United States Department of Agriculture

Forest Service

Southwestern Region

MB-R3-07-17

February 2014

Land and Resource 

Management Plan for the 

Kaibab National Forest

Coconino, Yavapai, and Mojave Counties, Arizona

Cover: collage of four images―Kanab Wilderness, Abert squirrel, Ponderosa pine, and aspen.

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Printed on recycled paper – February 2014

Land and Resource 

Management Plan 

for the 

Kaibab National Forest

Coconino, Yavapai, and Mojave Counties, Arizona

Responsible Official: Calvin Joyner, Regional Forester

333 Broadway Blvd., SE

Albuquerque, NM 87102

(505) 842-3292

For more information, contact: Michael R. Williams, Forest Supervisor, or 

Ariel Leonard, Forest Planner

Kaibab NF Supervisor’s Office

800 S. 6th Street

Williams, AZ 86046

(928) 635-8200

Mailroom_R3_Kaibab@fs.fed.us

Copies of this plan and supporting 

material may be accessed at: http://fs.usda.gov/goto/kaibab/plan_revision

Land and Resource Management Plan for the Kaibab National Forest i

Content

Chapter 1. Introduction ................................................................................................... 1

Plan Area ..................................................................................................................................... 1

Roles and Contributions of the Kaibab National Forest.............................................................. 2

Summary of the Analysis of the Management Situation............................................................ 3

Plan Purpose and Framework...................................................................................................... 4

Plan Development ....................................................................................................................... 4

Plan Content ................................................................................................................................ 5

Plan Components..................................................................................................................... 5

Other Content .......................................................................................................................... 6

Plan Concepts.............................................................................................................................. 6

Plan Organization ........................................................................................................................ 8

Plan Consistency ......................................................................................................................... 9

Plan Implementation.................................................................................................................... 9

Chapter 2. Forestwide Desired Conditions and Strategies ........................................ 11

Forest Resources........................................................................................................................ 11

Major Vegetation Community Types......................................................................................11

Pinyon-juniper Communities ........................................................................................... 11

Ponderosa Pine Forests..................................................................................................... 16

Mixed Conifer Forests...................................................................................................... 21

Frequent Fire Mixed Conifer Forests.......................................................................... 21

Mesic Mixed Conifer/Spruce Fir Forests.................................................................... 24

Aspen................................................................................................................................ 27

 Standards for Vegetation Management in All Forested Communities........................... 30

 Guidelines for Vegetation Management in All Forested Communities......................... 30

 Guidelines for Activities following Large-scale Disturbance Events ........................... 32

Sagebrush Shrublands ...................................................................................................... 33

Grassland Communities ................................................................................................... 35

Montane/Subalpine Grasslands................................................................................... 37

Colorado Plateau/Great Basin Grasslands................................................................... 37

Semi-desert Grasslands ............................................................................................... 38

Desert Communities......................................................................................................... 39

Gambel Oak Shrublands................................................................................................... 40

Wetland/Cienega .............................................................................................................. 41

Cottonwood-Willow Riparian Forest ............................................................................... 42

Soils and Watersheds............................................................................................................. 43

Natural Waters...................................................................................................................... 49

Constructed Waters................................................................................................................ 47

Wildlife.................................................................................................................................. 49

Threatened, Endangered, and Sensitive Species ................................................................... 51

Rare and Narrow Endemic Species....................................................................................... 52

Nonnative Invasive Species................................................................................................... 53

Air Quality............................................................................................................................. 54

Caves, Karst, and Mines........................................................................................................ 56

Cliffs and Rocky Features..................................................................................................... 58

Cultural Resources ................................................................................................................ 59

Traditional Cultural Properties.............................................................................................. 61

Land and Resource Management Plan for the Kaibab National Forest iii
Content

Forest Uses, Goods, and Services.............................................................................................. 62

Recreation and Scenery......................................................................................................... 62

Traditional and Cultural Uses................................................................................................ 67

Livestock Grazing ................................................................................................................. 68

Forestry and Forest Products................................................................................................. 70

Wildland Fire Management................................................................................................... 72

Transportation and Forest Access.......................................................................................... 76

Potable Water......................................................................................................................... 78

Lands..................................................................................................................................... 78

Special Uses .......................................................................................................................... 79

Recreation Special Uses................................................................................................... 79

Communication and Electronic Sites............................................................................... 80

Energy Transmission and Development........................................................................... 81

Mineral and Mining Activities ......................................................................................... 82

Chapter 3: Management Areas...................................................................................... 85

Designated Areas....................................................................................................................... 85

Wilderness............................................................................................................................. 85

Existing Wilderness on the Kaibab NF ................................................................................. 86

Frank’s Lake Geologic-Botanic Area .................................................................................... 89

Arizona Bugbane Botanical Area .......................................................................................... 89

Double A Wild and Free Roaming Burro Territory ............................................................... 90

Kaibab Squirrel National Natural Landmark ........................................................................ 91

Grand Canyon Game Preserve .............................................................................................. 92

Kaibab Plateau-North Rim Parkway ..................................................................................... 92

National Scenic and Recreation Trails .................................................................................. 93

Management Areas.................................................................................................................... 95

Recommended Wilderness Areas.......................................................................................... 95

Wildland-urban Interface Areas............................................................................................. 96

West-wide Energy Corridor................................................................................................... 98

Developed Recreation Sites................................................................................................... 99

Garland Prairie Management Area ...................................................................................... 100

Bill Williams Mountain Management Area......................................................................... 101

Red Butte Management Area .............................................................................................. 102

House Rock Wildlife Area................................................................................................... 103

Pediocactus Conservation Area ........................................................................................... 104

Chapter 4. Suitability.................................................................................................... 109

Timber Suitability.................................................................................................................... 109

Grazing Suitability and Capability .......................................................................................... 110

Recreation Suitability .............................................................................................................. 116

Chapter 5. Monitoring and Evaluation....................................................................... 123

Introduction ............................................................................................................................. 123

Monitoring Strategies.............................................................................................................. 124

List of Preparers ........................................................................................................... 145

Glossary and Acronyms ............................................................................................... 147

Glossary................................................................................................................................... 147

Essential Government Acronym Dictionary (EGAD)............................................................. 161

Literature Cited ............................................................................................................ 165

iv Land and Resource Management Plan for the Kaibab National Forest
Appendix A. Proposed and Possible Actions.............................................................. 167

Appendix B. Relevant Laws, Regulation, and Policy ................................................ 171

Appendix C. Large Tree Retention Classes for Ponderosa Pine .............................. 191

Appendix D. Kaibab National Forest’s Plan Revision Climate Change Approach 193

Appendix E. Kaibab National Forest Major Potential Natural Vegetation Types. 203

Appendix F. Electronic Sites and Utility Corridors .................................................. 207

List of Figures

Figure 1. Vicinity map of the Kaibab National Forest.............................................................. 1

Figure 2. Management areas on the North Kaibab Ranger District...................................... 105

Figure 3. Management areas on the Tusayan Ranger District .............................................. 106

Figure 4. Management areas on the Williams Ranger District ............................................. 107

Figure 5. Kaibab NF lands suitable and unsuitable for livestock grazing..............................113

Figure 6. Recreation opportunity settings for the Williams Ranger District..........................117

Figure 7. Scenic integrity objectives for the Williams Ranger District .................................118

Figure 8. Recreation opportunity settings for the Tusayan Ranger District..........................119

Figure 9. Scenic integrity objectives for the Tusayan Ranger District................................. 120

Figure 10. Recreation opportunity settings for the North Kaibab Ranger District ............... 121

Figure 11. Scenic integrity objectives for the North Kaibab Ranger District ....................... 122

List of Tables

Table 1. Timber suitability calculation for the Kaibab NF.....................................................110

Table 2. Grazing capability calculations for the Kaibab NF..................................................111

Table 3. Areas unsuitable for grazing on the Kaibab NF .......................................................111

Table 4. Suitability for mineral and energy activities on the Kaibab NF...............................115

Table 5. Matrix for the Kaibab NF Monitoring Plan ............................................................ 128

Acknowledgement: We would like to thank the following friends and family of the Kaibab NF for their 

generous line drawing contributions: Andrew Sánchez Meador (pine trees), Carla Roybal (oak tree), 

Aubrey Maccoux LeDuc (Kanab Creek Canyon) and Donna Laing (nuthatch, cabin).

Land and Resource Management Plan for the Kaibab National Forest v

Chapter 1. Introduction

Plan Area

The Kaibab National Forest (NF) is one of six national forests in Arizona. It covers 1.6 million 

acres, and is located in Coconino, Yavapai, and Mohave Counties. The Kaibab NF is broken into 

three geographically separate ranger districts: the North Kaibab Ranger District lies north of 

Grand Canyon National Park, the Tusayan Ranger District is south of Grand Canyon National 

Park, and the Williams Ranger District is southernmost, separated from the Tusayan Ranger 

District by private and Arizona State lands (Figure 1). The Kaibab NF shares boundaries with 

Grand Canyon National Park, the Prescott and Coconino NFs, the Bureau of Land Management 

(BLM) Arizona Strip District, the Navajo and Havasupai Indian Reservations, city of Williams, 

town of Tusayan, Camp Navajo (a National Guard training site), and private lands.

Figure 1. Vicinity map of the Kaibab National Forest

Land and Resource Management Plan for the Kaibab National Forest 1
Chapter 1. Introduction

This plan1 covers the National Forest System lands within the Kaibab NF boundary, with the 

exception of Sycamore Canyon Wilderness, which is covered by the “Coconino National Forest 

Land and Resource Management Plan.” This plan provides guidance for all of the Kendrick 

Mountain Wilderness, including the portion within the boundaries of the Coconino NF.

Roles and Contributions

of the Kaibab National Forest

The distinctive history and characteristics of the Kaibab NF frame the roles and contributions it 

provides to the local area, State, region, and Nation. From the high-elevation lands of the Kaibab 

Plateau on the North Kaibab Ranger District to the rolling hills and open country of the Tusayan 

Ranger District to the scattered cinder cones and canyons of the Williams Ranger District, the 

Kaibab NF includes wide variations in landscape, vegetation, and wildlife. As such, the Kaibab 

NF provides unique resources and recreation opportunities that attract a wide spectrum of forest 

users. 

The diversity of wildlife found on the Kaibab NF provides enjoyment and aesthetic value for the 

photographer, bird watcher, nature lover, hiker, camper, and hunter. The Kaibab NF is home to 

large mammals including mule deer (Odocoileus hemionus), elk (Cervus elaphus), bighorn sheep 

(Ovis canadensis), pronghorn (Antilocapra americana), mountain lion (Puma concolor), black 

bear (Ursus americanus), and many other species.

The Kaibab NF has a diversity of vegetation types due to the range of elevation and soil types. 

Pinyon-juniper woodlands cover 40 percent of the Kaibab NF and are found at lower elevations. 

As elevation increases, pinyon-juniper transitions to ponderosa pine forest, which covers 35 

percent of the Kaibab NF. Other vegetation types include mixed conifer, grasslands, sagebrush 

shrublands, Gambel oak shrublands, and desert communities. Aspen, riparian, and wetland 

vegetation is present in small, yet important, areas.

The Kaibab NF lies mostly within Coconino County, which is the second largest county in the 

United States. Of the county’s 18,000 square miles, only 13 percent is privately owned. Its 

population of 134,000 averages only about 7 people per square mile. Due to the small percentage 

of private land in the area, the Kaibab NF has long played an important role in providing for a 

variety of resources, uses, and activities including ranching, logging, forest product collection, 

hunting, and cultural events. 

