Coconino National Forest June 2021

Mt. Elden / Dry Lake Hills Recreation Planning Project Environmental Assessment

For More Information Contact:

Matt McGrath, District Ranger Flagstaff Ranger District 5075 N. Highway 89 Flagstaff, AZ 86004 Phone: 928-527-8231 Email: [email protected]

We make every effort to create documents that are accessible to individuals of all abilities; however, limitations with our word processing programs may prevent some parts of this document from being readable by computer-assisted reading devices. If you need assistance with any part of this document, please contact the Coconino National Forest at 928-527-3600. In accordance with Federal civil rights law and U.S. Department of Agriculture (USDA) civil rights regulations and policies, the USDA, its Agencies, offices, and employees, and institutions participating in or administering USDA programs are prohibited from discriminating based on race, color, national origin, religion, sex, gender identity (including gender expression), sexual orientation, disability, age, marital status, family/parental status, income derived from a public assistance program, political beliefs, or reprisal or retaliation for prior civil rights activity, in any program or activity conducted or funded by USDA (not all bases apply to all programs). Remedies and complaint filing deadlines vary by program or incident. Persons with disabilities who require alternative means of communication for program information (e.g., Braille, large print, audiotape, American Sign Language, etc.) should contact the responsible Agency or USDA's TARGET Center at (202) 720-2600 (voice and TTY) or contact USDA through the Federal Relay Service at (800) 877-8339. Additionally, program information may be made available in languages other than English. To file a program discrimination complaint, complete the USDA Program Discrimination Complaint Form, AD-3027, found online at How to File a Program Discrimination Complaint and at any USDA office or write a letter addressed to USDA and provide in the letter all of the information requested in the form. To request a copy of the complaint form, call (866) 632-9992. Submit your completed form or letter to USDA by: (1) mail: U.S. Department of Agriculture, Office of the Assistant Secretary for Civil Rights, 1400 Independence Avenue, SW, Washington, D.C. 20250-9410; (2) fax: (202) 690-7442; or (3) email: [email protected]. USDA is an equal opportunity provider, employer, and lender

Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Contents Contents ...... i Introduction ...... 1 Proposed Project Location ...... 1 Background ...... 1 Need for the Proposal ...... 3 Need: Achieve desired conditions and management goals ...... 4 Need: Address poorly designed trails or unauthorized trails, and provide for a well-planned and sustainable trail system ...... 4 Need: Provide appropriate trailhead access that is better aligned with demand ...... 5 Need: Provide for sustainable special use events in the area ...... 5 Need: Update Mt. Elden Environmental Study Area trails signage to provide improved interpretation ...... 6 Agencies or Persons Consulted ...... 6 Public Involvement and Collaboration ...... 6 Federal, State, and Local Agencies Consulted ...... 7 Tribal Consultation ...... 7 Proposed Action and Alternatives ...... 8 No-Action Alternative ...... 8 Proposed Action ...... 9 Alternatives Considered but Eliminated from Detailed Study ...... 21 Environmental Impacts ...... 23 Recreation ...... 23 Heritage and Cultural Resources ...... 35 Wildlife ...... 38 Sensitive Plants Species and Species of Local Interest ...... 55 Non-native Invasive Plants ...... 57 Soils and Water Resources ...... 59 Finding of No Significant Impact ...... 64 Context ...... 64 Intensity ...... 64 References ...... 69 Appendix A – Maps ...... 72 Appendix B – Implementation Plan ...... 81 Appendix C – Alternatives Considered, but Eliminated from Detailed Study ...... 85 Appendix D - USFS Trail Management Classes ...... 90

Tables

Table 1. Existing conditions – recreation facilities within the MEDL project are ...... 8 Table 2. Summary of trail system changes included in the Proposed Action ...... 9 Table 3. Regional Population Growth (1990 – 2019) ...... 24 Table 4. Comparison of existing and proposed trails and density in the project area ...... 27 Table 5. Fire history in the project area (1990-2020) ...... 30 Table 6: Information about the Mexican spotted owl recovery habitat in the project area ...... 39 Table 7: Information about the Mexican spotted owl protected activity centers in the project area including survey results the last five years ...... 39

i Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Table 8: Information about miles of existing trails in Mexican spotted owl habitats in the project area ...... 39 Table 9. Proposed trail projects in Mexican spotted owl habitats in the project area ...... 40 Table 10. Information about the Regional Forester’s Sensitive Wildlife Species to be analyzed for this project ...... 45 Table 11. Migratory birds with suitable habitat in the project area ...... 51 Table 12. Trail or location-specific alternatives suggested in public scoping comments ...... 85 Table 13. Need Caption ...... 90

Figures

Figure 1. Vicinity map ...... 2 Figure 2. Existing Forest Closures and Prohibitions ...... 26 Figure 3. Most Commonly Used Trail Areas from the FTI Trail Survey Results (2018) ...... 28 Figure 4. Wildfire History – 1990 to 2020 ...... 31 Figure 5. Soil burn severity and proposed MEDL trails in the Museum Fire perimeter ...... 33 Figure 6. Springs, ephemeral streams, and riparian areas ...... 61

ii Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Introduction We, the USDA Forest Service, are proposing non-motorized trail and trailhead construction, reconstruction, relocation, closure, and permits for recreational events, to better meet the growing recreational demands and protect natural resources in the Mt. Elden/Dry Lake Hills area. The Mt. Elden/Dry Lake Hills Recreational Planning Project (the project) is proposed to be implemented on the Flagstaff Ranger District of the Coconino National Forest. We prepared this environmental assessment1 to disclose our consideration of the environmental effects consistent with the National Environmental Policy Act and other relevant laws, regulations and policies; to document our consideration of alternatives and concerns submitted by the public during scoping; and to determine whether to prepare an environmental impact statement or a finding of no significant impact. Proposed Project Location The Mt. Elden/Dry Lake Hills (MEDL) area is located directly north of Flagstaff, Arizona (figure 1). Largely because of its proximity to Flagstaff and the appealing diversity of forest topography and vegetation, it is the most popular and heavily used recreation area on the Flagstaff Ranger District. The area provides thousands of forest visitors opportunities to enjoy the great outdoors, including hiking, mountain biking, riding horse, snowshoeing, cross-country skiing, or rock climbing. Adjacent property owners walk this area daily and the project area borders the City of Flagstaff’s ‘Buffalo Park,’ which serves as one of the primary gateways into the Coconino National Forest from Flagstaff. Background The original MEDL trail system was dedicated in 1987. There are eight trailheads providing access to 14 designated National Forest System trails, including portions of the Arizona National Scenic Trail, Flagstaff Loop Trail, and the historic Beale Wagon Trail. The Little Elden Springs Horse Camp is adjacent to Forest Service Road 556 providing access to the trail system for equestrians staying at the campground. There are numerous organized recreation events which utilize trails and trailheads, some of which have been issued annual special-use permits for over a decade. map 1in Appendix A – Maps shows the current trail system within the project area.

1 This environmental analysis is conducted according to the Council on Environmental Quality’s 1978 regulations for implementing the procedural provisions of the National Environmental Policy Act (40 CFR §§1500-1508, as amended). The CEQ issued revised regulations for implementing the procedural provisions of the National Environmental Policy Act, effective September 14, 2020. The revised regulations provide the responsible official the option of conducting an environmental analysis under the 1978 regulations if the process was initiated prior to September 14, 2020 (40 CFR §1506.13, 85 FR 137, p. 43373, July 16, 2020). Since scoping for this project was initiated in August of 2019, I am choosing to continue under the 1978 CEQ regulations as my discretion allows.

1 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Figure 1. Vicinity map

2 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

The Mt. Elden Environmental Study Area was established in 1972. The Environmental Study Area is a 400-acre parcel of land established as a study site and bird sanctuary for the purpose of environmental education. As part of the Environmental Study Area, there are four designated trails that provide interpretive opportunities for students and the public: Forces of Nature, A Walk Though Time, Spring, and Wildlife Tree Trails. Use of the Environmental Study Area for education has varied over the years and has been utilized infrequently for this purpose in recent years. In addition, Elden Pueblo Interpretive Site, which is located off Highway 89, was established to provide opportunities for education and involvement in the science of archaeology.

Some trail improvements have recently been implemented. Since the early 2000s much of Schultz Creek Trail was relocated out of the drainage in sustainable side-slope locations; this work is still incomplete, and efforts continue today. Following the 2010 Schultz Fire, Little Bear trail was completely rebuilt. Beginning in 2018 Little Elden and Heart trails were relocated to sustainable locations in a large reroute effort, this work was recently completed in 2020.

In addition to the 2010 Schultz Fire, other forest management activities and wildfires have greatly changed the MEDL area. In 2012 City of Flagstaff voters approved a bond to treat the forest to reduce the risk of uncharacteristic wildfire which could have large negative effects on the City. As a result, the Flagstaff Watershed Protection Project began in earnest in 2017 and has included timber harvesting and thinning activities on steep slopes, as well as helicopter and steep slope logging. Flagstaff Watershed Protection Project activities are expected to continue for the next 3 to 5 years within the MEDL area. While the Flagstaff Watershed Protection Project included protections for recreational resources, these activities have resulted in some temporary disturbances. Construction of temporary logging roads and log landings have greatly changed the landscape in the area.

In July of 2019, aggressive firefighting efforts contained Museum Fire at nearly 2,000 acres in the MEDL area. There were 8.75 miles of National Forest System trails, as well as numerous unauthorized trails and routes in the Museum Fire burn area. Most of these trails burned in low severity, but about 22 percent (2 miles) of trail burned in moderate or high severity through steep terrain. Trail damage is ongoing due to erosion from the burn area. In addition to trail damage, Mount Elden Lookout Road (FR 557) and the Oldham Trailhead (access to the West Elden climbing site) were greatly compromised.

The number of visitors to Flagstaff and Northern Arizona tourism has increased over the last several years, leading to a steady increase in recreational use in this area. This increased use is taxing the current trail system and associated facilities. Indicators of overuse include deteriorating condition of system trails, development of unauthorized trails, and increased concerns for impacts to natural resources such as wildlife, watershed and soil conditions, recreational experiences, and vegetation.

Need for the Proposal The purpose of the project is to develop a premier trail system while responding to ongoing negative impacts from unsustainable recreation on forest resources. The desired condition is a trail system that provides diverse opportunities for recreation activities, and a safe and positive experience for everyone. This would serve to improve quality of life for users and support a healthy, happy, and strong community.

3 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Need: Achieve desired conditions and management goals Relevant desired conditions for the Mt. Elden-Dry Lake Hills Management Area in the Coconino National Forest Land and Resources Management Plan (Forest Plan) are:

The trail system is designed to be sustainable while balancing user experiences and impacts.

Throughout this area, trailheads provide access to motorized and non-motorized trails.

The Mount Elden/Dry Lake Hills Trail System offers a variety of trail experiences for nonmotorized recreation.

The Mount Elden Environmental Study Area provides interpretive and environmental educational opportunities for students, residents, and forest visitors consistent with other resource desired conditions. Non-motorized trails associated with the Mount Elden Environmental Study Area provide dispersed day-use and safe access.

(Forest Plan, page 139)

The Forest Plan also limits outfitter-guide and group special use activities that would adversely affect the character of the Environmental Study Area. Finally, the Forest Plan provides a management approach for this management area that is focused on community partnerships, collaboration, and coordination with local organizations.

The current conditions of trails, trailheads, and recreation management in the area need to be improved to achieve the desired recreation setting and resource management goals provided in the Forest Plan. Need: Address poorly designed trails or unauthorized trails, and provide for a well-planned and sustainable trail system Many parts of the MEDL trail system were established as Forest Service trails to keep up with the rapid growth of the Flagstaff area and corresponding trail use in this area. Many of the system trails within the project area were not planned, designed, or built specifically for recreational purposes and therefore, may be very steep and poorly located, causing erosion, lack of user enjoyment, and other resource concerns. For example, Brookbank Trail was an old road built to access the Dry Lakes area and was constructed with little consideration to impacts on wildlife, water quality, and recreational experience.

In addition, there is wide-spread creation of unauthorized trails within the project area. Unauthorized trails are purposefully or incidentally created by users without the approval of the Forest Service. These trails can be the result of purposeful construction or through incidental regular use that creates a visible travel route for others to follow. Unauthorized trails are also referred to as “user-created”, “wildcat”, “nonsystem” or “social” trails. Unlike system trails, unauthorized trails do not receive regular, formal maintenance from the Forest Service and are not listed on formal trail maps because they are not part of the authorized trail system. However, unauthorized trails are often included in user generated or third-party maps, leading to confusion among users about the acceptability of their use.

A few examples of unauthorized trail creation include: (1) numerous mountain biking trails have been created by users, (2) equestrians living in North Peak and McCann Estates have a network

4 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest of user-created trails on the forest coming from their subdivisions, and (3) the neighborhoods adjacent to the base of Mt. Elden, near the top of 4th street, have created a web of social trails used for dog walking, exercise, and commuting.

The presence of an unauthorized trail often reflects a past or present demand for recreation use or access. Although an unauthorized trail may serve a recreational function that authorized trails do not, they do not take into consideration impacts to forest resources. Many unauthorized trails in the project area are in sensitive wildlife habitat causing negative disturbance or displacement of wildlife species, and some unauthorized trails are causing erosion that is damaging unreplaceable cultural sites. Unauthorized trails may also pose safety risks for forest visitors because of hazardous conditions where they are located, lack of informational signs, and lack of routine management.

Due to the spread of unauthorized trails, poorly planned system trails, and high user demand, there is a need to construct, relocate, repair, or decommission certain trails, focusing on sustainability, resilience to changing uses and climate, and connectivity with other trails in the trail system while addressing resource concerns. Need: Provide appropriate trailhead access that is better aligned with demand Trailheads and associated amenities within the project area need to better meet the demand for, and distribution of, recreation uses. For example, trailheads easily accessible from the city need to be expanded to accommodate increasing use, and others need to be updated or improved to draw use away from the busiest trailheads. For example, upgrading Sandy Seep Trailhead to draw users away from Elden Lookout Trailhead. Also, unplanned parking for trail and climbing access should be assessed for potential inclusion as designated parking sites or for decommission /rehabilitation. For example, the unplanned parking for the West Elden climbing area provides parking to access the climbing area as well as access to three system trails, making it a site to consider for new system trailhead and associated parking area development.

The Forest Plan includes a guideline to design and locate trailheads to manage access and to provide interpretive materials to the most visitors possible (Forest Plan, p. 140). There is a need to change trailhead access to better meet demands, including potential relocation, new construction, consolidation and/or decommissioning. Need: Provide for sustainable special use events in the area Recreation special use events occur each season within the project area. These include non- motorized trail-based events, such as mountain bike or trail running races. Currently, special use event requests are submitted to the district by event organizers and considered annually, on a case-by-case basis. Considering special use event requests individually creates administrative burden and reduces time for Forest Service staff to prepare environmental analyses to minimize resource impacts. Due to a lack of planning and analysis, special use event requests are quickly evaluated on a case-by-case basis, often leading to denial during wildlife breeding seasons no matter the location of the event. This has led to most events being crowded into the fall season.

To improve the special use permit process for events, there is a need to identify trails where permitted events, such as mountain bike races and trail running races can occur in compliance with Forest Plan direction. There is also a need to conduct more comprehensive analysis of these

5 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest events, and to provide consistent parameters (group sizes, or timing restrictions) to ensure resource protection and more coordinated planning. Need: Update Mt. Elden Environmental Study Area trails signage to provide improved interpretation The Forest Plan states that management activities within the Environmental Study Area should be designed to retain and promote educational and learning opportunities, and the Environmental Study Area should be managed to provide for minimal user conflicts (Forest Plan, page 140).

Agencies or Persons Consulted Public Involvement and Collaboration This project was listed in the Coconino National Forest quarterly schedule of proposed actions beginning in 2013. We solicited public comments for the Project scoping period from October 31 through November 30, 2013. We mailed and emailed a scoping letter containing a project overview and link to the website to a mailing list of interested parties including: Federally- recognized tribes, relevant local governmental organizations, those who owned property in or near the project area, and those who have previously indicated an interest in this type of project on the Coconino National Forest. We also hosted public information meetings in the local community to share information about the project. We received hundreds of comments in response to the scoping period for this project. As we began reviewing feedback received from the public, the decision was made to put the project on hold due to the district’s workload related to Flagstaff Watershed Protection Project and other priorities. In 2019, we began working with stakeholders to shift focus back to the recreational needs in this area and work with stakeholders to address the numerous competing interests and requests we heard about from the scoping period in 2013.

Launched in late 2017, the Flagstaff Trail Initiative (FTI) began engaging a diverse mix of public and nonprofit organizations to develop a cross-jurisdictional Flagstaff Regional Trail Strategy with the purpose of improving the quality, connectivity, and community support for a sustainable trail system around the Flagstaff region that balances the demand for recreation with the community’s vision for conservation, development, and health. Beginning in 2019, Flagstaff Trail Initiative convened a community collaborative called the Mount Elden Dry Lake Working Group. This small group included individuals from broad and diverse interests, they each represented a user group or special interest organization including hikers, trail runners, mountain bikers, equestrians, trail construction professionals, conservation groups, and local municipal (City/County) government representatives. The working group worked for a year to develop a set of recommendations for recreation and trail management in the project area. These recommendations were presented to the Forest Service in the spring of 2020 and can be found on the Flagstaff Trail Initiative website at (http://flagstafftrailsinitiative.org/wp- content/uploads/2020/08/Final-MEDL-recommendations-May-2020.pdf). Although many aspects of the recommendations did not have full working group consensus, the working group’s recommendations balanced protecting wildlife habitat, environmental resources, and sensitive places while providing broad opportunities for diverse recreational experiences for the community and visitors.

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An updated proposed action was prepared by the Flagstaff Ranger District staff. The proposed action was modified based on the 2013 comments, changed conditions in the planning area, and the recommendations of the working group. A 30-day scoping period for the updated proposed action began August 13th, 2020 and closed on September 28th, 2020. A scoping letter was mailed to approximately 309 stakeholders including private landowners, agencies, organizations, tribes, and those who had previously expressed interest in the project. A detailed proposed action with maps was provided on the project website.

Forest Service personnel also hosted a public informational meeting via Facebook live on September 9th, 2020. The meeting was attended by over 100 participants, recorded, and available on the project website and the Forest Facebook page at: https://www.facebook.com/CoconinoNF/live_videos/?ref=page_internal. The recorded public informational meeting had 3,200 views since its release. Concurrent with, and after scoping, district staff also met with some members of the Mt. Elden Dry Lake Hills Working Group, Flagstaff Biking Organization, The Sierra Club, The Grand Canyon Trust, Doney Park Timberline Fernwood Area Planning Committee, and several other interested individuals to review their comments and discuss modifications to the proposed action that were developed by the district staff.

A total of 386 comment letters were received from agencies, organizations, and individuals. The interdisciplinary team reviewed each comment, categorized the concerns presented, and used the comments to modify the proposed action, evaluate possible alternatives, and develop the analysis presented in this environmental assessment. Comments ranged from broad support to general or specific concerns about some aspects of the project. Some commenters provided general preferences or suggestions for alternatives; other commenters expressed specific preferences about individual trails or routes. The proposed action and alternatives sections below describe how the proposed action was modified in response to these comments and other alternatives that were considered, but not analyzed in detail. Federal, State, and Local Agencies Consulted The Forest Service consulted with the following Federal, state, and local agencies during the development of this modified proposed action and environmental assessment: The US Fish and Wildlife Service, the State Historic Preservation Office, Coconino County, and the City of Flagstaff. Tribal Consultation This project is located within the San Francisco Peaks Traditional Cultural Property that is extremely significant to local tribes. Information about the updated project proposal was mailed to the following tribes in December 2018: Pueblo of Acoma, Fort McDowell Yavapai Nation, Havasupai Tribe, Hopi Tribe, Hualapai Tribe, Navajo Nation, San Carlos Apache Tribe, San Juan Southern Paiute Tribe, Tonto Apache Tribe, White Mountain Apache Tribe, Yavapai-Apache Nation, Yavapai Prescott Indian Tribe, and the Pueblo of Zuni. The project was discussed at consultation meetings with the Navajo Nation (May 23, 2019) and the Hopi Tribe (May 29, 2019).

We intended to continue tribal consultation during 2020, however, consultation was generally paused due to the effects of the COVID-19 pandemic. In July 2020, a letter providing information for a group of Coconino National Forest projects, including this project, were mailed to

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Federally-recognized tribes offering the opportunity for consultation. These consultation opportunities were extended in fall of 2020.

In February 2021, the forest discussed this project with the Hopi and the tribe requested a field trip to visit the project area in the spring or summer of 2021, depending on evolving pandemic conditions. The Hopi also requested a virtual tour of the MEDL project area.

In March of 2021, the forest discussed this project with the Havasupai Tribe. A field trip to the project area was completed in May 2021. The modified proposed action was also shared with interested Tribes in May of 2021.

Ongoing coordination with Tribes would occur during project implementation related to avoidance and protection of cultural resources or sites, trail accessibility, and interpretation and education opportunities to address the cultural importance of the area. Opportunities for engagement on educational and interpretive initiatives are important to Tribes in the project area.

Proposed Action and Alternatives No-Action Alternative A no-action alternative is included as a baseline for comparison to the proposed action. This alternative represents the existing and projected future condition against which other alternatives are compared. Under this alternative, trail construction, improvements, and restoration would not occur. In addition, special use trail events would continue to be managed on a case-by-case basis as applications are submitted. The trends described in the background and need for proposal would continue within the MEDL Planning Area.

Table 1. Existing conditions – recreation facilities within the MEDL project are Type of Facility Number/Amount Forest System Trails 20 Forest System Trails* 51.7 Miles Unauthorized Trails (2019 Estimate) 76 Miles Flagstaff Loop Trail 10.9 Miles Arizona National Scenic Trail 14.8 Miles Trailheads 8 Horse Campground 1 Interpretive Archeology Site 1 *This is current mileage based on the best available field review, but not reflected in the current Corporate Database

Table 1 and map 1 in Appendix A – Maps shows the amount and location of current recreation facilities and trails and unauthorized trails in the planning area. The existing condition in the project area has been evaluated and updated to help with project planning based on the best available data on existing trails in the project area. However, the existing condition on the ground may not match Forest Service databases.

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Proposed Action The following proposed action has been developed to meet the project’s purpose and need and has been modified based on public comments. The proposed action consists of six components:

1. New trail construction (may also include adoption of unauthorized trails) 2. Major trail relocation, reroutes, and improvements 3. Closure and restoration of unauthorized trails (also referred to as naturalization or rehabilitation) 4. Trailhead construction and improvements 5. Mount Elden Environmental Study Area improvements 6. Special-use trail events Table 2 summarizes the proposed changes to the trail system. The result would be a total proposed non-motorized trail system of 110 miles, compared to 52 miles currently. The proposed action maps are in Appendix A – Maps and referred to in the proposed action description that follows.

