerco RMP including prescribed fire; and Few of the RMP issues and their associated criteria Ë Use of fuelwood harvest and other forestry apply to the El Malpais Plan Area. Those that con- practices. tinue to apply to the Plan Area are listed by resource in Chapter 2. Issue 10–Boundary & Land Ownership Adjustments Implementation As the result of recent changes in land ownership and All future resource management authorizations and public participation in the planning process, several actions within the area covered by the El Malpais minor adjustments in the NCA boundaries may be Plan, including budget proposals, will conform or at a desirable. Also, two relatively small blocks of contig- minimum, not conflict with the Plan. All operations uous public land managed by the Socorro Field Office and activities under existing permits, contracts, coop- to the south of the NCA contain resources that would erative agreements, or other instruments for occu- contribute to the NCA. These circumstances raise the pancy and use will be modified, if necessary, to con- question of whether the BLM should recommend form with this Plan within a reasonable period of time, modification of the NCA boundaries. Such a modifi- subject to valid existing rights. cation would require that Congress pass new legislation. In addition, several other situations exist in The Plan does not supersede valid existing rights on which acquisition of lands or interests in lands beyond public lands. Valid existing rights are those claims or those identified in the NCA Land Protection Plan rights to public land that take precedence over the (USDI, BLM 1989b) may be desirable. decisions of the Plan. For example, a mining claim

1-13 Introduction Chapter 1 filed prior to the passage of the El Malpais Act in an Changing the Plan area later withdrawn from mineral entry would still be valid. Valid existing rights may be held by other gov- The Plan may be changed, if necessary, through the ernment agencies or by private individuals or compa- RMP amendment process. Results of monitoring and nies. Valid existing rights may pertain to minerals, evaluation, new data, and new or revised policies will rights-of-way, or water rights. be examined to determine if there is need for an amendment. Any changes in circumstances or condi- Decisions in this Plan will be implemented over a tions which affect the scope, terms, or conditions of period of years. In most cases the site-specific NEPA the Plan may warrant an amendment. In all cases, a analysis for activity-level decisions was completed in proposed action that does not conform with the Plan the Approved El Malpais Plan except for cultural and warrants further consideration before a plan revi- resources clearances and special-status species clear- sion is scheduled would require an amendment. Gen- ances. erally an amendment is site-specific or involves only one or two planning issues. The amendment process Priorities are listed in Chapter 2 for the implementa- is identical to the resource management planning tion of those decisions that did not automatically process, although the scope of the information, analy- become effective with the approval of the Plan. Prior- sis, and documentation is limited. ities will be implemented as funding and personnel are available. Priorities will be reviewed annually to help A plan revision, when necessary, involves the prepara- develop the annual work plan/budget commitment for tion of a new RMP for the entire area covered by the the coming year. Priorities may be revised based upon RMP. new national policy, new Department of Interior direction, or new BLM goals. Relationship to Other BLM Monitoring and Evaluating the Plan Planning Levels and Studies

The effects of implementing the Plan will be moni- Development of the El Malpais Plan has occurred tored and evaluated on a periodic basis to assure that within the framework of the BLM Land-Use Planning the desired results are being achieved. The frequency System. The Land-Use Planning System is directed and standards for monitoring the individual resource by policy developed through the BLM Policy Planning programs are described in Chapter 2. Monitoring and System and land-use plan implementation is funded evaluation will determine whether the original as- through the BLM Budget Planning System. Land-use sumptions have been correctly applied, impacts cor- planning decisions are made at three levels. RMP- rectly predicted, mitigation measure results are satis- level decisions allocate lands to broad general uses. factory, conditions or circumstances have significantly Activity-level plans are program-specific plans related changed, and whether new data are of significance to to smaller geographic areas. Project-level plans relate the Plan. to site-specific areas and frequently to one or a few resources. This Plan satisfies the requirements for Maintaining the Plan the RMP-level and for much of the activity-level planning for the El Malpais Plan Area.

The Plan will be maintained as necessary to reflect minor changes in data. Plan maintenance, a continu- Public Participation ous process, corrects errors in the text, updates data bases, and corrects mapping and other table and Approved El Malpais Plan graphic errors. It will not be used to expand the scope of resource uses or restrictions, or to change Public participation in preparation of the Approved the terms, conditions and decisions of the Plan. Main- Plan was a dynamic process continued throughout tenance will be documented in supporting records. Plan development. In addition to formal public partic- Formal public involvement is not necessary to main- ipation, informal contact with public land users and tain the Plan. interested persons occurred frequently. All applicable

1-14 Introduction Chapter 1 public participation was documented in the planning input on the suitability of the Chain of Craters WSA process and is kept on file at the AFO. Public infor wilderness designation. The 90-day comment volvement is essential to the success of planning and period ended on September 24, 1999. The Proposed was welcomed. The BLM provides five specific op- El Malpais Plan and Final Environmental Impact portunities for public comment, participation, or re- Statement was completed in September 2000 (USDI, view during the planning process. BLM 2000b). The 30-day period for public protests of the RMP amendment decisions ended on October The AFO published a general Notice of Intent (NOI) 30, 2000. to prepare an RMP amendment/EIS in the Federal Register on March 29, 1995 (Vol. 60, No. 60). In the The Record of Decision (ROD) approving the El NOI, the AFO also identified the general planning Malpais Plan was signed on September 26, 2001. criteria and invited public comment. Appeals of activity-level planning decisions can be made by those parties adversely affected at the time The NOI initiated the scoping process. A letter to the ROD is released. The 30-day waiting period for those on the El Malpais Plan mailing list invited the appeals ended on November 5, 2001. Activity-level public to participate in scoping by attending meetings planning decisions can now be implemented. and/or providing written comments. The AFO held public meetings to develop planning issues and review This public participation influenced the outcome of planning criteria. Meetings were held in Grants, the the land-use planning and led to decisions and their Ramah Navajo Chapter House, and Albuquerque. proposed implementation as laid out by resource/ The AFO met with the Acoma Tribal Government on program in Chapter 2 of this document. April 4, 1995. Written comments were accepted until scoping officially ended on May 19, 1995. Informa- Rio Puerco RMP tion on the results of public scoping was mailed to all on the El Malpais Plan mailing list on July 24, 1995. Preparation of the Rio Puerco RMP (USDI, BLM 1986), the El Malpais Land Protection Plan (USDI, Following completion of the Draft El Malpais Plan BLM 1989b), the Continental Divide National Scenic and Environmental Impact Statement in June 1999 Trail Comprehensive Plan (USDA, FS, 1992, 1993), (USDI, BLM 1999b), the AFO held a series of public and the Riparian and Aquatic Habitat Management hearings in Albuquerque, Grants, and Quemado to Plan (USDI, BLM 2000a) also included extensive collect oral comments on the Draft Plan and to gather public participation.

1-15 1-16 CHAPTER 2

RESOURCE PLANS

Introduction amended by the Approved El Malpais Plan, they are included in the stand-alone plan. In addition, activity- level decisions from the Approved Plan and activity- As detailed in Chapter 1, the El Malpais Act, which level decisions tiered from the Rio Puerco RMP are established El Malpais NCA, directed the BLM to also included in the stand-alone plan. prepare a general management plan describing appropriate uses and development for the NCA consistent with the purposes of the Act. The plan was to in- Format clude, but not be limited to: (1) an interpretation and public education plan, (2) a public facilities plan, (3) Chapter 2 is arranged as twenty-one separate manage- natural and cultural resources management plans, and ment plans for the various resources managed by the (4) a wildlife management plan. In addition, the gen- AFO in the El Malpais Plan Area. This part of the El eral management plan was to include a wilderness Malpais Plan has been prepared as a resource to be suitability review of the Chain of Craters Wilderness utilized by the AFO resource specialists who will Study Area. In conformance with the National Envi- implement the Plan, not as a document to be read ronmental Policy Act and the Federal Land Policy and straight through. Those decisions and guidance that Management Act, the general management plan (“The apply to more than one resource are duplicated in Approved El Malpais Plan”) was prepared as an Envi- each resource section. Thus, each of the twenty-one ronmental Impact Statement/Resource Management resource plan sections is complete on its own to make Plan Amendment (USDI, BLM 2000a). In this for- implementation of the Plan by AFO resource special- mat, decisions and management guidance for the vari- ists as straightforward as possible. An understanding ous resources required by the El Malpais Act to be that there is duplication from section to section should covered by separate management plans were dispersed help AFO resource specialists and interested members throughout the document. The conclusion to the of the public utilize the El Malpais Plan. It should planning process outlined by the El Malpais Act is to also help members of the public with specific resource combine the decisions and guidance for each resource interests to be able to focus on the specific resource into the separate management plans required by the plan sections applicable to their interests. Act. Each resource plan section begins with the goals of In 2000, El Malpais NCA became a part of the BLM’s the resource program covered by the section. Goals new National Landscape Conservation System are followed by the management guidance which (NLCS). The BLM is requiring development of directs operation of the program, including policy and stand-alone management plans for all units of the authorities and field office program guidance. The NLCS. The AFO has prepared this stand-alone plan heart of most sections is “Decisions From Approved for El Malpais NCA (“The El Malpais Plan”) to con- El Malpais Plan,” which also includes the criteria used solidate all decisions and management guidance cur- in resolving the El Malpais Plan issues. This is fol- rently applicable to the El Malpais Plan Area. The lowed by “Guidance From Rio Puerco RMP,” includ- majority of the decisions and guidance are taken from ing the criteria used in resolving the RMP issues, the Approved El Malpais Plan. However, since deci- implementation guidance from the RMP and its sions and guidance from the Rio Puerco Resource amendments, and decisions carried forward into the Management Plan (USDI, BLM 1986) and its amend- RMP from planning documents completed prior to ments (USDI, BLM 1989b, 2000a; USDA, FS 1992, preparation of the RMP. Monitoring, implementation 1993) applicable to the El Malpais Plan Area (see priorities, and support needs round out each resource Map 1-1) continue to be valid except as they were section.

2-1 2-2 RECREATION

Manual Sections 8300–Recreation, 8357–Byways, For the purposes of this document, Recreation 8360–Visitor Services, and 8362–Interpretive Ser- Facility Development, Visual Resource Manage- vices. Recreation management will be consistent with ment, Off-Highway Vehicles, and Interpreta- the policy indicated in Recreation 2000 (a national tion/Public Education are treated as programs planning and policy document for recreation manage- separate from the Recreation Program. ment into the year 2000 and beyond) (USDI, BLM 1988b).

Laws that pertain to the Recreation Program in El Program Goals Malpais NCA include FLPMA; the El Malpais Act; the Federal Cave Resources Protection Act of 1988; the Land and Water Conservation Fund Act of 1964; The BLM's goal for the Recreation Program is to the Wilderness Act of 1964; the National Trails Sys- ensure the continued availability of quality outdoor tem Act of 1968; and the National Environmental recreational opportunities and experiences that are not Policy Act of 1969 (NEPA). readily available from other sources. Recreational use and capital investment in facilities are managed to protect the health and safety of visitors; protect natu- Field Office Program Guidance ral, cultural, and other resource values; stimulate public enjoyment of public land; provide for universal The AFO uses the Recreation Opportunity Spectrum access (including for physically challenged visitors); (ROS) to inventory, plan for, and administer outdoor and, to the extent possible, resolve user conflicts. recreation resources on the public lands. A general Management priority is given to undeveloped areas description of the six ROS classes together with the experiencing resource damage, user conflicts, or management objectives for each class is contained in threatening visitor safety; areas where use exceeds Appendix C. Table 2-1 displays land acreage for each current capacity; unique and/or scenic attractions of the three ROS classes in the Plan Area. The ROS adjoining heavily traveled highways; and preservation classification for the Plan Area is displayed on and protection of natural and cultural resources. Map 2-1.

Management Guidance TABLE 2-1

Policy and Authorities ROS CLASSIFICATIONS FOR THE PLAN AREA (PA) Recreation programs are managed according to multi- (acres, rounded to nearest hundred) ple use principles unless otherwise specified by law or BLM policy. In areas formally recognized by Con- Approved Plan gress, such as designated wilderness and National Conservation Areas, providing recreational opportuni- ROS Class Acres % PA ties requires more intensive management and investment. The El Malpais Act specifies that the NCA be Roaded natural 79,000 28 managed to protect geologic, archeological, ecological, cultural, scenic, scientific, and wilderness re- Semi-primitive sources, in a manner consistent with the Federal Land motorized 72,000 25 Policy and Management Act of 1976 (FLPMA). Cave resources are managed in accordance with the Federal Semi-primitive Cave Resources Protection Act of 1988. non-motorized 135,300 47 Totals 286,300 100 Manuals and policy statements that pertain to the Recreation Program in El Malpais NCA include BLM

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Insert Map 2-1

2-4 Recreation Chapter 2

For any project proposed in the Plan Area, the AFO proposed use is planned, and set up to reduce user will continue to evaluate recreation resources on a conflicts. Examples of activities sometimes covered case-by-case basis as part of project-level planning. under these permits are guided and/or outfitted hunt- Such evaluation will consider the compliance of the ing, mountain biking events, pack-animal trekking, action with current management plans, the signifi- commercial photography, and other commercial out- cance of the proposed project, and the sensitivity of fitting. Commercial, competitive, and organized uses recreation resources in the affected area. Stipulations of public lands may be permitted. However, no mo- will be attached as appropriate to ensure compatibility torcycle race or other off-highway vehicle competitive of projects with recreation management objectives. event will be allowed, as this would not be compatible with the intent of the El Malpais Act. Hunting and trapping are permitted in the Plan Area and must comply with all applicable New Mexico The AFO will conduct an inventory of cave (lava Department of Game and Fish regulations. Patrols tube) resources and continue to manage caves in ac- such as Operation Respect will continue during hunt- cordance with the Federal Cave Resources Protection ing/trapping seasons. Act of 1988 and related BLM policy. The AFO will undertake appropriate protection measures as needed. Monitoring will be used to protect recreation Recreational activities associated with caving will be resources and prevent their degradation. Staff patrols, dependent on the significance of the cave. Informa- traffic, and trail counters will be used to measure and tion about the location of significant caves will not monitor visitor use. The AFO uses the Limits of normally be made available to the general public, and Acceptable Change (LAC) monitoring system to de- use of these caves will be regulated. Recreational use termine the need to modify use allocation or manage- that would adversely affect significant cave resources ment. Certain limits have already been established for will be deferred or denied. the Plan Area, and these will be used to trigger actions (management modifications) called for in this Plan Throughout the Plan Area, the AFO will continue to (see Appendix D). coordinate riparian/wetland habitat management with other programs and activities, including the Recre- The AFO will inspect recreation-related facilities and ation Program. Riparian habitat values will be ad- conduct a program of preventive and rehabilitative dressed for all surface- and vegetation-disturbing maintenance of recreation-related facilities, to the actions. extent resources permit, to provide a safe, sanitary, and aesthetically pleasing environment for visitors and The goals and strategies identified in the Partners employees. Through inspection the AFO will identify Against Weeds action plan for BLM (1996a) will be and remove hazards or give warning of their presence. implemented as needed to help prevent the introduc- AFO personnel, volunteers, cooperative management tion or spread of noxious weeds in the AFO. These agreements, contracts with the private sector, and preventative measures will be applied to AFO-autho- other means as necessary will be utilized to maintain rized actions, including recreation permits. BLM facilities. The AFO will continually evaluate its recreation-related facilities through inspection to Interpretive objectives (themes) will be developed for determine if they should be reconstructed, expanded, each resource whose management can be assisted transferred, closed, or removed based on costs, re- through visitor education efforts. Potential themes source protection, health and safety, and their capabil- have been developed for several programs; these are ity of meeting current and future uses and demands. not all-inclusive or final. A potential theme for the Recreation Program is: The AFO will continue to issue special recreation permits to qualified outfitters and guides when re- • Promote a positive land ethic to visitors, inform- quested, following the permitting process, which ing them of the importance of using Leave No includes compliance with NEPA. Permits issued will Trace and Tread Lightly recreational skills. Safe- be consistent with resource protection objectives and ty information is paramount. management decisions for the area in which the

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Within designated wilderness, the emphasis will be on Decisions From Approved providing opportunities for users to experience soli- El Malpais Plan tude or take part in primitive and unconfined types of recreation, without diminishing the areas’ wilderness The emphasis for recreation will be on a combination character. Users can continue to pursue primitive of developed and dispersed recreational opportunities. types of recreation not requiring the use of motor Facilities developed to provide for recreation opportu- vehicles, motorized equipment, or other forms of nities are discussed in the “Recreation Facilities Devel- mechanical transport. The AFO will continue to en- opment” section. The semi-primitive motorized and courage such use through publishing maps and bro- semi-primitive non-motorized ROS classes have been chures identifying the opportunities available within enlarged under the El Malpais Plan (see Map 2-1 and wilderness. Table 2-1). The AFO will reduce the density of vehicle routes in the Plan Area and limit vehicle travel to The Approved Plan recommends the Canyons WSA designated routes. for wilderness designation. Prior to designation as a WSA, the nine parcels that make up the WSA were The Approved El Malpais Plan did not recommend included within the Breaks, Brazo, and Brazo Non- the Chain of Craters WSA to Congress as suitable for NCA Units. Until all or portions of these lands are wilderness designation. If released by Congress from either designated by Congress as wilderness or re- wilderness study, this 18,300-acre area would be leased from wilderness study, they will remain in WSA managed according to provisions of this Plan. Users status. If all or any portion of these lands are released of this area would have opportunities for roaded natu- by Congress from wilderness review, they will be ral types of recreation on 7,800 acres, semi-primitive returned to the Breaks, Brazo, and Brazo Non-NCA motorized types on 5,400 acres, and semi-primitive Units and managed as prescribed under this Plan. non-motorized types on 5,100 acres. Camping will be offered at one AFO-developed camp- Within the ROS settings, users could participate in ground near the Ranger Station (see Map 2-2) and in such activities as camping, hiking, horseback riding, dispersed sites throughout the Plan Area. No camp- hunting, mountain biking, picnicking, sightseeing, ing will be allowed at The Narrows or at La Ventana back-country driving, wildlife watching, and exploring Natural Arch. and learning about historic and archeological sites. Recreational activities of interest to smaller popula- The AFO will establish up to 10 additional hiking tions such as caving, climbing, skiing, shooting, trap- trails in the Plan Area, for a total of up 15 trails with a ping, photography, pack trips, enjoying wilderness length of approximately 57 miles (see Map 2-2). The solitude, and road biking will continue to be offered; expanded trail system will provide improved access however, the AFO will make no formal identification opportunities to such sites as the Lobo Canyon Petro- of where or when these opportunities will be avail- glyphs, one or two homesteads, Cerro Americano, La able. Rendija, and the historic schoolhouse site in the West Malpais Wilderness. Systematic documentation will Cross-country access by non-motorized non-mechani- be needed at the Lobo Canyon Petroglyphs before the cal means (i.e., on horseback or by foot) will be al- trail can be constructed. The closure of 83.4 miles of lowed to continue in the Plan Area. However, be- vehicle routes in the Plan Area will also create oppor- cause of terrain and vegetation conditions, it is as- tunities for visitors to use them as informal hiking sumed that most of this type of access will be concen- trails without vehicle conflicts. trated on existing or abandoned back-country roads and the few existing trails. Non-motorized mechani- Facilities will be provided for the convenience of cal transport (i.e., mountain and road bikes) is prohib- horseback riders (see Map 2-2). The Narrows will be ited in wilderness and restricted to designated vehicle one location, along with the Armijo Canyon area (for routes in the rest of the Plan Area. Motorized and access to the Cebolla Wilderness, not the Dittert site), mechanical access for traditional American Indian the Hole-in-the-Wall trailhead (for access to the West cultural practices will also be restricted to designated Malpais Wilderness), and the Cerro Brillante trailhead routes unless otherwise authorized. (for access to the Chain of Craters).

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Insert Map 2-2

2-7 Recreation Chapter 2

Roads will be closed to increase the isolation in the NM 53, and NM 117 to promote this recreational Plan Area for animals and hunters. opportunity.

The AFO will continue to allow mountain bike use of The AFO will evaluate and approve all prescribed fire the Plan Area on designated travel routes outside plans, paying close attention to recreational values, wilderness, especially promoting routes in the Chain wilderness values, visual resources, and cultural re- of Craters, Cerritos de Jaspe, and Brazo Units. Ap- source values (e.g., homesteads, hogans) within the proximately 131 miles of designated vehicle routes are area. Appropriate cultural clearances, special-status available for such use in these three units, providing a species evaluations, and other environmental docu- variety of experiences and levels of difficulty. These mentation will be required before any prescribed fire is routes are not as heavily traveled by motor vehicles as initiated. some others in the Plan Area and provide a system of loop trails. The Chain of Craters will be promoted for Criteria for Resolution of such use only if Congress releases the area from wil- El Malpais Plan Issues derness review. The AFO considered the following factors in develop- Picnicking opportunities will be provided at the south ing answers to the issue questions regarding recrea- end of The Narrows through facility development (see tion opportunities. These factors will continue to be Map 2-2). Picnicking will also be encouraged as a considered as the El Malpais Plan is implemented. dispersed activity. • Existing recreational use and facilities Approximately 273 miles of BLM-designated travel routes will be available for sightseeing, driving for • Public demand for recreational activities, settings, pleasure, or back-country driving, including desig- and opportunities nated Back Country Byways. The AFO will apply for designation of two new Back Country Byways, the • Compatibility with other land resource uses NM 117-CR 42-NM 53 loop drive and a route extending through the Brazo Unit. • Public health and safety

Sightseeing for cultural interest will be offered at the • Public interests and concerns Dittert Site, the Ranger Station Reservoir, the Cebolla Canyon Complex, the Lobo Canyon Petroglyphs, and • Coordination with the National Park Service through guided hikes, the Aldridge Petroglyphs. Sightseeing for historic interest will be offered at one or more of six fenced or stabilized homestead sites Guidance From Rio Puerco RMP (Armijo Canyon Springhouse; Armijo Canyon Home- stead; Rowe Homestead at the mouth of Cebolla Some of the decisions in the Rio Puerco RMP con- Canyon; Stone House–two sites–located further up tinue to be applicable to management of El Malpais Cebolla Canyon; Worley Homestead); and possibly NCA and adjoining lands. This guidance for the Rec- the Savage Schoolhouse in Cebolla Canyon or other reation Program is listed below as “Criteria for Reso- deserving properties. Data recovery through system- lution of RMP Issues” and “Implementation Guidance atic collection of surface materials at the Ranger Sta- From RMP.” In addition, the RMP carried forward tion Reservoir and systematic documentation at the decisions from previous planning that still apply to El Lobo Canyon Petroglyphs will be necessary before Malpais. These decisions are listed under “Decisions such visitation can be encouraged at either site. Carried Forward From Previous Planning.”

Wildlife viewing opportunities will be identified along Criteria for Resolution of RMP Issues as many as eight stretches of road in the NCA (see Map 2-2). The AFO will provide interpretive material Two of the criteria used to guide resolution of the Rio and signs to enhance the viewing experience. Watch- Puerco RMP issues remain applicable as guidance for able wildlife signs will be installed along CR 42, future actions in the Recreation Program:

2-8 Recreation Chapter 2

• Designation for OHV use will consider protection for resources such as . . . recreational values . . . .

• Fuelwood will not be made available in areas where harvesting would degrade or disturb . . . recreational . . . values of an area.

Implementation Guidance From RMP

The BLM, volunteers, organizations, and other agencies are developing a treadway for the Continental Divide National Scenic Trail (CDNST). The route for Monitoring/Studies the trail was established in an EA/RMP Amendment developed jointly by the U. S. Forest Service, the Monitoring will be used to protect recreation re- National Park Service, and the BLM (USDA, FS sources and prevent their degradation. Staff patrols, 1992, 1993). The selected treadway through the Plan traffic counters, and trail counters will be used to Area is shown on Map 2-2. This treadway is the measure and monitor visitor use. The AFO uses the subject of an EA scheduled for completion in 2001. Limits of Acceptable Change (LAC) monitoring The southernmost three miles of this route, in the system to determine the need to modify use allocation Cerro Brillante-AFO Unit, cross private land. Utiliza- or management. Certain limits have already been tion of that portion of the CDNST would require established for the Plan Area, and these will be used acquisition of the treadway by easement, exchange or to trigger actions (management modifications) called purchase, if owners were willing. The alternative for in this Plan (see Appendix D). routes shown on Map 2-2 will continue to be used until the selected route in the Cerro Brillante-AFO The AFO will inspect recreation-related facilities and Unit is acquired. conduct a program of preventive and rehabilitative maintenance of recreation-related facilities, to the Decisions Carried Forward From extent resources permit, to provide a safe, sanitary, and aesthetically pleasing environment for visitors and Previous Planning employees. Through inspection the AFO will identify and remove hazards or give warning of their presence. The following recreation decisions were carried The AFO will continually evaluate its recreation- forward into the Rio Puerco RMP from previous related facilities through inspection to determine if planning documents: they should be reconstructed, expanded, transferred, closed, or removed, based on costs, resource protec- • Retain all public lands with a B or higher Recrea- tion, health and safety, and the facilities’ capability of tion Inventory System (RIS) rating in public own- meeting current and future uses and demands. ership, specifically in El Malpais. [In compliance with the El Malpais Act, all lands within El Malpais NCA will be retained in public owner- Implementation Priorities ship.] The management objectives as identified under • Attempt to enter into a cooperative agreement “Management Guidance,” “Decisions From Approved with the Pueblo de Acoma for routine patrols and El Malpais Plan,” and “Guidance From Rio Puerco surveillance of the El Malpais area. [The Pueblo RMP,” will be implemented as funding and personnel de Acoma has declined to enter into such an are available. Some of the objectives have already agreement.] been partially or fully implemented as part of resource programs carried out under the Rio Puerco RMP. • Attempt to acquire private lands within sensitive areas in Big Hole-in-the-Wall and Chain of Crat- The public will be notified in the AFO’s Annual RMP ers. [This action has been accomplished.] Update document of site-specific actions to be

2-9 Recreation Chapter 2 implemented from this Plan. The following are gen- Engineering & Operations eral priorities for the Recreation Program: Support from Engineering and Operations will be • Continue inspection and monitoring patrols. needed to plan and implement some of the actions planned in the Recreation Program. • Coordinate on actions proposed by other resource staff. Cultural Resources • Issue permits that meet criteria. Planning for some of the actions proposed by the • Provide information on recreation opportunities. Recreation Program will require inventory for cultural resources. • Complete road closures and recreation developments as specified in the El Malpais Plan. American Indian Consultation

• Apply for designation of two new Back Country Planning for some of the actions proposed by the Byways, the NM 117-CR 42-NM 53 loop drive Recreation Program will require American Indian and a route extending through the Brazo Unit. consultation. Work with partners to purchase and install up to four signs and one or two kiosks for each byway Law Enforcement (see Map 2-2). The Law Enforcement Program will provide assis- Support Needs tance to the Recreation Program by patrolling the Plan Area and providing assistance to public land users. The Recreation Program will need support from the following resource programs in order to implement the preceding projects: Interpretation/Public Education

Fire Management Personal and non-personal interpretive/education support is necessary to promote dispersed recreation or direct use to developed areas in the NCA. Implementation of the Wildland Fire Use and Pre- scribed Fire Management goals and protection of areas developed for recreation will support the Recre- Volunteers ation Program. The AFO will continue to coordinate with individual volunteers wishing to assist in management of the Plan Area.

2-10 INTERPRETATION/PUBLIC EDUCATION PROGRAM

Program Goals Field Office Program Guidance

The goal of the Interpretation/Public Education Pro- The AFO will continue to cooperate with the National gram is to educate the public about the AFO’s objec- Park Service (NPS) in operating the Northwest New tives, goals, and mission at El Malpais NCA. The Mexico Visitors Center near Grants. The AFO will AFO offers public programs for users to attend and continue to produce its own interpretive materials, learn about the natural and cultural resources of El and will maintain its partnership with the Public Lands Malpais, as well as being good stewards of the public Interpretive Association (formerly the Southwest lands. In addition, this program provides written Natural and Cultural Heritage Association) or another interpretation of the resources of the NCA in bro- natural history organization to provide maps and other chures and at facilities throughout the area. This publications for visitors. program provides support to all of the resource programs for which the AFO has responsibility. As required by the El Malpais Act, the AFO will identify sites in the NCA that are appropriate for addition to the Pueblo Heritage Trail (formerly the Masau Management Guidance Trail) and inform the NPS of them.

Policy and Authorities The AFO will develop a ½-mile-long (round trip) interpretive/orientation trail at the Ranger Station The El Malpais Act directs that the NCA be managed (USDI, BLM 1990c). Interpretive programs, exhib- to protect geologic, archeological, ecological, cul- its, and demonstrations will continue to be provided at tural, scenic, scientific, and wilderness resources, in a the Ranger Station. At La Ventana Natural Arch, manner consistent with the Federal Land Policy and interpretive wayside exhibits that emphasize wilder- Management Act of 1976 (FLPMA). The law also ness, wilderness use ethics, and area geology will be directed the BLM to develop a plan for interpretation developed (USDI, BLM 1989a). and public education. The AFO will continue to work with the volunteers at Other laws that pertain to the Recreation Program, El Malpais NCA. Several are trained as hike leaders, including the Interpretation/Public Education Pro- and others regularly staff the Ranger Station. gram, in El Malpais NCA include the Federal Cave Resources Protection Act of 1988, the Land and Wa- Interpretive objectives (themes) will be developed for ter Conservation Fund Act of 1964, the Wilderness each resource whose management can be assisted Act of 1964, the National Trails System Act of 1968, through visitor education efforts. Some potential and the National Environmental Policy Act of 1969. themes are listed below by program; these are not all- inclusive or final. BLM Manuals, Instruction Memorandums, and Policy Statements that pertain to the Interpretation Program • Promote a positive land ethic to visitors, inform- are Manual Sections 8300–Recreation, 8360–Visitor ing them of the importance of using Leave No Services, and 8362–Interpretive Services; Recreation Trace and Tread Lightly recreational skills. Safe- 2000, a national planning and policy document for ty information is paramount. (Recreation Pro- recreation management into the year 2000 and beyond gram) (USDI, BLM 1988b); and BLM National Interpretive Strategy (USDI, BLM 1999a). • Wilderness has special values, and is set aside to protect them while allowing visitors to experience them. (Wilderness Program)

2-11 Interpretation/Public Education Program Chapter 2

• Using surface waters can cause health problems, Decisions From the Approved Plan camping near surface waters can pollute them, and visitors should respect owners’ rights to pri- Interpretation will occur through one-on-one contacts vately owned water sources. (Soil, Water, and with visitors (public programs, guided hikes, and Air Program) Ranger Station contacts); printed brochures, exhibits, interpretive media, and publications at the Ranger • Visitors should be informed of the importance of Station; and wayside exhibit panels, self-guided trails dead and living wildlife trees, dead and down with interpretive signs, kiosks, and informational trees and logs, and wetlands to wildlife; the dis- signs. turbance caused by human-wildlife interaction; and hunting and trapping opportunities and re- The AFO will continue to provide personal interpre- quirements on public lands in the Plan Area. tive services/visitor contacts, interpretive programs, (Wildlife Program) exhibits, and demonstrations at the Ranger Station and at the Northwest New Mexico Visitors Center • Livestock grazing is a historic use which is part near Grants. of the cultural resource values for which the NCA was designated by Congress. (Rangeland Re- At a location within a five-minute walk of the pro- sources Program) posed campground, the AFO will build an amphitheater designed to hold about 50 people. Evening pro- • Livestock grazing continues to be a legal activity grams will be offered regularly during the summer. in the Plan Area. Fences, waters, gates, and other range improvements are important tools for The AFO will construct two primitive trailheads for the proper management of livestock grazing. the Continental Divide National Scenic Trail (Rangeland Resources Program) (CDNST), one each at Cerro Americano and Cerro Brillante. Each trailhead will include up to two way- • Vegetative manipulation plays a part in conserv- side exhibits (to include watchable wildlife informa- ing our public lands, including fire and fuelwood tion at Cerro Americano). harvesting. (Vegetation Program) The AFO will identify opportunities where users can • Visitors should be informed of significant geo- pursue primitive types of recreation, including in des- logic features and the physical processes that ignated wilderness. The AFO will continue to encour- produced them. (Geology Program) age such use by publishing maps and brochures identifying the opportunities available. • Cultural resources are important in understanding local history, especially for local American Indi- Management efforts in designated wilderness will ans, so sites should not be disturbed. Under the continue to be concentrated on signing, preventing Archeological Resources Protection Act, mone- unauthorized vehicle intrusions, patrolling and moni- tary rewards may be offered for information lead- toring uses for compliance with the Wilderness Man- ing to the arrest and conviction of violators. agement Policy (USDI, BLM 1981c), and educating (Cultural Resources Program) the public through personal contacts, and interpretive and educational materials. The AFO will develop appropriate interpretive materials to explain the significance of the special geologic Visitor facilities at trailheads and other entry points to features of the Plan Area, such as the Chain of Crat- wilderness will be upgraded to improve access oppor- ers, the cliffs at The Narrows, La Ventana Natural tunities, services, and information. Additional on-site Arch, Cerro Rendija, Hole-in-the-Wall, and Cerritos information will be provided to better inform and de Jaspe. educate the public. Signs will identify the wilderness boundary, wilderness name, and some regulations governing use.

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Personal contacts by staff and volunteers will provide brochures, exhibits, and other media, the AFO will additional on-site information and education when encourage visitation at the Dittert Site, Lobo Canyon users are encountered during wilderness patrols. The Petroglyphs, and Ranger Station Reservoir. The AFO AFO will continue to supply information about the will also develop public interpretation for outstanding wildernesses at the Ranger Station on NM 117, the homestead-era sites. Systematic documentation will Northwest New Mexico Visitors Center, and at the be needed at the Lobo Canyon Petroglyphs before offices in Grants and Albuquerque. such visitation can be encouraged. Data recovery through systematic collection of surface materials will Except for guided trips, visitor information and educa- be necessary at the Ranger Station Reservoir before tion programs about selected cultural and historic sites the interpretive/orientation trail is extended to it. within the wildernesses will be located outside the wilderness boundaries or dispersed at other sites. Interpretive wayside exhibits will be developed for up Visitation of selected cultural and historic sites within to three archeological sites and/or homesteads along the wildernesses will be encouraged through addi- with brochures and/or trail guides keyed to markers. tional information provided off-site. Except for con- The AFO will conduct special hikes and programs for tinued maintenance, monitoring, and guided hikes, the up to 200 people per year to these features. AFO will provide no additional on-site interpretation. Recreational activities of interest to smaller popula- The AFO will develop and maintain interpretive way- tions will continue to be offered. However, the AFO side exhibits that emphasize wilderness, wilderness will make no formal identification of where or when use ethics, and area geology. such opportunities are available.

Up to three wayside exhibits will be located at the During the life of this Plan, no on-site interpretive Narrows Rim Trailhead or near the picnic area. development will occur at the Pinole Site, The Cita- del, Cebolla Canyon Community, or Aldridge Petro- The AFO will manage the Dittert Site, the Ranger glyphs, but the AFO will manage these sites to protect Station Reservoir, the Lobo Canyon Petroglyphs, and their potential for public use. If unsolicited visitation outstanding homestead-era sites for public values and warrants, the AFO will install visitor registration allocate them to public use, while taking care not to boxes at these sites. impair their information potential. As additional resource information becomes available, new areas for Pullouts with interpretive kiosks will be constructed at public use may be identified, but only if their informa- three NCA entry locations: the junction of NM 117 tion potential will not be adversely affected and only and CR 42, the western entrance along NM 53, and after appropriate American Indian consultations and the first public land encountered along NM 53 (T. 9 compliance with the National Historic Preservation N., R. 10 W., sec. 16). Act. Wildlife viewing opportunities will be identified along Dittert Site interpretation will include up to two way- as many as eight stretches of road in the NCA (see side exhibits, a trail guide, and guided hikes for public Map 2-2). The AFO will provide interpretive material and school groups (50 to 200 people per year). This and signs to enhance the viewing experience. Watch- will also be a trailhead and access for the Cebolla able wildlife signs will be installed along CR 42, NM Wilderness, and wayside exhibits may include infor- 53, and NM 117 to promote this recreational opportu- mation about the Cebolla Wilderness. These addi- nity. tional interpretive elements about the Dittert Site (located within the boundaries of the Cebolla Wilder- The Plan recommends acquisition of a 160-acre parcel ness) will be placed outside the wilderness boundary, in the Breaks Non-NCA Unit that includes an early at the trailhead to the site in Armijo Canyon. twentieth-century historic ruin with interpretive potential (portions of T. 5 N., R. 11 W., sec. 3 and The AFO will conduct frequent interpretive hikes that T. 6 N., R. 11 W., sec. 34). The AFO will interpret include visits to cultural resource sites. In addition to the historic ruin if Congress modifies the NCA bound- completing off-site interpretive measures such as ary to include these lands.

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To assist with its goals of public outreach, interpreta- Decisions Carried Forward From tion, and environmental education, the AFO will de- Previous Planning velop and maintain cooperative agreements and contacts with teaching institutes, research institutes, and • Complete a descriptive brochure and interpretive non-profit organizations. areas for each quality geologic feature in the Di- vide Planning Area: El Malpais lava flow and Criteria for Resolution of Chain of Craters. [A pamphlet is now available El Malpais Plan Issues for Chain of Craters; the El Malpais lava flow is within El Malpais National Monument.] The following factors were considered in developing answers to the issue questions regarding facility • Acquire private lands in Cebollita Canyon and development. These factors will continue to be begin a stabilization, interpretation, and surveil- considered as the El Malpais Plan is implemented. lance program of cultural resources in the canyon. [The private lands listed for this decision, • Existing recreational use and facilities except for a small residential area, have all been acquired by Acoma Pueblo. This decision can • Public demand for recreational activities, settings, no longer be implemented.] and opportunities • Construct a parking area, day-use interpretive • Compatibility with other land resource uses site, and loop trail at La Ventana Natural Arch. [This action is complete.] • Public health and safety Monitoring/Studies • Public interests and concerns The AFO will continually evaluate its interpretive • Coordination with the NPS program through the Limits of Acceptable Change monitoring system (Appendix D) and visitor use stud- Guidance From Rio Puerco RMP ies to determine if programs should be modified, expanded, transferred, or removed based on costs, re- Some of the general recreation decisions in the Rio source protection benefits, visitor health and safety, Puerco RMP continue to be applicable to management and their capability of meeting current and future uses of El Malpais NCA and adjoining lands. This guid- and demands. ance is listed below as “Criteria for Resolution of RMP Issues” and “Decisions Carried Forward From Implementation Priorities Previous Planning.” The following actions are listed in priority order, Criteria for Resolution of RMP Issues although several actions may occur at the same time. These developments will occur as time, staff, and Two of the criteria used to guide resolution of the Rio budget allow. Puerco RMP issues remain applicable as guidance for future actions in the Recreation Program: • The first priority will be to maintain, update, and monitor existing interpretive programs and • Designation of OHV use will consider protection media. of resources such as . . . recreational values . . . . • The AFO will continue to provide personal inter- • Fuelwood will not be made available in areas pretive services/visitor contacts, interpretive pro- where harvesting would degrade or disturb . . . grams, exhibits, and demonstrations at the Ranger recreational . . . values. Station and the Northwest New Mexico Visitors Center.

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• Interpretive wayside exhibits emphasizing wilder- • The AFO will conduct frequent interpretive hikes ness, wilderness use ethics, and area geology will that include visits to cultural resource sites. In be developed and maintained at La Ventana Nat- addition to completing off-site interpretive mea- ural Arch. sures such as brochures, exhibits, and other media, the AFO will encourage visitation at the • The AFO will identify opportunities where users Dittert Site, Lobo Canyon Petroglyphs, and can pursue primitive types of recreation by pub- Ranger Station Reservoir. The AFO will also lishing maps and brochures indicating such areas. develop public interpretation for outstanding homestead-era sites. Visitation of selected cul- • At a location within a five-minute walk of the tural and historic sites within the wildernesses will proposed campground, the AFO will build an be encouraged through additional information amphitheater designed to hold about 50 people. provided off-site. Except for continued mainte- Evening programs will be offered regularly during nance, monitoring, and guided hikes, the BLM the summer. will provide no additional on-site interpretation. Systematic documentation at the Lobo Canyon • Up to three wayside exhibits will be located at the Petroglyphs and data recovery through systematic Narrows Rim Trailhead or near the picnic area at collection of surface materials at the Ranger Sta- The Narrows. tion Reservoir will be necessary before such visitation can be encouraged. • The AFO will construct two primitive trailheads for the CDNST, one each at Cerro Americano • Interpretive wayside exhibits will be developed and Cerro Brillante. Each trailhead will include for up to three archeological sites and/or home- up to two wayside exhibits (to include watchable steads along with brochures and/or trail guides wildlife information at Cerro Americano). keyed to markers. The AFO will conduct special hikes and programs for up to 200 people per year • Dittert Site interpretation will include up to two to these features. wayside exhibits, a trail guide, and guided hikes for public and school groups (50 to 200 people • To assist with its goals of public outreach, inter- per year). This will also be a trailhead and access pretation, and environmental education, the AFO for the Cebolla Wilderness, and wayside exhibits will develop and maintain cooperative agreements may include information about the Cebolla Wil- and contacts with teaching institutes, research derness. The AFO will place these additional institutes, and non-profit organizations. interpretive elements about the Dittert Site (located within the boundaries of the Cebolla Wil- Support Needs derness) outside the wilderness boundary, at the trailhead to the site in Armijo Canyon. Fire Management • The AFO will provide additional on-site information to better inform and educate the public at Implementation of the Wildland Fire Use and Pre- trailheads and access points to wilderness. Signs scribed Fire Management goals, along with protection at wilderness trailheads will identify the bound- of areas developed for recreation opportunities will aries, wilderness name, and some regulations support the Interpretation/Public Education Program. governing use. Personal contacts by staff and volunteers will provide additional on-site infor- Engineering & Operations mation and education when users are encountered during patrols. The AFO will continue to supply Support from the Engineering staff and the Labor/ information about the wildernesses at the Ranger Work Crew would include installing and maintaining Station on NM 117, the Northwest New Mexico interpretive media. Visitors Center, and at BLM offices in Grants and Albuquerque.

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Cultural Resources Law Enforcement

Survey and inventory of cultural resources in the The Law Enforcement Program will continue to pa- NCA will support the Interpretation/Public Education trol the Plan Area to protect natural and cultural re- Program. sources and provide assistance and protection to public land users. Personal contacts and written informa- American Indian Consultation tion supplied to users by Law Enforcement personnel will support the Interpretation/Public Education Pro- The Cultural Resource staff will also support interpre- gram. tive development through consultation with local interested American Indian tribes. Volunteers

The AFO will continue to coordinate with individual volunteers wishing to assist in management of the NCA.

