United States 

Department of 

Agriculture 

Forest 

Service 

Southwestern 

Region 

Cibola 

National 

Forest and 

National 

Grasslands 

May 2011

Recreation Specialist 

Report 

Kiowa, Rita Blanca, Black Kettle 

and McClellan Creek National 

Grasslands Plan Revision 

Environmental Impact Statement 

Analysis 

Submitted by: __/s/ _________________________ 

Cynthia A. Geuss

Land Management Planner, 

 Cibola National Forest and National Grasslands 

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Executive Summary 

The pertinent issues derived from the need to change the Grassland-specific components of the 

1985 Plan as identified in the 2008 Comprehensive Evaluation Report and Supplemental Analysis 

of the Management Situation document are explained below. This analysis addresses the needs 

for change in developed and dispersed recreation, Recreation Opportunity Spectrum classes, and 

scenic resources. Dispersed recreation will include motorized recreational activities. 

Recreation and Scenic Resources-Dispersed 

The current plan is silent on direction for dispersed recreation aside from designations of specific 

acreages of ROS classifications and motorized uses. Standards and Guidelines direct ORV 

closures or restrictions to protect resources from unpredictable damage. The revised plan needs to 

provide more direction on management of dispersed recreation at differing levels of development 

and in a variety of settings. 

Recreation and Scenic Resources – Motorized (Travel Management) 

As of this writing, Black Kettle and McClellan Creek have published Motor Vehicle Use Maps 

(MVUM) as directed in the Travel Management Rule. Kiowa and Rita Blanca are mid-way 

through their Travel Management analysis. The current plan directs restriction or closure of ORV 

trails when damage occurs. The revised plan will carry forward direction from the Grasslands 

Travel Management EAs and the Decision Notice and FONSI. The Travel Management decision 

for the Kiowa and Rita Blanca may need to be revisited if Alternative C is selected. 

Recreation and Scenic Resources-Developed 

The current plan defines the construction schedule and ‘Person At One Time’ capacity for 

developed sites. The revised plan would provide a spectrum of developed recreation opportunities 

characterized by varying levels of development and amenities that are in harmony with their 

natural and cultural settings (USDA Forest Service, 2008). 

The 1985 Land Management Plan is silent on nature based tourism interpretive activities beyond 

management of cultural resource sites. The preferred alternative would provide direction for 

increased visitation and touring interpretive activities related to unique scenery, wildlife and 

formally designated historic sites. 

The 1985 Plan is silent on the National and State Scenic Byways and the Santa Fe National 

Historic Trail located in the vicinity of the Grasslands. The preferred alternative would provide 

direction for management of these corridors and their associated cultural, recreational, and scenic 

resources. 

Alternative A provides guidelines for management of the Canadian River to preserve wild, 

scenic, and recreation river potential and acquire private lands within the corridor in order to 

preserve the unique qualities of the river. Standards for managing the river as Eligible Scenic are 

carried over from Alternative A to Alternatives B and C. No need for change was identified for 

the Canadian River. 

See the Summary of Environmental Consequences below, for an overview of areas analysis to the 

recreation opportunities and resources. 
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Overview of the Affected Environment 

Recreation opportunities on the Grasslands greatly contribute to the quality of life enjoyed by 

residents and visitors alike. The Grasslands provide outstanding opportunities for hunting, 

fishing, camping, hiking, bird and wildlife viewing, driving to enjoy scenery and historic sites. 

Developed recreation, particularly the lake-based recreation complexes on Black Kettle and 

McClellan Creek National Grasslands, and the sites within Mills Canyon area offer unique 

recreational opportunities for both residents and visitors to enjoy (SESR). Black Kettle, 

McClellan Creek and Rita Blanca National Grasslands provide special values for the area because 

the relative scarcity of public lands in Oklahoma and Texas compared to the Kiowa and the rest of 

the Cibola National Forest in New Mexico. Only 2.6% of the land in Texas is in the public 

domain (Texas, 2010) and only 1.92% is open to public use. In Oklahoma 2.29% of the land is 

State or Federal public lands open to public use. This can be compared to the public lands 

available for public use in New Mexico. In spite of the relative scarcity of public lands, wildlife 

related recreation is very important to the social and economic climate of Oklahoma. In 2010, 

Fish and Wildlife Service estimated that 1.5 million people participated in wildlife associated 

recreation in Oklahoma and the wildlife associated recreation expenditures totaled $995 billion. 

In Oklahoma it is estimated that 60% visit public lands for these activities. (FWS, 2001) There 

are similar statistics for Texas, where it is estimated that 4.9 million people participated in 

wildlife associated recreation and the wildlife associated recreation expenditures totaled 5.4 

billion. In Texas it is estimated that 55% of individuals who participate in wildlife associated 

recreation visited public lands for these activities. (FWS, 2001) 

Recreation Opportunity Spectrum 

The Recreation Opportunity Spectrum process recognizes that people choose a specific setting for 

recreation activities in order to realize a desired set of experiences. For example, camping in a 

large undeveloped setting with difficult access and few facilities offers a sense of solitude, 

challenge, and self-reliance. In contrast, camping in a setting with easy access and highly 

developed facilities offers more comfort, security, and social opportunities. (USFS, 1990) The 

ROS classes provide direction for supplying a range of recreation opportunity settings and 

management emphasis. 

Recreation Opportunity Spectrum classes of Roaded Natural and Semi-Primitive Motorized were 

assigned to the grasslands in the current forest plan. Roaded Natural areas are defined as areas 

where there is an opportunity to affiliate with other users in developed sites. These areas are 

predominantly natural with some site modifications that harmonize with the natural environment. 

Rustic facilities provide some comfort for the user as well as site protection and on-site 

regimentation and controls are noticeable but harmonize with the natural environment. The SemiPrimitive Motorized Recreation classes have a moderate probability of experiencing solitude with 

a high degree of self-reliance and challenge in using motorized equipment. These areas are 

predominantly natural, lacking human modification, except when necessary for site protection. 

The presence of state and county roads was the primary defining factor in assigning these classes, 

and not always the planned recreation management. There are seven factors that are considered 

when assigning ROS classes: access, remoteness, naturalness, facilities and site management, 

social encounters, visitor impacts and visitor management. Roads generally influence many of 

these factors, including access, remoteness, and social encounters. However, the grasslands were 

heavily roaded due to the relatively flat terrain, grasslands vegetation, and primary grazing and 

agricultural uses. There are roads on most section lines, and often additional roads throughout the 
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units. Even though some of the roads are county maintained roads, they typically receive little 

use. The flat terrain and the minimal use of some roads reduce the influence they have on the 

recreational experience. Even with the roads, recreation users can experience a sense of 

remoteness, naturalness and self reliance in many locations. The classification of Semi-Primitive 

Non-Motorized was not assigned to the Grasslands within the 1985 Forest Plan. 

Much of the Mills Canyon area was included in an Inventoried Roadless Area (IRA) in the 

current 1985 Forest Plan. This area was assigned Semi-Primitive Motorized ROS class, which is 

generally not compatible with an IRA management. There are others areas managed more 

compatible with Rural Recreation classification due to the facilities provided and proximity to 

communities. However, this class was not used in the current plan. 

Dispersed Recreation 

Dispersed recreation includes all recreation activities that take place away from developed 

recreation sites such as campgrounds and picnic grounds. This includes dispersed camping 

(where no facilities are provided), hunting, fishing, hiking, horseback riding, bird watching. Trail 

use for hiking, horseback riding and motorized recreation are considered to be dispersed 

recreation. There are occasional recreation special use permits requested and permitted. These 

include group activities such as mountain man rendezvous and bicycle events. 