American Indian tribes and people in nearby communities have long-time connections to the 

Kaibab NF. It contains lands traditionally used by the Navajo, Hualapai, Kaibab Band of Paiute, 

Hopi, Havasupai, Yavapai, and Zuni people. The communities around the Kaibab NF were later 

settled by Mormons, Spanish explorers, cattlemen, and loggers. This history continues to 

influence the culture today as western rural lifestyles and traditional uses are important to the 

local communities.

Recreationists engage in a variety of activities such as hiking, camping, sightseeing, and 

driving/riding for pleasure. Tourism has played an increased role over the last 20 years. The 

proximity of the Kaibab NF to Grand Canyon National Park and historic Route 66 attracts visitors 

1

 Note: terms defined in the glossary and are underlined text throughout the plan. These terms are hyperlinked to the 

glossary in electronic versions of the plan.

2 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 1. Introduction

from across the Nation and throughout the world. Tourism-related activities contribute to local 

economic development and opportunities. Many area residents have jobs or businesses dependent 

on forest resources such as ranching, sandstone quarrying, wood harvesting, and outfitter-guiding. 

Summary of the Analysis 

of the Management Situation

The management situation was analyzed in the 2009 Comprehensive Evaluation Report (CER; 

USDA 2009) and supplement to the CER (USDA 2010). The CER evaluated the need for change 

in light of how management under the 1988 plan (as amended) was affecting the conditions and 

trends related to sustainability. The CER integrated key findings from the ecological and the 

socio-economic sustainability reports. This integration displayed the key management needs for 

change, potential activities, and socioeconomic ecological interactions. These were used to 

identify where the conditions and trends indicated a potential need for change in the plan. The 

supplement to the CER contains additional analysis and information about projections of demand, 

benchmarks, and species considerations. Together, these documents meet the content 

requirements of the analysis of the management situation (AMS). These documents are available 

upon request and can be found on the Kaibab NF Web site at: 

http://fs.usda.gov/goto/kaibab/plan_revision.

The CER/AMS and subsequent management reviews considered this information along with the 

Forest Service mission, Forest role and contributions, and anticipated demands. They identified 

four areas where there were priority needs for change in program direction. These are to:

• Modify forest structure and species composition to restore or maintain sustainability and 

restore historic fire regimes. 

• Protect and regenerate aspen to ensure long-term healthy aspen populations. 

• Protect and restore natural waters and wetlands to ensure healthy riparian communities. 

• Restore grasslands by reducing tree encroachment and restoring fire.

The most apparent need for change is to reduce the risk of uncharacteristic fires and restore the 

structure, species composition, and function of forested ecosystems. This emerged as the highest 

need for change in the ecological sustainability report and as a very high need in the socioeconomic sustainability analysis. The concordant socioeconomic and ecological benefits of 

restoring forest structure include providing quality wildlife habitat, improving scenic integrity, 

providing for commercial and personal use wood products, protecting cultural resources, 

protecting against undesired fire effects, improving public and firefighter safety, increasing 

understory diversity, and improving soil condition. 

Restoring aspen also emerged as a high priority. Aspen is an important species because of its 

contribution to local ecological diversity and its high social and economic value associated with 

scenery and tourism. Aspen has declined in areas across the West due to the combined effects of 

ungulate browsing, insects, disease, severe weather events, and lack of fire disturbance. Aspen 

decline has been of particular concern on the Williams Ranger District.

Protecting natural waters came forward as an important need for change. Natural waters in arid 

landscapes are centers of high biological diversity. About half of the natural springs and other 

waters on the Kaibab NF are currently departed from reference conditions. Protection and 

Land and Resource Management Plan for the Kaibab National Forest 3
Chapter 1. Introduction

restoration of these rare resources can be accomplished through actions such as controlling 

invasive species, maintaining or removing constructed modifications, fencing out large ungulates, 

and improving hydrologic function by reducing tree densities in adjacent vegetation types. 

Besides ecological values, natural water bodies are associated with high social and economic 

values such as bird watching and traditional cultural uses.

Grasslands are much less abundant than they were historically, which reduces the amount of 

available habitat for grassland-associated species. The subalpine/montane grasslands on the North 

Kaibab Ranger District tend to be long and narrow; as a result, they are at a higher risk of loss as 

trees encroach from the edges and the openings close more quickly. There is a need to develop 

desired conditions and set objectives for grassland ecosystems on the Kaibab NF, which are 

lacking in the original forest plan.

This plan focuses on the identified needs for change stated above. Over time, new information 

and changing conditions will emerge that call for changes in management. As these needs are 

identified, adaptive planning will be used to incorporate new information and amend the plan as 

needed. 

Plan Purpose and Framework 

The land and resource management plan (hereafter referred to as the plan) guides the Kaibab NF

in fulfilling its stewardship responsibilities to best meet the needs of the American people for the 

present and into the future. The plan provides a framework to promote ecological integrity and 

guide management on the Kaibab NF so that it is ecologically sustainable and contributes to 

social and economic sustainability. This plan provides Forest-specific guidance and information 

for project and activity decision making over the plan period, which is generally considered to be 

10 to 15 years. It is strategic in nature and does not specifically authorize or prescribe any specific 

projects or activities.

Plan Development

The National Forest Management Act directs that forest plans be revised on a 10- to 15-year 

cycle. Twenty-five years have passed since the regional forester approved the original Kaibab 

forest plan on April 15, 1988; this plan has been amended 10 times since that date. The last 25 

years have provided new scientific information and understanding and changes in economic, 

social, and ecological conditions. This has resulted in a shift in management emphasis from 

outputs to outcomes.

This forest plan revision process was conducted in accordance with 1982 Rule Provisions as 

provided for in the transition language of the 2012 Land and Resource Management Planning 

Rule (36 CFR 219.17(b)(3)). This plan revision was initiated prior to the availability of the 2012 

Rule, and as a result, the responsible official has chosen to use the 2012 Rule’s transition 

provisions to revise the plan.

The original plan was used as a basis for the revised plan, but some content was not retained 

because it reiterated existing law, regulation, and policy; did not reflect current scientific 

information; was outside of management control; or due to changed conditions on and around the 

Kaibab NF. Development of the revised plan was an iterative process utilizing best available 

scientific information, regional guidance, internal feedback, and collaboration with a wide variety 

of government agencies, tribes, non-governmental organizations, and publics. Comments 

4 Land and Resource Management Plan for the Kaibab National Forest
Chapter 1. Introduction

received during the formal 90-day public comment period in 2012 were used to further refine 

plan content and environmental analysis.

Plan Content

This plan includes “plan components” and “other content.” Plan components are displayed in text 

boxes to distinguish them from other sections of the plan. Once approved, any substantive 

changes to plan components would require a plan amendment with appropriate analysis as 

required under the National Environmental Policy Act (NEPA). A change to “other content” may 

be made using an administrative correction process. Administrative corrections are used to make 

changes such as updates to data and maps, management approaches, and relevant background 

information, and to fix typographical errors. The public is notified of all administrative 

corrections of the plan.

Plan Components 

Plan components (decisions) include: goals/desired conditions, objectives, standards, guidelines, 

suitability of uses, management areas (including designated areas), and monitoring. They were 

developed collaboratively with input from a variety of external and internal stakeholders with 

broad interdisciplinary representation. Plan components do not reiterate existing law, regulation, 

or policy. An interdisciplinary team refined the final form and organization of the plan to make it 

as understandable, useable, and integrated as possible. 

Desired Conditions (Goals) describe the aspirational picture for the Kaibab NF. Goals, as 

required by the 1982 Planning Rule provisions, are articulated as “desired conditions” in this 

plan. They are the ecological and socioeconomic attributes toward which management of the land 

and resources of the plan area are directed. They are not commitments or final decisions 

approving projects or activities; rather, they guide the development of projects and activities. 

They have been written to contain enough specificity to allow for determining progress toward 

their achievement. Projects are designed to maintain or move toward desired conditions and to be 

consistent with the plan over the long term. In some cases, goals/desired conditions may only be 

achievable over hundreds of years. 

Objectives describe how the Kaibab NF intends to move toward the desired conditions.

Objectives are concise projections of measurable, time specific intended outcomes. Objectives 

have been established for the work considered most important to address the needs for change 

and achieve desired conditions. They also provide metrics for evaluating accomplishments.

Guidelines are technical design criteria or constraints on project and activity decision making 

that help to make progress toward desired conditions. A guideline allows for departure from its 

terms, so long as the intent of the guideline is met. Deviation from a guideline must be specified 

in the decision document with the supporting rationale. When deviation from a guideline does not 

meet the original intent, a plan amendment is required.

Standards are technical design constraints that must be followed when an action is being taken to 

make progress toward desired conditions. Standards differ from guidelines in that standards do 

not allow for any deviation without a plan amendment.

Management Areas are delineated areas with a common set of plan components that differ from 

the general Forest. Management Areas are established to meet specific management needs. 

Land and Resource Management Plan for the Kaibab National Forest 5
Chapter 1. Introduction

Designated Areas are a special type of management area that are established by Congress or

other administrative processes of the Federal executive branch because of unique or special 

characteristics. Examples of statutorily designated areas are national heritage areas, national 

recreation areas, national scenic trails, wild and scenic rivers, wilderness areas, and wilderness 

study areas. Examples of administratively designated areas are experimental forests, research 

natural areas, scenic byways, botanical areas, and significant caves.

Suitability of National Forest System (NFS) lands are identified as “suitable” for various uses. 

An area may be identified as suitable or not suitable for certain uses, depending on its 

compatibility with desired conditions and objectives for the area. This plan addresses suitability 

for timber, grazing, recreation, minerals, and energy resource activities.

Monitoring is the part of the adaptive management strategy used to determine the degree to 

which on-the-ground management is maintaining or making progress toward desired conditions. 

The monitoring plan includes questions and performance measures designed to evaluate 

implementation and effectiveness, and inform adaptive management. 

Other Content

The “other content” in this plan includes background information, existing conditions, 

management approaches, and contextual information. Management approaches are not plan 

decisions, but they help clarify how plan direction may be applied. Management approaches 

include information and guidance for projects and activity decision making to help achieve 

desired conditions and objectives. Management approaches describe priorities, considerations, 

and strategies for achieving desired conditions and articulate the strategies needed to effectively 

make progress toward desired conditions within the context of the operating environment of the 

plan. 

Plan Concepts

All lands is the concept that ecosystems transcend land ownership boundaries, thus, effective 

land and resource management requires cooperation and collaboration among the Forest Service, 

other land managing agencies, tribes, and private landowners. This plan was developed using an 

approach whereby plan components were developed considering the greater landscape and the 

Kaibab NF’s ecological, social, and economic role. 

Sustainability is meeting the needs of the present generation without compromising the ability of 

future generations to meet their needs. Sustainability is composed of desirable social, economic, 

and ecological conditions or trends interacting at varying spatial and temporal scales, embodying 

the principles of multiple use and sustained yield (FSM 2020.5).

Resilience is the capacity of a system to absorb disturbance and reorganize while undergoing 

change so as to still retain essentially the same function, structure, identity, and feedback (FSM 

2020.5).

Scale. Desired conditions are described at multiple scales where appropriate. Descriptions at 

various scales are sometimes necessary to provide adequate detail and guidance for the design of 

future projects and activities that will help achieve the desired conditions over time. The three 

scales used in this plan are: fine scale, mid-scale, and landscape scale. 