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Program Goals to VRM Class I management objectives until such time as Congress decides to designate the area as wilderness or release it for other uses.” “This policy The goal of the Visual Resource Management (VRM) applies to all future plans and plan amendments.” The Program is to manage public lands to protect or en- El Malpais Plan was already in progress when the new hance the quality of visual (scenic) values. policy was issued. Therefore the public lands identified as WSAs within the Plan Area (the Chain of Crat- Management Guidance ers and Canyons WSAs) remain in the Interim Class II category. Policy and Authorities Field Office Program Guidance Section 102(a)(8) of the Federal Land Policy and Management Act of 1976 requires that . . . “the public The VRM system is the tool for identifying areas that lands be managed in a manner that will protect the warrant special management attention to protect sce- quality of the . . . scenic . . . values . . . .” Section nic values and prevent irreparable damage to them. 103(c) identifies “scenic values” as one of the re- Visual values will be identified through the VRM sources for which public lands should be managed. guidance in BLM Manual Section 8410. Section 201(a) states that “the Secretary [of the Inte- rior] shall prepare and maintain on a continuing basis Visual resources will be administered in the Plan Area an inventory of all public lands and their resources and according to the objectives for each VRM class estab- other values (including . . . scenic values) . . . .” Sec- lished through the land-use planning process. tion 101(b) of the National Environmental Policy Act of 1969, as amended, requires measures be taken to VRM management objectives by class are as follows: “. . . assure for all Americans . . . esthetically pleasing Class I To preserve the existing character of the surroundings . . . .” Section 102 requires agencies to landscape. This class provides for natural “utilize a systematic interdisciplinary approach which ecological changes; however, it does not will ensure the integrated use of . . . environmental preclude limited management activity. The design arts in the planning and decisionmaking . . . .” level of change to the characteristic landscape should be very low and must not at- BLM Manual 8400–Visual Resource Management is tract attention. the guide for management of visual resources. It states that the BLM has the basic stewardship respon- Class II To retain the existing character of the land- sibility to identify and protect visual values on public scape. The level of change to the character- lands, and that visual resource management is a man- istic landscape should be low. Management agement responsibility shared by all resource pro- activities may be seen, but should not at- grams. BLM Manual Handbooks H-8451-1–Visual tract the attention of the casual observer. Resource Inventory and H-8431-1–Visual Resource Any changes must mimic the basic elements Contrast Rating also provide guidance. of form, line, color, and texture found in the predominant natural features of the charac- Instruction Memorandum (IM) NM-80-109, Visual teristic landscape. Resource Management (VRM) Policy and Proce- dures, states that “it is New Mexico State Office pol- Class III To partially retain the existing character of icy to consider all wilderness study areas (WSAs) the landscape. The level of change to the determined by September 30, 1980 to be managed as characteristic landscape should be moder- [VRM] Class II.” IM WO-2000-96, Use of Visual ate. Management activities may attract at- Resource Management Class I Designation in Wilder- tention but should not dominate the view of ness Study Areas, states that “it is the Bureau posi- the casual observer. Changes should mimic tion, recognizing case-by-case exceptions for valid the basic elements found in the predominant existing rights and grandfathered uses, that all WSAs natural features of the characteristic land- should be classified as Class I, and managed according scape.

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Class IV To provide for management activities that objectives for visual resources. Numerous design require major modification of the existing techniques can be used to reduce visual impacts from character of the landscape. The level of surface-disturbing projects by implementing design change to the characteristic landscape can fundamentals such as proper siting or location; reduc- be high. These management activities may ing unnecessary disturbance; and repeating the ele- dominate the view and be a major focus of ments of form, line, color, and texture. Other design viewer attention. However, every attempt strategies to consider are color selection, earthwork, should be made to minimize the impact of vegetative manipulation, structures, reclamation/ these activities through careful location, restoration, and linear alignment. minimal disturbance, and repetition of the basic landscape elements. Major new rights-of-way will be discouraged, and use of existing rights-of-way (including joint use when- The AFO will maintain an inventory of scenic values ever possible) will be promoted. When expansions or on a continuing basis. Land acquired after completion realignments are proposed, the AFO will work closely of this Plan will be managed in accordance with the with the rights-of-way holders, especially State and VRM class objectives for adjacent lands in the same county transportation departments and utilities, to management status. Acreage figures for individual develop appropriate mitigation. Such measures will VRM classes will be revised through maintenance of be designed to protect the scenic quality, and natural the El Malpais Plan/Rio Puerco Resource Manage- and cultural values of the Plan Area, as well as to ment Plan (RMP) and shown in the annual RMP Up- ensure visitor safety. date. Needs for RMP amendments will be identified if indicated through monitoring. When new construction is needed, the AFO will identify the least damaging routes and locations, working Visual resources will continue to be evaluated as a closely with private landowners in areas of mixed part of activity and project planning for all surface- ownership. New construction for roads, pipelines, disturbing projects regardless of size or potential power lines, and communication sites will be autho- impact. The Contrast Rating System identified in rized only if no alternatives exist, and if mitigation BLM Manual 8431 provides the means to evaluate measures can ensure protection of the scenic quality, proposed projects in the Plan Area during the environ- and natural and cultural values of the Plan Area. The mental review process and determine whether they AFO will conduct compliance inspections on all conform with approved VRM objectives. This system rights-of-way and land-use permits. will be used to assess potential visual impacts of non- BLM and BLM-initiated projects and activities to The AFO will inform proponents of major rights-of- ensure that they are within acceptable limits. Empha- way adjacent to the Plan Area of the legislative re- sis will be placed on providing this input during the quirements for protection of the scenic quality, and initial planning and design phase in order to minimize cultural and natural resources of the NCA. The AFO costly redesign and mitigation at later phases of pro- will oppose major rights-of-way proposals on lands ject design and development. Every effort will be adjacent to the Plan Area if they would adversely made to inform potential applicants of the visual re- impact the area's viewshed. In such situations, the source management class objective so they can ade- AFO will work with proponents to find alternative quately incorporate visual design considerations into routes and develop appropriate mitigation. their initial planning and design efforts. Staff from each program involved in resource devel- Special emphasis will be placed on projects within opment work will be responsible for monitoring im- highly sensitive areas as defined in the VRM Inven- pacts on visual resources to ensure that changes are tory Manual Handbook H-8410-1. The Continental within acceptable limits and for evaluating the success Divide National Scenic Trail is rated as a “high sensi- of the visual requirements. tive level” travel route (USDA, FS 1985). Patrol, surveillance, and enforcement will be used to Stipulations will be established as appropriate to as- deter unauthorized activities which would impact sure compatibility of projects with the management visual quality.

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Decisions From Approved There is no Class IV [provide for management activities that require major modification of the existing El Malpais Plan character of the landscape] within the Plan Area. However, visual resources on the BLM lands pro- The Approved El Malpais Plan amends the Rio posed for addition to the NCA that adjoin the south- Puerco RMP for visual resource management in the east corner of the Plan Area are managed by the Plan Area. The AFO will administer visual resources Socorro Field Office as Classes III and IV. They will in the Plan Area according to the objectives of each continue to be managed according to the prescriptions VRM class established in the Approved Plan. VRM in the Socorro RMP for these assigned classes. class objectives were assigned to public lands as shown on Map 2-3 and listed on Table 2-2. VRM The AFO will continue to seek to acquire scenic or Class I [preserve the existing character of the land- conservation easements along Federal, State, and scape] has been assigned to the congressionally county roads passing through the Plan Area to pre- designated Cebolla and West Malpais Wildernesses to vent the views along these roads from being ob- maintain their existing scenic values and natural structed or degraded by developments. appearance. New facilities will be designed and built to achieve a consistent appearance throughout the Plan Area, and TABLE 2-2 to blend with the surrounding landscape and local architectural styles. VRM class objectives have been VRM CLASSES ASSIGNED TO PUBLIC set to accommodate a combination of developments, LAND IN THE PLAN AREA (PA) with higher levels at selected areas for user comfort and convenience, and rustic and primitive facilities elsewhere. Facility design and construction will con- VRM Class Acres % of PA form to the assigned VRM class and be consistent I 100,900 40 with the Plan’s theme of balanced management.

II 148,240 60 The AFO will evaluate and approve all prescribed fire plans, paying close attention to visual resources, wil- III 60 <1 derness values, recreational values, and cultural resource values (e.g., homesteads, hogans) within the Totals 249,200 100 area. Appropriate cultural clearances, special-status species evaluations, and other environmental documentation will be required before any prescribed fire is Class II [retain the existing character of the landscape] initiated. has been assigned to all lands under wilderness review (the Chain of Craters and Canyons WSAs) until they Criteria for Resolution of have been released from further wilderness review or designated as wilderness. Areas designated as wilder- El Malpais Plan Issues ness will be reassigned to VRM Class I. The following factors that apply to the Visual Re- source Management Program were considered in Class II [retain the existing character of the landscape] developing answers to the Recreation, Facility Devel- and Class III [partially retain the existing character of opment, Access and Transportation, Wilderness the landscape] have been assigned to other areas Management, and Boundary and Land Ownership based on a combination of scenic quality, sensitivity Adjustments issue questions. These factors will level, and distance zones, and on management deci- continue to be considered as the El Malpais Plan is sions based on the RMP (as amended) or directed by implemented. policy. Most of the land not under wilderness review was assigned to Class II. Only a 60-acre parcel sur- • Existing recreational use and facilities rounding the Ranger Station was assigned to Class III. • Compatibility with other land and resource uses

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INSERT MAP 2-3

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• Public demand for recreational activities, settings, Patrol, surveillance, and enforcement will be used to and opportunities deter unauthorized activities which would impact visual quality. • Public interests and concerns Staff from each program involved in resource devel- • Coordination with the National Park Service opment work will be responsible for monitoring impacts on visual resources to ensure that the changes • Resource protection are within acceptable limits and for evaluating the success of the visual requirements. • Site location and design Implementation Priorities • Existing roads and trails • Incorporate visual design considerations into all • Maintenance requirements for range improve- surface disturbing projects regardless of size or ments potential impact.

• Resource values that exist on lands within and • Place special emphasis on projects within highly adjacent to the NCA sensitive areas as defined in the VRM Inventory Manual Handbook H-8410-1. • The land ownership pattern • Provide VRM input during the initial planning Guidance From Rio Puerco RMP and design phase so as to minimize costly redesign and mitigation at later phases of project de- Some of the guidance in the Rio Puerco RMP contin- sign and development. ues to be applicable to management of El Malpais NCA and adjoining lands. The guidance for the Vi- Support Needs sual Resource Management Program is listed below as “Criteria for Resolution of RMP Issues.” Staff from each program involved in non-AFO- and AFO-initiated projects and activities will be responsi- Criteria for Resolution of RMP Issues ble for monitoring impacts on visual resources to ensure that changes are within acceptable limits of the Two of the criteria used to guide resolution of the Rio class where the proposed project or activity is located. Puerco RMP issues remain applicable as guidance for future actions in the Visual Resource Management Lands & Realty Program: The Lands and Realty Program will support the Visual • Designation for OHV use will consider protection Resource Management Program in acquiring scenic for resources such as . . . visual quality . . . . and conservation easements.

• Fuelwood will not be made available in areas where harvesting would degrade or disturb . . . Interpretation/Public Education the scenic . . . values of an area. The Interpretation/Public Education Program will develop interpretive messages and media such as Monitoring/Studies brochures and exhibits, prepare educational materials, and present interpretive/educational programs that The AFO will maintain an inventory of scenic values include topics promoting understanding of the AFO’s on a continuing basis, update VRM class acreage goals and objectives for the management of visual through RMP maintenance, and identify needs for resources within the assigned classes for the mainte- RMP amendments when indicated by monitoring. nance of the scenic values within the Plan Area.

2-21 2-22 RECREATION FACILITIES DEVELOPMENT

Program Goals Manual Sections 8300–Recreation, 8357–Byways, 8360–Visitor Services, and 8362–Interpretive Ser- vices. Recreation facilities development will be con- The BLM's goal for the Recreation Program is to sistent with the policy indicated in Recreation 2000 (a ensure the continued availability of quality outdoor national planning and policy document for recreation recreational opportunities and experiences that are not management into the year 2000 and beyond) (USDI, readily available from other sources. Recreational use BLM 1988b). and capital investment in facilities are managed to protect the health and safety of visitors; protect natural, cultural, and other resource values; stimulate Field Office Program Guidance public enjoyment of public land; provide for universal access (including for physically challenged visitors); For any project proposed in the Plan Area, the AFO and to the extent possible, resolve user conflicts. will continue to evaluate recreation resources and Management priority is given to undeveloped areas facility development on a case-by-case basis as part of experiencing resource damage, user conflicts, or project-level planning. Such evaluation will consider threatening visitor safety; areas where use exceeds the compliance of the action with current management current capacity; unique and/or scenic attractions plans, the significance of the proposed project, the adjoining heavily traveled highways; and preservation sensitivity of resources in the affected area, and con- and protection of natural and cultural resources. sultation with local interested American Indian Tribes. Stipulations will be attached as appropriate to ensure compatibility of projects with recreation management Management Guidance objectives.

Policy and Authorities All trail designs will incorporate accommodations, where practicable, for universal access. Location and Recreation programs are managed according to multi- construction of trail treadways will take into consider- ple use principles unless otherwise specified by law or ation and avoid, if possible, conflicts with private BLM policy. In areas formally recognized by Con- waters, private lands, sensitive wildlife and plant habi- gress, such as designated wildernesses and National tats, and sensitive cultural resource sites. As individ- Conservation Areas, providing recreational opportuni- ual trails are sited for development and where further ties requires more intensive management and invest- NEPA compliance is necessary, all required site-spe- ment. The El Malpais Act directs that the NCA be cific studies and clearances will be done and a deter- managed to protect geologic, archeological, ecologi- mination will be made concerning the environmental cal, cultural, scenic, scientific, and wilderness re- consequences of the proposal. sources in a manner consistent with the Federal Land Policy and Management Act of 1976 (FLPMA). New trails will not be built into sensitive wildlife habi- Recreation facility development planning for El tats, and those in other areas will be designed when- Malpais NCA is one of the specific management plans ever feasible to direct visitors away from sensitive called for by the El Malpais Act. areas. The AFO may close trails permanently or seasonally where problems are found to exist or are ex- Laws that pertain to the Recreation Program in El pected to occur within sensitive wildlife areas. Malpais NCA include FLPMA; the El Malpais Act; the Federal Cave Resources Protection Act of 1988; Recreational facilities and actions already completed the Land and Water Conservation Fund Act of 1964; at the Ranger Station (USDI, BLM 1990c) and La the Wilderness Act of 1964; the National Trails Sys- Ventana Natural Arch (USDI, BLM 1989a) will con- tem Act of 1968; and the National Environmental tinue to be managed for intensive use, with emphasis Policy Act of 1969 (NEPA). on completing approved projects. For example, the AFO will develop a ½-mile-long (round trip) interpre- Manuals and policy statements that pertain to the tive/orientation trail at the Ranger Station. Interpre- Recreation Program in El Malpais NCA include BLM tive programs, exhibits, and demonstrations will

2-23 Recreation Facilities Development Chapter 2 continue to be provided at the Ranger Station. At the mechanical transport. The AFO will continue to en- arch, interpretive wayside exhibits that emphasize courage such use by publishing maps and brochures wilderness, wilderness use ethics, and area geology identifying the opportunities available within these will be developed. areas.

The AFO will continue to cooperate with the National Secondary impacts to cultural resources, such as un- Park Service (NPS) in operating the Northwest New authorized collection of surface artifacts, will be more Mexico Visitors Center near Grants. thoroughly studied and evaluated than is usual outside the NCA. Therefore, the AFO will require an inven- Monitoring will be used to protect recreation re- tory over an area at least ¼-mile wide around pro- sources and prevent their degradation. Staff patrols, posed visitor-use developments. traffic counters, and trail counters will be used to measure and monitor visitor use. The AFO uses the Interpretation will occur through one-on-one contacts Limits of Acceptable Change (LAC) monitoring sys- with visitors (public programs, guided hikes, and tem to determine the need to modify use allocation or Ranger Station contacts); printed brochures, exhibits, management. Certain limits have already been estab- interpretive media, and publications at the Ranger lished for the Plan Area, and these will be used to Station; and wayside exhibit panels, self-guided trails trigger actions (management modifications) called for with interpretive signs, kiosks, and informational in this Plan (see Appendix D). signs.

The AFO will inspect recreation-related facilities and Prescribed fires will be used where appropriate conduct a program of preventive and rehabilitative throughout the Plan Area to reduce fuel loading (haz- maintenance of recreation-related facilities, to the ardous fuel reduction) to reduce the risk of large fires extent resources permit, to provide a safe, sanitary, in areas where there are high-value resources (e.g., and aesthetically pleasing environment for visitors and recreation facilities, houses, land improvements, his- employees. Through inspection the AFO will identify toric structures). A written prescribed fire plan must and remove hazards or give warning of their presence. have been prepared and approved before ignition. AFO personnel, volunteers, cooperative management agreements, contracts with the private sector, and The Cerritos de Jaspe and Neck Units are within the other means as necessary will be utilized to maintain Joint Fire Management Plan’s (USDI, BLM and BLM facilities. The AFO will continually evaluate its NPS 2001) Minimize Wildland Fire Presence Fire recreation-related facilities through inspection to Management Unit, as are portions of the Spur Unit determine if they should be reconstructed, expanded, and the Cebolla Wilderness (see Glossary and Map 2- transferred, closed, or removed based on costs, re- 9 in the Fire Management section). All wildland fires source protection, health and safety, and their capabil- in this fire management unit, regardless of ignition ity of meeting current and future uses and demands. source, will receive prompt suppression action commensurate with human safety in all instances. Fire in the Minimize Wildland Fire Presence Unit presents a Decisions From Approved threat to such resource values as recreational use El Malpais Plan areas, structures, cultural resources with flammable elements, critical wildlife habitats, and private land. The AFO will provide a limited number of developed To prevent unacceptable resource damage and/or loss recreational facilities at a modest number of selected of life and property, fires will generally not be allowed sites, and will seek to disperse visitors to other parts to burn in areas where public safety and other re- of the Plan Area. Facility development will occur source values are at risk. In some circumstances, through project-level analysis. Users can continue to prescribed fires may be used to protect the resource pursue primitive types of recreation in designated values within these areas by reducing fuel loading. wilderness that do not require the use of motor vehi- Such fires would reduce the risk of catastrophic fires cles, motorized equipment, or other forms of in the future.

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General Recreation Facilities tional use of the campground, appropriate mitigating measures will be taken (e.g., data recovery, closure of Recreational facilities and actions already completed affected areas to public entry). at the Ranger Station and La Ventana Natural Arch will continue to be managed and maintained for inten- Picnicking facilities will be provided only at the south sive use. end of The Narrows and will include a picnic area with up to 10 units, parking, drinking water (if possi- New facilities will be designed and built to achieve a ble), graveled access, and vault toilets. Up to three consistent appearance throughout the Plan Area, and wayside exhibits will be located near the picnic area or to blend with the surrounding landscape and local at the nearby trailhead for the Narrows Rim Trail. architectural styles. VRM class objectives have been (Figure 2-a shows a conceptual design of these devel- set to accommodate a combination of developments, opments.) The picnic area is not known to be in an with higher levels at selected areas for user comfort especially sensitive area, but a Class III cultural re- and convenience, and rustic and primitive facilities sources inventory will be conducted in a ¼-mile radius elsewhere. Facility design and construction will con- around this facility to consider secondary impacts. form to the assigned VRM class and be consistent Picnicking will also be encouraged as a dispersed with the Plan’s theme of balanced management. activity. The Narrows will be designated as a day- use-only site for parking and hiking in the Cebolla Camping will be offered at one developed camp- Wilderness. ground and at dispersed sites throughout the Plan Area. No camping will be allowed at The Narrows or Mountain-biking facilities will be provided at the at La Ventana Natural Arch. The AFO will develop a Cerro Americano trailhead for the Continental Divide campground within approximately 8 acres of the Spur National Scenic Trail (CDNST). Trailhead facilities Unit to accommodate camping on the east side of the to accommodate mountain-bike users in the Cerritos Plan Area (see Map 2-2). The exact location will be de Jaspe and Brazo Units will be built only if moun- decided after cultural resources surveys, special-status tain bike routes are established there. The travel species surveys, and site investigations are completed. routes available for mountain bike use will not be The campground will provide up to 20 single-family marked as trails until established of LAC standards for units with leveled parking spurs large enough to han- social trails are exceeded (see Appendix D). dle small self-contained recreational vehicles, vehicle campers, or tent camping. One unit will be built for Approximately 273 miles of AFO-designated travel multi-family or group camping with appropriate park- routes are available for sightseeing, driving for plea- ing. Two vault toilets, tables, and cooking facilities sure, or back-country driving, including one desig- will be constructed within the campground and, if nated Back Country Byway, the Chain of Craters possible, drinking water will be provided. Vehicle Back Country Byway. The AFO will apply for desig- access to the campground from NM 117 will be im- nation of two new Back Country Byways, the NM proved by upgrading the existing dirt road and surfac- 117-CR 42-NM 53 loop drive and a route extending ing it for all-weather use. An amphitheater designed through the Brazo Unit. The AFO will work with to hold about 50 people will be built at a location partners to purchase and install up to four signs (see within a five-minute walk of the campground. The Figure 2-b) and one or two kiosks (see Figure 2-c) proposed campground will require special cultural for each byway (see Map 2-2). (The layouts for typi- resources survey and monitoring. The campground is cal kiosks are shown in Figures 2-d and 2-e.) Signs near areas of dense cultural resources that would be usually measure 3 feet tall by 5 feet wide, with a total vulnerable to surface collection. Therefore, in addi- height of 6 feet including support posts. tion to the Class III cultural resources inventories, the AFO will conduct a reconnaissance survey within a Entry identification signs will be placed and/or main- one-mile radius before developing the campground, tained at up to six locations along roads into the attempting to locate and document all sites vulnerable NCA. Additional signs will be posted as indicated by to illegal surface collection. The condition of these public comment or to eliminate confusion about land sites will be monitored carefully, and if any changes in status. The dimensions of these signs will be the same their condition are detected resulting from recrea- as the Back Country Byway signs.

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Pullouts with interpretive kiosks will be constructed at La Ventana Natural Arch, The Narrows, and Armijo three NCA entry locations: the junction of NM 117 Canyon will continue to serve as primary access and CR 42, the western entrance along NM 53, and points to the Cebolla Wilderness. Facilities will be the first public land encountered along NM 53 (T. 9 improved at The Narrows and Armijo Canyon to N., R. 10 W., sec. 16). accommodate visitors and help direct wilderness access. Wildlife viewing opportunities will be identified along as many as eight stretches of road in the NCA (see The Cebolla Canyon Road (No. 2003, which splits the Map 2-2). The AFO will provide interpretive material Cebolla Wilderness), and the Sand Canyon Road (a and signs to enhance the viewing experience. Watch- dead-end, cherry-stemmed road) also provide oppor- able wildlife signs will be installed along CR 42, NM tunities for users to gain access to the Cebolla Wilder- 53, and NM 117 to promote this recreational opportu- ness. The AFO will maintain these roads more fre- nity. quently to reduce erosion and improve access opportunities. When warranted by significant visitation, the AFO will install visitor registration boxes at selected archeologi- Since most of its 3.5-mile length is in the Cebolla cal properties. No additional developments will be Wilderness, the Narrows Rim Trail will be improved planned at these sites. Visitation will be encouraged using minimum tool techniques to facilitate resource at the Lobo Canyon Petroglyphs rather than at other and wilderness protection and to help direct visitor rock art sites. Systematic documentation will be use to a single pathway. The AFO will provide a needed at the petroglyphs before such visitation can primitive trailhead and graveled parking for up to 15 be encouraged. vehicles at the Narrows. Horseback access to the Cebolla Wilderness will continue to be provided at Trails, Trailheads, & Access Points this location. Up to three wayside exhibits will be located at the trailhead or at the nearby Narrows pic- The AFO will establish up to 10 additional hiking nic area. (See Figure 2-a for a conceptual design of trails in the Plan Area, for a total of up to 15 trails these developments.) with a length of approximately 57 miles to distribute visitors and provide resource protection (see Table A graveled access road and graveled parking area for 2-3 and Map 2-2). Trail routes will be modified to up to 20 vehicles will be constructed at the Dittert direct visitor use away from sensitive cultural re- Site. A primitive trailhead will be constructed to sources. The trailheads are not known to be in espe- serve the Dittert Site and Armijo Canyon Homestead cially sensitive areas, but Class III inventories will be and Springhouse. This will also be a trailhead and conducted in a ¼-mile radius around these facilities to access for the Cebolla Wilderness. Horse facilities consider secondary impacts. will be built to provide access to the Cebolla Wilder- ness, not the Dittert Site. (Figure 2-f shows a concep- The AFO will develop a ½-mile-long interpretive/ tual design for these facilities.) orientation loop trail at the Ranger Station (USDI, BLM 1990c). To protect resources by focusing visi- Dittert Site interpretation will include up to two way- tor use, as well as to provide visitors with an opportu- side exhibits, a trail guide, and guided hikes for public nity for exercise, a trail will be built connecting the and school groups (50 to 200 people per year). Inter- campground with the interpretive/orientation trail at pretive elements about the Dittert Site (located within the Ranger Station. the boundaries of the Cebolla Wilderness) will be placed outside the wilderness boundary, at the trail- Visitor facilities at trailheads and other entry points to head to the Dittert Site and the Armijo Canyon wilderness will be upgraded to improve access oppor- Homestead. tunities, services, and information. Additional on-site information will be provided to better inform and The expanded trail system will provide improved educate the public. Signs will identify WSA and wil- access opportunities to such sites as the Lobo Canyon derness boundaries, WSA or wilderness name, and Petroglyphs, one or two homesteads, Cerro some regulations governing use. Americano, La Rendija, and the historic schoolhouse site in the West Malpais Wilderness.

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TABLE 2-3

TRAILHEADS IN THE PLAN AREA a

Map ID No. b Name Trail Use or Destination Served

Existing/Approved T-1 Ranger Station Interpretive/Orientation Trail, Ranger Station Reservoir

T-2 La Ventana Natural Arch La Ventana Arch, Cebolla Wilderness

T-3 The Narrows Cebolla Wilderness, Narrows Rim Trail

T-4 Cerro Brillante CDNST, West Malpais Wilderness, La Rendija, West Malpais Schoolhouse, Chain of Craters

T-5 Cerro Americano CDNST, mountain bike use

Proposed T-7 Armijo Canyon/Dittert Cultural & historic sites in Cebolla Wilderness Sites

T-8 Brazo (2 trailheads) c Mountain bike use

T-10 Savage Schoolhouse Historic schoolhouse in Cebolla Wilderness

T-11 Cerritos de Jaspe c Mountain bike use

T-12 Hole-in-the-Wall Old volcanic flows surrounded by newer ones, West Malpais Wilderness

T-13 Lobo Canyon Prehistoric petroglyphs in Cebolla Wilderness

T-15 Spur Campground Loop trail past amphitheater

Note: a Two additional trailheads proposed at historic homesteads; locations not yet pinpointed. b See Map 2-2 for the location of these trailheads c Trailheads to be developed if use shows the need.

The existing trailhead for the Hole-in-the-Wall Trail, Primitive trailheads, defined parking for up to eight at the end of the cherry-stemmed road from CR 42, vehicles, and a trailhead kiosk will be developed for will continue to serve as the primary access point to the following cultural/historic properties as time, staff, the West Malpais Wilderness. The El Malpais Plan and budget allow: the Lobo Canyon Petroglyphs limits use of the vehicle route leading into Hole-in- (rather than at other rock art sites), the Savage the-Wall (a major attraction of the West Malpais Schoolhouse in Cebolla Canyon, the Ranger Station Wilderness) to authorized vehicles. This rarely used Reservoir, and other deserving properties as needed vehicle route will continue to be identified as the to distribute visitor use. All-weather gravel roads will Hole-in-the-Wall Trail. The existing trailhead and be constructed to provide access to trailheads. For vehicle access to the Hole-in-the-Wall Trail will be the Ranger Station Reservoir, the Ranger Station and improved, and a graveled parking area for up to 10 parking lot will serve as the trailhead, with the ap- vehicles and horse facilities will be built. (See Figure proved interpretive/orientation trail for access (USDI, 2-g for a conceptual design of these developments.) BLM 1990c). Data recovery through systematic

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2-33 Recreation Facilities Development Chapter 2 collection of surface materials will be necessary at the The AFO will conduct special hikes and programs for Ranger Station Reservoir before the trail is extended up to 200 people per year to these features. to it. Systematic documentation will be needed at the Lobo Canyon Petroglyphs before the trail and trail- For the convenience of horseback riders in the Plan head can be constructed. Area, the AFO will provide access facilities at several allocations. The Narrows will be one location, along The AFO will construct two primitive trailheads for with the Armijo Canyon area (for access to the the CDNST at Cerro Americano and Cerro Brillante. Cebolla Wilderness, not the Dittert Site), the Hole-in- Each trailhead will include a graveled parking area for the-Wall trailhead (for access to the West Malpais up to 20 vehicles and up to two wayside exhibits (to Wilderness), and the Cerro Brillante trailhead (for include watchable wildlife information at Cerro access to the Chain of Craters). Americano). Facilities for horse use will be provided at the Cerro Brillante trailhead. The facilities at the Criteria for Resolution of Cerro Americano trailhead will accommodate moun- El Malpais Plan Issues tain bike use. (See Figures 2-g, 2-h, and 2-i for possible design and layout of these developments.) Where The AFO considered the following factors in develop- feasible, the AFO will develop and identify water ing answers to the issue questions regarding facility sources for CDNST hikers. development. These factors will continue to be considered as the El Malpais Plan is implemented. The AFO will seek to acquire a treadway for the CDNST in the Cerro Brillante-AFO Unit (see Maps • Existing facilities 1-2 and 2-2) by easement, exchange or purchase, if owners are willing. The alternative routes shown on • Resource protection Map 2-2 will continue to be used until the treadway in the Cerro Brillante-AFO Unit is acquired. (See “Im- • Visitor health and safety plementation Guidance From RMP,” below.) • Site location and design Other trails at selected locations will not be developed until established LAC monitoring system standards for • Public interests and concerns social trails are exceeded (see Appendix D). Travel routes available for mountain bike use in the Cerritos • Coordination with the NPS de Jaspe and Brazo Units will not be marked as trails until established LAC standards for social trails are exceeded. Trailhead facilities to accommodate moun- Guidance From Rio Puerco RMP tain bike users in the Cerritos de Jaspe and Brazo Units will be built only if mountain bike routes are Some of the general recreation decisions in the Rio established there. Puerco RMP continue to be applicable to management of El Malpais NCA and adjoining lands. This guid- One or two selected homesteads will be developed for ance is listed below as “Criteria for Resolution of public use. To provide for public access, the AFO RMP Issues,” “Implementation Guidance From will build a primitive trailhead, including a parking RMP,” and “Decisions Carried Forward From Previ- area for four to six vehicles, to serve each selected ous Planning.” homestead. (Figures 2-h and 2-i show possible designs for these developments.) Criteria for Resolution of RMP Issues

The closure of 83.4 miles of vehicle routes in the Plan Two of the criteria used to guide resolution of the Rio Area will create opportunities for visitors to use them Puerco RMP issues remain applicable as guidance for as informal hiking trails without vehicle conflicts. future actions in the Recreation Program:

Interpretive wayside exhibits will be developed for up • Designation of OHV use will consider protection to three archeological sites and/or homesteads along of resources such as . . . recreational values . . . . with brochures and/or trail guides keyed to markers.

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• Fuelwood will not be made available in areas 8560–Wilderness states that “no recreation fa- where harvesting would degrade or disturb . cilities or improvements may be provided” within . . recreational . . . values. wilderness. No campground will be developed at this location.] Implementation Guidance From RMP • Close the Dominguez-Escalante trailhead/ parking lot. [The public lands affected by this decision are now managed by the NPS.] The RMP directs the AFO to prepare a sign plan. [A sign plan has been prepared for El Malpais NCA.] Monitoring/Studies The BLM, volunteers, organizations, and other agencies are developing a treadway for the CDNST. The Monitoring will be used to protect recreation route for the trail was established in an environmental resources and prevent their degradation. Staff patrols, analysis (EA)/RMP amendment developed jointly by traffic counters, and trail counters will be used to the U. S. Forest Service, the National Park Service, measure and monitor visitor use. The AFO uses the and the BLM (USDA, FS 1992, 1993). The selected Limits of Acceptable Change monitoring system to treadway through the Plan Area is shown on Map 2-2. determine the need to modify use allocation or man- This treadway is the subject of an EA scheduled for agement. Certain limits have already been established completion in 2001. The southernmost three miles of for the Plan Area, and these will be used to trigger this route, in the Cerro Brillante-AFO Unit, cross actions (management modifications) called for in this private land. Utilization of that portion of the Plan (see Appendix D). CDNST would require acquisition of the treadway by easement, exchange or purchase, if owners were Trails at selected locations will not be developed until willing. The alternative routes shown on Map 2-2 will established LAC monitoring system standards for continue to be used until the selected route in the social trails are exceeded (see Appendix D). Cerro Brillante-AFO Unit is acquired. Trailhead facilities to accommodate mountain bike The CDNST EA/RMP Amendment identified two users in the Cerritos de Jaspe and Brazo Units will be trailheads for the CDNST within the Plan Area, at built only if mountain bike routes are established Cerro Americano and Cerro Brillante. These trail- there. The travel routes available for mountain bike heads will serve as staging areas for CDNST users. use will not be marked as trails until established LAC standards for social trails are exceeded. Decisions Carried Forward From Previous Planning The AFO will inspect recreation-related facilities and conduct a program of preventive and rehabilitative maintenance of recreation-related facilities, to the • Construct a parking area, day-use interpretive extent resources permit, to provide a safe, sanitary, site, and loop trail at La Ventana Natural Arch. and aesthetically pleasing environment for visitors and [This action is complete.] employees. Through inspection the AFO will identify and remove hazards or give warning of their presence. • Develop a series of loop trails around Sandstone The AFO will continually evaluate its recreation- Bluffs and Natural Arch. [The Sandstone Bluffs related facilities through inspection to determine if are now managed by the NPS and a trail has they should be reconstructed, expanded, transferred, been constructed at La Ventana Arch.] closed, or removed based on costs, resource protection, health and safety, and their capability of meeting • Develop a primitive campground at Big Hole-in- current and future uses and demands. the-Wall. [Big Hole-in-the-Wall is within the West Malpais Wilderness designated by the El The proposed campground will require special cul- Malpais Act. Section 2(c) of the Wilderness Act tural resources survey and monitoring. The camp- provides that wilderness is an area “. . . without ground is near areas of dense cultural resources that permanent improvements . . . .” BLM Manual

2-36 Recreation Facilities Development Chapter 2 would be vulnerable to surface collection. Therefore, Horse facilities will be built to provide access to in addition to the Class III cultural resources invento- the Cebolla Wilderness, not the Dittert Site. ries, the AFO will conduct a reconnaissance survey within a one-mile radius before developing the camp- • Maintain the Cebolla Canyon Road and the Sand ground, attempting to locate and document all sites Canyon Road more frequently to reduce erosion vulnerable to illegal surface collection. The condition and improve access opportunities to the Cebolla of these sites will be monitored carefully, and if any Wilderness. changes in their condition are detected resulting from recreational use of the campground, appropriate miti- • Encourage visitation at the Lobo Canyon Petro- gating measures will be taken (e.g., data recovery, glyphs rather than at other rock art sites. When closure of affected areas to public entry). warranted by significant visitation, install visitor registration boxes at selected archeological prop- The conditions of the physical structures at the Dittert erties. No additional developments will be Site and the historic homesteads planned for public planned at these sites. visitation will be monitored. Increased maintenance as the result of visitation is expected. • Work with partners to purchase and install up to four signs and one or two kiosks for each desig- Implementation Priorities nated Back Country Byway (see Map 2-2). • Provide mountain-biking facilities at the Cerro The following actions are listed in priority order, Americano CDNST trailhead. although several actions may be carried out at the same time. These developments will occur as time, • Update and maintain sign plan for the NCA. staff, and budget allow. Trails, Trailheads, & Access Points General Recreation Facilities The following actions are listed in priority order, • Complete approved recreation facility actions at although several actions may be carried out at the the Ranger Station and La Ventana Natural Arch. same time. These developments will occur as time, staff, and budget allow. • Develop a campground within approximately 8 acres of the Spur Unit to accommodate camping. • Develop a ½-mile-long (round trip) interpretive/ Vehicle access to the campground from NM 117 orientation trail at the Ranger Station (USDI, will be improved by upgrading the existing dirt BLM 1990c). To provide visitors with exercise road and surfacing it for all-weather use. At a and direct use for resource protection, build a location within a 5-minute walk of the camp- loop trail near the campground that connects with ground, the AFO will build an amphitheater de- the interpretive loop trail at the Ranger Station. signed to hold about 50 people. • Improve the Narrows Rim Trail to help direct • Provide picnicking opportunities at the south end visitor use to a single pathway. Provide graveled of The Narrows. Picnicking will also be encour- parking for up to 15 vehicles. Horseback access aged as a dispersed activity. The Narrows will be to the Cebolla Wilderness will continue to be designated as a day-use-only site for parking and provided at this location. hiking in the Cebolla Wilderness. • Construct two primitive trailheads for the • Construct a graveled access road and graveled CDNST, one each at Cerro Americano and Cerro parking area for up to 20 vehicles at the Dittert Brillante. At the Cerro Brillante trailhead, facili- Site. A primitive trailhead will be constructed to ties for horse use will be provided. At the Cerro serve the Dittert Site and Armijo Canyon Home- Americano trailhead, facilities will accommodate stead and Springhouse. This will also be a trail- mountain bike use. Where feasible, develop and head and access for the Cebolla Wilderness. identify water sources for CDNST hikers.

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• Improve existing trailhead and vehicle access to The AFO will require a Class III cultural resources the Hole-in-the-Wall Trail; build a graveled park- inventory over an area at least ¼-mile wide around ing area for up to 10 vehicles and horse facilities. proposed visitor-use developments.

• Develop primitive trailheads, defined parking for In addition to Class III cultural resources inventories, up to eight vehicles, and a trailhead kiosk for the the AFO will conduct a reconnaissance survey within Lobo Canyon Petroglyphs, the Savage School- a one-mile radius before developing the campground house in Cebolla Canyon, the Ranger Station near the Ranger Station, attempting to locate and Reservoir, and other deserving properties as document all sites vulnerable to illegal surface collec- needed to distribute visitor use. All-weather tion. The condition of these sites will be monitored gravel roads will provide access to trailheads. carefully, and if any changes in their condition are For the Ranger Station Reservoir, the Ranger detected resulting from recreational use of the camp- Station and parking lot will serve as the trailhead, ground, appropriate mitigating measures will be taken. with the approved interpretive/orientation trail for access. The picnic area at The Narrows is not known to be in an especially sensitive area, but a Class III inventory • Develop one or two selected homesteads for will be conducted in a ¼-mile radius around this facil- public use. To provide for public access, the ity to consider secondary impacts. AFO will build a primitive trailhead, including a parking area for four to six vehicles to serve each selected homestead.

• Provide access facilities for the convenience of horseback riders at several locations in the Plan Area: The Narrows, the Armijo Canyon area (for access to the Cebolla Wilderness, not the Dittert Site), the Hole-in-the-Wall trailhead (for access to the West Malpais Wilderness), and the Cerro Brillante trailhead (for access to the Chain of Craters). Class III inventories will be conducted in a ¼-mile radius around trailheads to consider secondary im- Support Needs pacts. As up to 10 additional hiking trails are established in the Plan Area, for a total of up to 15 trails and approximately 57 miles, trail routes will be modi- Fire Management fied to direct visitor use away from sensitive cultural resources. Implementation of the wildland fire use and prescribed fire goals, along with protection of areas developed Systematic documentation will be needed at the Lobo for recreation opportunities will support the Recrea- Canyon Petroglyphs before visitation can be encour- tion Facilities Program. aged.

Engineering & Operations Data recovery through systematic collection of surface materials will be necessary at the Ranger Station Engineering and Operations support will be needed to Reservoir before the trail can be extended to it. design, contract, or construct recreation facilities. Native American Consultation Cultural Resources The Cultural Resources staff also will support recre- Survey and inventory of cultural resources in the ation facility development through consultation with NCA will support the Recreation Facilities Program. local interested American Indian Tribes.

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Law Enforcement Volunteers

The Law Enforcement Program will continue to Volunteers support the Interpretation/Public Educa- patrol the Plan Area to protect natural and cultural re- tion Program by leading hikes for the public, working sources and provide assistance and protection to at the information desk at the Ranger Station, and public land users. making contact with the public during patrols.

Interpretation/Public Education

Personal and non-personal interpretive/education support is necessary to promote dispersed recreation or direct use to developed areas in the NCA.

2-39 2-40 OFF-HIGHWAY VEHICLES

Program Goals recently completed its National Management Strategy for Motorized Off-Highway Vehicle Use on Public Lands (USDI, BLM 2001). This document is a first This program seeks to provide adequate access to step in developing a proactive approach to determin- meet the needs of all users, including those with physi- ing and implementing better on-the-ground motorized cal challenges, to BLM facilities and resources, while OHV management. It provides agency guidance and reducing conflicts between users and preventing dam- offers recommendations for future actions to improve age to natural resources. The BLM designates all motorized vehicle management. public lands as open, limited, or closed to motorized vehicle use, and determines whether restrictions are To implement EO 11644, BLM regulations at 43 CFR needed to manage non-motorized uses (e.g., hiking, 8340 established criteria for designating management mountain biking, horseback riding). areas of public land as “open,” “limited,” or “closed” to off-highway vehicle use. The “open,” “limited,” Management Guidance and “closed” area designations are accomplished through the land-use planning process. Areas are Policy and Authorities designated as limited where the BLM must restrict OHV use in order to meet specific resource management objectives. These limitations may include re- For many years the term “off-highway vehicle” stricting the number of or types of vehicles; limiting (OHV) has been used by the public, industry, and the the time or season of use; limiting use to existing BLM interchangeably with the term “off-road vehicle” roads and trails; or limiting use to designated roads (ORV). However, only the term off-road vehicle has and trails. In accordance with IM NM-94-098, when a legally established definition in the BLM’s 43 CFR limiting vehicles to roads and trails, the preferred 8340 regulations or Presidential Executive Orders designation in New Mexico is to limit vehicles to applying to BLM: “any motorized vehicle capable of, designated roads and trails. The use of designated or designed for, travel on or immediately over land, travel routes (roads and trails) is a more effective water, or other natural terrain.” The AFO has never- method of controlling OHV use, developing an OHV theless elected to use “off-highway,” partly because it access network, protecting sensitive resource values, is a more popular term, but primarily because the and determining when new, illegal routes of travel are vehicles addressed by the regulations use roads and being created. trails on BLM-administered land, and are therefore, not just “off-road.” Criteria to be considered when designating vehicle routes, as summarized from IM NM -95-083, are: Management of motorized access to and across public adjacent resource sensitivity and use, purpose and lands is directed by Executive Order (EO) 11644, as need for route, manageability, duplication, maintain- amended by EOs 11989 and 12608. Guidance to ability, hazards, land ownership and trespass, destina- implement these EOs is provided in BLM Manuals tion, reasonable and adequate access to destination, 8342, 8300, and H-9114-1, and Titles 8340 and 8364 adjacent land management objectives, user conflicts, of the Code of Federal Regulations (CFR). Instruc- and existing route designations. Signing of designated tion Memorandum (IM) NM-95-031 (BLM New routes follows the guidance provided in BLM Manual Mexico Roads Policy) provides direction for con- Series 9130. structing, maintaining, rehabilitating, abandoning, and closing roads under BLM jurisdiction. Additional guidance is provided through IM NM-95-083 (Trans- Field Office Program Guidance portation and Access Management) and IM NM-94- 098 (Off-Highway Vehicle Management). Non-mo- The AFO identified motor vehicle routes of travel in a torized uses are controlled through 43 CFR 1600 and 1996 inventory of the Plan Area (USDI, BLM 1996c). restricted under 43 CFR 8364.1. Road closures out- These routes have now been designated as open, side of land-use-planning are accomplished through closed, or limited through the El Malpais Plan (see the closure procedures at 43 CFR 8364. The BLM “Decisions From the Approved Plan,” below.) Any

2-41 Off-Highway Vehicles Chapter 2 new routes in the Plan Area created by management Decisions From Approved action or land acquisition will be designated open, closed, or limited based on the criteria from IM NM- El Malpais Plan 95-083 listed above. The density of vehicle routes in the Plan Area will be Existing State, county, and private roads with valid reduced. rights-of-way will remain open. The AFO will work with these entities, as well as the National Park Ser- To enhance natural processes, motor vehicle area vice, the U. S. Forest Service, and private individuals designations within the Plan Area are either "limited" on a case-by-case basis to build, realign, upgrade, and or "closed" (see “Policy and Authorities,” above). rehabilitate roads that lie within the Plan Area or pro- The only land designated as “closed” is designated vide access to El Malpais National Monument through wilderness (40 percent of the Plan Area); the closed the Plan Area. The 18.4 miles of BLM arterial route area would increase if Congress designates the Can- identified in the 1996 inventory (BLM Road 2003) yons WSA or any other lands as wilderness. Vehicle will remain open for use by the public (see Map 2-4), travel in the rest of the Plan Area is limited to “desig- except when closed by natural occurrences or in emer- nated routes” (60 percent of the Plan Area) as shown gencies (i.e., to protect resource values, promote the on Table 2-4. No lands will remain open or safety of all users, or minimize conflicts among vari- undesignated. ous users). TABLE 2-4 In accordance with the El Malpais Act, the American Indian people recognized as using the NCA are en- MOTOR VEHICLE AREA DESIGNATIONS IN sured access for traditional uses and cultural purposes. THE PLAN AREA (PA) Such access must be consistent with the American (public land acres) Indian Religious Freedom Act and the Wilderness Act. On request, the AFO will temporarily close the Area Status Acres % of PA smallest practicable area for the minimum period of time needed to accommodate such religious activities. Open 0 0 Written notification of such action must be provided to the Energy and Natural Resources Committee of Closed 100,900 40 the Senate, and to the Interior and Insular Affairs Committee of the House, within seven days after Limited 148,370 60 initiation of any such closure. Undesignated 0 0

New roads or trails will not be built into sensitive Totals 249,200 100 wildlife habitats, and those in other areas will be designed whenever feasible to direct visitors away from sensitive areas. Where problems are found to exist or The El Malpais Plan sets a prescription for the area are expected to occur within sensitive wildlife areas, designated as “limited” which limits general public the AFO may close roads or trails permanently or OHV use to designated travel routes. The 273.1 seasonally following the closure procedures at 43 miles of BLM-administered local and collector routes CFR 8364. within the limited portion of the Plan Area shown on Map 2-4 are the “designated routes” open to the gen- Non-commercial, non-motorized and non-mechanized eral public. The 83.4 miles of routes within the lim- forms of access (e.g., backpacking, hiking, walking, ited area shown on Map 2-5 as “closed” are not desig- horseback riding) will continue. nated OHV routes open to the general public, and will be closed to render them impassable to vehicles and Acquired land will be managed for motor vehicle use reclaimed (see Table 2-5). Use of 6.3 miles of routes in the same manner as adjacent land with the same on public lands within the limited area will be re- management status. stricted to authorized users for access purposes.