Wildlife associated recreation and site seeing are the primary dispersed recreation activities on 

the grasslands. This includes hunting, fishing, watching wildlife and birding. 

Hunting and Fishing

Hunting occurs throughout the Grasslands, with the exception of developed recreation and 

administrative sites. However, hunters frequently use developed recreation sites for camping and 

staging their hunting and fishing activities. Black Kettle is one of the best public hunting areas in 

the nation for Rio Grande Turkey and Northern Bobwhite quail, although deer and small game 

hunting are also popular. Fishing is popular on the lakes and ponds of the Black Kettle, 

McClellan Creek National Grassland, and the Canadian River on the Kiowa. The projected trend 

is that hunting and fishing will remain a stable activity, with the greatest activity taking place on 

the Black Kettle National Grassland in Oklahoma (USDA Forest Service, 2008). 

Hiking and Camping 

Day hiking, and dispersed camping occur on the Grasslands. Dispersed camping occurs 

frequently associated with hunting. Mills Canyon is the most popular area for dispersed camping 

on the Kiowa National Grassland, where families have been returning for camping trips for years 

at favorite sites among the cottonwood groves in the canyon bottoms, and among the juniper 

clusters on the rim. Many designated dispersed sites on the Black Kettle are frequently used for 

camping, especially during hunting seasons. Dispersed camping may be reduced in the Mills 

Canyon and Thompson Grove areas of the Kiowa and Rita Blanca due to potential restrictions 

enforced as a result of the 2005 Travel Management Rule. As a result, increased use of developed 

sites is may occur. 

Black Kettle and McClellan Creek National Grasslands currently contain about 13.7 miles of 

short hiking trails around the major recreation sites, each of which is less than 2 miles long. A 

need for additional trails has been identified, especially for Mills Canyon and near some of the 

developed recreation sites on the Black Kettle. 
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 The 2.4-mile portion of the Santa Fe National Historic Trail on the Kiowa has become popular 

for hiking although it is managed as a historic site (National Historic Landmark) rather than a 

recreation trail. Because of the flat terrain, and fragmented and fenced land ownership, there are 

no areas which provide remote backpacking or long trail riding opportunities, and none are 

expected to be developed. (SESR). 

Off-Highway Motorized Use

Most of the system roads are open to off highway motorized vehicles, including ATVs and 

motorcycles that are not licensed for highway use. Driving motor vehicles off-road (cross 

country) is currently allowed on the Kiowa and Rita Blanca National Grasslands, but has been 

prohibited on the Black Kettle National Grassland since the 1990s. The Kiowa and Rita Blanca 

Grasslands are undergoing a planning process in accordance with the 2005 Travel Management 

Rule (36 CFR 294) to designate a system of roads, trails, and areas for motor vehicle use. Once 

the Motorized Vehicle Use Map (MVUM) is finalized for the District, driving off the designated 

routes or areas will be prohibited, unless provided for by written authorization such as a special 

use permit, such as those held by grazing permittees. OHV motorized recreation occurs primarily 

in the Mills Canyon area, however OHVs are also frequently used for hunting throughout the 

grasslands. McClellan Creek National Grassland currently provides the only motorized trail 

system area designated for motorcycles and all-terrain-vehicles (ATVs.) 

Other Dispersed Recreation Activities

Bird and wildlife viewing have developed into popular recreational activities on the Grasslands. 

The public’s interest in birds and wildlife has increased a variety of partnerships to provide ecotourism opportunities that would enhance rural economic development (USDA Forest Service, 

2008). Kiowa National Grassland has several ‘special’ recreation opportunities that attract visitors 

to the area. They include the Santa Fe National Historic Trail, Santa Fe Trail National Scenic

Byway, La Frontera del Llano Scenic Byway, Canadian River eligible Scenic River, and the

Canadian River Roadless Area. The state of Oklahoma has been promoting tours through the 

grasslands through their Great Plains Trail of Oklahoma, which emphasizes the wildlife and bird 

watching opportunities. The Audubon Society has designated a two Important Bird Areas on the 

Kiowa; Sauz and Perico Creeks. 

Developed Recreation 

Developed recreation sites on the grasslands include facilities such as restrooms, picnic tables, 

grills, trash containers, parking barriers, and bulletin boards. There are sites where small groups 

can camp or picnic for day use, as well as group-use structures that accommodate large numbers 

of people sometimes for extended periods. Under current management, the projected trend is that 

all sites will contribute to the quality of life for residents and visitors, stimulate the local rural 

economy, and satisfy the demand for different types of developed recreational opportunities 

(SESR). 

Interpretive Services 

Interpretive Services provide information to share the story of the natural and cultural resources 

of the grasslands through a variety of mediums. Interpretive panels have been installed in Mills 

Canyon to provide information on the history of the Mills orchard and ranch, the Work Projects 

Administration (WPA), and natural resources. An interpretive trail is available near the 

Cheyenne, Oklahoma City Park. This site is frequently used as an outdoor classroom. There is an 

interpretive site with picnic tables and parking for the Santa Fe Trail near Clayton, one of the best 

preserved sets of historic wagon ruts on public lands. There are a number of other interpretive 
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trails provided in association with developed recreation sites on Black Kettle. An interpretive trail 

is under construction for the Black Kettle Administrative Office site. There are brochures 

available on a number of topics, including bird watching and the Santa Fe Trail. There are 

interpretive services provided occasionally with special events such as the Wildlife Expo in 

Oklahoma and the public lands fishing derbies. 

Summary of Environmental Consequences 

The land management plan provides a programmatic framework that guides site-specific actions 

but does not authorize, fund, or carryout any project or activity. Because the land management 

plan does not authorize or mandate any site-specific activities or ground-disturbing actions there 

can be no direct effects. However, there may be implications, or longer term environmental 

consequences, of managing the forests under this programmatic framework. 

An interdisciplinary approach was used to evaluate possible environmental consequences for 

dispersed and developed recreation resources addressed in this report. We developed individual 

matrices that prompted review of plan components for both types of recreation, by alternative. 

This examination revealed whether implementation of any given alternative might have important 

positive or negative consequence in achieving the desired condition for the recreation resource. 

The following resource areas and respective alternatives were identified as having potential 

consequences in attaining the desired conditions for recreation. 

Recreation Opportunity Classes 

There is a change in the ROS class designations in Alternative B and C. This is proposed to better 

reflect the desired conditions, objectives and guidelines. The unique characteristics of the 

grasslands were considered, and the presence of roads was not the primary defining factor. When 

naturalness and a sense of remoteness are provided despite the presence of roads semi primitive 

motorized or non motorized classes is proposed. The ROS classes provide direction for 

recreation and management, and can influence decisions on other types of projects where the 

level of development proposed is not compatible with the ROS class assigned to an area. This 

table is an overview of the proposed changes in ROS class acreages by alternative. The 1985 Plan 

contains a typographical error in the Semi-primitive Motorized ROS class for Kiowa and Rita 

Blanca. The Plan says 361, 942 acres, it should read 161,942 acres. There may also be variations 

in the reporting of these acreages in various reports and documents due to recalculations using 

GIS, changes in land ownership, and rounding. 

Black Kettle and McClellan Creek ROS Classes (acres) 

Semi Primitive 

Non Motorized 

Semi Primitive 

Motorized 

Roaded Natural Rural 

Alternative A 

(No Action) 

0 3,583 29,529 0

Alternative B 

(Proposed Action 

0 28,695 4,064 36

Alternative C 0 28,695 4,064 36

Kiowa and Rita Blanca ROS Classes (acres) 

Semi Primitive 

Non Motorized 

Semi Primitive 

Motorized 

Roaded Natural Rural 
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Alternative A 

(No Action)

0 161,942 68,900 0

Alternative B 

(Proposed Action 

8,139 219,936 649 1,409

Alternative C 8,139 219,936 649 1,409

Dispersed Recreation/ Hunting 

Alternative C would have the same environmental consequences as Alternative B and A; however 

big-game retrieval would be non-motorized as a result of wilderness designation (Alternative C).