6 Land and Resource Management Plan for the Kaibab National Forest
Chapter 1. Introduction

Fine scale is an area10 acres or less in size. In forested ecosystems, it is a scale at 

which the distribution of individual trees (single, grouped, or aggregates of 

groups) is described. Fine-scale desired conditions provide the view that can be 

observed standing in one location on the ground. Fine-scale desired conditions 

typically contain greater variability, which is desirable for providing 

heterogeneity at smaller spatial scales.

Mid-scale desired conditions are composed of assemblages of fine-scale units 

and have descriptions that would be averaged across areas of 100- to 1,000-acre 

units. 

Landscape scale is an assemblage of 10 or more mid-scale units, typically 

totaling more than 10,000 acres, composed of variable elevations, slopes, aspects, 

soils, plant associations, and disturbance processes. Landscape scale desired 

conditions provide the big picture overview with resolution that would, for 

example, be observable from an airplane or from a zoomed out Google Earth 

view. The landscape scale is also an appropriate scale for describing less common 

components that would not necessarily occur on every mid-scale unit within the 

landscape. 

Potential natural vegetation is the vegetation that would occur in the presence of natural 

disturbance processes such as frequent fire return intervals. In some areas, there is a difference 

between the existing vegetation type and the potential vegetation type, such as where historic 

grasslands are currently encroached by trees. The potential natural vegetation, not the existing 

vegetation, determines which desired conditions apply. 

Vegetation structure includes both the vertical and horizontal dimensions. Horizontal 

structure may refer to patterns of trees or groups of trees and openings, as well as tree 

size and tree density. Vertical structure may refer to the layers, appearance, and 

composition of vegetation between the ground and the top of the tallest vegetation and 

may include grasses, forbs, shrubs, and trees. 

Natural variability references past conditions and processes that provide important context and 

guidance relevant to the environments and habitats in which native species evolved. Disturbance 

driven spatial and temporal variability is vital to ecological systems. Biologically appropriate 

disturbances provide for heterogeneous conditions and subsequent diversity. Conversely, 

“uncharacteristic disturbance” such as high-intensity fire in plant communities that historically 

had a frequent low intensity fire regime can have the effect of reducing diversity, increasing 

homogeneity, and resulting in states that may be permanently altered. 

Ranges of values presented in desired conditions reflect either natural or desired 

variation in the composition and structure within a community or resource area. Desired 

conditions may or may not be the same as historic conditions and may have wide ranges 

due to spatial variability in soils, elevation, aspect, or social values. Where desired 

conditions specify a range of values, the full spectrum of values within that range is 

desirable, although the desirable distribution of values within that range may vary 

depending on the resource. It may also be desirable to manage for desired conditions at 

the upper or lower end of a range in a particular area, such as lower vegetation density in 

the wildland-urban interface (WUI) to achieve the desired fire behavior within proximity 

Land and Resource Management Plan for the Kaibab National Forest 7
Chapter 1. Introduction

of private property and human occupancy. Higher densities may be desired in other areas 

to meet habitat requirements for specific species.

Integration recognizes and identifies key relationships between various plan resources and 

activities. Plan components are integrated to address a variety of ecological and human needs. For 

example, desired conditions for ponderosa pine incorporate habitat needs for a variety of species, 

as well as the scenic components that recreationists desire. Interrelationships between parts of the 

plan are identified with crosswalks to show their systematic nature. In electronic versions of the 

plan, these crosswalks are hyperlinked (indicated by italicized text) to allow users to be easily 

redirected to the other relevant sections of the plan.

Adaptive management is a system of management practices based on clearly identified intended 

outcomes and monitoring to determine if management actions are meeting those outcomes. If 

needed, it facilitates management changes that will best ensure that those outcomes are met or reevaluated. Adaptive management stems from the recognition that knowledge about natural 

resource systems is sometimes uncertain (36 CFR 220.3), particularly for dynamic issues such as 

climate change, invasive species, and disturbances that are not easily predicted. 

Climate change is addressed throughout this plan, indirectly through desired conditions in the 

form of functional ecosystems and resilient landscapes, and directly in management approaches 

and the monitoring plan where appropriate. Appendix D provides a more detailed explanation of 

the strategy the Kaibab NF is using to address climate change. 

Plan Organization

Chapter 1 – Introduction briefly describes the planning area, the analysis of the management 

situation, purpose of this plan, plan components, how these components are organized within the 

plan, project consistency with the plan, and how the plan is implemented through project-level 

planning. 

Chapter 2 – Forestwide Desired Conditions and Strategies includes forestwide desired 

conditions (goals), objectives, standards, and guidelines and is split into two sections: “Forest 

Resources” and “Forest Uses, Goods, and Services” (activities). Standards and guidelines are 

typically located in the relevant activity section of the plan, but when standards or guidelines 

pertain to multiple activities, they are located in the applicable resource section. 

Chapter 3 – Management Areas contains the plan components applicable to specific areas that 

call for site-specific management. The management areas chapter is divided into two sections: 

“Designated Areas” and “Management Areas” (MAs). Designated areas have specific 

designations such as wilderness or botanic areas. MAs include wildland-urban interface, utility 

corridors, developed recreation sites, and other places such as Red Butte and Bill Williams 

Mountain that call for special site-specific management. 

Chapter 4 – Suitability is the appropriateness of applying certain resource management practices 

to a particular area of land in consideration of the relevant social, economic, and ecological 

factors. Suitability is determined based on compatibility with desired conditions and objectives in 

the plan area. Suitability is determined for timber production, livestock grazing, recreation, 

minerals, and energy resource activities. Descriptions of the criteria used in making the 

determinations are provided along with the results. The identification of an area as suitable for a 

particular use or uses is guidance for project and activity decision making and is not a 

8 Land and Resource Management Plan for the Kaibab National Forest
Chapter 1. Introduction

commitment or a final decision approving projects and activities. It also does not mean that a 

particular use will or will not occur in the area.

Chapter 5 – Monitoring and evaluation of plan implementation is used to determine progress 

toward achieving desired conditions and objectives, and to determine how well management 

requirements, such as standards and guidelines, are being applied. The monitoring strategy 

provides a framework for subsequent monitoring and evaluation designed to inform adaptive 

management.

Plan Consistency

As required by the National Forest Management Act (NFMA) and the National Forest System 

Land Management Planning Rule, all projects and activities authorized by the Forest Service 

must be consistent with the plan by being consistent with applicable plan components (decisions).

In addition to consistency with plan direction, Forest projects and activities are developed to be 

consistent with applicable laws, regulations, and policies. “Projects and activities” cover all 

actions under 16 U.S.C. 1604(i). 

When a proposed project or activity is not consistent with a plan component, the responsible 

official has the following options:

• Modify the proposal so that the project or activity will be consistent; 

• Reject the proposal; or 

• Amend the plan contemporaneously with the approval of the project or activity so that the 

project or activity is consistent with the plan as amended. The amendment may be limited 

to apply only to the project or activity.

Plan Implementation

Project-level planning is the mechanism for plan implementation. Project planning translates the 

desired conditions and objectives in the plan into proposals that identify specific actions, design 

features, and project-level monitoring. Proposal development for projects addresses site-specific 

needs developed locally with input from experts and stakeholders and consideration of the most 

current and relevant information. Project decisions are made following public involvement and 

analysis. Important considerations in project development include consistency with the plan, 

consistency with higher-level direction, projects’ potential effects on achieving desired conditions 

at multiple scales, and feedback from project- and plan-level monitoring regarding the 

effectiveness of management strategies.

Forest projects and activities are to be consistent with the direction in this plan as well as with 

that from current law, regulation, and policy. This plan does not reiterate higher-level direction; 

instead, it includes a partial list of applicable laws, regulations, executive orders, and policy for 

reference in Appendix B.

In order to ensure a project is consistent with the plan, its design and implementation should 

consider its setting, any Management Areas it overlaps, and the guidance for any resources or 

conditions that may be present in the area (e.g. cultural resources, nonnative species, geologic 

formations, wildlife, etc.). Additionally, it should consider any potential conflicts with other 

authorized projects and activities. Project design should be consistent with Forest-wide plan 

direction except where superseded by Management Area direction, which takes precedence.

Land and Resource Management Plan for the Kaibab National Forest 9
Chapter 1. Introduction

When using this plan to develop project specifications, it is important to keep in mind that desired 

conditions for all scales are applicable regardless of the size of the project. Smaller projects need 

to consider the larger scales in terms of how they contribute to the desired conditions within the 

context of the larger-scale unit, and larger projects need to consider the design features required 

to ensure that the fine scale desired conditions are achieved and maintained across the project 

area. 

Consideration of scale is also important when evaluating progress toward desired conditions 

because the range of variability and distribution of conditions is affected by the scale at which 

they are viewed. For example, when desired conditions are articulated at larger scales, they 

represent an average of fine-scale conditions across broader areas. This may make conditions 

appear less variable when they are evaluated at large scales, even though variability exists at the 

smaller scales.

Plan- and project-level monitoring and evaluation are the tools for gathering information on 

progress toward desired conditions, the effectiveness of plan implementation, and the 

appropriateness of plan direction. This information is subsequently used to determine 

management needs and adjust management strategies, which, in part, determine the form of future 

projects and activities. As such, monitoring and evaluation are key elements of plan 

implementation, as they guide future management occurring under the plan. The monitoring plan 

contained in Chapter 5 of this document, in conjunction with project-level monitoring, will 

provide the framework for enabling adaptive management on the Kaibab NF.

10 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Chapter 2. Forestwide 

Desired Conditions and Strategies

This chapter lays out the desired conditions and the strategies the Kaibab NF intends to use to 

achieve them. Desired conditions define what the Kaibab NF should look like and what goods 

and services it should provide. Strategies consist of objectives, standards, and guidelines; they 

define when, where, and how to achieve the desired conditions. They define the actions needed to 

move toward desired conditions and the sideboards needed to constrain those actions in the form 

of objectives, standards, and guidelines.

Throughout this chapter, plan components (plan decisions) are displayed within text boxes. Text 

outside of boxes does not constitute plan decisions; it is background material, explanations, or 

descriptions of management approaches. 

Desired conditions and strategies (objectives, standards, and guidelines) related to the major 

vegetation types are presented first in this plan because they provide the setting or habitat where 

the other resources occur and activities take place. These desired conditions are integrated and are 

intended to reflect not only healthy ecological systems, but also the social and economic 

considerations needed for long-term sustainability.

Forest Resources

Major Vegetation Community Types

The major vegetation communities on the Kaibab NF are presented in the order from those 

occupying the greatest acreage to the least. The mapped boundaries of the vegetation 

communities are based on of the potential natural vegetation type that would occur in the 

presence of natural disturbance processes such as fire. Appendix E displays the approximate 

location and area of the major vegetation community types on the Kaibab NF. The PNVT 

determination for a specific location is should be based on soils and other site-specific indicators.

Pinyon-juniper Communities

The pinyon-juniper vegetation communities are collectively composed of the pinyon-juniper 

grassland, pinyon-juniper sagebrush, and pinyon-juniper persistent woodland communities. 

Pinyon-juniper communities generally occur at elevations between 5,300 and 7,400 feet. They 

occur on all three districts and cover about 630,000 acres on the Kaibab NF. Pinyon-juniper 

communities are the setting for a variety of uses and activities including wood cutting, livestock 

grazing, camping, hunting, and pinyon nut gathering.

