United States 

Department of

Agriculture

Forest 

Service

Southwestern

Region

Cibola 

National 

Forest and 

National 

Grasslands

May 2011

Livestock Use and 

Rangeland Management 

Specialist Report

Kiowa, Rita Blanca, Black Kettle 

and McClellan Creek National 

Grasslands Plan Revision

Environmental Impact Statement 

Analysis

Submitted by: __/s/

Rick Newmon, Range Management Specialist

_________________________

Cibola National Forest and National Grasslands
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Livestock Use and

Range Management Specialist Report

Under all alternatives, black-tailed prairie dogs (BTPDs) may reduce available forage for livestock. Under 

alternative A, available forage would increase, as 4,400 acres of shinnery oak would be converted to 

grassland. This alternative would have the grasslands develop miles of fence and water pipeline, and 

numerous watering facilities that are not needed and would be expensive. Alternatives B and C would not 

require these developments.

Executive Summary

The Grasslands contain seven primary vegetation types. Suitability and capability of National Forest 

System land was determined in the 1985 Land and Resource Management Plan. The Grasslands were 

determined to be suitable at that time. These landscape scale conditions have not displayed an appreciable 

change since then. All vegetation types, except the deep plowed shinnery oak type, are within the historic 

range of variation. The deep plowed shinnery oak areas probably do not have the capability to return to

the pre-European settlement range of conditions.

Overview of the Affected Environment

The Grasslands administer permits for 180 permittees on 416 grazing units. At this time, cattle are the 

only kind of livestock authorized to graze the Grasslands.

Under all alternatives, BTPDs may reduce available forage for livestock. Under alternative A, available 

forage would increase, as 4,400 acres of shinnery oak would be converted to grassland. This alternative 

would have the grasslands develop miles of fence and water pipeline, and numerous watering facilities 

that are not needed and would be expensive. Alternatives B and C would not require these developments.

Summary of Environmental Consequences

Bank-Head Jones Farm Tennant Act of 1937: 36 CFR 213

Relevant Laws, Regulations, and Policy that apply

Administration of Lands Under Title III of the Bank-head Jones Farm Tennant Act by the Forest Service

FSM 2203.2 Range Management Policies – National Grasslands

FSM 2230.2 and 2230.3 Grazing and Livestock Use Permit System, Objective and Policy

FSM 2231.02 Grazing and Livestock Use Permit System – Requirements for Permits with Term Status

FSH 2209.13 Chapter 12.31 Grazing Permit Administration Handbook

FSH 2209.13 Chapter 90 Rangeland Management Decision-making 
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Environmental Assessment of Livestock Grazing and Associated Vegetation Management: Black Kettle 

National Grassland-Roger Mills County, Oklahoma. November 1999. Black Kettle National Grassland, 

Cibola National Forest, Cheyenne, Okla.

Environmental Assessment for Selected Range Units in Dallam Co., Texas: Term Permit Modification 

and Range Unit Management Plans. November 2003. USDA Forest Service, Cibola National Forest Rita 

Blanca National Grassland, Kiowa and Rita Blanca National Grasslands Ranger District, Clayton, N.M.

Environmental Assessment of Livestock Grazing on the Kiowa National Grassland in Union Co., N.M. 

August 1999. USDA Forest Service Cibola National Forest Kiowa National Grassland, Clayton, N.M.

Environmental Assessment of Livestock Grazing in the Mills Area of the Kiowa National Grassland: 

Harding, Colfax, and Mora Counties, N.M. September 1998. USDA Forest Service Cibola National 

Forest Kiowa National Grassland, Clayton, N.M.

Environmental Assessment for Selected Range Units in Dallam Co., Texas: Term Permit Modification 

and Range Unit Management Plans. January 2004. USDA Forest Service, Cibola National Forest Rita 

Blanca National Grassland, Kiowa and Rita Blanca National Grasslands Ranger District, Clayton, N.M.

Environmental Assessment of Livestock Grazing and Management on the Rita Blanca National Grassland 

in Cimarron Co., Okla. September 2002. USDA Forest Service Cibola National Forest Rita Blanca 

National Grassland, Clayton, N.M.

Spatial analyses of rangelands are based on the area within the proclaimed boundary of the Black Kettle, 

Kiowa, McClellan Creek, and Rita Blanca National Grasslands. The time frame used is the past decade 

(2000-2009) through the planning period. Existing Conditions and projected Environmental 

Consequences were evaluated using field reconnaissance, visual obstruction readings, Parker 3 Step 

transects, cover-frequency transects, production clippings, photo points, and composition inventories. 