Table 2. Summary of trail system changes included in the Proposed Action Proposed Action Miles (approximate) Existing System Trail Maintained 44 Proposed New Trail Construction 31 Proposed Trail Adoption 23 Proposed System Trail Realignment 12 Total Proposed Trail System 110 Proposed Naturalization of System Trails 8 (Abandon) Proposed Naturalization and Closure of 18 Unauthorized Trails Total Proposed Naturalization 26

1. New Trail Construction Best management practices for trail construction as identified in the Forest Service Trails Handbook and Specifications for Construction and Maintenance of Trails, as well as design features to protect Forest resources would be incorporated into trail design and construction. Forest Service trail management standards for trail classes 1 through 5 are shown in appendix D for reference. Trail construction may incorporate existing unauthorized trails where appropriate, considering sustainability and natural resource concerns. Trails designed for all uses could include bypasses for additional challenge. These alternative lines would be scrutinized and only implemented where desirable, safe, and practical. Locations of proposed trails and reroutes shown on maps are approximate. Listed trail names are conceptual and tentative; a variety of partners and interested parties, including Tribal Partners would be involved in the naming of trails as they become ready for public use.

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Equestrian Trail System (See map 2) Action: Construct up to 10 miles of Forest Service class 2 and/or 3 trail designed for equestrian use that allow for connections to the Little Elden Springs Horse Campground and provide loop opportunities on the east side of the project area. Opportunities to adopt unauthorized trails and old road-beds would be utilized.

Objective: To provide trail connectivity to the Little Elden Springs Horse Camp, Schultz Tank, and surrounding trails, and to provide loop opportunities for equestrians staying at the horse campground or for horse users living in nearby subdivisions along Highway 89. Provide alternatives to reduce congestion and user conflicts on Little Elden trail.

Elden Base Urban Trail (See map 3) Action: Construct approximately 5 miles of improved hardened surfaced trail as a Class 4 trail or a permitted Flagstaff Urban Trail System (FUTS) trail. This would include portions of the Arizona National Scenic Trail, Flagstaff Loop Trail and Lower Oldham trail, including the connection to Buffalo Park and Elden Lookout Road. This trail would begin at Elden Lookout Road, pass nearby Buffalo Park and continue east, terminating at El Paso Drive in Mobile Haven. This would include three spur trails connecting to city access points along the base of Mount Elden at St. Moritz Way, Winifred Lynch Flagstaff Urban Trail System trail in the Mount Elden Foothills neighborhood, and near the junction of Fourth Street and E. Andes Drive.

Objective: Provide a highly developed trail that connects east and west Flagstaff which serves as a collector trail for Flagstaff residents adjacent to the forest to access National Forest lands. This trail would also reduce confusion in an area with a high number of unauthorized trails.

Elden Base Trails (See map 3) Action: Construct approximately 5 ½ miles of trails in the Elden Base near the Mt. Elden Environmental Study Area and Buffalo Park. This includes realigning the Pipeline Trail to sustainable single-track alignments, adopting user-created trails where sustainable and appropriate, and constructing a class 2 trial designed for hiking to access the Middle Elden climbing site.

Objective: Provide a quality system of loop trails with important connections to the Elden Base Urban Trail, Environmental Study Area, and provide easy neighborhood access. These trails would also reduce confusion in an area with a high number of unauthorized trails.

Devil’s Chair Trail (see map 3) Action: Construct up to 5 miles of Forest Service class 2 trail designed for hiking that would be closed to all other uses. This new trail would climb the west slope and traverse past Devil’s Chair and up onto the top of Mount Elden connecting with Forest Service Road 557A near the Devil’s Head Communication Site.

Objective: To provide a challenging hiking opportunity on the west face of Mount Elden accessible from Buffalo Park and the new Oldham Basin Trailhead to reduce congestion, and provide an alternative to the Elden Lookout Trail.

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Highway 89 Urban Trail (See map 4) Action: Construct approximately 1 1/2 miles of improved hardened surfaced trail as a class 4 trail or a permitted municipal trail from the terminus of the North 89 Flagstaff Urban Trail System trail near Snowflake Drive in the Christmas Tree neighborhood north to Sandy Seep Trailhead. This would also include additional highly developed trails from the North 89 Flagstaff Urban Trail System trail to the Flagstaff Ranger District Office and Elden Lookout Trailhead.

Objective: Provide a highly developed trail that connects rural areas north of Flagstaff into the City of Flagstaff, while consolidating unauthorized trails adjacent to the Christmas Tree area. This trail would provide a safe and efficient opportunity for non-motorized commuting through Flagstaff.

Sandy Seep Loops (See map 4) Action: Construct up to 12 miles of trails providing loops around the east side of Mount Elden. This new trail construction would provide connections between Sandy Seep Trailhead, Christmas Tree, and Fat Man’s Loop Trails. Adopt unauthorized trails and incorporate portions of the original alignments of the Heart Trail and Little Elden Trails where practical and sustainable. Construct approximately 2 ¼ miles of Forest Service class 2 trail designed for hiking, that would be closed to all other uses up the north side of Mount Elden to connect with Sunset and Elden Lookout Trails.

Objective: Provide a variety of easily accessible trails from Sandy Seep Trailhead to serve as quality alternatives to Fat Man’s Loop and Elden Lookout Trails. This would concentrate use and impact in desirable locations, while reducing congestion and dispersing use away from trails near Elden Lookout Trailhead. These trails would also provide loop opportunities, and . non-motorized transportation opportunities from neighborhoods north of Flagstaff (Timberline and Doney Park) into the City of Flagstaff.

Private Reserve Directional Mountain Biking (see map 5) Action: Construct and adopt up to 2 individual trails, providing up to 2 ½ miles of Forest Service class 2 trail designed for one-way-mountain biking with a high level of challenge, including trail features that increase challenge. Multiple trails would be developed to allow for progression and a variety of experiences and degree of challenge. These trails would be designed for bicycle use and would be signed accordingly to notify other trail users. Some portions of unauthorized trails including “Private Reserve” and “Lone Eagle” would be utilized where practical and sustainable. All other unauthorized trails in this area would be closed and restored.

Objective: Redesign and consolidate unauthorized trails including “Private Reserve” and “Lone Eagle” trails on the north facing slopes below Elden Lookout Road and Oldham Park to provide trails intended for challenging mountain biking that are sustainable and properly located to mitigate natural resource concerns and other issues.

Sunset Ridge Directional Mountain Biking (see map 5) Action: Construct a trail providing up to 2 miles of Forest Service class 2 trail designed for one- way-mountain biking with a moderate level of challenge, including trail features that increase challenge on the west slope north of Sunset Trail from the western Sunset summit down Sunset Trail near Schultz Tank. This trail would be designed for bicycle use and would be signed

11 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest accordingly to notify other trail users. These trails would provide intermediate and advanced opportunities on moderate slope angles with excellent trail access.

Objective: Provide a trail intended for moderately challenging mountain biking that offer progression and learning, are sustainable, and properly located to mitigate natural resource concerns and other issues.

Ginger Trail Adoption (See map 5) Action: Adoption of the unauthorized Ginger trail, for approximately 1 mile, connecting the new Brookbank and Rocky Ridge Trails as Forest Service class 2 trail designed for one-way-mountain biking with a high level of challenge, including features that increase challenge. Major reconstruction and relocation would be required to bring this trail to Forest Service Trail standards after post-wildfire damage.

Objective: Incorporate a very popular unauthorized trail into the Forest System to perform required maintenance and provide important trail connections. Provide a designed and challenging descent off the Dry Lake Hills away from congested areas of Schultz Creek.

Little Gnarly Bypass (See map 5) Action: Construct a new trail, approximately 1 mile, that connects Brookbank trail with Jedi and Schultz Loop trails, while bypassing private property at the top of Dry Lake Hills and avoiding administrative roads in the area.

Objective: Make important connections between the west and east sides of Dry Lake Hills while reducing private property trespass. Improve user experience by providing a single-track trail and removing the access off of the administrative road known as Little Gnarly trail.

Jedi Trail Adoption (See map 5) Action: Adoption of the unauthorized Jedi trail for approximately 1 ½ miles, connecting Schultz Creek with the new Brookbank Trail alignment. Some minor reroutes would be required to bring this trail to class 3 trail standards.

Objective: Incorporate a very popular unauthorized trail into the Forest System to perform required maintenance and provide important trail connections.

Red Onion Trail Adoption (See map 5) Action: Adoption of the unauthorized Red Onion trail, for approximately 1 mile, connecting Upper Oldham Trail, Elden Lookout Road, Sunset, and Little Bear Trails. Major reconstruction be required to bring this trail to class 3 trail standards after post-wildfire damage.

Objective: Incorporate a very popular unauthorized trail into the Forest System to perform required maintenance and provide important trail connections.

Schultz Tank Trail Adoption (See map 5) Action: Adoption of the unauthorized trails around Schultz Tank for approximately 1/2 mile connecting the Schultz Tank Trailhead, Little Elden, and Sunset Trails. This trail would be designed for hikers.

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Objective: Provide a single trail for hikers with scenic views around Schultz Tank that is easily to follow and identify. Reduce shoreline impacts from multiple unauthorized trails in the area.

Climb 3 Trail and Temporary Logging Road Adoption (See map 5) Action: Adoption of the unauthorized Climb 3 trail, temporary logging roads, and new single- track trail construction for approximately 2 miles, connecting Schultz Loop and Little Gnarly trails with upper portions of Sunset Trail. Some reroutes and realignments would be required to bring this trail to Class 3 trail standards.

Objective: Incorporate a very popular unauthorized trail into the Forest System to perform required maintenance and provide important trail connections.

Lost Burrito Trail Adoption (See map 5 and map 6) Action: Adoption of the unauthorized Lost Burrito trail, for approximately 2 ½ miles, connecting Schultz Creek and Rocky Ridge with Brookbank Trail on top of the Dry Lake Hills. This trail would be a Forest Service class 2 trail designed for hiking, and closed to all other uses. Some major reroutes would be required to bring this trail to a sustainable condition.

Objective: Incorporate a very popular unauthorized trail into the Forest System to perform required maintenance and provide important trail connections and to provide a challenging hiking trail on the south face of Dry Lake Hills.

Schultz Creek Loops (See map 6) Action: Construct up to 10 miles of Forest Service class 3 trails designed for multiple uses, creating an area of dense trails and loops around the southwest face of Dry Lake Hills, and connecting Rocky Ridge and Schultz Creek trails to a new Dry Lake Ridge trail on the top of the Dry Lake Hills.

Objective: Provide a variety of easily accessible trails from the popular trailheads around Schultz Creek. This would concentrate use and impact in desirable locations, while reducing use at congested trailheads and dispersing use off of Schultz Creek Trail.

2. Trail Relocation and Improvement Where natural resources are a concern, trails would be relocated to provide resource protection and sustainability. Abandoned trail segments would be closed and rehabilitated. Locations of proposed trails and reroutes shown on maps are approximate.

Elden Lookout Trail (See map 3 and map 4) Action: Relocate and rebuild approximately ½ mile of steep sections of Elden Lookout Trail below the summit.

Objective: Address erosion and maintenance issues by reducing the grade and the number of switchbacks.

Pipeline Trail (See map 3) Action: Relocate approximately 1 ½ miles of the Pipeline Trail, removing trail from upper portions of the El Paso Gas Line and relocating north of the gas line.

13 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Objective: Provide a sustainable single-track trail through the Environmental Study Area, while incorporating and naturalizing unauthorized trails where appropriate.

Brookbank Trail (See map 5) Action: Relocate approximately 4 ½ miles of Brookbank Trail, removing trail from upper portions of Brookbank Canyon and relocating along the eastern face of Dry Lake Hills.

Objective: Mitigate wildlife concerns in Brookbank Canyon, specifically nesting Mexican spotted owls, provide for a sustainable trail system, and provide connectivity between the Dry Lake Hills area and the new Oldham Basin Trailhead.

Upper Oldham Trail (See map 5) Action: Realign approximately 1 mile of Upper Oldham Trail to connect to upper areas of Elden Lookout Road and Sunset Trail.

Objective: Address erosion issues, avoid sensitive wildlife habitat, remove trail from bottom of drainage, and provide for sustainable trail access to the summit of Mount Elden.

Sunset Trail (See map 5) Action: Relocate approximately ½ mile of Sunset Trail near the junction of Brookbank Trail, aligning the trail northwards toward vistas of the Kachina Peaks and reducing the fall line trail between the Sunset summit, Brookbank, and Little Bear trails. Improve a bypass near the Hobbit Forest and realign the Catwalk in the upper portions of Sunset Trail.

Objective: Address erosion issues and provide a high-quality trail with an excellent vista at the summit of the long climb from Schultz Tank.

General Trail Signage Action: Add, replace, and improve trail signs to inform the public on current and proposed trail use restrictions. This could include reassurance and blaze markers in areas difficult to navigate. These markers on trails connecting with the Arizona National Scenic Trail (ANST) and the Flagstaff Loop Trail should be sufficiently unique so as not confuse other trails with the designated Arizona National Scenic Trail or Flagstaff Loop Trail (map 7).

Objective: Increase compliance and safe, sustainable use of system trails and decrease unauthorized trail construction. Encourage learning and appreciation for natural and cultural features of the area to increase awareness and citizen stewardship.

General Trail System Action: Realign existing system trails where the current location is resulting in resource impacts or cannot be adequately maintained to standard. For example, a segment of a Forest Service class 3 trail that is greater than 12 percent grade for more than 10 percent of the trail’s length which may result in erosion and/or detract from the trail user experience and would not meet the characteristics specified for a class 3 trail.

Objective: Provide a sustainable trail system, address erosion concerns, and improve trail user experience.

14 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

3. Closure and Restoration of Unauthorized Trails (see map 8) Action: Close, sign, and restore unauthorized trails and roads that are not being incorporated into the Forest Service trail system and are located in sensitive resource areas. Prioritize closure of unauthorized trails that are causing adverse effects on wildlife, soil, water quality, and riparian resources. This includes approximately 18 miles of unauthorized trails, including but is not limited to: Cani, Wassabi, lower Private Reserve, Pickle, and Prom Nite. Restoration activities would include signing, slashing, recontouring, establishing drainage, and vertical mulching of unauthorized trails, by hand tools as well as with motorized equipment After closure unauthorized trails would be monitored and any new unauthorized trail construction would be investigated and enforced. More details of closures and restoration of unauthorized trails is included in the implementation plan (appendix B).

Objective: Mitigate resource concerns and issues, and restrict further use on unauthorized trails, and deter further illegal trail construction.

4. Trailhead Improvements Trailhead improvements would be incorporated to better serve the public and address resource concerns. Decommissioned or relocated trailheads would be closed and rehabilitated in coordination with trailhead improvements or other projects that occur in the area. Improvements to trailheads would include adding visitor amenities and could make them eligible as a standard amenity fee site under the Federal Lands Recreation Enhancement Act in the future. Fee sites would be approved in an independent process including in-depth public engagement separate from this project.

Saddle Horse Trailhead (See map 2) Action: Construct a new trailhead at a location east of the winter gate on Forest Service Road 556 approximately 1 mile east of the existing Little Elden Springs Trailhead The new parking lot would meet engineering standards and provide adequate turn around for vehicles with horse trailers.

Objective: To provide improved year-round access from Highway 89, reduce traffic impacts to Forest Service Road 556 and to provide a hub for new equestrian designed trails in the area.

Elden Lookout Trailhead Expansion (see map 3) Action: Expand parking area for Elden Lookout trailhead accessing Elden Lookout and Fatman’s Loop trails to accommodate 50 vehicles from the current 20 vehicles. Add a vault toilet, picnic facilities, and other visitor amenities as needed.

Objective: To provide for user safety and to accommodate increasing demand.

Sandy Seep Trailhead Expansion (see map 4) Action: Expand parking area for Elden Lookout trail to accommodate 30 vehicles from the current 10 vehicles and provide for signed horse trailer only parking. Add a vault toilet, picnic facilities, and other visitor amenities as needed.

Objective: To provide for user safety and to accommodate increasing demand and provide an attractive alternative to the nearby and congested Elden Lookout Trailhead.

15 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Schultz Tank Trailhead Improvements (see map 5) Action: Replace vault toilet at Schultz Tank Trailhead and re-surface the parking area. Sign and designate trails around the water tank.

Objective: Update facilities to meet demand and improve user experience and reduce braiding and confusion around Schultz Tank.

Oldham Basin Trailhead (See map 5) Action: Construct a trailhead with a restroom near the junctions of Lower Oldham and Rocky Ridge at an existing impacted area for a timber log landing and recent road construction staging area. This trailhead would replace the small Brookbank and Oldham Trailheads, a short distance up the road.

Objective: To provide a formal trailhead parking area at the convergence of three Forest Service trails (Lower Oldham, Rocky Ridge, Brookbank) and adjacent to a climbing area (West Elden). Lower elevations and exposure would provide opportunities for improved year-round access opportunities.

Relocate Schultz Creek Trailhead (See map 6) Action: Relocate the Schultz Creek Trailhead to a ridge top location on the west side of Forest Service Road 420 and decommission and close the existing trailhead and access road in the drainage. Relocate the winter gate farther north of the trailhead. This would be a small primitive parking area.

Objective: To provide improved year-round access and reduce road maintenance needs and mitigate sedimentation and erosion into Schultz Creek from the existing trailhead location. This trailhead would not serve as a replacement for the Schultz Y parking area and would not be the primary access for the area.

The “Schultz Y” Trailhead (See map 6) Action: Construct a trailhead with a restroom and other visitor amenities near the junctions of Schultz Creek and Rocky Ridge trails. This trailhead would be near the City of Flagstaff Open Space parcel.

Objective: To address a lack of formalized parking on adjacent lands, provide a formal trailhead parking area to support the Schultz Loops that is easily accessed from the City of Flagstaff. Lower elevations and exposure would provide opportunities for improved year-round access opportunities.

5. Mount Elden Environmental Study Area Improvements (See map 3) Action: Relocate interpretive trails and signs as needed, and update signage for historic trails such as the Beale Wagon Road. Provide for opportunities for interpretation of interesting natural phenomena, resource management, and natural and human history along the trail corridor. Work with cultural and tribal partners to develop interpretation and awareness of the significance of the area.

16 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Objective: Improve the educational opportunity within the Environmental Study Area by providing a better visitor experience. Encourage learning and appreciation for natural and cultural features of the area to increase awareness and citizen stewardship.

6. Special-Use Trail Events Action: Authorize issuance of recreation special use permits within the parameters established by this proposal. Events would occur on system trails suitable for recreation events that minimize impacts to wildlife, archeological sites, and other natural resources. Sponsored or commercial, permitted non-motorized trail events would be issued consistent with the parameters listed below and in the design features, including limiting group size and number of events during certain seasons and periods. Specifically:

• Issuing up to 5 Long Term Recreation Events Special Use Permits for up to 5 years for reoccurring events in the project area.

• Issuing up to 2 temporary Recreation Events Special Use Permits per year for one-time events in the project area.

• Restrict the total number of participants to 300 per event.

• Restrict events to only Forest System Trails.

• For events primarily taking place in the project area, restricting to one event per weekend and no events on Summer Holiday Weekends (Memorial, Fourth of July, and Labor Days).

Objective: Provide improved and consistent management of special use events in the Mt. Elden/Dry Lake Hills and mitigate impacts to natural and cultural resources, while streamlining special use permit application, processing, and administration.

Proposed Design Features The proposed action is designed to comply with law, regulation, policy and Forest Plan standards and guidelines. Design features would be incorporated into the project to protect forest resources of recreation opportunity and experience, soil, water, scenery values, cultural resources, wildlife and aquatic habitat, and rare plants. Mitigation measures and best management practices would be implemented to prevent the introduction and spread of invasive plants, to protect threatened, endangered and sensitive wildlife habitat and plant species, to protect heritage resources, and to protect public health and safety during project implementation. Specific design features include:

• Archeological surveys and clearances would be obtained prior to ground disturbing activities. • All sites unevaluated to or eligible to the National Register of Historic Places (NRHP) would be avoided by all ground-disturbing activities. • Archaeological site conditions should be monitored after project implementation to address potential looting and vandalism due to increased traffic and visibility. • Should any previously unidentified cultural materials be discovered during project implementation, work must cease immediately, and the Forest Archaeologist must be

17 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

contacted to initiate the consultation process as outlined in the Advisory Council on Historic Preservation Regulations (36 CFR Part 800.13). • Unauthorized trails identified for closure and restoration will be evaluated for cultural resources inventory and survey needs prior to implementation. • Where existing or current survey is not already available, Mexican spotted owl surveys would be coordinated with the U.S. Fish and Wildlife Service to determine occupancy of owls in the project area during implementation. Surveys include the project footprint plus ½ mile beyond the perimeter of the project boundary. • To minimize disturbance to the Mexican spotted owl, any construction, maintenance, or physical closures of new, existing, or unauthorized trails would not occur within 0.25 mile of known nest or roost locations during the breeding season (March 1 to August 31). If the nest/roost site is unknown, where feasible, these activities would not occur within 0.25 mile of the boundary of designated nesting areas (known as a Protected Activity Centers or PACs). • Minimize removal of key components of Mexican spotted owl habitat during project activities including hardwoods and large trees, snags and logs, consistent with the Recovery Plan. • Project implementation activities would be coordinated with the District wildlife biologist to minimize potential impacts to nesting raptors (Northern goshawk, golden eagle, and peregrine falcon). • A wildlife mitigation plan for Routine Trail Maintenance will be developed. The plan will include protocols for mechanical equipment use and trail crew group size, including chainsaw use within and adjacent to Mexican Spotted Owl Protected Activity Centers. • When installing toilets or signposts, ensure that all open top vertical pipes with an inside diameter greater than 1 inch should be capped or otherwise designed to prevent animal entrapments (FW-WFP-G 7). • New construction would avoid impacts to sensitive plant species. Prior to construction, coordination would occur with the district botanist or forest botanist to ensure that route alignments are chosen that would avoid or minimize impacts to sensitive plants. • For new construction, decommissioning and restoration, all equipment to be used off of system roads would be cleaned prior to entering Forest Service lands. This is to reduce the likelihood of introduction or spread of non-native invasive plants. In all project related contracts, include provisions that require equipment cleaning before project implementation. • Avoid routing trail through known infestations of non-native invasive plants or treat them before putting in trail. • Where available, any plant materials used for decommissioning and restoration would be from on-site sources (chipped wood, etc.). All plant material from off-site sources (straw, mulch, etc.) must be certified weed free. • Trail Construction will follow all applicable best management practices (BMPs) for motorized and nonmotorized trails outlined in FS-990a, National Best Management Practices for Water Quality Management on National Forest System Lands (pages 91-93).