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TABLE 2-5 ment Plans for the individual allotments overlapping the Cebolla and West Malpais Wildernesses (USDI, STATUS OF BLM MOTOR VEHICLE ACCESS BLM 1990a, 1990b, 1990d). Allottees may use mo- ROUTES WITHIN THE LIMITED AREA torized vehicles on authorized routes to access windmills for annual maintenance, fences every five years, and dirt tanks every ten years. Access to inholdings Route Status Miles % of Total will be authorized over routes selected by the AFO to Open 273.1 75 cause the least impact to the areas' wilderness character, while serving the purposes for which the private Closed 83.4 23 land is held or used.

a Authorized 6.3 2 Non-motorized mechanical transport (i.e., mountain and road bikes) is prohibited in wilderness and re- Totals 362.8 100 stricted to designated vehicle routes in the rest of the a Note: These routes are authorized for use by BLM staff Plan Area. Motorized and mechanical access for members and grazing permittees only; they are not open to traditional American Indian cultural practices will also the general public. be restricted to designated routes unless otherwise authorized.

Of the 83.4 miles of routes designated closed to vehi- Traditional American Indian cultural practices will be cles by the Plan within the limited area, approximately allowed to continue in the two wildernesses in a man- 75 miles are within the NCA and 9 miles outside the ner consistent with the intent of the Wilderness Act. NCA but within the Plan Area. The AFO will reclaim Motor vehicle access to the perimeter of each wilder- these roads through natural and mechanical treatment ness will be allowed, but such use inside wilderness to bring them back into resource production. Of the will be prohibited, unless the AFO has granted prior roads to be closed within the NCA, 14 miles are with- authorization after consultation and evaluation. When in the Chain of Craters Unit, 3.1 miles in the Spur such use of motorized vehicles by American Indians is Unit, 15.3 miles in the Continental Divide Unit, 9.2 authorized, stipulations to control impairment of wil- miles in the Cerritos de Jaspe Unit, 7.3 miles in the derness character must be met. Upon request, the Breaks Unit, 12 miles in the Cerro Brillante Unit, and AFO will temporarily close the smallest practicable 14 miles in the Brazo Unit. Outside the NCA, 5.4 area for the minimum period needed to accommodate miles of road within the Brazo Non-NCA Unit and American Indian activities. Written notification of 3.2 miles within the Breaks Non-NCA Unit will be such action must be provided to the Energy and Natu- closed. The routes to be closed have been abandoned ral Resources Committee of the Senate, and to the or did not show signs of regular or continuous use at Interior and Insular Affairs Committee of the House, the time of the 1996 inventory, duplicate other vehicle within seven days after initiation of any such closure. routes serving the area, are causing resource damage, or serve no apparent need. The AFO will develop maps, brochures, and signs to inform the public of access opportunities and restric- A total of 76 miles of State highways, U. S. Forest tions. Signs marking designated routes and closures Service, county, and private roads within the Plan will be posted and maintained. Natural and mechani- Area will remain open, as will 18.4 miles of BLM cal treatments will be used to control access and dis- arterial route (BLM Road 2003) (see Map 2-4). courage vehicle use on closed, unauthorized vehicle routes. Motorized vehicle access over 23.3 miles of routes inside wilderness will be limited to authorized users. Maintenance and improvement will be concentrated Such access will be allowed only to non-Federal on the designated arterial and collector routes. Local inholdings and livestock grazing operations over 5.5 routes will remain rough and impassable at times. miles of authorized routes in the Cebolla Wilderness and 17.8 miles in the West Malpais Wilderness. Ac- The AFO will close roads to increase the isolation in cess for livestock grazing use will continue under the the Plan Area for animals and hunters, following the conditions set in BLM Range Improvement Manage- closure procedures at 43 CFR 8364.

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The Cebolla Canyon Road (No. 2003, which splits the times of national defense emergencies is excluded Cebolla Wilderness), and the Sand Canyon Road (a and will not be affected by “closed” or “limited” dead-end, cherry-stemmed road) will continue to designations. provide opportunities for users to gain access to the Cebolla Wilderness. The AFO will maintain these • OHV use related to mining claim operations will roads more frequently to reduce erosion and improve not be restricted, except by regulations and re- access opportunities. quirements found in 43 CFR 3809, as amended on March 2, 1983. The AFO will close the 2-mile-long two-track road leading into the Cebolla Canyon Community. Other • OHV use performed in conformance with existing access routes not identified for closure elsewhere in leases, permits, rights-of-way stipulations, or this Plan may be closed following the closure proce- other land-use authorizations will not be re- dures at 43 CFR 8364 if this were essential for restricted. source protection. Implementation Guidance from RMP Criteria for Resolution of El Malpais Plan Issues The AFO will prepare a Transportation Management Plan. This Plan will identify the specific transporta- The AFO considered the following factors in develop- tion management actions to be implemented to ac- ing answers to the issue questions regarding off- complish the objectives of the RMP and its amend- highway vehicles, and access and transportation. ments, including the Approved El Malpais Plan. The These factors will continue to be considered as the El AFO road inventory (USDI, BLM 1996c) will be Malpais Plan is implemented. incorporated into the Transportation Management Plan and will be updated as new information becomes • Existing roads and trails available. In addition, access, transportation, and rights-of-way needs will be incorporated into the • Compatibility with other land and resource uses Transportation Management Plan. Priorities for implementation of the Transportation Management Plan • Public interests and concerns, including those of will be specified in the annual RMP Update document. local American Indian groups All National Environmental Policy Act requirements will be complied with prior to implementing specific actions. Guidance from Rio Puerco RMP

Some of the decisions in the Rio Puerco RMP con- Monitoring/Studies tinue to be applicable to management of El Malpais NCA and adjoining lands. This guidance is listed Monitoring will be done with a frequency based on below as “Criteria for Resolution of RMP Issues” and the level of use, as well as resource and safety con- “Implementation Guidance from RMP.” cerns. The AFO will gather information to ensure compliance with motor vehicle use area and route Criteria for Resolution of RMP Issues designations, identify the need to modify these designations, provide and maintain adequate motorized and non-motorized access, protect resource conditions, Three of the criteria used to guide resolution of the and initiate emergency limitations or closures. If Rio Puerco RMP issues remain applicable as guidance monitoring shows that transportation use is causing or for future actions in the OHV Program: will cause adverse effects on resources beyond acceptable limits, is putting the safety of users at risk, or is • Use of military, fire, emergency, or law enforce- allowing significant user conflicts to occur beyond ment vehicles being used for emergency acceptable limits, corrective actions will be taken. purposes; vehicles whose use is expressly autho- The AFO uses the Limits of Acceptable Change rized by the authorized officer, or otherwise offi- (LAC) monitoring system to determine the need to cially approved; vehicles in official use; and com- modify use allocation or management. Certain limits bat or combat support vehicles when used in

2-71 Off-Highway Vehicles Chapter 2 have already been established for the Plan Area, and Support Needs these will be used to trigger actions (management modifications) called for in this Plan (see Appendix D). Lands & Realty

Implementation Priorities The Lands and Realty Program will consult and coordinate with right-of-way holders. The implementation priorities listed below may change due to funding allocations, changes in policy, Cultural Resources new directives, and staffing. Implementation of some of the planned actions will • Sign designated vehicle routes and maintain those require cultural resources inventory. signs. Inspect regulatory, warning, destination, and informational signs semi-annually and note findings. American Indian Consultation

This program will provide support regarding OHV • Provide maps of designated vehicle routes and access and closures dealing with American Indian uses brochures/information promoting responsible and traditional cultural practices. motorized OHV use on public lands.

• Discourage motor vehicle use on closed roads Wildlife through measures such as signs and placement of barriers. Place first priority on blocking those The Wildlife Program will identify areas of sensitive former vehicle routes that had been leading to wildlife habitat. sensitive areas/resources as well as roads showing signs of rehabilitating naturally. Special-Status Species

• Maintain travel routes to protect resources, pro- The Special-Status Species Program will survey and vide for public and employee safety, and ensure inventory for threatened and endangered species and adequate access. other special-status species.

• Monitor Plan Area to detect and evaluate motor- Rangeland Resources ized OHV-related resource damage, public and employee safety concerns due to road conditions, The Rangeland Resources Program will authorize and access inadequacy, and unauthorized roads. Use monitor vehicle access associated with livestock man- a LAC element established for unpaved roads as a agement and range improvement maintenance. tool (see Appendix D). Law Enforcement • Use global positioning system to inventory designated travel routes and other authorized travel The Law Enforcement Program will provide assis- routes for incorporation into the AFO geographic tance by patrolling the Plan Area, ensuring compliance information system (GIS) database. with rules and regulations, and providing assistance to public land users. • Record existing designated travel routes and trails for motor vehicle use into inventory systems (Fa- cility Inventory and Maintenance Management Recreation/Recreation Facilities System, Recreation Management Information System, and GIS. The Recreation Program will provide assistance through the installation and maintenance of signs and • Incorporate recreation designated travel routes barriers, monitoring, and providing personal and non- and trail systems into AFO Transportation Man- personal assistance to public land users. agement Plan.

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Interpretation/Public Education Soil, Water, & Air Resources

The Interpretation/Public Education Program will The Soil, Water, and Air Program will cooperate with support OHV management by presenting interpretive the OHV Program to control erosion on designated programs and preparing educational materials pro- travel routes, and reclaim closed routes. moting the AFO’s goals and objectives for environmentally responsible OHV use within the Plan Area. Engineering & Operations

Wilderness Engineering support will be necessary in the design, contracting, maintenance, and reconstruction of travel The Wilderness Program will identify wilderness routes, and the closure and reclaiming of unauthorized boundaries to prevent unauthorized vehicle entry. travel routes.

Minerals

The Minerals Program will cooperate with the OHV Program to provide reasonable access to private minerals while minimizing environmental impacts.

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Program Goals Management Guidance

Through this program, the BLM identifies lands with Policy and Authorities wilderness characteristics, and recommends to Con- gress that those lands on which wilderness is the most Designated wilderness within the NCA is managed appropriate land use be designated as wilderness. To according to the provisions of the Wilderness Act of preserve wilderness character of designated wilder- 1964, as amended; the Federal Land Policy and ness as Congress has directed, the BLM bases its Management Act of 1976 (FLPMA); BLM Manuals wilderness management on principles of improvement 8560/H-8560-1–Management of Designated Wilder- and non-degradation. Under these principles, the ness Areas, and 8561–Wilderness Management Plans; intent is to prevent degradation of natural conditions, New Mexico BLM Manual Supplement 8100/8560– opportunities for solitude or primitive recreation, and Cultural Resource Management Within Wilderness special features located within the area; and to im- Areas; the BLM's Wilderness Management Regula- prove conditions where possible. tions (43 CFR 8560); and the specific directives contained within the El Malpais Act. Four standard management goals established by the BLM for designated wilderness are as follows: The El Malpais Act provides for the continuation of livestock grazing within the NCA, including within • Provide for the long-term protection and preser- designated wilderness. Additional guidance for vation of the area's wilderness character under the livestock grazing in designated wilderness is provided principle of non-degradation. Manage the area's by the Wilderness Act, Section 108 of Public Law natural condition; opportunities for solitude or (P. L.) 96-560, House Report 96-617 “Grazing in primitive and unconfined types of recreation; and National Forest Wilderness” which accompanies P. L. any features of ecological, scientific, educational, 96-560, and the BLM Wilderness Management Policy scenic, or historic value present so they remain (USDI, BLM 1981c). unimpaired. For wilderness study areas (WSAs), supporting • Manage the area so visitors can use and enjoy it, analyses to determine wilderness suitability must meet but only in a way that leaves it unimpaired for the the requirements of the BLM's Wilderness Study future. The wilderness resource is dominant in all Policy (USDI, BLM 1982b). Both of the areas in the management decisions in which a choice must be Plan Area under wilderness review (the Chain of made between preservation of wilderness and Craters and Canyons WSAs) were analyzed for their visitor use. values, resources, and uses to provide a basis for Congress to determine whether the lands should be • Manage the area using the minimum tools, equip- added to the National Wilderness Preservation Sys- ment, and structures needed to successfully, tem. WSAs are managed under BLM's Interim safely, and economically accomplish tasks while Management Policy for Lands Under Wilderness least degrading wilderness values, temporarily or Review (BLM Handbook H-8550-1; USDI, BLM permanently. Preserve spontaneity of use and as 1995). much freedom from regulation as possible. Field Office Program Guidance • Manage the nonconforming but accepted uses allowed by the Wilderness Act and subsequent As called for by the El Malpais Act, the Cebolla and laws in a way that prevents unnecessary or undue West Malpais Wildernesses will continue to be man- degradation of the area's wilderness character. aged as part of the NCA. The Chain of Craters and Nonconforming uses are the exception rather Canyons WSAs will be managed under the Interim than the rule; emphasis is placed on maintaining Management Policy to prevent impairment of their wilderness character. values until Congress decides on their suitability for

2-75 Wilderness Management Chapter 2 designation as wilderness. If Congress decides not to management in planning for livestock grazing man- designate the lands under review as wilderness and agement. releases them from further consideration, the Interim Management Policy would cease to apply. The re- The El Malpais Act allows previously established leased lands would be managed under other provi- livestock grazing to continue in the NCA wilder- sions of this Plan. nesses, subject to certain guidelines, as long as the intent of Congress regarding grazing in such areas is All activities in designated wilderness will be carried implemented (as expressed in the Wilderness Act, out in conformance with the mandates of FLPMA, the P. L. 96-560, and the House Report “Grazing in Na- Wilderness Act, and the El Malpais Act. Hunting and tional Forest Wilderness” which accompanies P. L. trapping will be allowed to continue under applicable 96-560). The BLM Wilderness Management Policy State laws and regulations. Livestock grazing opera- allows motorized and mechanized equipment to be tions established at the time the Cebolla and West used to maintain range improvements in wilderness. Malpais Wildernesses were designated will continue, The AFO has developed Range Improvement Man- subject to certain restrictions. Visual resources within agement (RIM) Plans for the individual allotments designated wilderness will be managed under VRM overlapping the West Malpais and Cebolla Wilder- Class I objectives. nesses (USDI, BLM 1990a, 1990b, 1990d); the plans provide guidance and procedures for using such Tools, equipment, or structures may be used for man- equipment, and the AFO will continue to follow them. agement in designated wilderness when they are the Allottees may use motorized vehicles on authorized minimum necessary for the protection of the wilder- routes to access windmills for annual maintenance, ness resources or when necessary in emergency situa- fences every five years, and dirt tanks every ten years. tions for the health and safety of the visitor. Manage- The plans are on file at the AFO. If Congress desig- ment, as identified in the Wilderness Management nates all or portions of the Canyons WSA as part of Policy, must use the minimum tool, equipment, or the Cebolla Wilderness, RIM Plans for the affected structure necessary to successfully, safely, and eco- allotments may need to be amended. nomically accomplish the objective. The chosen tool, equipment, or structure should be the one that least Adjustments of the boundary of designated wilderness degrades wilderness values temporarily or perma- can be made only through legislation. nently. To enable easier identification of WSA and wilderness The use of motorized vehicles and mechanical trans- boundaries, the AFO will mark them with signs. port will be prohibited, except in emergency situations and as permitted by law for livestock grazing and If an owner of private mineral interests within wilder- access to private lands and minerals. Access consis- ness wishes to develop them, the AFO will work to tent with the Wilderness Act will be allowed for tradi- provide reasonable access and development opportu- tional and cultural religious practices by American nities with the briefest impacts on wilderness charac- Indians. On request, the BLM will temporarily close ter. the smallest practicable area for the minimum period of time needed to accommodate such religious activi- There are no privately owned minerals in the Chain of ties. Written notification of such action must be pro- Craters WSA, while ownership of minerals is a mix- vided to the Energy and Natural Resources Commit- ture of Federal and private in the Canyons WSA. As tee of the Senate, and to the Interior and Insular Af- in the rest of the NCA, the Federal minerals in the fairs Committee of the House, within seven days after WSAs were automatically withdrawn from the mining initiation of any such closure. and mineral leasing laws by the El Malpais Act. Un- der the Interim Management Policy, if an owner of Livestock grazing management must be coordinated private mineral interests within the Canyons WSA and designed to facilitate other programs. The AFO wishes to develop them, the AFO will work to pro- must consider wilderness management; burn areas; vide reasonable access and development opportunities wildlife projects; management of natural waters, with the least impairment to the area’s suitability for springs and ephemeral flows; and forest and woodland designation as wilderness.

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If Congress designates all or portions of the Canyons Acoma lands that have recurring value to the Acoma WSA as wilderness, it will be managed under the people. This change would result in a net addition of Cebolla Wilderness provisions of the El Malpais Plan. about 4,000 acres to the Cebolla Wilderness. Any other adjustment in the amount of public land under A person with a disability that requires the use of a BLM wilderness management would result from the wheelchair in a wilderness may do so if the wheelchair acquisition of inholdings from willing sellers. meets the definition in the Americans with Disabilities Act of 1990 (ADA). The term wheelchair means a The AFO will continue to seek acquisition of mineral device that is solely for use by a mobility-impaired interests and approximately 700 acres of surface person for locomotion, and that is suitable for use in inholdings from willing sellers, 300 acres in the an indoor pedestrian area. Consistent with the Wil- Cebolla Wilderness and 400 acres in the West Malpais derness Act and the ADA, the BLM is not required to Wilderness. Priority will be given to those lands that facilitate such use by building any facilities or modify- are undeveloped or where use would pose a detrimen- ing any conditions of lands within a wilderness area. tal threat to wilderness character. These lands will be managed as wilderness, if acquired. Interpretive wayside exhibits that emphasize wilderness, wilderness use ethics, and area geology will be The AFO will continue to patrol designated wilder- developed at La Ventana Natural Arch. ness at least once a month when accessible to the public, with more frequent patrols spring through fall Interpretive objectives (themes) will be developed for when use is greater. Patrol will be used to deter vio- each resource whose management can be assisted lations, gather information about area resources and through visitor education efforts. Potential themes uses, and inform users about the resources and appro- have been developed for several programs; these are priate use of designated wilderness. not all-inclusive or final. A potential theme for the Wilderness Program is: Users can continue to pursue primitive types of recreation that do not require the use of motor vehicles, • Wilderness has special values, and is set aside to motorized equipment, or other forms of mechanical protect them while allowing visitors to experience transport. Such use will be encouraged through publi- them. cation of maps and brochures identifying the opportunities available within wilderness. Decisions From Approved The AFO will develop and maintain interpretive way- El Malpais Plan side exhibits that emphasize wilderness, wilderness use ethics, and area geology. Designated Wilderness (Cebolla & Along with trail improvements for recreation users West Malpais Wildernesses) and resource protection, the existing recreational facilities on the wilderness perimeters will remain in The Approved El Malpais Plan recommends that place. Visitor facilities at trailheads and other entry Congress modify the boundary of the Cebolla Wilder- points will be upgraded to improve access opportuni- ness to include some newly acquired lands contiguous ties, services, and information. Additional on-site to the current Cebolla Wilderness boundary (an in- information will be provided to better inform and crease of about 4,000 acres). These lands are now educate the public. Signs will identify the boundaries, being managed as the Canyons WSA. At the request wilderness name, and some regulations governing use. of Acoma Pueblo, the Plan recommends that Con- Personal contact by staff and volunteers will provide gress amend the NCA/Cebolla Wilderness boundary additional on-site information and education when to exclude 160 acres of formerly private land recently users are encountered during area patrols. The AFO acquired by the Pueblo. Located in T. 7 N., R. 10 W., will continue to supply information about the wilder- sec. 12 along the boundary of the Cebolla Wilderness nesses at the Ranger Station on NM 117, the North- (see Map 2-10 in the Land and Realty section), this west New Mexico Visitors Center, and BLM offices parcel consists of aboriginal lands adjacent to other in Grants and Albuquerque.

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La Ventana Natural Arch, The Narrows, and Armijo Except for guided trips, visitor information and educa- Canyon will continue to serve as primary access tion programs about selected prehistoric and historic points to the Cebolla Wilderness. The AFO will im- sites within the wildernesses will be located outside prove facilities at Armijo Canyon and The Narrows to the wilderness boundaries or dispersed at other sites. accommodate visitors and help direct wilderness ac- Additional interpretive information about the Dittert cess. The Cebolla Canyon Road (No. 2003, which Site (located within the boundaries of the Cebolla splits the Cebolla Wilderness), and the Sand Canyon Wilderness) will be placed outside the wilderness Road (a dead-end, cherry-stemmed road) will also boundary, at the trailhead to the site in Armijo Can- continue to provide opportunities for users to gain yon. Visitation of selected prehistoric and historic access to the Cebolla Wilderness. The AFO will sites within the wildernesses will be encouraged maintain these roads more frequently to reduce ero- through additional information provided off-site. sion and improve access opportunities. From The Except for continued maintenance, monitoring, and Narrows Recreation Site, the 3.5 mile long Narrows guided hikes, the AFO will provide no additional on- Rim Trail will be improved through the Cebolla Wil- site interpretation. derness using minimum tool techniques to facilitate resource and wilderness protection, and to help direct Recreational and facility developments at the Dittert visitor use to a single pathway. Site will include a graveled access road and graveled parking area for up to 20 vehicles, as well as a primi- Up to three wayside exhibits will be located at the tive trailhead for the site, and the Armijo Canyon Narrows Rim Trailhead or near the picnic area. Homestead and Springhouse. This will also be a trailhead and access for the Cebolla Wilderness. For the convenience of horseback riders in the Plan Horse facilities will be built to provide access to the Area, facilities will be provided at several locations. Cebolla Wilderness, not the Dittert Site. (Figure 2-f The Narrows will be one location, along with the shows a conceptual design for these facilities.) Dittert Armijo Canyon area (for access to the Cebolla Wil- site interpretation will include up to two wayside derness, not the Dittert Site), the Hole-in-the-Wall exhibits (placed outside the wilderness boundaries), a trailhead (for access to the West Malpais Wilderness), trail guide, and guided hikes for public and school and the Cerro Brillante trailhead (for access to the groups (50 to 200 people per year). The wayside Chain of Craters). exhibits may include information about the Cebolla Wilderness. Management efforts within designated wilderness will continue to be concentrated on signing, preventing The existing trailhead for the Hole-in-the-Wall Trail, unauthorized vehicle intrusions, patrolling and moni- at the end of the cherry-stemmed road from CR 42, toring uses for compliance with the Wilderness Man- will continue to serve as the primary access point to agement Policy, and educating the public through the West Malpais Wilderness. The El Malpais Plan personal contacts, and interpretive and educational limits use of the vehicle route leading into Hole-in- materials. The emphasis will be on providing oppor- the-Wall (a major attraction of the West Malpais tunities for users to experience solitude or take part in Wilderness) to authorized vehicles. This rarely used primitive and unconfined types of recreation, without vehicle route will continue to be identified as the diminishing the areas’ wilderness character. Hole-in-the-Wall Trail. The existing trailhead and vehicle access to the Hole-in-the-Wall Trail will be The AFO will manage the Dittert Site, the Lobo Can- improved, and a graveled parking area for up to 10 yon Petroglyphs, and outstanding homestead-era sites vehicles and horse facilities will be built. (See Figure within wilderness for public values and allocate them 2-g for a conceptual design of these developments.) to public use, while taking care not to impair their information potential. As additional resource infor- Traditional American Indian cultural practices will be mation becomes available, new areas for public use allowed to continue in the two areas in a manner con- may be identified, but only if their information poten- sistent with the intent of the Wilderness Act. Motor tial will not be adversely affected and only after ap- vehicle access to the perimeter of each wilderness will propriate American Indian consultations and compli- be allowed, but such use inside the wilderness will be ance with the National Historic Preservation Act. prohibited, unless the AFO has granted prior authori-

2-78 Wilderness Management Chapter 2 zation after consultation and evaluation. When the ment Management Plans for the individual allotments AFO authorizes such use of motorized vehicles by overlapping the Cebolla and West Malpais Wilder- American Indians, stipulations to control impairment nesses (USDI, BLM 1990a, 1990b, 1990d). Allottees of wilderness character must be met. Upon request, may use motorized vehicles on authorized routes to the AFO will temporarily close the smallest practica- access windmills for annual maintenance, fences every ble area for the minimum period needed to accommo- five years, and dirt tanks every ten years. Access to date American Indian activities. Written notification inholdings will be authorized over routes selected by of such action must be provided to the Energy and the AFO to cause the least impact to the areas' wilder- Natural Resources Committee of the Senate, and to ness character, while serving the purposes for which the Interior and Insular Affairs Committee of the the private land is held or used. House, within seven days after initiation of any such closure. A small portion of the Cebolla Wilderness is within the Minimize Wildland Fire Presence Fire Manage- In most instances, prehistoric and historic cultural ment Unit; the West Malpais Wilderness is within the resources will be subject to the forces of nature in the Wildland Fire Use for Resource Benefits Fire Man- same manner as other wilderness resources. Stabiliza- agement Unit; and the Chain of Craters and Canyons tion and scientific studies of selected cultural re- WSAs and most of the Cebolla Wilderness are in the sources and historic sites within the two wildernesses Conditional Wildland Fire Use Fire Management Unit will continue as required to meet protection and pres- (see Glossary and Map 2-9 in the Fire Management ervation mandates. Stabilization and erosion control section). measures will be allowed in wilderness, but only if resources unlikely to be duplicated elsewhere are Fires will be controlled to prevent their spread outside threatened, and no other reasonable alternative exists. wilderness and to prevent the loss of human life or Such activities will be subject to the “minimum tool” property. Fire suppression methods will be those that requirement, and will not be allowed to degrade the cause the minimum adverse impact on wilderness area’s overall character. The AFO will authorize character. research (under Section 501 of the El Malpais Act) if it can be carried out unobtrusively so as not to de- Wilderness Study Areas (Chain of grade wilderness character. Craters & Canyons WSAs)

Wildlife habitat management will continue to be The Approved El Malpais Plan does not recommend guided by the BLM's Wilderness Management Policy. the Chain of Craters WSA to Congress as suitable for Hunting and trapping will be permitted under applica- wilderness designation. If released by Congress from ble State and Federal laws and regulations. The AFO wilderness study, this 18,300-acre area will be man- will continue to allow use and maintenance of the two aged according to provisions of this Plan. Users of wildlife exclosures and the water catchment within the the Chain of Craters Unit would have opportunities West Malpais Wilderness, using the “minimum tool” for roaded natural types of recreation on 7,800 acres, concept (see Table 2-7 in the Wildlife section). [The semi-primitive motorized types on 5,400 acres, and water catchment has been dismantled.] semi-primitive non-motorized types on 5,100 acres.

The AFO will consider vegetation treatments on a The Approved Plan recommends about 4,000 acres case-by-case basis under guidance found in the BLM's studied under Section 202 of FLPMA for wilderness Wilderness Management Policy. designation. These lands are now being managed as the Canyons WSA (NM-014-001). The new WSA Motorized vehicle access over 23.3 miles of routes consists of nine separate parcels of BLM-administered inside designated wilderness will be limited to autho- land located on the periphery of the Cebolla Wilder- rized users. Such access will be allowed only to non- ness (see Map 2-6). These lands located between the Federal inholdings and livestock grazing operations current wilderness boundary and highways, bladed over 5.5 miles of authorized routes in the Cebolla roads, and rights-of-ways were acquired through Wilderness and 17.8 miles in the West Malpais Wil- exchange following passage of the El Malpais Act. derness. Access for livestock grazing use will con- Prior to designation as a WSA, they were included tinue under the conditions set in the Range Improve-

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2-84 Wilderness Management Chapter 2 within the Breaks (seven parcels), Brazo (one parcel), • Mandatory wilderness values of size, naturalness, and Brazo Non-NCA (one parcel) Units as shown in and an outstanding opportunity either for solitude the Proposed Plan and Final EIS. If Congress desig- or for primitive and unconfined recreation nates these lands as wilderness, they will be added to the Cebolla Wilderness. Until all or portions of these • Special features, such as landforms, geologic lands are either designated by Congress as wilderness expressions, and cultural and historic sites or released from wilderness study, they will remain in WSA status and be managed under the Interim Man- • Proximity to existing wilderness agement Policy, except as applied to minerals. [This exception for minerals does not apply at this time • Ramah Navajo Indian concerns since all Federal minerals within the NCA have been automatically withdrawn by the El Malpais Act, and Guidance From Rio Puerco RMP the one tract of the Canyons WSA that is outside the NCA boundary is underlain by private minerals.] If Some of the guidance in the Rio Puerco RMP contin- all or any portion of these lands are not designated as ues to be applicable to management of El Malpais wilderness by Congress and are released from further NCA and adjoining lands. This guidance is listed wilderness review, they will be returned to the Breaks, below as “Criteria for Resolution of RMP Issues.” Brazo, and Brazo Non-NCA Units and managed as prescribed under this Plan. Criteria for Resolution of RMP Issues Another 6,450 acres studied under Section 202 were not recommended for designation as wilderness. The Two of the criteria used to guide resolution of the Rio AFO will manage the 6,450 acres not recommended Puerco RMP issues remain applicable as guidance for as suitable under the management prescriptions identi- future actions in the Wilderness Program: fied in this Plan. • Designation for OHV use will consider protection For the convenience of horseback riders in the Plan of resources such as . . . wilderness values . . . . Area, access facilities will be provided at several locations. The Cerro Brillante trailhead (for access to the • Fuelwood will not be made available in areas Chain of Craters) will be one location. where harvesting would degrade or disturb . . . the . . . wilderness values of the area. The Chain of Craters and Canyons WSAs are in the Conditional Wildland Fire Use Fire Management Unit Monitoring/Studies (see Glossary and Map 2-9 in the Fire Management section). The AFO will continue to patrol the Cebolla and West Malpais Wildernesses at least once a month when the Criteria for Resolution of areas are accessible to the public, with more frequent El Malpais Plan Issues patrols during spring through fall when use is greater. Patrol will be used to deter violations, gather informa- The following factors were considered in developing tion about area resources and uses, and inform users answers to the issue questions regarding wilderness about the resources and appropriate use of designated management. These factors will continue to be con- wilderness. sidered as the El Malpais Plan is implemented. Monitoring of lands under wilderness review is guided • Management proposals that benefit the wilderness by the Interim Management Policy. This monitoring resource is done at least once a month when the areas are accessible by the public to ensure compliance with the • Public interests and concerns Interim Management Policy, and to gather data on use and condition. • Maintenance requirements for range improvements

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Non-degradation of biophysical and social conditions Support Needs within designated wilderness and WSAs is achieved through the VRM system and the Limits of Accept- able Change (LAC) monitoring system (see Appendix Engineering & Operations D). Certain limits have already been established for the Plan Area, and these will be used to trigger actions The Engineering and Operations staffs will support (management modifications) called for in this Plan. If the Wilderness Program in the design, construction, needed because of potential use activities or resource and maintenance of access roads, trailhead facilities, conflicts, or to help detect changes in wilderness con- trails, visitor use management facilities, and road ditions and opportunities, monitoring may be done closures. more frequently. All authorized and unauthorized actions within designated wilderness and WSAs are Lands & Realty recorded; when needed, the AFO establishes a case file. Lands and Realty will support the Wilderness Pro- gram by acquiring private surface lands and subsur- Specific conditions for monitoring projects authorized face mineral interests within wilderness. within a wilderness or WSA are identified when each proposal is evaluated and authorized. Monitoring Cadastral Survey procedures and schedules for range improvement maintenance are identified in the Range Improvement If Congress designates any of the Canyons or Chain of Maintenance Plans for the two designated wilder- Craters WSAs as wilderness, the Cadastral Survey nesses. Program would be responsible for preparing a legal description of the new wilderness boundary. Implementation Priorities Fire Management The following actions are listed in priority order, although several actions may be carried out at the Implementation of the wildland fire use and prescribed same time. These developments will occur as time, fire program will support wilderness management staff, and budget allow. goals and objectives.

• Patrolling and monitoring designated wilder- Rangeland Management nesses and WSAs, including monitoring LAC indicators and taking appropriate actions when The Rangeland Management Program will support necessary. wilderness management by assuring compliance with the RIM plans, the Wilderness Management Policy, • Installing and maintaining boundary, identifica- and the Interim Management Policy. tion, informational, and regulatory signs. Wildlife Habitat • Providing information through brochures, maps, interpretive exhibits and material, and personal The Wildlife Program will support wilderness man- contacts. agement through maintenance of wildlife exclosures and water catchments using the minimum tool con- • Maintaining, with the minimum tool or equip- cept. ment, existing facilities provided to preserve the wilderness values and resources and for the health Recreation and safety of persons using these areas. The Recreation Program will manage recreational • Acquisition of inholdings (surface and subsur- visitation and influences to preserve designated wil- face). derness and the values it offers people. This program

2-86 Wilderness Management Chapter 2 will process permit applications for commercial activi- Law Enforcement ties such as outfitter-guides dependent on a wilderness setting. It will assist in the design, construction, and The law enforcement rangers will continue to patrol maintenance of recreation facilities, installation and the designated wildernesses and WSAs to protect maintenance of signs for visitor safety and resource wilderness resources and provide assistance and protection, as well as patrol and monitoring of desig- protection to public land users. nated wilderness and WSAs. Interpretation/Public Education Cultural Resources The Interpretation/Public Education Program will The Cultural Resources Program will survey and support the Wilderness Program by developing inter- inventory cultural resources in support of the Wilder- pretive messages and media such as brochures, trail ness Management Program. guides and exhibits, presenting interpretive programs, and preparing educational materials essential for the American Indian Consultation support, understanding, and protection of wilderness and its special features. Other key issues include This program will consult and coordinate on wilder- wilderness safety and Leave No Trace ethics. ness access and closures for traditional cultural practices.

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Program Goals Such access must be consistent with the American Indian Religious Freedom Act and the Wilderness Act. On request, the AFO will temporarily close the The BLM seeks to consider the effects its actions may smallest practicable area for the minimum period of have on American Indian uses and traditional cultural time needed to accommodate such religious activities. practices, and to minimize those effects. Written notification of such action must be provided to the Energy and Natural Resources Committee of Management Guidance the Senate, and to the Interior and Insular Affairs Committee of the House, within seven days after Policy and Authorities initiation of any such closure.

A number of laws and regulations require close con- Field Office Program Guidance sultation between the BLM and American Indian tribes with interests in lands administered by the For routine activities, the AFO relies on public partici- agency. These include the American Indian Religious pation in its land-use planning process as an initial Freedom Act (AIRFA), the Archaeological Resources screen to identify areas and issues of particular con- Protection Act (ARPA), the Native American Graves cern to American Indian tribes. After broad land-use Protection and Repatriation Act (NAGPRA), the plans such as the RMP and the El Malpais Plan have 1992 amendments to the National Historic Preserva- been completed, more specific activity plans or pro- tion Act, and the Religious Freedom Restoration Act. posals for particular projects are evaluated through an The El Malpais Act underscores these responsibilities environmental analysis process mandated by the Na- by its emphasis on the continuation of American In- tional Environmental Policy Act. As a part of this dian traditional cultural practices in the NCA. Execu- process, the AFO normally notifies American Indian tive Order 13007–Indian Sacred Sites, the Executive groups with interests in the affected area. For major Order of May 14, 1998–Consultation and Coordina- projects, the AFO sends a scoping letter to these tion with Indian Tribal Governments, and National American Indian groups 30 days in advance of any Register Bulletin 38–Guidelines for Evaluating and project-specific analysis, and after all analyses have Documenting Traditional Cultural Properties provide been completed, sends copies to the groups. For additional guidance. BLM procedures are described minor projects, the American Indian groups are noti- in BLM Manual Handbook H-8160-1–General Proce- fied while the environmental analysis is in progress. dural Guidance for Native American Consultation. The AFO also prepares an annual RMP Update that lists projects anticipated in the coming year. This Under these laws, several processes require formal Update is sent to a broad mailing list that includes consultation with American Indian tribes. One exam- Acoma, Laguna, and Zuni Pueblos, as well as the ple is the ongoing consultation required by NAGPRA Ramah Navajo Chapter. Any activity that requires a regarding repatriation of burials, grave goods, and permit under ARPA on AFO lands also triggers a objects of cultural heritage taken from public lands formal consultation with potentially interested tribes. over the years. For the most part, traditional cultural practices within the Plan Area are private matters of The AFO attempts to maintain effective informal lines concern only to the tribes and individuals who are of communication through frequent interaction with directly involved, and the AFO does not attempt to the Pueblo tribes and Navajo chapters who have ex- actively manage these uses. pressed a strong interest in management of the Plan Area. The objective is to encourage communication In accordance with the El Malpais Act, the American while still recognizing the need for privacy in many Indian people recognized as using the NCA are en- situations. The AFO responds when these groups sured access for traditional uses and cultural purposes. express concerns.

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Decisions From Approved ence collection of the pottery taken for permanent curation, and after consultations required under El Malpais Plan NHPA, the AFO may issue a permit for collection from the surface. The El Malpais Act explicitly recognizes the importance of continuing American Indian traditional cul- At the request of Acoma Pueblo, the Approved El tural practices in the NCA. While it is not appropriate Malpais Plan recommends that Congress amend the for the BLM to develop management actions related NCA boundary to exclude 960 acres of Acoma lands to these practices, the AFO did consider such uses as currently within the NCA in the Spur Unit and the an important part of formulating management actions Cebolla Wilderness. This recommendation includes for other issues under this Plan. Certain decisions for several parcels totaling 800 acres between NM 117 the Wilderness Management and Cultural Resources and the National Monument boundary, and 160 acres issues do affect traditional Indian cultural practices. within the Cebolla Wilderness (T. 7 N., R. 10 W., sec. In these two cases, it was necessary to reconcile tradi- 12) recently acquired by Acoma Pueblo. This latter tional cultural practices with other legislative man- parcel, which is adjacent to other Acoma lands, con- dates. sists of aboriginal lands that have recurring value to the Acoma people. Traditional American Indian cultural practices will be allowed to continue in the Cebolla and West Malpais Criteria for Resolution of Wildernesses in a manner consistent with the intent of El Malpais Plan Issues the Wilderness Act. Motor vehicle access to the perimeter of each wilderness will be allowed, but such The following factors were considered in developing use inside the wilderness will be prohibited, unless the answers to the issue questions regarding American AFO has granted prior authorization after consulta- Indian Uses and Traditional Cultural Practices. These tion and evaluation. When the AFO authorizes such factors will continue to be considered as the El use of motorized vehicles by American Indians, stipu- Malpais Plan is implemented. lations to control impairment of wilderness character must be met. Upon request, the AFO will temporarily • Traditional cultural and religious practices, uses close the smallest practicable area for the minimum and sensitive areas, including scheduling and par- period needed to accommodate American Indian ticipants activities. Written notification of such action must be provided to the Energy and Natural Resources Com- • NCA legislative requirements mittee of the Senate, and to the Interior and Insular Affairs Committee of the House, within seven days • Formal and informal means of communicating after initiation of any such closure. and coordinating with local American Indian groups and individuals Outside of designated wilderness, motorized and mechanical access for traditional American Indian cultural practices will be restricted to designated Guidance from Rio Puerco RMP routes unless otherwise authorized. Many of the laws and policies relevant to American Although collection of prehistoric pottery is generally Indian issues were not in place when the Rio Puerco prohibited by ARPA, an exception can be made if it is RMP was completed. Consequently, the Rio Puerco formally determined that these items are no longer of RMP does not address this issue. archeological interest. The AFO will consider making such a determination on a site-by-site basis, but only if Monitoring/Studies such activity is found to be a traditional cultural practice within the meaning of the El Malpais Act. Indi- The AFO will not monitor or actively study American viduals wishing to collect potsherds from a particular Indian uses in El Malpais NCA unless explicitly re- location within the NCA for traditional purposes must quested to do so by the affected group. apply to the AFO for a special-use permit. After the location has been thoroughly documented and a refer-

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Support Needs Cultural Resources

Law Enforcement If special-use permits for pottery collection are requested, documentation of affected sites and NHPA compliance would be the responsibility of the Cultural Support from the Law Enforcement Program might Resources Program. be needed if areas are closed to accommodate traditional cultural practices.

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Program Goals below under “Decisions From Approved El Malpais Plan.”

This program is established to protect archeological, historic, and sociocultural properties, and to provide TABLE 2-6 for their use as allocated through land-use planning. CULTURAL RESOURCE MANAGEMENT Management Guidance OBJECTIVES AND USE ALLOCATIONS

Policy and Authorities Management Objective Use Category Federal laws such as the National Historic Preserva- tion Act (NHPA) of 1966, the Archeological and Information Scientific Use; Historic Preservation Act of 1974, the Archeological Potential Management Use Resources Protection Act of 1979 (ARPA), the American Indian Religious Freedom Act of 1978 Public Values Sociocultural Use; (AIRFA), and the Federal Land Policy and Manage- Public Use ment Act of 1976 provide for the protection and man- Conservation Conserved for agement of cultural resources. The El Malpais Act Future Use establishes protection of archeological and scientific resources as one of the principal purposes of the (None) Discharged Use NCA, placing special emphasis on preservation and long-term scientific use of archeological resources. A national Programmatic Agreement with the National Compliance with the National Historic Preserva- Conference of State Historic Preservation Officers tion Act. Before any surface-disturbing or other (SHPOs) and the Advisory Council on Historic Pres- activity that could affect cultural resources, the AFO ervation (dated March 26, 1997) and a separate Pro- routinely conducts an intensive (Class III) cultural tocol Agreement with the New Mexico SHPO specific resources inventory to ensure that important re- to New Mexico guide the AFO’s compliance with sources are not inadvertently damaged. The adminis- NHPA. The BLM 8100-series manuals describe trative steps required by NHPA, including consulta- agency policies and procedures regarding cultural tions with the New Mexico SHPO, are then com- resources. pleted.