Under their natural disturbance regime, these plant communities are dominated by one or more 

species of pinyon pine and/or juniper with at least 10 percent tree canopy. Pinyon is occasionally 

absent, but one or more juniper species are always present. They can occur with a grass/forbdominated understory (pinyon-juniper grasslands forest communities), a shrub-dominated 

understory (pinyon-juniper sagebrush forest community), or a sparse discontinuous understory of 

some grasses and/or shrubs (pinyon-juniper persistent woodland forest community). Two-needle 

pinyon pine (Pinus edulis) is common; as well as one-seed (Juniperus monosperna), Utah (J. 

osteosperma), Rocky Mountain (J. scopulorum), and alligator (J. deppeana) juniper. Much of the 

Land and Resource Management Plan for the Kaibab National Forest 11
Chapter 2. Forestwide Desired Conditions and Strategies

pinyon-juniper vegetation communities are currently denser than they were historically because 

of changes in wildfire occurrence. Greater tree density has increased competition for water and 

nutrients. This, in turn, has caused a reduction in understory plant cover and diversity, a loss of 

ground cover, and subsequent increases in soil erosion. 

Pinyon-juniper communities provide important winter and spring range for wildlife. Mature 

pinyon-juniper stands are particularly important for several bird species of conservation concern, 

many of which rely on the habitat features provided only by mature stands. Such features include 

large-diameter trunks for nest cavities and greater berry and seed production. On the North 

Kaibab Ranger District, pinyon-juniper habitat provides primary and critical winter range and 

transitional habitat during migration for mule deer. Similarly, pinyon-juniper habitat on the

Williams and Tusayan Ranger Districts provides winter and transitional range for elk and other 

game species. 

Desired Conditions Common to All Pinyon-juniper Communities

• Pinyon-juniper communities occur as a shifting mosaic interspersed with openings across 

the landscape. The configuration of vegetation and openings provides foraging and 

browsing opportunities for wildlife, and enough sighting distance and hiding cover for 

pronghorn to escape predators. 

• Old growth occurs throughout the landscape, generally in small areas as individual 

components, or as clumps. The location of old growth shifts on the landscape over time as 

a result of succession and disturbance (tree growth and mortality). 

• At the mid-scale and above, canopy cover is at least 10 percent with a mix of young and 

mature groups and clumps of trees. 

• The mature groups of trees are structurally diverse, containing large live trees, as well as 

trees with dead or broken tops, gnarls, and burls. Snags, green snags, and downed trees > 

10′′ at root collar are present and average 1 to 2 per acre. Some tree groups have 30 to 40 

percent canopy cover that provides habitat for nesting, bedding, and foraging.

• The composition, structure, and function of vegetative conditions are resilient to the 

frequency, extent, and severity of disturbances (e.g. insects, diseases, and fire) and climate 

variability. 

• Plant litter (leaves, needles, etc.) and understory plant cover contributes to soil 

stabilization, prevents erosion, promotes nutrient cycling, improves water retention, 

provides cover and forage for small mammals, and conditions necessary for pinyon seed 

germination.

• Nurse trees provide understory microclimate with improved nutrient and soil properties, 

higher soil moisture, lower temperatures, and lower light levels, which increases the 

survival of pinyon seedlings under harsh conditions.

• There are opportunities for collecting forest products (firewood, pinyon nuts, posts, and 

poles, etc.) in a manner consistent with other desired conditions.

• A robust crop of pinyon pine nuts is regularly produced. 

12 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Pinyon-juniper Grasslands 

The pinyon-juniper grassland vegetation community is composed of the pinyon-juniper grassland 

and juniper grassland vegetation types. Pinyon is occasionally absent, but one or more juniper 

species are always present. Except in some post-fire communities, these areas historically had at 

least 10 percent tree canopy cover with an understory dominated by grassland species, often on 

deep soils with gentle topography. Areas that historically had less than 10 percent tree canopy 

cover are classified as grasslands. This distinction is necessary for differentiating between 

vegetation types and their respective desired conditions, but it is recognized that transition 

between pinyon-juniper grasslands and grassland savanna actually occurs along a gradient.

Desired Conditions for Pinyon-juniper Grasslands

• Pinyon-juniper grasslands are generally uneven-aged and open in appearance. Trees occur 

as individuals, but occasionally are in small groups and range from young to old. 

• Scattered shrubs and a dense herbaceous understory including native grasses, forbs, and 

annuals are present. A herbaceous understory maintains soil productivity, provides quality 

habitat, resists soil erosion, and can support frequent, low-intensity surface fires.

• The composition, structure, and function of vegetative conditions are resilient to the 

frequency, extent, and severity of disturbances (including insects, diseases, and fire) and 

climate variability. 

• Understory composition is within the natural range of variability and contains diverse 

native herbaceous plant species that provide nutrition for pronghorn and other species.

• Depending on soil type and vegetation potential, bare soil varies between 10 and 60 

percent. Basal vegetation varies between 5 and 50 percent ground cover. Organic litter 

varies between 30 and 50 percent of the ground cover. The relative proportion of 

vegetation canopy cover averages 40 to 60 percent grass, 10 to 30 percent forbs, and 5 to 

20 percent shrub.

• Fires are typically low severity with a 0- to 35-year return interval (Fire Regime I). 

Pinyon-juniper Sagebrush (Pinyon-juniper Shrub)

In the pinyon-juniper sagebrush vegetation community, sage is the dominant shrub in most areas. 

In some areas other shrub species may be dominant and sagebrush may not even be present. This 

vegetation type may better be described as pinyon-juniper shrublands, but for consistency with 

the potential natural vegetation types (PNVTs) identified for the Southwestern Region, they are 

referred to as pinyon-juniper sagebrush communities.

Pinyon-juniper sagebrush communities are concentrated in areas dominated by cold season 

precipitation regimes. They are usually found on sites with coarse-textured, gravelly, or lithic soil 

characteristics. Pinyon is occasionally absent, but one or more juniper species are always present. 

These systems have open woodland canopies interspersed with Colorado Plateau and Great Basin

shrub species such as big sagebrush (Artemisia tridentata Nutt.), rubber rabbitbrush (Ericameria 

nauseosa (Pall. Ex (Pursh)), fourwing saltbush (Atriplex canescens (Pursh) Nutt.), and winterfat 

(Krascheninnikovia lanata (Pursh)).

Typical disturbances include fire, insects, and disease. Contemporary disturbances include 

mechanical removal of overstory trees. Fire absence since Euro-American settlement has not 

Land and Resource Management Plan for the Kaibab National Forest 13
Chapter 2. Forestwide Desired Conditions and Strategies

resulted in dramatic increases in tree densities as with other woodland types, presumably since 

fire occurrence may not have been significantly altered in this community type following EuroAmerican settlement.

Desired Conditions in Pinyon-juniper Shrub

• The pinyon-juniper sagebrush shrub forest type is a mix of trees and shrubs that occur as 

shifting vegetation states (herbaceous dominated, shrub dominated, and tree dominated) in 

even-aged and uneven-aged patches with a variable understory. There is a mix of large and 

small to mid-size juniper.

• The shrub component consists primarily of sagebrush, but oak, cliffrose, and other shrub 

species may also be present. Depending on structural stage, the understory is dominated 

by shrubs. The shrub component consists of one or more shrub species, which are well 

distributed. Shrubs typically are in a closed-canopy state during the later successional 

stages.

• Litter and rock comprise the greatest percentage of ground cover. Grasses and forbs are 

sparse due to shrub dominance.

• The composition, structure, and function of vegetation conditions are resilient to the 

frequency, extent, and severity of disturbances including insects, diseases, fire, and climate 

variability.

• Fires are mixed to high severity and have return intervals of 35 to more than 200 years 

(Fire Regimes III, with occurrences of stand replacing fire at longer intervals).

Pinyon-juniper (Persistent) Woodlands

Persistent woodlands communities are scattered and not associated with a particular soil type, but 

occur where soils are thin and rocky. Historically, they were found on rugged upland sites that 

were not capable of developing an understory that could carry fire.

Desired Conditions for Pinyon-juniper Woodlands

• Pinyon-juniper woodland (persistent) is characterized by even-aged patches of pinyons 

and junipers that at the landscape level form uneven-aged woodlands. Tree density and 

canopy cover are high, shrubs are sparse to moderate, and herbaceous cover is low and 

discontinuous due to soil and other site conditions. 

• Some very old trees (>300-years old) are present. 

• Disturbances rarely affect the composition, structure, and function. Insects, disease, and 

mistletoe occur at endemic levels. Fire disturbance is infrequent and variable due to lack 

of continuous ground cover.

• Fires are mixed to high severity, but generally stand replacing, occurring infrequently at 

intervals of 200 years or more (Fire Regime V). 

14 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Guidelines for Management Activities in Pinyon-juniper Communities 

• The pinyon-juniper vegetation communities (pinyon-juniper grassland, shrubland, or 

woodland) should be determined before developing project proposals to ensure the 

applicable desired conditions are applied. 

• Restoration efforts should emphasize the retention of groups of mature trees where they 

occurred historically. 

• Where pinyon-juniper obligate species occur (e.g. gray vireo), project design should retain 

key habitat features including snags, and partially dead or dying trees, and downed logs.

• Pinyon-juniper communities should maintain tree densities that maximize herbaceous 

plant growth and wildlife species diversity typical for their respective community subtype. 

• Project design for vegetation management activities should prioritize treatment areas along 

known wildlife corridors, in the wildland-urban interface, and in historic openings. 

• Restoration treatments in pinyon-juniper should be rotated over time and various 

successional stages to maximize wildlife habitat and diversity.

Management Approach for Pinyon-juniper Communities

Although management is needed to achieve and maintain desired conditions in pinyon-juniper 

communities (with the exception of persistent pinyon-juniper woodlands), it was not identified as 

a priority need for change in the CER/AMS. Due to limited capacity, the Kaibab NF is not 

currently setting restoration objectives for this vegetation type. To achieve and maintain desired 

conditions, the Kaibab NF may thin or burn to reduce juniper densities to increase growth and 

vigor of understory species, reduce fuel loads, improve wildlife habitat, reduce vulnerability to 

pinyon Ips beetles, and increase herbaceous vegetation composition and cover. Strategies to 

accomplish work include:

• Working collaboratively with tribes, the Arizona Game and Fish Department, and other 

partners to plan and implement projects that will make progress toward desired 

conditions, particularly reducing tree density to improve wildlife habitat. 

• When possible, allow natural ignitions to be managed for resource benefits and achieve 

desired conditions. 

Following stand replacing fire in pinyon-juniper shrublands and pinyon-juniper woodlands, the 

return to woodland stand structure can take many decades. Strategies for re-establishing the 

desired conditions include leaving juniper snags, downed logs, and other woody components that 

collect drifting seeds, provide shade, cooler temperatures, moisture retention, and protection from 

ungulate herbivory. These microclimates serve as nurseries for grasses, forbs, and woodland trees,

contribute to resilience in times of drought, and provide habitat for small mammals and other 

wildlife.

See also the Forestwide direction for “Grassland Communities,” “Large-scale Disturbance 

Events in Forested Communities,” “Soils and Watersheds,” “Nonnative Invasive Species,”

“Wildlife,” “Forestry and Forest Products,” and “Wildland Fire Management.”