18 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

• Locate or relocate trails to conform to the terrain, provide suitable drainage, provide adequate pollutant filtering between the trail and nearby waterbodies, and reduce potential adverse effects to soil, or riparian resources. • Locate new trail segments on hill contours as much as possible. Out-slope tread surface, with grade reversals and rolling dips to decrease and minimize sediment production and transport. • Stabilize slopes, creating natural vegetation buffers, diverting runoff from exposed areas, controlling the volume and velocity of runoff, and conveying that runoff away from the construction area to reduce erosion. • After wildfires in areas of high or moderate soil burn severity, trail construction will not begin until at least four seasons after the wildfire. If construction is planned within less than four seasons, coordination will occur the Forest Hydrologist for evaluation and to ensure proposer mitigations are in place for these areas. • In areas of high traffic or steep slopes, armor the trail with large material and increase the occurrences of gradient reversal. • Locate new trail segments away from drainage bottoms in an upland position. Distance away from stream channel should increase if trail is located on soils with moderate or severe erosion potential. • Minimize drainage crossings and try to cross drainage as close to perpendicular as possible. Utilize rock and wood to stabilize streambanks where trails cross streams. • Avoid the use of equipment and machines during wet months when soil saturation and water levels are high. Limit use of National Forest System land for event staging and encourage staging off of National Forest System land. • Trails passing through cattle allotment and pasture fencing will have proper gates installed that accommodate equestrians and pack stock, gates should be at least 6 feet wide and designed to be closed easily from horseback. • Avoid recreation special use events that occur on back to back weekends. • Special use event set up and breakdown will occur no more than seven days prior and following the event date. • Consider timing and location of events to minimize conflict with other management activities (timber, range, or other permitted uses). • Avoid permitting recreation events that may result in adverse effects within the Elden Environmental Study Area to comply with the Forest Plan direction for Mt. Elden Management Area (Forest Plan, page 140). • No event camping will be permitted within Mexican Spotted Owl Protected Activity Centers at any time. • A wildlife mitigation implementation plan for Recreation Events will be developed. The plan will include protocols for timing, location, and size of events during different times of the year.

19 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Implementation Plan An implementation plan (appendix B) has been developed which describes community engagement during trail planning, priorities for implementation, funding, trail layout and design, resource review of site-specific trial alignment, approaches to trail construction and closure, education and enforcement, maintenance, and monitoring.

Changes between scoping and the current proposed action Based on scoping comments and collaboration (see Agencies or Persons Consulted section), the following adjustments or modifications were made to the Fall 2020 version of the proposal:

• Inclusion and development of a system of trails in the Mount Elden Environmental Study Area in the base of Mount Elden to provide better access and recreation opportunities while managing unauthorized trails in this urban interface area. Includes access routes to popular rock-climbing sites, removal of the proposed Paradise Trail, corrects spurs to city-owned access points, and upgrading the Lower Oldham Trail from Buffalo Park to the proposed Elden Base Urban Trail to a class 4 urban trail. • Adoption of segments of the old Little Elden Trail as inclusion in the Sandy Seep Loops near Heart and Sandy Seep Trails. Adding a trail to connect the Equestrian Loops to the Sandy Seep Loops from Sandy Seep Trailhead to trails near Forest and Sunset Boulevard. Removed upper portion loops of Sandy Seep Loops near the Old Heart Trail. • Eliminated the adoption of Wasabi Trail, relocation of Upper Oldham Trail, and the construction of 2 new Directional Mountain Bike Trails adjacent to Upper Oldham. Inclusion of Private Reserve adoption to Lone/Soaring Eagle and adoption of Lone/Soaring Eagle as Directional Mountain Bike Trails. Closure of lower Private Reserve below Lone Eagle and closure of Wasabi and Funonions trails. Construction of one additional Directional Mountain Bike Trail on the north slopes of Turkey Park and south of Upper Oldham Trail. Inclusion of realignments of Upper Oldham Trails in specific locations. • Inclusion of a Directional Mountain Bike Trail, referred to as Sunset Ridge Trail, from the first summit of Sunset Trail near the junction of Brookbank Trail down to Schultz Tank. • Modification to the Devils Chair Trail to shorten and conclude the upper terminus at Forest Road 557A near the Devils Head Communication Site, not at the Elden Lookout Tower. • Removal of Dry Lake Ridge Trail and extension of Lost Burrito Trail away from the southern Dry Lake to the junction with Ginger and Brookbank Trails. Corrected connections of trails Designed for All Use in the Schultz Creek Loops, near Lost Burrito. Removed northern most Schultz Creek Loop connections to Schultz Creek Trail and added connection near Chimney Trail junction. Inclusion of a new trail alignment connecting Brookbank Trail with the Schultz Creek Loops closer to the Ginger drainage, while eliminating the original proposed alignment. • Retain Little Elden Trailhead in the current location and construct a new trailhead, referred to as Saddle Horse Trailhead, east of the winter gate on Forest Service Road 556. • Development of additional detail of Recreation Special Use Permit direction including limiting to a specific number of long-term permits and annual temporary permits, event participant limitations, and timing parameters.

20 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

• Developed an implementation plan (see appendix B). Alternatives Considered but Eliminated from Detailed Study Based on the planning and analysis conducted by the interdisciplinary team and the public comments received (see Agencies or Persons Consulted section), many alternatives or adjustments were considered in developing the proposed action presented in this environmental assessment. This section describes some of the broader or general alternatives that were suggested and considered and why they have not been carried forward for detailed study. Many public comments expressed preferences about individual trails or locations. appendix C lists more trail- specific alternatives that were suggested in the public comments and a rationale for why they were not carried forward into the modified proposed action, or analysis.

Scoping proposed actions Two proposed actions have been considered and distributed to interested parties for public comment (2013 and 2020). These proposed actions were modified in response to new information and input from stakeholders in their scoping comments. The changes to the proposed action between 2020 scoping and this environmental assessment are listed in the Proposed Action section above.

Reduce or eliminate single use trails or one-way trails; or designate more trails for single use (hike or bike) Public comments requested that we limit or remove trails designed or designated for a single use. Other comments suggested we should allow for two-way traffic on all trails (or eliminate the directional trails). Conversely, some comments requested we design more trails for either hiking or biking-specific uses. The proposed action includes a small proportion single use trails (relative to existing and new trails designed for all uses). The Desired Conditions of the Coconino National Forest Plan states “Multi-use trails are more common than single-use trails” (p. 115). Therefore, most trails in the proposed action would be designed and managed for all uses, consistent with management direction to provide for a variety of trail experiences and balance user experience with impacts. Forty-two miles of new trail construction would be designed for all users, while 23 miles would be designed for a specific use, either bicycle, hiking, or pack use. However, the designated use does not mean that other users would not be allowed. Approximately 86 percent of the proposed trail system would be open for all users.

Only about 14 percent of the proposed trails would prohibit certain users to address safety concerns or other management direction. For example, bicycles would be prohibited on several trails designed for hikers to manage steep exposed trails safely and sustainably (such as how Elden Lookout Trail has historically been managed). This includes Devil’s Head, Lost Burrito, and Elden Lookout North Trails. In addition, equestrians would be prohibited on some Urban trails, such as Lower Oldham out of the City of Flagstaff’s Buffalo Park, consistent with management direction in the Forest Plan which prohibits equestrian use into the Park.

Increase the miles of designated/mountain bike specific trails Public comments requested an increase in the number of miles designed for or specific to mountain biking. The proposed action for mountain bike trails includes over 33 miles of new trail and approximately 22 miles of unauthorized trail adoption. That is approximately 46 percent increase for the system. Unauthorized trails proposed for closure or that were not adopted were not sustainable, resulted in impacts to project areas resource, or another route already provided

21 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest the same opportunity (see appendix C). The modified proposed action balances user experience with impacts of the trail system, as directed by the Forest Plan. See also the rationale above regarding single-use trails.

Eliminate Directional Trails Public comments suggested that directional trails should not be constructed or that directional mountain biking uses should be located elsewhere on the National Forest instead (for example Snowbowl). The modified proposed action adjusts the location of the directional trails to further balance experience with resource impacts. However, directional trails are still proposed to meet the need for a variety of trail experiences that has clearly been identified by the public. The proposed action identifies areas for directional mountain bike opportunities on three specific trails, reducing this activity on other non-motorized trails where this type of use may not be appropriate or might cause user conflict, and reducing the occurrence of illegal unauthorized trail construction to provide for this activity. Recently Arizona Snowbowl Resort submitted a Master Development Plan (MDP) to the Coconino National Forest and this plan was accepted. A major part of the MDP is to increase summer recreation opportunities at the ski area. This includes some hiking opportunities, but more importantly proposes to operate a system of lift served down-hill mountain bike trails to be planned and constructed at some point in the future. At that time, some demand for this activity may eventually shift away from the MEDL project area and onto Arizona Snowbowl Resort. However, ski area lift served mountain biking may serve a slightly different niche than the directional mountain bike trails proposed in the MEDL project, as they would be fee-based and wouldn’t require pedaling uphill. By including directional trail opportunity in a sustainable and lower impact area, and closing unauthorized trails, the proposed action reduces the environmental impacts of this use.

Prohibit horses from multi-use trails Some comments suggested that horses should be prohibited from using multi-use trails in the planning area. Equestrian use is authorized use of the project area and Forest Plan management direction states that a variety of non-motorized trail experiences should be provided in the Mount Elden Management Area. The 2015 National Visitor Use Monitoring found Horseback Riding was one of the least common primary trail activities on the Coconino National Forest, which included Hiking /Walking (74 percent), Bicycling (5.6 percent), and Horseback Riding (0.2 percent). It is not expected that horse use will rise to the level of concern that would require a horse prohibition in the planning area. The implementation plan (appendix B) would provide for trail user education, which would reduce trail conflicts.

Decrease the number of new trails, decrease adoption of user-created trails Comments suggested that the proposed action should include fewer new designated trails or adopt fewer user-created trails to protect sensitive resources (wildlife, geologic and ecological) in the area, create areas with lower trail density for wildlife habitat (for example Western Dry Lake Hills), or create areas for more solitude and quiet recreation. Even though the project area is relatively small, the project provides diverse recreation opportunities. There are some areas of proposed dense trail networks and dense recreation opportunities like the Schultz Creek Loops and Sandy Seep Loops areas and other relatively large areas free of development like around Little Elden Mountain and the slopes between Schultz Creek and the western Dry Lake. The environmental impacts section addresses the effects of the project on sensitive resources, including wildlife. Trail closures and restoration would be used to protect particularly sensitive resources or habitats, including within the Environmental Study Area. Although the proposed

22 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest action proposes approximately an additional 65 miles of system trail construction or adoption and a total of approximately 114 miles of non-motorized trails, when compared to existing system and inventoried unauthorized trails, trail densities would slightly decrease. The existing system includes 6.1 miles of trail per square mile, on average, and the proposed action would be an overall trail density of 5.2 miles of trail per square mile, although some areas would be denser (such as Sandy Seep Loops) and some areas less dense (such as Little Elden Mt.). Adoption of unauthorized trails are only proposed where impacts to project resources can be mitigated and would only be adopted into the system once they were maintained, reconstructed, realigned, and would meet Forest Service trail standards for the appropriate types of use.

Reduce trail conflicts with alternate day schedule Some comments suggested that the proposal should include use of alternate days for alternate uses to reduce trail conflicts. This type of management is not desired for the MEDL Area. A managed schedule for trail users would not meet the Desired Conditions of the Coconino National Forest Plan, which states “Multi-use trails are more common than single-use trails” (p. 115). Because many visitors to the planning area travel hundreds of miles (such as Maricopa County) to recreate, it is not expected a trail schedule would be manageable, effective, or equitable. The implementation plan (appendix B) would provide for trail user education, which would reduce trail conflicts.

Build bike park or play area Some comments requested that the proposed action include construction of a bike park, pump track, or other play area. The management and operation of a bike park is a complicated, unique, and ambitious undertaking and this use is more appropriate off-Forest System Lands (like a local park and private land) or under a special use permit authorization. The Forest has never received an application for the construction, maintenance or operation of a bike park from a special use proponent. If an application was received, the Forest would screen the proposal and analyze the impact in a formal process separate from this project.

Environmental Impacts This section summarizes the potential impacts of the proposed action and alternatives for each impacted resource and includes analysis to address concerns that were raised in public comments during project scoping. Resources that were not impacted and therefore not further analyzed include: silviculture/forestry, fire and fuels, engineering and roads, grazing, and land ownership. Recreation Trails provide visitors to the Coconino National Forest with a variety of non-motorized and motorized access options. Each trail is assigned a use or combination of uses (such as hiking, biking, equestrian, and motorized). Most trails on the forest are open to all modes of non- motorized recreation. Trails open for motorized travel are identified through the travel management process and are included on the motor vehicle use map. Trailheads are the gateways to Coconino National Forest, providing visitors with portals to the trail system. Trailheads can range from simple pullouts and trail signs to more developed parking areas with additional amenities for increased user comfort and enjoyment of the assigned uses of the associated trail system.

23 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Table 1 and map 1 show the amount and location of current recreation facilities and unauthorized trails in the MEDL planning area. The Need for the Proposal provides some background on the existing conditions and trends of the recreational opportunities in the project area.

Environmental Effects of No Action The no-action alternative would leave the MEDL project area with the existing system of approximately 50 miles of system trails and eight trailheads; none of these trails or trailheads would be rerouted, relocated, or improved. The inventoried 76 miles of existing unauthorized trails would continue to be used by forest visitors without any mitigation of impacts to wildlife or erosion. The Mt. Elden Environmental Study Area would continue to be used informally and no improvements would be made. Recreation Special Use Events would continue to be issued on a temporary basis with little consistency or management direction. The lack of new trail construction or adopting unauthorized trails would continue to affect the recreation resource.

The population in Flagstaff, the State of Arizona, and the Southwestern Region will continue to grow. The MEDL trail system has changed very little since the early 1990s, approximately 30 years ago. During this same duration, local and regional populations have exploded. Table 3 shows the population growth of the City of Flagstaff, the State of Arizona, and Maricopa and Coconino counties from 1990 to 2019 (Headwaters Economics 2021). Population trends in Maricopa are important because Maricopa County is the second most common place of residence (behind local Coconino County residents) for visitors on the Coconino National Forest (USDA Forest Service 2021). The Urban Institute (2015) projections shows these dramatic population increases to continue into at least 2030.

Table 3. Regional Population Growth (1990 – 2019) Percent Change Demographic Area 1990 2010 2019 1990 - 2019 City of Flagstaff 45,857 63,909 72,402 37 State of Arizona 3,665,228 6,246,816 7,050,299 48 Maricopa County 2,112,101 3,751,410 4,328,810 51 Coconino County 96,591 131,824 141,274 32

With dramatic population increases, recreation is expected to increase on the Coconino National Forest, as well as in the MEDL project area. User conflicts will increase on the stagnant trail system, and trailheads and facilities will be inadequate to balance visitation and protect forest resources. User demand for different recreation opportunities on existing system trails could lead to safety issues. For example, conflict between mountain bike riders looking for challenge may conflict with pedestrian or equestrian users, resulting in negative interactions or dangerous accidents. The lack of growth in a trail system that was designed and built for the 1990s will have continuing and increasing negative impacts on recreation resources.

With the no-action alternative, funds would not be needed to implement additions or improvements to trails and trailheads, but there could also be increased costs associated with ongoing deferred maintenance and poorly designed trails. Existing trails that are poorly aligned and concentrate runoff will continue to be expensive to maintain.

24 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

By not adding additional parking areas and trailheads or expanding existing trailheads, access to the project area would remain stagnant. The potential to adequately manage access and thus reduce the number of visitors to the project area and the need for growth of the trail system seems unlikely. When visitors arrive at a trailhead where all the designated parking is occupied, they commonly park along access roads or other areas not designed for parking. For instance, on most weekends during the summer at Elden Lookout Trailhead, vehicles are often parked on the nearby Flagstaff Urban Trail System or illegally parked along US Highway 89.

No trailhead facilities would be upgraded, and no new vault toilets would be added. With increase visitation and limited toilet facilities, human waste will likely become more prevalent around the existing trailheads. There are numerous resource issues with human waste, including a negative effect on the recreation experience of forest visitors who encounter it.

For the no-action alternative, none of the existing forest system trails would be rerouted. Several system trails are poorly designed and are having negative resource impacts, which would continue. These ecological impacts will be discussed by other resource areas, including wildlife and soils and water resources, but there is also an impact on recreation resources, specifically visitor experience and safety. On trails that are too steep and highly eroded, safety can be compromised: hikers are more likely to roll an ankle, horses are more likely spook and throw a rider, and bicycles are more likely to have difficulty braking downhill. By not rerouting any trails there is a negative effect on recreation resources.

No unauthorized trail closures or naturalization would take place within the no action alternative. Use on the 76 miles of inventoried unauthorized trails would continue. These trails were never designed or engineered to meet safety or environmental standards and are having negative impacts on several forest resources. In many places trail tread will become so incised from carrying water and sediment erosion that it will be undesirable to walk or ride in these narrow trenches. This will likely lead users to illegally construct additional unauthorized trails, exacerbating the issues. By not dealing with the issue of unauthorized trails in the project area there will continue to be a negative effect on recreation resources.

Existing closures and prohibitions would remain in place (see figure 2), including both campfire prohibitions across the project area and camping prohibitions in certain parts of the project area. The number of wildfires caused by people is expected to stay approximately the same over the next several decades. Research has found that urban interface areas and the prevalence of roads are the two strongest influences on human-caused ignitions of wildfire (Romero-Calcerrada et al. 2008). No action would have no impact on the probability or severity of wildfires in the project area.

No improvements would be made to the Mt. Elden Environmental Study Area. Interpretive signs and educational material will not be updated or improved. Most of this material was developed in the 1970s and may no longer be accurate, relevant, or inclusive today.

In the no action alternative recreation special use events would continue to be processed on a case-by-case, “as needed” basis, and no capacity or timing restrictions would be set for these events. The number of temporary events could increase without further analysis.

25 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Figure 2. Existing Forest Closures and Prohibitions

26 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Environmental Effects of Proposed Action

Direct and Indirect Effects The forest trail system would be greatly increased by the proposal, adding approximately 65 more miles of trail. The proposed action would bring the MEDL trail system up to approximately 114 miles of non-motorized trails. Within the 21.1-mile project area, the overall trail density would be 5.2 miles of trail per square mile (table 4), although some areas would be denser (such as, Sandy Seep Loops) and some areas less dense (such as, Little Elden Mountain). Compared to existing system and inventoried unauthorized trails, trail densities would decrease slightly, as shown in table 4.

Table 4. Comparison of existing and proposed trails and density in the project area Indicators Existing Proposed Units System Trails 51.7 113.7 Miles System Trail Density 2.5 5.2 Miles of Trail per Square Mile Unauthorized Trails 76 0 Miles Total Trails 127.7 113.7 Miles (System + Unauthorized ) Actual Trail Density 6.1 5.2 Miles of Trail per Square Mile

Even with improvements, the project area would not likely meet increased demand as use and population increases but will be better suited to handle these expected increases. The proposed trail system would provide better access and education through new and improved trailheads and a trail system that gets users swiftly away from congested areas near trailheads and spreads use throughout the system, while providing unique recreation experiences for a variety of different recreation uses.

User Conflicts Approximately 86 percent of the proposed trail system would be open for all users. Only 14 percent of the proposed trails would prohibit certain users, for example bicycles would be prohibited on some trails intended for hikers like Devils Head. On some urban trails equestrians would be prohibited, such as Lower Oldham out of the City of Flagstaff’s Buffalo Park. The small percent of trails with prohibited uses would reduce user conflicts and provide for visitor safety, while keeping the majority of the project area open to all uses.

The increased trail system is expected to mitigate many concerns over recreation user conflicts. The proposal works to mitigate potential conflicts before they occur by establishing trails of a variety of allowed uses and experiences. The increase of a managed system of trails would disperse trail use over a larger proportion of the project area, thus reducing user conflicts. This project identifies areas for directional mountain biking on three specific trails to meet the desired use, while reducing downhill biking on other non-motorized trails where this type of use may not be appropriate. The proposal increases opportunities for signage and education throughout the system and at trailheads, which also has the potential to reduce user conflicts (Hidalgo 2010).

Visitation to the Coconino National Forest is high compared to other national forests across the region, averaging over 5 million visits annually (USDA Forest Service 2021). The 2015 National Visitor Use Monitoring found that trail use was one of the primary activities on the Coconino

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National Forest, including hiking /walking (74 percent), bicycling (5.6 percent), and horseback riding (0.2 percent). Considering this use with regional and local population growth, providing trail-based recreation opportunities is extremely important for the Coconino National Forest to meet user demands. The MEDL project area was found to be the most common used trail subareas in the Flagstaff Region (Flagstaff Trails Initiative 2018), as shown on figure 3.

Figure 3. Most Commonly Used Trail Areas from the FTI Trail Survey Results (2018)

Unauthorized Trails Inventoried unauthorized trails in the project area sum approximately 76 miles of trails. This project proposes to adopt (23 miles) and naturalize (17.8 miles) of these unauthorized routes. The miles proposed for naturalization focuses on unauthorized trails that have negative resource impacts, including trails that bisect Mexican spotted owl protected activity centers and nest cores. The project also allows for more naturalization and closures of additional miles of unauthorized trails as opportunities are identified. Local support exists for the removal of some unauthorized trails, there is less support for removal of all unauthorized trails, and little support for no unauthorized trail removal (Flagstaff Trails Initiative 2018).

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By adopting some unauthorized trails and providing adequate opportunities for new trail construction specific to desired trail experiences, illegal unauthorized trail construction would likely decrease as the project is implemented. Implementation of the proposed action relies heavily on volunteers for construction and maintenance to bring adopted unauthorized trails up to standard. In addition, increased volunteerism is expected in the project area, providing not only trail maintenance and construction labor, but increased monitoring, as well. With increased awareness of illegal trail construction, the Forest can deter further construction, shape investigations, and prosecute offenders (see Implementation Plan – appendix B). The desired outcome is that the project area becomes a place where trails are planned and engineered, where unauthorized trails area rare, and all users have adequate recreation opportunities to enjoy the National Forest.

Mt. Elden Environmental Study Area The project proposes major changes in the Elden Base area within the Mt. Elden Environmental Study Area. It is very important that these activities are compatible with the purpose and character of the environmental study area. The project would also authorize some special use events through the environmental study area. All of these activities of adding trails and allowing events, could increase the use and enjoyment of the environmental study area. New signage and educational material would also increase opportunities for environmental awareness and education. In fact, a more developed Urban trail has great opportunities to complement the purpose and character of the environmental study area. This Elden Base Urban Trail would allow a greater audience and accessibility to enjoy and learn in the environmental study area. Improved signage and a better system of trail loops in this area, in addition to naturalizing some unauthorized trails would make the environmental study area easier to navigate and enjoy both for nearby residents and visitors.

Access to the Trail System Access to and from the project area could have impacts to recreationists. The proposed action would focus denser trail networks with easy access from the community. The MEDL plan includes an urban trail to connect with the existing 89 North Flagstaff Urban Trail System, around Elden Pueblo Archeology Interpretive Site to Sandy Seep Trailhead, making both large US Highway 89 trailheads and trail networks accessible from Flagstaff Urban Trail System connections and Mountain Line Bus Transit stops. In addition, the City of Flagstaff has identified a planned Flagstaff Urban Trail System trail along Elden Lookout Road from US Highway 180 to the Schultz Y, which would increase non-motorized accessibility to southwest portion of the project area. Access roads to trailheads and access points are managed and maintained by a variety of municipalities, including Arizona Department of Transportation (US Highway 89), Coconino County (portions of lower Elden Lookout and Elden Springs Roads), City of Flagstaff (variety of city residential roads and Buffalo Park), and the Forest Service (Schultz Pass and Elden Springs Roads). Each jurisdiction is responsible for providing safe transportation access on these roads both for residents and visitors. On Forest System Roads in the project area, additional warning and regulation signs may be implemented and enforced as needed.