Dispersed Recreation (gas and oil leases) 

Alternative A, B and C recommend leasing gas and oil with no surface occupancy in Mills 

Canyon. 

Standards and guidelines for Alternative A and B and C would have positive consequences for 

dispersed recreation within the Canadian River corridor. This guidance directs acquisition of 

private lands within the canyon to preserve the unique qualities of the river. 

Dispersed Recreation, Wind Energy 

Wind energy development was not addressed in Alternative A. 

Wind energy design requirements within Alternative B and C have positive consequences for 

dispersed recreation around the National Historic Trail and Scenic Byways. Guidelines include 

restricting wind energy developments to 500 feet outside of eligible National Historic Sites, and 

minimal alterations from landscape character goals in areas of High Scenic Integrity. 

Dispersed Recreation, Livestock Grazing, Land Adjustments 

Standards, guidelines and objectives from Alternatives A, B and C were evaluated for livestock 

use, and found to have no environmental consequences for dispersed recreation. 

Dispersed Recreation, Heritage Resources 

Plan components for heritage resources in all alternatives would have positive environmental 

consequences for dispersed recreation. 

Dispersed Recreation, Roads and Access, Motorized Recreation 

Alternatives A, B and C will all have positive environmental consequences for Dispersed 

Recreation in the area of the Historic Trail and Scenic Byways because the designated road and 

trail system resulting from implementation of the 2005 Travel Management Rule will minimize 

the impacts on scenery and heritage resources by prohibiting cross country use and unauthorized 

road development. 

Dispersed Recreation, Nature Based Tourism 

Alternative A does not provide direction for managing Nature Based Tourism; however 

cooperative programs are in place to facilitate conservation of natural and cultural resources; and 

to promote rural economic development across the Grasslands. Alternatives B and C would 

continue nature-based tourism under current management. 
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Alternative A and B and C will all have positive environmental consequences for Dispersed 

Recreation because the designated road and trail system (Roads and Access resource area) 

resulting from implementation of the 2005 Travel Management Rule would minimize impacts on 

areas of high scenic integrity and heritage resources by prohibiting cross country motorized use 

and unauthorized road development. Objectives for motorized recreation in Alternatives B and C 

would have positive consequences for dispersed recreation activities centered on birding, wildlife 

viewing and other natural resource conservation programs. 

Management approaches (specific to Black Kettle) for wildlife habitat improvement in 

Alternative B and C would have positive environmental consequences for dispersed recreation 

(Nature-based Tourism) which includes auto touring focused on natural tourism and Watchable 

Wildlife. Alternative A would neither direct nor prohibit this activity. 

Alternative A emphasized dispersed recreation (forest wide direction), however within 

management direction for both management areas, developed was emphasized. Alternatives B 

and C would place more emphasis on dispersed recreation than Alternative A. 

Developed Recreation, Camping and Picnic Sites 

Grasslands-wide Objectives and Guidelines for developed recreation within Alternative B and C 

would have positive environmental consequences such as mitigating for resource damage, 

accommodating changes in recreational use, ensuring that developed sites harmonize within their 

natural settings. 

Developed Recreation, Scenery 

Guidelines for Scenery within Alternative B and C would have positive environmental 

consequences for developed recreation than Alternative A. Scenery guidelines address the degree 

of alteration from landscape character goals allowed within each of the three scenic integrity 

levels. Visual impacts from constructed features as well as infrastructure developments are 

minimized; and environmental design guidance for new infrastructure is provided. 

Developed Recreation, Livestock Grazing, Wind Energy, Land Adjustments 

Standards, guidelines and objectives from Alternatives A, B and C and were evaluated for 

livestock use, wind energy development and land adjustments, and found to have no 

environmental consequences for Developed Recreation as described in Alternative B. 

Developed Recreation 

Alternatives A, B, and C would have no environmental consequences from any other resource 

area that would affect developed recreation. 

Cumulative Environmental Consequences 

The cumulative effects analysis area is Grasslands-wide, immediately adjacent lands, and areas 

such as Amarillo, Oklahoma City, and other larger areas due to the shortage of public lands in 

Oklahoma and Texas. This area was chosen because recreation opportunities addressed in this 

report are geographically diverse.

The National Visitor Use Monitoring Results (NVUM) provided a break-down of Grassland 

visitors by geographic area. While 31percent travelled less than 25 miles, 65 percent traveled 26-

200 miles and 13 percent traveled 100-200 miles (USDA, Forest Service, 2009). 
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The desired conditions for Recreation emphasize Forest Service-intergovernmental partnerships 

and relationships with non-governmental organizations to develop and promote conservation, 

interpretive sites, and eco-tourism within the planning area. In addition to alternatives outcomes, 

there may be cumulative environmental consequences as a result of programs sponsored by other 

agencies. The following describes four of these programs on the Grasslands: 

Santa Fe National Historic Trail: The Forest Service is currently working under a Memorandum 

of Understanding (MOU) with the National Park Service to manage our segment of the Santa Fe 

National Historic Trail (National Landmark). The Grasslands may coordinate with other agencies 

to maintain consistency in signage and appearance of the trail and associated features. 

There is potential for wind energy development across multi-jurisdictional lands. The cumulative 

environmental consequences of large-scale utility development could degrade the high scenic 

integrity areas surrounding the Santa Fe National Historic Trail and Scenic Byways. 

Important Bird Areas Program: This program is managed by the National Audubon Society; the 

mission is to conserve and restore natural ecosystems, focusing on birds and other wildlife for the 

benefit of humanity and the earth’s biological diversity. Audubon-designated Important Bird 

Areas identify, prioritize and protect vital bird habitat. Wildlife improvements within the Sauz 

Creek and Perico Creek riparian areas would contribute to protecting IBA habitat. 

The Great Plains Trail of Oklahoma: This program is managed by the Oklahoma Department of 

Wildlife Conservation; the mission is to manage Oklahoma’s wildlife resources and habitat to 

provide scientific, educational, aesthetic, economic and recreational benefits for recreationists 

who appreciate wildlife. A stop at Black Kettle National Grassland and the Washita Battlefield 

National Historic Site are two of many highlights along the Black Kettle Loop tour. 

Watchable Wildlife: The mission of Watchable Wildlife is to help communities and wildlife

prosper. In 1990 eight federal agencies including the Forest Service signed a MOU to provide a 

framework for cooperative activities to develop and implement Watchable Wildlife Programs on 

federal lands. Watchable Wildlife is committed to helping local communities realize the 

economic potential of nature-related recreation while conserving native plants and animals in 

their native habitats. Mills Canyon is a Watchable Wildlife Viewing Area (Watchable Wildlife, 

2010).