Field Office Program Guidance The El Malpais Act places special emphasis on preserving cultural resources, so projects within the NCA Use Allocation. BLM Supplemental Program Guid- that could affect these resources are generally held to ance for Land Resources (Manual 1623.1) requires a higher standard than projects outside the NCA. If a that RMPs include management objectives for all question is raised about the appropriate level of inven- cultural resources known or likely to occur in the tory, the significance of resources that might be af- planning area. At the activity plan (or Cultural Re- fected, or the potential impact of a proposed action, source Management Plan) level, cultural resources are the AFO will use more cautious and conservative allocated to certain uses. The three categories estab- practices. lished for management objectives and six categories established for use allocation are shown in Table 2-6. Inventory & Baseline Documentation. The BLM (The terms themselves are defined in the Glossary.) conducts cultural resource inventories at four levels of Cultural resources that meet the definition of "Isolated intensity (Classes I, II, and III, as well as reconnais- Manifestation" will be allocated to the "Discharged sance level; see Glossary). Inventory usually consists Use" category after they have been adequately docu- of inspecting the ground surface for evidence of past mented. Use allocation for the Plan Area is described human use and documenting whatever remains are

2-93 Cultural Resources Chapter 2 found. In most cases this documentation allows the For a handful of especially important and/or vulnera- BLM to evaluate the significance of the property, ble sites, the AFO conducts a more formal and inten- identify sources of deterioration, and describe the sive program of photo-monitoring. At these sites a current condition of the property. The AFO, in con- series of standardized photographs is taken from de- cert with the Museum of New Mexico Archeological fined locations at set intervals, typically once a year. Records Management System, maintains the records These photographs document any changes in physical generated by these inventories. appearance of the sites. This level of monitoring is more expensive and time-consuming and has only Permits & Scientific Investigations. The BLM been implemented for a small number of sites in the issues permits authorizing various types of cultural Plan Area, including the Dittert Site, Oak Tree Ruin, resource investigations to qualified individuals and and Arroyo Ruin. organizations employing them. Subject to certain restrictions and requirements, the most common per- Guidance From Other Programs. Location and mits authorize surveys and minor testing needed to construction of trail treadways will take into consider- determine whether subsurface archeological remains ation and avoid, if possible, conflicts with sensitive are present. cultural resource sites, private waters, private lands, and sensitive wildlife and plant habitats. As individual Permits that authorize the collection of artifacts, for- trails are sited for development and where further mal archeological testing, or more intensive investiga- National Environmental Policy Act compliance is tions are issued under ARPA. As part of the permit- necessary, all required site-specific studies and clear- ting process, detailed information about the proposed ances will be done and a determination will be made activities, curation arrangements, and consultations concerning the environmental consequences of the with local American Indians are required. The condi- proposal. tions under which ARPA permits might be issued in the Plan Area are discussed below in the section enti- Interpretive objectives (themes) will be developed for tled “Decisions From Approved El Malpais Plan.” each resource whose management can be assisted through visitor education efforts. Potential themes Patrol & Surveillance. Enforcement of cultural have been developed for several programs; these are resource protection laws is accomplished largely by not all-inclusive or final. A potential theme for the BLM Rangers, who patrol back-country areas, main- Cultural Resources Program is: taining a presence and looking for violations of ARPA and other laws that protect public lands. Rangers • Cultural resources are important in understanding have usually had training specific to ARPA, interact local history, especially for local American Indi- closely with cultural resource specialists to become ans, so sites should not be disturbed. Under the aware of areas that contain sensitive cultural Archeological Resources Protection Act, mone- resources, and exchange information about areas of tary rewards may be offered for information lead- past or ongoing vandalism. AFO cultural resource ing to the arrest and conviction of violators. specialists and volunteers also visit sites and sensitive areas on a regular basis. Decisions From Approved

Monitoring. The AFO monitors the condition of El Malpais Plan cultural resources at two different levels of intensity. At the lowest level, these resources are formally re- Under this Plan, the AFO will allow scientific use of corded and their present condition documented. This prehistoric cultural resources, but will place stronger documentation then serves as the basis for evaluating emphasis on conservation for future use. This objec- the property and assigning it to a use category. It also tive reflects the principal guidance provided by the El provides baseline information against which the future Malpais Act. The draft plan considered and rejected condition of the resources can be compared. At this alternatives which emphasized active management and level no time period is specified for follow-up inspec- development of information potential on one hand, tion. Comparisons between baseline condition and and a management strategy which would have allowed current condition are made when a change is sus- natural processes to prevail on the other hand. pected.

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Use Allocation Scientific Investigation

The AFO will manage the Dittert Site, the Ranger Because the El Malpais Act emphasizes preserving Station Reservoir, the Lobo Canyon Petroglyphs, and cultural resources for long-term scientific use, the outstanding homestead-era sites for public values and AFO will restrict archeological research that could allocate them to public use, while taking care not to result in physical alteration of prehistoric remains, impair their information potential. As additional re- including surface collection. On the assumption that source information becomes available, new areas may cultural resources within the NCA are generally less be identified for public use, but only if their informa- threatened than resources outside the NCA, uses that tion potential will not be adversely affected and only would result in the physical alteration of cultural after appropriate American Indian consultations and properties will be supported outside the NCA when- NHPA compliance. Except as provided below, the ever possible. Whenever possible within the NCA, AFO will manage historic Anglo, Hispanic, and Na- the AFO will encourage research that uses existing vajo cultural resources for scientific use, with required collections or non-disturbing field techniques. American Indian consultations. Paleo-Indian, Ar- chaic, and Pueblo sites will be managed for their infor- If research involving the physical alteration of prehis- mation potential and allocated to conservation for toric sites is proposed within the NCA, a research future use. Particular properties may be reallocated to design will be required detailing the nature of the scientific use under the conditions outlined below. proposed work, its purpose, and its anticipated impact on similar properties within the NCA. Researchers Compliance with the National will have to consider the feasibility of conducting their Historic Preservation Act work using cultural resources outside the NCA. They will also have to justify physically altering the NCA's cultural properties in terms of (1) clearly existing Occasionally, development projects such as range threats to their physical integrity, or (2) the central improvements or recreational facilities will be pro- role these particular sites play in relation to the re- posed within the Plan Area. The AFO will conduct a search design. cultural resources inventory for all proposals for potential ground-disturbing activities. If a question is The AFO will approve such research only if adequate raised about the appropriate level of inventory, the funding is ensured for analysis, reporting, and curation significance of the resources that might be affected, or of artifacts. The approval will follow appropriate the potential impact of a proposed action, the AFO American Indian consultation, and will be granted will use more cautious and conservative practices. only under the following circumstances: (1) the char- Secondary impacts such as unauthorized collection of acteristics to be altered are threatened and will be lost surface artifacts will be more thoroughly studied and without data recovery; or (2) the research cannot be evaluated than is usual outside the NCA. Therefore, done using sites outside the NCA, and after the re- the AFO will require an inventory over an area at least search is completed a substantial portion of the site or ¼-mile wide around proposed visitor use develop- equivalent sites will remain in an unaltered state. ments. Under this Plan, the AFO will emphasize avoidance of cultural resources, rather than mitigation Scientific studies of selected prehistoric and historic through data recovery. sites within designated wilderness will continue as required to meet protection and preservation man- Inventory & Baseline Condition dates. The AFO can authorize scientific research in wilderness under Section 501 of the El Malpais Act if This Plan establishes the goal of achieving Class III it can be carried out unobtrusively so as not to de- inventory of 2.5-percent of the NCA over the life of grade wilderness character. Scientific investigations the Plan. The AFO will also conduct supplemental in wilderness must conform to the “minimum tool” reconnaissance-level surveys of critical areas and/or standard; that is, motorized vehicles and equipment types of resources. will be prohibited unless there is no other reasonable

2-95 Cultural Resources Chapter 2 alternative. If such use is approved, it will be the to illegal surface collection. The condition of these minimum necessary. Extractive activities such as sites will be monitored carefully, and if any changes in artifact collection will be allowed, but no significant their condition are detected resulting from recre- impacts to visual, vegetative, or other resources will ational use of the campground, appropriate mitigating be permitted. measures will be taken (e.g., data recovery, closure of affected areas to public entry). Pottery Collection Picnicking facilities will be provided at the south end Although collection of prehistoric pottery is generally of The Narrows. The picnic area is not known to be prohibited by ARPA, an exception can be made if it is in an especially sensitive area, but a Class III inven- formally determined that these items are no longer of tory will be conducted in a ¼-mile radius around this archeological interest. Under this Plan, the AFO will facility to consider secondary impacts. consider making such a determination on a site-by-site basis, but only if such activity is found to be a tradi- When warranted by significant visitation, the AFO will tional cultural practice within the meaning of the El install visitor registration boxes at selected archeologi- Malpais Act. Individuals wishing to collect potsherds cal properties. No additional developments will be from a particular location within the NCA for tradi- planned at these sites. tional purposes must apply to the AFO for a special- use permit. After the location has been thoroughly The AFO will establish up to 10 additional hiking documented and a reference collection of the pottery trails in the Plan Area, for a total of up to 15 trails taken for permanent curation, and after consultations with a length of approximately 57 miles to distribute required under NHPA, the AFO may issue the permit visitors and provide resource protection (see Map 2-2 for collection from the surface. and Table 2-3). Trail routes will be modified to direct visitor use away from sensitive cultural resources. Signs The trailheads are not known to be in especially sensitive areas, but Class III inventories will be conducted in a ¼-mile radius around these facilities to consider Small inconspicuous antiquities signs will be placed secondary impacts. carefully to avoid drawing unnecessary attention to sites, while still discouraging casual vandalism and The expanded trail system will provide improved aiding in prosecution of violators. These signs are access opportunities to such sites as the Lobo Canyon usually 9 inches by 12 inches in size and are placed at Petroglyphs, one or two homesteads, Cerro ground level. Signs will be placed at approximately Americano, La Rendija, and the historic schoolhouse 100 sites during the life of the Plan. site in the West Malpais Wilderness. Primitive trailheads, defined parking for up to eight vehicles, Recreation & Recreation Facilities and a trailhead kiosk will be developed for the following cultural/historic properties as time, staff, and bud- An inventory over an area at least ¼-mile wide will be get allow: the Lobo Canyon Petroglyphs (rather than required around all proposed visitor use develop- at other rock art sites), the Savage Schoolhouse in ments. Cebolla Canyon, the Ranger Station Reservoir, and other deserving properties as needed to distribute A campground will be developed within approxi- visitor use. All-weather graveled roads will be con- mately 8 acres of the Spur Unit to accommodate structed to provide access to trailheads. For the camping on the east side of the Plan Area (see Map Ranger Station Reservoir, the Ranger Station and 2-2). The proposed campground will require special parking lot will serve as the trailhead, with the ap- cultural resources survey and monitoring. The camp- proved interpretive/orientation trail for access. Data ground is near areas of dense cultural resources that recovery through systematic collection of surface would be vulnerable to surface collection. Therefore, materials will be necessary at the Ranger Station Res- in addition to Class III cultural resources inventories, ervoir before the trail is extended to it. Systematic the AFO will conduct a reconnaissance survey within documentation will be needed at the Lobo Canyon a one-mile radius before developing the campground, Petroglyphs before the trail and trailhead can be con- attempting to locate and document all sites vulnerable structed.

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Sightseeing for cultural interest will be offered at the will be monitored, and if disturbance encroaches into Dittert Site, the Ranger Station Reservoir, the Cebolla the area of prehistoric ruins, appropriate measures will Canyon Complex, the Lobo Canyon Petroglyphs, and be taken. through guided hikes, the Aldridge Petroglyphs. Sightseeing for historic interest will be offered at one Access Easements & Consolidation or more of six fenced or stabilized homestead sites of Ownership (Armijo Canyon Springhouse, Armijo Canyon Home- stead; Rowe Homestead at the mouth of Cebolla The AFO will seek legal access easements across key Canyon; Stone House–two sites–located further up parcels of private land in areas of major archeological Cebolla Canyon; Worley Homestead); and possibly or historic values within or adjacent to public land. the Savage Schoolhouse in Cebolla Canyon or other The AFO will also attempt to consolidate ownership deserving properties. Other areas may be identified by purchase or exchange from willing sellers in these for public visitation as additional information becomes areas. available. Data recovery through systematic collection of surface materials at the Ranger Station Reser- The Plan recommends acquisition of a 160-acre parcel voir and systematic documentation at the Lobo Can- in the Breaks Non-NCA Unit that includes an early yon Petroglyphs will be necessary before visitation twentieth century historic ruin with interpretive can be encouraged at either site. potential (portions of T. 5 N., R. 11 W., sec. 3 and T. 6 N., R. 11 W., sec. 34). Recreational and facility developments at the Dittert Site will include a graveled access road and graveled parking area for up to 20 vehicles. A primitive trailhead will be constructed to serve the Dittert Site and the Armijo Canyon Homestead and Springhouse. This will also be a trailhead and access for the Cebolla Wilderness. Horse facilities will be built to provide access to the Cebolla Wilderness, not the Dittert Site. (Figure 2-f shows a conceptual design for these facilities.) Dittert Site interpretation will include up to two wayside exhibits, a trail guide, and guided hikes for public and school groups (50 to 200 people per year). Interpretive elements about the Dittert Site (located within the boundaries of the Cebolla Wilderness) will be placed outside the wilderness boundary, at the Road Closure trailhead. The 2-mile-long two-track road leading into the One or two selected homesteads will be developed for Cebolla Canyon Community will be closed. Other public use. To provide for public access, the AFO access routes not identified for closure elsewhere in will build a primitive trailhead, including a parking this Plan may be closed if this were essential for area for four to six vehicles, to serve each selected resource protection. homestead. (Figures 2-h and 2-i show possible designs for these developments.) Formal Monitoring

Prairie Dog Colony Enhancement Formal photo-monitoring programs have been initi- Area ated at the Dittert Site, Oak Tree Ruin, and Arroyo Ruin. This activity involves taking a series of identical The Prairie Dog Colony Enhancement Area is pro- photographs at intervals of one to five years so that posed for an area near the Cebolla Canyon Prehistoric changes in site condition can be documented system- Community. It is expected that the animals will re- atically. Under this Plan, photo-monitoring will con- main in the fine valley-bottom sediments, away from tinue at these sites, with other sites potentially incor- the prehistoric resources. However, their behavior porated into the program as well.

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Stabilization The Cerritos de Jaspe and Neck Units are within the Joint El Malpais Fire Management Plan’s (USDI, The AFO will maintain the existing stabilization and BLM and NPS 2001) Minimize Wildland Fire Pres- erosion-control projects at the Dittert Site, Oak Tree ence Fire Management Unit, as are portions of the Ruin, and Arroyo Ruin. Spur Unit and the Cebolla Wilderness (see Glossary and Map 2-9 in the Fire Management section). All Additional stabilization and/or erosion-control pro- wildland fires in this fire management unit, regardless jects for prehistoric sites will be undertaken only if of ignition source, will receive prompt suppression highly valuable resources are endangered. The stabili- action commensurate with human safety in all zation and repair needs of many homesteads have instances. Fire in the Minimize Wildland Fire Pres- been assessed, and additional structures will be as- ence Unit presents a threat to such resource values as sessed as needed. Key sites will be monitored, includ- cultural resources with flammable elements. To pre- ing all those being managed for public interpretation, vent unacceptable resource damage and/or loss of life to ensure timely identification of natural deterioration. and property, fires will generally not be allowed to burn in areas where public safety and other resource In most instances, prehistoric and historic cultural values are at risk. In some circumstances, prescribed resources in wilderness will be subject to the forces of fires may be used to protect the resource values within nature in the same manner as other wilderness re- these areas by reducing fuel loading. Such fires would sources. Stabilization of selected prehistoric and reduce the risk of catastrophic fires in the future. historic sites within the two wildernesses will continue as required to meet protection and preservation man- Reconnaissance-level surveys looking for sites with dates. Stabilization and erosion control measures will flammable materials will be conducted in areas where be allowed in wilderness, but only if resources unlikely prescribed fires are proposed. Areas proposed for to be duplicated elsewhere are threatened, and no prescribed fires will not generally be inventoried to other reasonable alternative exists. Such activities will Class III standards if they have low site density (see be subject to the “minimum tool” requirement, and Map 2-7). Class III inventory will be considered in will not be allowed to degrade the area’s overall char- zones of high site density, and a cultural resource acter. advisor will be required during fire suppression activities, regardless of the source of ignition. Class III Fire Management inventory will be required for all planned surface- disturbing activities such as construction of fire lines. Prescribed fires will be used throughout the Plan Area Eight well-preserved homesteads have been singled where appropriate to protect, improve, or enhance out in the Joint Fire Management Plan as high-prior- wildlife/livestock habitats and watershed values. In ity fire suppression zones. Additional sites may be addition, the AFO will use prescribed fires to reduce added to this list if significant cultural resource values fuel loading (hazardous fuel reduction) to reduce the are threatened. risk of large fires in areas where there are high-value resources (e.g., historic structures, houses, land improvements, recreation facilities). A written pre- Vegetation scribed fire plan must have been prepared and approved before ignition. Any vegetative improvement activity that is likely to result in surface disturbance will be subject to Class The AFO will evaluate and approve all prescribed fire III cultural resources inventory. plans, paying close attention to cultural resource values (e.g., homesteads, hogans), wilderness values, Rangeland Resources visual resources, and recreational values within the area. Appropriate cultural resources clearances, Eight historic homesteads in the Plan Area have been special-status species evaluations, and other environ- fenced to exclude livestock; additional homesteads mental documentation will be required before any may be fenced if warranted. prescribed fire is initiated.

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INSERT MAP 2-7

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Special Designations del, Cebolla Canyon Community, or Aldridge Petro- glyphs, but the AFO will manage these sites to protect The AFO will place no special priority on nominating their potential for public use. If unsolicited visitation properties in the Plan Area to the National Register of warrants, the AFO will install visitor registration Historic Places. Possibly, four or five properties will boxes at those sites. be nominated during the life of the Plan, perhaps as part of regional-scale thematic nominations (e.g., Interpretive wayside exhibits will be developed for up Chacoan outliers, major Pueblo II sites, great kivas, or to three archeological sites and/or homesteads along homestead-era schoolhouses). The Dittert Site may with brochures and/or trail guides keyed to markers. be added to the World Heritage List as part of the The AFO will conduct special hikes and programs for Chaco Culture listing. up to 200 people per year to these features.

Public Interpretation If acquired, the AFO will interpret the early twentieth century historic ruin in T. 5 N., R. 11 W., sec. 3 and T. 6 N., R. 11 W., sec. 34 if Congress modifies the The AFO Grants Field Station staff will conduct fre- NCA boundary to include these lands. quent interpretive hikes that include visits to cultural resource sites. In addition to completing off-site interpretive measures such as brochures, exhibits, and Criteria for Resolution of other media, the AFO will encourage visitation at the El Malpais Plan Issues Dittert Site, the Ranger Station Reservoir, and the Lobo Canyon Petroglyphs. The AFO will also de- The AFO considered the following factors in develop- velop public interpretation for outstanding homestead- ing answers to the issue questions regarding cultural era sites. Recreation facilities planned for these sites resources. These factors will continue to be consid- are discussed under “Recreation and Recreation Facili- ered as the El Malpais Plan is implemented. ties,” above. Systematic documentation will be needed at the Lobo Canyon Petroglyphs before visitation • The relative importance and sensitivity of known can be encouraged. Data recovery through systematic and anticipated cultural resources collection of surface materials will be necessary at the Ranger Station Reservoir before the interpretive/ • Their geographic distribution and density orientation trail is extended to it. • Current and potential threats to these resources Except for guided trips, visitor information and education programs about selected prehistoric and historic • Public interests and concerns, including those of sites within the wildernesses will be located outside local American Indian groups the wilderness boundaries or dispersed at other sites. Additional interpretive information about the Dittert • The legislative requirements and history of the El Site (located within the boundaries of the Cebolla Malpais Act Wilderness) will be placed outside the wilderness boundary, at the trailhead to the site in Armijo Can- yon. Visitation of selected prehistoric and historic Guidance From Rio Puerco RMP sites within the Cebolla and West Malpais Wilder- nesses will be encouraged through additional informa- Some of the decisions in the Rio Puerco RMP con- tion provided off-site. Except for continued main- tinue to be applicable to management of El Malpais tenance, monitoring, and guided hikes, the AFO will NCA and adjoining lands. This guidance is listed provide no additional on-site interpretation. below as “Criteria for Resolution of RMP Issues” and “Implementation Guidance From RMP.” During the life of this Plan, no on-site interpretive development will occur at the Pinole Site, The Cita-

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Criteria for Resolution of RMP Issues Comparisons between baseline condition and current condition are made when a change is suspected. • Designation for OHV use will consider protection of resources such as cultural resources. For a handful of especially important and/or vulnerable sites, the AFO conducts a more formal and inten- • Fuelwood will not be made available in areas sive program of photo-monitoring. At these sites a where harvesting would degrade or disturb the series of standardized photographs is taken from de- cultural values of the area. fined locations at set intervals, typically once a year. These photographs document any changes in physical Implementation Guidance From RMP appearance of the sites. This level of monitoring is more expensive and time-consuming and has only been implemented for a small number of sites in the Continue implementation (including monitoring) of Plan Area, including the Dittert Site, Oak Tree Ruin, existing cultural resource management plans. In El and Arroyo Ruin. Other sites can potentially be incor- Malpais, the Joint Management Plan for the Chaco porated into the program if warranted. Archeological Protection Site System (USDI, NPS 1984) is germane to management of the Dittert Site, Eight historic homesteads in the Plan Area have been which was recently designated a Chacoan Protection fenced to exclude livestock. The condition of other Site by Congress. Among other provisions, the Joint historic homesteads will be monitored. Additional Management Plan requires that actions affecting this sites may be fenced if warranted. site be coordinated through the Chaco Culture Inter- agency Management Group. Key sites will be monitored, including all those being managed for public interpretation, to ensure timely Continue patrol and surveillance program. identification of natural deterioration. Included in this decision are the Dittert Site and the six historic home- Decisions Carried Forward From steads planned for public visitation. Increased mainte- Previous Planning nance as result of visitation is expected.

The following decision was carried forward into the The proposed campground will require special cul- Rio Puerco RMP from a land management plan tural resources survey and monitoring. The camp- completed prior to the RMP: ground is near areas of dense cultural resources that would be vulnerable to surface collection. In addition • Acquire private lands in Cebollita Canyon and to Class III cultural resources inventories, the AFO begin a stabilization, interpretation, and surveil- will conduct a reconnaissance survey within a one- lance program of cultural resources in the can- mile radius before developing the campground, at- yon. [The private lands listed for this MFP deci- tempting to locate and document all sites vulnerable sion, except for a small residential area, have all to illegal surface collection. The condition of these been acquired by Acoma Pueblo. This decision sites will be monitored carefully, and if any changes in can no longer be implemented.] their condition are detected resulting from recreational use of the campground, appropriate mitigating Monitoring/Studies measures will be taken (e.g., data recovery, closure of affected areas to public entry). The AFO monitors the condition of cultural resources The Prairie Dog Colony Enhancement Area is pro- at two different levels of intensity. At the lowest posed for an area near the Cebolla Canyon Prehistoric level, these resources are formally recorded and their Community. It is expected that the animals will re- present condition documented. This documentation main in the fine valley-bottom sediments, away from then serves as the basis for evaluating the property the prehistoric resources. However, their behavior and assigning it to a use category. It also provides will be monitored, and if disturbance encroaches into baseline information against which the future condi- the area of prehistoric ruins, appropriate measures will tion of the resources can be compared. At this level be taken. no time period is specified for follow-up inspection.

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Implementation Priorities given to the demand-driven and proactive management actions described above. Recreation Program The following actions are listed in priority order, initiatives would receive priority as described above. although several actions may be carried out at the This Plan places no special priority on special designa- same time. These actions will occur as time, staff, and tions for cultural resources. budget allow. Support Needs As a practical matter, demand-driven actions receive high priority. Individual projects which could affect National Register values require compliance with Lands & Realty NHPA. NHPA compliance will continue to receive In areas of major archeological or historic values priority consistent with the priority of the individual within or adjacent to public land, the AFO will seek projects proposed by the various AFO resource pro- legal access easements across key parcels of private grams. Coordination with the Chaco Culture Inter- land. The AFO will also attempt to consolidate own- agency Management Group regarding proposals ership by purchase or exchange from willing sellers in which could affect the Dittert site are analogous to these areas. Such access and acquisitions will require NHPA compliance. support from the Lands and Realty Program. Scientific investigation is an activity specifically mandated by the El Malpais Act. Although this Plan Off-Highway Vehicles places a heavy burden upon applicants, the AFO will give highest priority to processing ARPA permit ap- The AFO will close the 2-mile-long two-track road plications. leading into the Cebolla Canyon Community. Other access routes not identified for closure elsewhere in Fire suppression in the vicinity of the eight well-pre- this Plan may be closed if this were essential for re- served homesteads identified in this Plan is another source protection. Support from the OHV Program highest priority item. will be necessary to accomplish road closures.

Patrol and surveillance and monitoring are activities Engineering & Operations which may fluctuate in intensity, but which will always be ongoing to some degree. Support from the Engineering and Operations Pro- grams will be necessary to accomplish road closures. Acquisition of easements and consolidation of ownership is usually dependent upon limited windows of Support from the Engineering and Operations Pro- opportunity. When such opportunities exist, the AFO grams may be needed to accomplish stabilization and must be willing to act, even if this means forgoing erosion control projects. other work. Interpretation/Public Education & Most other activities proposed in the cultural re- Recreation Facilities Programs sources section of this Plan are discretionary actions. These include collection of inventory and baseline The Cultural Resources Program, the Interpretation/ information, signing, stabilization and erosion control, Public Education Program, and the Recreation Facili- and road closures. Priority given to these activities ties Program will cooperate in implementing possible will depend upon the immediacy of the threats which interpretative developments at the Dittert Site, the they are intended to counter, the availability of fund- Lobo Canyon Petroglyphs, and the Ranger Station ing, and the availability of personnel to do the work. Reservoir, as well as at homestead-era sites. The Interpretation Program will be responsible for at least Many of the interpretive activities envisioned in this some of the guided hikes to cultural and historic sites. Plan can be undertaken by either the Cultural Re- sources Program, the Interpretation Program, or the The Recreation Facilities Program will install visitor two programs acting in concert. In the Cultural Re- registration boxes at the Pinole Site, The Citadel, sources Program, higher priority will normally be

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Cebolla Canyon Community, or Aldridge Petroglyphs tion. If incidents of vandalism are encountered, law if unsolicited visitation warrants. enforcement will take appropriate action.

American Indian Consultation Fire Management

Some activities proposed in this section will require Eight well-preserved homesteads have been singled American Indian consultation. Examples include out in the Joint El Malpais Fire Management Plan as archeological research and development of recreation high-priority fire suppression zones. Additional sites facilities focusing on cultural resources. may be added to this list if significant cultural resource values are threatened. Law Enforcement

Prevention of vandalism is a major emphasis of the patrol and monitoring program described in this sec-

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Program Goals policy emphasizing Fish and Wildlife 2000 practices and biological diversity. The AFO’s Wildlife Habitat Management Program is also influenced by various The AFO Wildlife Habitat Management Program memoranda of understanding and cooperative agree- focuses on habitats for terrestrial, aquatic, and special- ments. status species (including threatened and endangered species), and on rare or representative habitats or The AFO's coordination with the New Mexico De- ecosystems (see Appendices E and F). These habitats partment of Game and Fish (NMDG&F), the U. S. are managed to maintain or enhance the desired con- Fish and Wildlife Service (FWS), and other Federal, ditions that support the variety of wildlife species. State, and local agencies is an important part of man- AFO staff members identify opportunities for main- aging wildlife habitats within the Plan Area. taining, improving, and expanding wildlife habitats on public lands consistent with other consumptive and non-consumptive uses. The staff also identifies and Field Office Program Guidance manages priority species and habitats (including rare and representative habitats, plant communities, and All range and watershed improvements will continue biological diversity). to be designed to achieve range, watershed, and wildlife objectives for maintaining, improving, or The broad objectives of the Wildlife Habitat Manage- enhancing habitats, particularly for NMDG&F priority ment Program are to improve and protect aquatic and species. This includes location and design of waters terrestrial wildlife habitat by coordinating the manage- and vegetative manipulation projects. ment of other resources and uses on public land. This coordination is designed to maintain habitat diversity, All properly functioning springs and associated ripar- sustain ecosystem integrity, enhance aesthetic values, ian/wetland habitats on BLM-administered lands will preserve the natural environment, and provide old be maintained at that level. Those features in the growth habitat for wildlife. These objectives are ac- Nonfunctional or Functional-At Risk categories will complished to some extent through habitat manipula- be managed to improve them to the Properly Func- tion, and to a great extent through mitigation under tioning Condition category. (See the Glossary for the National Environmental Policy Act (NEPA). definitions of riparian function ratings.) The AFO will maintain or improve these features either by using livestock exclosures, or by implementing grazing Management Guidance management practices to maintain and/or improve them to properly functioning condition. Policy and Authorities Throughout the Plan Area, the AFO will continue to The BLM has a broad interest in managing the habitat coordinate riparian/wetland habitat management with of all wildlife as part of its overall multiple use pro- other programs and activities, including Wildlife, gram outlined in Fish and Wildlife 2000 (a national Rangeland Resources, Forestry, Watershed, Recrea- planning and policy document for wildlife manage- tion, and Lands. Riparian habitat values will be ment into the year 2000 and beyond; USDI, BLM addressed for all surface- and vegetation-disturbing 1988a). BLM New Mexico has developed a version actions. of this document that outlines specific objectives in managing the Statewide Wildlife Program (USDI, The primary use of prescribed fires and wildland fire BLM 1989c). Other Federal laws and policies that use (see Glossary) by programs other than the Fire direct the BLM to improve the management of habitat Management Program (e.g., Wildlife, Watershed, to meet wildlife needs include the Federal Land Policy Rangeland Resources) will be to protect, maintain, and Management Act of 1976; the Endangered Spe- improve, or enhance wildlife and livestock habitats cies Act of 1973, as amended; the Sikes Act of 1960; and watershed values; improve vegetative resources the Public Rangeland Improvement Act of 1978, as and help achieve potential natural community vegeta- amended; BLM Manual Section 6840; and program tive objectives; reduce the fuel load; and blend fire

2-105 Wildlife Habitat Management Chapter 2 back into the natural processes of a functioning eco- Animal damage control activities on public lands with- system. in the Plan Area are guided by the Master Memoran- dum of Understanding between the Animal and Plant Individual prescribed fire plans or wildland fire imple- Health Inspection Service, Animal Damage Control mentation plans are required before fire can be used to (APHIS-ADC) and the BLM (USDA, APHIS 1995). improve the vegetative habitats of the Plan Area. In The APHIS-ADC conducts animal damage control addition to a prescribed fire plan or wildland fire im- activities on BLM-administered lands, while the BLM plementation plan, a State burn permit that includes a identifies any special concerns for other resource smoke management plan is also required. values (e.g., special-status species, health and safety).

In accordance with BLM fence standards, new fences The AFO maintains an inventory of plant and wildlife will be designed to allow for wildlife passage. Any habitat and species occurrence. This information is existing fences that impede wildlife movements will be used in land-use planning, habitat management, and modified. Wildlife escape ramps will be installed in all program coordination for multiple use decisions. new and existing water tanks or troughs within the Management emphasis is placed on biodiversity, eco- Plan Area. Modification to six miles of fence in the system management, and special-status animal and Cerro Brillante area is scheduled to be accomplished plant species. All actions are reviewed and given site- in 2002 to help provide for antelope passage. This specific analysis during the NEPA process to deter- fence modification is being undertaken with Sikes Act mine whether the action will affect special-status funding. species, or terrestrial, wetland or riparian ecosystems.

Existing wildlife projects will be properly maintained Impacts to resident species’ habitat, as well as impacts (see Table 2-7). Any project not working as intended to habitat improvement projects and compatibility will be evaluated to determine if it is still needed as with the NMDG&F Operations Plan are considered originally designed. All needed projects will be modi- when management actions are proposed. Conserva- fied to work. tion measures will continue to be taken to protect rare plants listed by the State of New Mexico Natural Livestock grazing management will be coordinated Heritage Program. All range and watershed improve- and designed to facilitate other programs. The AFO ments will continue to be designed to achieve both will consider wildlife projects; burn areas; manage- livestock and wildlife objectives. This includes loca- ment of natural waters, springs and ephemeral flows; tion and design of waters and vegetation manipulation wilderness management; and forest and woodland projects. Fences will be designed so as to cause the management in planning for livestock grazing man- least resistance to wildlife movement. agement. Hunting and trapping are permitted in the Plan Area By scheduling livestock grazing use/non-use in critical and must comply with all applicable NMDG&F regu- wildlife areas during the appropriate season and to the lations. Patrols such as Operation Respect will con- greatest extent possible, the AFO will design and tinue during hunting/trapping seasons. implement new grazing systems to protect wildlife habitats (e.g., antelope winter range). New roads or trails will not be built into sensitive wildlife habitats, and those in other areas will be de- Raptor protection will be implemented by requiring all signed whenever feasible to direct visitors away from new powerlines to be built to "electrocution-proof" sensitive areas. The AFO may close roads or trails specifications. To avoid collisions with powerlines by permanently or seasonally where problems are found migrating birds, the mitigating measures identified by to exist or are expected to occur within sensitive wild- the Avian Power Line Interaction Committee (1994) life areas. will be incorporated into all new powerlines. Existing lines that are identified as causing electrocution and/or Location and construction of trail treadways will take collision problems may also be modified where feasi- into consideration and avoid, if possible, conflicts with ble. sensitive wildlife and plant habitats, private waters,

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TABLE 2-7

WILDLIFE HABITAT PROJECTS TO BE MAINTAINED UNDER THE EL MALPAIS PLAN

Year Project Name Unit Location Completed Purpose

York Inverted Umbrella Cerro Brillante T. 6 N., R. 12 W. 1982 Provide water for wild- & Exclosure sec. 30, SW¼NW¼ life

La Rendija Inverted Continental T. 8 N., R. 12 W. 1982 Provide water for wild- Umbrella Divide sec. 5, NE¼SW¼ life

Malpais Swale Exclosure West Malpais T. 7 N., R. 12 W. 1982 Reduce livestock use of Wilderness sec. 29, NW¼NW¼ spring forbs to improve antelope habitat

Laguna Brillante Exclosure West Malpais T. 6 N., R 13 W. 1982 Reduce livestock use of Wilderness sec. 3, NE¼SE¼ spring forbs to improve antelope habitat

Laguna Americana Continental T. 8 N., R. 13 W. 1982 Protect riparian habitat Exclosure Divide sec. 13, NW¼NE¼ by excluding livestock

Cerro Chato Exclosure Chain of Craters T. 7 N., R. 13 W. 1982-83 Provide water for wild- & Wildlife Water WSA sec. 17, SW¼NE¼ life sec. 19, SW¼SE¼

Cerro Americano Parabolic Continental T. 8 N., R. 13 W. 1984-85 Provide water for wild- Guzzler & Exclosure Divide sec. 11, NW¼SE¼ life

Cebolla Spring Exclosure Brazo T. 5 N., R. 10 W. 1994 Protect riparian habitat sec. 12, NW¼NW¼ & spring source from livestock use

El Malpais Inverted Cerro Brillante T. 6 N., R. 12 W. 2000 Provide water for wild- Umbrellas sec. 31, SE¼ life sec. 33, NE¼ sec. 35, NE¼

private lands, and sensitive cultural resource sites. As have been developed for several programs; these are individual trails are sited for development and where not all-inclusive or final. A potential theme for the further NEPA compliance is necessary, all required Wildlife Program is: site-specific studies and clearances will be done and a determination will be made concerning the environ- • Visitors should be informed of the importance of mental consequences of the proposal. dead and living wildlife trees, dead and down trees and logs, and wetlands to wildlife; the dis- Interpretive objectives (themes) will be developed for turbance caused by human-wildlife interaction; each resource whose management can be assisted and hunting and trapping opportunities and re- through visitor education efforts. Potential themes quirements on public lands in the Plan Area.

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Decisions From Approved The West Malpais Wilderness is within the Wildland Fire Use For Resource Benefits Fire Management El Malpais Plan Unit (see Glossary). The Chain of Craters and Can- yons Wilderness Study Areas, most of the Cebolla In addition to maintaining existing habitats in the Wilderness, and the Continental Divide, Cerro proper quality and quantity necessary to support the Brillante and Brazo Units, and parts of the Spur and existing populations in the area, the AFO will increase Breaks Units are in the Conditional Wildland Fire Use efforts to improve the quality and quantity of wildlife Fire Management Unit. The Cerritos de Jaspe and habitats within the Plan Area. The AFO will under- Neck Units are within the Minimize Wildland Fire take up to eight wildlife habitat improvement projects Presence Fire Management Unit, as are portions of annually (up to three fires and five other projects), the Spur Unit and the Cebolla Wilderness (see Map generally in areas where limiting factors occur (e.g., 2-9 in the Fire Management section). lack of water, appropriate habitat). Projects could include water developments such as guzzlers, vegeta- Prairie Dog Colony Enhancement tive manipulation, and fences. Sikes Act funding will Area be used for these projects whenever appropriate. This project will use the south half of the North Pas- Prescribed Fire & Wildland Fire Use ture and the Head Pasture of the El Malpais Grazing Allotment within the Breaks Unit as a 1,000-acre To support appropriate animal populations, the AFO enhancement area for a prairie dog colony. This is the will use two types of fire, prescribed fire and wildland historic location of the largest known prairie dog fire use, throughout the Plan Area in a balanced ap- colony within the Plan Area, and its enhancement will proach to maintain and/or enhance wildlife habitats in also help support two local special-status species, the the desired vegetative condition. Each wildland fire burrowing owl and mountain plover. use or prescribed fire will be used to accomplish specific resource management objectives within a defined If the colony expands to an appropriate size (about geographic area. The fires will generally range from 200 acres), the area will also be a potential release site 50 to 1,000 acres in size, with an average of 500 for the black-footed ferret, one of the most endan- acres. gered mammals on earth. The AFO will work with the NMDG&F to eliminate plague from the prairie A Joint Fire Management Plan for El Malpais NCA dog colony in order to reestablish the black-footed and El Malpais National Monument (USDI, BLM ferret. Other protection measures planned include and NPS 2001) has been developed to support re- working with the NMDG&F to eliminate shooting source management goals, especially the restoration within the Prairie Dog Colony Enhancement Area and or maintenance of natural ecosystems. The Joint Fire moving the Cebolla Canyon Road from its junction Management Plan provides for firefighter and public with NM 117 to approximately three miles south. safety, as well as protection of natural and cultural resources and human developments from unwanted wildland fire.

Prescribed fires will be used throughout the Plan Area where appropriate to protect, maintain, improve, or enhance wildlife/livestock habitats and watershed values. In addition, the AFO will use prescribed fires to reduce fuel loading (hazardous fuel reduction) to reduce the risk of large fires in areas where there are high-value resources (e.g., houses, land improvements, recreation facilities, historic structures). A written prescribed fire plan must have been prepared and approved before ignition.

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Additionally, this area has been designated as a prairie Riparian Fencing dog release area. Each year the BLM receives numerous requests from the public for a location for releas- The AFO will fence a 1½-mile section of the perennial ing prairie dogs that have been displaced from resi- stream along Cebolla Canyon, below Cebolla Spring dential development areas, mainly in Albuquerque and (T. 5 N., R. 10 W., secs. 2 and 3). This is one of the Santa Fe. This is the only prairie dog release area few perennial streams occurring within the Plan Area; designated on public land in New Mexico. protection of these unique habitats is an AFO priority. [The fencing of Cebolla Canyon as a riparian pasture The area will be managed to support prairie dog habi- was accomplished in 2000 as part of the NEPA pro- tat requirements, which may be in conflict with other cess for re-authorization of the El Malpais Grazing ecosystem practices. Prairie dog towns consist of Allotment permit.] short grass prairie with a substantial amount of bare ground. To keep the habitat within the area in the appropriate condition to support prairie dogs, the Wildlife Re-Introductions general goal of maintaining ground cover to the great- The AFO will work with the NMDG&F and the FWS est extent possible will not be implemented within the to conduct feasibility evaluations for re-introducing 1,000-acre colony area. native wildlife and/or plant species within the Plan Area where appropriate. Emphasis will be placed on The Prairie Dog Colony Enhancement Area is pro- special-status species. At the present time, no re- posed for an area near the Cebolla Canyon Prehistoric introductions of any plant or animal species are Community. It is expected that the animals will re- planned or being evaluated. main in the fine valley-bottom sediments, away from the prehistoric resources. However, their behavior will be monitored, and if disturbance encroaches into Miscellaneous Wildlife Projects/ the area of prehistoric ruins, appropriate measures will Operations be taken. The AFO has fenced spring areas used by livestock to Wildlife Water Catchments exclude them, and will develop livestock and wildlife waters elsewhere. Springs not used by livestock may Rainfall catchments will be constructed as appropriate be developed for wildlife use. To allow for fully to help provide wildlife water in areas where it is functioning riparian condition, exotic species such as limited. The following are specific catchments identi- saltcedar and Russian olive will be removed using fied to be installed within the Cerro Brillante Unit mechanical, biological, or chemical treatments. The (with an inverted umbrella design): T. 6 N., R. 12 W., AFO will plant willows, cottonwoods, and other sec. 31, SE¼; T. 6 N., R. 12 W., sec. 33, NE¼; and native riparian species as needed. T. 6 N., R. 12 W., sec. 35, NE¼. These catchments were specifically designed to support the antelope Roads will be closed to increase the isolation in the population within the area, although they will provide Plan Area for animals and hunters. water for numerous other wildlife species. [These three catchments have already been constructed un- Wildlife viewing opportunities will be identified along der a Rio Puerco RMP decision with Sikes Act fund- as many as eight stretches of road in the NCA (see ing. Others may be constructed as appropriate in Map 2-2). The AFO will provide interpretive material other areas.] and signs to enhance the viewing experience. Watch- able wildlife signs will be installed along CR 42, NM The AFO will continue to allow use and maintenance 53, and NM 117. of the water catchment within the West Malpais Wil- derness using the “minimum tool” concept. [The The AFO will construct two primitive trailheads for Bighole Inverted Umbrella #3 water catchment has the Continental Divide National Scenic Trail at Cerro been dismantled.] Americano and Cerro Brillante. Each trailhead will

2-109 Wildlife Habitat Management Chapter 2 include a graveled parking area for up to 20 vehicles Guidance From Rio Puerco RMP and up to two wayside exhibits (to include watchable wildlife information at Cerro Americano). Some of the decisions in the Rio Puerco RMP continue to be applicable to management of El Malpais Wildlife habitat management in designated wilderness NCA and adjoining lands. This guidance is listed will continue to be guided by the BLM Wilderness below as “Criteria for Resolution of RMP Issues” and Management Policy (USDI, BLM 1981c). Hunting “Implementation Guidance From RMP.” In addition, and trapping in wilderness will be permitted under the RMP carried forward decisions from previous applicable State and Federal laws and regulations. planning that still apply to El Malpais. These decisions are listed under “Decisions Carried Forward The AFO will continue to allow use and maintenance From Previous Planning.” of the two wildlife exclosures and the water catchment within the West Malpais Wilderness, using the “minimum tool” concept (see Table 2-7). [The water Criteria for Resolution of RMP Issues catchment has been dismantled.] Two of the criteria used to guide resolution of the Rio Allotment Management Plans/Coordinated Resource Puerco RMP issues remain applicable as guidance for Management Plans (AMPs/CRMPs) prepared for future actions in the Wildlife Habitat Management grazing allotments/leases will contain objectives and Program: actions for wildlife, watershed management, forests and woodlands, riparian, and fire. If monitoring stud- • Designation for OHV use will consider protection ies indicate the need, existing plans may be revised, of resources such as valuable wildlife habitat. new plans developed, and/or livestock grazing use reduced. • Fuelwood will be sold, where possible, in areas where the quality of wildlife habitat will not be Criteria for Resolution of degraded, but rather will be enhanced by the sale. El Malpais Plan Issues Implementation Guidance From RMP The following factors were considered in developing Continue to review site-specific environmental assess- answers to the issue questions regarding wildlife ments to ensure that adequate protection or mitigation habitat. These factors will continue to be considered is provided for biodiversity and special-status species, as the El Malpais Plan is implemented. and to ensure compliance with all Federal and State statutes and regulations. • Input from Federal and State wildlife agencies and the scientific community Participate with the USDA in the review of the annual Animal Damage Control operating plan for the AFO. • Species and habitat of high public and scientific interest Participate in activity- and project-level planning for the implementation of the RMP to ensure that wildlife • Species habitat requirements habitat values are adequately considered.