Economic Impacts Overall, recreation opportunities are directly related to the local and regional tourist economy. For example, in 2017to 2018 visitors contributed an estimated 502.8 million dollars in direct visitor spending in Flagstaff (Bradford et al. 2019). The impact that the MEDL project area and trail system specifically adds to this economy is less clear. The Flagstaff Convention and Visitor

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Bureau (FSVB) estimates that the City of Flagstaff sees over 5 million visitors each year, but lightly less than half of those visitors are here primarily to visit Flagstaff; most are stopping on a longer trip visiting places like Grand Canyon National Park or Sedona, Arizona. From Flagstaff Convention and Visitor Bureau visitor surveys, only 32 percent of visitors venture on a trail (foot or bicycle) and only 21 percent visit the “Peaks” area. The MEDL Project Area would be an even smaller subset of the “Peaks” area, behind the Arizona Snowbowl Ski Area.

The enhancement of trails and the construction or improvement of trailheads are expected to have a positive economic impact on the community, as trail recreation and public land access demands continue to grow. The numerous trails added would allow for additional recreation events in the community, further increasing tourism in the local area. Additionally, increasing trail opportunities would likely enhance the community’s draw for full time residents that value easy access to public lands for recreation. Although the trail system in the project area would have positive economic impact on the community, it would be a relatively small contribution to the larger tourism economy in the region. Likewise, the proposed unauthorized trail closures would have little impact on changes in the tourism economy. These anticipated changes are small relative to the greater tourism economy and cannot be quantified. It is expected some jobs will be created for the implementation of this large project and may have a small positive impact on the construction and professional trail construction economy.

The project proposes to increase trails close to private property and could have impacts on these neighboring landowners, but it is not expected to have quantifiable negative impacts on nearby property values. There can be both perceived negative impacts (increased opportunity for crime and illegal activities) and positive impacts (improved access and psychological relaxation of open spaces), but “the dominant prevailing sentiment was that the presence of a trail had a neutral impact on the saleability or value of property” (Crompton 2001).

Potential for Wildfire Human-ignited (caused) wildfire in the project area is a concern due to major values are risk in and associated with the project area. Over 300 hundred wildfires have been recorded in the project area over the last 30 years, only 40 percent of these fires were determined to be caused by human activities, and only 4 of these fires grew over 10 acres as depicted on table 5 and figure 4. The project area has had a campfire prohibition for most of these 30 years and will continue into the future. Figure 2 shows both the campfire prohibition across the entire project area and the camping prohibition close to the City of Flagstaff.

Table 5. Fire history in the project area (1990-2020) Cause/Size Number Percent Total Wildfires 308 100 Lightening or Undetermined Cause 187 60 Human Caused 121 40 Human Caused less than ¼ acre 92 76% of Human Caused Human Caused less than 10 acres 118 97% of Human Caused Human Caused greater than 10 acres 4 0.5% of Human Caused Wildfires over 100 acres 3 1 Side (1996), Schultz (2010), Museum (2019)

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Figure 4. Wildfire History – 1990 to 2020

The number of human-caused wildfires caused is expected to stay approximately the same over the next several decades. Research has found that urban interface areas and the prevalence of roads are the two strongest influences on human-caused ignitions of wildfire (Romero-Calcerrada et al. 2008). The correlation between human-caused ignitions and public access may result from several factors, the most common of which are arson, machinery use, infrastructure (for example power lines), and abandoned campfires. In general, these activities are unlikely to occur in the project area, due to the existing campfire prohibition and concentrated trail use expected to occur. Yet wildfire from some activities, such as improper disposal of cigarettes, would be more likely to occur because of the increased access and trail designations. This increase in risk of wildfire ignition cannot be quantified, but it is extremely small.

In addition to affecting ignitions, trail access has a major influence on fire suppression efforts both by providing control lines and by allowing more efficient firefighter access (Narayanara et al. 2011). This project would involve both the construction of new trails and adoption of unauthorized trails. These routes would function to serve as access and control lines for wildfire suppression efforts.

Cumulative Effects Cumulative effects for this project consider relevant past, present, and reasonably foreseeable future activities within northern Arizona. Several past fires and ongoing projects or activities have recently changed the character and landscape of the project area, including: the Museum Fire (2019), the Heart/Little Elden Trail Realignment, the Flagstaff Watershed Protection Project (FWPP) and the Mt. Elden Communications site operation, maintenance and improvements. These have been considered in the development of the proposed action (see Background and

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Need for the Proposal sections). In addition, future recreation projects are reasonably foreseeable that may affect recreational use and resources in the project area, including: Arizona Snowbowl Facility and Summer Improvements, Flagstaff Ranger District Outfitter/Guide Planning, and Fort Valley Trail Planning.

To reduce wildfire risk the Flagstaff Watershed Protection Project has been in operation in earnest since 2017. Flagstaff Watershed Protection Project Phase I brought major changes to the Elden Base and Rock Ridge areas, leading to increased patterns of unauthorized trails in this busy urban-interface area. Helicopter and steep slope logging in 2018 and 2019 created large landings throughout the project area, some of which are now being proposed for trailheads like the Oldham Basin Trailhead. There are currently two more timber sales planned in the project area that have a potential to affect trails in the project area. Implementation of these timber sales is likely to take place well before the implementation of the MEDL Project. Most Flagstaff Watershed Protection Project activities had negative impacts on trails in the project area and the trails are slowly recovering, but the activity has increased the need to address the trail system. The forest closures associated with Flagstaff Watershed Protection Project operations have included frequent area closures which has had social impacts on recreationists in the project area.

Another major landscape change was the Museum Fire in 2019. Although relatively small (less than 2,000 acres), it had a large effect. The fire burned in the heart of the project area but had only a moderate impact to the existing trail system. However, in the steep slopes of the burned area, any new trail construction would have to wait. It is necessary to give the slopes enough time to rejuvenate soil productivity, grow back vegetation, and stabilize steep slopes before new or additional trails can be constructed in the burn area. In the moderate to high soil burn severity areas, MEDL implementation would wait until at least 4 years after the fire (see design features). figure 5 depicts soil burn severity in relation to existing and proposed trails.

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Figure 5. Soil burn severity and proposed MEDL trails in the Museum Fire perimeter

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In 2020 the Heart / Little Elden Trail Realignment was completed. This was the first major trail construction project in the project area in over 25 years. The newly established trail alignments have changed some use patterns in the project area. The new trials avoided historically steep, rocky, and loose sections as well as long sandy segments, largely increasing the accessibility of this area to mountain bikes, who historically did not frequent this area often. These new trails show the potential for growth and expansion as the MEDL plan describes in the Sandy Seep Loops area. The Heart / Little Elden Trail Realignment Decision Memo decided to rehabilitate and naturalize the abandoned segments of Heart and Little Elden Trails, while the MEDL plan sees some of these segments as appropriate for reuse (after small reroutes and heavy maintenance) in building a desirable system of loops easily accessed from the Sandy Seep Trailhead.

Operation and maintenance of the multiple communication sites on the top of Mt. Elden, TV Hill, and Devil’s Head is expected to continue and possibly grow. The connection with the proposed Devils Head trails and Forest Road 557A will need to be carefully planned to avoid existing and planned communication sites in that area. The scenic and visual resources will continue to be impacted by the necessary and important technological features into the future.

Arizona Snowbowl Resort (ASR) sits near the project area in the San Francisco Peaks. Arizona Snowbowl Resort has provided a winter recreation destination for over 80 years, serving hundreds of thousands of skiers each winter. Recently Arizona Snowbowl Resort submitted a Master Development Plan (MDP) to the Coconino National Forest and this plan was accepted. A major part of the Master Development Plan is to increase summer recreation opportunities at the ski area. This includes some hiking opportunities, but more importantly proposes to operate a system of lift served down-hill mountain bike trails. The Coconino National Forest has not yet analyzed any actions of the MDP and will require future environmental analysis before any implementation like mountain biking could begin. It is unclear if or when down-hill mountain bike trails may take place at the ski area, but this activity has potential to impact the MEDL project. Some demand for downhill mountain biking may shift away from the MEDL project area and onto Arizona Snowbowl Resort, but ski area lift-served mountain biking may serve a slightly different niche than the directional mountain bike trails proposed in the MEDL project, as they would be fee based and would not require pedaling uphill or setting up a private shuttle.

In 2018, the Flagstaff Ranger District released a Recreation Special Use Management Plan which identified needs and capacity for outfitting and guiding services across the ranger district. Subsequently, a prospectus was released for proposals. These proposals were received early in 2020 and these proposals will be analyzed pursuant to the National Environmental Policy Act in the near future. The plan recommends up to 16,700 user days for the MEDL project area (a user day is characterized as 1 visitor on a tour, so for example a mountain bike guide may take 5 customers on each trip and complete 4, 2 hour trips in a day, which would equate to 20 user days). These outfitting and guiding activities could include mountain biking, rock climbing, hiking, trail running/training and bird/wildlife watching. This increase in outfitting and guiding activities could increase trail use and large vehicle parking at trailheads within the MEDL project area. It could also generate revenue for trail maintenance activities and increase stewardship by exposing new visitors to the project area.

The Flagstaff Trails Initiative (FTI) is a collaborative, community driven trails organization. In 2020 Flagstaff Trails Initiative released the Regional Flagstaff Trails Strategy, with multiple

34 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest agencies and stakeholders signing letters of support, including the Coconino National Forest. The strategy outlined priorities for planning, maintenance, and construction of trail systems. The Fort Valley Trail System, directly west of the MEDL project area was the highest recommended priority for trail planning efforts. Ideally planning efforts will take place in the next two to five years for a sustainable trail system in the Fort Valley area. This will have direct impact on the MEDL area as it will provide connectivity and additional recreation opportunities that can expand out of the project area.

Conclusion The proposed action would meet the needs identified for improved, more sustainable trails and access. The project has both indirect, direct, and cumulative effects on recreation resources in the project area. Almost all these effects are positive for recreation resources. Possible negative effects include economic effects of trail closures, increased fire danger, increased crime and property value depreciation, unsustainable recreation demand, and increased recreation user conflicts. All are unquantifiable or are extremely small. Overall, the no-action alternative would have more negative effects on the recreation resource than the proposed action. Heritage and Cultural Resources The eastern flanks of Mt. Elden have the highest number of archaeological sites within the entire ponderosa pine zone of the Coconino Forest. Due to much higher elevations, there is a rapid decrease in prehistoric site densities moving to the central and western portions of the project area. During the last 40 years, numerous cultural resources surveys were conducted in over half of the project area, identifying 260 historic properties including the San Francisco Peaks Traditional Cultural Property. These sites reflect the long history of human occupation and use of the area from late Archaic hunter gatherer period through the prehistoric and proto-historic periods and culminating with middle 20th century sites from Euro and Native American use and settlement of the area. Of the 260 archaeological sites, most of the sites are prehistoric in nature and are represented by lithic scatters, pit houses, small pueblos, a rock shelter, field houses and artifact scatters. Also included is Elden Pueblo, one of the Forests’ premier prehistoric Heritage Sites, where many interpretive and educational programs are made available for school children and the general public. In addition, four springs (Elden Spring, Little Elden Spring, Paradies Spring and Oak Spring) are located within the analysis boundary. A handful of sites in the analysis area have at least one component that dates to the historic period, with most dating to the Statehood period (1912-1946). These sites include the remains of the Schultz Pass Civilian Conservation Corps (CCC) Camp, a segment of historic Schultz Pass Road, portions of the Greenlaw North Logging Railroad Line that represent the logging economy of the early 20th century and segments of the historic Beale Wagon Road.

The 495-acre Mt. Elden Environmental Study Area, developed for environmental education is located within the project boundary at the base of Mt. Elden. The Environmental Study Area contains historic sites, trails, and areas of cultural importance to several tribes.

The entire project area is within the 86,000-acre San Francisco Peaks Traditional Cultural Property. Several tribes, particularly the Hopi and Zuni, recognize many of the sites on the Coconino National Forest as ancestral villages, where many of the ceremonies and traditions of their cultures originated. Pilgrimages to some of these sites are still made, with offerings of prayers and other objects. The Coconino National Forest has identified this Traditional Cultural Property over many years of ongoing consultation with the tribes about traditional locales. The

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San Francisco Peaks were determined eligible for the National Register under Criterion A for their cultural significance to the Acoma, Apache, Havasupai, Hopi, Hualapai, Navajo, Paiute, Yavapai, and Zuni people.

All existing sites in the project area have the potential to increase the knowledge of human activities through various lines of research as well as assist in the interpretation of past human activities on the historic use of the project area to the public.

Environmental Effects of No Action The no-action alternative would allow the network of existing Forest Service system trails to remain without any improvement and the social trails would continue to be unmanaged. Status quo within the project area would not address increased use and associated potential impacts of unmanaged recreation within or immediately adjacent to cultural resources, within areas of cultural significance, and in identified traditional cultural properties within the project footprint.

Unauthorized trail use and unmanaged recreation have significant direct and indirect effects on the special qualities that make this area sacred to indigenous cultures. Some unauthorized trails are causing erosion that is damaging irreplaceable cultural sites. These unauthorized trails are not sustainable and do not address resource concerns. With the no action alternative there would continue to be a negative effect on certain cultural resources or have the potential for effects to be unknown. In addition, the no-action alternative would not provide the opportunity for collaboration and partnership with indigenous communities to identify, protect and preserve culturally significant areas and artifacts within the project area.

In the no-action alternative, no improvements would be made to the Mt. Elden Environmental Study Area. Interpretive signs and educational material will not be replaced, updated, or improved. Collaboration with cultural and tribal partners to develop interpretation and awareness of the significance of the area would not occur.

Recreation special use events would continue to be processed on a case-by-case basis without evaluating overall trail suitability events. Due to the short timelines related to these case-by-case permits, heritage review is limited as most events utilize existing trails and disturbed areas. There would be no timing restriction or capacity set for these events and no formal analysis of heritage resources would occur. Due to the temporary nature of these events and use of existing trails and disturbed areas tribal consultation or engagement is typically limited.

Environmental Effects of the Proposed Action

Direct and Indirect Effects Under the proposed action, evaluation of cultural resources would be conducted during project implementation. As stated in the implementation plan (appendix B) and design features, after or concurrent with preliminary trail design and layout, an archeologist would review the activity and identify the need for survey and any modifications to avoid or minimize impacts to heritage and cultural resources. This process would also allow for SHPO and tribal engagement throughout planning and implementation.

As required by the design features, project-specific inventories for new trails, adoption of unauthorized trails, closure and restoration of unauthorized trails, new trailhead and associated improvements would be conducted to ensure final project design and layout avoids any effects to

36 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest known National Historic Register-eligible or unevaluated sites. Any new sites discovered during implementation would also be avoided. Unauthorized trails currently or found to be causing impacts to known cultural resources would be prioritized for closure (see implementation plan, appendix B).

The addition of new trails and trailheads, and associated recreational uses, within the San Francisco Peaks Traditional Cultural Property results in effects to the Traditional Cultural Property and culturally important places, but these would be minimized through discussions during tribal consultation. Tribal engagement would create opportunities to minimize impacts to cultural resources and the San Francisco Peaks Traditional Cultural Property and other places of cultural significance. Partners and interested parties, including tribal partners, will be involved in the naming of trails as they become ready for public use.

By constructing well designed, sustainable, designated system trails and identified trailheads the proposed action would minimize the damage and degradation of cultural resources from use of these trails. In addition, archaeological site conditions would be monitored after project implementation to address potential looting and vandalism due to increased traffic and visibility. Adding, replacing, or improving trail signs would help direct users, increase compliance and safe, sustainable use of system trails while decreasing the tendency for unauthorized trail construction. Trail signs would also encourage learning and appreciation for natural and cultural features of the area potentially leading to increased citizen stewardship.

The proposed action would provide improved and consistent management of special use events in the Mt. Elden/Dry Lake Hills and mitigate impacts to cultural resources. Designation of suitable routes for recreation events on system trails would avoid impacts archeological sites. Issuance of longer-term permits would provide for clear parameters/limits on capacity and timing of these events, which would support Tribal engagement to minimize impacts to cultural resources and the San Francisco Peaks Traditional Cultural Properties and other places of cultural significance.

Within the Mt. Elden Environmental Study Area, the proposed action would relocate interpretive trails and signs as needed, and update signage for historic trails, such as the Beale Wagon Road. Interpretation of interesting natural phenomena, resource management, and natural and human history along the trail corridor would also occur, providing additional opportunity for collaboration with cultural and tribal partners to develop interpretive material and awareness of the significance of the area.

Cumulative Effects Since the proposed action avoids all impacts to eligible or unevaluated historic sites, there would be no cumulative effect to those sites.

Some effects of the proposed action to the Traditional Cultural Property, while minimized, would still occur. Other past, present, reasonably foreseeable actions, such as recreational use or other Forest Service projects also impact the Traditional Cultural Property. Through increased opportunities for Tribal engagement, this project would aim to reduce overall effects to the Traditional Cultural Property and culturally significant places, when compared to the existing condition.

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Conclusion The no-action alternative would have more negative impacts on heritage resources and the Traditional Cultural Property than implementing the proposed action because ongoing effects of unauthorized or unsustainable trails would continue. The proposed action, while constructing more system trails, trailheads and associated improvements, would have more beneficial effects on heritage resources as a result of inventory of cultural resources and avoidance of impacts; the removal of unauthorized trails that are causing resource impacts; and the opportunities for engagement and collaboration with tribal partners to ensure adverse effects to cultural resources are avoided, and any impacts to the San Francisco Peaks Traditional Cultural Property and culturally significant areas are minimized. Wildlife The analysis of effects on wildlife is organized according to the various laws, regulations and policies that govern wildlife management, including species listed under the Endangered Species Act, the Bald and Golden Eagle Protection Act, Forest Service sensitive species, migratory birds, and other wildlife. This analysis is based on best available scientific information. Data sources used to determine impacts to wildlife and their habitats include surveys and field visits, research and life history literature (see literature cited section), forest plan standards and guidelines, participation of researchers and managers from other agencies, professional judgment and the integration of other specialist reports from this project (recreation and soils and watershed).

Federally Listed Mexican Spotted Owl and Critical Habitat The Mexican spotted owl is the only federally listed species known to occur or that has suitable habitat in the project area. It was listed as a threatened species in March 1993 (USFWS 1993). Designated critical habitat for the Mexican spotted owl also occurs in the project area.

The project area contains both protected activity center (PAC) and recovery habitats as defined in the 2012 Mexican spotted owl recovery plan (USFWS 2012). Recovery habitats are potential owl habitats outside of protected activity centers and are divided into two types: those areas that are identified as future nesting and roosting habitats, referred to as nest/roost recovery habitat in this document, and those habitats that are identified for all other uses, referred to as foraging/dispersal recovery habitat in this document. Much of the recovery habitat in the project area was surveyed for four consecutive years (2016 – 2019) in support of the Flagstaff Watershed Protection Project. The only exception is the ponderosa pine – Gambel oak habitats along the eastern project boundary.

There are also approximately 3,824 acres of Mexican spotted owl designated critical habitat in the project footprint. This includes 1,850 acres of protected activity center habitat and 1,974 acres of recovery habitat. These numbers are significantly lower than those for protected activity centers and recovery habitat analyzed in the Mexican spotted owl section because less than half of the project area is within the boundary of designated critical habitat for the species.

Information about owl habitats in the project area are summarized in table 6 and table 7.

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Table 6: Information about the Mexican spotted owl recovery habitat in the project area Recovery Habitat Acres of Mixed Acres of Ponderosa Total Acres Type Conifer Pine – Gambel Oak Foraging/Dispersal 1,908 1,251 3,159 Nest/Roost 59 0 59 Total Acres 1,967 1,251 3,208

Table 7: Information about the Mexican spotted owl protected activity centers in the project area including survey results the last five years PAC Name Acres 2016 2017 2018 2019 2020 Mt. Elden 600 O-NK O-2Y O-NN O-2Y O-NF Schultz Creek 597 O-NN O-2Y O-NK O-2Y O-NN Weatherford 2 666 O-NN O-NF O-NK O-NN O-1Y Table Legend O = Pair occupancy NK = Nesting status unknown (to protocol) NF = Nest Failed Y = Number of young fledged NN = Non-nesting/Non-reproduction confirmed

Miles of system trails and existing unauthorized trails in owl habitats in the project area can be found in Table 8.

Table 8: Information about miles of existing trails in Mexican spotted owl habitats in the project area System Trails Unauthorized Trails Habitat Type Total Miles (miles) (miles) Protected Activity Center 4.2 5.2 9.4 (acres outside nest core) Nest Core 2.6 1.4 4.0 Total Miles in PACs 6.8 6.6 13.4 Foraging/Dispersal Recovery 14.7 15.5 30.2 Nest/Roost Recovery 0 0.1 0.1 Totals Miles in Recovery 14.7 15.6 30.3 Total Miles in Recovery and 21.5 22.2 43.7 PACs Total Miles in Critical 15.3 16.6 31.9 Habitat

Two existing trailheads – Brookbank and Rocky Ridge/Oldham – are in recovery habitat along Forest Road 556, immediately adjacent to the Mt. Elden protected activity center. These are also located in critical habitat.

Environmental Effects of No Action Under the no-action alternative, the number of miles of system and unauthorized trails in Mexican spotted owl habitats will remain the same. As described in detail in the recreation section, use of existing trails, user conflicts, and the creation of new unauthorized trails are all expected to increase.

Continued use of unauthorized trails in owl habitats, including designated critical habitat, and creation of news one will increase disturbance of nesting and roosting owls caused by noise and

39 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest human presence. Additionally, the lack of realignment of some system trails, continued use of unauthorized trails, and creation of new trails in or near owl habitats could increase erosion and decrease understory vegetation. While canopy cover and structure and the presence of large trees, snags and logs would not be affected, impacts to understory vegetation could affect cover and food resources for prey species of owls and, therefore, decrease prey availability in the project area.

Special use events would continue to be processed on a case-by-case basis with no standard capacity or timing restrictions and without further analysis. Due to the limited analysis, these case-by-case permits would continue to be limited to the fall (outside of breeding season). If events are added, they could increase the intensity of noise effects to roosting owls in the project area if events occurred several weekends each month.

Environmental Effects of the Proposed Action

Direct and Indirect Effects The proposed action includes three types of trail projects: new trail construction, which includes new trail construction and adoption of existing unauthorized trails; trail relocation and improvement; and closure and restoration of unauthorized trails. Table 9 provides detail about the miles of these different trail projects by Mexican spotted owl habitat type. The proximity to known owl nesting and roosting locations was a key consideration in the development of the proposed trail system which involved both Forest and USFWS biologists.