Recreation Specialist Report 

Introduction 

This report discloses and evaluates the potential environmental consequences on the Recreation 

program resource that may result with the adoption of a revised land management plan. It 

examines, in detail, three different alternatives for revising the management direction for 

recreation: the 1985 Cibola National Forest Land Management Plan, the no action alternative; the 

Preferred Alternative and the Wilderness Alternative. This report will compare, dispersed and 

developed recreation for each of the three alternatives. 
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Relevant Laws, Regulations, and Policy that Apply 

Other Sources of Information from Appendix J of the Draft Plan (Alternative B) contains a 

comprehensive list of laws, regulation and policy that will not be duplicated within the plan 

narrative as standards and guidelines. The following is excerpted from that body of material: 

Developed Recreation 

Other Sources of Information 

36 CFR 213 Administration of Lands under Title III of Bankhead-Jones Farm Tenant Act by the 

Forest Service; 36 CFR 261Prohibitions; EO 11988 Floodplain Management; R3 Supplement to 

FSM 2300 Recreation, Wilderness, and Related Resource Management; FSM 2310 Planning and 

Data Management; FSM 2311 Resource Opportunities in Recreation Planning; FSM 2330.3 

Publicly Managed Recreation Opportunities, Policy; FSM 2353.16 Trail, River and Similar 

Recreation Opportunities; Cooperative Agreements and Rights-of-Way; FSM 2390 Interpretive 

Services; FSM 5340.2 Law Enforcement, Objectives; FSM 5420 Land Purchases and Donations; 

FSM 7151.02 Land Surveying, Objectives; FSM 7312.1 and 7312.2 Facility Planning, Plans, and 

Preliminary Project Analysis; FSH 7309.11 Ch 40 Buildings and Related Facilities, Management; 

Forest Service Outdoor Recreation Accessibility Guidelines; FSM 7400 Public Health and 

Pollution Control Facilities; FSH 7409.11, Sanitary Engineering and Public Health Handbook; 

Forest Service Outdoor Recreation Accessibility Guidelines, 5/22/2006; FSM 2303 Recreation, 

Wilderness and Related Resource Management, Policy; FSM 2334 Recreation, Wilderness, and 

Related Resource Management, Campgrounds and Picnic Grounds, National Trails System Act, 

2009. 

Dispersed Recreation 

Other Sources of Information 

FSM 1802 and 1803 Senior, Youth and Volunteer Programs, Objectives and Policy; FSH 

2309.18.4Trails Management Handbook; FSM 2300, Recreation, Wilderness, and Related 

Resource Management. 1985 Cibola National Forest Land and Resource Management Plan; 

Amendment #10, 2002, Wild, Scenic/Recreation Eligible River Areas. 36 CFR 212, Travel 

Management; 36 CFR 251, Land Uses; 36 CFR 261, Prohibitions;36 CFR 294, Special Areas;

Black Kettle McClellan Creek National Grasslands Motor Vehicle Use Map; Kiowa Rita Blanca 

National Grasslands Motor Vehicle Use Map. Travel Management Rule, 2005. 

Methodology and Analysis Process 

An interdisciplinary approach was used to evaluate possible environmental consequences and 

outcomes of plan alternatives for special areas as listed above and for natural tourism. We 

developed individual matrices that prompted review of the plan components for each resource 

area, by alternative. This examination revealed whether implementation of any given alternative 

might have important positive or negative consequences and outcomes. 

Assumptions 

In the analysis for this resource, the following assumptions have been made: 

• The land management plan provides a programmatic framework for future site-specific 

actions. 
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• Land management plans do not have direct effects. They do not authorize or mandate any 

site-specific projects or activities (including ground-disturbing actions). 

• Land management plans may have implications, or environmental consequences, of 

managing the forests under a programmatic framework. 

• The plan decisions (desired conditions, objectives, standards, guidelines, management 

areas, monitoring) will be followed when planning or implementing site-specific projects 

and activities. 

• Law, policy, and regulations will be followed when planning or implementing sitespecific projects and activities. 

• Monitoring will occur and the land management plan will be amended, as needed. 

• We will be funded similar to past budget levels (past 5 years). 

• The planning timeframe is 15 years; other timeframes may be analyzed depending on the 

resource (usually a discussion of anticipated trends into the future). 

Revision Topics Addressed in this Analysis 

The pertinent issues derived from the need to change the Grassland-specific components of the 

1985 Plan as identified in the 2008 Comprehensive Evaluation Report and Supplemental Analysis 

of the Management Situation document are explained below. This analysis addresses the needs 

for change in developed and dispersed recreation, Recreation Opportunity Spectrum classes, and 

scenic resources. Dispersed recreation will include motorized recreational activities.

Recreation and Scenic Resources-Dispersed 

The current plan is silent on direction for dispersed recreation aside from designations of specific 

acreages of ROS classifications and motorized uses within the management area direction. There 

is direction provided on the General Management Area direction that would apply to the 

grasslands. Standards and Guidelines direct ORV closures or restrictions to protect resources 

from unpredictable damage. The revised plan needs to provide more direction on management of 

dispersed recreation at differing levels of development and in a variety of settings. 

Recreation and Scenic Resources – Motorized (Travel Management) 

As of this writing, Black Kettle and McClellan Creek have a previous decision that closed the 

district to cross country travel and designated a system of roads and trails for motorized use. The 

rule provided for releasing Motor Vehicle Use Maps (MVUM) with public notice when the 

current management complied with the rule. The MVUM maps were released in October 2008. 

Kiowa and Rita Blanca National Grasslands are about mid-way through their Travel Management 

analysis, and are currently developing the Environmental Assessment associated with this 

process. The proposed action (January 29, 2010) would designate 238 miles of National Forest 

System Roads as open to all vehicles, and three dispersed camping corridors would be 

designated: at Thompson Grove, the bottom of Mills Canyon and the east rim of Mills Canyon.

Recreation and Scenic Resources-Developed 

The current plan defines the construction schedule and ‘person at one time capacity’ for 

developed sites. The revised plan would provide a spectrum of developed recreation opportunities 

characterized by varying levels of development and amenities appropriate to the setting that are in 

harmony with their natural and cultural settings (USDA Forest Service, 2008). 
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Recreation Opportunity Spectrum Classes 

The current plan designates ROS classes for management of the recreation resource and 

opportunities on the grasslands based upon road densities. The proposed action and Alternative C 

propose changes to the ROS classes to respond to the plan desired conditions. 

Threats, Risks and Areas of Concern for Recreation 

The recreational and tourism trends of the region are an important consideration in deciding 

which management strategies can be successfully implemented on the Grasslands. They also 

identify human caused threats or areas of concern that have the potential to affect the social, 

economic, and ecological sustainability of the Grasslands. Areas of concern for managed 

recreation on the Grasslands include: 

• Continuation and maintenance of opportunities for working with cooperators in the 

development and management of recreational activities 

• Uncontrolled motorized vehicle use on the Grasslands is affecting ecosystem and wildlife 

health 

• Interest in natural and cultural interpretation and education has been increasing among 

Grassland visitors. Development and maintenance of recreational facilities and activities 

provided on the Grasslands must be commensurate with the demand for use 

• Thresholds for scenery management objectives are being exceeded or could be exceeded 

based on the potential wind energy development and other potential projects in some 

areas of the Grasslands (USDA Forest Service, 2008) 

Summary of Alternatives 

Developed and Dispersed Recreation, and Recreation Opportunity Classes 

Alternative A

Recreation Opportunity Spectrum Classes 

This alternative continues with the current management. The emphasis is on Roaded Natural 

settings and opportunities on the Black Kettle and McClellan Creek units, and providing both 

Roaded Natural and Semi Primitive Motorized settings and opportunities on the Kiowa and Rita 

Blanca Units, including providing Semi Primitive Motorized settings and opportunities in the 

Mills Canyon IRA. Semi Primitive Motorized settings and opportunities is also the class assigned 

to the Santa Fe National Historic Trail. 

Dispersed 

The Management Direction for Alternative A emphasizes riparian protection and improvement 

projects; dispersed and developed recreation opportunities are consistent with other resource 

considerations, and emphasizes dispersed recreation over developed. Dispersed recreational use is 

identified as the largest recreation use and includes activities such as hiking, backpacking, 

picnicking, hunting and fishing, bird watching, ORV use, swimming and sightseeing. 
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Standards and Guidelines direct ORV closures or restrictions to protect resources from 

unpredictable damage. Acres of ORV closure would be indicated by Management Area and 

remaining acres would remain open unless other restrictions were made based upon an 

environmental analysis. Open roads and trails would be signed on the ground and maps of closure 

areas would be available. As of this writing, Black Kettle and McClellan Creek have a Motor 

Vehicle Use Maps (MVUM) printed and available to the public. Kiowa and Rita Blanca National 

Grasslands are mid-way through their Travel Management planning process, although their 

Travel Management Proposed Action is available (USDA, Cibola National Forest, 2010). 