Data collected has been compared with historical data and with the TEU inventory. 

Methodology and Analysis Process

Suitability and capability of National Forest System land was determined in the 1985 Land and Resource 

Management Plan (LRMP). Suitability is determined based on compatibility with desired conditions and 

objectives in the plan area, including wildlife habitat needs. Most of these landscape scale conditions have 

not displayed an appreciable change since then.

The plan components ( ie., objectives, guidelines, standards, suitability and monitoring elements) and 

management approaches for all alternatives and for other resource areas besides livestock use were 

evaluated against the desired condition for livestock use by interdisciplinary team members to determine 

if achieving the desired condition for livestock use was affected positively, negatively, or not at all.

Livestock grazing will continue at the current level in all the alternatives contained in this analysis. The 

Ecological Sustainability report determined that no change in current livestock use management is needed 

to meet the desired conditions for the rangeland vegetation types. Adaptive management of livestock

Revision Topics Addressed In This Analysis
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would be applied to all the alternatives. Fluctuations in annual forage production will be accounted for by 

adjusting stocking levels or seasons of use or both.

The 1985 Land and Resource Management Plan provided for livestock grazing, range improvement 

construction and implementation of conservative management and utilization levels. Livestock grazing on 

the grasslands is managed according to decisions made by National Environmental Policy Act 

Environmental Assessments. The provisions in these decisions prescribe conservative utilization levels 

and adaptive management principles that allow for variable livestock numbers and seasonal flexibility. 

These are applied so that the desired vegetation condition may be maintained or moved toward. These 

NEPA decisions would be implemented in all the alternatives under consideration in the DEIS.

Summary of Alternatives

Alternative A would provide for livestock grazing, range improvement construction, and implementation 

of conservative management and utilization levels. Livestock grazing on the grasslands is managed 

according to decisions made by NEPA analyses. The provisions in these decisions prescribe conservative 

utilization levels and adaptive management principles that allow for variable livestock numbers and 

seasonal flexibility. These are applied so that the desired vegetation condition may be maintained or 

approached. These NEPA decisions apply to this alternative.

Alternative A would emphasize forage for sustained livestock yields and technology to improve range 

condition.

Alternative A would increase forage on 4,400 acres as shinnery oak would be treated and converted to 

grassland.

Alternative B would contribute to local economies by offering livestock grazing permits and 

demonstrating grassland agriculture and would contribute to preserving large areas of open space and 

preserving the rural and cultural heritage of the southern Great Plains. Livestock use would provide for 

conditions that support the sustainability of diverse, healthy herbaceous, and woody plant communities 

and animal populations while protecting wetlands, streams, habitat, and soils from undesirable impacts. 

The same NEPA decisions discussed under alternative A apply to this alternative as well.

Alternative C would be the same as alternative B with regard to livestock grazing, but would be subject to 

FSM 2320 directives in the Canadian River PWA. This area is currently not under permit but the grazing 

units are considered open if the need should arise to allow livestock use to accomplish vegetation resource 

objectives consistent with the desired condition.

The Grasslands are coarsely grouped into seven vegetation types. The mixed grass prairie and piñonjuniper vegetation types are close to their historical range of variation (HRV) conditions, and continuation 

of current management is expected to move them further towards that condition. The cottonwood-willow 

and shinnery oak are within their historical range of variation, although shinnery oak has more area in the 

early/mid-open seral stage and less in the late/closed stage and require periodic introduction of planned 

fire. The shortgrass prairie and sand sagebrush are also within the historical range of variation conditions.

Description of Affected Environment

Deep plowed shinnery oak areas, formerly cultivated old field sites in shortgrass prairie, and cottonwoodwillow riparian may not be able to return to the pre-European settlement range of conditions. The 

cottonwood-willow vegetation type may not be able to return fully to HRV due to the disruption of natural 
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hydrologic processes on and off of the Grasslands. Settlement and the Dust Bowl era also created 

conditions that facilitated mixed hardwood riparian establishment, a vegetation type not historically found 

on the Grasslands. Consequently there is not an appropriate reference condition for determining a 

departure from reference condition for mixed hardwood riparian. While returning to HRV conditions may 

not be fully achievable on some vegetation types, the continuation of adaptive management should move 

them toward HRV where possible.

Since the restoration following the Dust Bowl era, watershed and vegetative conditions have improved 

significantly. The Grasslands administer permits for 180 permittees on 416 grazing units. At this time, 

cattle are the only authorized kind of livestock. Vegetative conditions are able to support 91,406 AUMs 

of livestock grazing as well as to provide for wildlife habitat and watershed protection on the Black 

Kettle, Kiowa, McClellan Creek, and Rita Blanca National Grasslands. 