Table 9. Proposed trail projects in Mexican spotted owl habitats in the project area Trail Proposed New Trail Relocation Unauthorized Net System Habitat Type Construction and Trails Closed Change Trails (miles) Improvement (miles) (miles) (miles) (miles) Protected Activity Center (acres 2.3 2.1 4.0 6.5 -2.9 outside nest core) Nest Core 0.5 0.5 2.6 3.1 -.09 Total Miles in PACs 2.8 2.6 6.6 9.6 -3.8 Foraging/Dispersal 10.6 3.8 6.1 25.3 -4.9 Recovery Nest/Roost Recovery 0.3 0 0 0.3 +0.2 Total Miles in 10.9 3.8 6.1 25.6 -4.7 Recovery Habitat Total Miles in All 13.7 6.4 12.7 35.2 -8.5 Habitats

Project activities could affect the level of disturbance in the project area. New trail construction, trail realignments and trail closures/rehabilitation will reduce the miles of system and unauthorized trails in protected activity centers from 9.4 miles to 6.5 miles of system trails (a 31 percent reduction in miles) and in nest cores from 4.0 miles to 3.1 miles (a 23 percent reduction in miles). These changes will result in a decrease in the current level of disturbance from trail use on nesting and roosting owls in the project area. Over time, for the trails that remain in use a slight

40 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest increase in the level of disturbance on nesting and roosting owls may occur but will still be lower than current levels as a result of the proposed action.

An increase in disturbance could occur during construction, realignment, closure/rehabilitation, routine maintenance and annual hazard tree removal. To minimize impacts from these actions, all project related activities including construction, closure, maintenance and hazard tree removal will occur outside of the breeding season (March 1 – August 31) in protected activity center s or within 0.25 mile of protected activity center s, unless protocol level surveys confirm owls were not nesting the year of the proposed activity or surveys locate a nest and, in coordination with USFWS, a buffer is implemented that protects breeding owls from noise throughout the breeding season.

Proposed project activities will have minimal impacts to components of owl habitat such as large trees, snags and logs, canopy cover, forest structure and tree species composition. Biologists will inform new trail locations and realignments to reduce impacts to these habitat features.

Understory vegetation that support prey species will be affected by project activities. Trail construction and maintenance will remove understory vegetation where the trail tread is created and have short-term effects of one to two years to the vegetation immediately adjacent to the trail. The size of the area affected would be small since vegetation would be removed from only a long narrow area (several feet wide) with understory vegetation remaining on either side of trails. Additionally, closing and rehabilitation of 12.7 miles of trails would slightly increase understory vegetation in owl habitats over time. The closing of existing trails would increase understory vegetation, offsetting reductions from the construction of new trails results. Thus, the net impact to understory vegetation is expected to have minimal effects to Mexican spotted owl prey species.

Special use events have the potential to increase the level of disturbance to nesting and roosting owls in the project area. To minimize such impacts, the number of events will be limited to no more than seven events per year and the timing of events and routes will be coordinated with the District and USFWS biologists. A wildlife mitigation implementation plan for Recreation Events would be developed (see design features). Additional measures will be implemented including locating aid stations, starting lines and all other gathering areas outside of protected activity center s and limiting overnight events that use trails in protected activity center s to outside of the breeding season. By implementing such measures, the potential increase in impacts to nesting and roosting owls in protected activity center s from special use events will be limited.

The effects to designated critical habitat are the same as the effects to understory species. New trail construction and trail realignments and trail closures/rehabilitation will reduce the miles of system and unauthorized trails in critical habitat from 31.9 miles to 24.3 miles of system trails (a 24 percent reduction in miles). Although some loss of plant cover would occur where nine miles of trail are newly constructed or realigned and during routine maintenance of existing trails, the closure and rehabilitation of 12.2 miles of existing trails would result in a slightly net increase in plant cover in critical habitat over time.

The new Oldham Basin Trailhead is proposed in an area of designated critical habitat and recovery habitat and will be more than 0.25 mile from the closest protected activity center. It will be located in a heavily disturbed area created during recent logging activities and road work. The creation of this trailhead will therefore have no impact on owls or their habitats. This new trailhead will allow for the closure of the Oldham/Rocky Ridge and Brookbank trailheads further up Forest Road 557. These two sites are located in critical habitat and recovery habitat

41 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest immediately adjacent to the Mt. Elden protected activity center, so closing and rehabilitating these existing locations will slightly decrease potential impacts on owls from noise and improve conditions of understory vegetation at the existing trailheads to benefit prey species.

Cumulative Effects Cumulative effects to Mexican spotted owls and designated critical habitat primary constituent elements (PCEs) include those activities that result in disturbance to the species and changes in vegetative cover and structure and soil conditions that can impact nesting and foraging habitats in the cumulative effects boundary, which is defined as the project area plus 0.5 mile buffer.

Vegetation treatments as part of the Flagstaff Watershed Protection Project have occurred since 2017 in the project area and are expected to occur for a few additional years. These treatments have or will reduce densities of trees and remove ladder fuels from owl habitats, while increasing understory vegetation and retaining and promoting growth of larger trees over time. A helicopter was used in the treatment of one of the sale areas. Treatments in owl habitats were designed in conjunction with USFWS to retain key habitat components in owl habitats. Flagstaff Watershed Protection Project vegetation treatments has and will continue to impact primary constituent elements related to forest structure and maintenance of adequate prey species on some acres of critical habitat in the project area. This includes the removal of some trees and snags and a decrease of canopy cover. A short-term decrease in residual plant cover is expected to occur, but a long-term increase will occur with the increase in sunlight from creating forest openings. To limit the duration of effects to owls and increase the efficiency of completion of the project, treatments were allowed to occur or immediately adjacent to protected activity centers for two consecutive breeding seasons or the 2019 and 2020 breeding seasons. Beginning in 2021, treatments will be limited to outside of the breeding season unless survey results support adjusting the timing. The implementation of Flagstaff Watershed Protection Project has had and will continue to have additive effects to disturbance of owls in the project area when considered in addition to the proposed trail project.

The Museum Fire in 2019 also affected owls and their habitats in the project area. The fire resulted in impacts to canopy cover, forest structure, large trees and snags and understory vegetation in portions of owl habitat in the project area. It also resulted in the long-term loss of primary constituent elements in some areas including large trees, snags and logs, canopy cover, diversity of age classes of trees as well as short-term loss of residual plant cover and woody debris. As dead trees fall, an increase in logs and woody debris is expected as is an increase in understory vegetation due the removal of canopy cover. Additionally, owls were impacted by smoke and disturbance from suppression-related activities including chainsaws, helicopters and other air resources. The loss of key habitat components in some areas and disturbance to owls from the fire has additive effects to the proposed project. These changed conditions from the fire were considered in the development of the proposed trail alignments.

The 2020 Heart/Little Elden Trail Realignment occurred in the project area. While the trail is outside of owl habitat, improvements allows for increased use of the trail and, likely, an increase in the number of people using trails in owl habitats as they complete loops back to their original starting point. An increase in people using trails in owl habitats potentially increases the level of disturbance to owls in the project area.

Operation and maintenance of the communication sites on the top of Mt. Elden, TV Hills and Devil’s Head is on-going with the possibility of growing in the future. Elden Lookout Road

42 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest provides the only access to these sites and, since it bisects the Mt. Elden protected activity center, vehicles on the road could have additive effects to effects of noise on owls in the project area. Another potential threat to owls from communication site traffic is the risk of collisions. Future trail planning efforts in the Fort Valley Trail System is expected to increase the miles of trails in the area adjacent to MEDL project area. Additive effects to residual plant cover would be expected from trail and possible trailhead creation in critical habitat.

The Forest’s 2018 Recreation Special Use Management Plan identified the needs and capacity for outfitter/guide services on the District. The plan recommends up to 16,700 user days for the MEDL project area and potential uses include mountain biking, rock climbing, hiking, trail running/training and bird/wildlife watching. Once completed the plan will increase the number of people using trails in the project area. Increased use of trails will have additive impacts to disturbance of owls in the project area.

The Flagstaff Trails Initiative, a collaborative, community driven trails organization, identified the Fort Valley Trail System as the highest recommended priority for future trail planning efforts. Work is expected to take place in the next two to five years. This trail system is interconnected with the MEDL project area and includes an additional owl protected activity center. Since improvements to the trail system in Fort Valley would be expected to increase use, the project would be expected to have additive effects to disturbance of owls and prey species’ habitat.

While Flagstaff Watershed Protection Project vegetation treatments were planned to improved forest resiliency and reduce the risk of catastrophic fire in the project area, drier and warmer conditions associated with climate change will still have an impact to owl habitats in the project area. Increased temperatures and less precipitation will result in a decrease in understory vegetation and, ultimately, may affect owl prey availability due to reduce food and cover resources. These weather conditions could also affect tree health, slowing tree growth and increasing the risk of drought stress and insect outbreaks that can result in tree death. These conditions increase the risk of wildfire in the project area.

When you consider these past, present, or reasonably foreseeable effects and the effects of the proposed action a measurable increase in the level of disturbance to owls will occur, as well a minor or discountable increase in impacts to prey species’ habitat.

Determination The proposed action will result in an increase in disturbance during construction and maintenance activities, but overall will reduce disturbance to the most important areas for owls from ongoing recreational use of the trails by relocating trails and reducing the number of trails in nest cores and recovery and critical habitat. Design features and the implementation plan will reduce adverse effects through timing restrictions and use of surveys prior to implementation. Effects of the proposed action are expected to reduce impacts to this species compared to the existing condition.

Since the proposed action will result in disturbance of nesting and roosting owls and short-term effects to understory vegetation that supports owl prey species, it is determined that proposed project activities may affect and are likely to adversely affect Mexican spotted owl and its habitats.

Since the proposed action will result in localized effects to one of the primary constituent elements for maintaining adequate prey species, it is determined that proposed project activities

43 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest may affect but is not likely to adversely affect primary constituent elements of Mexican spotted owl critical habitat.

Golden Eagles The Bald and Golden Eagle Protection Act regulates impacts to eagles. Bald eagles will not be included in this analysis due to the lack of large snags for nesting, dense stands of large trees for winter roosts and lakes or streams for foraging in the project area.

For the golden eagle, the effects analysis area is defined as the most recent nest location and a 0.5-mile buffer centered on the nest. The buffer accounts for potential disturbance of nesting eagles from proposed project activities. This area encompasses historic nests too.

Occupied and potential nesting habitat for golden eagles exists on cliff ledges in the project area and grassland habitats in the surrounding areas provide foraging. There is one active and several historic golden eagle nests on ledges on the south face slope of Little Elden Mountain. Several segments of the Heart Trail are within 0.5 mile of the active nest location.

Environmental Effects of No Action Under the no-action alternative, the number of miles of system trails in the golden eagle analysis area will remain the same and use of trail will continue and is expected to increase over time. As described in the Mexican spotted owl section, increased use could result in an increase in creation of new unauthorized trails to reduce user conflicts. Creation of new unauthorized trails could increase disturbance of nesting eagles caused by noise and human presence.

Environmental Effects of the Proposed Action

Direct and Indirect Effects A small level of disturbance of nesting golden eagles is likely occurring from noise and human presence through the use of system trails and rock climbing in the project area. The proposed action could affect the current level of disturbance depending on the timing of routine trail maintenance on a portion of the Heart Trail in the golden eagle analysis area.

To minimize potential impacts from disturbance, trail maintenance will occur outside of the breeding season (February 15 – August 31) within 0.5 mile of active nests, unless surveys can confirm the nest is not active or topography can buffer potential noise or human presence. No additional project activities will occur within the golden eagle analysis area.

Cumulative Effects Vegetation treatments as part of the Flagstaff Watershed Protection Project have occurred since 2017 in the project area and are expected to occur for a few additional years. While ground-based operations have not impacted nesting golden eagles in the project area and will not in the future, the use of a helicopter to treat one of the sales areas in the past may have resulted in a small level of noise disturbance depending on flight patterns. No future helicopter logging will occur in the project area.

The Museum Fire in 2019 likely affected golden eagles in the project area. The fire started in mid-July, so smoke and disturbance from suppression-related activities including chainsaws, helicopters and other air resources could have impacted nesting eagles on Little Elden Mountain. This disturbance from the fire has additive effects to eagles in the project area.

44 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

The 2020 Heart/Little Elden Trail Realignment occurred in the project area. Topography obstructed most of the work from the view of eagles at the current nest location, but in a few areas, timing of trail work was delayed until after the breeding season to avoid potential disturbance of nesting eagles. Also, improvements to the trail have likely increased the number of people using this trail. An increase in people using the Heart/Little Elden trails could potentially increase the level of disturbance to nesting eagles in the project area.

While Flagstaff Watershed Protection Project vegetation treatments were planned to improved forest resiliency and reduce the risk of catastrophic fire in the project area, drier and warmer conditions associated with climate change may still have an impact to eagles in the project area. Increased temperatures and less precipitation could affect the health of trees and other vegetation, increasing the risk of drought stress and insect outbreaks that can result in tree death. These conditions increase the risk of wildfire in the project area.

The effects of the proposed action combined with past, present, or reasonably foreseeable effects may result in a slight increase in the level of disturbance of nesting golden eagles in the project area, but implementation of timing restrictions and surveys prior to or during project activities will minimize potential impacts and not result in take.

Determination The proposed action will not result in take of golden eagles as defined under the Bald and Golden Eagle Protection Act.

Regional Forester’s Sensitive Wildlife Species The U.S. Forest Service Region 3 sensitive wildlife species list (9/18/2013) was reviewed and a list of species was created for this project based on known occurrences or, in the absence of survey data, the presence of suitable habitat. The list was further refined to include only those species where individuals or their habitats could potentially be affected by project activities. See table 10.

Table 10. Information about the Regional Forester’s Sensitive Wildlife Species to be analyzed for this project Species Surveys results and description of habitat in the project area Surveys have located five different nest areas. Nesting habitat exists American Peregrine Falcon along ledges on rocky cliffs. Individuals observed during surveys but no nests have been found in Northern Goshawk project footprint. Potential foraging and nesting habitats exists in forested areas. No surveys conducted. Potential habitat exists in meadows, grasslands Navajo Mogollon Vole and grassy openings

American Peregrine Falcon For the American peregrine falcon, the effects analysis area is defined an eyrie, or nest location, and a 0.25-mile buffer from the eyrie. The buffer accounts for potential disturbance of nesting falcons from proposed project activities.

There are seven documented eyries in the project area on the west, south and east facing slopes of Mt. Elden and the southeast facing slope of Little Elden Mountain. Surveys between 2016 and 2020 determined two to five eyries active in a year.

45 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

There is approximately one mile of system trails and one mile of unauthorized trails within 0.25 mile of the falcon eyries in the project area. No trailheads are within that distance of an eyrie.

Environmental Effects of No Action Under the no-action alternative, the number of miles of system and unauthorized trails in the American peregrine falcon analysis area will remain the same and use of all trail types and trailheads will continue and is expected to increase over time. Increased use could result in an increase in creation of new unauthorized trails to reduce user conflicts. Continued use of unauthorized trails near falcon eyries and creation of new ones will increase disturbance of nesting falcons caused by noise and human presence.

Environmental Effects of the Proposed Action

Direct and Indirect Effects A small level of disturbance of nesting American peregrine falcons is likely occurring from noise and human presence through the use of system and unauthorized trails and rock climbing in the project area. The proposed action could affect the current level of disturbance.

New trail construction, trail realignments and trail closures/rehabilitation will increase the miles of system and unauthorized trails within 0.25 mile of falcon eyries from 1 mile to 2.6 miles of system trails and the closure/rehabilitation of 1 mile of unauthorized trails. The new trail system will include a portion of the unauthorized trail referred to as Middle Spring that accesses a popular rock climbing are on the south face of Mt. Elden and a new trail referred to as Devil’s Chair in this analysis on the west face of Mt. Elden. These trails will be designed in coordination with District biologists to minimize impacts to nesting falcons using measures such as incorporating topography to provide a buffer an eyrie from a trail.

Trail construction and routine maintenance will occur outside of the breeding season (March 15 – August 15) within 0.25 mile of eyries, unless surveys can confirm an eyrie is not active or topography can buffer potential noise. These measures will minimize the potential increase in the level of disturbance from construction, routine maintenance and use of these new trails.

No new trailheads or existing trailheads that will be expanded or relocated are located within 0.25 mile of an eyrie so these activities will have no impact on this species.

Special use events have the potential to increase the level of disturbance to nesting falcons in the project area. To minimize such impacts, the timing of events and routes during the breeding season will be coordinated with a District biologist. Considerations will include locating aid stations, starting lines and all other gathering areas away from eyries and avoiding use of trails near eyries.

Cumulative effects Vegetation treatments as part of the Flagstaff Watershed Protection Project have occurred since 2017 in the project area and are expected to occur for a few additional years. While ground-based operations have not impacted nesting peregrine falcons in the project area and will not in the future, the use of a helicopter to treat one of the sales areas in the past may have resulted in a small level of noise disturbance depending on flight patterns. No future helicopter logging will occur in the project area.

46 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

The Museum Fire in 2019 likely affected peregrine falcons in the project area. The fire started in mid-July, so smoke and disturbance from suppression-related activities including chainsaws, helicopters and other air resources could have impacted nesting falcons in the project area. This disturbance from the fire has additive effects to disturbance of falcons in the project area.

The 2020 Heart/Little Elden Trail Realignment occurred in the project area. Topography obstructed most of the work from the view from the one falcon eyrie on Little Elden Mountain and dissipated noise. Improvements to the trail allows for increased use of the trail and, likely, an increase in the number of people using this trail. An increase in people using the Heart/Little Elden trails could potentially increase the level of disturbance to nesting falcons in the project area.

Operation and maintenance of the communication sites on the top of Mt. Elden, TV Hills and Devil’s Head is on-going with the possibility of growing in the future. Major maintenance activities could result in noise disturbance of nesting falcons. Construction of new towers or tall structures in the future could result in new obstructions falcons will have to learn to navigate, increasing the collision risk for individuals. Any maintenance or construction activity that could result in impacts to nesting peregrine falcons is delayed until after the breeding season.

The Forest’s 2018 Recreation Special Use Management Plan identified the needs and capacity for outfitter/guide services on the District. The plan recommends up to 16,700 user days for the MEDL project area and potential uses include mountain biking, rock climbing, hiking, trail running/training and bird/wildlife watching. Once the plan is completed, the number of people using trails in the project area will likely increase. Increased use of trails will have additive impacts to disturbance of peregrine falcons in the project area.

While Flagstaff Watershed Protection Project vegetation treatments were planned to improved forest resiliency and reduce the risk of catastrophic fire in the project area, drier and warmer conditions associated with climate change may still have an impact to falcons in the project area. Increased temperatures and less precipitation could affect the health of trees and other vegetation, increasing the risk of drought stress and insect outbreaks that can result in tree death. These conditions increase the risk of wildfire in the project area.

The effects of the proposed action combined with past, present, or reasonably foreseeable effects will result in an increase in the level of disturbance of nesting peregrine falcons in the project area, but implementation of timing restrictions and surveys prior to or during project activities will minimize potential impacts.

Determination The proposed action may impact individual American peregrine falcon and its habitats but is not likely to result in a trend toward Federal listing or loss of viability of the species.

Northern Goshawk Occupied and potential northern goshawk habitat exists within and adjacent to the project area. Potential habitat in the project footprint was surveyed for several different projects between 2004 and 2018. There is a portion of one northern goshawk post-fledging family area (PFA) designated in the northeastern portion of the project area, although the closest document nest in this PFA is more 0.75 miles from the project boundary. No nesting birds have been observed in the project area since 1979.

47 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Potential nesting and foraging habitat for northern goshawks exists throughout the ponderosa pine and mixed conifer habitats in project area. This includes 9,175 acres of ponderosa pine habitat and 3,830 acres of mixed conifer habitat.

No system or unauthorized trails or trailheads exist in the post-fledging family area in the project area. There are 34.9 miles of system trails and 54.3 miles unauthorized trails in ponderosa pine and 12 miles of systems trails and 16.3 miles of unauthorized trails in mixed conifer in the project area. Also, five of the six existing trailheads are in ponderosa pine habitat: Elden Lookout, Rocky Ridge/Oldham, Sandy Seep, Schultz Creek and Schultz Tank. The sixth, Brookbank Trailhead, is in mixed conifer. The Mt. Elden Environmental Study Area is in ponderosa pine habitat. Special use events currently occur on roads and trails in potential goshawk habitats in both ponderosa pine and mixed conifer habitats.

Environmental Effects of No Action The number of miles of system and unauthorized trails in acres of potential goshawk habitat will remain the same and use of all trail types and trailheads will continue and is expected to increase over time. Increased use will result in a decrease in conditions on poorly designed unauthorized trails and an increase in creation of new unauthorized trails. Without trail realignments and closures/rehabilitation of some system trails to increase sustainability an increase in erosion and decrease in understory vegetation will occur. This could negatively impact hiding cover and food resources for goshawk prey and, therefore, impact prey availability in the project area. Continued use of unauthorized trails in owl habitats and creation of news one will increase disturbance of goshawks caused by noise and human presence.

Noise and human presence are currently disturbing foraging northern goshawks through the use of the system and unauthorized trails in the project area, however, existing impacts to nesting goshawks are not expected because they have not been found nesting in the project since 1979.

Environmental Effects of the Proposed Action

Direct and Indirect Effects New trail construction, trail realignments and trail closures/rehabilitation will reduce the miles of system and unauthorized trails in potential habitat from 89.2 miles to 77.5 miles of system trails in ponderosa pine habitats (a 13 percent reduction in miles) and reduce miles of both trail types in mixed conifer habitat from 28.3 miles to 21.6 miles of systems trails (a 24 percent reduction in miles). This will result in a decrease in the level of disturbance from trail use to foraging goshawks in the project area. A new trail will be created in the Pipeline post-fledging family area, however, as the closest known nest is more than 0.75 mile north this trail will have no impact on nesting goshawks.

Proposed project activities will impact herbaceous and shrub cover. Trail construction and maintenance will remove understory vegetation where the trail tread is created and have short- term effects of one to two years to the vegetation immediately adjacent to the trail. The size of the area affected would be small since vegetation would be removed from only a long narrow area (several feet wide) with understory vegetation remaining on either side of trails. Closing and rehabilitation of 12.3 miles of trails in ponderosa pine habitat and 12.7 miles in mixed conifer would slightly increase understory vegetation in potential goshawk habitats over time. When combined, the impacts to understory vegetation are expected to have minimal effects to goshawk

48 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest prey species and their food and cover resources due to the small extent of area that will be impacted.

The creation of the new trailheads, the expansion, relocation or closure of existing trailhead may impact goshawk foraging and foraging habitat in the project area. All these locations have some level of ground disturbance and, therefore, provide limited habitat for most goshawk prey species. Those areas with vegetation adjacent to these disturbed areas where creation, expansion or relocation of trailheads will occur could result in a small reduction of cover and food resources for prey species. Conversely, where trailheads will be closed and rehabilitated, sufficient understory vegetation may re-establish in the future to support prey species. Special use events will have minimal impacts on potential goshawk habitats as events will be permitted to use existing trails and roads and already disturbed areas for staging, start/finish lines, aid stations and other gathering areas.

Cumulative effects Cumulative effects to northern goshawks and their habitats include those activities that result in disturbance to the species and changes in vegetative cover and structure and soil conditions that can impact nesting and foraging habitats in the cumulative effects boundary, which is defined as the project area plus 0.5 mile buffer.

Flagstaff Watershed Protection Project vegetation treatments will continue to impact forest structure and understory vegetation in the project area. This includes the removal of some trees and a decrease of canopy cover. A short-term decrease in understory is expected to occur, but a long-term increase will occur with the increase in sunlight from creating forest openings. These changes may affect availability of goshawk prey and potential nest trees in the project area.