Land and Resource Management Plan for the Kaibab National Forest 15
Chapter 2. Forestwide Desired Conditions and Strategies

Ponderosa Pine Forests

The ponderosa pine forest vegetation community generally occurs at elevations ranging from 

6,200 to 8,200 feet. It is present on all three ranger districts and covers about 541,000 acres of the 

Kaibab NF. It is dominated by ponderosa pine (Pinus ponderosa) and commonly includes other 

species such as oak, juniper, and pinyon. Species such as aspen (Populus tremuloides), Douglasfir (Pseudotsuga meziesii), white fir (Abies concolor), and blue spruce (Picea pungens) may also 

be present, but occur infrequently. This forest vegetation community typically occurs with an 

understory of grasses and forbs, but may include shrubs, such as on the Tusayan Ranger District 

where sage is sometimes the dominant understory species. Ponderosa pine forests are used by a 

variety of wildlife including birds, small mammals, elk and mule deer, and are particularly 

important for tassel-eared squirrels (Sciurus aberti) and northern goshawk (Accipiter gentilis).

The ponderosa pine forest vegetation community includes two subtypes: ponderosa pinebunchgrass and ponderosa pine-Gambel oak. Higher densities of Gambel oak (Quercus gambelii)

are often correlated with higher species richness, and the Gambel oak subtype provides critical 

nesting and foraging resources for many northern Arizona birds, including Mexican spotted owls. 

The ponderosa pine forests are popular places to escape the heat in the summer and are the setting 

for many recreation activities including camping, hunting, hiking, sightseeing, and wildlife 

watching. Additionally, this forest type supports a variety of other uses such as livestock grazing, 

wood harvesting, and collection of firewood, medicinal plants, and other traditionally used 

products. It is also the primary vegetation type in the wildland urban interface on the Kaibab NF.

Ponderosa pine forests on the Kaibab NF are 

generally denser and more continuous across 

all developmental states than in reference 

conditions. The open, park-like stands 

characteristic of the reference conditions for 

ponderosa pine forests promoted greater floral 

and faunal diversity and fire resilience than 

the dense stands of today. Accumulations of 

forest litter and woody debris are much higher

than would have occurred under the historical 

disturbance regime. Lack of fire disturbance 

has led to increased tree density and fuel 

loads that heighten the risk of 

uncharacteristically intense wildfire and 

drought-related mortality. When fires occur 

under current (2014) conditions, they tend to 

kill a lot of trees, including the large and old 

trees. These trees take longer to replace, 

moving the Kaibab NF further from desired 

conditions, and increasing the time it would 

take to return to desired conditions. There is 

currently a moderate risk of insect and/or 

disease outbreak, which is also a function of 

increased tree density. 

16 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Fine-scale (10 acres or less) Desired Conditions for Ponderosa Pine

• Trees typically occur in irregularly shaped groups and are variably spaced with some tight 

clumps. Trees within groups are of similar or variable ages and may contain species other 

than ponderosa pine. 

• Tree groups are made up of clumps of various age classes and size classes that typically 

occur in areas less than one acre, but may be larger, such as on north-facing slopes.

• Crowns of trees within the mid-aged to old groups are interlocking or nearly interlocking 

and consist of approximately 2 to 40 trees per group. 

• The interspaces between groups are variably shaped, are comprised of a native 

grass/forb/shrub mix, and may contain individual trees or snags. Regeneration openings 

occur as a mosaic and are similar in size to nearby groups. 

• Organic ground cover and herbaceous vegetation provide protection for soil and moisture 

infiltration, and contribute to plant and animal diversity and ecosystem function. 

Herbaceous vegetation reflects the site potential. 

• Where historically occurring, Gambel oak thickets with various diameter stems and low

growing, shrubby oak are present. These thickets provide forage, cover, and habitat for 

species that depend on them such as small mammals, foliage nesting birds, deer, and elk. 

Gambel oak mast (acorns) provides food for wildlife species. Large tree form oaks, snags, 

and partial snags with hollow boles or limbs are present. 

• Where Gambel oak comprises more than 10 percent of the basal area, it is not uncommon 

for canopy cover to be greater than 40 percent. 

• Isolated infestations of Southwestern dwarf mistletoe may occur, but the degree of severity 

and amount of mortality varies among the infected trees. Witches’ brooms may form on 

infected trees, providing habitat and food for wildlife and invertebrate species.

• Fires generally burn as surface fires, but single-tree torching and isolated group torching is 

not uncommon.

Mid-scale (100 to 1,000 acres) Desired Conditions for Ponderosa Pine

• The ponderosa pine forest vegetation community is characterized by variation in the size 

and number of tree groups depending on elevation, soil type, aspect, and site productivity. 

The mosaic of tree groups generally comprises an uneven-aged forest with all age classes 

and structural stages present. Stands are dominated by ponderosa pine, but other native 

hardwood and conifer species occur. The more biologically productive sites contain more 

trees per group and more groups per area. 

• Basal area within forested areas generally ranges from 20 to 80 square feet per acre, with 

larger trees (i.e. >18 inches in diameter) contributing the greatest percent of the total basal 

area.

• Interspaces with native grass, forb, and shrub vegetation are variably shaped and typically 

range from 10 to 70 percent, with the more open conditions typically occurring on less 

productive sites.

Land and Resource Management Plan for the Kaibab National Forest 17
Chapter 2. Forestwide Desired Conditions and Strategies

• Forest conditions in some areas contain 10 to 20 percent higher basal area in mid-aged to 

old tree groups than in the general forest (e.g., goshawk post-fledging family areas, 

Mexican spotted owl nesting/roosting habitat, drainages, and steep north-facing slopes).

• Patches of even-aged forest structure are present, but infrequent. Disturbances sustain the 

overall variation in age and structural distribution. 

• Snags and green snags 18 inches diameter at breast height (d.b.h.) or greater average 1 to 2 

per acre. Snags and green snags of various sizes and forms are common. 

• Downed logs (greater than 12 inches diameter at mid-point and greater than 8 feet long) 

average 3 logs per acre. Coarse woody debris greater than 3 inches in diameter (including 

downed logs), ranges from 3 to 10 tons per acre.

• Fires burn primarily on the forest floor and typically do not spread between tree groups as 

crown fire.

Landscape-scale (over 10,000 acres) Desired Conditions for Ponderosa 

Pine

• The ponderosa pine forest vegetation community is a mosaic of forest conditions 

composed of structural stages ranging from young to old trees. The forest is generally 

uneven-aged and open. Groups of old trees are mixed with groups of younger trees. 

Occasional areas of even-aged structure are present. Denser tree conditions exist in some 

locations such as north-facing slopes, canyons, and drainage bottoms.

• The ponderosa pine forest is composed predominantly of vigorous trees, but declining

trees are present. Snags, green snags, and coarse woody debris occur across the landscape.

• Where it naturally occurs, Gambel oak is present with all structure classes represented. It 

is reproducing and maintaining or expanding its presence within its natural range.

• Old growth occurs throughout the landscape, generally in small areas as individual old 

growth components, or as clumps of old growth. Old growth components include old 

trees, snags, coarse woody debris, and structural diversity. The location of old growth 

shifts on the landscape over time as a result of succession and disturbance (tree growth 

and mortality).

• The landscape is a functioning ecosystem that contains all components, processes, and

conditions associated with endemic levels of disturbances (e.g., fire, dwarf mistletoe, 

insects, diseases, lightning, drought, and wind).

• Forest vegetation conditions are resilient to the frequency, extent, and severity of 

disturbances and climate variability. Grasses and needle cast provide the fine flashy fuels 

needed to maintain the natural fire regime. Fire and other disturbances are sufficient to 

maintain desired overall tree density, structure, species composition, coarse woody debris 

loads, and nutrient cycling. 

• The risk of uncharacteristic high-severity fire and associated loss of key ecosystem 

components is low. 

• Frequent, low-severity fires (Fire Regime I) occur across the entire landscape with a return 

interval of 0 to 35 years.

18 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Objectives for Ponderosa Pine

To make progress toward the desired conditions and reduce the potential for active crown fire 

in ponderosa pine communities at a rate that would maintain the desired conditions over time: 

• Mechanically thin 11,000 to 19,000 acres annually.

• Treat an average of 13,000 to 55,000 acres annually, using a combination of prescribed 

fire and naturally ignited wildfires.2

Management Approach for Ponderosa Pine

This plan emphasizes restoration of ponderosa pine forests because these forests are highly 

departed from desired conditions and were identified as a priority need for change. Projects in 

ponderosa pine are aimed at restoring forest structure and process (e.g. natural disturbances such 

as low-severity fire and dwarf mistletoe, watershed function, and nutrient cycling). Additionally, 

project design features may seek to increase diversity that was historically present by promoting 

oak, aspen, openings, and understory production. Treatments typically strive to mimic the 

structure and patterns of reference conditions using historical evidences and soil characteristics. 

However, treatments may consider other circumstances, desired conditions, and objectives, such 

as species specific habitat needs. As a result, reconstructed reference conditions are general 

guides rather than rigid restoration prescriptions.

In ponderosa pine, reintroducing fire as a disturbance agent is critical to restoration. Fire-only 

treatments may be appropriate for some areas with open canopies and low fuel loads, but 

mechanical fuel reduction is needed in many areas before fire can be safely reintroduced. Fire 

management needs to maintain an appropriate balance between smoke impacts and public 

concerns (health, visibility, etc.). Southwestern dwarf mistletoe is also a natural disturbance agent 

in ponderosa pine, but in some areas the degree of infection is unsustainable and exceeds desired 

levels. Treatments for controlling dwarf mistletoe are typically aimed at maintaining infection 

levels that allow for development of a diversity of age classes across the landscape, not to 

eliminate this naturally occurring disturbance agent. Tools for creating desired stand conditions 

and openings include a variety of treatments and uneven-aged cutting methods such as matrix 

thinning, all-size free thinning, single tree selection, group selection, sanitation and salvage, 

limited even-aged regeneration cutting, thinning, and managed fire.

In pine-oak forests many individual large Gambel oak trees and oak copses have become overtopped with pine trees. Treatments to promote oak regeneration and establishment are fairly 

effective, because oak sprouts prolifically after release treatments. Oaks may be cut or burned to 

stimulate new growth, maintain growth in large-diameter trees, or to stimulate mast production. 

Incorporation of design features in thinning and planting prescriptions can also be used to create 

“living snow fences” for shade, snow accumulation, wind protection, and slow snowmelt, and 

protect from sublimation caused by prevailing winds. This may help offset the effects of climate 

change.

2

 Acrs of lightning caused wildfire counted toward this objective are only those that make progress towards or 

maintain desired conditions. 

Land and Resource Management Plan for the Kaibab National Forest 19

 
Chapter 2. Forestwide Desired Conditions and Strategies

Pine-oak forests are managed as Mexican spotted owl (Strix occidentalis lucida) habitat as 

discussed under the approved revised Recovery Plan for the Mexican Spotted Owl (2012). The 

Kaibab NF works closely with the U.S. Fish and Wildlife Service (USFWS) to address the habitat 

needs of the Mexican spotted owl by minimizing disturbance and providing nest/roost habitat, 

which includes managing for areas of closed canopy and desired levels of key structural elements 

such as large old trees, snags, and downed woody debris. 

Illegal wood cutting is probably the biggest threat to oak, as it reduces both the amount and 

quality of oak habitat. Enforcement, education, and site-specific planning will be necessary to 

ensure quality oak habitat over the long term. Firewood collection opportunities are managed so 

site-specific planning and permits may specify the amount and size of oak that can be collected in 

areas where live and dead woody oak habitat components are limited.