• Vegetative communities and habitat conditions Continue to implement program coordination, projects, and monitoring studies in Habitat Management • Conflicts between exotic and native species Plans (HMPs).

• Maintenance and enhancement of biological di- Continue cooperative monitoring studies with the versity AFO Range staff for areas not covered by HMPs.

• Areas that require increased vegetative cover to Continue the biodiversity, neo-tropical bird, and ripar- reduce soil erosion, increase forage production, ian habitat initiatives through program coordination, and improve wildlife habitat.

2-110 Wildlife Habitat Management Chapter 2 habitat inventory and monitoring, habitat acquisition, Malpais Plan, Wildlife Water Catchments,” and implementation of habitat protection measures. above.]

Decisions Carried Forward From • Seed browse and forbs in 1,000 acre plots. Previous Planning • Design livestock grazing systems to enhance antelope habitat by removing livestock in key forb The following wildlife habitat decisions were carried producing areas and kidding grounds. forward into the Rio Puerco RMP from previous planning documents: • Fence springs and associated riparian vegetation. [See “Decisions From Approved El Malpais • Cooperate with New Mexico Department of Plan, Riparian Fencing,” above.] Game and Fish (NMDG&F) to remove all barbary sheep from public lands in the Divide Plan- • Acquire through exchange the riparian/wetland ning Area. [NMDG&F no longer has an objec- habitat, specifically Cebolla Spring and Laguna tive to remove all barbary sheep from public Americana. [Both acquisitions have been accom- lands, consequently this decision will have a low plished.] priority for implementation at this time.] • Construct reservoirs on public lands to create • Burn and/or chain 10,000 acres of piñon-juniper additional waterfowl and shorebird habitat and to [within the entire Divide Planning Area] in 50 to provide livestock waters, contingent on location 100 acre irregularly-shaped plots. Seed with of feasible sites. browse, grass, and forbs. This land treatment will take precedence over fuelwood management. [See “Decisions From Approved El Malpais Monitoring/Studies Plan, Prescribed Fire & Wildland Fire Use,” above.] Wildlife habitat monitoring will follow BLM Manual 6600. In addition, the AFO follows recommendations • Construct rainfall catchments. [See “Decisions in Inventory and Monitoring of Wildlife Habitat From Approved El Malpais Plan, Wildlife Water (Cooperrider, et al. 1986) when designing inventory Catchments,” above.] and monitoring efforts. In monitoring condition and trend on key/important wildlife use areas, the Wildlife • Design and implement livestock grazing systems staff coordinates with the Range and Watershed staffs. to protect mule deer habitat by scheduling non- All existing wildlife projects (e.g., water develop- use or rest during critical periods in essential ments, wildlife exclosures) are monitored regularly to winter ranges and fawning areas. determine any maintenance needs. Monitoring in support of coal, fuelwood, or range projects in some • Continue wildlife/range studies to determine habi- years or seasons overrides priorities within the Wild- tat capability to support wildlife and livestock life Program. numbers. The Prairie Dog Colony Enhancement Area is pro- • Construct antelope passes along the western posed for an area near the Cebolla Canyon Prehistoric boundary fence of the York Ranch No. 0076 Community. It is expected that the animals will re- Allotment. Allottee will be consulted prior to any main in the fine valley-bottom sediments, away from fence modification. [See “Decisions From Ap- the prehistoric resources. However, their behavior proved El Malpais Plan, Miscellaneous Wildlife will be monitored, and if disturbance encroaches into Projects/Operations,” above.] the area of prehistoric ruins, appropriate measures will be taken. • Construct rainfall catchments to provide water for antelope. [See “Decisions From Approved El AMPs/CRMPs prepared for grazing allotments/leases will contain objectives and actions for wildlife, water-

2-111 Wildlife Habitat Management Chapter 2 shed management, forests and woodlands, riparian, • Modification to six miles of fence in the Cerro and fire. If monitoring studies indicate the need, ex- Brillante area is scheduled to be accomplished in isting plans may be revised, new plans developed, FY 2002/03 to help provide for antelope passage. and/or livestock grazing use reduced. #3–Prairie Dog Colony Enhancement Implementation Priorities Area

The management objectives as identified under “Man- • Work with the NMDG&F to eliminate shooting agement Guidance,” “Decisions From Approved El within the Prairie Dog Colony Enhancement Malpais Plan,” and “Guidance From Rio Puerco Area. RMP” will be implemented as funding and personnel are available. Some of the objectives have already • Move the Cebolla Canyon Road from its conflu- been partially or fully implemented as part of resource ence with NM 117 to approximately three miles programs carried out under the Rio Puerco RMP. south.

Based on availability of funding and manpower, the • Work with the NMDG&F to eliminate plague following would be the priority for wildlife habitat from the prairie dog colony in order to reestablish projects: the black-footed ferret.

#1–Wildlife Habitat Projects #4–Prescribed Fire & Wildland (Riparian) Fire Use

• All properly functioning springs and associated • Techado Mesa reforestation burn. riparian/wetland habitats on BLM-administered lands will be maintained at that level. Those fea- • Chain of Craters and Cebolla Wildlife Habitat/ tures in the Nonfunctional or Functional-At Risk Watershed prescribed burns. categories will be managed to improve them to the Properly Functioning Condition category. Support Needs The AFO will maintain or improve these features either by using livestock exclosures, or by implementing grazing management practices to main- Rangeland Management tain and/or improve them to properly functioning Forest & Woodland Resources condition. Special-Status Species Riparian & Wetland Habitats • Riparian plantings of native species (e.g., wil- Watershed lows, cottonwoods) where appropriate. Fire Management • Saltcedar removal within all riparian areas. Many of the AFO resource programs share common goals and objectives. Rangeland Management, Forest #2–Wildlife Habitat Projects and Woodland Resources, Wildlife Habitat, Special- (Fencing/Waters) Status Species, Riparian and Wetland Habitats, Wa- tershed, and Fire Management are all striving to en- • In accordance with BLM fence standards, new sure that management of the Plan Area will eventually fences will be designed to allow for wildlife pas- allow establishment of its Potential Natural Communi- sage. Any existing fences that block wildlife ties. As a result, management of these resource pro- movements will be modified. Wildlife escape grams must complement each other. Planning and ramps will be installed in all new and existing coordination are the key support factors which will water tanks or troughs within the Plan Area. ensure that these programs are successful.

2-112 Wildlife Habitat Management Chapter 2

In addition, the Wildlife Program will need support yon Road from its confluence with NM 117 to ap- from the following resource programs in order to proximately three miles south. implement the preceding projects: Cultural Resources Engineering & Operations Cultural resources inventory will be needed for all The Engineering staff will be needed in support of the surface-disturbing actions. design and engineering components for development and construction of wildlife projects. In addition, the American Indian Consultation Labor/Work Crew will be needed to support the construction of wildlife projects, conduct prescribed American Indian consultation will be required for all fires, and maintain existing wildlife projects. This surface- and vegetation-disturbing actions. staff will be responsible for moving the Cebolla Can-

Piñon Jay

2-113 2-114 THREATENED AND ENDANGERED & OTHER SPECIAL-STATUS SPECIES

Program Goals the need to list any species as threatened or endangered.

The BLM Special-Status Species Program focuses on Inventories for special-status species and/or their protecting and/or enhancing the habitats of threat- habitats follow BLM Manual 6600 and official proce- ened, endangered, and other special-status species to dures outlined by the FWS. ensure their continued existence (see Appendices E and F). Special-status species are plants and animals The AFO also manages its programs to conserve that fall into any of six groups: species listed as en- State-listed plants and animals. State laws protecting dangered or threatened under the Endangered Species these species apply to all AFO programs and actions Act (ESA); species proposed for listing as endangered as long as they are consistent with FLPMA and other or threatened under the ESA; candidate species (for- Federal laws. merly Category 1 species); species of concern (formerly Category 2 species); species designated by the BLM State Director as sensitive; and species listed by Field Office Program Guidance the State government as endangered or threatened (State-listed). To protect T&E and other special-status species, the AFO will use the following approach in reviewing actions proposed on BLM-administered lands: Management Guidance • Analyze all proposed actions to determine if T&E Policy and Authorities and other special-status species or their habitats may be affected. BLM policy is to ensure the implementation of the ESA, as amended, and the Federal Land Policy and • Consult with the FWS under Section 7 of the Management Act (FLPMA). The AFO is committed ESA when actions may affect a Federally listed to complying with the ESA, other applicable laws, threatened or endangered species or its habitat, regulations, BLM policies, and BLM Manual require- and adverse impacts cannot be eliminated. (Note: ments. Both beneficial and adverse impacts can be part of a "may affect" determination.) During the The BLM has a complex set of responsibilities for consultation process, the AFO will not authorize managing the habitats of threatened, endangered any action that will cause any irretrievable or (T&E), and other special-status plants and animals. irreversible commitment of resources. Section 7 of the ESA requires that Federal agencies carry out programs to conserve listed species, and to • For "may affect" actions from which adverse ensure that their actions do not jeopardize the contin- impacts cannot be eliminated, initiate an informal ued existence of listed species or adversely modify conference, and consider requesting technical critical habitat. The AFO conducts formal and infor- assistance from the FWS (for Federal candidate mal consultations with the U. S. Fish and Wildlife species) or the State of New Mexico (for State- Service (FWS) under Section 7 of the ESA whenever listed species). an action could lead to a “may affect” determination for a listed species or a species proposed for listing. • Ensure that no AFO action or authorization will Under BLM policy and guidance, the AFO manages adversely affect the likelihood of recovery of any all candidate and BLM sensitive species for their con- threatened, endangered, or other special-status servation and conservation of their habitats. The AFO species. strives to ensure that its actions do not contribute to

2-115 Threatened and Endangered & Other Special-Status Species Chapter 2

Actions will not be allowed to occur where they will existing fences that block wildlife movements will be adversely affect T&E or other special-status species modified. Wildlife escape ramps will be installed in all or their habitats. A biological evaluation will be pre- new and existing water tanks or troughs within the pared for all actions that could lead to a “may affect” Plan Area. determination for any T&E listed species, species proposed for listing, or candidate species. To help By scheduling livestock grazing use/non-use in critical protect special-status species, a National Environmen- wildlife and special-status species areas during the tal Policy Act (NEPA) document will be prepared appropriate season and to the greatest extent possible, prior to any action being permitted. The NEPA pro- the AFO will design and implement new grazing sys- cess will include identifying any such species in or tems to protect wildlife and special-status species’ near the area of activity; adjusting the project design, habitats (e.g., antelope winter range, mountain plover size, or location; applying appropriate stipulations nesting areas). (e.g., timing); or not authorizing the action. Raptor protection will be implemented by requiring all Protection of T&E and other special-status species is new powerlines to be built to "electrocution-proof" ongoing on AFO lands, including the Plan Area. All specifications. To avoid collisions with powerlines by standard wildlife stipulations and mitigation measures migrating birds, the mitigating measures identified by for proposed actions will be used to ensure that no the Avian Power Line Interaction Committee (1994) adverse "may affect" FWS determinations for T&E will be incorporated into all new powerlines. Existing and other special-status species will occur. lines that are identified as causing electrocution and/or collision problems may also be modified where feasi- The AFO will work with the FWS to implement re- ble. covery strategies for T&E species. Three recovery plans are now being implemented–for the black-footed Animal damage control activities on public lands with- ferret, Mexican spotted owl, and peregrine falcon. in the Plan Area are guided by the Master Memoran- dum of Understanding between the Animal and Plant All range and watershed improvements will continue Health Inspection Service, Animal Damage Control to be designed to achieve range, watershed, wildlife, (APHIS-ADC) and the BLM (USDA, APHIS 1995). and special-status species objectives for maintaining, The APHIS-ADC conducts animal damage control improving, or enhancing habitats, particularly for New activities on BLM-administered lands, while the BLM Mexico Department of Game and Fish (NMDG&F) identifies any special concerns for other resource priority species. This includes location and design of values (e.g., special-status species, health and safety). waters and vegetative manipulation projects. New roads or trails will not be built into sensitive All properly functioning springs and associated ripar- wildlife habitats, and those in other areas will be de- ian/wetland habitats on BLM-administered lands will signed whenever feasible to direct visitors away from be maintained at that level (which will support T&E sensitive areas. Roads or trails may be closed perma- and special-status species dependent on riparian habi- nently or seasonally where problems are found to exist tat). Those features in the “Nonfunctional” or or are expected to occur within sensitive wildlife “Functional-At Risk” categories will be managed to areas. improve them to the “Properly Functioning Condi- tion” category. (See the Glossary for definitions of Location and construction of trail treadways will take riparian function ratings.) The AFO will maintain or into consideration and avoid, if possible, conflicts with improve these features either by using livestock sensitive wildlife and plant habitats, private waters, exclosures, or by implementing grazing management private lands, and sensitive cultural resource sites. As practices to maintain and/or improve them to properly individual trails are sited for development and where functioning condition. further NEPA compliance is necessary, all required site-specific studies and clearances will be done and a In accordance with BLM fence standards, new fences determination will be made concerning the environ- will be designed to allow for wildlife passage. Any mental consequences of the proposal.

2-116 Threatened and Endangered & Other Special-Status Species Chapter 2

Decisions From Approved If the colony expands to an appropriate size (about 200 acres), the area will also be a potential release site El Malpais Plan for the black-footed ferret, one of the most endangered mammals on earth. The AFO will work with Many of the decisions from the Wildlife Habitat sec- the NMDG&F to eliminate plague from the prairie tion also pertain to Special-Status Species. dog colony in order to reestablish the black-footed ferret. Other protection measures planned include Prescribed Fire & Wildland Fire Use working with the NMDG&F to eliminate shooting within the Prairie Dog Colony Enhancement Area and To support appropriate special-status species popula- moving the Cebolla Canyon Road from its junction tions, the AFO will use two types of fire, prescribed with NM 117 to approximately three miles south. fire and wildland fire use (see Glossary), throughout the Plan Area in a balanced approach to maintain Additionally, this area has been designated as a prairie and/or enhance special-status species’ habitats in the dog release area. Each year the BLM receives numer- desired vegetative condition. Each wildland fire use ous requests from the public for a location for releas- or prescribed fire will be used to accomplish specific ing prairie dogs that have been displaced from resi- resource management objectives within a defined dential development areas, mainly in Albuquerque and geographic area. The fires will range from 50 to Santa Fe. This is the only prairie dog release area 1,000 acres in size, with an average of 500 acres. designated on public land in New Mexico.

A Joint Fire Management Plan for El Malpais NCA The area will be managed to support prairie dog habi- and El Malpais National Monument (USDI, BLM tat requirements, which may be in conflict with other and NPS 2001) has been developed to support re- ecosystem practices. Prairie dog towns consist of source management goals, especially the restoration short grass prairie with a substantial amount of bare or maintenance of natural ecosystems. The Joint Fire ground. To keep the habitat within the area in the Management Plan provides for firefighter and public appropriate condition to support prairie dogs, the safety, as well as protection of natural and cultural general goal of maintaining ground cover to the great- resources and human developments from unwanted est extent possible will not be implemented within the wildland fire. 1,000-acre colony area.

The AFO will evaluate and approve all prescribed fire The Prairie Dog Colony Enhancement Area is pro- plans, paying close attention to cultural resource val- posed for an area near the Cebolla Canyon Prehistoric ues (e.g., homesteads, hogans), wilderness values, Community. It is expected that the animals will re- visual resources, and recreational values within the main in the fine valley-bottom sediments, away from area. Appropriate special-status species evaluations, the prehistoric resources. However, their behavior cultural resources clearances, and other environmental will be monitored, and if disturbance encroaches into documentation will be required before any prescribed the area of prehistoric ruins, appropriate measures will fire is initiated. be taken.

Prairie Dog Colony Enhancement Riparian Fencing Area The AFO will fence a 1½-mile section of the perennial stream along Cebolla Canyon, below Cebolla Spring This project will use the south half of the North Pas- (T. 5 N., R. 10 W., secs. 2 and 3). This is one of the ture and the Head Pasture of the El Malpais Grazing few perennial streams occurring within the Plan Area; Allotment within the Breaks Unit as a 1,000-acre protection of these unique habitats is an AFO priority. enhancement area for a prairie dog colony. This is the [The fencing of Cebolla Canyon as a riparian pasture historic location of the largest known prairie dog was accomplished in 2000 as part of the NEPA pro- colony within the Plan Area, and its enhancement will cess for re-authorization of the El Malpais Grazing also help support two local special-status species, the Allotment permit.] burrowing owl and mountain plover.

2-117 Threatened and Endangered & Other Special-Status Species Chapter 2

Wildlife Re-Introductions Guidance From Rio Puerco RMP

The AFO will work with the NMDG&F and the FWS Some of the decisions in the Rio Puerco RMP con- to conduct feasibility evaluations for re-introducing tinue to be applicable to management of El Malpais native wildlife and/or plant species within the Plan NCA and adjoining lands. This guidance is listed Area where appropriate. Emphasis will be placed on below as “Criteria for Resolution of RMP Issues” and special-status species. At the present time, no re- “Implementation Guidance From RMP.” In addition, introductions of any plant or animal species are the RMP carried forward decisions from previous planned or being evaluated. planning that still apply to El Malpais. These decisions are listed under “Decisions Carried Forward Miscellaneous Wildlife Projects/ From Previous Planning.” Operations Criteria for Resolution of RMP Issues To allow for fully functioning riparian condition (which will support special-status species dependent Two of the criteria used to guide resolution of the Rio on native riparian vegetation), exotic species such as Puerco RMP issues remain applicable as guidance for saltcedar and Russian olive will be removed using future actions in the Special-Status Species Program: mechanical, biological, or chemical treatments. The AFO will plant willows, cottonwoods, and other • Designation of OHV use will consider protection native riparian species as needed. of resources such as valuable wildlife and special- status species habitat. Criteria for Resolution of El Malpais Plan Issues • Fuelwood will be sold, where possible, in areas where the quality of wildlife and special-status species’ habitat will not be degraded, but rather The following factors were considered in developing will be enhanced by the sale. answers to the issue questions regarding wildlife habitat and vegetation, including special-status species. These factors will continue to be considered as Implementation Guidance From RMP the El Malpais Plan is implemented. Continue to review site-specific environmental assess- • Input from Federal and State wildlife agencies ments to ensure that adequate protection or mitigation and the scientific community is provided for biodiversity and special-status species, and to ensure compliance with all Federal and State • Species and habitat of high public and scientific statutes and regulations. interest Participate with the USDA in the review of the annual • Species habitat requirements Animal Damage Control operating plan for AFO.

• Vegetative communities and habitat conditions Participate in activity and project-level planning for the implementation of the RMP to ensure that wildlife • Conflicts between exotic and native species and special-status species’ habitat values are adequately considered. • Maintenance and enhancement of biological diversity Continue the biodiversity, neo-tropical bird, and riparian habitat initiatives through program coordination, • Unique or fragile soils and vegetation, including habitat inventory and monitoring, habitat acquisition, threatened and endangered plant species and implementation of habitat protective measures.

• Areas that require increased vegetative cover to Continue to implement program coordination, pro- reduce soil erosion, increase forage production, jects, and monitoring studies in Habitat Management and improve wildlife habitat. Plans (HMPs).

2-118 Threatened and Endangered & Other Special-Status Species Chapter 2

Continue cooperative monitoring studies with the the prehistoric resources. However, their behavior AFO Range staff for areas not covered by HMPs. will be monitored, and if disturbance encroaches into the area of prehistoric ruins, appropriate measures will Decisions Carried Forward From be taken. Previous Planning Implementation Priorities The following wildlife habitat decisions that also apply to special-status species habitat were carried forward The management objectives as identified under “Man- into the Rio Puerco RMP from previous planning agement Guidance,” “Decisions From Approved El documents: Malpais Plan,” and “Guidance From Rio Puerco RMP” will be implemented as funding and personnel • Burn and/or chain 10,000 acres of piñon-juniper are available. Some of the objectives have already [within the entire Divide Planning Area] in 50 to been partially or fully implemented as part of resource 100 acre irregularly-shaped plots. Seed with programs carried out under the Rio Puerco RMP. browse, grass, and forbs. This land treatment will take precedence over fuelwood management. Based on availability of funding and manpower, the [See “Decisions From Approved El Malpais following would be the priority for Special-Status Plan, Prescribed Fire & Wildland Fire Use,” Species Habitat projects. above.] #1–Special-Status Species Habitat • Continue wildlife/range studies to determine habi- Projects (Riparian) tat capability to support wildlife and livestock numbers. • All properly functioning springs and associated riparian/wetland habitats on BLM-administered • Fence springs and associated riparian vegetation. lands will be maintained at that level. Those fea- [See “Decisions From Approved El Malpais tures in the “Nonfunctional” or “Functional-At Plan, Riparian Fencing,” above.] Risk” categories will be managed to improve them to the “Properly Functioning Condition” • Acquire through exchange the riparian/wetland category. The AFO will maintain or improve habitat, specifically Cebolla Spring and Laguna these features either by using livestock Americana. [Both acquisitions have been accom- exclosures, or by implementing grazing manage- plished.] ment practices to maintain and/or improve them to properly functioning condition. Monitoring/Studies • Riparian plantings of native species (e.g., willow, cottonwoods) where appropriate. Monitoring and inventory efforts for special-status species and/or their habitats will follow BLM Manual • Saltcedar removal within all riparian areas. 6600 and official procedures outlined by the FWS.

The southwestern willow flycatcher and the mountain #2–Special-Status Species Habitat plover are being monitored on an annual basis to Projects (Fencing/Waters) determine what habitats and areas within the Plan Area these species occupy. • In accordance with BLM fence standards, new fences will be designed to allow for wildlife pas- The Prairie Dog Colony Enhancement Area is pro- sage. Any existing fences that block wildlife posed for an area near the Cebolla Canyon Prehistoric movements will be modified. Wildlife escape Community. It is expected that the animals will re- ramps will be installed in all new and existing main in the fine valley-bottom sediments, away from water tanks or troughs within the Plan Area.

2-119 Threatened and Endangered & Other Special-Status Species Chapter 2

#3–Prairie Dog Colony Enhancement Engineering & Operations Area The Engineering staff will be needed in support of the • Work with the NMDG&F to eliminate shooting design and engineering components for development within the Prairie Dog Colony Enhancement and construction of wildlife projects, including those Area. to benefit special-status species. In addition, the La- bor/Work Crew will be needed to support the con- • Move the Cebolla Canyon Road from its junction struction of wildlife projects, conduct prescribed fires, with NM 117 to approximately three miles south. and maintain existing wildlife projects. This staff will be responsible for moving the Cebolla Canyon Road • Work with the NMDG&F to eliminate plague from its confluence with NM 117 to approximately from the prairie dog colony in order to reestablish three miles south. the black-footed ferret. Cultural Resources #4–Prescribed Fire & Wildland Fire Use Cultural resources inventory will be needed for all surface-disturbing actions. • Techado Mesa reforestation burn. American Indian Consultation • Chain of Craters and Cebolla Wildlife Habitat/ Watershed prescribed burns. American Indian consultation will be required for all surface- and vegetation-disturbing actions. Support Needs

Rangeland Management Forest & Woodland Resources Wildlife Habitat Riparian & Wetland Habitats Watershed Fire Management

Many of the AFO resource programs share common goals and objectives. Rangeland Management, Forest and Woodland Resources, Wildlife Habitat, Special- Status Species, Riparian and Wetland Habitats, Wa- tershed, and Fire Management are all striving to ensure that management of the Plan Area will eventually allow establishment of its Potential Natural Communi- ties. As a result, management of these resource pro- Southwestern Willow Flycatcher grams must complement each other. Planning and coordination are the key support factors which will ensure that these programs are successful.

In addition, the Special-Status Species Program will need support from the following resource programs in order to implement the preceding projects:

2-120 VEGETATION/POTENTIAL NATURAL COMMUNITIES

Program Goals watershed) to achieve the PNC vegetative objectives. Progress toward meeting the objectives will be measured during the life of this Plan. Specific objectives The goal of the Vegetation Program for the Plan Area are shown on Table 2-8 for the Grass-Shrublands is to complement natural ecological processes with community and on Table 2-9 for the Piñon-Juniper management practices that will provide for the (woodland) and Ponderosa Pine (forest) communities. establishment of the Potential Natural Communities (PNCs), the communities that would become estab- Where the existing vegetation differs from the PNC lished if natural processes were allowed to be com- vegetative objectives, the AFO will consider using pleted. (See Appendix G for more information.) practices such as prescribed fire, chemical treatment, Based on its soils, other physical features, and climate, tree thinning, and livestock grazing management to the environment in the Plan Area is capable of sup- encourage the achievement of the vegetative objec- porting four different PNCs: Grass-Shrub, Piñon- tives. The AFO will gather additional information Juniper, Ponderosa Pine, and Lava Complex (USDA, (e.g., vegetative use by livestock and wildlife) to SCS 1993). The PNC goals are long-term targets that guide these practices. are not expected to be reached during the 15- to 20- year life of this Plan. Fire has played an integral role in the Plan Area. The numerous plant communities have developed as part Management Guidance of a fire-dependent ecosystem (see Appendix F). Periodic burning of these communities is necessary to Policy and Authorities perpetuate their natural composition, structure, and function. Management for the PNC goals and objectives is in accordance with the requirements of the El Malpais The primary use of prescribed fires and wildland fire Act, which states that the NCA was established to use (see Glossary) by programs other than the Fire protect, among other resources, the ecological re- Management Program (e.g., Wildlife, Watershed, sources of the area. For vegetation management, the Rangeland Management) will be to improve vegeta- guidance provided by law, regulations, and policy tive resources and help achieve PNC vegetative objec- comes from the various BLM resource programs. See tives; protect, maintain, improve, or enhance wildlife the Forestry and Woodlands, Rangeland Resources, and livestock habitats and watershed values; reduce Riparian Resources, Special-Status Species, and Wild- the fuel load; and blend fire back into the natural pro- life Habitat program sections in this document for cesses of a functioning ecosystem. policies and guidance for vegetation management. The Final Environmental Impact Statement Vegeta- Livestock grazing management plans and their revi- tion Treatment on BLM Lands provides policy and sions are key to ensuring that livestock grazing use is procedures for integrated vegetation management not limiting the accomplishment of vegetative objec- activities (USDI, BLM 1991a). tives. The AFO will continue to involve the public in the National Environmental Policy Act (NEPA) pro- Field Office Program Guidance cess for grazing permit/lease management plans, including allotment management plans/coordinated resource management plans (AMPs/CRMPs), as well Consistent with the PNC goals, the AFO has devel- as for site-specific projects. Coordination with af- oped vegetative objectives for the Grass-Shrub, fected allottees, involved landowners, the State, and Piñon-Juniper, and Ponderosa Pine PNCs in the Plan interested members of the public will continue to be Area. Compared to the goals, these objectives are part of the process in making changes in livestock more species- and site-specific. The AFO will use a grazing management within the Plan Area. Grazing full range of management techniques (forest and systems will be implemented as needed to ensure that woodland, livestock grazing, riparian, fire, and

2-121 Vegetation/Potential Natural Communities Chapter 2

TABLE 2-8

POTENTIAL NATURAL COMMUNITY OBJECTIVES FOR GRASS-SHRUBLANDS (plant composition percentages)

Grasses

Ecological Sites a Warm Season Cool Season Woody Plants Forbs b

Clayey 20-45 20-35 10-25 5-10

Clayey Bottomland 25-40 40-60 15-20 10-15

Clayey Woodland 35-45 20-30 10-20 5-15

Loamy 40-60 20-40 10-15 5-10

Loamy Malpais 35-50 20-35 10-20 5-10

Deep Sand 40-60 20-40 5-10 10-25

Foothills 40-60 20-40 10-20, 5-15 P-J canopy # 25 c

Savanna 20-45 15-40 5-15, 5-10 P-J canopy # 25 c Notes: a These are areas that have the potential to produce a unique vegetative community (see Appendix G for further explanation). b Forbs are non-woody plants other than grasses. c P-J is piñon-juniper; the canopy is the covering these trees provide above smaller vegetation.

TABLE 2-9

POTENTIAL NATURAL COMMUNITY OBJECTIVES FOR WOODLANDS AND FORESTS (plant composition percentages)

Ecological Sites Grasses Woody Plants Forbs

Piñon-Juniper Woodlands 50-70 20-30, 10-15 P-J canopy 20-40

Ponderosa Forests 60-80 15-25, 5-15 Ponderosa canopy 10-40

2-122 Vegetation/Potential Natural Communities Chapter 2

PNC vegetative objectives are met and resource con- ance will be completed before any noxious weeds are flicts are ameliorated. The effects of all livestock treated. [A Field Office-wide programmatic environ- grazing systems will be monitored to determine suc- mental assessment for noxious weed treatment has cess. been prepared. Site-specific NEPA compliance will tier from the programmatic document.] The AFO will continue to coordinate riparian/wetland habitat management with other programs and activi- To allow for fully functioning riparian condition, ex- ties, including Rangeland Resources, Wildlife, Water- otic species such as saltcedar and Russian olive will be shed, Recreation, Forestry, and Lands. Riparian habi- removed using mechanical, biological, or chemical tat values will be addressed for all surface- and treatments. The AFO will plant willows, cotton- vegetation-disturbing actions. woods, and other native riparian species as needed.

Interpretive objectives (themes) will be developed for The AFO will consider vegetation treatments within each resource whose management can be assisted designated wilderness on a case-by-case basis under through visitor education efforts. Potential themes guidance found in the BLM Wilderness Management have been developed for several programs; these are Policy (USDI, BLM 1981c). not all-inclusive or final. A potential theme for the Vegetation Program is: Any vegetative improvement activity that is likely to result in surface disturbance will be subject to Class • Vegetative manipulation, including fire and fuel- III cultural resources inventory. wood harvesting, plays a part in conserving our public lands. The Prairie Dog Colony Enhancement Area will be managed to support prairie dog habitat requirements, which may be in conflict with other ecosystem prac- Decisions From Approved tices. Prairie dog towns consist of short grass prairie El Malpais Plan with a substantial amount of bare ground. To keep the habitat within the area in the appropriate condition A full range of management techniques (forest and to support prairie dogs, the general goal of maintain- woodland, livestock grazing, riparian, fire, and water- ing ground cover to the greatest extent possible will shed) will be used to achieve the PNC vegetative not be implemented within the 1,000-acre colony area. objectives. A Joint Fire Management Plan has been developed To improve watershed conditions and assist in accom- for El Malpais NCA and El Malpais National Monu- plishing vegetative objectives, the AFO will provide ment (USDI, BLM and NPS 2001). Through the El for the use of mechanical, chemical, or biological Malpais Plan and the activity-level Joint Fire Man- vegetation treatments in AMPs/CRMPs. Treatments agement Plan, the AFO will implement woodland and will be considered in areas where livestock rest and forest management practices which will allow the prescribed fires have not been effective, i.e., areas return of natural fire to El Malpais. The Joint Fire where junipers too small for fuelwood have invaded Management Plan identifies management objectives (in meadow-like openings, grasslands, or savannas) or for protecting, maintaining, and/or enhancing resource areas where fire-tolerant species such as rubber rabbit- values using fire. It also establishes restrictions for brush have increased or invaded (in valley bottoms, actions that could cause unacceptable resource dam- drainages, and meadow-like openings). age (e.g., bulldozers in riparian areas).

For watershed management, the AFO will consider The Joint El Malpais Fire Management Plan was building small structures to spread or divert water. developed to support resource management goals, Site-specific environmental assessments will be com- especially the restoration or maintenance of natural pleted before any structures are built. ecosystems. It provides for firefighter and public safety, as well as protection of natural and cultural Control of noxious weeds (e.g., knapweed, bindweed, resources and human developments from unwanted leafy spurge, thistle) is allowed by mechanical, chemi- wildland fire. cal, or biological means. Site-specific NEPA compli-

2-123 Vegetation/Potential Natural Communities Chapter 2

Prescribed fires and wildland fire use will be used to special-status species evaluations, and other environ- manage fuel loads (hazardous fuel reduction), protect mental documentation will be required before any private property, and accomplish PNC vegetative prescribed fire is initiated. objectives, including reducing piñon-juniper in a potential ponderosa pine habitat. Prescribed fires will be Criteria for Resolution of used where appropriate to protect, maintain, improve, El Malpais Plan Issues or enhance wildlife/livestock habitats and watershed values. Fires ranging in size from 50 to 1,000 acres The following factors were considered in developing each will be used each year. A written prescribed fire answers to the issue questions regarding vegetation plan must have been prepared and approved before and wildlife habitat. These factors will continue to be ignition. Ponderosa seedlings will be planted on some considered as the El Malpais Plan is implemented. locations if needed to ensure reestablishment. In areas proposed for prescribed fires, pre- and post-burn rest • Input from Federal and State wildlife agencies from grazing will be planned in coordination with the and the scientific community affected allottee(s). • Species and habitat of high public and scientific To support appropriate animal populations, the AFO interest will use the two types of fire, prescribed fire and wildland fire use, throughout the Plan Area in a balanced • Species habitat requirements approach to maintain and/or enhance wildlife habitats in the desired vegetative condition. Each wildland fire • Vegetative communities and habitat conditions use or prescribed fire will be used to accomplish specific resource management objectives within a defined • Conflicts between exotic and native species geographic area. The fires will generally range from 50 to 1,000 acres in size, with an average of 500 • Maintenance and enhancement of biological di- acres. versity

The West Malpais Wilderness is within the Wildland • Protection and enhancement of watershed condi- Fire Use For Resource Benefits Fire Management tions Unit. The Chain of Craters and Canyons Wilderness Study Areas, most of the Cebolla Wilderness, and the • Unique or fragile soils and vegetation, including Continental Divide, Cerro Brillante and Brazo Units, threatened and endangered plant species and parts of the Spur and Breaks Units are in the Conditional Wildland Fire Use Fire Management Unit. • Areas that require increased vegetative cover to The Cerritos de Jaspe and Neck Units are within the reduce soil erosion, increase forage production, Minimize Wildland Fire Presence Fire Management and improve wildlife habitat Unit, as are portions of the Spur Unit and the Cebolla Wilderness (see Glossary and Map 2-9 in the Fire • Vegetative treatments or manipulation methods, Management section). including prescribed fire

Individual prescribed fire plans or wildland fire imple- • Use of fuelwood harvest and other forestry prac- mentation plans are required before fire can be used to tices improve the vegetative habitats of the Plan Area.

The AFO will evaluate and approve all prescribed fire Monitoring/Studies plans, paying close attention to cultural resource values (e.g., homesteads, hogans), wilderness values, Progress toward meeting the PNC vegetative objec- visual resources, and recreational values within the tives will be measured during the life of this Plan. area. Appropriate cultural resources clearances, Specific objectives are shown on Table 2-8 for the

2-124 Vegetation/Potential Natural Communities Chapter 2

Grass-Shrubland community and on Table 2-9 for the Implementation Priorities Piñon-Juniper (woodland) and Ponderosa Pine (forest) communities. This topic is discussed in the Forest Priorities for the Vegetation/Potential Natural Com- and Woodland Resources and Rangeland Resources munities Program are listed in the Forest and Wood- sections. land Resources and Rangeland Resources sections. Where the existing vegetation differs from the PNC vegetative objectives, the AFO will consider using Support Needs practices such as prescribed fire, chemical treatment, tree thinning, and livestock grazing management to Support needs for the Vegetation/Potential Natural encourage the achievement of the vegetative objec- Communities Program are listed in the Forest and tives. The AFO will gather additional information Woodland Resources and Rangeland Resources sec- (e.g., vegetative use by livestock and wildlife) to tions. guide these practices.

2-125 2-126 FOREST AND WOODLAND RESOURCES

Program Goals tree thinning, and livestock grazing management to encourage the achievement of the vegetative objectives. The AFO will gather additional information The AFO's long-term goal for the forest and wood- (e.g., vegetative use by livestock and wildlife) to land resources in the Plan Area is to manage ponder- guide these practices. osa pine stands for increased reproduction, improved stand vigor, and rehabilitation of degraded sites. For Collection of green or dead wood for sale or other the woodland resources, the long-term goal is to commercial purposes is not permitted in the NCA maintain healthy piñon-juniper stands. The goals of under the El Malpais Act. However, the AFO can the Forest and Woodland Resources Program comple- contract for thinning or salvage of wood products ment and build on the goals of other programs, espe- outside wilderness and the WSAs to meet PNC vege- cially the Vegetation Program. The goal of that pro- tative objectives. When thinning results in a supply of gram is to complement natural ecological processes fuelwood, the AFO will notify local groups that the with management practices that will provide for the wood is available for home use. In addition, home- establishment of the Potential Natural Communities use fuelwood sales to accomplish PNC goals, al- (PNCs). Table 2-8 shows the PNC objectives for though not specifically called for in the Approved forests and woodlands. Plan, are consistent with the Act.

Management Guidance Before proposing any part of the Plan Area for woodland or forest management, the AFO will inventory Policy and Authorities and evaluate it. Based on the evaluation, a site- specific environmental assessment will be prepared for The Federal Land Policy and Management Act public review and comment before any action is taken. (FLPMA) requires that forests and woodlands on BLM-administered lands be managed on the basis of The AFO will continue to coordinate riparian/wetland multiple use and sustained yield. The Public Domain habitat management with other programs and activi- Woodlands Management Policy (BLM Washington ties, including Forest and Woodland Resources. Ri- Office Instruction Memorandum 83-102) and the parian habitat values will be addressed for all surface- Public Domain Forest Management Policy (BLM and vegetation-disturbing actions. Washington Office Information Bulletin 90-19) fur- nish guidelines for management of forests and wood- Livestock grazing management will be coordinated lands. The Material Disposal Act of 1947, as amend- and designed to facilitate other programs. The AFO ed, establishes the authority under which the BLM will consider forest and woodland management; man- disposes of timber and other wood products. The El agement of natural waters, springs and ephemeral Malpais Act provides further guidelines for manage- flows; wildlife projects; wilderness management; and ment of forests and woodlands in El Malpais NCA. burn areas in planning for livestock grazing.

The El Malpais Act specifies that collection of green Fire has played an integral role in the Plan Area. The or dead wood for sale or other commercial purposes numerous plant communities have developed as part is not permitted in the NCA. However, management of a fire-dependent ecosystem (see Appendix F). for PNC vegetative goals and objectives is in accor- Periodic burning of these communities is necessary to dance with the requirements of the Act, which states perpetuate their natural composition, structure, and that, among other resources, the NCA was established function. to protect the ecological resources of the area. The primary use of prescribed fires and wildland fire use (see Glossary) by programs other than the Fire Field Office Program Guidance Management Program (e.g., wildlife, watershed, range) will be to improve vegetative resources and Where the existing vegetation differs from the PNC help achieve PNC vegetative objectives; protect, vegetative objectives, the AFO will consider using maintain, improve, or enhance wildlife and livestock practices such as prescribed fire, chemical treatment, habitats and watershed values; reduce the fuel load;

2-127 Forest and Woodland Resources Chapter 2 and blend fire back into the natural processes of a To improve watershed conditions and assist in accom- functioning ecosystem. plishing vegetative objectives, the AFO will provide for the use of mechanical, chemical, or biological Interpretive objectives (themes) will be developed for vegetation treatments in AMPs/CRMPs. Treatments each resource whose management can be assisted will be considered in areas where livestock rest and through visitor education efforts. Potential themes prescribed fires have not been effective, i.e., areas have been developed for several programs; these are where junipers too small for fuelwood have invaded not all-inclusive or final. A potential theme for the (in meadow-like openings, grasslands, or savannas) or Forestry Program is: areas where fire-tolerant species such as rubber rabbit- brush have increased or invaded (in valley bottoms, • Vegetative manipulation, including fire and fuel- drainages, and meadow-like openings). wood harvesting, plays a part in conserving our public lands. A Joint Fire Management Plan has been developed for El Malpais NCA and El Malpais National Monu- Decisions From Approved ment (USDI, BLM and NPS 2001). Through the El Malpais Plan and the activity-level Joint Fire Man- El Malpais Plan agement Plan, the AFO will implement woodland and forest management practices which will allow the A full range of management techniques (forest and return of natural fire to El Malpais. The Joint Fire woodland, livestock grazing, riparian, fire, and water- Management Plan identifies management objectives shed) will be used to achieve the PNC vegetative for protecting, maintaining, and/or en- objectives. hancing resource values using fire. It also establishes restrictions Piñon-juniper thinning will be allowed to meet wood- for actions that could cause land and ponderosa pine objectives. Sites selected for unacceptable resource damage such rehabilitation will be those with the highest po- (e.g., bulldozers in riparian tential for success, that is, those with the best soils, areas). elevations, slopes, and exposures. A variety of tree sizes and ages will be left. The ground cover from Prescribed fires and wildland trees left after thinning will be between 10 and 40 fire use will be used to manage percent. fuel loads (hazardous fuel reduction), protect private The AFO will consider vegetation treatments within property, and accomplish designated wilderness on a case-by-case basis under PNC vegetative objectives, guidance found in the BLM Wilderness Management including reducing piñon- Policy (USDI, BLM 1981c). juniper in potential ponderosa pine habitat. Fires Any vegetative improvement activity that is likely to ranging in size from 50 result in surface disturbance, such as timber thinning to 1,000 acres each will operations that include harvesting the trees, will be be used each year. A subject to Class III cultural resources inventory. written prescribed fire plan must have been pre- Allotment Management Plans/Coordinated Resource pared and approved before Management Plans (AMPs/CRMPs) prepared for ignition. Ponderosa seedlings grazing allotments/leases will contain objectives and will be planted on some loca- actions for forests and woodlands, wildlife, riparian, tions if needed to ensure reestab- fire, and watershed management. If monitoring stud- lishment. In areas proposed for ies indicate the need, existing plans can be revised, prescribed fires, pre- and post-burn new plans developed, and/or livestock grazing use rest from grazing will be planned in reduced. coordination with the affected allottee(s).

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To support appropriate animal populations, the AFO • Use of fuelwood harvest and other forestry prac- will use the two types of fire, prescribed fire and wild- tices land fire use, throughout the Plan Area in a balanced approach to maintain and/or enhance wildlife habitats • Vegetative communities and habitat conditions in the desired vegetative condition. Each wildland fire use or prescribed fire will be used to accomplish specific resource management objectives within a defined Guidance From Rio Puerco RMP geographic area. The fires will generally range from 50 to 1,000 acres in size, with an average of 500 Some of the decisions in the Rio Puerco RMP con- acres. tinue to be applicable to management of El Malpais NCA and adjoining lands. This guidance is listed Individual prescribed fire plans or wildland fire imple- below as “Criteria for Resolution of RMP Issues” and mentation plans are required before fire can be used to “Implementation Guidance From RMP.” In addition, improve the vegetative habitats of the Plan Area. the RMP carried forward decisions from previous planning that still apply to El Malpais. These deci- The West Malpais Wilderness is within the Wildland sions are listed under “Decisions Carried Forward Fire Use For Resource Benefits Fire Management From Previous Planning.” Unit. The Chain of Craters and Canyons Wilderness Study Areas, most of the Cebolla Wilderness, and the Criteria for Resolution of RMP Issues Continental Divide, Cerro Brillante and Brazo Units, and parts of the Spur and Breaks Units are in the Although not specifically called for in the Approved Conditional Wildland Fire Use Fire Management Unit. El Malpais Plan, home-use fuelwood sales to accom- The Cerritos de Jaspe and Neck Units are within the plish PNC vegetative objectives could be authorized. Minimize Wildland Fire Presence Fire Management Ten of the criteria used to guide resolution of the Rio Unit, as are portions of the Spur Unit and the Cebolla Puerco RMP issues remain applicable as guidance for Wilderness (see Glossary and Map 2-9 in the Fire future fuelwood sales actions: Management section). • Fuelwood will be sold, where possible, in areas Criteria for Resolution of where the quality of wildlife habitat will not be El Malpais Plan Issues degraded, but rather will be enhanced by the sale.