Amendments to the current 1985 Land Management Plan would designate the open network of 

public and administrative-use roads and trails on each unit. This direction is consistent with the 

desired condition for the preferred alternative, and would be carried forward into Alternatives B 

and C. 

Developed 

Plan objectives for trails and campsite construction are prescriptive; emphasis is on capacity use. 

Management emphasis for Black Kettle and McClellan Creek would increase site capacity 

significantly. Site capacity on Kiowa Rita Blanca would increase slightly as result of construction 

and rehabilitation. Recreation opportunities are categorized by ROS class for dispersed and 

developed recreation. Guidelines for recreational development would evaluate compatibility with 

other resources and activities, establish mitigation measures to protect riparian and wetland 

habitat, emphasize developments that cause no deviation in Visual Quality classification, control 

sedimentation using Best Management Practices for road design and construction, and provide 

adequate provisions for effluent and waste water treatment. 

Alternative B

Recreation Opportunity Spectrum Classes 

This alternative proposes changes to the ROS classes. There is a substantial increase in SemiPrimitive Motorized settings and opportunities on the Black Kettle and McClellan Creek units. 

Many of the units provide a sense of remoteness, naturalness and solitude despite the presence of 

roads. The desired condition for these areas is for providing for natural conditions, with few 

facilities and little developed recreation. Areas like the interpretive trails near the Black Kettle 

Administration building are managed consistent with the rural setting class. There is a substantial 

increase in providing Semi-Primitive Motorized settings and opportunities on the Kiowa and Rita 

Blanca units. Many of the units provide a sense of remoteness, naturalness and solitude despite 

the presence of roads. The desired condition for these areas is to provide natural conditions, few 

facilities, and little developed recreation. The Mills Canyon IRA is assigned Semi-Primitive NonMotorized class, as is the area surrounding the Santa Fe National Historic Trail. This is more 

compatible with the management goals and objectives for this area. 

Dispersed 

Dispersed recreation minimizes conflicts with other uses and facilitates compliance with Travel 

Management restrictions. Camping and site intensive recreation is restricted to areas where 

limited environmental impacts might occur. Day hiking, hunting, fishing and primitive camping 

are the most frequent activities, Trails would be developed to connect public and private lands 

and vary in length and challenge. Design and construction would minimize damage to soil and 

water resources. Guidelines include closure or rehabilitation to protect or enhance resource 

conditions. Dispersed camping would be restricted within 200 feet of historic sites, most 
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trailheads, interpretive sites and stock water. Management strategies emphasize coordination with 

other agencies and organizations to identify where new partnerships may exist to expand hiking 

or other dispersed recreation opportunities. 

Opportunities for OHV use occur where the Motor Vehicle Use Maps (MVUM) show designated 

roads, trails or areas. Motor vehicle use would be especially limited in Mills Canyon and the 

Santa Fe National Historic Trail corridor. A range of experiences appropriate for the level of ROS 

exists particularly in areas designated as Roaded Natural, Rural, and Semi-Primitive Motorized. 

Developed 

Desired Conditions for Alternative B describe a range of developed amenities. New 

developments would be limited. Emphasis would be on maintaining and rehabilitating existing 

developments. Developed sites integrate natural and cultural elements, and emphasize efficiency 

in construction and operation. All developed sites are accessible except in cases where it would 

substantially detract from natural or cultural features. All administrative facilities would be 

accessible. Potable water systems are available where appropriate. Construction guidelines 

address wind energy and oil/gas developments. Public safety and stewardship address visitor 

control. Maintenance, construction and design are consistent with ROS and The Built 

Environment Image Guide for the National Forests and Grasslands. The desired conditions for 

Black Kettle and McClellan Creek feature lake based recreation. New or renovated facilities 

accommodate large recreation vehicles and provide conveniences. The plan objective is to 

maintain 1/3 of trail miles annually. Guidelines are in place for no-wake boating except 

McClellan Creek Recreation Area. 

Direction for motorized use and plan amendments resulting from implementation of the 2005 

Planning Rule would be carried forward from the 1985 Plan into Alternatives B and C. 

Alternative C 

Is the same as Alternative B, but with wilderness. 

Description of Affected Environment (Existing Condition) 

Recreation opportunities on the Grasslands greatly contribute to the quality of life enjoyed by 

residents and visitors alike. The Grasslands provide outstanding opportunities for dispersed 

recreation including hunting, fishing, camping, hiking, viewing birds and wildlife, driving to 

enjoy the scenery and historic sites. The developed recreation sites, particularly the lake-based 

recreation complexes on the Black Kettle and McClellan Creek National Grasslands, and the 

developed sites in Mills Canyon, offer unique and significant features available for both residents 

and visitors to enjoy within this region (USDA Forest Service, 2008). 

Dispersed Recreation 

Hiking and Camping 

Day hiking, developed camping, and primitive camping are the most frequent recreation activities 

on the Grasslands. Hiking and camping are important; however they may be a secondary activity 

to hunting, or fishing. Camping occurs at developed and primitive sites throughout the 

Grasslands. On Black Kettle National Grassland, camping most often occurs at developed sites or 

one of the 32 designated-dispersed sitesthat are accessed from open roads. On Kiowa and Rita 

Blanca National Grasslands, camping occurs at developed sites and people also may drive off of 
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the roads to camp. This type of dispersed camping may be reduced in some areas of the Kiowa 

and Rita Blanca due to off road restrictions implemented as a result of the 2005 Travel 

Management Rule. Increased use of developed recreation sites is projected to occur. Otherwise, 

the future trend for camping is expected to remain fairly stable across the Grasslands. Changes in 

users and uses on the District have recently spurred management to install a new developed 

campground at the top of Mills Canyon and improve the site at the bottom of the Canyon. 

Black Kettle and McClellan Creek National Grasslands currently contain about 13.7 miles of 

short hiking trails around the major recreation sites, each of which is less than 2 miles in length. 

Short trails are planned for some recreation sites on the Kiowa, particularly around Mills Canyon. 

The 2.4-mile portion of the Santa Fe National Historic Trail on the Kiowa is becoming more 

popular for hikers even though it is maintained as a historic site rather than a trail. Because of the 

flat terrain, and fragmented and fenced land ownership, there are no areas on the Grasslands 

which provide backpacking or long trail riding opportunities and none are expected to be 

developed. Instead, hiking trails provide a mix of day-use opportunities and some provide 

cultural, historical, or interpretative opportunities. It is projected that demand for day-hiking and 

interpretive trails will continue to rise on the Grasslands (USDA Forest Service, 2008). 

Off-Highway Motorized Use

Driving motor vehicles off-road (cross country) is currently allowed on the Kiowa and Rita 

Blanca National Grasslands but prohibited on the Black Kettle National Grassland since 1990. 

Several locations have been identified by the public as areas where off-road driving conflicts with 

other land use activities. The Grasslands are undergoing a planning process in accordance with 

the 2005 Travel Management Rule to create a designated system of motorized roads, trails, and 

areas. Once the Motorized Vehicle Use Map (MVUM) is finalized, driving outside designated 

routes or areas will be prohibited, unless specially authorized. 