The Museum Fire resulted in the long-term loss of goshawk habitat components, including large trees, canopy cover, diversity of age classes of trees. While a short-term loss of understory vegetation occurred, a long-term increase in understory vegetation is expected due the lack of canopy cover in some areas. These changes could impact goshawk prey availability and potential nest trees in the project area.

The 2020 Heart/Little Elden Trail Realignment occurred in the project area. While the trail is outside of goshawk habitat, improvements allow for increased use of the trail and, likely, an increase in the number of people using trails in goshawk habitats as they complete loops back to their original starting point. An increase in people using trails in goshawk habitats potentially increases the level of disturbance to foraging goshawks in the project area.

Future trail planning efforts in the Fort Valley Trail System are expected to increase the miles of trails in the area adjacent to MEDL project area. Additive effects to changes in vegetation cover would be expected from trail and possible trailhead creation in potential goshawk habitat as well as an increase in potential disturbance to foraging birds.

The Forest’s 2018 Recreation Special Use Management Plan identified the needs and capacity for outfitter/guide services on the District. The plan recommends up to 16,700 user days for the MEDL project area and potential uses include mountain biking, rock climbing, hiking, trail running/training and bird/wildlife watching. Once the plan is completed the number of people using trails in the project area will increase. Increased use of trails will have additive impacts to potential disturbance to foraging goshawks in the project area.

49 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

While Flagstaff Watershed Protection Project vegetation treatments were planned to improved forest resiliency and reduce the risk of catastrophic fire in the project area, drier and warmer conditions associated with climate change will still have an impact to goshawk habitats in the project area. Increased temperatures and less precipitation will result in a decrease in vegetation cover and may affect goshawk prey species. These weather conditions could also affect tree health, slowing tree growth and increasing the risk of drought stress and insect outbreaks that can result in tree death. These conditions reduce potential nest trees and increase the risk of wildfire in the project area.

The effects of the proposed action combined with past, present, or reasonably foreseeable effects may result in an increase in disturbance of foraging northern goshawks and impacts to prey availability and potential nest trees in the project area. Implementation of timing restrictions and surveys prior to or during project activities will minimize impacts to foraging birds and the extent of potential effects to prey availability and potential nest trees will be limited.

Determination The proposed action may impact individual northern goshawks and its habitats but is not likely to result in a trend toward Federal listing or loss of viability of the species.

Navajo Mogollon vole No surveys have been conducted for this species, but there is potential habitat for Navajo Mogollon vole in subalpine montane grasslands and grassy openings in ponderosa pine and mixed conifer habitats in the project area.

The acres of potential vole habitat in the project area are unknown, but we assume that a portion of the 51.7 miles of system trails and the 76 miles of unauthorized trails in the project area occur in potential vole habitat. No existing trailheads and the Mt. Elden Environmental Study Area provide potential habitat for voles as they lack the high herbaceous cover and low density of trees the species prefers.

Environmental Effects of No Action The number of miles of system and unauthorized trails in acres of potential vole habitat will remain the same and use of all trail types and trailheads will continue and is expected to increase over time. Increased use will result in a decrease in conditions on poorly designed unauthorized trails and an increase in creation of new unauthorized trails. Without trail realignments and closures/rehabilitation of some system trails to increase sustainability an increase in erosion and decrease in herbaceous cover will occur. This could negatively herbaceous vegetation that provides cover and food sources for voles in the project area.

Environmental Effects of the Proposed Action Trail construction and maintenance in vole habitat will remove understory vegetation where the trail tread is created and have short-term effects of one to two years to vegetation immediately adjacent to the trail. The size of the area affected would be small since vegetation would be removed from only a long narrow area (several feet wide) with vegetation remaining on either side of trails.

While the acres of potential vole habitat in the project area is unknown, the proposed action will reduce the miles of system and unauthorized trails from 127.7 miles to 113.7 miles of system trails (an 11 percent reduction in miles) across the project area. Although some loss of plant cover

50 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest would occur where trails are newly constructed or realigned and during routine maintenance of existing trails, the closure and rehabilitation of 26 miles of existing trails in the project area would result in a slight net increase in understory vegetation over time. When combined, the impacts of the proposed action on vole habitat is expected to be minimal due to the small extent of area that will be affected.

The creation of the new trailheads, the expansion, relocation, or closure of existing trailheads will have no effect on potential vole habitat in the project area. All these locations and adjacent areas lack the high herbaceous cover required by voles for cover and food. At those trailheads where closure and rehabilitation will occur, tree densities are too high to expect high herbaceous cover to re-establish in the future. The same is true for changes in the Mt. Elden environmental study area. Permitting special use events will have no impact on potential vole habitats as events will be permitted to use existing trails and roads and already disturbed areas for staging, start/finish lines, aid stations and other gathering areas.

Cumulative effects to potential Navajo Mogollon vole habitats include those activities that result in changes in herbaceous cover and soil conditions that can impact potential habitat in the cumulative effects boundary, which is defined as the project area. Cumulative effects to understory vegetation and soils described in the sections above will also affect potential vole habitat.

Determination The proposed action may impact individual Navajo Mogollon vole and its habitats but is not likely to result in a trend toward Federal listing or loss of viability of the species.

Migratory Birds Using Arizona Partners in Flight Plan and the Birds of Conservation Concern lists priority species of concern, the Forest developed a list of species of concern to include in project level migratory bird analysis (last revised on 8/03/17). Potential nesting and foraging habitat for eight migratory bird species is present in 9,175 acres of ponderosa pine habitat and 3,830 acres of mixed conifer habitat (table 11). There are no Important Bird Areas or important overwintering areas within the project area.

Table 11. Migratory birds with suitable habitat in the project area Description of natural history & habitats in the Acres of Species project area Habitat* Nest on platforms constructed in trees and forage for Band-tailed Pigeon mast crops such as pine nuts, acorns and berries in 13,005 ponderosa pine – Gambel oak and mixed conifer forests Winter in mature mixed conifer forest and forages for Cassin’s Finch seeds on the ground and for tree buds in the forest 3,830 canopy. Nest on the ground with partial shade created by a shrub, rock or log and forage on flying insects most often Common Nighthawk 9,175 at dusk and dawn in open, rocky and dry forests including ponderosa pine.

51 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Description of natural history & habitats in the Acres of Species project area Habitat* Typically nest in cavities in small trees, but also build cup nests in trees, on the ground, in cliffs or rock crevices. Cordilleran Flycatcher Forages for insects by gleaning them from foliage and 13,005 catching them aerially in mixed conifer and ponderosa pine forests. Build cups nests of sticks in trees and forage for invertebrates, fruits and seeds in the tops and outer Evening Grosbeak 3,830 branches of trees/shrubs or on the ground in mixed conifer forest. Nests on the ground on leaf litter and forages for flying Mexican Whip-poor-will insects at dusk and dawn in mature ponderosa pine and 13,005 mixed conifer forests. Nests on the ground on a steep slope, bank, or rock face and forages for insects along outer branches in or near Red-faced Warbler 3,830 deep, heavily forested canyons and cool steeply sloping drainages in mixed conifer forests. Nests on the ground under a grass clump or in a woody shrub and forages for insects in foliage, on the ground Virginia’s Warbler 9,175 and aerially along drainages or on steep mountain slopes in ponderosa pine forest with an oak component. *The source used to derive acres of habitat lack specifics about key habitat features specific to each species such as density of understory vegetation, presence and density of snags, etc.; therefore, the number of acres of suitable habitat for each species is likely a subset of the acres provided.

There are 34.9 miles of system trails and 54.3 miles unauthorized trails in ponderosa pine and 12 miles of systems trails and 16.3 miles of unauthorized trails in mixed conifer in the project area. Also, five of the six existing trailheads are in ponderosa pine habitat: Elden Lookout, Rocky Ridge/Oldham, Sandy Seep, Schultz Creek and Schultz Tank. The sixth, Brookbank Trailhead, is in mixed conifer.

Environmental Effects of No Action The number of miles of system and unauthorized trails in acres of potential migratory bird habitats will remain the same and use of all trail types and trailheads will continue and is expected to increase over time. Increased use will result in a decrease in conditions on poorly designed unauthorized trails and an increase in creation of new unauthorized trails. Without trail realignments and closures/rehabilitation of some system trails to increase sustainability an increase in erosion and decrease in understory vegetation will occur. This could negatively affect understory vegetation that provides cover and food sources for migratory birds in the project area.

Environmental Effects of the Proposed Action Trail construction and maintenance in potential habitat for the eight migratory bird species will remove understory vegetation where the trail tread is created and have short-term effects of one to two years to vegetation immediately adjacent to the trail. The size of the area affected would be small since vegetation would be removed from only a long narrow area (several feet wide) with vegetation remaining on either side of trails.

The proposed action will reduce the miles of system and unauthorized trails from 89.2 miles to 77.5 miles of system trails in ponderosa pine habitats (a 13 percent reduction in miles) and reduce miles of both trail types in mixed conifer habitat from 28.3 miles to 21.6 miles of systems trails. Although some loss of plant cover would occur where trails are newly constructed or realigned

52 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest and during routine maintenance of existing trails, the closure and rehabilitation of 12.3 miles of existing trails in ponderosa pine and 12.7 in mixed conifer would result in a slight net increase in understory vegetation over time. Similar impacts would be expected with trail activities in the Mt. Elden. When combined, the impacts of proposed trail-related activities on foraging and nesting habitat for the eight migratory bird species are expected to be minimal due to the small extent of area that will be affected.

The creation of the new trailheads, the expansion, relocation or closure of existing trailhead may impact migratory bird foraging and nesting habitat in the project area. All of these locations have some level of ground disturbance and, therefore, provide limited habitat for most of these species. The exception would be common nighthawks since they nest on bare ground. Those areas with vegetation adjacent to these disturbed areas where creation, expansion or relocation of trailheads will occur could result in a small reduction of potential migratory bird habitat. Conversely, where trailheads will be closed and rehabilitated, sufficient understory vegetation may re-establish in the future to provide potential foraging and nesting habitat. Special use events will have minimal impacts on potential migratory bird habitats as events will be permitted to use existing trails and roads and already disturbed areas for staging, start/finish lines, aid stations and other gathering areas.

Cumulative Effects Cumulative effects to the eight species of migratory birds and their habitats include those activities that result in changes in understory vegetation and soil conditions that can impact potential habitat in the cumulative effects boundary, which is defined as the project area. Cumulative effects to understory vegetation and soils described above will also affect migratory bird habitat.

Determination The proposed action may result in unintentional take of individuals but will not lead to a decline in migratory bird populations.

Other Wildlife Public comments received during scoping listed concerns about potential impacts to wildlife that are not currently federally listed or sensitive species. Potential habitat exists in the project for elk and deer to forage, hide, rest and potentially calve/fawn in the project area. For bear and mountain lion, potential foraging habitat and den sites can be found. The exact location of potential habitat for these four species is unknown, but it is assumed that at least a portion of the 51.7 miles of system trails and the 76 miles of unauthorized trails in the project area are located in potential habitat for these species. All existing trailheads and the Mt. Elden Environmental Study Area may provide potential habitat for these species as well.

Environmental Effects of No Action Under the no-action alternative, the number of miles of system and unauthorized trails in potential habitat for elk, deer, bear and mountain lion will remain the same and use of all trail types and trailheads will continue and is expected to increase over time. Increased use will result in a decrease in conditions on poorly designed unauthorized trails and an increase in creation of new unauthorized trails. Continued use of unauthorized trails in potential wildlife habitats and creation of new ones will increase disturbance from noise and human presence to normal wildlife activities such as foraging, resting and drinking water. Without trail realignments and

53 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest closures/rehabilitation of some system trails to increase sustainability an increase in erosion and decrease in understory vegetation will occur. While canopy cover and structure and presence of large trees, snags and logs would not be affected, impacts to understory vegetation could reduce hiding cover and food resources for the four species in the analysis area.

Environmental Effects of the Proposed Action The same impacts to understory vegetation from trail and trailhead construction and maintenance will affect elk, deer, bear, and mountain lion habitat in the project area. The closure and rehabilitation of 26 miles of existing trails in the project area would result in a slight net increase in understory vegetation over time. Such actions would also protect sensitive habitats such as the drainage of older mixed conifer forest where the unauthorized trail called Wasabi is located. When combined, the impacts of the proposed action on potential habitat for elk, deer, bear and mountain lion are expected to be minimal due to the small extent of area that will be affected.

While the acres of potential elk, deer, bear and mountain lion habitat in the project area is unknown, the proposed action will reduce the miles of system and unauthorized trails from 127.7 miles to 113.7 miles of system trails (an 11 percent reduction in miles) across the project area. Reducing the density of unauthorized trail in areas such as the proposed Sandy Seep loops by designating some existing segments and closing and restoring others would increase the area available for the four species to conduct their daily activities such as foraging, drinking water and resting.

New trail construction, trail realignments and trail closures/rehabilitation will reduce the miles of system and unauthorized trails in potential habitat from 127.7 miles to 113.7 miles of system trails (an 11 percent reduction in miles) across the project area. A short-term increase in disturbance of wildlife would be expected during construction, realignment, closure/rehabilitation, routine maintenance and annual hazard tree removal, but a long-term reduction would be expected due to the reduction in trail miles in the project area.

Maintaining areas without trails and closing existing trails creates refugia for species. In most of the project area, this would be expected to benefit wildlife and their habitats. The only place this may not be true is around the Dry Lakes. The proposed action calls for the closure of all unauthorized trails near this water source. While the hope is to provide a water source for wildlife where they can escape disturbance, this is a very popular place for people to enjoy watching wildlife. It is unlikely that closing the existing trails will keep people from trying to access the location, which could result in an increase in impacts to understory vegetation and continued disturbance of wildlife.

Cumulative Effects Cumulative effects to other wildlife species and their habitats include those activities that result in disturbance to the species and changes in vegetative cover and structure and soil conditions that can impact foraging, denning and resting habitats in the cumulative effects boundary, which is defined as the project area plus 0.5 mile buffer.

The cumulative effects described for Mexican spotted owls and other species also apply to elk, deer, bear, and mountain lion.

54 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Conclusion The implementation of the proposed action would help maintain or improve wildlife habitats in the project area. The no action alternative would have more negative effects on wildlife and their habitats than the proposed action. Miles of total trails would be higher with no action, resulting in more impacts to species and their habitats, while the proposed action would reduce miles of trails through closures and create more sustainable trails in locations with less impacts to wildlife species. The combination of the proposed action with the events that are past, present, and reasonably foreseeable would have some short- or long-term adverse effects, but these are minimized by design features. Sensitive Plants Species and Species of Local Interest Surveys only cover a small portion of the area. Surveys for Southwestern Region sensitive plants tend to focus on the known range of the species and suitable habitat. In this project there two Southwestern Region sensitive plants; Rusby milkvetch (Astragalus rusbyi) and cliff fleabane (Erigeron saxatilis). Two ferns of local interest are also included in this analysis. Both have disjunction populations on the slopes of Mt. Elden.

Rusby milkvetch (Astragalus rusbyi) Rusby milkvetch is a narrow endemic found on basaltic soils on northwest and west of Flagstaff, Arizona. The range is limited to areas on the Coconino National Forest around the San Francisco Peaks and on the adjacent Kaibab National Forest. Habitats for this plant include aspen groves, mixed conifer, ponderosa pine/Arizona fescue, and ponderosa pine/Gambel oak sites in dry or temporarily moist basaltic soils. Numerous occurrences of Rusby milkvetch occur in the project area. Most occurrences of Rusby milkvetch are in the Schultz Pass area.

Environmental Effects of No Action Under the no-action alternative none of the mitigations for management actions would occur. There would be no opportunities to re-route existing trails or close social trails where Rusby milkvetch might occur and no opportunities to reduce or eliminate on-going impacts that may be occurring. None of the mitigations for sensitive plants would occur. There would be no opportunities to move toward the desired conditions and guidelines for Southwestern Region sensitive species or other rare species.

Environmental Effects of the Proposed Action

Direct and Indirect Effects As stated in the implementation plan, prior to implementation, sensitive plant surveys would be reviewed to ensure they are up-to-date before trail construction would begin. The proposed action would avoid sensitive plants, such as Rusby milkvetch, during implementation of ground disturbing activities such as new trail construction, realignment, or rehabilitation.

The project would benefit Rusby milkvetch plants by encouraging use of system trails and rehabilitating and discouraging the development of unauthorized trails in areas where social trails and off trail hiking where plants may be destroyed by untrained persons building trails or by trampling.

55 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Cumulative effects Cumulative effects to Rusby milkvetch may include past and ongoing management actions by the Forest Service such as timber sales and prescribed burning within the project area. The project area has been a popular recreation area for those in the local area. Recreation uses in the area have increased in the recent past and is expected to increase into the future.

The Schultz Fire (2010) and the Museum Fire (2019) burned in portions of the project area, damaging trails, and resulting in the need to reconstruct some of them before they could be reopened for public use. Many locations of Rusby milkvetch were within the fire perimeter.

The Flagstaff Watershed Protection Project (2012) was implemented in portions of the area. Surveys done for that project located several of the occurrences of Rusby milkvetch in the project area. These may have been affected by operations of that project.

Other uses in the area that may have affected occurrences of Rusby milkvetch include maintenance of forest roads and communication sites on Mt. Elden, but the extent of these effects is unknown.

Other uses in the area that may have affected occurrences of Rusby milkvetch include maintenance of forest roads and communication sites on Mt. Elden, but the extent of these effects is unknown.

Determination Based on the above information it is my determination that the proposed action may impact individuals of Rusby milkvetch, Astragalus rusbyi, but is not likely to result in a trend toward federal listing or loss of viability. The project would also benefit the species through improvements of the system trails and closure of unauthorized trails.

Cliff fleabane (Erigeron saxatilis) Cliff fleabane is typically found on cliffs within canyons, but it also occurs on slopes of Mt. Elden near Little Elden Spring. The single mapped location within the project area is near a false summit at approximately 8,600 feet elevation. Impacts from most management activities are limited due to its occurrence on steep cliffs and canyon walls, however, some ongoing dispersed recreational climbing could potentially impact this species. There are no proposed activities near this occurrence, so there will be no direct, indirect, or cumulative effects from the proposed action. As noted in the design features, prior to construction, coordination would occur with the district botanist or forest botanist to ensure that if any new populations were discovered they would be avoided.

Determination The proposed action has no effect on cliff fleabane, Erigeron saxatilis.

Ferns Two species of ferns were identified in the project area: black spleenwort (Asplenium adiantum- nigrum) and ebony spleenwort (Asplenium platyneuron). These two ferns grow on the dacite formations on the south and east sides of Mt. Elden.

Both are globally secure but critically imperiled in Arizona (G5T1) (NatureServe 2021). Both grow in disjunct populations on the steep slopes of Mt. Elden. Black spleenwort occurs mainly in

56 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Eurasia but there are a few rare occurrences in North America including Arizona, Colorado, and Utah. Ebony spleenwort is known from Europe and the eastern U.S. but its occurrence in Arizona represents a disjunct population.

There are few known activities in the habitat of black spleenwort or ebony spleenwort in the project area. Climbing and related activities are the main threats to the species within the project area.

Environmental Effects of No Action With the no action alternative, potential impacts to ferns, such as off-trail climbing and hiking would continue, but how much these have affected these ferns is unknown. There would be no opportunity rehabilitate unauthorized routes that access climbing areas where these two species occur that may be affecting these plants. None of the mitigations for resources including rare species would occur. There would be no opportunities to move toward the desired conditions and guidelines identified for this project including those for rare species.

Environmental Effects of the Proposed Action The effects of the proposed action to the ferns, black spleenwort and ebony spleenwort, are limited. Effects of recreational climbing would be reduced by improving access and providing system trails to existing climbing areas. The proposed action would discourage the use and creation of new additional unauthorized routes in these areas. One occurrence of black spleenwort was recorded near the proposed Middle Elden Trail, but this is an historic location and its current presence is uncertain. As stated in the implementation plan, prior to implementation, sensitive plant surveys would be reviewed to ensure they are up-to-date before trail construction would begin. If this population is identified near the proposed alignment, the final trail design and layout would ensure the sensitive plants are avoided.

Cumulative effects There are no known effects to these species from past, present, or reasonably foreseeable actions. Black spleenwort and ebony spleenwort grow on almost vertical surfaces with sparse vegetation so there is little risk to these species from fire and none have been recorded there in the past. These species are outside the boundary of Flagstaff Watershed Protection Project. There are no known risks from road maintenance and present or past use of communication sites near these species.

Conclusion Under no action, impacts to Rusby milkvetch, black spleenwort, and ebony spleenwort from current recreational activities would continue without mitigation. The proposed action will reduce impacts to by encouraging use of the new trail system and ensuring plants are identified and avoided during implementation. Cliff fleabane, is not thought to be currently impacted and will neither benefit nor be impacted by the proposed action. Non-native Invasive Plants Non-native invasive plants known from the area include musk thistle, diffuse knapweed, yellow starthistle and Dalmatian toadflax. The existing condition for each of these species is presented below. Effects to all these species from no action and the proposed action are similar and will be analyzed together.

57 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

• Musk thistle (Carduus nutans): spiny and can detract from the recreational experience due to its prickly nature. One infestation covers approximately 0.4 acre near the Arizona National Scenic Trail. • Diffuse knapweed (Centaurea diffusa): first detected in the Flagstaff area in the late 1970s and has spread from a few scattered plants to infestations on thousands of acres in the urban interface around east Flagstaff. These populations continue to expand, and new infestations are created after mature plants break at the base and are dispersed by the wind or by human activities. Its presence within the analysis area detracts from the scenic beauty and may interfere with recreational activities because of its irritating, spiny nature. Additional infestations occur along the highway right-of-way for Highway 89N. • Yellow starthistle (Centaurea solstitalis): There is only one recorded location of this species in the analysis area. It occurs along the Flagstaff Loop Trail. Its presence was recorded in 2002 and there is no record of the site being revisited. • Bull thistle (Cirsium vulgare): is a non-native that is frequently found in highly disturbed areas such as after wildfire. Scattered populations of this species occur along the north boundary of the project area, but these are well-removed from any proposed management activities. • Dalmatian toadflax (Linaria dalmatica): most widely spread non-native invasive plant within the ponderosa pine vegetation type on the Coconino National Forest. Numerous infestations of this species occur throughout the Forest and within the analysis area. • Scotch thistle (Onopordum acanthium): one of several non-native thistles that are present in the project area. Like other non-native thistles, it is covered with spines that can detract from recreational experiences. There are several small infestations in the project area, mostly near the Highway 89N corridor. The largest infestation on the Forest occurs along equestrian trails near the eastern edge of the project. It was first recorded in 2017, measuring 0.4 acre and remeasured in 2020, having expanded to 1 acre.

Environmental Effects of No Action No mitigations or surveys for non-native invasive plants would occur. There would be no chance to re-route Forest Service trails that pass through non-native invasive plant infestations and no opportunities to close user-created trails that pass through non-native invasive plant infestations. There would be no movement toward the desired conditions and guidelines for invasive species in the forest plan.