The following factors were considered in developing • Fuelwood will be made available from lands answers to the issue questions regarding vegetation which would minimize the deterioration of exist- and wildlife habitat. These factors will continue to be ing roads, while discouraging the proliferation of considered for forest and woodland management as new roads and ways. the El Malpais Plan is implemented. • Fuelwood will not be made available where ero- • Protection and enhancement of watershed condi- sion problems are severe. tions • Roads created for access to fuelwood sale areas • Unique or fragile soils and vegetation, including will be rehabilitated and abandoned upon comple- threatened and endangered plant species tion of the sale, unless considered essential.

• Areas that require increased vegetative cover to • Fuelwood will not be made available in areas reduce soil erosion, increase forage production, where harvesting would degrade or disturb live- and improve wildlife habitat stock grazing, or the scenic, cultural, historic, recreational, or wilderness values of the area. • Vegetative treatments or manipulation methods, including prescribed fire • Fuelwood products will be made available first from stands damaged by insects, fire, and/or dis- eases where practical.

2-129 Forest and Woodland Resources Chapter 2

• Fuelwood will be salvaged, where practical, from is being implemented to enhance bird habitat. All right-of-way clearings, tree-thinning areas, and activity plans developed for forestry and woodlands chaining and chemically-treated areas. products are examined through the environmental analysis process and are subject to public review and • Fuelwood products will be made available to the participation. public on a sustained yield basis. The piñon-juniper woodlands within the El Malpais • Fuelwood products will be made available to the Plan Area are managed on a sustained yield basis. public at fair market value. However, in some cases piñon-juniper woodlands are harvested so as to prevent the reestablishment of the • Fuelwood products sales will be designed to min- stand in order to promote other resource management imize trespass on non-public lands . . . . objectives. For example, piñon-juniper woodland has been intentionally reduced in the past to develop wild- Implementation Guidance From RMP life habitat and promote the growth of ponderosa pine stands. The Woodland Resources Program in the AFO consists of managing limited ponderosa pine stands and Active management of piñon-juniper woodlands is a more extensive piñon-juniper woodlands. The long- new concept that is being addressed in New Mexico term objective for ponderosa pine management in the not only by the BLM but by all Federal and State AFO is to increase reproduction and stand vigor, as agencies, as well as by private individuals. Informa- well as to reduce encroachment of piñon-juniper into tion is being gathered through cooperative inventory the ponderosa pine stands. The long-term objectives programs. Once this information is available and with for woodland (piñon-juniper) management in the AFO adequate mapping and aerial photographs to coordi- are to establish and maintain healthy stands producing nate initial efforts, a logical program will be devised. fuelwood on a sustained yield basis in established Until reliable data are obtained with intensive field woodland management areas, to reduce unauthorized check, goals will remain general in nature. cutting, and to manage stands with consideration for other forest and woodland product yields. Small amounts of fuelwood may be made available to the public as a result of wildlife habitat improvement Providing for the long-term maintenance of the pon- projects and ponderosa pine stand maintenance pro- derosa pine stands is a goal of the program. Since jects [to meet PNC vegetative objectives]. existing ponderosa pine is managed for enhancement and protection of the stands, rather than the maximi- Designation of fuelwood cutting areas will be consis- zation of forest products, no specific allowable cut tent with other resource values, and could be used to goals have been established for this species in the improve wildlife habitat [to meet PNC vegetative AFO. All forestry practices currently being imple- objectives]. Providing fuelwood cutting areas could mented in the AFO are in conformance with standard help to reduce the amount of trespass woodcutting. silvicultural practices and the 1981 environmental Cutting piñon and juniper could also help maintain assessment Timber Management Plan (USDI, BLM ponderosa pine stands. This type of woodland man- 1981b), covering the BLM Albuquerque and Socorro agement would allow a reasonable harvest of fire- Districts (now Field Offices). wood while protecting or enhancing other resource values. In addition to the guidelines contained in the Timber Management Plan, other silvicultural practices are Fuelwood cutting areas will be inventoried and sam- currently being implemented in the AFO. Season of pled to help determine the allowable cut. After these harvest may be varied to minimize conflicts with other areas are inventoried, a detailed site-specific plan and resources. Slash is disposed of in a manner conducive environmental assessment will be completed which to revegetation and protection of the site. Slash burn- will implement a permit system, appropriate fees, ing complies with State air quality regulations. Har- allowable cut, clean-up enforcement, and a monitoring vest cuts are laid out in such a manner as to reduce plan. The public will then be notified in the local news the risk of windthrow. A snag management program media of the fuelwood cutting areas and requirements.

2-130 Forest and Woodland Resources Chapter 2

The first priority sources for fuelwood supply in the tions. Patrols, surveillance, and enforcement actions AFO are, when practical, dead-and-down wood from will be used to deter unauthorized harvest of wood chainings and chemically-treated areas, right-of-way products. In addition, the AFO will consider using clearings, and tree-thinning areas. Greenwood areas remote sensing information (e.g., satellite data, aerial are utilized last. Specific silvicultural standards are photographs) to monitor changes in vegetative com- established at the activity-planning stage and are pre- munities. This information will be evaluated to deter- pared on a site-specific basis. The silvicultural stan- mine the cause of change, the effects, and any correc- dards are consistent with acceptable methods for the tive action needed. species and site. Slash treatment follows the same guidelines identified for the ponderosa pine program. Monitoring studies are being conducted to evaluate the success of ponderosa pine reforestations (e.g., Decisions Carried Forward From mortality studies) in those areas which have been Previous Planning harvested to improve ponderosa pine habitat (stand vigor and reproduction). The following forest and woodlands decisions were AMPs/CRMPs will contain objectives and actions for carried forward into the Rio Puerco RMP from previ- forests and woodlands, wildlife, riparian, fire, and ous planning documents: watershed management. If monitoring studies indicate the need, existing plans can be revised, new plans • Establish forest and woodland monitoring areas developed, and/or livestock grazing use reduced. on Techado Mesa.

• Lay out and open commercial and individual fire- Implementation Priorities wood cutting areas in the following areas: Chain of Craters–individual use, green wood. The • Manage ponderosa pine stands for increased re- amount cut each year will be on a sustained yield production, improved stand vigor, and rehabilita- basis; volume will be dependent on approved tion of degraded sites. activity plans. [This decision is not consistent with the requirements of the El Malpais Act and • Maintain healthy piñon-juniper stands. cannot be implemented.] Support Needs • Land treatments identified in RM-2.5, WL-2.1, and W-1.5 will take precedence over fuelwood management. Rangeland Management Wildlife Habitat • Cruise and mark ponderosa pine. Salvage and Special-Status Species mortality timber sales as demand arises, the vol- Riparian & Wetland Habitats ume will be determined during activity planning. Land treatments identified in RM-2.5, WL-2.1, Watershed and W-1.5 will take precedence over fuelwood Fire Management management. [This decision is not consistent with the requirements of the El Malpais Act and Many of the AFO resource programs share common cannot be implemented.] goals and objectives. Rangeland Management, Forest and Woodland Resources, Wildlife Habitat, Special- Status Species, Riparian and Wetland Habitats, Wa- Monitoring/Studies tershed, and Fire Management are all striving to ensure that management of the Plan Area will eventually The AFO will conduct site-specific monitoring on allow establishment of its Potential Natural Communi- treated areas to evaluate success in attaining the PNC ties. As a result, management of these resource pro- vegetative objectives. Compliance checks will be grams must complement each other. Planning and conducted in fuelwood and timber sale areas to ensure coordination are the key support factors which will adherence to permit and contract terms and condi- ensure that these programs are successful.

2-131 Forest and Woodland Resources Chapter 2

Lands & Realty Cultural Resources

Site-specific planning for woodland and forest im- Cultural resources inventory will be needed for all provement projects may require easement acquisition surface-disturbing actions. across non-Federal land. American Indian Consultation Cadastral Survey American Indian consultation will be required for all Cadastral survey of several small parcels has been surface- and vegetation-disturbing actions. requested to positively identify the boundaries of public land prior to forest and woodland improvement project actions.

2-132 RANGELAND RESOURCES

Program Goals encourage the achievement of the vegetative objectives. The AFO will gather additional information (e.g., vegetative use by livestock and wildlife) to The primary goals of this program in the Plan Area guide these practices. are to manage for healthy rangelands and ensure that livestock grazing management on each allotment For example, range management must coordinate with contributes to the accomplishment of the Potential the Fire Program. Fire has played an integral role in Natural Community (PNC) vegetative objectives the Plan Area, which is made up of numerous plant shown on Table 2-8 for grass-shrubland communities communities that have developed as part of a fire- and Table 2-9 for woodland and forest communities. dependent ecosystem. Periodic burning of these com- Proper management of grazing is essential to ensure munities is necessary to perpetuate their natural com- that the PNC vegetative objectives are achieved. position, structure, and function. Reintroducing natural fire to open ponderosa pine habitat can improve Management Guidance forest health, wildlife forage, and ground cover for watershed. In general, grazing management must be Policy and Authorities designed to provide frequent, routine rest from livestock grazing use to allow recovery for forage spe- The grazing program is authorized by the Taylor cies. Furthermore, in areas where natural fire is de- Grazing Act, the Federal Land Policy and Manage- sired as a management tool, such rest from grazing is ment Act, the Public Rangeland Improvement Act, even more critical. For these areas to burn properly, and the Federal grazing regulations (43 CFR 4100, they must have an understory of fine fuel (i.e., grasses, including the recently adopted Fundamentals of forbs, and shrubs), so livestock grazing must be de- Rangeland Health and Standards and Guidelines for ferred to allow the development of the understory. Grazing Administration at 43 CFR 4180). The El The length of deferment depends on how much under- Malpais Act provides for the continuation of livestock story is available. On conservatively managed range, grazing within the NCA (including designated wilder- no deferment may be required. Conditions such as ness) under these and other applicable Federal laws. drought, combined with grazing, may result in a de- Additional guidance for livestock grazing in desig- pleted understory. When understory is inadequate to nated wilderness is provided by the Wilderness Act, support fire, deferment of livestock grazing use will Section 108 of Public Law (P. L.) 96-560, the House be planned. The length of deferment would be ex- Report “Grazing in National Forest Wilderness” ac- pected to be about two growing seasons. Where the companying P. L. 96-560, and the BLM Wilderness fine fuel understory has been replaced by woody spe- Management Policy (USDI, BLM 1981c). cies, livestock grazing deferment alone will in most cases not be sufficient to restore the understory. Field Office Program Guidance The primary use of prescribed fires and wildland fire use (see Glossary) by programs other than the Fire Livestock grazing management will be coordinated Management Program (e.g., Rangeland Resources, and designed to facilitate other programs. The AFO Wildlife, Watershed) will be to protect, maintain, will consider burn areas; wildlife projects; manage- improve, or enhance wildlife and livestock habitats ment of natural waters, springs and ephemeral flows; and watershed values; improve vegetative resources wilderness management; and forest and woodland and help achieve PNC vegetative objectives; reduce management in planning for livestock grazing man- the fuel load; and blend fire back into the natural pro- agement. cesses of a functioning ecosystem.

Where the existing vegetation differs from the PNC All range and watershed improvements will continue vegetative objectives, the AFO will consider using to be designed to achieve range, watershed, and wild- practices such as prescribed fire, chemical treatment, life objectives for maintaining, improving, or enhanc- tree thinning, and livestock grazing management to ing habitats, particularly for New Mexico Department

2-133 Rangeland Resources Chapter 2 of Game and Fish priority species. This includes loca- The AFO may close roads or trails permanently or tion and design of waters and vegetative manipulation seasonally where problems are found to exist or are projects. expected to occur within sensitive wildlife areas.

All properly functioning springs and associated ripar- The goals and strategies identified in the Partners ian/wetland habitats on BLM-administered lands will Against Weeds action plan for BLM (USDI, BLM be maintained at that level. Those features in the 1996a) will be implemented as needed to help prevent Nonfunctional or Functional-At Risk categories will the introduction or spread of noxious weeds in the be managed to improve them to the Properly Func- AFO. These preventative measures will be applied to tioning Condition category. (See the Glossary for AFO actions such as range improvements and grazing definitions of riparian function ratings.) The AFO will permits. maintain or improve these features either by using livestock exclosures, or by implementing grazing Interpretive objectives (themes) will be developed for management practices to maintain and/or improve each resource whose management can be assisted them to properly functioning condition. through visitor education efforts. Potential themes have been developed for several programs; these are The AFO will take all appropriate actions (e.g., fenc- not all-inclusive or final. Potential themes for the ing, grazing management practices) to protect ripar- Rangeland Resources Program are: ian/wetland habitats in the Plan Area. Construction activities that remove or destroy riparian vegetation • Livestock grazing is a historic use which is part will be avoided. The AFO will continue to coordinate of the cultural resource values for which the NCA riparian/wetland habitat management with other pro- was designated by Congress. grams and activities, including Rangeland Resources. Riparian habitat values will be addressed for all • Livestock grazing continues to be a legal activity surface- and vegetation-disturbing actions. in the Plan Area. Fences, waters, gates, and other range improvements are important tools for In managing livestock grazing, the AFO will design the proper management of livestock grazing. and establish practices that meet riparian and water quality needs. No livestock-related activities such as Grazing Decisions. The West Socorro Rangeland salting, feeding, construction of holding facilities, or Management Program planning document and envi- stock driveways will be allowed to occur within ripar- ronmental impact statement (EIS; USDI, BLM ian zones. 1982a) was completed in accordance with the Na- tional Environmental Policy Act (NEPA) to assess the In accordance with BLM fence standards, new fences effect of livestock grazing use on the public lands will be designed to allow wildlife passage. Any exist- within the planning area, including the current Plan ing fences that impede wildlife movements will be Area. Vegetative monitoring studies were performed modified. Wildlife escape ramps will be installed in all for this document on six allotments now within or new and existing water tanks or troughs within the overlapping the El Malpais Plan Area where changes Plan Area. Modification to six miles of fence in the in grazing management were being considered (see Cerro Brillante area is scheduled to be accomplished Map 2-8). For the other ten allotments now within or in 2002 to help provide for antelope passage. This overlapping the El Malpais Plan Area, the EIS con- fence modification is being undertaken with Sikes Act cluded that range conditions were acceptable and that funding. no changes in livestock grazing practices were needed. Grazing decisions were issued in 1992 for these By scheduling livestock grazing use/non-use in critical six allotments; changes in livestock grazing were wildlife areas during the appropriate season and to the made on three allotments, while no changes were greatest extent possible, the AFO will design and needed on the other three. implement new grazing systems to protect wildlife habitats (e.g., antelope winter range). New roads or In 1999, the AFO began preparing grazing allotment trails will not be built into sensitive wildlife habitats, environment assessments (EAs) for grazing permits/ and those in other areas will be designed whenever leases at the time of their renewal, usually on a ten- feasible to direct visitors away from sensitive areas. year cycle. The proposed action for the EA, including

2-134 Rangeland Resources Chapter 2

INSERT MAP 2-8

2-135 Rangeland Resources Chapter 2 terms and conditions, is added to the permit/lease to Allotment Management Categories. In accordance mitigate the adverse effects of livestock grazing, and with the West Socorro Rangeland Management Pro- to describe those considerations needed for other gram, the AFO has placed each of the sixteen live- resource programs. The proposed action for the EA, stock grazing allotments within or overlapping the together with the terms and conditions, becomes the Plan Area (see Map 2-8) into a "Selective Manage- management plan for the allotment. Permit/lease re- ment Category" based on its existing vegetative (eco- newal EAs have been completed for fifteen of the logical) condition and/or conflicts with other resource grazing allotments in the Plan Area. Livestock graz- uses (e.g., wildlife, watershed). Categorization pro- ing management changes were incorporated into the vides a system for focusing attention on the allotments terms and conditions of the grazing permits/leases as on which changes in grazing management may be needed to assure that the completed EAs meet the needed. The criteria for grazing allotment categoriza- requirements of 43 CFR 4180–Fundamentals of tion are displayed on Table 2-10, while the specific Rangeland Health. The EA for the sixteenth, the category for each allotment can be found on Loma Montosa Allotment, will be completed at per- Table 2-11. mit renewal.

TABLE 2-10

ALLOTMENT CATEGORIZATION CRITERIA

Category M (Maintain) Category I (Improve) a Category C (Custodial)

An allotment must meet conditions An allotment must meet any one of An allotment must meet all of the 1, 2 & 3 or 1, 2, & 4 listed below: the following three conditions: following conditions:

1. Has no significant resource con- 1. Has a potentially significant re- 1. Has no significant resource conflicts, and current grazing manage- source conflict, and current grazing flicts, and grazing management ment practices are acceptable. management practices could be im- practices are acceptable. proved.

2. Has only a moderate potential 2. Has a high potential for improve- 2. Has a low potential for for improvement in forage produc- ment in forage production (vegeta- improvement in forage production tion (vegetative condition). tive condition), and an ecological (poor soils). condition rating of 50 or less.

3. Has an ecological condition rat- 3. Has an ecological condition ing of 38 to 51 and an improving rating of 50 or less and a static or vegetative trend. downward vegetative trend.

4. Has an ecological condition rating of 51 or higher and a static or improving vegetative trend.

Other Considerations Other Considerations Other Considerations Contains 30% or more public land Contains 30% or more public land Contains less than 30% public land or more than 1,540 public land or more than 1,540 public land or less than 1,540 public land acres. acres. acres. Note: a Regardless of its size, any parcel of public land with an identified resource conflict qualifies for the I category.

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TABLE 2-11

SELECTIVE MANAGEMENT CATEGORIES FOR GRAZING ALLOTMENTS OVERLAPPING THE PLAN AREA

Selective Allotment Allotment Management Public Land Number Name Category Acres

201 Cerritos de Jaspe M 9,138

202 Bright's Well M 304

203 El Malpais I 136,195

204 Raney C 1,980

205 Los Pilares I 13,998

206 Little Hole-in-the-Wall C 320

207 Cerro Brillante I 21,760

208 Loma Montosa I a 7,520

209 Techado Mesa I 35,099

210 Los Cerros b I 40,109

211 Ventana Ridge M a 3,013

222 Chical C c 1,600

226 Arrosa C 640

438 Monument Lake C 3,200

439 La Vega C 160

457 Palomas C c 640

Total 275,676 a Notes: a Includes allotment acres that are outside the Plan Area b Combined allotment created in 1995 to include the former Cerro Chato Allotment (#200) c Allotments created by the AFO as the result of a land exchange with the State of New Mexico in 1987

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“I” category (Improve) allotments are managed to Management Plans (CRMPs), are prepared for “I” improve their ecological condition and resolve re- category allotments. AMPs contain goals and objec- source conflicts. These are the allotments on which tives and site-specific prescriptions for livestock graz- the AFO can apply vegetative management tech- ing practices to meet those goals and objectives. niques, where the PNC data indicate the potential for They also outline required monitoring studies. change is good. Allotments in the I category are CRMPs differ from AMPs in that they contain site- expected to stay in that category for ten years or long- specific prescriptions for a variety of resource pro- er, depending on the situation. In some cases infra- grams. As a consequence, CRMPs require a larger structure such as fences and waters needs to be devel- commitment of staff and resources to complete. oped before optimum livestock grazing regimes can However, budget priorities may not support prepara- be implemented. In other circumstances, actions such tion of either type of detailed activity plan. Rather as prescribed fire to control piñon-juniper encroach- than defer change in livestock grazing management ment into grass-shrublands or treatment of saltcedar in until resources can be devoted to preparation of a riparian areas need to be completed to complement detailed activity plan, a simple pasture rotational graz- grazing management. Even when the conditions ing plan can be developed and implemented. needed to change a grazing allotment from the I to the M category have been attained, it is better to delay the Livestock grazing management plans and their revi- category change for another five-year evaluation sions are key to ensuring that livestock grazing use is period, increasing the likelihood that the changes will not limiting the accomplishment of vegetative objec- remain effective in the long term. tives. The AFO will continue to involve the public in the NEPA process for permit/lease management plans, “M” category (Maintain) allotments are managed to including AMPs/CRMPs, as well as for site-specific maintain current satisfactory resource conditions. “C” projects. Coordination with affected allottees, in- category (Custodial) allotments typically contain small volved landowners, the State, and interested members amounts of unconsolidated public lands, have no re- of the public will continue to be part of the process in source conflicts, and/or have a low potential for im- making changes in livestock grazing management proved resource condition. They are kept in Federal within the Plan Area. ownership, with grazing fees collected, but without large investments of time or money. The AFO has developed a CRMP for the Cerro Bril- lante (#207) Allotment, and AMPs for the Los Pilares Changes in Livestock Grazing Management. The (#205), Techado Mesa (#209), Los Cerros (#210), AFO will continue to implement specific prescriptions and El Malpais (#203) Allotments. to accomplish vegetative goals and objectives. Allotment-specific prescriptions can be as simple as a Rangeland Improvements. Rangeland improve- pasture rotational grazing plan, or as involved as ments will continue to be placed within the Plan Area preparation of an activity plan. Typically, manage- to improve livestock grazing management, for accom- ment changes are implemented, monitored, and evalu- plishment of vegetative objectives, and to benefit ated. Based on the evaluations, management recom- other programs, particularly Riparian, Forest and mendations are made for continuation of current man- Woodlands, Wildlife Habitat, and Watershed. Graz- agement or for new changes to accomplish objectives. ing allottee requests for rangeland improvements will Prescriptions for changing livestock grazing manage- also be considered. Prior to approval, each rangeland ment are usually made to “I” category allotments only. improvement project proposed will be assessed to For “M” and “C” category allotments, grazing allottee determine the impact of the project and identify miti- management practices are acceptable and no formally gative measures as appropriate. Types of rangeland documented livestock management plan is required improvement projects which could be applied to the beyond the EA proposed action/terms and conditions. public lands within the Plan Area include, but are not In most cases, a “M” or “C” category allotment would limited to, fences, spring developments, drilling and be changed to the “I” category prior to proposing equipping of water wells, water pipelines, prescribed changes in livestock grazing management. fires, mechanical treatments, and chemical treatments. All laws, regulations, and management guidance will In general, detailed activity plans, either Allotment be considered in the planning, approval, and imple- Management Plans (AMPs) or Coordinated Resource mentation of each rangeland improvement project.

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Grazing Systems. Grazing systems will be imple- evaluation of these data could be used by the AFO to mented as needed to ensure that PNC vegetative ob- make adjustments in grazing use (including reduced jectives are met and resource conflicts are amelio- livestock numbers). The AFO could use these types rated. Common grazing systems are rest rotation, of data to determine the effectiveness of livestock deferred rotation, deferred grazing, alternative graz- grazing management in accomplishing the vegetation ing, and short duration high intensity grazing. As new objectives. Vegetative treatments will be applied in and different systems are proposed, they can be at- specific areas where they are likely to succeed to tempted if the livestock grazing deferment periods encourage the formation of PNCs. specified below under “Decisions From Approved El Malpais Plan” are followed. The effects of all live- Decisions From Approved stock grazing systems will be monitored to determine success. El Malpais Plan

Livestock Grazing in Wilderness. In the NCA The El Malpais Plan decisions specifically affecting wildernesses, the El Malpais Act allows previously Rangeland Resources are those regarding the PNC established livestock grazing to continue, subject to vegetative goals and objectives presented in the Vege- certain guidelines, as long as the intent of Congress tation/Potential Natural Communities section. A full regarding grazing in such areas is implemented (as range of management techniques (livestock grazing, expressed in the Wilderness Act and P. L. 96-560). forest and woodland, riparian, fire, and watershed) The BLM Wilderness Management Policy allows will be used to achieve the PNC vegetative objectives. motorized and mechanized equipment to be used to Changes in livestock grazing management will con- maintain range improvements in wilderness. The AFO tinue to be made to ensure accomplishment of PNC has developed Range Improvement Management vegetative objectives. Grazing management plans, (RIM) Plans for the individual allotments overlapping including AMPs/CRMPs, will continue to be devel- the West Malpais and Cebolla Wildernesses; the plans oped and revised as needed to ensure that progress is provide guidance and procedures for using such being made toward accomplishment of PNC vegeta- equipment, and the AFO will continue to follow them. tive objectives. A CRMP for the Cerro Brillante Allottees may use motorized vehicles on authorized Allotment and an AMP for the El Malpais Allotment routes to access windmills for annual maintenance, have recently been completed. They both include fences every five years, and dirt tanks every ten years. PNC vegetative objectives and requirements for mini- The plans are on file at the AFO. If Congress desig- mum rest periods from livestock grazing. The AMPs nates all or portions of the Canyons WSA as part of for the Los Cerros, Techado Mesa, and Los Pilares the Cebolla Wilderness, RIM Plans for the affected allotments have been amended to include PNC vege- allotments may need to be amended. tative objectives and requirements for minimum rest periods. The minimum livestock grazing rest period Monitoring. The AFO and allottees modify livestock will be from April 15 to October 15 for at least one grazing practices based on the results of systematic pasture each year. New range improvements will be vegetative monitoring studies. These studies are done developed if needed to provide this rest. AMPs/ on all allotments, with the intensity and frequency CRMPs will contain objectives and actions for forests based on allotment category. If evaluations indicate and woodlands, wildlife, riparian, fire, and watershed the need, the AFO will implement changes in livestock management. If monitoring studies indicate the need, grazing management through agreements with allot- existing plans may be revised, new plans developed, tees or through management decisions. The selective and/or livestock grazing use reduced. management category of an allotment may be changed based on new resource information. The AFO has fenced spring areas used by livestock to exclude them, and will develop livestock and wildlife The AFO will continue to do on-the-ground monitor- waters elsewhere. ing studies. To enhance these monitoring methods and increase the success of vegetative management To improve watershed conditions and assist in accom- practices, the AFO will apply advancing technology plishing vegetative objectives, the AFO will provide such as remote sensing data and Geographic Informa- for the use of mechanical, chemical, or biological tion Systems (computer) analysis. Comparison and vegetation treatments in AMPs/CRMPs. Treatments

2-139 Rangeland Resources Chapter 2 will be considered in areas where livestock rest and and Canyons Wilderness Study Areas, most of the prescribed fires have not been effective, i.e., areas Cebolla Wilderness, and the Continental Divide, Cerro where junipers too small for fuelwood have invaded Brillante and Brazo Units, and parts of the Spur and (in meadow-like openings, grasslands, or savannas) or Breaks Units are in the Conditional Wildland Fire Use areas where fire-tolerant species such as rubber rabbit- Fire Management Unit. The Cerritos de Jaspe and brush have increased or invaded (in valley bottoms, Neck Units are within the Minimize Wildland Fire drainages, and meadow-like openings). Presence Fire Management Unit, as are portions of the Spur Unit and the Cebolla Wilderness (see Glos- Control of noxious weeds (e.g., knapweed, bindweed, sary and Map 2-9 in the Fire Management section). leafy spurge, thistle) is allowed by mechanical, chemical, or biological means. Site-specific environmental The AFO will consider vegetation treatments within assessments will be completed before any noxious designated wilderness on a case-by-case basis under weeds are treated. [A Field Office-wide program- guidance found in the BLM Wilderness Management matic environmental assessment for noxious weed Policy. The AFO will control fires in wilderness to treatment has been prepared. Site-specific NEPA prevent their spread outside wilderness and to prevent compliance will tier from the programmatic docu- the loss of human life or property. Fire suppression ment.] methods will be those that cause the minimum adverse impact on wilderness character. A Joint Fire Management Plan has been developed for El Malpais NCA and El Malpais National Monu- Motorized vehicle access over 23.3 miles of routes ment (USDI, BLM and NPS 2001). Through the El inside wilderness will be limited to authorized users. Malpais Plan and the activity-level Joint Fire Man- Such access will be allowed only to non-Federal agement Plan, the AFO will implement woodland and inholdings and livestock grazing operations over 5.5 forest management practices which will allow the miles of authorized routes in the Cebolla Wilderness return of natural fire to El Malpais. The Joint Fire and 17.8 miles in the West Malpais Wilderness. Ac- Management Plan identifies management objectives cess for livestock grazing use will continue under the for protecting, maintaining, and/or enhancing resource conditions set in the BLM Range Improvement Man- values using fire. It also establishes restrictions for agement Plans for the individual allotments overlap- actions that could cause unacceptable resource dam- ping the Cebolla and West Malpais Wildernesses age (e.g., bulldozers in riparian areas). (USDI, BLM 1990a, 1990b, 1990d). Allottees may use motorized vehicles on authorized routes to access Prescribed fires and wildland fire use will be used to windmills for annual maintenance, fences every five manage fuel loads (hazardous fuel reduction), protect years, and dirt tanks every ten years. Access to private property, and accomplish PNC vegetative inholdings will be authorized over routes selected by objectives, including reducing piñon-juniper in poten- the AFO to cause the least impact to the areas' wilder- tial ponderosa pine habitat. Prescribed fires will be ness character, while serving the purposes for which used where appropriate to protect, maintain, improve, the private land is held or used. or enhance wildlife/livestock habitats and watershed values. Fires ranging in size from 50 to 1,000 acres Eight historic homesteads in the Plan Area have been each will be used each year. A written prescribed fire fenced to exclude livestock. Additional homesteads plan must have been prepared and approved before may be fenced if warranted. ignition. Ponderosa seedlings will be planted on some locations if needed to ensure reestablishment. In areas Criteria for Resolution of proposed for prescribed fires, pre- and post-burn rest El Malpais Plan Issues from grazing will be planned in coordination with the affected allottee(s). The following factors were considered in developing answers to the issue questions regarding vegetation, The West Malpais Wilderness is within the Joint Fire wildlife habitat, and wilderness management. These Management Plan’s Wildland Fire Use For Resource factors will continue to be considered as the El Benefits Fire Management Unit. The Chain of Craters Malpais Plan is implemented.

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• Protection and enhancement of watershed condi- Decisions Carried Forward From tions Previous Planning

• Unique or fragile soils and vegetation, including West Socorro Rangeland Management Program threatened and endangered plant species and EIS. The West Socorro Rangeland Management Program (USDI, BLM 1982a) contains additional • Areas that require increased vegetative cover to proposed actions and management objectives for reduce soil erosion, increase forage production, public land within the Plan Area. In 1983, administra- and improve wildlife habitat tion of the public land in Cibola and Valencia Coun- ties was transferred to what is now the Albuquerque • Vegetative treatments or manipulation methods, Field Office from what is now the Socorro Field including prescribed fire Office. Twelve grazing allotments overlapping the Plan Area were part of this transfer. In 1992 to • Use of fuelwood harvest and other forestry prac- implement the West Socorro Rangeland Management tices Program, the AFO issued decisions based on monitoring studies to establish new grazing preferences, • Vegetative communities and habitat conditions which included sufficient forage to provide for wildlife needs. Table H-1 in Appendix H displays the grazing • Maintenance requirements for range improve- preferences before and after the monitoring studies ments and new decisions. In addition to these adjustments, other changes in grazing management have been Guidance From Rio Puerco RMP ongoing. These are shown in Table H-2 in the same appendix. Some of the decisions from the Rio Puerco RMP continue to be applicable to management of El Malpais NCA and adjoining lands. This guidance is listed below as “Criteria for Resolution of RMP Is- sues.” In addition, the RMP carried forward decisions from previous planning that still apply to El Malpais. These decisions are listed under “Decisions Carried Forward From Previous Planning.”

Criteria for Resolution of RMP Issues

Two of the criteria used to guide resolution of the RMP issues remain applicable for future actions in the Rangeland Resources Program:

• OHV use performed in conformance with existing leases, permits, rights-of-way stipulations, or other land-use authorization will not be restricted.

• Fuelwood will not be made available where harvesting would degrade or disturb livestock grazing.

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Divide Management Framework Plan. The follow- provide livestock waters, contingent on location ing decisions affecting the Rangeland Resources Pro- of feasible sites. gram were carried forward into the Rio Puerco RMP from the Divide Management Framework Plan: Monitoring/Studies

• Construct a 20-acre exclosure on each of 33 The AFO and allottees modify livestock grazing prac- range sites [in the entire Divide Planning Unit] for tices based on the results of systematic vegetative vegetative condition and trend studies. monitoring studies. These studies are done on all allotments, with the intensity and frequency based on • Perform seeding trials in each of 33 range sites [in allotment category. C category allotments are field the entire Divide Planning Unit] to determine the checked before permit/lease renewal or transfer. For potential forage production by re-seeding using a the M category allotments, vegetative trend data is multiple approach. collected and reviewed before permit renewal. Trend and forage utilization studies are done and evaluated • Maintain existing land treatments to achieve max- every five years on the I category allotments. If eval- imum forage production primarily by prescribed uations indicate the need, the AFO will implement burning. Other methods such as herbicide appli- changes in livestock grazing management through cation, tree cutting, and chaining would be con- agreements with allottees or through management sidered. decisions. An allotment’s selective management category is changed based on new resource information. • Burn and/or chain 10,000 acres of piñon-juniper [in the entire Divide Planning Unit] in 50 to 100 The AFO will continue to do on-the-ground monitor- acre irregularly-shaped plots. Seed with browse, ing studies. To enhance these monitoring methods grass, and forbs. This land treatment will take and increase the success of vegetative management precedence over fuelwood management. [See practices, the AFO will apply advancing technology “Decisions From Approved El Malpais Plan, such as remote sensing data and Geographic Informa- Prescribed Fire & Wildland Fire Use,” above.] tion Systems (computer) analysis. Comparison and evaluation of these data could be used by the AFO to • Design and implement livestock grazing systems make adjustments in grazing use (including reduced to protect mule deer habitat by scheduling non- livestock numbers). These types of data may be used use or rest during critical periods in essential to determine the effectiveness of livestock grazing winter ranges and fawning areas. management in accomplishing vegetation objectives.

• Continue wildlife/range studies to determine habi- If monitoring studies indicate that objectives for for- tat capability to support wildlife and livestock estry and woodlands, wildlife, riparian, fire, or water- numbers. shed management are not being met, existing AMPs/ CRMPs may be revised, new plans developed, and/or • Construct antelope passes along the western livestock grazing use reduced. boundary fence of the York Ranch No. 0076 Allotment. Allottee will be consulted prior to any Eight historic homesteads in the Plan Area have been fence modification. [See “Decisions From Ap- fenced to exclude livestock. The condition of other proved El Malpais Plan, Miscellaneous Wildlife historic homesteads will be monitored. Additional Projects/Operations,” above.] homesteads can be fenced if warranted.

• Seed browse and forbs in 1,000 acre plots. Implementation Priorities • Design livestock grazing systems to enhance antelope habitat by removing livestock in key forb The management objectives as identified under “Man- producing areas and kidding grounds. agement Guidance,” “Decisions From Approved El Malpais Plan,” and “Guidance From Rio Puerco • Construct reservoirs on public lands to create RMP” will be implemented as funding and personnel additional waterfowl and shorebird habitat and to are available. Some of the objectives have already

2-142 Rangeland Resources Chapter 2 been partially or fully implemented as part of resource Support Needs programs carried out under the Rio Puerco RMP. The following is priority order for management of rangeland resources if funding is available: Forest & Woodland Resources Wildlife Habitat Continue routine grazing administration, including Special-Status Species billings, unauthorized use detection and abatement, Riparian & Wetland Habitats range improvements, transfers, and other day-to-day customer service activities. Watershed Fire Management Perform livestock grazing management compliance checks including field inspections and grazing allottee Many of the AFO resource programs share common contacts. goals and objectives. Rangeland Management, Forest and Woodland Resources, Wildlife Habitat, Special- Perform grazing monitoring studies including data Status Species, Riparian and Wetland Habitats, Wa- evaluations in accordance with “Monitoring/Studies,” tershed, and Fire Management are all striving to en- above. sure that management of the Plan Area will eventually allow establishment of its PNCs. As a result, manage- Coordinate with AFO resource specialists including, ment of these resource programs must complement but not limited to, wildlife, recreation, wilderness, and each other. Planning and coordination are the key forestry and woodlands, to develop projects which support factors which will ensure that these programs will ensure that the PNC vegetative objectives are are successful. being met. Cultural Resources Based on evaluations of monitoring studies, implement changes in grazing management as needed. Cultural Resources Program support is required be- Permit(s)/lease(s) may need to be reissued to imple- fore rangeland improvement projects can be ap- ment management changes. proved.

American Indian Consultation

American Indian consultation is also required before rangeland improvement projects can be approved.

Lands & Realty

Support from the Lands and Realty Program is important when access is needed to support effective decisions which will provide progress to achieving PNCs.

2-143 2-144 RIPARIAN & WETLAND HABITAT

Program Goals the occupancy and modification of floodplains. Agen- cies are further required to avoid direct or indirect support of floodplain development whenever there is a The goal of this program is to manage the riparian and practicable alternative. Each agency is required to wetland habitats in the Plan Area for their protection provide leadership and take action to restore and and enhancement. BLM policy is to achieve a healthy preserve the natural and beneficial values served by and productive ecological condition for all public floodplains in carrying out its responsibilities for ac- riparian areas (USDI, BLM 1991b). Riparian-wetland quiring, managing, and disposing of Federal lands and management goals and objectives fall into four general facilities. EO 11990 of 1977 (Protection of Wetlands) management strategies: maintenance of existing ripar- directs Federal agencies to take action to minimize the ian conditions; improvement of degraded riparian destruction, loss, or degradation of wetlands and to conditions; recovery of lost riparian areas; and devel- preserve and enhance the natural and beneficial value opment of new riparian areas. of wetlands in carrying out programs affecting land use. All Federally initiated, financed, or permitted Management Guidance construction projects in wetlands must include all practical measures to minimize adverse impacts. This Policy and Authorities requires that all leases, rights-of-way, easements, and disposals involving Federal wetlands contain restric- The Taylor Grazing Act of 1934, as amended, directs tions to uses by the grantee which are consistent with the Secretary of the Interior to stop injury to the pub- Federal, state, and local wetland regulations. lic lands by preventing overgrazing and soil deterioration. It also authorizes the Secretary to continue the The Department of the Interior has a mandate for the study of erosion and flood control and to perform management of the Nation’s natural resources, includ- such work as may be necessary to amply protect and ing riparian/wetland areas. The Department’s policy rehabilitate such areas. The Federal Land Policy and is to exercise leadership and take action to avoid, to Management Act of 1976 (FLPMA) requires that “the the extent possible, the long- and short-term adverse public lands be managed in a manner that will protect impacts associated with the occupancy and modifica- the quality of . . . ecological, environmental, . . . tion of wetlands and floodplains. water resources, and . . . that, where appropriate, will preserve and protect certain public lands in their natu- The BLM’s policy, in accordance with laws, EOs, and ral condition; that will provide food and habitat for Departmental guidance, is to maintain, restore, or im- fish and wildlife and domestic animals . . . .” FLPMA prove riparian-wetland ecosystems to achieve a also requires compliance with state and Federal water healthy and properly functioning condition that as- pollution standards. The Public Rangeland Improve- sures biological diversity, productivity, and sustain- ment Act of 1978 directs improvement of rangeland ability. The BLM Manual 1737–Riparian-Wetland conditions in accordance with land-use planning under Area Management pertains to Riparian Resources. In FLPMA. The Water Quality Act of 1987, as it addition, managers are to ensure that riparian-wetland amends the Federal Water Pollution Control Act determinations, including management objectives, are (Clean Water Act) of 1977 has the objective to re- made in accordance with the Supplemental Program store and maintain “. . . the chemical, physical, and Guidance (SPG) for resource management planning, biological integrity of the Nation’s water . . . at a level Manual Sections 1622.1 and 1624. Programs with of quality which provides protection for fish, shellfish, SPG relating to riparian-wetland management include wildlife, and recreational use.” Rangeland Resources; Recreation; Wildlife Habitat; Soil, Water, and Air Resources; Forest and Woodland A number of executive orders (EOs) also provide Resources; and Minerals Management. According to guidance to the Riparian and Wetland Habitat Pro- the SPG, the BLM must: gram. EO 11988 of 1977–Floodplain Management, as amended by EO 12148, directs each Federal agency • Establish riparian-wetland management objectives to take action to avoid, to the extent possible, the using an interdisciplinary approach and incorpo- long- and short-term adverse impacts associated with rate these as appropriate in site-specific activity plans.

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• Incorporate the necessary stipulations in land-use use by livestock, planting of native vegetation, re- authorizations and contracts to ensure that ripar- moval of exotic species, terracing and contouring, ian/wetland objectives in land-use and activity prescribed burning, limiting vehicle use, removal or plans are met. restocking of wildlife (e.g., beavers, muskrats), and placing structures to create point bars, enhance sinu- • Monitor all actions and mitigating measures. osity, or control erosion. Land exchanges may also be appropriate actions to consolidate public land man- • Evaluate (through interdisciplinary teams) moni- agement in and/or adjacent to important riparian/ toring results to ensure that management pre- wetland areas. scriptions are achieving their intended purpose. If they are not, management prescriptions, associ- All springs and associated riparian/wetland habitats on ated enforcement, and treatments must be BLM-administered lands that are presently in the changed to ensure that riparian-wetland objec- Properly Functioning Condition category will be tives are being met. maintained at that level (USDI, BLM 1993, 1994). All springs and associated riparian/wetland habitats Field Office Program Guidance that are presently in the Nonfunctional or Functional- At Risk categories will be managed to improve them The AFO also manages riparian resources under an to the Properly Functioning Condition category. (See amendment to the Rio Puerco RMP, the Riparian and the Glossary for definitions of riparian function rat- Aquatic Habitat Management Plan (USDI, BLM ings.) The AFO will maintain or improve these fea- 2000a). Guidance from this document is listed below tures either by using livestock exclosures, or by imple- under “Guidance From Rio Puerco RMP.” menting grazing management practices to maintain or improve them to properly functioning condition Riparian/wetland areas are those lands directly influenced by permanent water, such as spring areas or In managing livestock grazing, the AFO will design streambanks. They have visible vegetation or physical and establish practices that meet riparian and water characteristics that reflect this influence. Riparian quality needs. No livestock-related activities such as areas are extremely limited in size and extent through- salting, feeding, construction of holding facilities, or out the Plan Area. As such they are extremely impor- stock driveways will be allowed to occur within ripar- tant, not only for many species of wildlife, but also for ian zones. maintenance of water quality, spring and streamflow, and forage production. Throughout the Plan Area, the AFO will continue to coordinate riparian/wetland habitat management with The majority of the Plan Area is a closed basin with other programs and activities, including Rangeland no external water sources. A few small riparian/ Resources, Wildlife, Watershed, Recreation, Forestry, wetland marshy areas occur around natural springs in and Lands. Riparian habitat values will be addressed the area. Cebollita and Cebolla are the best known of for all surface- and vegetation-disturbing actions. these springs. Each provides enough water to form a small (less than 10 acre) riparian/wetland area with a Decisions From Approved less than 1½-mile-long stream below it. There are no other perennial streams in the Plan Area. However, El Malpais Plan there are temporary playa lakes which can resemble wetlands after large summer rainstorms. The AFO will fence a 1½-mile section of the perennial stream along Cebolla Canyon, below Cebolla Spring The AFO will take all appropriate actions (e.g., fenc- (T. 5 N., R. 10 W., secs. 2 and 3). This is one of the ing, grazing management practices) to protect ripar- few perennial streams occurring within the Plan Area; ian/wetland habitats in the Plan Area. Construction protection of these unique habitats is an AFO priority. activities that remove or destroy riparian vegetation [The fencing of Cebolla Canyon as a riparian pasture will be avoided. Protection or enhancement of ripar- was accomplished in 2000 as part of the National ian and wetland areas may involve the use of various Environmental Policy Act process for re-authoriza- types of projects and methods of management, includ- tion of the El Malpais Grazing Allotment permit.] ing fencing, seasonal use by livestock, voluntary non-

2-146 Riparian & Wetland Habitat Chapter 2

The AFO will use a full range of management tech- 2000, Final Environmental Impact Statement for niques (forest and woodland, livestock grazing, ripar- Riparian and Aquatic Habitat Management in the ian, fire, and watershed) to achieve the potential natu- Albuquerque Field Office–New Mexico, Volume 2: ral community vegetative objectives. Proposed Riparian and Aquatic Habitat Management Plan (USDI, BLM 2000a), completed land manage- The AFO has fenced spring areas used by livestock to ment planning for riparian resources in the AFO. exclude them, and will develop livestock and wildlife Decisions from this document are listed below as waters elsewhere. Springs not used by livestock may “Decisions From Riparian EIS.” be developed for wildlife use. To allow for fully functioning riparian condition, exotic species such as salt- Criteria for Resolution of RMP Issues cedar and Russian olive will be removed using mechanical, biological, or chemical treatments. The AFO Two of the criteria used to guide resolution of the Rio will plant willows, cottonwoods, and other native Puerco RMP issues remain applicable as guidance for riparian species as needed. future actions in the Riparian and Wetland Habitat Program: A Joint Fire Management Plan has been developed for El Malpais NCA and El Malpais National Monu- • Designation of OHV use will consider protection ment (USDI, BLM and NPS 2001). Through the El of resources such as valuable wildlife habitat . . . Malpais Plan and the activity-level Joint Fire Man- and other resource uses. [Riparian and wetland agement Plan, the AFO will implement woodland and habitat will be considered under this criterion.] forest management practices which will allow the return of natural fire to El Malpais. The Joint Fire • Fuelwood will be sold, where possible, in areas Management Plan identifies management objectives where the quality of wildlife habitat will not be for protecting, maintaining, and/or enhancing resource degraded, but rather will be enhanced by the sale. values using fire. It also establishes restrictions for [Riparian and wetland habitat will be considered actions that could cause unacceptable resource dam- under this criterion.] age (e.g., bulldozers in riparian areas). Decisions Carried Forward From Allotment Management Plans/Coordinated Resource Management Plans (AMPs/CRMPs) prepared for Previous Planning grazing allotments/leases will contain objectives and The following decisions were carried forward into the actions for riparian, forests and woodlands, wildlife, Rio Puerco RMP from land management plans com- fire, and watershed management. If monitoring stud- pleted prior to the RMP: ies indicate the need, existing plans can be revised, new plans developed, and/or livestock grazing use can • Fence springs and associated riparian vegetation. be reduced. [See Decisions From Approved El Malpais Plan, Riparian Fencing,” in the Wildlife Habitat sec- Guidance From Rio Puerco RMP tion.]