Due to time and budget constraints in the face of increasing risk, the Kaibab NF intends to 

prioritize and design treatments so they will be most effective. One strategy includes designing 

treatments that make progress toward desired conditions and retain those characteristics for at 

least 20 years. In terms of prescriptions, this means that the post-treatment conditions may need 

to be on the more open end of the desired range to accommodate the growth that is anticipated in 

the interval between treatments. Additionally, within a given project boundary, some acres may be 

left untreated if they are already at low risk, or if leaving them untreated meets specific wildlife 

habitat needs but does not promote undesirable fire behavior at the mid-scale in surrounding 

treated acres.

Restoration activities would be prioritized in the areas identified by the Kaibab Forest Health 

Focus (KFHF; NAU 2009) and then move to other areas of high risk and high value. The KFHF 

was a multi-stakeholder collaborative process that prioritized areas most in need of treatment. 

Primary indicators were related to high risk and high value such as those with closed canopies 

containing large trees. These areas were identified as high priority for restoration because they 

already contain many components of the desired condition and a single treatment may come close 

to meeting the desired condition, but if lost, would take centuries to replace. The KFHF report 

can be accessed at http://www.fs.usda.gov/Internet/FSE_DOCUMENTS/stelprdb5120031.pdf. 

On the Williams and Tusayan Ranger Districts, much of the restoration work needed to attain 

desired conditions is likely to be implemented through the Four Forest Restoration Initiative 

(4FRI). The 4FRI is a large-scale, collaboratively driven project with the goal of restoring forest 

ecosystems on portions of the Coconino, Kaibab, Apache-Sitgreaves, and Tonto National Forests. 

Coordination with the 4FRI planning effort has been ongoing to ensure consistency with this 

plan. 

See also “Guidelines for Vegetation Management in All Forested Communities,” “Large-scale 

Disturbance Events in Forested Communities,” “Wildlife,” “Nonnative Invasive Species,” “Air 

Quality,” “Forestry and Forest Products,” and “Wildland Fire Management"sections of this plan.

20 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Mixed Conifer Forests

Mixed conifer forests occur on the North Kaibab and Williams Ranger Districts and cover 

approximately 130,000 acres on the Kaibab NF. The mixed conifer forests include three 

vegetation communities: Frequent fire mixed conifer, mesic mixed conifer, and spruce-fir. 

Frequent fire mixed conifer forests are the most common and are characterized by a frequent, 

low-intensity fire regime. Mesic mixed conifer and spruce-fir occur at moister, higher elevation 

sites, are interspersed with each other, and are less apparent at the landscape scale. Because of 

their interspersion and similar desired conditions, they are addressed together in this plan. 

Frequent Fire Mixed Conifer 

The frequent fire mixed conifer forest vegetation community, also referred to as “dry mixed 

conifer,” is a transitional vegetation type with increasing elevation between ponderosa pine and 

mesic mixed-conifer forest communities. It generally occurs at elevations ranging from 7,200 to 

9,500 feet, but occurs at lower elevations in drainages, particularly on steep, north-facing slopes. 

Ponderosa pine is the most common tree species in the frequent fire mixed conifer community, 

which distinguishes it from the mesic mixed conifer/spruce-fir community. Historically, shade 

intolerant trees such as ponderosa pine, southwestern white pine (Pinus flexilis/Pinus 

strobiformis), quaking aspen, and Gambel oak dominated frequent fire mixed conifer forests. 

Douglas-fir is often present, with lesser amounts of shade tolerant species such as white fir and 

spruce. This forest community typically has an understory of grasses, forbs, and shrubs. 

Fine-scale (10 acres or less) Desired Conditions for Frequent Fire Mixed 

Conifer

• Trees typically occur in irregularly shaped groups and are variably spaced with some tight 

clumps. Trees within groups are of similar or variable ages, often containing more than 

one species. Crowns of trees within mid-aged and old groups are interlocking or nearly 

interlocking. 

• Tree groups are typically less than 1 acre size and consist of 2 to 50 trees per group, but 

are sometimes larger, such as on north facing slopes. Regeneration openings occur as a 

mosaic and are similar in size to nearby groups. 

• Interspaces between groups are variably shaped, are comprised of a native grass-forbshrub mix, and may contain individual trees or snags.

• Organic ground cover and herbaceous vegetation provide protection for soil and moisture 

infiltration, and contribute to plant and animal diversity and ecosystem function. 

Herbaceous vegetation reflects the site potential.

• Density is variable, with canopy ranging from very open to closed.

• Dwarf mistletoe infections may be present on ponderosa pine and Douglas-fir, and rarely 

on other tree species, but the degree of infection severity and rate of mortality varies 

among infected trees. Witches’ brooms may be present with these infestations, providing 

habitat for wildlife.

• Fires generally burn as surface fires, but single-tree torching and isolated group torching is 

not uncommon.

Land and Resource Management Plan for the Kaibab National Forest 21
Chapter 2. Forestwide Desired Conditions and Strategies

Mid-scale (100 to 1,000 acres) Desired Conditions for Frequent Fire Mixed 

Conifer 

• The frequent fire mixed conifer forest vegetation community is characterized by variation 

in the size and number of tree groups depending on elevation, soil type, aspect, and site 

productivity. Forest appearance is variable, but generally uneven-aged and open; 

occasional patches of even-aged structure are present. The more biologically productive 

sites contain more trees per group and more groups per area. Basal area within forested 

areas generally ranges from 30 to 100 square feet per acre, with larger trees contributing 

the greatest percent of the total basal area. 

• Forest conditions in some areas contain 10 to 20 percent higher basal area in mid-aged to 

old tree groups than in the general forest; these include goshawk post-fledging family 

areas, Mexican spotted owl nesting/roosting habitat, and north-facing slopes. Interspaces 

with native grass, forb, and shrub vegetation typically range from 10 to 50 percent of the 

area.

• The mosaic of tree groups generally comprises an uneven-aged forest with all age classes 

and structural stages. Occasionally small patches (generally less than 50 acres) of evenaged forest structure are present. Disturbances sustain the overall variation in age and 

structural distribution. 

• Where they naturally occur, groups or patches of aspen and all structural stages of oak are 

present. 

• Snags and green snags 18 inches d.b.h. or greater average three per acre. Downed logs 

(greater than 12 inches diameter at mid-point and greater than 8 feet long) average three 

per acre within the forested area of mid-scale units. Coarse woody debris, including 

downed logs, ranges from 5 to 15 tons per acre. 

• Fires burn primarily on the forest floor and typically do not spread between tree groups as 

crown fire. 

Landscape-scale (over 10,000 acres) Desired Conditions for Frequent Fire 

Mixed Conifer

• At the landscape scale, the frequent fire mixed conifer forest community is a mosaic of 

forest conditions composed of structural stages ranging from young to old trees. 

• Old growth occurs throughout the landscape, generally in small areas as individual old 

growth components, or as clumps of old growth. Old growth components include old 

trees, snags, coarse woody debris, and structural diversity. The location of old growth 

shifts on the landscape over time as a result of succession and disturbance (tree growth 

and mortality).

• Forest appearance is variable but generally uneven-aged and open; occasional patches of 

even-aged structure are present. The forest arrangement is in small clumps and groups of 

trees interspersed within variably sized openings of native grass-forb-shrub vegetation 

associations similar to reference conditions. Size, shape, number of trees per group, and 

number of groups per area are variable across the landscape. 

22 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

• Denser tree conditions exist in some locations such as north-facing slopes, canyons, and 

drainage bottoms.

• The frequent fire mixed conifer forest community is composed predominantly of vigorous 

trees, but declining trees (e.g. snags, top killed, lightning and fire scarred trees) and coarse 

woody debris (greater than 3 inches diameter) are present and well distributed throughout 

the landscape. 

• The composition, structure, and function of vegetative conditions are resilient to the 

frequency, extent, and severity of disturbances and to climate variability. The landscape is 

a functioning ecosystem that contains all components, processes, and conditions that result 

from endemic levels of disturbances (e.g., fire, insects, diseases, and wind). 

• Dwarf mistletoe is present and infects ponderosa pine and Douglas-fir, but occurs at 

endemic levels, which allows for the establishment and sustainability of the desired 

uneven-aged forest structure over time. 

• Grasses and needle cast provide the fine flashy fuels needed to maintain the natural fire 

regime. Fire and other disturbances are sufficient to maintain desired overall tree density, 

structure, species composition, coarse woody debris, and nutrient cycling.

• Frequent, low-severity fires (Fire Regime I) occur across the entire landscape with a return 

interval of 0 to 35 years.

Objectives for Vegetation Management in Frequent Fire Mixed Conifer

To reduce the potential for active crown fire and restore frequent fire mixed conifer 

communities:

• Burn an average of 1,000 to 13,000 acres annually, using prescribed fire and/or 

naturally ignited wildfires.3

• Mechanically thin 1,200 to 2,100 acres annually. 

Management Approach for Frequent Fire Mixed Conifer

The area south and west of North Canyon in the Saddle Mountain Wilderness was identified as a 

high priority treatment area by the Kaibab Forest Health Focus as it has both high risk and high 

ecological values. The strategy identified in the KFHF was to address the needs of this area first

and then move to other areas of high fire risk. Fire-only treatments may be appropriate for some 

areas with open canopies and low fuel loads, but mechanical fuel reduction is needed in many 

areas before fire can be safely reintroduced. There was limited agreement about appropriate 

treatment intensity and practices among stakeholders. There was agreement that to address these 

concerns, initial treatments in frequent fire mixed conifer should adopt an experimental design 

approach to help fill informational gaps and support adaptive learning in these areas. 

3 Onlya acrs of lightning caused wildfire that maintain or make progress towards desired conditions are counted 

toward this onjective .

Land and Resource Management Plan for the Kaibab National Forest 23

 
Chapter 2. Forestwide Desired Conditions and Strategies

The treatment objectives for this vegetation community have a wide acreage range. Treatment 

with prescribed burns has been shown to be costly, with narrow windows of opportunity. The 

ability to manage naturally ignited wildfires to achieve resource benefits has been very limited, 

and much remains to be learned. The number of acres treated each year is likely to increase over 

the plan period, as new information becomes available about practices and treatment effects, and 

as adaptive management is implemented. Additionally, as fuel loading is reduced on more acres, 

there will be an increased ability to let fire play its natural role. 

Mixed conifer forests are managed as Mexican spotted owl habitat under the approved “Mexican 

Spotted Owl Recovery Plan, First Revision” (USFWS 2012). The Kaibab NF works closely with 

the USFWS to provide for Mexican spotted owl habitat by minimizing disturbance, providing for 

some areas of denser forest, and managing for desired levels of key structural elements (e.g., large 

old trees and snags, downed woody debris) important for nesting, foraging, and dispersal.

See also the “Guidelines for Vegetation Management in All Forested Communities,” “Largescale Disturbance Events in Forested Communities,” “Wildlife,” “Nonnative Invasive Species,”

“Recreation and Scenery,” and “Forestry and Forest Products” sections of this plan.