These species can have negative effects on recreation by detracting from the scenic resources of the area, by degrading wildlife habitat, by reducing or eliminating the native plants in the area. Non-natives such as diffuse knapweed, yellow starthistle and the non-native thistles addressed in this analysis are prickly and can be unpleasant or even painful when encountered during hiking, bicycle riding, or on horseback.

Environmental Effects of the Proposed Action

Direct and Indirect Effects Management actions that are sources of disturbance, such as trail construction, reroutes, relocation, closure and restoration of unauthorized trails and trailhead construction, could

58 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest introduce non-native invasive plants or spread existing infestations. This risk can be reduced by using the design features included in this proposed action.

Beneficial effects of project activities include opportunities to educate employees and volunteers about the negative ecological and social impacts from non-native invasive plants and the importance of controlling them. Actions such as trail reroutes can reduce human contact and help to avoid the spread of these non-natives.

Cumulative effects Recreation uses in the area have increased and are expected to increase into the future. There is no way to detect whether this overall increase in human activities in the project area in the past has resulted in the increase in non-native invasive plants in the area.

The Flagstaff Watershed Protection Project (2012) was implemented in portions of the area. Surveys done for that project located many of the known occurrences non-native invasive plants in the project area. Surveys and mitigation for non-native invasive plants were part of the management activities associated with the project.

The Schultz Fire (2010) and the Museum Fire (2019) burned in portions of the project area. These were sources of disturbance and probably contributed to the expansion of species such as bull thistle that are known to respond well to wildfires.

Over 100 treatments have been accomplished in the project area. These include manual treatments such as hand pulling and chopping, herbicide treatments and releases of biological control insects. These have been accomplished over the years from 2000 to 2020 and range from small groups of hand pulled plants to large areas of herbicide treatments.

Conclusion Non-native invasive plants would continue to spread under no action. Such spread will be reduced by the activities of the proposed action, including closing unauthorized routes and implementing design features to reduce introduction and spread of these species. Soils and Water Resources Soils within the analysis area were mapped as part of the Coconino National Forest Terrestrial Ecosystems Survey (USDA Forest Service 1995). Although most of the analysis area contains soils rated as satisfactory, soil impairment may be locally found within the analysis area. Changes in soils associated with the Forest Service road and trail system, such as compaction and loss of nutrient cycling, are considered an unavoidable consequence of these constructed features that facilitate access to the forest for management, recreation, and other purposes. The analysis area also includes avoidable impacts to soils resources resulting from unauthorized trails and roads, and post construction degradation of the road and trail system. There are roughly 76 miles of unauthorized trails, which are not typically constructed or maintained according to standards and may be experiencing accelerated erosion in various segments. These represent a net avoidable loss in forest productive area. In addition, various segments of system trails are experiencing accelerated erosion attributable to inadequate drainage.

Stream channels within the analysis area are ephemeral, meaning they only flow in direct response to precipitation events, except for portions of Shultz Creek. Approximately 1.25 miles of Schultz Creek within the analysis area supports riparian vegetation and is classified as an

59 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest intermittent stream channel. The riparian vegetation within Schultz Creek includes willow stands and smaller communities of sedges and rushes. This section of Schultz Creek has been assessed using the Proper Functioning Condition of Lotic Areas assessment method (Prichard et al., 1998). Roughly 2.3 miles of Schultz Creek is assessed as being in Functioning At Risk condition due to flow diversions. The remainder of Schultz Creek within the analysis area is rated as being in Proper Functioning Condition. There are no perennial stream reaches or other intermittent stream reaches within the analysis area.

60 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Figure 6. Springs, ephemeral streams, and riparian areas

61 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

The analysis area contains 4 springs, Elden Spring, Little Elden Spring, Oak Spring, and Paradise Spring. These springs exhibit perennial to intermittent pooled water adjacent to bedrock outcrops around the base of Mt. Elden and do not support stream channels or riparian vegetation. These areas are known destinations for people and wildlife, with game trails and spur trails leading to the spring sources.

Environmental Effects of No Action

Direct and Indirect Effects Under the no action alternative, unauthorized trails would continue to be used by recreationalists without maintenance from Forest Service trails crews. The unmaintained user-created trails in the upland areas are influencing surface water flow paths that focus overland flow and cause erosional features such as rills, gullies, and other scour type features outside the trail footprint into the adjacent uplands (USDA Forest Service 2012). These erosional features lead to a loss of soil in the upland areas. This is especially true in the short-term (1-3 years) for the trails within burn scars (for example, Museum Fire), where upland vegetation does not currently exist to retain soil and minimize formation of rills and gullies forming from focused overland flow influenced by the trail network.

Disturbance of the stream channels by the presence of trails and use by recreationalists is causing a decrease in streambank stability and increased erosion in areas where trails either cross stream channels, are within stream channels, or are immediately adjacent to stream channels. Continued degradation and a decrease in the functional condition of the stream channels is expected to occur. The effects of increased sedimentation within the stream channels would be observed both downstream and upstream from the disturbance area of the trails.

Recreationalists using these trails include hikers, bicyclists, and equestrian riders. All these trail users contribute to erosion through mechanical disturbance of the trail surface and compaction of the soil under the trail (Pickering et al. 2014). Many trails in the analysis area experience a mix of all these uses.

Environmental Effects of the Proposed Action

Direct and Indirect Effects Under the proposed action, new trails would be constructed according to Forest Service specifications and adopted trails would be upgraded to Forest Service specifications.

Trail design best management practices would be incorporated during implementation to minimize effects of the trail network on surface water flow patterns (design features). This would reduce the ability for erosional features to form, increasing soil and sediment stability on both the trail footprint and the adjacent upland soils. There would be a decrease in the delivery of sediment into the stream network, which would increase the functional condition of the stream channels within the project boundary.

Trails within or adjacent to stream channels or springs would be relocated into the uplands thereby removing disturbance and decreasing sedimentation into the stream network and spring areas. Trail design best management practices would be used for trails crossing stream channels resulting in reduced sedimentation and increasing streambank stability. Using trail design best management practices in or adjacent to stream channels would reduce the ability for sediment to

62 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest enter the stream channels and spring areas, increasing soil retention. This would also be true for the portions of the streambank that experience mechanical disturbance from recreationalists at stream crossings. These design features would enable riparian vegetation to exist towards its potential within the stream and spring environments adjacent to the trail network, further adding to the soil retention within the project area.

Unauthorized trails would be decommissioned removing the trail footprint. This process would reduce the alteration of water flow patterns within the project area, allowing for natural hydrologic processes to exist in the previously altered areas. Soil retention in the adjacent uplands would increase and natural amounts of sediment would be expected to be transported to stream channels within the project boundary.

Cumulative Effects Past, present, and reasonably foreseeable future actions and events within the project boundary that effect soil retention and sedimentation include the following: previous and future tree thinning projects (such as the Flagstaff Watershed Protection Project), past and expected future wildfires, historic and current livestock grazing within the project boundary, and past and future road maintenance on multiple dirt roads, including to an array of communications towers that will operate into the future.

The direct and indirect effects of the proposed action would have short term soil and sediment disturbance but would have long term benefits on soil retention and reduction of sedimentation into stream networks. Tree thinning projects are expected to have a short-term increase of sedimentation, but long-term soil retention of increasing herbaceous cover within the treatment areas. Wildfires decrease the ability of watersheds to retain soil and sediment and are a mechanism of severe erosion. Livestock grazing is managed according to best management practices and is designed to allow for recovery from soil disturbance after grazing periods. The presence of roads influences the functional condition of the stream networks within the project boundary and the resulting maintenance is a source of sediment.

The combination of the proposed action with the events that are past, present, and reasonably foreseeable would have an increase in soil retention and decrease in sedimentation to the stream network. There would be an increase in the ability for the watersheds in the project boundary to retain soil and sediment, especially during shifts in precipitation patterns and climate variability.

Conclusion Constructing trails in accordance to Forest Service guidelines and utilizing trail building best management practices and restoring unauthorized trails would reduce the effects of erosion caused from the presence of trails and the mechanical disturbance of recreationalists conducting a variety of different activities. Long-term benefits to soil and sediment retention would be expected in the project area where construction and maintenance. Stream systems would benefit from the decrease in sediment load from the previously unauthorized and unmaintained trails.

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Finding of No Significant Impact The Finding of No Significant Impact documents the reasons why an action will not have a significant effect on the human environment (as defined by the 1978 CEQ Regulations 40 CFR 1508.13) and, therefore, why an environmental impact statement will not be prepared. The Finding of No Significant Impact discussion considers all information included in the environmental assessment, as well as documentation in the project record. Pertinent specialists have reviewed the proposal and, based on their input, the responsible official made the following determinations with regards to the potentially affected environment and degree of effects considered for a Finding of No Significant Impact. Context The proposed action would result in effects within and directly adjacent to the project area (figure 1). More specifically, the direct, indirect, and cumulative effects would occur in the locations in which proposed activities are occurring. The proposed activities would be implemented in stages over 5 to 10 years as funding and resources allow, so effects and benefits would also be spread over time. The current condition of the affected area is described in the Background section. The baseline for the environmental effects to each resource affected is further described in the environmental impacts sections. Intensity Intensity is a measure of the severity, extent, or quantity of effects, and is based on information from the effects analysis of this environmental assessment and the references in the project record. The effects of this project have been appropriately and thoroughly considered with an analysis that is responsive to concerns and issues raised by the public. The agency has taken a hard look at the environmental effects using relevant scientific information and knowledge of site-specific conditions gained from field visits. The finding of no significant impact is based on the context of the project and intensity of effects using the ten factors identified in 40 CFR 1508.27(b). 2

1. Impacts that may be both beneficial and adverse. A significant effect may exist even if the Federal agency believes that on balance the effect will be beneficial. This proposed action would result in both beneficial and adverse effects. Beneficial effects include reduced effects to natural resources and recreational settings as result of the proposed trail construction, realignment, and rehabilitation. The proposed management of special use trail events would also reduce effects, while increasing opportunities for these events to occur in the future. For all resources, our analysis presented in this environmental assessment found that the proposed action provides more benefits (and fewer adverse effects) to project area resources and experiences than the current condition or no action alternative.

For some recreationists the project would result in adverse effects due to trail closures of preferred routes or increases in user conflicts with increased use; however, overall the project is

2 This environmental analysis is conducted according to the Council on Environmental Quality’s 1978 regulations for implementing the procedural provisions of the National Environmental Policy Act (40 CFR §§1500-1508, as amended).

64 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest expected to increase trail access and reduce user conflicts. The ground-disturbing activities and changed or increased trail use in the project area could result in some short term and ongoing adverse effects including: short term disturbance to area wildlife during construction activities or from ongoing or increased trail use; short and long term habitat modification in areas for plants and wildlife localized to the areas within and adjacent to trails; and potential for increased invasive plants. Design features and an implementation plan have been included to minimize adverse effects and provide for a more sustainable non-motorized trail system in the project area over time. As a result, the adverse effects are expected to be minor, localized to the areas proposed for activities, and they would not significantly impact any resources or visitors.

2. The degree to which the proposed action affects public health or safety. This proposed action is not likely to adversely affect public health or safety, and it may result in improved public safety. The proposed action would improve safety through new construction or trails that meet agency standards or realignment and rehabilitation of trails which currently pose a safety risk or risk to resources. The proposal would also aim to reduce user conflicts and include more law enforcement and monitoring of trails, which would improve public safety (see implementation plan).

As described in the recreation section, the proposed action may result in slight, though unmeasurable increased risk of wildfire due increased pathways for human ignition sources (for example cigarettes). This is expected to be a very small risk, given that most human caused fires relate to abandoned campfires and there is an existing campfire and camping prohibitions for the project area. Conversely, trail access would improve fire safety by providing control lines and allowing more efficient firefighter access.

3. Unique characteristics of the geographic area such as the proximity to historical or cultural resources, parklands, prime farmlands, wetlands, wild and scenic rivers, or ecologically critical areas. The project area does not include any park lands, prime farmlands, wetlands, wild and scenic rivers, or ecologically critical areas.

Historic or cultural resources would not be affected and effects to the Traditional Cultural Property would be minimized as described in the Heritage and Cultural Resources section.

4. The degree to which the effects on the quality of the human environment are likely to be highly controversial. The term “controversial” in this context refers to cases where substantial scientific dispute exits as to the size, nature, or effects of a major Federal action on some human environmental factor, rather than to public opposition of a proposed action or alternative. The effects of the proposed non-motorized trail management actions are not likely to be highly controversial. While there may be public disagreement about the specific routes and areas identified for trail planning (see Alternatives considered and appendix C), this does not represent a scientific dispute.

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5. The degree to which the possible effects on the human environment are highly uncertain or involve unique or unknown risks. The effects of trail construction, realignment, trailhead improvements, and special use events are well known and expected to be limited in scope and primarily beneficial compared to the current condition (see item #1). The Proposed Action includes resource review of the trail design and layout prior to implementation and monitoring of trail systems to help to ensure that objectives are met and to correct any problems (see Implementation Plan, appendix B).

6. The degree to which the action may establish precedent for future actions with significant effects or represents a decision in principle about a future consideration. The changes the trail system and special recreation event use within the project area are not likely to establish a precedent for future actions. This decision authorizes changes only within the project area based on the unique conditions and management challenges in this location. It does not result in a precedent that would affect considerations of future actions.

7. Whether the action is related to other actions with individually insignificant but cumulatively significant impacts. Significance exists if it is reasonable to anticipate a cumulatively significant impact on the environment. Significance cannot be avoided by terming an action temporary or by breaking it down into small component parts. The proposed action would reduce environmental effects when compared to the no action alternative. Cumulative effects from implementing the proposed action are disclosed in the environmental assessment. Overall, the proposed action would result in minor adverse direct and indirect effects for all resources. There are no past, present, or reasonably foreseeable actions which, when added to the minor effects of the selected alterative, would result in significant environmental effects.

8. The degree to which the action may adversely affect districts, sites, highways, structures, or objects listed in or eligible for listing in the National Register of Historic Places or may cause loss or destruction of significant scientific, cultural, or historical resources. As described in the section on Heritage and Cultural Resources, the proposed action would avoid sites eligible or potentially eligible for listing in the National Register of Historic Places. Effects to cultural resources and culturally important places would be minimized through design features, resource review, and coordination or collaboration with Tribes.

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9. The degree to which the action may adversely affect an endangered or threatened species or its habitat that has been determined to be critical under the Endangered Species Act of 1973. Mexican spotted owl, a federally threatened species, is the only federally listed species that occurs in the project area. As described in the environmental impacts section in detail, the proposed action may impact and is likely to adversely impact the Mexican spotted owl, and it may affect but is not likely to adversely affect the primary constituent elements of the designated critical habitat for Mexican spotted owl. The proposed action would result in some increase of disturbance during construction and maintenance activities, but overall would reduce disturbance to the most important areas for owls from ongoing recreational use of the trails by relocating trails and reducing the number of trails in nest core areas and critical habitat. Design features and implementation plan minimize the adverse effects through survey and timing restrictions. Effects of the proposed action are expected to reduce impacts to this species compared to the existing condition.

10. Whether the action threatens a violation of Federal, State, or local law or requirements imposed for the protection of the environment.

National Forest Management Act This decision is consistent with the intent of the Forest Plan's forest-wide and management areas- specific direction. The project was designed to support Forest Plan desired conditions and objectives (see Need for the Proposal section on p. 4) and in conformance with land and resource management plan standards and guidelines.

National Historic Preservation Act See item #8 above. The project complies with the National Historic Preservation Act through consultation with the Arizona State Historic Preservation Office and by following programmatic agreements for inventory and assessment of heritage resources. In addition, effects to the Traditional Cultural Property are minimized.

Clean Water Act The proposed action complies with the Clean Water Act, as no streams within the project boundary are listed in the Arizona Department of Water Quality’s 2016 Water Quality Assessment Report (ADEQ 2017). Overall, the proposed action would lead to an increase in water quality within and downstream of the project area.

Endangered Species Act See item #9 above. The Endangered Species Act (ESA) of 1973, as amended, provides that all Federal agencies utilize their authorities to carry out programs for the conservation of listed species. It prohibits any Federal agency from carrying out any action that is likely to jeopardize the continued existence of any listed species. It further requires federal agencies to consult with the USFWS on actions that are authorized, funded, or carried out by such agencies that may affect listed species and/or their designated critical habitat. The project complies with the Endangered Species Act by preparing the analysis of effects on the Mexican spotted owl and its designated

67 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest critical habitat. Formal Section 7 consultation with U.S. Fish and Wildlife Service is underway and will be completed prior to the signing of the final decision.

Forest Service Manual 2670 – Sensitive Species Three Regional Forester Sensitive Wildlife Species and two Regional Forester Sensitive Plant Species occur within the project area. The proposed action was design to minimize effects to these species (design features and Implementation Plan, appendix B). Effects to these species are analyzed in the environmental assessment. Through the analysis of effects and determinations that the project will not lead to federal listing of sensitive plants or wildlife species, the project complies with Forest Service policy (FSM 2670).

Bald and Golden Eagle Protection Action The project complies with the Bald and Gold Eagle Protection Act through the analysis of effects in the environmental assessment and a request for technical assistance from the U.S. Fish and Wildlife Service. The Proposed Action would not result in “take” as defined by the Bald and Golden Eagle Protection Act.

Executive Order 13186 – Migratory Birds Executive Order 13186 (January 10, 2001) requires federal agencies to consider management impacts to migratory birds. Birds considered for these analyses were selected from species of concern as listed by Partners in Flight (Latta et al. 1999) and the USFWS Birds of Conservation Concern (USFWS 2008) and the determination of possible impacts that would occur if any of the alternatives were implemented is disclosed.

Executive Orders 13112 or 1999; Forest Service Manual 2900 and 2150 – Invasive Plants The proposed action complies with national best management practices for noxious or invasive weeds by requiring these practices for implementation.

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References ADEQ. 2017. 2016 Clean Water Act Assessment (July 1, 2010 to June 30, 2015), Arizona’s Integrated 305(b) Assessment and 303(d) Listing Report. Arizona Department of Environmental Quality.

Anderson, D. E., O. J. Rongstad and W. R. Myrron. 1990. Home-Range Changes in Raptors Exposed to Increased Human Activity Levels in Southeastern Colorado. Wildlife Society Bulletin: 18(2): 134-142.

Bradford, M.; Combrink, T.; Ruiz, R. 2019. 2017-2018 Flagstaff Visitor Study. Flagstaff, Arizona: Arizona Hospitality Research & Resource Center

Crompton, John L. 2001. Perceptions of How the Presence of Greenway Trails Affects the Value of Proximate Properties. In: Journal of Park and Recreation Administration. Vol-19. Number 3: 114-132.

Delaney, D. K., T.G. Grubb, P. Beier, L.L. Pater and M.H. Reiser. 1999. Effects of Helicopter Noise on Mexican Spotted Owls. Journal of Wildlife Management: 63(1): 60-76.

Delaney, D.K. and T.G. Grubb. 2003. Effects of Off-Highway Vehicles on Northern Spotted Owls: 2002 Results. A Report to the State of California Department of Parks and Recreation, Off-Highway Motor Vehicle Recreation Division Contract Number No. 4391Z9-0-0055

Felton, Vernon. 2004. Trail Solutions: IMBA’s Guide to Building Sweet Singletrack. Boulder, Colorado: International Mountain Bicycling Association.

Headwaters Economics. 2021. A Demographic Profile: Selected Geographies: Arizona.

Henning, Lori. 2017. Hiking, mountain biking and equestrian use in natural areas: A recreation ecology literature review. Portland, Oregon. Metro Parks and Nature.

Hidalgo, Ana and Hershaw, Howard. 2012. Managing Outdoor Recreation Conflict on the Squamish, British Columbia Trail Network. In: Fisher, Cherie LeBlanc; Watts, Clifton E., Jr., eds. Proceedings of the 2010 Northeastern Recreation Research Symposium. Gen. Tech. Rep. NRS-P-94. Newtown Square, PA: U.S. Department of Agriculture, Forest Service, Northern Research Station: 134-140.

Flagstaff Trails Initiative. 2018. Trail Survey Results. Flagstaff, Arizona: Flagstaff Trails Initiative.

Flagstaff Trails Initiative. 2020. Flagstaff Regional Trail Strategy. Flagstaff, Arizona: Flagstaff Trails Initiative.

Glinkski, R.L. 1998, The raptors of Arizona. University of Arizona Press. Tucson, AZ. 105 – 108 pp.

Kondo, M.; Fluehr J.; MeKeon T.; Branas C. 2018. Urban Green Space and Its Impact on Human Health. In: International Journal of Environmental Research and Public Health. Vol-15. Number 445

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Narayanaraj Ganapathy and Wimberly Michael C. 2011. Influences of forest roads on the spatial pattern of wildfire boundaries. In: International Journal of Wildland Fire. Vol-20: 792- 803.

NatureServe. 2021. NatureServe Explorer [web application]. Arlington, VA, April 12. Accessed April 12, 2021. https://explorer.natureserve.org/

Pendall R.; Martin S.; Astone N.; Nichols A.; Hildner K.; Stolte A.; Peters H. 2015. Scenarios for Regional Growth from 2010 to 2030. Urban Institute: Mapping America’s Futures, Brief 1.

Pickering, C. M., Hill, W., Newsome, D., & Leung, Y. F. (2010). Comparing hiking, mountain biking and horse riding impacts on vegetation and soils in Australia and the United States of America. Journal of Environmental Management, 91(3): 551-562.

Prichard, D., J. Anderson, C. Correll, J. Fogg, K. Gebhardt, R. Krapf, S. Leonard, B. Mitchell, and J. Staats. 1998. Riparian area management: A user guide to assessing proper functioning condition and the supporting science for lotic areas. Technical Reference 1737-15. U.S. Department of the Interior, Bureau of Land Management, Denver, CO. 126 pp.

Romero-Calcerrada R.; Novillo C.; Millington J.; Gomes-Jimenez I. 2008. GIS analysis of spatial patterns of human-caused wildfire ignition risk in the SW of Madrid (Central Spain). In: Landscape Ecol. Vol. 23. 341-354.

Seymour, Valentine. 2016. The Human-Nature Relationship and Its Impact on Health: A Critical Review. Frontiers in Public Health. Vol. 4. Article 260.

Swarthout E.C. and R.J. Steidl. 2001. Flush Responses of Mexican Spotted Owls to Recreationists. Journal of Wildlife Management 65: 314-317

USDA Forest Service. 2021. Visitor Use Report: Coconino NF National Visitor Use Monitoring: Data collected FY 2015.

USDA Forest Service. 2013. Forest Service Trail Accessibility Guidelines.

USDA Forest Service. 2012. National Best Management Practices for Water Quality Management on National Forest Service Lands. Volume 1: National Core BMP Technical Guide. Washington D.C. USDA Forest Service. FS 990a.

USDA Forest Service. 2007. Trail Construction and Maintenance Notebook. Missoula, Montana. Missoula Technology and Development Center.

Wisdom, M.J.; Preisler, H.K.; Naylor, L.M.; Anthony, R.G.; Johnson, B.K.; Rowland, M.M. 2018. Elk responses to trail-based recreation on public forests. In: Forest Ecology and Management. Vol. 411. 223-233.