Off-road driving and associated user-created roads in Mills Canyon and other areas on the Kiowa 

and Rita Blanca have removed important vegetation cover, accelerated soil erosion and stream 

sedimentation, and degraded riparian ecosystems, wildlife habitat, scenic quality, and historic 

sites. Uncontrolled motorized use in Mills Canyon has also impacted the Roadless Area 

characteristics for which the area was designated, and contributed to introduction and spread of 

invasive plants. 

McClellan Creek National Grassland currently provides the only motorized trail system area 

designated for dirt-bikes and small all-terrain-vehicles. While off-highway vehicle (OHV) use is 

increasing nationally, it is unlikely that it will significantly increase on the Grasslands due to the 

fences and fragmented land ownership. The implementation of the 2005 Travel Management 

Rule is expected to address conflicts and resource impacts associated with unmanaged motor 

vehicle use (USDA Forest Service, 2008). 

Hunting and Fishing

Hunting occurs throughout the Grasslands, with the exception of developed recreation and 

administrative sites. It is a major activity on Black Kettle, attracting as many as 3,000 hunters 

from across the nation during the spring Rio Grande Turkey season. Black Kettle is one of the 

best public hunting areas in the nation for Rio Grande Turkey and Northern Bobwhite quail, 

although deer and small game hunting is also popular. Fewer out-of-state residents hunt on the 

Kiowa due to limits on permits issued in New Mexico. Fishing is popular on the lakes and ponds 

of the Black Kettle and McClellan Creek National Grasslands, and the Canadian River on the 
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Kiowa. The Forest Service works with the state agencies that stock the water bodies with fish. 

The projected future trend is that hunting and fishing on the Grasslands will remain a stable and 

continuously popular activity, with the highest level of activity taking place on the Black Kettle 

National Grassland in Oklahoma (USDA Forest Service, 2008). 

Other Dispersed Recreation Activities

Bird and wildlife watching are developing into popular activities on the Grasslands. This activity 

includes observing and photographing birds and wildlife. There is a potential to work with 

partners to expand these activities on the Grasslands as tourism and rural economic development 

opportunities (USDA Forest Service, 2008). 

The Kiowa National Grassland has several unique ‘special’ recreation opportunities that attract 

visitors to the area. They include the Santa Fe National Historic Trail, Santa Fe Trail National 

Scenic Byway, La Frontera del Llano Scenic Byway, Canadian eligible Scenic River, and the

Canadian River Roadless Area. 

Developed Recreation 

Developed recreation sites typically include facilities such as restrooms, picnic tables, grills, trash 

containers, parking barriers, and bulletin boards. Sites range in development levels from those 

having limited amenities to highly developed. There are sites where small numbers of people can 

camp or picnic, for day use only as well as large group use structures that accommodate large 

groups of people sometimes for extended periods. 

The Grasslands feature two major recreation complexes in Texas: McClellan Creek and Lake 

Marvin Recreation Areas, designed around highly scenic reservoirs. Black Kettle National 

Grassland features three other popular lake-based recreation areas; Spring Creek, Skipout, and 

Black Kettle, which add diversity to the terrain and provide water-based recreational 

opportunities not usually found in the Grasslands region. These lakes attract high numbers of 

visitors year-round, with peak use during spring and fall hunting seasons, and the hot summer 

months. 

All developed recreation sites are open year-round. Drinking water is provided at all 

campgrounds other than Mills Canyon and Rim campgrounds, and is monitored for public safety 

standards. Reconstruction upgrades have partially occurred at all of the sites, with toilets and 

other facilities brought up to meet current Americans with Disabilities Act and Forest Service 

standards, including accessibility. No major maintenance issues exist, although regular 

maintenance and upgrades to replace facilities at the end of their service life and as needed to 

meet accessibility standards should continue. Visitor use does not exceed design capacity, 

meaning they generally do not exceed 70% of capacity, except during hunting seasons. Under 

current management, the projected trend is that all developed recreation sites will continue to 

contribute to the quality of life for local residents and visitors, stimulate the local rural economy, 

and continue to satisfy public demand for different types of developed recreational opportunities 

(USDA Forest Service, 2008). 

The Forest Service is working to develop and improve interpretive services by increasing 

coordination with other private and intergovernmental recreation and interpretive programs. To 

meet these objectives, the Grasslands are developing interpretive sites at significant historic sites 

and wildlife and bird watching areas on the Grasslands which help improve public awareness and 

appreciation of natural and cultural resources. Preserving these resources is highly-valued by 
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local and non-local residents alike. In addition, public access to important natural and cultural 

resource sites on the Grasslands provides an important opportunity to promote tourism and rural 

economic development. 

Environmental Consequences 

The land management plan provides a programmatic framework that guides site-specific actions 

but does not authorize, fund, or carryout any project or activity. Because the land management 

plan does not authorize or mandate any site-specific activities or ground-disturbing actions there 

can be no direct effects. However, there may be implications, or longer term environmental 

consequences, of managing the forests under this programmatic framework. 

An interdisciplinary approach was used to evaluate possible environmental consequences for 

dispersed and developed recreation resources addressed in this report. We developed individual 

matrices that prompted review of plan components for both types of recreation, by alternative. 

This examination revealed whether implementation of any given alternative might have important 

positive or negative consequence in achieving the desired condition for the recreation resource. 

The following resource areas and respective alternatives were identified as having potential 

consequences in attaining the desired conditions for recreation. 

Recreation Opportunity Spectrum 

Alternative A 

The Recreation Opportunity System used the presence of roads as the primary factor in defining 

the classes. While this didn’t have a major influence on the actual management during the last 

planning period, there was an incongruity between the ROS management direction and the actual 

management. Much of the grasslands is managed with little development, especially on the 

Kiowa and Rita Blanca units. Roaded Natural management primarily occurred near the developed 

recreation sites. Even though there are roads in the more remote units, they have little influence 

on the character, management or experience of recreation users. In these units, there were no 

plans for additional recreation development. It was not likely to encounter other recreationists, or 

other people outside of hunting season. There were substantial opportunities for experiencing 

naturalness, remoteness and solitude. 

The Rita Blanca has little recreation use outside of the hunting season. There are two developed 

recreation sites, Felt and Thompson Grove. Felt Picnic Area is on the edge of the community of 

Felt, OK, and is consistent with the Rural ROS class, but is classified as Roaded Natural. The 

Mills Canyon Inventoried Roadless Area is classified as Semi-Primitive Motorized, which is 

inconsistent with the roadless characteristics. The Santa Fe National Historic Trail was also 

classified as Semi-Primitive Motorized, which is inconsistent with the management described in 

the National Trails System Act (NPS, 2009). 

The Black Kettle was predominantly classified as Roaded Natural. While this is consistent with 

the developed recreation sites, and the nearby units, it is inconsistent with the undeveloped 

management of the other units. Like the Kiowa and Rita Blanca, is possible to experience 

remoteness and a sense of naturalness in these areas. There is no additional recreation 

developments that were planned for these units during the planning cycle. 
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Alternative B. The proposed ROS classes for the Alternative B are responsive to the desired 

conditions and associated objectives and guidelines for moving toward the desired condition. 

There is a substantial increase in the Semi Primitive Motorized classifications. This is compatible 

with travel management decisions that restrict use to designated roads and trails, which helps to 

preserve the sense of remoteness, while still providing for motorized recreation opportunities. 

These areas would continue to managed for very limited recreation development (potentially 

additional trails) while maintaining low density use, and a sense of remoteness and naturalness. 

The Roaded Natural class assignments occur primarily around developed recreation sites. Within 

this class there is a continuum of development, with more amenities provided at Lake McClellan 

and Lake Marvin, and fewer on the other Black Kettle and Kiowa and Rita Blanca sites. 