Some of the decisions in the Rio Puerco RMP con- • Acquire through exchange the riparian/wetland tinue to be applicable to the Riparian and Wetland habitat, specifically Cebolla Spring and Laguna Habitat Program in El Malpais NCA and adjoining Americana. [Both acquisitions have been accom- lands. This guidance is listed below as “Criteria for plished.] Resolution of RMP Issues.” In addition, the RMP carried forward decisions from previous planning that Decisions From Riparian EIS still apply to El Malpais. These decisions are listed under “Decisions Carried Forward From Previous The following decisions from the Final Environmen- Planning.” Riparian management emerged as an im- tal Impact Statement for Riparian and Aquatic Habi- portant issue following completion of the RMP. tat Management in the Albuquerque Field Office– While there is no implementation guidance from the New Mexico, Volume 2: Proposed Riparian and RMP itself, an amendment to the RMP completed in

2-147 Riparian & Wetland Habitat Chapter 2

Aquatic Habitat Management Plan (USDI, BLM AMPs/CRMPs prepared for grazing allotments/leases 2000a) apply to riparian and wetland habitats in the will contain objectives and actions for riparian, forests Plan Area: and woodlands, wildlife, fire, and watershed management. If monitoring studies indicate the need, existing • Develop a lotic riparian habitat [running water plans can be revised, new plans developed, and/or such as rivers, streams, and springs] protection livestock grazing use can be reduced. enclosure in Cebolla Canyon. [The fencing of Cebolla Canyon as a riparian pasture was ac- Implementation Priorities complished in 2000 as part of the NEPA process for re-authorization of the El Malpais Grazing Maintain the protection and proper management of Allotment permit.] the riparian/wetland resources within the Plan Area that have currently been identified and assessed. • Reestablish an appropriate Cebolla Creek stream crossing for the main Cebolla Canyon road. Continue monitoring studies, focusing on condition assessments and greenline surveys. • Control invasive plant species (e.g., saltcedar) in Cebolla Canyon. Identify and assess new riparian/wetland habitat areas and develop management strategies. • Reestablish and/or augment native woody species (e.g., coyote willow, cottonwood) in Cebolla Canyon. Support Needs

• Develop open water ponds at Cebolla Spring Rangeland Management within and/or adjacent to the existing spring pro- Forest & Woodland Resources tection fence. Wildlife Habitat • Reestablish and/or augment native woody species Special-Status Species at Cebolla Spring. Watershed Fire Management • Continue monitoring and survey activities at Cebolla Spring. Many of the AFO resource programs share common goals and objectives. Rangeland Management, Forest • Assess the protection of Cebollita Spring and its and Woodland Resources, Wildlife Habitat, Special- associated lotic reach. Status Species, Riparian and Wetland Habitats, Wa- tershed, and Fire Management are all striving to en- Monitoring/Studies sure that management of the Plan Area will eventually allow establishment of its Potential Natural Communi- The AFO will monitor riparian/wetland habitats using ties. As a result, management of these resource pro- the process for assessing Properly Functioning Condi- grams must complement each other. Planning and tion for lentic systems (standing water habitats such as coordination are the key support factors which will lakes, ponds, seeps, and meadows) and lotic systems ensure that these programs are successful. (running water habitats such as rivers, streams, and springs) (USDI, BLM 1993, 1994). Vegetative de- Cultural Resources velopment is monitored using the process in Monitor- ing the Vegetation Resources in Riparian Areas Cultural resources inventory will be needed for all (USDA, FS 2000) known as a “greenline survey.” surface-disturbing actions.

For established riparian/wetland areas that are not in American Indian Consultation properly functioning condition, condition assessments should be updated every two years, with greenline American Indian consultation will be required for all surveys updated at a minimum of every six years. surface- and vegetation-disturbing actions.

2-148 Soil, Water, & Air Resources

new water developments under this legislation will The Soil, Water, and Air Program is referred have priority dates that are junior to all existing rights to in most of the other sections of this and pending applications (see “Decisions From Ap- document as the “Watershed Program.” proved El Malpais Plan,” below).

Field Office Program Guidance Program Goals The AFO will continue to participate with the U. S. Department of Agriculture Natural Resources Conser- The goals of this program are to protect, maintain, vation Service (NRCS) in the National Cooperative and enhance, wherever possible, the soil, water, and Soil Survey. Detailed soil surveys for individual pro- air resources of the Plan Area for the benefit of hu- jects will be conducted as needed. mans, and the wide variety of plant and animal ecosystems. The program will continue to support other Reduction of nonpoint source pollution through con- resource activities. trol of soil erosion and sediment production from public lands remains a high priority management goal. Management Guidance The AFO will monitor and maintain water quality to Policy and Authorities State standards at the El Malpais Ranger Station and any other BLM-developed public drinking water sites. The basis for initiating and implementing the goals of the Soil, Water, and Air Resources Program is BLM The Soil, Water, and Air Resources Program will Manual 7200 and the following acts, executive orders, provide input, analysis, and support when the AFO and circulars, and their amendments: Economy Act of initiates or authorizes projects. Best management 1932, Taylor Grazing Act of 1934, Soil Conservation practices will be applied to reduce the impacts of and Domestic Allotment Act of 1935, Appropriations surface-disturbing activities. Act of 1952, Watershed Protection and Flood Control Act of 1954, Water Resources Research Act of 1954, Water rights for the management of public lands in the Water Resources Planning Act of 1965, Soil Informa- Plan Area will be established under appropriate Fed- tion Assistance for Community Planning and Re- eral and State laws. source Development Act of 1966, National Environ- mental Policy Act of 1969, Clean Air Amendments of The AFO will participate in general stream water 1970, Water Resources Development Act of 1974, rights adjudications for the Rio San Jose and Zuni Colorado River Basin Salinity Control Act of 1974, Basins and present claims based on Federal and State Federal Land Policy and Management Act of 1976, water laws. Safe Drinking Water Amendments of 1977, Clean Water Act of 1977, Public Rangeland Improvement Prevention and reduction of impacts to air quality Act of 1978, Classification and Multiple-Use Act of from activities on public lands is accomplished by 1981, Farmland Protection Policy Act of 1981, An- mitigation measures developed on a case-by-case nual Appropriations Act of the Department of the basis through the environmental analysis process. Interior, Executive Orders 107, 11514, 11738, 11752, Activities such as road construction will have dust 11988, 12148, 11990, and 12322, and Circulars A-67, abatement programs as part of their permits or con- A-78, A-81, and A-97. tracts.

The El Malpais Act expressly reserves to the United In addition to the small structures called for by the States the minimum amount of water required to carry Approved Plan, other land treatment methods will be out the purposes for which El Malpais NCA, and the considered in any effort to improve watershed health. Cebolla and West Malpais Wildernesses were designated. This clause in the legislation does not affect Livestock grazing management will be coordinated any existing water right or pending application. Any and designed to facilitate other programs. The AFO

2-149 Soil, Water & Air Resources Chapter 2 will consider management of natural waters, springs clearances will be done and a determination will be and ephemeral flows; burn areas; wildlife projects; made concerning the environmental consequences of wilderness management; and forest and woodland the proposal. management in planning for livestock grazing management. Interpretive objectives (themes) will be developed for each resource whose management can be assisted In managing livestock grazing, the AFO will design through visitor education efforts. Potential themes and establish practices that meet riparian and water have been developed for several programs; these are quality needs. No livestock-related activities such as not all-inclusive or final. A potential theme for the salting, feeding, construction of holding facilities, or Soil, Water, and Air Program is: stock driveways will be allowed to occur within riparian zones. • Using surface waters can cause health problems, camping near surface waters can pollute them, All range and watershed improvements will continue and visitors should respect owners’ rights to pri- to be designed to achieve watershed, range, and wild- vately owned water sources. life objectives for maintaining, improving, or enhancing habitats, particularly for NM Department of Game Decisions From Approved and Fish priority species. This includes location and design of waters and vegetative manipulation projects. El Malpais Plan

The primary use of prescribed fires and wildland fire For watershed management, the AFO will consider use (see Glossary) by programs other than the Fire building small structures to spread or divert water. Management Program (e.g., Watershed, Rangeland Site-specific environmental assessments will be com- Resources, Wildlife) will be to protect, maintain, pleted before any structures are built. improve, or enhance watershed values and wildlife and livestock habitats; improve vegetative resources Allotment Management Plans/Coordinated Resource and help achieve potential natural community vegeta- Management Plans (AMPs/CRMPs) prepared for tive objectives; reduce the fuel load; and blend fire grazing allotments/leases will contain objectives and back into the natural processes of a functioning eco- actions for watershed management, forests and wood- system. lands, wildlife, riparian, and fire. If monitoring studies indicate the need, existing plans may be revised, new Individual prescribed fire plans or wildland fire imple- plans developed, and/or livestock grazing use re- mentation plans are required before fire can be used to duced. improve the vegetative habitats of the Plan Area. In addition to a prescribed fire plan or wildland fire im- To improve watershed conditions and assist in accom- plementation plan, a State burn permit that includes a plishing vegetative objectives, the AFO will provide smoke management plan is also required. for the use of mechanical, chemical, or biological vegetation treatments in AMPs/CRMPs. Treatments Throughout the Plan Area, the AFO will continue to will be considered in areas where livestock rest and coordinate riparian/wetland habitat management with prescribed fires have not been effective, i.e., areas other programs and activities, including Watershed, where junipers too small for fuelwood have invaded Rangeland Resources, Wildlife, Recreation, and (in meadow-like openings, grasslands, or savannas) or Lands. Riparian habitat values will be addressed for areas where fire-tolerant species such as rubber rabbit- all surface- and vegetation-disturbing actions. brush have increased or invaded (in valley bottoms, drainages, and meadow-like openings). Location and construction of trail treadways will take into consideration and avoid, if possible, conflicts with Camping will be offered at one developed camp- private waters, private lands, sensitive wildlife and ground within the Spur Unit. The Narrows will be the plant habitats, and sensitive cultural resource sites. As only site developed for picnicking. If possible, drink- individual trails are sited for development and where ing water will be provided at the campground and further National Environmental Policy Act compliance picnic area. is necessary, all required site-specific studies and

2-150 Soil, Water & Air Resources Chapter 2

Where feasible, the AFO will develop and identify carried forward decisions from previous planning that water sources for Continental Divide National Scenic still apply to El Malpais. These decisions are listed Trail hikers. under “Decisions Carried Forward From Previous Planning.” Wildlife habitat improvement projects could include water developments such as guzzlers and catchments. Criteria for Resolution of RMP Issues

A full range of management techniques (watershed, Two of the criteria used to guide resolution of the Rio forest and woodland, livestock grazing, riparian, and Puerco RMP issues remain applicable as guidance for fire) will be used to achieve the potential natural com- future actions in the Soil, Water, and Air Program: munity vegetative objectives. • Designations for OHV use will consider protec- Prescribed fires will be used throughout the Plan Area tion of resources such as . . . watershed . . . . where appropriate to protect, maintain, improve, or enhance watershed values and wildlife/livestock habi- • Fuelwood will not be made available where ero- tats. A written prescribed fire plan must have been sion problems are severe. prepared and approved before ignition. Implementation Guidance From RMP Criteria for Resolution of El Malpais Plan Issues Continue the water rights and use inventory. [This inventory is an ongoing process that needs periodic The following factors that apply to the Soil, Water, updating as new information becomes available.] and Air Program were considered in developing answers to the issue questions regarding vegetation. Decisions Carried Forward From These factors will continue to be considered as the El Malpais Plan is implemented. Previous Planning

• Protection and enhancement of watershed condi- The following watershed decisions were carried for- tions ward into the Rio Puerco RMP from previous planning documents: • Unique or fragile soils and vegetation, including threatened and endangered plant species • Through consultation, implement watershed treatments on Allotments 205 (Los Pilares) and • Areas that require increased vegetative cover to 210 (Los Cerros). Develop watershed plan in the reduce soil erosion, increase forage production, Techado . . . watershed. [Proposals for improv- and improve wildlife habitat ing watershed health would be preceded by a review of the current condition; implementation • Vegetative treatments or manipulation methods, of proposals would proceed through permittee including prescribed fire consultation and the environmental analysis process.] • Use of fuelwood harvest and other forestry practices • Identify treatment areas through Section 8 consultation; treated areas will be rested 1-2 years; Guidance From Rio Puerco RMP treatments done solely in wildlife areas will be in conformance with wildlife recommendations. (“Design and implement livestock grazing sys- Some of the decisions in the Rio Puerco RMP con- tems to protect mule deer habitat by scheduling tinue to be applicable to management of El Malpais non-use or rest during critical periods in essential NCA and adjoining lands. This guidance for the Soil, winter ranges and fawning areas.”) These land Water, and Air Program is listed below as “Criteria treatments will take precedence over fuelwood for Resolution of RMP Issues.” In addition, the RMP management.

2-151 Soil, Water & Air Resources Chapter 2

• Develop drinking water sources at Sandstone Support Needs Bluffs Overlook and La Ventana Natural Arch. [The Sandstone Bluffs Overlook is now in El Malpais National Monument; priority for public Rangeland Management water supply will be at the campground in the Forest & Woodland Resources Spur Unit and the picnic area at The Narrows.] Wildlife Habitat Special-Status Species Monitoring/Studies Riparian & Wetland Habitats Fire Management The AFO will monitor water quality to State standards at the Ranger Station and any other BLM-de- Many of the AFO resource programs share common veloped public drinking water sites. goals and objectives. Rangeland Management, Forest and Woodland Resources, Wildlife Habitat, Special- AMPs/CRMPs prepared for grazing allotments/leases Status Species, Riparian and Wetland Habitats, Wa- will contain objectives and actions for watershed tershed, and Fire Management are all striving to en- management, forests and woodlands, wildlife, ripar- sure that management of the Plan Area will eventually ian, and fire. If monitoring studies indicate the need, allow establishment of its Potential Natural Communi- existing plans may be revised, new plans developed, ties. As a result, management of these resource pro- and/or livestock grazing use reduced. grams must complement each other. Planning and coordination are the key support factors which will Implementation Priorities ensure that these programs are successful.

Reduce nonpoint source pollution through control of Cultural Resources soil erosion and sediment production from public lands. Cultural resources inventory will be needed for all surface-disturbing actions. Participate in general stream water rights adjudications for the Rio San Jose and Zuni Basins and present American Indian Consultation claims based on Federal and State water laws. American Indian consultation will be required for all surface- and vegetation-disturbing actions.

Special-Status Species

Special-status species consideration will be required for all surface- and vegetation-disturbing actions.

Engineering & Operations

The Engineering and Operations Programs will develop well specifications and administer contracts for drilling and well completion for the public drinking water sources proposed at the Spur campground and The Narrows picnic area.

Support from this program could also be needed for Alluvial Fans on Lava Plateau construction of small structures to spread or divert water, as well as for other types of watershed improvement projects.

2-152 FIRE MANAGEMENT

Program Goals BLM direction for the Fire Management Program is found in BLM Manual 9200, the Draft Prescribed Fire Management Handbook (H-9214-1), Fire Manage- The goal of the Fire Management Program is to pro- ment Planning Handbook (H-9211-1), and Standards tect visitors, other land users, wildlife, livestock, and for Fire and Aviation Operations (H-9213-1). special physical resource features of the Plan Area. Prescribed fires and wildland fire use will be utilized by other resource programs (e.g., wildlife, range, Field Office Program Guidance watershed) to improve the vegetative resources and help achieve potential natural community vegetative Fire has played an integral role in the Plan Area. The objectives; protect, improve, or enhance wildlife and numerous plant communities have developed as part livestock habitats and watershed values; reduce the of a fire-dependent ecosystem (see Appendix F). Periodic burning of these communities is necessary to fuel load; and blend fire back into the natural pro- perpetuate their natural composition, structure, and cesses of a functioning ecosystem. function. The primary use of fire by other resource programs will be to maintain and improve wildlife Management Guidance habitats, vegetative communities, and watershed values through a prescribed burning program. In this Policy and Authorities way, the AFO can help restore the natural place of fire in a functioning ecosystem. Congressional designation as an NCA by the El Malpais Act requires the AFO to manage the area’s The activity-level Joint Fire Management Plan for El resources with a “. . . higher order of protection than Malpais NCA and El Malpais National Monument that followed on other multiple use lands . . . .” Fur- (USDI, BLM and NPS 2001) is the guiding document ther policy authority lies with the Federal Land Policy for managing fire within the Plan Area. In addition, and Management Act (FLPMA), which provides the AFO's coordination with the National Park Ser- overall policy direction. vice (NPS), New Mexico Department of Game and Fish, the U. S. Fish and Wildlife Service, and other Department of the Interior Manual Part 910 directs Federal, State, and local agencies is an important part that “Fire, as a critical natural process, will be inte- of managing wildland fire within the Plan Area. grated into land, natural, and cultural resource management plans and activities on a landscape scale, Where the existing vegetation differs from the poten- across bureau boundaries, and will be based upon the tial natural community vegetative objectives, the AFO best available science. All use of fire for natural and will consider using practices such as prescribed fire, cultural resource management requires a formal pre- chemical treatment, tree thinning, and livestock graz- scription.” Part 620 requires that “Every area with ing management to encourage the achievement of burnable vegetation must have an approved fire man- vegetative objectives. The AFO will gather additional agement plan. Fire management plans must be consis- information (e.g., vegetative use by livestock and tent with firefighter and public safety, values to be wildlife) to guide these practices. protected, and land, natural and cultural resource management plans, and must address public health Livestock range management must be coordinated and issues. Fire management plans must also address all designed to facilitate other programs. The AFO will potential wildland fire occurrences and include the full consider burn areas; wildlife projects; management of range of wildland fire management.” natural waters, springs and ephemeral flows; wilderness management; and forest and woodland manage- Fire planning for public lands must conform to the ment in planning for livestock grazing management. Review and Update of the 1995 Federal Wildland For example, range management must coordinate with Fire Management Policy (USDI, et al. 2001), which the Fire Program. Reintroducing natural fire to open establishes direction for the BLM Fire Program. ponderosa pine habitat can improve forest health,

2-153 Fire Management Chapter 2 wildlife forage, and ground cover for watershed. In not all-inclusive or final. A potential theme for the general, grazing management must be designed to Fire Management Program is: provide frequent, routine rest from livestock grazing to allow recovery for forage species. Furthermore, in • Vegetative manipulation plays a part in conserv- areas where natural fire is desired as a management ing our public lands, including fire and fuelwood tool, such rest from grazing is even more critical. For harvesting. these areas to burn properly, they must have an understory of fine fuel (i.e., grasses, forbs, and shrubs), so Decisions From Approved livestock grazing must be deferred to allow the development of the understory. The length of deferment El Malpais Plan depends on how much understory is available. On conservatively managed range, no deferment may be Joint Fire Management Plan required. Conditions such as drought, combined with grazing, may result in a depleted understory. When The Approved El Malpais Plan outlined decisions for understory is inadequate to support fire, deferment of fire management in the Plan Area, and called for prep- livestock grazing use will be planned. The length of aration of an activity-level fire management plan. The deferment would be expected to be about two grow- activity plan, Joint Fire Management Plan for El ing seasons. Where the fine fuel understory has been Malpais NCA and El Malpais National Monument replaced by woody species, livestock grazing defer- was approved on July 27, 2001 (USDI, BLM and ment alone will in most cases not be sufficient to re- NPS 2001). The Approved El Malpais Plan and the store the understory. The AFO will consider burn Joint Fire Management Plan identify management areas; wildlife projects; management of natural waters, objectives for protecting, maintaining, and/or enhanc- springs and ephemeral flows; wilderness management; ing resource values using fire. The Joint Fire Man- and forest and woodland management in planning for agement Plan also establishes restrictions for actions livestock grazing management. that could cause unacceptable resource damage (e.g., bulldozers in riparian areas). Three critical departures Throughout the Plan Area, the AFO will continue to from previous fire policy are that 1) all ignitions oc- coordinate riparian/wetland habitat management with curring in wildland areas will be classified as either other programs and activities, including Rangeland wildland fire (any non-structural fire, other than pre- Resources, Wildlife, Watershed, Recreation, and scribed fire, that occurs on wildland) or prescribed fire Lands. Riparian habitat values will be addressed for (fire ignited by management actions to meet specific all surface- and vegetation-disturbing actions, includ- objectives); 2) all wildland fires will be managed with ing prescribed fire and mechanical fuels reduction. the appropriate management response as outlined in the Joint Fire Plan and analysis of the specific situa- The Partners Against Weeds (PAWS) action plan for tion; and 3) wildland fires can be managed entirely or BLM (USDI, BLM 1996a) and the Pulling Together in any part for resource benefits or receive suppres- National Strategy for Invasive Plant Management sion actions to minimize burned area because of high (Federal Interagency Committee for Management of values to be protected, threats to life or property, or Noxious and Exotic Weeds 1998) establish general other social, political, and economic considerations guidelines to be implemented. that outweigh potential environmental benefits.

The goals and strategies identified in the PAWS ac- Through the El Malpais Plan and the Joint Fire Man- tion plan will be implemented as needed to help pre- agement Plan, the AFO will implement woodland and vent the introduction or spread of noxious weeds in forest management practices which will allow the the AFO. These preventative measures will be applied return of natural fire to El Malpais. The Joint Fire to AFO actions such as fire rehabilitation. Management Plan was developed to support resource management goals, especially the restoration or main- Interpretive objectives (themes) will be developed for tenance of natural ecosystems. It provides for fire- each resource whose management can be assisted fighter and public safety, as well as protection of natu- through visitor education efforts. Potential themes ral and cultural resources and human developments have been developed for several programs; these are from unwanted wildland fire.

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Prescribed fires will be used where appropriate Individual prescribed fire plans or wildland fire imple- throughout the Plan Area to protect, maintain, im- mentation plans are required before fire can be used to prove, or enhance wildlife/livestock habitats and wa- improve the vegetative habitats of the Plan Area. In tershed values. In addition, the AFO will use pre- addition to a prescribed fire plan or wildland fire im- scribed fires to reduce fuel loading (hazardous fuel plementation plan, a State burn permit that includes a reduction) to reduce the risk of large fires in areas smoke management plan is also required. where there are high-value resources (e.g., houses, land improvements, recreation facilities, historic struc- The Joint Fire Management Plan divides the Plan tures). A written prescribed fire plan must have been Area into three fire management units (“Minimize prepared and approved before ignition. Wildland Fire Presence Unit,” “Wildland Fire Use For Resource Benefits Unit,” and “Conditional Wildland Prescribed fire plans will be developed on a case-by- Fire Use Unit”; see Map 2-9). For each zone, the case basis, with each taking into account the desired AFO has identified general management practices to outcomes (vegetative response and/or fuel reduction). allow fire to become part of the natural process, while Each plan will also outline the appropriate conditions still protecting other resources values. The Joint Fire (e.g., temperature, relative humidity, wind speed, soil Management Plan may be modified to incorporate moisture, flame height) under which fire will accom- new information (e.g., new resources at risk), changes plish those vegetative outcomes. A prescribed fire in vegetative prescriptions, or additional information will be ignited only when the conditions outlined in from adjacent landowners (e.g., NPS, private individ- the prescribed fire plan are met. These include not uals, Indian tribes). only the conditions for the desired vegetative response, but also the necessary resources (staff, en- Minimize Wildland Fire Presence Unit. All wild- gines, aircraft) to ignite and control the prescribed land fires, regardless of ignition source, will receive fire. prompt suppression action commensurate with human safety in all instances. Fire in the Minimize Wildland The AFO will evaluate and approve all prescribed fire Fire Presence Unit presents a threat to such resource plans, paying close attention to cultural resource val- values as structures, recreational use areas, cultural ues (e.g., homesteads, hogans), wilderness values, resources with flammable elements, critical wildlife visual resources, and recreational values within the habitats, and private land. To prevent unacceptable area. Appropriate cultural resources clearances, resource damage and/or loss of life and property, fires special-status species evaluations, and other environ- will generally not be allowed to burn in areas where mental documentation will be required before any public safety and other resource values are at risk. In prescribed fire is initiated. some circumstances, prescribed fires may be used to protect the resource values within these areas by re- Wildland fires will receive an appropriate response ducing fuel loading. Such fires would reduce the risk based on initial and periodic evaluations of public and of catastrophic fires in the future. firefighter safety, current and predicted fire behavior, values at risk, potential damage from suppression The Cerritos de Jaspe and Neck Units are within the activities, and firefighting resource availability. In Minimize Wildland Fire Presence Fire Management some areas, benefits to natural resources may be con- Unit, as are portions of the Spur Unit and the Cebolla sidered. Appropriate Management Response can Wilderness (see Map 2-9). range from intense suppression to monitoring, or combinations of actions as required. Some naturally Wildland Fire Use For Resource Benefits Unit. ignited wildland fires may be managed to accomplish Wildland Fire Use is defined as the management of resource objectives (wildland fire use). The process naturally ignited wildland fires to accomplish specific, for evaluating each new fire and assessing ongoing pre-stated resource management objectives in the pre- wildland fires will be documented in a Wildland Fire defined geographic areas outlined in the Joint El Situation Analysis. The documentation supporting the Malpais Fire Management Plan. Such fires were wildland fire use decision process is known as the previously called “prescribed natural fires.” Wildland Wildland Fire Implementation Plan. Fire Use For Resource Benefits areas are usually

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INSERT MAP 2-9

2-156 Fire Management Chapter 2 located where there are natural fuel breaks (e.g., lava Approved Plan Resource Decisions flows, roads) to help control the fire perimeter, and where limited resources are at risk. A full range of A full range of management techniques (forest and available responses is available to implement protec- woodland, livestock grazing, riparian, fire, and water- tion and fire use objectives–full and aggressive sup- shed) will be used to achieve the potential natural pression to minimize acreage burned; monitoring and community vegetative objectives. holding actions to check or confine spread; monitoring with pre-planned contingency actions; or monitor- Allotment Management Plans/Coordinated Resource ing actions only. Wildland fire and prescribed fire Management Plans (AMPs/CRMPs) prepared for may be used in this unit to benefit such resources as grazing allotments/leases will contain objectives and wildlife/livestock habitat, ponderosa pine habitat, and actions for forestry and woodlands, wildlife, riparian, watershed values, as well as to protect other fire, and watershed management. If monitoring stud- resources such as private property by reducing fuel ies indicate the need, existing plans can be revised, loads. new plans developed, and/or livestock grazing use reduced. The West Malpais Wilderness is the only BLM area identified for Wildland Fire Use For Resource Bene- Prescribed fires and wildland fire use will be used to fits (see Map 2-9). manage fuel loads (hazardous fuel reduction), protect private property, and accomplish potential natural Conditional Wildland Fire Use Unit. The goal of community vegetative objectives, including reducing management of the Conditional Fire Use Unit is to piñon-juniper in potential ponderosa pine habitat. reduce fuels to a more natural range of variability Fires ranging in size from 50 to 1,000 acres each will through approved treatment strategies. The lands in be used each year. Ponderosa seedlings will be this unit contain areas of fuels concentrations that planted on some locations if needed to ensure reestab- could, under high fire danger conditions, potentially lishment. In areas proposed for prescribed fires, pre- threaten resource and other values through unwanted and post-burn rest from grazing will be planned in crownfires. Such localized but significant areas of coordination with the affected allottee(s). unnaturally high stand densities, down and dead surface fuels, and ladder fuels led to this unit’s being To support appropriate animal populations, the AFO designated a high priority fuels management area. will use the two types of fire, prescribed fire and wild- Emphasis will be placed on the application of a combi- land fire use, throughout the Plan Area in a balanced nation of management strategies to accomplish stated approach to maintain and/or enhance wildlife habitats fuels management and resource protection objectives. in the desired vegetative condition. Each wildland fire These strategies include suppressing unwanted wild- use or prescribed fire will be used to accomplish spe- land fires; use of non-fire treatments to achieve fuels cific resource management objectives within a defined management objectives; use of prescribed fires for geographic area. The fires will generally range from resource benefits; and managing naturally ignited 50 to 1,000 acres in size, with an average of 500 wildland fires for resource benefits. acres.

Once the approved fuels treatments are complete, and The environmental impact statement accompanying where objectives have been met, areas within the the Approved El Malpais Plan analyzed the environ- Conditional Fire Use Unit will be assessed for inclu- mental impacts of prescribed fire/wildland fire use on sion in the Wildland Fire Use For Resource Benefits up to 3,000 acres a year. Planned fire use on more Fire Management Unit. than 3,000 acres a year would require further analysis of impacts under the National Environmental Policy The Chain of Craters and Canyons Wilderness Study Act. Areas; most of the Cebolla Wilderness; the Continen- tal Divide, Cerro Brillante, and Brazo Units; and parts Eight well-preserved homesteads have been singled of the Spur and Breaks Units are in the Conditional out as high-priority fire suppression zones. Additional Fire Use Fire Management Unit (see Map 2-9). sites may be added to this list if significant cultural

2-157 Fire Management Chapter 2 resource values are threatened. Reconnaissance-level Criteria for Resolution of RMP Issues surveys looking for sites with flammable materials will be conducted in areas where prescribed fires are pro- One of the criteria used to guide resolution of the Rio posed. Areas proposed for prescribed fires will not Puerco RMP issues remains applicable as guidance for generally be inventoried to Class III standards if they future actions in the Fire Management Program: have low site density (see Map 2-7). Class III inventory will be considered in zones of high site density, • Use of military, fire, emergency, or law enforce- and a cultural resource advisor will be required during ment vehicles being used for emergency pur- fire suppression activities, regardless of the source of poses; vehicles whose use is expressly authorized ignition. Class III inventory will be required for all by the authorized officer, or otherwise officially planned surface-disturbing activities such as construc- approved; vehicles in official use; and combat or tion of fire lines. combat support vehicles when used in times of national defense emergencies is excluded and will Within designated wilderness, vegetation treatments, not be affected by “closed” or “limited” designa- including fire, will be considered on a case-by-case tions. basis under guidance found in the BLM Wilderness Management Policy (USDI, BLM 1981c). Decisions Carried Forward From Previous Planning Fires will be controlled within designated wilderness to prevent their spread outside wilderness and to The following decision from previous planning which prevent the loss of human life or property. Fire sup- was carried forward into the Rio Puerco RMP still pression methods will be those that cause the mini- affects the Fire Management Program for the Plan mum adverse impact on wilderness character. Area:

Criteria for Resolution of • Burn and/or chain 10,000 acres of piñon-juniper El Malpais Plan Issues [in the entire Divide MFP Area] in 50 to 100 acre irregularly-shaped plots. Seed with browse, The following factor which applies to the Fire Man- grass, and forbs. This land treatment will take agement Program was considered in developing precedence over fuelwood management. [See answers to the Vegetation issue questions. This “Decisions From Approved El Malpais Plan, factor will continue to be considered as the El Malpais Prescribed Fire & Wildland Fire Use,” above.] Plan is implemented.

• Vegetative treatments or manipulation methods, Monitoring/Studies including prescribed fire The fire effects monitoring program specified in the Joint El Malpais Fire Management Plan will support Guidance From Rio Puerco RMP BLM-NPS objectives as identified below:

Some of the decisions in the Rio Puerco RMP con- • Through documentation and analysis of fire ef- tinue to be applicable to management of El Malpais fects, verify that Joint Fire Management Plan NCA and adjoining lands. This guidance is listed prescribed fire program objectives are being met. below as “Criteria for Resolution of RMP Issues.” In addition, the RMP carried forward decisions from • Increase knowledge of fire behavior and effects previous planning that still apply to El Malpais. One on ecosystems. of these decisions continues to apply to El Malpais. This decision is listed below under “Decisions Carried • Document base information for all prescribed Forward From Previous Planning.” fires and keep all monitoring information organized and properly backed up.

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• Adhere to standardized data collection techniques and Woodland Resources, Wildlife Habitat, Special- for fire monitoring plots. Status Species, Riparian and Wetland Habitats, Wa- tershed, and Fire Management are all striving to en- • Identify areas where research should be initiated. sure that management of the Plan Area will eventually allow establishment of its Potential Natural Communi- • Follow trends in plant communities as related to ties. As a result, management of these resource pro- fire effects. grams must complement each other. Planning and coordination are the key support factors which will Implementation Priorities ensure that these programs are successful.

• Hazardous fuels reduction projects, including Engineering & Operations prescribed fire and mechanical fuels reduction. The Engineering staff will be needed in support of the • Rangeland management enhancement projects. design and engineering components for prescribed fires. In addition, the Labor/Work Crew could be • Wildlife habitat enhancement projects. needed to support the execution of prescribed fires. Cultural Resources Support Needs Cultural resources inventory will be needed for pre- Rangeland Management scribed fires and all surface-disturbing actions. Forest & Woodland Resources Wildlife Habitat American Indian Consultation Special-Status Species Riparian & Wetland Habitats American Indian consultation will be required for all surface- and vegetation-disturbing actions. Watershed

Many of the AFO resource programs share common goals and objectives. Rangeland Management, Forest

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ized on a case-by-case basis, with mitigation mea- Program Goals sures to protect the resources and values for which the NCA was established. The goals of this program are to continue to acquire land and easements within the Plan Area, to protect The El Malpais Act withdrew the Federal lands (sur- the resources for which the NCA was established, and face and subsurface) in the NCA from “. . . location, to ensure that any rights-of-way or land-use permits entry, and patent under the mining laws, and from issued are consistent with management goals for other operation of the mineral leasing and geothermal leas- resource programs and uses. ing laws and all amendments thereto.” Thus, there will be no development of Federal minerals within the Management Guidance NCA. The Act also provides for the automatic withdrawal of all new acquisitions within the NCA from Policy and Authorities mineral entry and leasing, and from disposal under the public land laws. The Approved Plan recommends The AFO has an active land exchange program. All that Federal lands added to the NCA as the result of exchange proposals are examined in conformance boundary adjustments also be withdrawn. with National Environmental Policy Act requirements, including extensive public review. Land exchanges The AFO will continue to acquire surface and mineral take place under the authority of the Federal Land interests in the NCA, as identified in the Land Protec- Policy and Management Act of 1976 (FLPMA), as tion Plan. There are still approximately 65,000 acres amended by the Federal Land Exchange Facilitation of privately owned mineral interests in the NCA. Act of 1988. Guidance for exchanges is provided in Higher priority will be given to acquiring lands and BLM Manuals 2200 and H-2200-1, and 43 Code of minerals within designated wilderness that are unde- Federal Regulations (CFR) 2200. Guidance for land veloped, or those on which mineral development acquisition is provided in BLM Manuals 2130 to 2136 threatens the area's wilderness character. As private and H-2101-1, and 43 CFR 2100. Leases, easements lands are acquired within the NCA, mineral rights will and permits are directed by BLM Manual 2920 and 43 also be acquired. CFR 2920. Rights-of-way are managed according to the provisions of Section 501of FLPMA, BLM Manu- The use of motorized vehicles and mechanical trans- als 2801, 2805, 2850, 2851, 2880, H-2801-1, and port in designated wilderness will be prohibited, ex- H-2860-1, and 43 CFR 2800. The BLM New Mexico cept in emergency situations and as permitted by law Roads Policy (Instruction Memorandum NM-95-031) for livestock grazing and access to private lands and provides direction for constructing, maintaining, reha- minerals. bilitating, abandoning, and closing roads under BLM jurisdiction. Withdrawals are directed by Section 204 The AFO is required by law to provide such access to of FLPMA, 43 CFR 2300, Departmental Manual 603, private lands, including non-Federal minerals, as is and policies and procedures established by Instruction adequate to secure to the landowner the reasonable Memorandums and Field Solicitor’s opinions. use and enjoyment of non-Federally owned land which is completely surrounded or isolated by public lands Field Office Program Guidance administered under FLPMA. In determining adequate access, the AFO has the discretion to evaluate such things as proposed construction methods and location, None of the public lands within the NCA are subject to consider reasonable alternatives (trails, alternative to disposal, as the El Malpais Act withdraws the area routes, including aerial access, and degree of develop- from all public land laws. The Land Protection Plan: ment), and to establish such reasonable terms and El Malpais National Conservation Area (USDI, BLM conditions as are necessary to protect the public inter- 1989b) provides the basic framework for acquiring est. Reasonable use and enjoyment need not neces- surface and mineral interests within the NCA. Rights- sarily require the highest degree of access, but rather of-way and land-use permit applications are author-

2-161 Lands and Realty Chapter 2 could be some lesser degree of reasonable access. ized only if no alternatives exist, and if mitigation The AFO, however, must provide a degree of access measures can ensure protection of the scenic quality, that is commensurate with the reasonable use and and natural and cultural values of the Plan Area. The enjoyment of the non-Federal land. The AFO must AFO will conduct compliance inspections on all also consider such things as a landowner’s options to rights-of-way and land-use permits. develop new access over non-Federal or public lands. The AFO will inform proponents of major rights-of- If an owner of private mineral interests within wilder- way adjacent to the Plan Area of the legislative re- ness wishes to develop them, the AFO will work to quirements for protection of the scenic quality, and provide reasonable access and development opportu- cultural and natural resources of the NCA. The AFO nities with the briefest impacts on wilderness charac- will oppose major rights-of-way proposals on lands ter. Likewise, if an owner of private mineral interests adjacent to the Plan Area if they would adversely within the Canyons Wilderness Study Area (WSA) impact the area's viewshed. In such situations, the wishes to develop them, the AFO will work to pro- AFO will work with proponents to find alternative vide reasonable access and development opportunities routes and develop appropriate mitigation. with the least impairment to the area’s suitability for designation as wilderness. There are no private min- Raptor protection will be implemented by requiring all erals within the Chain of Craters WSA. new powerlines to be built to "electrocution-proof" specifications. To avoid collisions with powerlines by In accordance with the El Malpais Act, the American migrating birds, the mitigating measures identified by Indian people recognized as using the NCA are en- the Avian Power Line Interaction Committee (1994) sured access for traditional uses and cultural purposes. will be incorporated into all new powerlines. Existing Such access must be consistent with the American lines that are identified as causing electrocution and/or Indian Religious Freedom Act and the Wilderness collision problems may also be modified where feasi- Act. On request, the AFO will temporarily close the ble. smallest practicable area for the minimum period of time needed to accommodate such religious activities. The goals and strategies identified in the Partners Written notification of such action must be provided Against Weeds action plan for BLM (USDI, BLM to the Energy and Natural Resources Committee of 1996a) will be implemented as needed to help prevent the Senate, and to the Interior and Insular Affairs the introduction or spread of noxious weeds in the Committee of the House, within seven days after AFO. These preventative measures will be applied to initiation of any such closure. AFO actions such as road maintenance and rights-of- way. Major new rights-of-way will be discouraged, and use of existing rights-of-way (including joint use when- Throughout the Plan Area, the AFO will continue to ever possible) will be promoted. When expansions or coordinate riparian/wetland habitat management with realignments are proposed, the AFO will work closely other programs and activities, including Lands, with the rights-of-way holders, especially State and Rangeland Resources, Wildlife, Watershed, and Rec- county transportation departments and utilities, to reation. Riparian habitat values will be addressed for develop appropriate mitigation. Such measures will all surface- and vegetation-disturbing actions. be designed to protect the scenic quality and natural and cultural values of the Plan Area, and to ensure Decisions From Approved visitor safety. El Malpais Plan When new construction is needed, the AFO will identify the least damaging routes and locations, working The Plan recommends that 24,200 acres in the Brazo closely with private landowners in areas of mixed Non-NCA and Breaks Non-NCA Units within the ownership. New construction for roads, pipelines, Plan Area but outside the NCA boundary be added to powerlines, and communication sites will be author- the NCA. The Plan also recommends that a total of

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17,100 acres outside the Plan Area but contiguous to of T. 5 N., R. 11 W., sec. 3 and T. 6 N., R. 11 W., its boundary, in the Continental Divide-AFO Unit, the sec. 34). All other acquisition recommendations were Tank Canyon-SFO Unit, and the Techado Mesa-SFO carried forward from the Land Protection Plan. Unit, be added to the NCA (see Table 1-1 and Map 2-10). The total acreage, both within and outside the Within designated wilderness, the AFO will continue Plan area, recommended for addition to the NCA is to seek acquisition of mineral interests and approxi- 41,300 acres (38,900 acres of Federal land and 2,400 mately 800 acres of surface inholdings, 300 acres acres of private land). These parcels within Cibola, within the Cebolla Wilderness and 500 acres within Socorro, and Catron Counties are contiguous to and a the West Malpais Wilderness from willing sellers. logical extension of the NCA. The AFO would ac- Priority will be given to those lands that are undevel- quire inholdings if owners were willing, with exchange oped or where use, including mineral development, being the preferred acquisition method. Adjustments would pose a threat to wilderness character. These to the NCA boundary can be made only through legis- lands will be managed as wilderness, if acquired. lation. The AFO will withdraw from mineral entry and the public land laws any new Federal lands added In areas of major archeological or historic values to the NCA as the result of boundary adjustments if within or adjacent to public land, the AFO will seek the legislation authorizing the boundary adjustment legal access easements across key parcels of private does not automatically withdraw the land. land. The AFO will also attempt to consolidate ownership by purchase or exchange from willing sellers in At the request of Acoma Pueblo, the Approved El these areas. Malpais Plan recommends that Congress amend the NCA boundary to exclude 960 acres of Acoma lands The AFO will continue to seek to acquire scenic or currently within the NCA in the Spur Unit and the conservation easements along Federal, State, and Cebolla Wilderness. This recommendation includes county roads passing through the Plan Area to pre- several parcels totaling 800 acres between NM 117 vent the views along these roads from being ob- and the National Monument boundary, and 160 acres structed or degraded by developments. within the Cebolla Wilderness (T. 7 N., R. 10 W., sec. 12) recently acquired by Acoma Pueblo (see Map The AFO will close the 2-mile-long two-track road 2-10). This latter parcel, which is adjacent to other leading into the Cebolla Canyon Community. Other Acoma lands, consists of aboriginal lands that have access routes not identified for closure elsewhere in recurring value to the Acoma people. this Plan can be closed if this were essential for resource protection. The Plan also recommends that Congress modify the boundary of the Cebolla Wilderness to include some Pending decisions from Congress, the AFO will man- newly acquired lands contiguous to the current wil- age the Breaks and Brazo Non-NCA Units [within the derness boundary (an increase of approximately 4,000 Plan Area] in accordance with provisions of this Plan. acres). The areas recommended for addition to the The Continental Divide-AFO Unit [outside the Plan Cebolla Wilderness are now known as the Canyons Area] will continue to be managed under the Rio WSA (see Map 2-6). Until all or portions of the Can- Puerco RMP, as would any lands acquired within the yons WSA are either designated by Congress as wil- Cerro Brillante-AFO Unit. The AFO will complete a derness or released from wilderness study, it will short-term withdrawal from the public land and miner- remain in WSA status and be managed under the als laws on all public lands within the Breaks and Interim Management Policy (USDI, BLM 1995). Brazo Non-NCA Units.