Mesic Mixed Conifer/Spruce-fir Forests

The mesic (wet) mixed conifer/spruce-fir forest vegetation community generally occurs at 

elevations ranging from 7,500 to 10,400 feet. Tree species composition varies depending on seral 

stage, elevation, and moisture availability. The mesic mixed conifer/spruce-fir community may 

include early seral species such as aspen, Douglas-fir, New Mexico locust (Robinia 

neomexicana), southwestern white pine, or late seral species such as maple (Acer spp.), white fir, 

subalpine fir (Abies lasiocarpa), and spruce. Forests dominated by Engelmann spruce (Picea 

engelmannii) intermixed with subalpine fir and aspen occur at the highest elevations such as the 

top of Kendrick Mountain and the highest elevations on the Kaibab Plateau. Ponderosa pine is 

only a minor component, which distinguishes it from frequent fire mixed conifer. 

Disturbances in mesic mixed conifer/spruce-fir forests typically occur at two spatial and temporal 

scales: larger infrequent disturbances (mostly fire) and smaller more frequent disturbances (fire, 

insect, disease, wind). On the Kaibab NF, this vegetation community rarely occurs continuously 

above the mid- scale (over 1,000 acres). The mesic mixed conifer/spruce-fir vegetation 

community has an understory of a wide variety of shrubs, grasses, and forbs, depending on soil 

type, aspect, elevation, disturbance, and other factors. 

Fine-scale (10 acres or less) Desired Conditions for Mesic Mixed 

Conifer/Spruce-fir

• Mid-aged and older trees are typically variably spaced with crowns interlocking (grouped 

and clumped trees) or nearly interlocking. Trees within groups can be of similar or 

variable species and ages, contributing to vertical and horizontal heterogeneity.

• Small openings (gaps) are present as a result of past disturbances.

• Organic ground cover and herbaceous vegetation provide protection for soil and moisture 

infiltration, and contribute to plant diversity and ecosystem function. Understory 

vegetation reflects site potential.

• Due to the presence of ladder fuels, fires usually burn either with low intensity, smoldering 

combustion, or transition rapidly in the canopy as passive or active crown fire.

24 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

• Dwarf mistletoe infections may be present on Douglas-fir or spruce, and rarely on other 

tree species, but the degree of infection severity and amount of mortality varies among 

infected trees. Witches’ brooms may be present with these infestations, providing habitat 

for wildlife.

Mid-scale (100 to 1,000 acres) Desired Conditions for Mesic Mixed 

Conifer/Spruce-fir

• The size and number of groups and patches vary depending on disturbance, elevation, soil 

type, aspect, and site productivity. Patch sizes vary, but are frequently hundreds of acres; 

groups and patches of tens of acres or less are relatively common. 

• Forest conditions in some areas contain higher basal area than the general Forest; 

examples include goshawk post-family fledgling areas, Mexican spotted owl nesting and 

roosting habitat, and north-facing slopes.

• A mosaic of primarily even-aged groups and patches, which vary in size, species 

composition, and age is present. Aspen is occasionally present in large patches.

• Density ranges from 20 to 250 square feet of basal area per acre, depending upon 

disturbance and seral stages of groups and patches. 

• The number of snags and downed logs (greater than 12 inches diameter at mid-point, over 

8 feet long) and coarse woody debris (greater than 3 inches diameter) vary by seral stage. 

Snags 18 inches or greater d.b.h. typically range from one to five snags per acre, with the 

lower range associated with early seral stages and the upper range associated with late 

seral stages. 

• Coarse woody debris, including downed logs, vary by seral stage, with averages ranging 

from 5 to 20 tons per acre for early seral stages; 20 to 40 tons per acre for mid-seral 

stages; and 35 tons per acre or greater for late seral stages.

• During moister conditions, fires exhibit smoldering low-intensity surface behavior with 

single tree and isolated group torching. Under drier conditions, fires exhibit passive to 

active crown fire behavior with conifer tree mortality up to 100 percent across mid-scale 

patches (100 to 1,000 acres). High-severity fires generally do not result in areas of 

mortality exceeding 1,000 acres. Other smaller disturbances occur more frequently. 

• Grass, forb, and shrub-dominated openings created by disturbance may make up 10 to 100 

percent of the mid-scale area, depending on the disturbance type. These openings provide 

areas for future regeneration.

• Fire and other disturbances maintain overall desired tree density, structure, species 

composition, presence of coarse woody debris, and nutrient cycling.

• Fire severity is mixed or high, with a fire return interval of 35 to over 200 years (Fire 

Regimes III, IV, and V). 

Land and Resource Management Plan for the Kaibab National Forest 25
Chapter 2. Forestwide Desired Conditions and Strategies

Landscape-scale (over 10,000 acres) Desired Conditions for Mesic Mixed 

Conifer/Spruce-fir

• The vegetation community is a mosaic of structural and seral stages ranging from young 

trees through old and is composed of multiple species. The landscape arrangement is an 

assemblage of variably sized and aged groups and patches of trees and other vegetation 

similar to reference conditions.

• The landscape is composed predominantly of vigorous trees, but older declining trees (e.g. 

snags and top killed, lightning-, and fire-scarred trees), as well as coarse woody debris, are 

present.

• The forest landscape is a functioning ecosystem that contains all components, processes, 

and conditions that result from endemic levels of disturbances (e.g. insects, diseases, wind, 

snow, and fire), including snags, downed logs, and old trees.

• The composition, structure, and function of vegetative conditions are resilient to the 

frequency, extent, and severity of disturbances and climate variability.

• Dwarf mistletoe infestations may be present in stands that are composed of Douglas-fir or 

spruce and rarely in other tree species. Infestation size, degree of severity, and amount of 

mortality varies among infested stands. Witches’ brooms may be scattered throughout the 

infestations providing structural diversity in the stand and improved foraging and nesting 

habitat for wildlife species such as small mammals (e.g. tree squirrels) and raptors (e.g. 

goshawks, spotted owls).

• Old growth generally occurs over large areas as stands or forests. Old growth includes old 

trees, snags, coarse woody debris, and structural diversity. The location of old growth 

shifts on the landscape over time as a result of succession and disturbance (tree growth 

and mortality).

• Mixed severity fire (Fire Regime III) is characteristic at the lower elevations of this type. 

High-severity fires (Fire Regime IV & V) are more common at the higher elevations.

Management Approach for Mesic Mixed Conifer/Spruce-fir

No objectives have been set for the mesic mixed conifer/spruce-fir vegetation types. Potential 

projects in these areas include burning and mechanical treatments to restore the desired 

conditions, which were generally much less dense with far fewer shade tolerant trees. The ability 

to manage naturally ignited wildfires and use prescribed burns to achieve resource benefits has 

been limited. Limited agreement about treatment intensity and practices among stakeholders calls 

for initial treatments to include provisions for an experimental design approach and facilitation of 

multiparty monitoring to increase learning, agreement, and trust.

Mixed conifer forest is managed as Mexican spotted owl habitat under the approved “Mexican 

Spotted Owl Recovery Plan, First Revision” (USFWS 2012). Kaibab NF works closely with the 

USFWS to address the habitat needs of Mexican spotted owls by minimizing disturbance and 

providing nest/roost habitat, which includes managing for areas of closed canopy forest and

desired levels of key structural elements, such as large old trees, snags and downed woody debris.

See also the “Guidelines for Vegetation Management in All Forested Communities,” “Forestry 

and Forest Products,” “Wildlife” and “Wildland Fire Management” sections of this plan.

26 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Aspen

Aspen is not considered a distinct vegetation community on the Kaibab NF because it typically 

exists as smaller stands within a larger forest matrix dominated by ponderosa pine or mixed 

conifer vegetation. As a result, aspen is addressed as a component of other forested communities. 

Aspen occurs most extensively on the North Kaibab Ranger District at higher elevations and is 

estimated to cover about 25,000 acres. On Williams Ranger District, the aspen is generally found 

in small separate patches for a total acreage of approximately 2,000 acres, and on the Tusayan 

Ranger District is known only as three small clones totaling about 1 acre.

At higher elevations, aspen stands can be expansive due to establishment after large-scale 

disturbances such as blowdowns or high-severity fires. At mid-elevations, aspen can be common

in wet meadows or on mountain slopes, but can also occur in small isolated patches on rock 

outcrops or steep slopes. At the lower elevations of its range where precipitation is a limiting

factor, aspen is generally confined to specific microsite areas such as near springs and meadows, 

steep, rocky drainages, and side slopes. 

Aspen is not usually a climax species on the Kaibab NF; rather, it is part of the mix of early seral 

species that are common after disturbances, particularly fire. In the West, dry environmental 

conditions rarely allow for successful establishment of new aspen seedlings, but major 

disturbance events can facilitate seedling germination. More typically, aspen reproduces asexually 

through root suckers that are a clone of the original parent tree. Fire and human disturbances

regenerate this shade intolerant species by opening up the canopy and removing conifers from the 

understory. Without disturbance, conifers gradually overtop aspen, closing the canopy, and 

eventually killing mature aspen trees and reducing regeneration. Aspen is highly susceptible to 

browsing and disease or death due to bark injuries. Further declines in aspen would result in a 

loss of diversity that could affect avifauna and invertebrates, including pollinators. The loss of 

aspen can change fire behavior because aspen typically reduces fire intensity and slows fire 

spread where it is intermingled with coniferous species. 

Aspen stands are currently in decline throughout most of the Southwest as a result of fire absence, 

unmanaged forest succession, drought, and ungulate overbrowsing. On the Williams Ranger 

District, most stands are generally considered unhealthy. These aspen stands are dying or are dead 

because they have been overtopped by conifers and are unable to recruit new individuals due to 

heavy browsing and bark stripping by ungulates. 

Aspen stands generally occur on moister sites and tend to have higher biodiversity and a greater 

abundance of plants, fungi, invertebrates, mammals, and cavity-nesting bird species than the 

surrounding forest. Aspen is second only to riparian ecosystems in biological diversity on the 

Kaibab NF, and supports more bird species than other forested areas. Even small aspen stands 

provide refugia. The soft wood of decaying stems and snags provide valuable habitat, particularly 

for cavity-dependent species. 

Aspen also has high scenic value. The green leaves and white trunks of aspen provide a natural 

contrast to the surrounding forest. Aspen attracts both residents and visitors to northern Arizona to 

enjoy abundant wildlife, shade, and scenery. During the fall months, the landscape is transformed 

into a patchwork of green and gold, drawing fall color lovers from around the State. Aspen 

provides unique and seasonal opportunities for hiking, biking, bird watching, nature exploration, 

picnicking, and other recreational activities.

Land and Resource Management Plan for the Kaibab National Forest 27
Chapter 2. Forestwide Desired Conditions and Strategies

Desired Conditions for Aspen (General)

• Aspen stands are characterized by disturbances that may include fire, mechanical 

treatments, insects, pathogens, and abiotic factors. Collectively, these agents of change 

promote healthy tree regeneration, decadence, and nutrient cycling. These processes 

further contribute to high quality wildlife habitat and biodiversity.

• Aspen occurs in natural patterns of abundance and distribution at levels similar to or 

greater than those at time of plan approval.

• Aspen is successfully regenerating and recruiting into older and larger size classes.

• Size classes have a natural distribution, with the greatest number of stems in the smallest 

classes.

• Fire intervals are similar to reference conditions and maintain aspen. 

• Understory vegetation consists of shrubby or herbaceous species, providing forage and 

cover for wildlife and habitat for invertebrates such as pollinators. 

• Aspen provides opportunities for scenic enjoyment, recreation, and cultural or spiritual 

experiences.

Desired Conditions for Aspen in Ponderosa Pine and Frequent Fire Mixed 

Conifer

• In ponderosa pine and frequent fire mixed conifer vegetation types, the size, age, and 

spatial extent of aspen stands reflect reference conditions.