The proposed classes for Mills Canyon and the Santa Fe National Historic Trail are for SemiPrimitive Non-Motorized away from the developed sites. This is consistent with the Inventoried 

Roadless area management for Mills Canyon, and the National Trails legislation for the Santa Fe 

Trail. This would provide for non motorized recreation opportunities in these areas without 

encountering motor vehicles. This management would also help to preserve the Santa Fe Trail 

tracks, and be consistent with the expected experience described in the legislation. 

There are Rural ROS class assignments near some of communities, where the community 

presence and management influence the character of the sites. For example, the interpretive trails 

at the Black Kettle administrative office and the City Park in Cheyenne, OK are in the Rural ROS 

assignments. These are both extensions of building sites. The trail surfaces are concrete, with 

benches and interpretive features which consistent with the Rural setting. There is a high 

expectation to encounter others, and it provides for a very social setting. The maps showing the 

proposed ROS classes are available in Appendix A of the Draft Plan, and Appendix L of the 

DEIS.

Alternative C 

This alternative is the same as Alternative B. The Semi-Primitive Non-Motorized classification in 

Mills Canyon is compatible with the recommended wilderness management proposed in this 

alternative. It would provide for non motorized recreation opportunities consistent with 

recommended wilderness management. 

Dispersed Recreation, hunting 

Alternative C would have the same environmental consequences as Alternative B; however biggame retrieval would be non-motorized as a result of wilderness designation.

Dispersed Recreation, Canadian, eligible Scenic River (gas and oil leases) 

Alternative A recommends leasing gas and oil with no surface occupancy in Mills Canyon. These 

standards and guidelines are carried over from the 1985 Plan, Amendment #12 into Alternative B 

and C. There are positive environmental consequences for achieving the desired conditions for 

dispersed recreation. Standards for gas and oil leasing in Alternative B and C also exclude 

surface occupancy from within 300 feet of all riparian or wetland areas and will have positive 

environmental consequences for recreation activities within riparian areas outside of the river 

corridor. 
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Standards and guidelines for Alternative A and B and C would have positive consequences for 

achieving the desired conditions for dispersed recreation within the Canadian eligible Scenic 

River corridor. This guidance directs acquisition of private lands within the canyon to preserve 

the unique qualities of the river. River corridors identified in the National Rivers Inventory, or 

otherwise identified for study are protected by Amendment #10 (Wild, Scenic/Recreation Eligible 

River Areas, October, 7 2002), and carried forward into Alternatives B and C. 

Dispersed Recreation, Wind Energy 

Wind energy development was not addressed in Alternative A. 

Wind energy design requirements within Alternative B and C have positive consequences for 

achieving the desired conditions for Dispersed Recreation around the National Historic Trail and 

Scenic Byways. Guidelines include restricting wind energy developments to 500 feet outside of 

eligible National Historic Sites, and one-half mile from high scenic integrity areas, which should 

not interfere with other landmark views from the byways. Interpretive improvements and historic 

markers increase visibility and encourage recreation visits to the area. 

Alternative B and C would have positive environmental consequences for achieving the desired 

conditions for dispersed recreation because design guidelines for wind development minimize 

ground disturbing activities to limit impacts in areas of high scenic integrity. Guidelines also 

include restricting wind turbine developments to one-half mile from high scenic integrity areas, 

such as the Canadian River Potential Wilderness. 

Dispersed Recreation, Livestock Grazing 

Standards, guidelines and objectives from Alternatives A, B and C were evaluated for livestock 

use, and found to have no environmental consequences. 

Dispersed Recreation, Heritage Resources 

Plan components in for heritage resources would have positive consequences for Dispersed 

Recreation. Objectives include completion of a heritage resource project involving the public, off 

site educational programs, stabilization of historic homesteads. Guidelines recommend that local 

materials be used for stabilization activities, rather than importing non-native materials such as 

posts and beams. 

Dispersed Recreation, Roads and Access, Motorized Recreation 

Alternative A and B and C will all have positive environmental consequences for Dispersed 

Recreation in the area of the Historic Trail and Scenic Byways because the designated road and 

trail system resulting from implementation of the 2005 Travel Management Rule will minimize 

the impacts on scenery and heritage resources by prohibiting cross country use and unauthorized 

road development. Objectives for motorized recreation in Alternative B and C would rehabilitate 

all unauthorized routes where resource damage is occurring as in the area surrounding the 

National Historic Trail. 

Dispersed Recreation, Nature Based Tourism 

Alternative A does not provide direction for managing Nature-based Tourism on the National 

Grasslands, however cooperative programs with state and federal agencies, and NGOs are in 

place to facilitate conservation of natural and cultural resources; and to promote rural economic 

development across the Grasslands. 
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Alternatives A and B and C will all have positive environmental consequences for Dispersed 

Recreation because the designated road and trail system (Roads and Access resource area) 

resulting from implementation of the 2005 Travel Management Rule would minimize impacts on 

areas of high scenic integrity and heritage resources by prohibiting cross country motorized use 

and unauthorized road development. 

Objectives for motorized recreation in Alternative B would rehabilitate all unauthorized routes 

where resource damage is occurring as in the area surrounding the National Historic Trail; other 

existing routes would be evaluated for closure to protect plant and animal species and important 

species habitats, thus have positive environmental consequences for dispersed recreation 

activities centered around birding, wildlife viewing and other natural resource conservation 

programs. 

Guidelines (specific to Black Kettle) for Wildlife Habitat Improvement in Alternative B would 

have positive environmental consequences for Dispersed Recreation (Nature-based Tourism), 

which includes auto touring focused on natural conservation and Watchable Wildlife. The 

management approach emphasizes managing habitat and assessing opportunities to create wildlife 

improvement plots to meet the demand for important game species. 

Developed Recreation, Lake Based and Wildlife Habitat 

Management Approaches in Alternative B (specific to Black Kettle) for Wildlife Habitat 

Improvement would have positive environmental consequences for Developed Recreation, lake 

based developments. 

Developed Recreation, Camping and Picnic Sites 

Grasslands-wide Objectives and Guidelines for developed recreation within Alternative B would 

have positive environmental consequences such as mitigating for resource damage, 

accommodating changes in recreational use, water systems comply with safety and sanitation 

requirements, and developed sites harmonize within their natural settings. Guidelines provide 

direction for minimizing soil compaction and erosion; the management approach identifies 

changes in use trends; water systems; and new construction would harmonize with the 

surrounding landscape. Maintenance, construction and design of facilities would be consistent 

with the Recreation Opportunity Spectrum (ROS) class and The Built Environment Image Guide 

(BEIG). 

Management direction for Alternative A emphasized dispersed recreation over developed (forest 

wide) however emphasized developed within the direction specific to these management areas. 

The standards and guidelines for each Management Unit prescribed a site rehabilitation schedule 

to increase site capacity (PAOT) and rehabilitate to design condition class. Acreages were 

prescribed for each ROS class, and prescribed acreages to be managed to meet Visual Quality 

Objectives. 

Developed Recreation, Scenery 

Guidelines for Scenery within Alternative B and C would have positive environmental 

consequences for developed recreation as described within that alternative. Scenery guidelines 

address the degree of alteration from landscape character goals allowed within each of the three 
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scenic integrity levels. Visual impacts from constructed features as well as infrastructure 

developments are minimized; and environmental design guidance for new infrastructure is 

provided. The management approach emphasizes preserving the appearance of the vast horizon, 

which is important to the scenic integrity of the prairie landscape. The desired conditions related 

to the guidelines above state that developed recreation sites are in harmony with respect to their 

natural setting and integrate natural elements of the surrounding area. Developed recreation 

opportunities are characterized by varying levels of development and amenities appropriate to the 

setting. 

 

Developed Recreation, Livestock Grazing, Wind Energy, Land Adjustments 

Standards, guidelines and objectives from Alternatives A, B and C and were evaluated for 

livestock use, wind energy development and land adjustments, and found to have no 

environmental consequences for Developed Recreation as described in Alternative B. 