U.S. Fish and Wildlife Service (USFWS). 1995. Recovery plan for the Mexican spotted owl: Vol I. Albuquerque, New Mexico. 172 pp.

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U.S. Fish and Wildlife Service. 2012. Final Recovery Plan for the Mexican Spotted Owl (Strix occidentalis lucida), First Revision. United States Fish and Wildlife Service. Albuquerque, New Mexico. USA. 413pp.

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Appendix A – Maps Appendix A contains a series of map showing the current condition and proposed actions.

Map locations of proposed trail construction, trail adoption, and reconstruction are approximate based on best available GIS information. The specific trail alignments would be determined during implementation (see appendix B).

Table of Maps Map 1: Map of Mt. Elden/Dry Lake Hills Recreation Planning Area - Current Condition ...... 73 Map 2: North East Project Area Proposed Action Map (Equestrian Trails) ...... 74 Map 3: South Project Area Proposed Action Map (Elden Base Trails, Devil’s Head Trail) ...... 75 Map 4: East Project Area Proposed Action Map (Sandy Seep Loops, Elden Lookout) ...... 76 Map 5: Northwest Project Area Proposed Action Map (Directional Mountain Biking) ...... 77 Map 6: Southwest Project Area Proposed Action Map (Schultz Creek Loops) ...... 78 Map 7: Special Designated Trails Map ...... 79 Map 8: Proposed Closure of Unauthorized Trail Map ...... 80

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Map 1. Map of Mt. Elden/Dry Lake Hills Recreation Planning Area - Current Condition

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Map 2. North East Project Area Proposed Action Map (Equestrian Trails)

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Map 3. South Project Area Proposed Action Map (Elden Base Trails, Devil’s Head Trail)

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Map 4. East Project Area Proposed Action Map (Sandy Seep Loops, Elden Lookout)

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Map 5. Northwest Project Area Proposed Action Map (Directional Mountain Biking)

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Map 6. Southwest Project Area Proposed Action Map (Schultz Creek Loops)

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Map 7. Special Designated Trails Map

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Map 8. Proposed Closure of Unauthorized Trail Map

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Appendix B – Implementation Plan This plan identifies standard operating procedures to implementing action items from the Mount Elden Dry Lake Hills (MEDL) Recreation Planning Project.

Community Engagement Utilize community partnerships, specifically the Flagstaff Trail Initiative (FTI) MEDL Working Group members, to outreach to the public and gather input on trail construction and unauthorized trail closure implementation priorities. Ongoing coordination with Tribes will occur during project implementation related to avoidance and protection of cultural resources or sites, trail accessibility, and interpretation and education opportunities to address the cultural importance of the area. Opportunities for engagement on educational and interpretive initiatives are important to tribes in the project area. This process will be transparent and will have broad engagement on prioritization of a large long-range trail implementation plan.

Priorities for Implementation The proposed activities would be implemented in stages and are anticipated to take 5 to 10 years to implement fully, depending on the funding and resources available. The Forest Service will use a variety of criteria to determine how to prioritize trail construction and unauthorized trail closures and restoration based on the following criteria:

1. public and community prioritization, as identified by community engagement described above; 2. impact to forest resources – identify areas that are having immediate and critical resource impacts, such as bisecting Mexican spotted owl nest cores or archeological sites; 3. providing for trail system connectivity; 4. provide unmet recreation opportunities; and, 5. add trails to mitigate crowding, user conflicts, and negative recreation experiences.

Funding Based on agreed to priorities, engage partners to develop funding proposals. Funding could be external and internal government funding. Funding will also come in the form of ‘in-kind’ contributions in the form of volunteers to complete implementation. Funding sources for implementation will be shared with the public for transparency.

Layout and Design While the environmental assessment has identified an approximate trail location, the specific layout and placement of the trails were not yet determined. Once a trail or area is identified as a priority and a likely candidate for funding opportunities, Forest Service Staff will layout and design trail corridors based on identified designed use and best management practices or design features. Corridors would be 66 feet or less. The Forest Service will work with diverse partners and provide the opportunity to help with trail layout or review a preliminary layout. When possible, the Forest Service will contract initial layout and design with professional trail builders. Trail layout may include challenging features including bypasses and alternate lines, depending on the desired experience for each specific trail alignment.

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Forest Service Specialist Resource Review As described in the project design features, Forest Service Specialists will complete a resource review of the layout of each proposed trail. Archeologist will review layout for previous cultural survey and complete necessary survey. Survey will be shared with interested tribal partners and State Historic Preservation Officer (SHPO). Wildlife, sensitive plant, and invasive plant surveys would also need to be up to date before trail construction could commence.

Specialists will provide input and any resource restrictions for implementation including timing restrictions. Based on resource review, modifications to the trail layouts may recommended to avoid or minimize impacts. Mitigation and best management practices would be applied to prevent the introduction and spread of invasive plants, to protect threatened, endangered and sensitive wildlife habitat and plant species, to protect heritage resources, and to protect public health and safety during project implementation.

Trail Construction and Realignment Upon completed Resource Review, implementation may commence. Trail construction and realignment segments appropriate for large volunteer events will be identified and scheduled through the season, to encourage community engagement. Depending on funding sources, professional trail and conservation crews will be assigned to perform construction, with direct Forest Service oversight.

Unauthorized Trail Closures In general, priorities for closure of unauthorized trails would be based on community prioritization and impacts to forest resources.

After providing new recreation opportunities close identified unauthorized trails that provide similar opportunities. In many cases new trails will be implemented first to encourage and change use patterns before closing adjacent unauthorized trails.

When implementing new trail construction, review adjacent or intersecting unauthorized trails and plan for closure or restoration, if needed to discourage unauthorized trail use.

Trails closed for restoration and naturalization will be marked closed with signage at the junctions with system trails. It should be clearly marked that these trails are closed, including education on why they have been closed, and why users should avoid these areas.

Unauthorized Trail Construction Prevention To curb illegal unauthorized trail construction, the Forest Service will become active in monitoring illegal activity. This will include a variety of tools, techniques, and approaches:

• Early Detection - training volunteers and partners, with Forest oversight, to safely monitor conditions to report and document new illegal trail construction • Rapid Response – Forest employees or volunteers, with Forest oversight, will quickly obliterate illegal construction and discourage further illegal construction activities • Criminal Investigation – if deemed appropriate and effective, Law Enforcement Officers may employ a number of surveillance techniques to begin building a criminal case. These

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cases could lead to convictions with criminal punishments and required financial restitutions for the damages caused by illegal trail construction activities.

Trail Naming and Signing New trails once planned for implementation will be considered for naming. Tribal and community partners will have an opportunity to provide alternatives for naming. Unauthorized trails that are adopted will not necessarily keep their historical or social names and new names will be based on public input.

The new trail system will have many junctions and intersections and overall a new signing convention will be necessary. Trail junctions will be clearly marked with signage and will no longer have destination mileage, which will become confusing. The Arizona National Scenic Trail and the Flagstaff Loop signage will be clearly identified and signed based on the existing sign plans for each special trail.

Public Information Information on new trail construction, reroutes, and closures should be clearly communicated to the public at least annually via press releases, social media or other public information tools. At the completion of the construction season GIS Data will be updated and shared with partners for publication in maps produced by partners, especially the FTI Regional Trails Interactive Map.

Trailhead Education and Interpretation A separate interpretive plan will be developed for trailheads and the Mt. Elden Environmental Study Area. Ongoing coordination with Tribes will occur during project implementation related to interpretation and education opportunities. This plan will engage forest visitors, provide clear maps and trail information, and encourage trail etiquette and promote stewardship and volunteerism.

Trail Etiquette, Education, Outreach, and Stewardship In addition to trailhead education, the Forest Service will engage with partners, including FTI, to develop and promote opportunities for etiquette and stewardship. This will include engaging multiple organizations for trail construction, restoration work, trail patrols, and monitoring. In addition, with the help of partners, the Forest Service will market through multiple media sources education campaigns to help increase responsible recreation and appropriate trail use in the project area.

System Trail Monitoring Trail Assessment and Condition Surveys (TRACS) is the current method used by the Forest Service to monitor trail conditions and needs. Trail Assessment and Condition Surveys is a systematic and standard approach for collecting and updating field data on trail conditions and determining needs to meet trail standards to provide for public health and safety, reduce erosion and sediment, and deliver quality recreational experiences.

In addition, partners could be used to perform more rapid and frequent trail monitoring. With this information managers will be able to identify why these issues are occurring, make prescriptions for correcting problems, and implement these prescriptions.

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In addition to trail monitoring, monitoring of sensitive wildlife and invasive plants will be ongoing in the project area. Information from these wildlife surveys will inform the Forest Service if changes to the Mount Elden Dry Lake Hills Recreation Planning project need to be made during and post implementation.

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Appendix C – Alternatives Considered, but Eliminated from Detailed Study

Table 12. Trail or location-specific alternatives suggested in public scoping comments Proposed Trail name or area Requested alternative Rationale Action Trail Sandy Seeps Do not construct Sandy Seep loops and trail See wildlife section in the environmental impacts. Sandy Seeps Construction up the north side of Mt. Elden due to wildlife and the north side of Mt. Elden are not located within sensitive and potential for downhill trail construction. species habitats. The implementation guide addresses how the Forest will address future illegal unauthorized trail construction. Trail Directional Trails Add more directional/challenging trails near Directional Mountain Bike trails were addressed in the modified Construction Wasabi. Extend Wasabi Trail to Sunset to proposed action. Three areas were identified as appropriate allow loops and reduce mixed use on Elden which includes Ginger, the Private Reserve area and western Lookout Road. slopes between Schultz Tank and Sunset Trail, these areas balanced access with impacts to sensitive wildlife habitat. From the 2020 scoping comments these areas were found to be more desirable than the proposed Wasabi area, which has been heavily impact from the 2019 Museum Fire. Both areas make important connections with other system trails, providing loop opportunities and access in lieu of Elden Lookout Road. Trail Directional Trails Don’t construct downhill trails near Wasabi. The modified proposed action does not include the adoption of Construction Ginger trail is sufficient. Wasabi but does include other downhill routes. There is a demand for adequate number of trails for challenging directional mountain bike trails. Trail Devil’s Chair Trail Designate the Devil’s Chair Trail for multiple The proposed action includes this route as hiking only (other Construction use or allow mountain bikes uses prohibited) due to steep climb and previous input from partners and stakeholders. This ensures trail safety, sustainability and reduces user conflicts. Trail Dry Lake Ridge Trail Consider two interconnected loops in the Dry Dry Lake Ridge trail was eliminated in the modified proposed Construction and Lost Burrito Trail Lake Hills to re-direct users off the existing action to mitigate concerns over trail density on the top of Dry Adoption roadbed and provide long loops. Lake Hills. The objective in this area was to provide a Circumnavigate West Dry Lake. challenging hiking trail (Lost Burrito) and a connection for all Make Lost Burrito a multi-use trail, adopt other uses to the Dry Lake Hills from the Schultz Creek Loops. All existing routes in this area. other trails were eliminated. Lost Burrito is proposed to remain Do not connect Lost Burrito to Schultz Creek with a similar character and as such it would not be appropriate and DLH loops or Ginger to reduce effects to or safe for bicycle or horse use. The implementation guide

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Proposed Trail name or area Requested alternative Rationale Action wildlife and because downhill trails will be addresses how the Forest will address future illegal unauthorized constructed. trail construction. Do not designate Lost Burrito as a formal trail or leave as is. If done, do not create multi-use dead ends onto hiking trail. Trail Ginger Trail Do not adopt Ginger Trail as a system trail As stated in the proposed action, major reconstruction and Construction Adoption because it would not be sustainable due to fire relocation will be completed to bring this trail to Forest Service effects. Trail standards after post-wildfire damage. Once reconstruction is completed, the trail would meet Forest Service system trail standards. Trail Little Gnarly Bypass Do not construct Little Gnarly - use the old The objective of the proposed action is to provide sustainable construction roadbed (FS879) to meet this need. trails. The continued use of Forest Road 789 for the Little Gnarly trail will continue to be a wide and expensive trail prism with steep grades. In this condition the trial will continue to be more expensive to maintain than a sustainable built single-track trail. Trail Red Onion Trail Close/do not adopt Red Onion or move it out The proposed action includes major reconstruction to improve construction Adoption of the steep drainage. sustainability of this trail and will be rerouted upslope of the exiting drainage bottom. Red Onion provides important connectivity for the trail system connecting users from Lower Elden Lookout Road to Sunset Trail. Trail Schultz Tank Trail Do not construct trail all the way around the The existing condition of Schultz tank includes several construction Adoption tank to allow for wildlife crossing to water alignments of unauthorized trails around the trail. This is a source, do not limit this trail to hiking only. heavily braided area. The objective of the Schultz Tank Trail is to provide one sustainable trail around the tank, to reduce the overall impact to the shoreline and wildlife. Trail Climb 3 Trail Do not construct this trail because Sunset Climb 3 is proposed for adoption because it’s a very popular construction already serves this need. unauthorized route and it is intended to connect Schultz Loop and Little Gnarly trails with upper portions of Sunset Trail. Climb 3 will provide additional loop opportunities in this area that will be important to spread out users and to reduce user conflicts. Trail Other Adopt additional unauthorized trails – Ginger is proposed for adoption and the modified proposed construction/ specifically private reserve, Pickle, Can I, action includes adoption of part of Private Reserve. The other adoption Prom Nite, Upper Wasabi Weenies Walk, and trails were reviewed for inclusion in the proposed action but were Ginger not feasible to implement to due conflicts with natural resources or other management concerns.

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Proposed Trail name or area Requested alternative Rationale Action Trail Other Keep but re-route Private Reserve to avoid The proposed action was modified and addresses this alternative construction/ Mexican spotted owl nest core and ensure to maintain part of Private Reserve where it was feasible to avoid adoption sustainability, but retain advanced trail which is impacts to sensitive wildlife habitat. essential to the trail system. (Comment refers to Working Group's May recommendation) Trail Other Adopt sections of Pickle Trail as alternative The proposed Brookbank Trail realignment will general use construction/ challenging (black diamond) alignment in the much of the Pickle trail alignment. Two trails are not necessary adoption area of Brookbank. for this area. Trail Other Add the previously proposed (2013) Elden This route was not included due to public opposition to the route construction View Loop at top of Elden in the 2013 proposal. Some concerns included increase vehicle traffic on Elden Lookout Road to access the “Elden View Loop” Trail Other Add a single-track connection from Oldham to The proposed action was modified to include a system of trails in construction Fatmans Loop that parallels the Elden Base the Environmental Study Area along the Elden Base area. These Urban Trail/Pipeline Road (stacked loops) to new trails address this suggestion by providing single-track trails provide for access to the Environmental Study traversing the area and reducing unauthorized trails. Area and to provide a more technically challenging trail. It may reduce social trails. Trail Other Include the Blue Dot unauthorized trail as a The proposed action has been modified to include the Devil’s construction/ proposed route for multi-use (hikers and Head Trail which will generally follows the unauthorized Blue Dot adoption bikers) to provide connectivity to Devil's Chair trail up the western slopes of Devil’s Head to the electronic Trail towers. Trail Other Construct a multi-use loop on top of Mt. Elden This was considered, but previous public comment didn't support construction starting/ending at Sunset (see 2013 MEDL it. Concerns over increased traffic up Elden Lookout Road to proposal). Connect to Private Reserve and access the loop trails at the top. Devil's Chair. Trail Other Construct a novice route from the unnamed Sunset and Climb 3 trails provide adequate access to this area. construction peak between Little Bear and Sunset to descent back to Schultz tank. Trail Other Comments suggest a variety of additional Approximately 65 miles of new/adopted trails are proposed. The construction connector trails: Little bear to Schultz proposed action accounts for adequate connectivity while tank/Sunset, Dog Food, parallel to Mt. Elden minimizing impacts to forest resources. Additional trail Lookout Road, link to Buffalo Park, Brookbank connections and segments were explored and were removed to Schultz Creek Loops, AZ Trail/Cabin Loop from consideration due to wildlife impacts or concern of to Show Low, trail connecting Jedi, Little increased trail density in certain areas of the planning area. Gnarly, Lost Burrito Pick, and Ginger.

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Proposed Trail name or area Requested alternative Rationale Action Trail Brookbank Trail Do not connect to Dry Lake because it is too The proposed realignment is a key part of the connectivity of the Relocation and long of a route. trail system. The current Brookbank Trail bisects a canyon that is Improvement extremely critical habitat for Mexican spotted owl. In addition, the poor alignment of this trail on an old Sheep Herder Road makes for a poor recreation experience. The reroute will mitigate the wildlife impacts and provide for a better trail experience. Trail Sunset Trail Include additional re-routes on Sunset Trail to The modified proposed action includes multiple short Relocation and ensure sustainability. Address concern about realignments of Sunset Trail to make this trail more sustainable. Improvement additional length. In general, these realignments will provide a better experience for users climbing this trail as an uphill access to the top of Mount Elden. Closure Reroute Private Keep but re-route Private Reserve to avoid Portions of Private Reserve would be adopted in the modified Reserve Mexican spotted owl nest core and ensure proposed action. The lower portion of Private Reserve would be sustainability but retain advanced trail which is closed. essential to the trail system. Closure Support Improving Adopt sections of Pickle Trail as alternative The proposed Brookbank Trail realignment will general use Pickle challenging (black diamond) alignment in the much of the Pickle trail alignment. Ginger Trail will provide a area of Brookbank. challenging directional mountain bike experience off Dry Lake Hill in a similar location / experience to Pickle. Trailheads Oppose Schultz Do not relocate the Schultz Creek Trailhead to The proposed relocation of the Schultz Creek Trailhead is Creek Trailhead save funds and focus on developing the 'Y' included to provide an alternative trailhead location on federal trailhead. lands. It is intended to provide improved year-round access and reduce road maintenance needs and mitigate sedimentation and erosion into Schultz Creek from the existing trailhead location. The Forest is committed to working with the City of Flagstaff on appropriate trailhead in the general area, ideally on City owned lands. But this proposed “Y” Trailhead location may be utilized if other locations are found to be unsuitable. Trailheads Elden Lookout Various comments related to Mt. Elden The proposed action focuses on non-motorized recreation in the Trailhead Lookout Road user conflicts, need for alternate area and does not plan for changes in motorized access in the routes, and need for parking at the lower gate. planning area. Thus changes to the management of motorized use on Elden Lookout Road was not considered. The proposed Oldham Basin Trailhead will provide better year-round access to this area, without changing the motorized use in this area.

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Proposed Trail name or area Requested alternative Rationale Action Trailheads Sandy Seep Request that this trailhead not be expanded There is a need to expand this trailhead to align with user Trailhead and remain a quieter area to reduce impacts to demand and draw visitors away from the crowded Elden Lookout locals and allow for solitude for recreation. Trailhead to reduce impacts there. Trailheads Parking in Other Construct additional trailheads (1 mile up Oldham Basin Trailhead serves this purpose. Areas Schultz Pass Road, near West Elden Climbing area, Fat Man's)

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Appendix D - USFS Trail Management Classes The National Trail Classification System has been established as a federal regulation, and can be accessed here: http://www.gpo.gov/fdsys/pkg/FR-2008-10-16/pdf/E8-24193.pdf.

Trail prescriptions describe the desired management of each trail, based on Forest Plan direction. These prescriptions take into account user preferences, setting, protection of sensitive resources, and other management activities. To meet prescription, each trail is assigned an appropriate Trail Class. These general categories are used to identify applicable Trail Design Parameters and to identify basic indicators used for determining the cost to meet national quality standards.

Note: Trail Class descriptions define “typical” attributes, and exceptions may occur for any attribute. Apply the Trail Class that most closely matches the managed objective of the trail.

Table 13. National Forest System Trail Class Descriptions and General Criteria (Physical Characteristics to be Applied to All National Forest Sytem Trails) Trail Trail Class 1 Trail Class Trail Class 3 Trail Class 4 Trail Class 5 Attributes Primitive/Undevelop 2 Developed/Improv Highly Fully ed Simple/Minor ed developed developed Development Tread & • Tread intermittent • Tread • Tread obvious • Tread wide • Width Traffic and indistinct discernible and continuous and reltively generally Flow • May require route and • Width smooth with accommodat finding continuous, accommodates few es two-lane but narrow irregularities and two- • Native materials unhindered one- and rough directional only lane travel • Width may • Few or no (occasional consistently travel, or allowances allowances accommoda provides constructe constructed for te two-lane frequent d for passing) travel passing turnouts passing • Typically native • Native or • Native materials imported • Commonly materials materials hardened with asphalt • May be or other hardened imported material Obstacles • Obstacles common • Obstacles • Obstacles • Few or no • No obstacles • Narrow passages; occasionall infrequent obstacles • Grades brush, steep y present • Vegetation exist typically <8% grades, rocks and • Blockages cleared outside of • Grades logs present cleared to trailway typically define route <12% and protect • Vegetation resources cleared • Vegetation outside of may trailway encroach into trailway

90 Mt. Elden / Dry Lakes Hills Recreation Planning Project, Coconino National Forest

Trail Trail Class 1 Trail Class Trail Class 3 Trail Class 4 Trail Class 5 Attributes Primitive/Undevelop 2 Developed/Improv Highly Fully ed Simple/Minor ed developed developed Development Constructe • Minimal to non- • Structures • Trail structures • Structures • Structures d Features existent are of (walls, steps, frequent and frequent or & Trail • Drainage is limited size, drainage, raised substantial continuous; Elements functional scale, and trail) may be • Substantial may include number common and curbs, • No constructed trail bridges substantial handrails, bridges or foot • Drainage are trailside crossings functional • Trail bridges as appropriate amenities, • Structures needed for at water and adequate to resource crossings boardwalks protect trail protection and • Trailside infrastructur appropriate amenities • Drainage e and access may be structures resources • Generally native present frequent; may include • Primitive materials used in culverts and foot Wilderness road-like crossings designs and fords Signs • Minimum required • Minimum • Regulation, • Wide variety • Wide variety • Generally limited to required for resource of signs of signage is regulation and basic protection, user likely present present resource protection direction reassurance • Informational • Information • No destination • Generally • Directional signs signs likely and signs present limited to at junctions, or (outside of interpretive regulation when confusion is Wilderness) signs likely and likely • Interpretive • Trail resource • Destination signs signs Universal protection typically present possible Access • Typically • Informational and (outside of information is very few or interpretive signs Wilderness) typically no may be present • Trail displayed at destination outside of Universal trailhead signs Wilderness Access present information likely displayed at trailhead Recreation • Natural, unmodified • Natural, • Natural, primarily • May be • Can be highly Environs & • ROS: Typically essentially unmodified modified modified Experience Primitive setting unmodified • ROS: Typically • ROS: • ROS: • WROS: Primitive • ROS: Semi-Primitive to Typically Typically Typically Roaded Natural Roaded Rural to Semi- setting Natural to Urban setting Primitive • WROS: Semi- Rural setting • Commonly setting Primitive to • WROS: associated • WROS: Transition Transition with Visitor Primitive to (rarely Centers or Semi– present in high-use Primitive Wilderness) recreation sites • Not present in Wilderness * For user-specific design criteria and measurements, refer to Forest Service Handbook and other applicable agency references.

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