Permitted AUMs fluctuate based upon climatic conditions. The drier vegetation types west of the 100th

meridian are more acutely influenced by drought. In addition, prairie dog populations negatively affect 

grazing capacity and vegetative condition, especially when coupled with less than normal precipitation.

Environmental Consequences

Common to All Alternatives. Where not specifically directed by the plan, livestock use would be 

conducted in accordance with law, regulation, policy, applicable NEPA decisions, and through the use of 

BMPs and adaptive management to maintain a sustainable grazing resource.

Drought would reduce available forage and livestock industry income. BTPDs may reduce available 

forage. Forage would not be available to cattle near playa lakes during the migratory bird breeding 

season. Except for the long-term loss of forage base on the small areal extent of wind turbine pads and 

access roads, it is anticipated that disturbance to livestock would be temporary, as livestock would 

become accustomed to their presence.

Economic efficiency was analyzed to estimate the present net value (PNV) for recreation, livestock use, 

minerals, and nonrecreation special uses by alternative. The PNV for alternative A is $152,409,146. The 

PNV for alternatives B and C is $151,130,674. The PNV between alternatives would be economically 

insignificant.

It is possible that the development of wind energy in the grasslands could have a negative affect on 

forage production. This reduction would be in proportion to the number of wind turbines installed and the 

access roads installed to service them. It is anticipated that disturbance to livestock would be temporary, 

as livestock would become accustomed to their presence.

Alternative A. Available forage would increase as 4,400 acres of shinnery oak would be converted to 

grassland. Livestock use would be facilitated by the construction of 55.6 miles of fence, 64 watering 

facilities, and 3 miles of water pipeline on the BKMC NG and by 365 miles of fence, 514 watering 

facilities, and 21 miles of water pipeline on the KRB NGs.

Alternatives B and C. Forage quality would decrease in pastures containing playa lakes deferred from 

grazing between April 1 and August 31 when water is present and bird nesting is occurring.
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It is possible that the increased emphasis on blacktail prairie dogs population viability could result in 

reduced forage production in the dog town areas. This reduction in forage production would affect 

livestock use in direct proportion to the size of the dog town.

Under Alternative C, the potential designation of wilderness in the Mills Canyon/Canadian River would 

not be expected to change management with regard to livestock grazing. This area is a designated 

roadless area and is managed according to those requirements. Presently the units within the roadless area 

are not grazed but are maintained in an open but unstocked status and not under permit. This allows 

grazing to occur if needed to maintain the desired condition of the area.

The cumulative environmental consequences analysis area is the land immediately adjacent to the 

grasslands. Expansion of prairie dog colonies onto the grasslands resulting from the Oklahoma 

Department of Wildlife Conservation Landowner Incentive Program could reduce available livestock 

forage on the grasslands.

Cumulative Environmental Consequences

Currently, interest in irrigated crop farming has resulted in grassland conversion to crops on nearby 

private land. The conversion of native grasslands to cropland will likely continue into the future, 

depending on a host of economic circumstances. This phenomena will likely make native, intact

vegetation types on the grasslands even more important as habitats across the larger landscape.

USDA NRCS has an Environmental Incentives Improvement Program available to, among others,

ranchers who run livestock on the National Grasslands allotments as well as on their private holdings.

Conservation practices can be cost-shared by USDA NRCS on both National Grasslands parcels as well

as on the private landowner holdings, thus benefitting both.

A land management plan provides a programmatic framework that guides site- specific actions but does 

not authorize, fund or carry out any project or activity. Because a land management plan does not 

authorize or mandate any ground-disturbing actions, none of the alternatives cause an irreversible or 

irretrievable commitment of resources.

Unavoidable Adverse Impacts

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

part of an on-going process. The land management plan identifies a monitoring program. Monitoring the 

Adaptive Management

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

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

toadapt resource management to new information. 

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

National Grasslands in meeting federal law, regulation and policy.

Consistency with Laws, Regulation and Policy

Other Planning Efforts
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There are no potential conflicts between the proposed action and the objectives of the Federal, State, 

Local, or Tribal land use plans, policies and controls for the areas concern

References

Uresk and Paulson et al, 1988, Rocky Mountain Forest and Range Experiment Station

Derner, J. D., Detling, J. K., and Antolin, M. F. 2006. Are livestock weight gains affected by prairie dogs? 

Frontiers in Ecology and Environment 4:459-464.

Prepared by: Rick Newmon, Rangeland Management Specialist, Cibola NF&NGs. B.S. Range Science