Cumulative Environmental Consequences 

Grasslands-wide and immediately adjacent lands are the cumulative effects analysis area. This 

area was chosen because recreation opportunities addressed in this report are geographically 

diverse. 

The desired conditions for Recreation emphasize Forest Service-intergovernmental partnerships 

and relationships with non-governmental organizations to develop and promote conservation, 

interpretive sites, and eco-tourism within the planning area. In addition to alternatives outcomes, 

there may be cumulative environmental consequences as a result of programs sponsored by other 

agencies. The following describes four of these programs on the Grasslands: 

Santa Fe National Historic Trail: The Forest Service is currently working under a Memorandum 

of Understanding (MOU) with the National Park Service to manage our segment of the Santa Fe 

National Historic Trail. The Park Service has developed a strategic plan for the future that 

includes interpretation, education and a marketing strategy to promote the trail locally, regionally, 

and nationally (Santa Fe National Historic Trail, Final Strategic Plan, 2003). The management 

approach for Alternative B emphasizes partnerships and projects to support economic goals and 

protect the resources for which the trail or byway was designated. The Grasslands may coordinate 

with other agencies to maintain consistency in signage and appearance of the trail and associated 

features. 

There is potential for wind energy development across multi-jurisdictional lands. The cumulative 

environmental consequences of large-scale utility development could degrade the high scenic 

integrity areas surrounding the Santa Fe National Historic Trail and Scenic Byways. 

Important Bird Areas Program: This program is managed by the National Audubon Society; the 

mission is to conserve and restore natural ecosystems, focusing on birds and other wildlife for the 

benefit of humanity and the earth’s biological diversity. Audubon-designated Important Bird 

Areas identify, prioritize and protect vital bird habitat. Important Bird Areas (IBA) are sites that 

provide essential habitat for one or more species of bird. IBAs include sites for breeding, 

wintering and/or migrating birds. As demand for wildlife viewing and birding increases, more 

interpretive sites would be developed to meet the need with an emphasis on bird trails and 

outdoor classrooms for youth groups, school children and outdoor enthusiasts. Wildlife
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improvements within the Sauz Creek and Perico Creek riparian areas would contribute to 

protecting IBA habitat. 

The Great Plains Trail of Oklahoma: This program is managed by the Oklahoma Department of 

Wildlife Conservation; the mission is to manage Oklahoma’s wildlife resources and habitat to 

provide scientific, educational, aesthetic, economic and recreational benefits for present and 

future generations of recreationists who appreciate wildlife. The Great Plains Trail of Oklahoma 

was developed to take advantage of Oklahoma’s rural character, showcase the many wildlife 

species, and promote rural economic development. One of America's newest wildlife routes, the 

Great Plains Trail covers the Oklahoma Panhandle. The ecotourism potential of the trail has 

brought together a number of public and private groups, including the Oklahoma Department of 

Wildlife Conservation, the State Parks Division, The Nature Conservancy, the U.S. Fish and 

Wildlife Service, Ducks Unlimited, the Northwest Cattlemen's Association, and several local 

chambers of commerce. A stop at Black Kettle National Grassland and the Washita Battlefield 

National Historic Site are two of many highlights along the Black Kettle Loop tour. 

Watchable Wildlife: The mission of Watchable Wildlife is to help communities and wildlife

prosper. In 1990 eight federal agencies including the Forest Service signed a MOU to provide a 

framework for cooperative activities to develop and implement Watchable Wildlife Programs on 

federal lands. Watchable Wildlife is committed to helping local communities realize the 

economic potential of nature-related recreation while conserving native plants and animals in 

their native habitats (Watchable Wildlife, 2010).

Unavoidable Adverse Impacts 

The land management plan provides a programmatic framework that guides site-specific actions 

but does not authorize, fund, or carryout any project or activity. Before any ground-disturbing 

actions take place, they must be authorized in a subsequent environmental analysis. Therefore 

none of the alternatives cause unavoidable adverse impacts. 

Irreversible and Irretrievable Commitment of Resources 

The land management plan provides a programmatic framework that guides site-specific actions 

but does not authorize, fund, or carryout any project or activity. Because the land management 

plan does not authorize or mandate any ground-disturbing actions, none of the alternatives cause 

an irreversible or irretrievable commitment of resources. 

Adaptive Management 

All alternatives assume the use of adaptive management principles. Forest Service decisions are 

made as part of an on-going process, including planning, implementing projects, and monitoring 

and evaluation. The land management plan identifies a monitoring program. Monitoring the 

results of actions will provide a flow of information that may indicate the need to change a course 

of action or the land management plan. Scientific findings and the needs of society may also 

indicate the need to adapt resource management to new information. The Forest Supervisor 

annually evaluates the monitoring information displayed in the evaluation reports through a 

management review and determines if any changes are needed in management actions or the plan 

itself. In general, annual evaluations of the monitoring information consider the following 

questions: 
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• What are the effects of resource management activities on the productivity of the land? 

• To what degree are resource management activities maintaining or making progress 

toward the desired conditions and objectives for the plan? 

• What changes are needed to account for unanticipated changes in conditions? 

In addition to annual monitoring and evaluation, the Forest Supervisor reviews the conditions on 

the land covered by the plan at least every 5 years to determine whether conditions or demands of 

the public have changed significantly. The forest plan is ordinarily revised on a 10-year cycle and 

the Forest Supervisor may amend the plan at any time. 

Consistency with Law, Regulation, and Policy 

All alternatives are designed to guide the Kiowa, Rita Blanca, Black Kettle and McClellan Creek 

National Grasslands’ management activities in meeting federal law, regulations, and policy. 

List of Preparers 

• Cynthia A. Geuss, MCRP, Community and Regional Planning, 1999; 20 years 

experience as a Region 3 Forest Service cartographer, 2 years experience in 

planning, Cibola National Forest. 

• Nancy Brunswick, M.L.A. Landscape Architecture ; 20 years experience in 

landscape architecture and recreation management working for the USFS. 

References 

USDA, Forest Service, Southwestern Region. 2008. Grasslands Plan Revision Comprehensive 

Evaluation Report: Kiowa, Rita Blanca, Black Kettle, and McClellan Creek National 

Grasslands. 

USDA, Cibola National Forest, 2010. Kiowa and Rita Blanca National Grasslands, Cibola 

National Forest; Travel Management Proposed Action. 

Texas Center for Policy Studies, 2010. Texas Environmental Almanac; Available at: 

http://www.texascenter.org/almanac/Land/LANDCH3P1.HTML#PUBLIC 

USDI, Fish and Wildlife Service, 2003. 2001 National Survey of Fishing, Hunting, and WildlifeAssociated Recreation; Texas 

Natural Resource Council of Maine, 2010. Public Land Ownership by State. Available at: 

www.nrcm.org/documents/publiclandownership.pdf

USDA, Forest Service, 1990. Recreation Opportunity Spectrum Primer and Field Guide. 

Available at: 

http://www.fs.fed.us/cdt/carrying_capacity/rosfieldguide/ros_primer_and_field_guide.ht

m
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USDA, Forest Service, 2009. National Visitor Use Monitoring Results; Comparison of Cibola 

National Forest to Grasslands 

USDA Forest Service, 2001. The Built Environment Image Guide for the National Forests and 

Grasslands 

National Trails System Act of 2009 

Watchable Wildlife, 2010. Mission Statement. Accessed at: http://www.watchablewildlife.org

USDA, Forest Service, 1985. Cibola National Forest Land and Resource Management Plan; 

Amendment #10, Wild, Scenic/Recreation Eligible River Areas, 2002.