The Plan recommends two acquisitions in areas not The Techado Mesa-SFO and Tank Canyon-SFO Units covered by the Land Protection Plan: (1) acquisition will continue to be managed under the Socorro RMP. of a treadway for the Continental Divide National [The Socorro RMP is currently being amended. The Scenic Trail by easement, exchange, or purchase in uses proposed by the El Malpais Plan for the units the Cerro Brillante-AFO Unit, if owners were willing; managed by the SFO, including withdrawal from the and (2) acquisition of a 160-acre parcel in the Breaks public land and minerals laws, will be considered in Non-NCA Unit that includes an early twentieth-cen- some of the alternatives.] tury historic ruin with interpretive potential (portions

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INSERT MAP 2-10

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Criteria for Resolution of quirements found in 43 CFR 3809, as amended El Malpais Plan Issues on March 2, 1983. • Use of military, fire, emergency, or law enforce- The following factors were considered in developing ment vehicles being used for emergency pur- answers to the Boundary and Land Ownership Ad- poses; vehicles whose use is expressly authorized justments issue questions. These factors will continue by the authorized officer, or otherwise officially to be considered as the El Malpais Plan is imple- approved; vehicles in official use; and combat or mented. combat support vehicles when used in times of national defense emergencies is excluded and will • Resource values that exist on lands within and not be affected by “closed” or “limited” designa- adjacent to the NCA tions. • Concerns of local communities, governments, and private landowners Implementation Guidance from RMP

• The land ownership pattern Acquisitions. It is not feasible to identify all of the State and private lands whose acquisition would benefit AFO resource management programs. As they are Guidance From Rio Puerco RMP identified in the future, their acquisition will be examined through the National Environmental Policy Act Some of the decisions in the Rio Puerco RMP con- (NEPA) process, including full public involvement. tinue to be applicable to management of El Malpais As long as any future ownership adjustments conform NCA and adjoining lands. This guidance is listed to the theme of the approved RMP, such actions will below as “Criteria for Resolution of RMP Issues” and be considered consistent with the RMP. “Implementation Guidance From RMP.” In addition, the RMP carried forward decisions from previous Exchanges. After an exchange is initiated with an planning that still apply to El Malpais. These deci- interested party, the AFO must determine whether the sions are listed under “Decisions Carried Forward exchange is in the public interest. If this is found to From Previous Planning.” be the case, a NEPA document will be prepared, including detailed inventories of the public land for Criteria for Resolution of RMP Issues cultural resources, and threatened, endangered, or rare species. An appraisal of both parcels will be Four of the criteria used to guide resolution of the completed to ensure that economic values of the lands RMP issues remain applicable as management guid- are equal and a cadastral survey of the parcels will be ance for future actions in the Lands and Realty Pro- completed if necessary. The conveyance documents gram: will be prepared, including any patent reservations to protect valid existing rights such as rights-of-way. • Where possible, public lands identified for dis- Grazing allottees will be given a two-year notice of posal will be exchanged for non-Federal lands cancellation of their grazing licenses. After a final that have been identified for acquisition to en- exchange agreement is reached, the titles to the land hance BLM resource management programs. will be exchanged.

• OHV use performed in conformance with existing Exchanges are slow, complex processes. Land own- leases, permits, rights-of-way stipulations, or ership adjustment is considered to be a long-term other land-use authorizations will not be re- program. stricted. Public Land Withdrawals. It is the policy of the • OHV use related to mining claim operations will BLM to keep the public lands open for public use and not be restricted, except by regulations and re- enjoyment. However, there are conditions which

2-165 Lands and Realty Chapter 2 warrant the removal or withdrawal of certain public is the primary use. A right-of-way corridor was des- lands from general use. Through withdrawal of these ignated through sections of Cibola County just north public lands, public safety is guaranteed or integrity of of the Neck Unit by the Divide Management Frame- special uses is assured. The other typical use of min- work Plan (USDI, BLM 1983) and carried forward eral withdrawals in the AFO is to protect values with- into the Rio Puerco RMP. The right-of-way corridor in Special Management Areas. is the preferred location for future transmission line placements in the Grants area. Indian Land Claims. Acoma Pueblo has expressed interest in acquiring certain tracts of public land be- Transportation Management Plan. The AFO will cause of aboriginal use or for the purpose of improv- prepare a Transportation Management Plan. This ing their economy. Such tracts can be transferred to Plan will identify the specific transportation manage- pueblos and tribes through land exchanges, sales, or ment actions to be implemented to accomplish the direct transfers via Congressional legislation. The objectives of the RMP and its amendments, including BLM cannot support direct transfers without consid- the Approved El Malpais Plan. The AFO road inven- ering the resource values lost to the general public. tory (USDI, BLM 1996c) will be incorporated into Consequently, a land exchange is usually the preferred the Transportation Management Plan and will be method of transfer since resource values that will updated as new information becomes available. In benefit the general public will be replaced. Less desir- addition, access, transportation, and rights-of-way able than an exchange, but more favorable than a needs will be incorporated into the Transportation direct transfer, is a public land sale since sale at least Management Plan. Priorities for implementation of benefits the general public by returning the money the Transportation Management Plan will be specified collected from the sale to the “Federal Land Disposal in the annual RMP Update document. All NEPA Account” in the United States Treasury. This ap- requirements will be complied with prior to imple- proach is not only consistent with FLPMA, but it also menting specific actions. agrees with the Indian Land Consolidation Act of 1983 (96 Stat. 25156). When an Indian exchange or Decisions Carried Forward from sale proposal is determined to be in the public interest, Previous Planning then a cooperative agreement may be used to aid in implementing the proposal. The following decisions from previous planning which were carried forward into the Rio Puerco RMP still Rights-of-Way. The AFO grants rights-of-way, affect the Lands and Realty Program for the Plan leases, and permits to qualified individuals, businesses, Area: and governmental entities for the use of the public lands. These rights-of-way are issued so as to protect • Establish a north-south right-of-way corridor for natural and cultural resources associated with the future ROW needs, which will follow the two public lands and adjacent lands. Rights-of-way are existing Tucson Power and Electric 345 kV lines. issued to promote the maximum utilization of existing [This ROW corridor designated by the Socorro rights-of-way, including joint use whenever possible. District was carried forward into the AFO by the All right-of-way actions are coordinated, to the fullest Rio Puerco RMP. It is shown on Map 20 in the extent possible, with Federal, State and local govern- RMP and parallels Interstate 40 just north of the ment agencies, adjacent land owners, and interested Neck Unit of the NCA. The right-of-way corri- individuals and groups. All right-of-way applications dor is the preferred location for future transmis- are analyzed on a case-by-case basis. sion line placements in the Grants area.] Rights-of-way corridors are designated to prevent • Retain all public lands with a B or higher Recre- haphazard right-of-way placement and reduce adverse ation Inventory System (RIS) rating in public environmental impacts. Designated corridors also ownership, specifically within El Malpais. [In decrease the repeated analysis of alternative routes compliance with the El Malpais Act, all lands during the environmental analysis process. Consoli- within El Malpais NCA will be retained in public dating rights-of-way also assists utility companies by ownership.] providing an area in which transmission line placement

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• Acquire private lands in Cebollita Canyon and way diminish the rights of non-Federal landowners. begin a stabilization, interpretation, and surveil- The Federal government has no control over legal lance program of cultural resources in the can- uses of private lands within the NCA, even those uses yon. [The private lands listed for this Divide considered to be incompatible, except of course, Management Framework Plan decision, except where the government has acquired a scenic or con- for a small residential area, have all been ac- servation easement. It is the intent of Congress that quired by Acoma Pueblo. This decision can no when private land within the NCA needs to be ac- longer be implemented.] quired, it should be acquired only with the consent of the property owner, unless there is an imminent threat • Acquire through exchange the riparian/wetland that the land is to be developed in a manner that habitat, specifically Cebolla Spring and Laguna would be detrimental to the purposes for which the Americana. [Both have been acquired.] NCA was established.

• Attempt to acquire private lands within sensitive As authorized by Sections 502 through 506 of the areas in Big Hole-in-the-Wall and Chain of Crat- Act, the AFO will acquire lands or interests in lands ers. [This action has been accomplished.] (i.e., mineral estate and conservation or scenic easements) by the following methods: (1) donation, (2) • Attempt to acquire through a Bureau motion purchase with donated or appropriated funds, (3) exchange process, the private and State lands in exchanges, and (4) transfer from any other Federal the Chain of Craters area. Establishment of total agency. Cooperative agreements and covenants may estates (surface and subsurface) will be a priority also be utilized for protection of privately owned for the lands identified for acquisition by ex- resources. change. [This action has been accomplished.] The following priorities for land protection and/or ac- Guidance from El Malpais NCA quisition were identified. Immediate threats by private uses to lands containing important natural and/or cul- Land Protection Plan tural resources could cause a shift in priorities. In addition, these priorities may be pursued concurrently as The Land Protection Plan (USDI, BLM 1989b) calls funding is available. Other opportunities for protect- for a combination of land protection methods to be ing resources on private lands through cooperative used to protect NCA resources on private lands. The agreements or technical assistance have not been iden- recommendations in the Land tified as priorities, but will be pursued as appropriate. Protection Plan are based on the legislative intent and Priorities and Rationale direction established by the El Malpais Act which re- 1. The first priority for acquisition, preferably by quires the AFO to pro- exchange, includes all subsurface private interests tect important natural, within the NCA (see Map 2-11). Mineral develop- cultural, and scenic val- ment anywhere within the boundaries of the NCA is ues within the designated incompatible with the Congressionally mandated goals boundaries of the NCA, and purposes of the NCA. Federal minerals were but does not direct the withdrawn by the El Malpais Act and acquisition of AFO to consolidate all private minerals would provide the same protection to land within the the non-Federal parcels. NCA in Federal ownership. It [Minerals have been acquired through exchanges and should be stressed fee acquisition from the principal subsurface land- that the recom- owners, New Mexico and Arizona Land Company mendations of the (NZ) and Cerrillos Land Company (Santa Fe Pacific Land Protection Minerals Corporation). Approximately 65,000 acres Plan do not in any of private minerals remain in the NCA.]

2-167 Lands and Realty Chapter 2

2. The second priority for acquisition, preferably by [While no easements have been acquired, several exchange, includes all private inholdings and edge purchases of surface estate have been completed holdings within and adjacent to the Cebolla Wilder- under this priority.] ness and most inholdings and one edge holding adjacent to the West Malpais Wilderness (see Map 2-12). 4. The fourth priority would be the Acoma Exchange, Most edge holdings to the West Malpais Wilderness if initiated by the Pueblo of Acoma. This exchange is are not included due to the presence of major range mandated by the El Malpais Act if requested by the improvements. The Chain-of-Craters WSA contains Pueblo of Acoma. no private surface; therefore, no acquisition is needed. [The Pueblo of Acoma has chosen not to pursue this Intensification of use on private land within wilderness exchange. The Approved El Malpais Plan recom- areas is incompatible with the goals and purposes for mends that this area be excluded from the NCA.] which Congress designated the wildernesses. Acquisi- tion of the private inholdings would prevent any such 5. The fifth priority for acquisition is lands containing change in land use and improve the manageability of natural and/or cultural resources requiring manage- the wildernesses. Acquisition of the edge holdings ment or protection, and/or lands needed for visitor would provide access into the wilderness areas. Espe- access and facility development. cially important is acquisition of private edge holdings (to the Cebolla Wilderness) in the Breaks Manage- For those areas where private uses are incompatible ment Unit which provide access into the Cebolla Wil- with NCA goals and purposes, or where important derness. Acquisition and rehabilitation of Cebolla resources are on private land, acquisition may be the Spring and the Cebolla Spring riparian area in the only feasible means of protection. However, other Cebolla Wilderness and the Brazo and Breaks Man- options, such as cooperative agreements and ease- agement Units would ensure protection of a critical ments, may be explored. Exchange will be the pre- riparian area. The private portion of the Pinole Site in ferred method of acquisition. the Breaks Management Unit would be acquired under this priority. The “Old Hughes Place,” a historic All private inholdings in the Brazo and Breaks Man- homestead in the Brazo Unit, may merit preservation. agement Units should be acquired. Cebolla Spring, the Pinole Site, and the “Old Hughes Place” were [The majority of the lands in this priority have been discussed above under Priority 2 as part of acquisition acquired. However, one edge holding to the West of edge holdings to the Cebolla Wilderness. Malpais Wilderness still remains as an acquisition priority. All private lands within the Breaks Manage- [All private lands within the Breaks Management ment Unit have been acquired except for 22 acres. Unit have been acquired except for 22 acres. Nine Four edge holding parcels remain for acquisition in scattered small parcels remain for acquisition in the the Brazo Management Unit. Cebolla Spring, the Brazo Management Unit.] Cebolla Spring riparian area, and the Pinole Site have been acquired.] In the Cerritos de Jaspe Management Unit, the trailhead for the Outlaw Trail is on private land, as is part 3. The third priority is acquisition of scenic and/or of the Bandera Flow. Extremely destructive unscien- conservation easements along the Federal, State, and tific excavation of cultural resources has occurred on County highways passing through the NCA (see Map private land in this unit. The AFO would acquire 2-12). under this priority any private land in Cerritos de Jaspe shown on Map 2-12 offered by owners. Commercial development and visual intrusions along the roadways (e.g., installation of billboards) are in- [About 850 acres in the Cerritos de Jaspe Manage- compatible with the goals and purposes of the NCA. ment Unit have been acquired under this priority.] Protection of the viewshed along NM 117 in the Neck Management Unit, the scenic gateway to the NCA, is Surface inholdings owned by the New Mexico- most important, followed by Interstate 40 in the Neck, Arizona Land Company in the Continental Divide NM 53 in the Neck, and portions of CR 42 in the Management Unit, as well as private land owned by Continental Divide Management Unit. any other willing sellers, would be acquired under this

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INSERT MAP 2-11 (11 X 17)

2-169 Lands and Realty Chapter 2

INSERT MAP 2-11 CON’T (11 X 17)

2-170 Lands and Realty Chapter 2

Insert Map 2-12

2-171 Lands and Realty Chapter 2 cont fold out map 2-12

2-172 Lands and Realty Chapter 2 priority if shown on Map 2-12. The AFO does not [The AFO has acquired a small amount of land under plan to acquire lands in the heavily subdivided areas of this priority.] the Continental Divide Unit. Acquisition of other private inholdings in the Continental Divide Manage- Monitoring/Studies ment Unit may be proposed by the General Manage- ment Plan. Monitoring studies for the Lands and Realty Program consist primarily of compliance checks and inspec- [New Mexico-Arizona Land Company has sold all or tions. Land-use permit sites are checked to ensure most of their surface inholdings in the Continental adherence to permit terms and conditions. Rights-of- Divide Unit to private individuals. No further acqui- way are inspected for proof of construction or relin- sitions in the Continental Divide Unit were proposed quishment. Unauthorized land uses are also inspected by the Approved El Malpais Plan.] by this program to ensure cessation of unauthorized activities and ensure that prescribed reclamation pro- As historic structures become available in the NCA, cedures, where required, are followed. they will be evaluated for historic and architectural value for adaptive use. Implementation Priorities 6. The sixth priority is protection of private lands and resources within the NCA to benefit resources within The implementation priorities listed below may El Malpais National Monument (see Map 2-12). change due to funding allocations, changes in policy, new directives, and staffing. Any development visible from CR 42 in the Continen- tal Divide Management Unit would intrude on the • Acquire the identified private land, minerals, and natural scenic quality of the National Monument. easements located in El Malpais NCA. Exchange Acquisition of scenic or conservation easements along is the preferred means of acquisition. CR 42 would protect the viewshed in the National Monument. • Process public land and mineral withdrawal for all public land within the non-NCA units in AFO. [While no easements have been acquired, several purchases of surface estate completed under Priority • Process land-use permit applications as received. 3 also benefit El Malpais National Monument.] • Process right-of-way applications as received. Proliferation of access roads into the subdivided areas within and west of the Continental Divide Manage- • Perform compliance checks as needed. ment Unit in the NCA would also intrude on the natural scenic quality of the National Monument. The Support Needs AFO and NPS will work with Cibola County and landowners to limit the number of access roads across the National Monument and NCA, while still provid- Cadastral Survey ing access from outside the NCA and National Monu- ment. It is likely that support to the Lands Program from the Cadastral Survey Program will be identified. 7. The seventh priority is lands where there is no immediate threat to natural or cultural resources. Hazardous Materials

As lands become available in these other areas, they Support from the Hazardous Materials Management will be evaluated for their suitability for acquisition. Program is necessary for all land exchanges and Only exchange and sales proposals from private land- acquisitions. owners that are in the best interest of the Federal government and that meet the goals and purposes of the NCA will be pursued.

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Cultural Resources Appraisals

Support from the Cultural Resources Program is Appraisals are needed for all land acquisitions, ease- required for all surface-disturbing actions, as well as ments, exchanges, and purchases. for land exchanges. Engineering & Operations American Indian Consultation Support from the Engineering and Operations Pro- American Indian consultation is required for all grams is needed for construction of new BLM roads surface-disturbing actions, as well as for land ex- and for the right-of-way program. changes. Soil, Water, & Air Resources Special-Status Species Support from the Soil, Water, and Air Resources Consideration of special-status species is required for Program is needed for land exchanges and for rights- all surface-disturbing actions, as well as for land ex- of-way. changes.

Minerals

The Minerals Program prepares a mineral report for all exchanges and mineral acquisitions.

2-174 GEOLOGY & PALEONTOLOGY

Program Goals have been developed for several programs; these are not all-inclusive or final. A potential theme for the Geology Program is: The goal of the Geology and Paleontology Programs is to protect important, environmentally sensitive • Visitors should be informed of significant geo- geologic and paleontological resources while allowing logic features and the physical processes that scientific collection and research, recreational and produced them. hobby collecting, and educational and interpretive activities. Decisions From Approved Management Guidance El Malpais Plan

Policy and Authorities AFO will enter into agreements with appropriate institutions to conduct research on La Rendija The geologic and paleontological resources of the (Maxwell's Fault) and other areas of geologic and Plan Area are protected by the Antiquities Act of paleontological interest. 1906, the Federal Land Policy and Management Act of 1976, and the Archeological Resources Protection Guidance From Rio Puerco RMP Act of 1979. The El Malpais Act does not specifically address geologic or paleontological resources, but Some of the decisions in the Rio Puerco RMP con- does address the protection of scientific resources. tinue to be applicable to management of the geologic and paleontological resources in El Malpais NCA and Field Office Program Guidance adjoining lands. This guidance is listed below as “Criteria for Resolution of RMP Issues” and “Imple- In areas where potentially important geologic values mentation Guidance From RMP.” In addition, the or fossils may be involved, the AFO will evaluate all RMP carried forward decisions from previous plan- permit applications for scientific study and develop ning that still apply to El Malpais. These decisions are appropriate stipulations for resource protection. listed under “Decisions Carried Forward From Previ- ous Planning.” Participation in the formulation of activity plans is an integral part of managing geologic and paleontological Criteria for Resolution of RMP Issues resource values. Proposed actions from AFO land- use programs will be reviewed, and permit applica- Two of the criteria used to guide resolution of the Rio tions will be processed as received. Puerco RMP issues remain applicable as guidance for future actions in the Geology and Paleontology Pro- The AFO will develop appropriate interpretive materi- grams: als to explain the significance of the special geologic features of the Plan Area, such as the Chain of Cra- • Designation of OHV use will consider protection ters, the cliffs at The Narrows, La Ventana Natural of resources such as . . . cultural resource values Arch, Cerro Rendija, Hole-in-the-Wall, and Cerritos . . . and other resource uses. [Paleontological de Jaspe. and geologic resources will be considered under this criterion.] Interpretive wayside exhibits that emphasize area geology, wilderness, and wilderness use ethics will be • Fuelwood will not be made available in areas developed at La Ventana Natural Arch. where harvesting would degrade or disturb . . . cultural [or] historic . . . values of the area. Interpretive objectives (themes) will be developed for [Paleontological and geologic values will be each resource whose management can be assisted considered under this criterion.] through visitor education efforts. Potential themes

2-175 Geology & Paleontology Chapter 2

Implementation Guidance From RMP Implementation Priorities

Develop activity plans which carry out the objectives As a practical matter, demand-driven actions receive of this Plan for the protection of those geologic or high priority. Individual projects which could affect paleontological resources considered to be of signifi- areas with significant fossils or geologic values will cant scientific interest. continue to receive priority consistent with the priority of the individual projects proposed by the various Review proposed actions from AFO land-use pro- AFO resource programs. grams to avoid or mitigate impacts to scientifically significant geologic and paleontological resources. Review actions proposed by AFO land-use programs to avoid or mitigate impacts to scientifically signifi- Evaluate all permit applications both for mineral ex- cant geologic and paleontological resources. traction and for scientific study in areas where significant fossils or geologic values may be involved, and Evaluate all permit applications both for mineral ex- develop appropriate stipulations for resource protec- traction and for scientific study in areas where signifi- tion. cant fossils or geologic values may be involved, and develop appropriate stipulations for resource protec- Decisions Carried Forward From tion. Previous Planning Develop interpretive wayside exhibits that emphasize The following decision applicable to management of area geology, wilderness, and wilderness use ethics at geologic resources was carried forward into the Rio La Ventana Natural Arch. Puerco RMP from a previous planning document: Support Needs • Complete a descriptive brochure and interpretive areas for each quality geologic feature in the Di- Support would be needed from the interdisciplinary vide Planning Area: El Malpais lava flow and staff of resource specialists in the processing of any Chain of Craters. [Pamphlets are now available geologic or paleontological research/collecting appli- for Chain of Craters; the El Malpais lava flow is cation received. within El Malpais National Monument.] Interpretation/Public Education Monitoring/Studies The Interpretation/Public Education Program will The AFO will conduct compliance inspections on all support the Geology Program in developing interpre- activities involving valuable geologic and paleonto- tive materials to explain the significance of the special logical resources. geologic features of the Plan Area, as well as in developing interpretive material emphasizing area geology for wayside exhibits at La Ventana Natural Arch.

2-176 MINERAL RESOURCES

the public lands (surface and subsurface) in the NCA Program Goals from “. . . location, entry, and patent under the mining laws, and from operation of the mineral leasing and The goal of the Mineral Resources Program is to geothermal leasing laws and all amendments thereto.” make mineral resources available for development Thus, there will be no development of Federal miner- while minimizing environmental damage and protect- als within the NCA. The Act also provides for the ing sensitive and special areas. automatic withdrawal of all new acquisitions within the NCA from mineral entry and leasing, and from Management Guidance disposal under the public land laws. The Approved Plan recommends that Federal lands added to the Policy and Authorities NCA as the result of boundary adjustments also be withdrawn. The Federal minerals in El Malpais NCA are managed under the authority of the El Malpais Act, and were No discretionary development of Federal minerals will withdrawn from mineral entry and leasing by the Act. be authorized within the non-NCA portion of the Plan Newly acquired minerals within the NCA are auto- Area (the Brazo and Breaks Non-NCA Units). The matically withdrawn by the Act. The Federal minerals AFO will comply with the 43 CFR 3809 regulations in the remainder of the Plan Area (the Brazo and for non-discretionary actions related to development Breaks Non-NCA Units), as well as those outside the of Federal minerals in the Brazo and Breaks Non- Plan Area (the Continental Divide Non-NCA Unit) NCA Units until the short-term withdrawal called for are covered by the following acts: Mining Law of by the Approved Plan can be implemented. Likewise, 1872, as amended; Mineral Leasing Act of 1920, as no discretionary development of Federal minerals will amended; Minerals Materials Act of 1947; Multiple be authorized in the units outside the Plan Area (the Mineral Development Act of 1954; Federal Land Continental Divide-AFO Unit, as well as the Cerro Policy and Management Act of 1976; Surface Mining Brillante-AFO Unit, if any minerals are acquired by Control and Reclamation Act of 1977; and Depart- the Federal government in the Cerro Brillante Unit). ment of Energy Organization Act of 1977. The AFO will continue to acquire mineral interests in Development of Federal minerals underlying the lands the NCA (see the Lands and Realty section). There outside the NCA but within the Plan Area would be are still approximately 65,000 acres of privately covered by the following regulations and BLM man- owned mineral interests in the NCA. As private lands ual sections: 43 Code of Federal Regulations (CFR)/ are acquired within the NCA, mineral rights will also BLM Manual 3100–Oil and Gas Leasing Operations; be acquired. 43 CFR/BLM Manual 3200–Geothermal Resource Leasing and Operations; 43 CFR/BLM Manual The use of motorized vehicles and mechanical trans- 3400–Coal Management; 43 CFR/BLM Manual port in designated wilderness will be prohibited, ex- 3500–Management of Solid Minerals other than Coal; cept in emergency situations and as permitted by law 43 CFR/BLM Manual 3600–Mineral Materials Dis- for livestock grazing and access to private lands and posal; 43 CFR/BLM Manual 3800–Mining Claims minerals. under the General Mining Law. The AFO is required by law to provide such access to The AFO is responsible for management of Federal non-Federal lands, including non-Federal minerals, as minerals on split-estate lands and Federal minerals is adequate to secure to the landowner the reasonable where the surface is administered by another Federal use and enjoyment of non-Federally owned land which agency. is completely surrounded or isolated by public lands administered under FLPMA. In determining adequate Field Office Program Guidance access, the AFO has the discretion to evaluate such things as proposed construction methods and location, to consider reasonable alternatives (trails, alternative The AFO will protect the resources for which the routes, including aerial access, and degree of develop- NCA was established. The El Malpais Act withdrew

2-177 Mineral Resources Chapter 2 ment), and to establish such reasonable terms and given to those lands that are undeveloped or where conditions as are necessary to protect the public inter- use would pose a detrimental threat to wilderness est. Reasonable use and enjoyment need not neces- character. sarily require the highest degree of access, but rather could be some lesser degree of reasonable access. Until all or portions of the new Canyons WSA is The AFO, however, must provide a degree of access either designated by Congress as wilderness or re- that is commensurate with the reasonable use and leased from wilderness study, it will remain in WSA enjoyment of the non-Federal land. The AFO must status and be managed under the Interim Management also consider such things as a landowner’s options to Policy, except as applied to minerals. [This exception develop new access over non-Federal or public lands. for minerals does not apply at this time since all Federal minerals within the NCA have been automat- If an owner of private mineral interests within wilder- ically withdrawn by the El Malpais Act, and the one ness wishes to develop them, the AFO will work to tract of the Canyons WSA that is outside the NCA provide reasonable access and development opportu- boundary is underlain by private minerals. However, nities with the briefest impacts on wilderness if the minerals under that tract are acquired before character. Congress amends the boundary or designates the parcel as wilderness, the exception would apply and Until Congress decides on the Approved Plan's wil- the minerals would be managed under the 43 CFR derness suitability recommendations, the Chain of 3802 regulations until the short-term withdrawal Craters and Canyons Wilderness Study Areas (WSAs) called for by the Approved Plan could be imple- will be managed under the BLM Interim Management mented.] Policy (USDI, BLM 1995). There are no privately owned minerals in the Chain of Craters WSA, while Pending decisions from Congress, the AFO will man- ownership of minerals is a mixture of Federal and age the Breaks and Brazo Non-NCA Units [within the private in the Canyons WSA. As in the rest of the Plan Area] in accordance with provisions of this Plan. NCA, the Federal minerals in the WSAs were auto- The Continental Divide-AFO Unit [outside the Plan matically withdrawn from the mining and mineral Area] will continue to be managed under the Rio leasing laws by the El Malpais Act. If an owner of Puerco RMP, as would any lands acquired within the private mineral interests within the Canyons WSA Cerro Brillante-AFO Unit. The AFO will complete a wishes to develop them, the AFO will work to pro- short-term withdrawal from the public land and miner- vide reasonable access and development opportunities als laws on all public lands within the Breaks and with the least impairment to the area’s suitability for Brazo Non-NCA Units. designation as wilderness. The Techado Mesa-SFO and Tank Canyon-SFO Units The goals and strategies identified in the Partners will continue to be managed under the Socorro RMP. Against Weeds action plan for BLM (USDI, BLM The Socorro RMP is currently being amended. The 1996a) will be implemented as needed to help prevent uses proposed by the El Malpais Plan for the units the introduction or spread of noxious weeds in the managed by the SFO, including withdrawal from the AFO. These preventative measures will be applied to public land and minerals laws, will be considered in AFO-authorized actions such as oil and gas activities. some of the alternatives.

Decisions From Approved Guidance From Rio Puerco RMP El Malpais Plan The RMP minerals management prescriptions were superseded by the El Malpais Act for Federal minerals The AFO will withdraw any new Federal lands added within El Malpais NCA. However, some of the deci- to the NCA as the result of boundary adjustments [if sions in the Rio Puerco RMP continue to be applica- the legislation authorizing the boundary adjustment ble to management of the Brazo Non-NCA Unit, does not automatically withdraw the lands]. Breaks Non-NCA Unit, and Continental Divide-AFO Unit. There are no public minerals in the Cerro The AFO will seek to acquire all subsurface (mineral) Brillante-AFO Unit. This guidance is listed below as interests within designated wilderness. Priority will be

2-178 Mineral Resources Chapter 2

“Criteria for Resolution of RMP Issues” and “Imple- withdrawal can be implemented, all public land (in- mentation Guidance From RMP.” cluding the Breaks and Brazo non-NCA Units) is open to mineral entry and development unless previ- Criteria for Resolution of RMP Issues ously withdrawn. Mineral exploration and development on public land are regulated under 43 CFR 3800 Two of the criteria used to guide resolution of the Rio to prevent unnecessary and undue degradation of the Puerco RMP issues remain applicable as guidance for land. future actions in the Mineral Resources Management Program: Monitoring/Studies

• OHV use related to mining claim operations will The AFO conducts surface compliance inspections on not be restricted, except by regulations and re- all mineral development activities. quirements found in 43 CFR 3809, as amended.

• OHV use performed in conformance with existing Implementation Priorities leases, permits, rights-of-way stipulations, or other land-use authorizations will not be re- Mineral development activities are driven by public stricted. demand.

Implementation Guidance From RMP Support Needs

The El Malpais Act automatically withdrew all Fed- Support from the interdisciplinary staff of resource eral minerals within the NCA from the mining and specialists would be needed in the processing of any mineral leasing laws. The Approved El Malpais Plan mineral development application received. calls for a short-term withdrawal from the public lands and minerals laws for all public land within the Breaks Lands and Realty and Brazo Non-NCA Units. While no discretionary development of Federal minerals within the Brazo or The Lands Program will implement the short-term Breaks Non-NCA Units will be authorized before the withdrawal called for by the Approved Plan.

2-179 2-180 HAZARDOUS MATERIALS MANAGEMENT

Program Goals Insecticide, Fungicide and Rodenticide Act of 1975 (which amends the Federal Environmental Pesticide Control Act of 1972); and Occupational Safety and The Hazardous Materials Management Program is Health Act of 1970 (OSHA). relatively new, having been introduced into the BLM and its planning process during the late 1980s and The most important of the EOs and regulations are: early 1990s. The goals of the Hazardous Materials Management Program are to protect public health, EO 12580–Superfund Implementation; EO 12898– safety, and environmental resources by minimizing Environmental Justice Strategy; EO 12088–Federal environmental contamination on public lands and Compliance with Pollution Control Standard; EO BLM-owned and operated facilities; to comply with 12856–Federal Compliance with Right-to-Know applicable Federal and State hazardous materials laws Laws and Pollution Prevention Requirements; regula- and regulations; to maintain the health of the land tions implementing OSHA–29 CFR 1910.1001- through assessment, cleanup, and restoration of 1910.1043; regulations implementing the Transporta- contaminated sites; and to integrate environmental tion Safety Act and Hazardous Materials Transporta- protection and compliance and all environmental tion Act amendments of 1976 and 1990–49 CFR statutes into all BLM activities. 171-173, 177, 383, 392, 395, and 397; and the Natu- ral Resource Damage Assessment regulations–43 Management Guidance CFR 11.

Policy and Authorities Field Office Program Guidance

The Hazardous Materials Management Program is Acting primarily as a support function, the Hazardous based upon a myriad of environmental laws, regula- Materials Management Program focuses on providing tions, and Executive Orders (EOs) requiring the Fed- guidance to other programs to ensure that those pro- eral government to adhere to the same environmental grams adhere to all Federal and State environmental standards as the private sector. The most important laws and regulations. In addition, all National Envi- of these laws are: ronmental Policy Act (NEPA) compliance documents produced for actions within the Plan Area will be Comprehensive Environmental Response, Compensa- reviewed for hazardous materials management envi- tion, and Liability Act (amended by the Superfund ronmental compliance. Amendments and Reauthorization Act of 1980, as amended); Resource Conservation and Recovery Act No sites within the Plan Area have been identified as of 1976, as amended (which amends the Solid Waste containing hazardous substances. If such sites are Disposal Act of 1965); Emergency Planning and identified in the future, all surface and/or subsurface Community Right-to-Know Act of 1986; Federal activities will be suspended until the AFO obtains Facilities Compliance Act of 1992; Community Envi- direction from the appropriate Federal and/or State ronmental Response Facilitation Act of 1992; Oil regulatory agency. Pollution Act of 1990; Pollution Prevention Act of 1990; Toxic Substances Control Act of 1976; Clean Decisions From Approved Water Act of 1972, as amended (which amends the Federal Water Pollution Control Act of 1952); Clean El Malpais Plan Air Act of 1970, as amended (which amends the Air Pollution Control Act of 1955); Safe Drinking Water No decisions from the El Malpais Plan apply to the Act of 1974, as amended; Transportation Safety Act Hazardous Materials Management Program; however, of 1974 and subsequent Hazardous Materials Trans- hazardous materials management was considered in portation Act amendments of 1976 and 1990; Federal the decision-making process.

2-181 Hazardous Materials Management Chapter 2

Criteria for Resolution of The Hazardous Materials Management Program will El Malpais Plan Issues provide guidance to other programs to ensure that those programs adhere to all Federal and State environmental laws and regulations. The following factor that applies to the Hazardous Materials Management Program was considered in All NEPA documents produced for actions within the developing answers to the Recreation and Facility Plan Area will be reviewed for hazardous materials Development issue questions. This factor will con- management environmental compliance. tinue to be considered as the El Malpais Plan is implemented. Support Needs • Public health and safety The Hazardous Materials Management Program Guidance From Rio Puerco RMP would need support from the following resource programs in order to implement any cleanup or rehabilitation projects: Because the Rio Puerco RMP was written prior to the development of the Hazardous Materials Management Program, there are no criteria for resolution of RMP Law Enforcement issues, implementation guidance, or decisions carried forward from previous planning related to hazardous Law enforcement support may be required when a materials management that apply to management of El contaminated site is discovered to protect the public Malpais NCA. from inadvertent contamination, and for investigations.

Monitoring/Studies Cultural Resources Monitoring is carried out in response to assessment, Prior to cleanup of contaminated sites, a cultural re- cleanup, and/or restoration of a contaminated site. source inventory is required if it can be completed Monitoring will be coordinated with other programs without jeopardizing the safety of the resource per- to ensure that those program objectives are met. sonnel.

Implementation Priorities Special-Status Species

If sites containing hazardous substances are identified Prior to cleanup of contaminated sites, a special-status in the Plan Area, all surface and/or subsurface activi- species inventory is required if it can be completed ties will be suspended until the AFO obtains direction without jeopardizing the safety of the resource per- from the appropriate Federal and/or State regulatory sonnel. agency.

2-182 INVASIVE AND NOXIOUS PLANTS

Program Goals measures will be applied to AFO actions such as range improvements, fire rehabilitation, and road maintenance, as well as AFO-authorized actions including The goal of the Invasive and Noxious Plants Program rights-of-way, oil and gas activities, grazing permits, is to prevent the introduction and spread of noxious and recreation permits. weeds in the AFO administrative area. A summary of the portions of the PAWS action plan Management Guidance being implemented in the AFO follows:

Policy and Authorities • The AFO will delineate high priority areas for prevention of noxious weed infestation. All ac- The Invasive and Noxious Plant Program is carried tivities authorized or conducted on public land out under the following laws: Federal Noxious Weed will be reviewed for their potential to spread Act of 1974, as amended by the Food, Agriculture, weeds and modified as necessary. The effects Conservation and Trade Act of 1990, Section 1453 analysis for each National Environmental Policy (Management of Undesirable Plants on Federal Act (NEPA) document will evaluate the potential Lands); Carlson-Foley Act; Omnibus Consolidated for noxious weed invasion. Newly introduced Appropriations Act of 1997 (Section 124); and the weed species will be identified and documented. Plant Protection Act of 2000. In addition, Executive Order 13112 of 1999 directs all Federal agencies to • The AFO will conduct workshops for all field control the spread of noxious weeds. The Final Envi- personnel to update their knowledge of noxious ronmental Impact Statement Vegetation Treatment on weeds. The workshops will include identification BLM Lands (USDI, BLM 1991a) provides policy and of noxious and invasive weeds and a review of procedures for conducting weed treatments through the problems noxious weeds can cause. The the use of “integrated weed management programs.” AFO will continue to work to establish weed management areas and partnerships in developing The Partners Against Weeds (PAWS) action plan for and implementing outreach plans. BLM (USDI, BLM 1996a) and the Pulling Together National Strategy for Invasive Plant Management • The construction of access roads and creation of (Federal Interagency Committee for Management of public access creates a moderate to high risk of Noxious and Exotic Weeds 1998) establish general introducing noxious weeds. Therefore, the AFO guidelines to be implemented to help prevent the in- will be monitored for noxious weeds. Any nox- troduction or spread of noxious weeds. ious weeds found will be mapped and treated upon discovery. Site-specific monitoring will In addition to the PAWS action plan and the Pulling then continue for three years following treatment. Together Initiative, the AFO works under an Informa- tion Memorandum (IM) addressing prevention of Under the guidelines found in IM NM-010-99-01, the noxious weeds–IM NM-010-99-01 (Noxious Weed AFO will determine the best management options for Prevention Schedule) and a cooperative agreement preventing the introduction or spread of noxious between Cibola County and the Rio Puerco Resource weeds by implementing an integrated weed manage- Area [now the AFO]–Management of Undesirable ment program using a combination of the four general Plants, Including Noxious Weeds. categories of weed management–cultural, physical control, biological control, and herbicides. Field Office Program Guidance The AFO will continue and expand cooperation with other Federal agencies, State and county govern- The goals and strategies identified in the PAWS ac- ments, organizations, and private landowners in the tion plan will be implemented as needed for noxious fight against weeds. weed management in the AFO. These preventative

2-183 Invasive and Noxious Plants Section 2

The AFO will continue to work with the Cooperative mine the success of the revegetation, and will be Extension Service and others on research for control reseeded if necessary. methods for noxious weeds. Monitoring programs will be established to determine if the weed manage- Decisions From Approved ment program is meeting the AFO’s management objectives. El Malpais Plan

The following stipulations will be applied to all Control of noxious weeds (e.g., knapweed, bindweed, ground-disturbing projects: leafy spurge, thistle) is allowed by mechanical, chemical, or biological means. Site-specific NEPA compli- • When a ground-disturbing project is proposed, ance will be completed before any noxious weeds are the proposed route or site shall be inventoried for treated. [A Field Office-wide programmatic environ- the presence of noxious weeds listed on the New mental assessment for noxious weed treatment has Mexico Noxious Weed List. The following nox- been prepared. Site-specific NEPA compliance will ious weeds have been identified as occurring on tier from the programmatic document.] lands within the boundaries of the AFO: To allow for fully functioning riparian condition, ex- 1) Russian Knapweed (Centaurea repens) otic species such as saltcedar and Russian olive will be 2) Musk Thistle (Carduus nutans) removed using mechanical, biological, or chemical 3) Bull Thistle (Cirsium vulgare) treatments. The AFO will plant willows, cotton- 4) Canada Thistle (Cirsium arvense) woods, and other native riparian species as needed. 5) Scotch Thistle (Onopordum acanthium) 6) Hoary Cress (Cardaria draba) Criteria for Resolution of 7) Perennial Pepperweed (Lepidium latifolium) El Malpais Plan Issues 8) Halogeton (Halogeton glomeratus) 9) Spotted Knapweed (Centaurea maculosa) The following factor which applies to the Invasive and 10) Dalmatian Toadflax (Linaria genistifolia) Noxious Plants Program was considered in developing 11) Yellow Toadflax (Linaria vulgaris) answers to the Wildlife Habitat issue questions. This 12) Camelthorn (Alhagi pseudalhagi) factor will continue to be considered as the El Malpais 13) Yellow Starthistle (Centaurea solstitialis) Plan is implemented. 14) Saltcedar (Tamarix spp.) • Conflicts between exotic and native species • Construction equipment shall be inspected and cleaned prior to coming onto the work site. This is especially important on vehicles from out-of- Guidance From Rio Puerco RMP state or if coming from a weed-infested area. Some of the guidance in the Rio Puerco RMP contin- • The source for fill dirt or gravel must be noxious ues to be applicable to management of El Malpais weed free. NCA and adjoining lands. This guidance is listed below as “Implementation Guidance From RMP.” • The site shall be monitored for the life of the project for the presence of noxious weeds (in- Implementation Guidance From RMP cluding maintenance and construction activities). If weeds are found, the AFO shall be notified and Poisonous or noxious plants are controlled where spot the AFO will determine the best method for the infestations occur. In addition, the AFO cooperates control of the particular weed species. with other affected landowners in controlling infestations on relatively large areas. Chemical control will • When the work site is abandoned, the area shall conform to all applicable State and Federal regula- be reclaimed and revegetated with the species tions. Biological controls will also be considered specified by the AFO. All seed shall be certified where practical. Mechanical controls (chaining, weed free. The area will be monitored to deter- cabling, and pushing) can be used for areas where

2-184 Invasive and Noxious Plants Section 2 juniper is considered to be a noxious plant, but this or long-term will be monitored and spot infestations method is not a preferred means of control. All chem- will be eradicated upon discovery. ical applications will be preceded by an approved Pesticide Use Proposal. All applications of pesticides Implementation Priorities will be under the supervision of a certified pesticide specialist. All applications will be carried out in com- The following are the priorities for the Invasive and pliance with the New Mexico pesticide laws. Noxious Plants Program:

Monitoring/Studies Identification, treatment, and monitoring of small populations of Class A, B, or C noxious weeds with a The AFO will be monitored for noxious weeds. Any high potential for total eradication is the highest prior- noxious weeds found will be mapped and treated upon ity. discovery. Site-specific monitoring will then continue for three years following treatment. Identification, treatment, and monitoring of large populations of noxious weeds with less potential for The AFO will monitor all known populations of nox- short-term eradication but high potential for control ious weeds on a yearly basis and update the inventory and eventual eradication will have second priority. as needed. Identification, treatment, and monitoring of large Ground-disturbing projects permitted by the AFO will populations of noxious weeds with low potential for be monitored for the life of the project for the pres- total eradication in the short or long term will receive ence of noxious weeds (including maintenance and less attention. These populations will be managed to construction activities). If weeds are found, the AFO prevent their spread to uninfested areas. Their perim- will be notified and the AFO will determine the best eters will be monitored and spot infestations will be method for the control of the particular weed species. eradicated upon discovery. These will be the first areas treated with biological control agents. The AFO will continue to work with the Cooperative Extension Service and others on research for control Support Needs methods for noxious weeds. Monitoring programs will be established to determine if the weed manage- The AFO will conduct workshops on identification of ment program is meeting the AFO’s management noxious and invasive weeds for all field personnel. objectives. The Invasive and Noxious Plants Program will rely on the support of field personnel to report the presence The perimeters of large populations of noxious weeds of noxious weeds. with low potential for total eradication in the short-

Scotch Thistle

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