• Within aspen stands on the Tusayan and Williams Districts, coniferous species comprise 

less than 10 percent of the overstory.

• Isolated aspen stands, diverse in vegetation structure and composition, provide wildlife 

refugia and diversity in an otherwise conifer-dominated landscape.

Desired Conditions for Aspen in Mesic Mixed Conifer/Spruce-fir Forests

• Downed aspen and woody debris are scattered across the landscape and provide habitat for 

a variety of wildlife species (e.g., small mammals, reptiles, amphibians, and birds) while 

contributing to efficient nutrient cycling.

• Aspen occurs as a shifting mosaic across its range with new aspen clones establishing over 

time.

• The size, age, and spatial extent of aspen stands reflect large-scale disturbance patterns 

and processes.

28 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Objectives for Restoring Aspen on the Williams and Tusayan Ranger 

Districts

To protect, enhance, and expand regenerating aspen stands that are considered to be of 

particularly high ecological and socioeconomic conservation value: 

• Fence 200 acres of aspen within 10 years of Plan approval to exclude ungulates.

• Reduce conifer encroachment on 800 acres of aspen within 10 years of Plan approval.

Guidelines for Aspen Management

• Small patch clear-cuts (less than 5 acres in size), conifer removal, and wildland fire should 

be used to stimulate aspen sprouting in areas that have or previously had aspen. 

• Aspen trees 10 inches or greater d.b.h. (both live and dead) should be protected during 

project activities, except where they may pose a risk to safety, fences, or regeneration 

efforts. 

• Fences should be regularly inspected and maintained while aspen recovers. Fences should 

be removed when no longer needed.

Management Approach for Aspen Management

Prioritize aspen restoration efforts by their ecological and genetic contribution to the greater 

landscape and balance these activities with the Kaibab NF’s capacity to achieve desired 

conditions. Collaborate with stakeholders to develop an aspen management protocol that uses a 

systematic approach to recover and sustain aspen and the associated understory native plant 

communities and wildlife. Work with the Arizona Game and Fish Department (AGFD) on 

developing appropriate strategies for managing elk impacts to aspen on the Williams and Tusayan 

Ranger Districts and identifying population goals for elk on the Kaibab NF. Other strategies to 

promote aspen such as jackstrawing, planting, public education, and improving the forage and 

browse in the surrounding area to diffuse browse pressure on aspen may be used. 

See also relevant vegetation types, “Wildlife,” “Nonnative Invasive Species,” and “Forestry and 

Forest Products.”

Land and Resource Management Plan for the Kaibab National Forest 29
Chapter 2. Forestwide Desired Conditions and Strategies

Standards for Vegetation Management in All Forested Communities

• The maximum size opening that may be created in one harvest operation for the purpose 

of creating an even-aged stand shall not exceed 40 acres except when it is following a 

large-scale disturbance event such as a stand replacing fire, wind storm, or insect or 

disease outbreak.

• When openings are created with the intent of regeneration, effort shall be made to ensure 

that lands can be adequately restocked within 5 years of final harvest.

• Clearcutting shall only be used where it is the optimum harvesting method for making 

progress towards the desired conditions.

Guidelines for Vegetation Management in All Forested Communities

• Projects in forested communities that change stand structure should generally retain at 

least historic frequencies of trees by species across broad age and diameter classes at the 

mid-scale. As such, the largest and oldest trees are usually retained. 

• On suitable timberlands, projects should retain somewhat higher frequencies of trees 

across broad diameter classes to allow for future tree harvest.

• Project design should manage for replacement structural stages to assure continuous 

representation of old growth over time.

• Project design and treatment prescriptions should generally not remove: 

 ◦ Large, old ponderosa pine trees with reddish-yellow, wide platy bark, flattened tops, 

with moderate to full crowns and large drooping or gnarled limbs (e.g. Thomson’s age 

class 4, Dunning’s tree class 5 and/or Keen’s Tree Class 4, A & B [appendix C]). 

 ◦ Mature trees with large dwarf mistletoe induced witches’ brooms suitable for wildlife

nesting, caching, and denning, except where retaining such trees would prevent the 

desired development of uneven-aged conditions over time. 

 ◦ Large snags, partial snags, and trees (>18 inches d.b.h.) with broken tops, cavities, 

sloughing bark, lightning scars >4 inches wide, and large stick nests (>18 inches in 

diameter).

 ◦ Gambel oak >8 inches, diameter at root collar.

 ◦ Known bat roost trees.

• The location and layout of vegetation management activities should effectively disconnect 

large expanses of continuous predicted active crown fire. 

• Vegetation management prescriptions should provide for sufficient canopy breaks to limit 

crown fire spread between groups, allow for the redevelopment and maintenance of a 

robust understory, and mimic the spatial arrangement of the reference conditions.

• Vegetation management activities in mixed conifer forests should incorporate 

experimental design features and monitoring to accelerate learning and adaptive 

management. Trees established after 1890 should generally not be retained in areas where 

biophysical conditions would have supported stable openings over time.

30 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

• Vegetation management activities should meet or exceed goals for scenic beauty (scenic 

integrity objectives) by creating natural patterns, structure and composition of trees, 

shrubs, grasses, and other plants.

• Vegetation management should favor the development of native understory species in 

areas where they have the potential to establish and grow.

• Even aged silvicultural practices may be used as a strategy for achieving the desired 

conditions over the long term, such as bringing dwarf mistletoe infection levels to within a 

sustainable range, or old tree retention.

• Seed and plants used for revegetation should originate from the appropriate PNVT and 

general ecoregion (i.e. southern Colorado Plateau) as the project area.

• Heavy equipment and log decks should not be staged in montane meadows.

See also “Recreation and Scenery,” “Nonnative Invasive Species,” “Wildlife”, ”Threatened, 

Endangered, and Sensitive Species”, and relevant major vegetation communities.

Management Approach for Vegetation Management

The above Standards for Vegetation Management are required for meeting the intent of the 

National Forest Management Act. On the Kaibab NF, the predominate vegetation management 

strategies are for uneven-aged management systems. This is because vegetation management 

objectives were only developed for the ponderosa pine and frequent fire vegetation types, both of 

which have uneven aged desired conditions. Even aged management prescriptions are, however, 

used as a strategy for achieving the desired uneven-aged conditions over the long term. Evenaged prescriptions are appropriate when they would increase or maintain a trajectory toward 

desired conditions such as to regenerate aspen or when mistletoe infections are moderate to 

severe and the ability of the area to achieve the desired conditions has been significantly 

impaired. 

Large-scale Disturbance Events in Forest and Woodland

Communities

There has been a trend toward more large-scale disturbance events such as large, stand-replacing 

fires and/or bark beetle epidemics. Following large-scale disturbance events, the desired 

conditions for the area would generally not change, except in cases where the environment has 

been so altered that the desired conditions are no longer obtainable. However, there is a need for 

management actions to accelerate progress toward the desired conditions.

Objectives Following Large-scale Disturbances 

To reestablish conifer trees in areas with inadequate seed source and reduce the time to 

achieve the desired forest structure:

• Plant 300 to 700 acres annually. 4

4

 This rate is based on the anticipated capacity and may not meet the entire need. 

Land and Resource Management Plan for the Kaibab National Forest 31

 
Chapter 2. Forestwide Desired Conditions and Strategies

Guidelines for Activities Following Large-scale Disturbances 

• Threats to human safety and property should be promptly addressed following large 

disturbance events using measures such as signage and temporary closures.

• Recovery and restoration project design should seek to establish a trajectory toward the 

desired conditions for the affected vegetation type.

• Erosion control measures should be implemented to protect significant resource values 

and infrastructure such as stream channels, roads, structures, and archaeological or historic 

sites.

• Where extensive tree mortality results from fires, insect and disease epidemics, or wind 

events, and sufficient timber value exists, salvage of dead trees should be considered 

where it would meet public safety objectives and facilitate long-term restoration. 

• When salvage logging is proposed, planning and implementation should not be delayed; 

shorter time frames reduce the risk to operations personnel and preserve wood value.

Practices that restore nutrient cycling and stabilize soils (revegetation, mulching, lop and 

scatter, etc.) should be implemented. 

• Where conifer seed sources are lost or poorly distributed due to high-intensity fire, 

artificial regeneration (planting, etc.) should be implemented to promote the desired forest 

structure and accelerate the recovery of habitat conditions for native wildlife species.

• Some snags and coarse woody debris should be retained to provide for wildlife habitat,

soil stabilization, and other resource benefits. Some clumps of large (18 inches or greater 

d.b.h.) standing dead trees should be retained. Snag retention should be balanced with 

desired fuel levels over time.

• Project design should incorporate measures to protect regeneration and reforestation 

investments. 

• The “Kaibab NF Recreation Opportunity Settings and Scenery Management Guidebook”5

should be used when designing restoration projects. 

Management Approach for Response to Uncharacteristic Disturbances

When high intensity, stand-replacing fires occur in the ponderosa pine and frequent fire mixed 

conifer PNVTs, it can take more than 100 years for the characteristic landscape to become 

restored, regardless of management activities. There is a need for a consistent, efficient, 

scientifically based response to these events, as they are likely to occur during the planning 

period. It is important for project design criteria to include both short and long-term provisions 

for restoring scenic integrity, especially in sensitive foreground areas. Proceeds from the sale of 

dead trees can be used to offset some of the costs of restoration efforts. 

Following stand replacing fire in pinyon-juniper shrublands and pinyon-juniper woodlands, the 

return to woodland stand structure can take many decades. Strategies for re-establishing the 

desired conditions include leaving juniper snag, downed logs, and other woody components that 

collect drifting seeds, provide shade, cooler temperatures, moisture retention, and protection from 

ungulate herbivory. These microclimates serve as nurseries for grasses, forbs, and woodland trees, 

5

 The “Kaibab National Forest Recreation Opportunity Settings and Scenery Management Guidebook” (USDA 2004) 

is updated as needed and provides more detailed information about plan implementation.

32 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 2. Forestwide Desired Conditions and Strategies

contribute to resilience in times of drought, and provide habitat for small mammals and other 

wildlife.

See also “Recreation and Scenery,” “Wildlife”, ”Threatened, Endangered, and Sensitive 

Species”, “Nonnative Invasive Species,” and relevant major vegetation communities.

Sagebrush Shrublands

Sagebrush shrubland communities in northern Arizona represent the southernmost reach of the 

greater sagebrush biome that covers much of the western United States and parts of southwestern 

Canada. On the Kaibab NF, the sagebrush shrubland vegetation community generally occurs at 

elevations between approximately 4,600 and 7,500 feet on the North Kaibab and Tusayan Ranger 

Districts and covers approximately 89,500 acres. At this southern extreme, the temperature and 

precipitation regime can limit the extent of grass cover in the sagebrush shrubland. The Kaibab 

NF contains a disproportionate amount of sagebrush compared to the greater ecoregions (USDA 

2009). These communities are dominated by sagebrush (Wyoming big sagebrush [Artemisia 

tridentata ssp. Wyomingensis], Basin big sagebrush [A. t. ssp. Tridentate], Bigelow sagebrush [A. 

bigelovii], black sagebrush [A. nova], and sand sagebrush [A. filifolia]), although other shrub 

species (e.g., rabbitbrush [Chrysothamnus spp., Ericameria spp.], saltbush [Atriplex spp.]), and 

succulents (e.g., yucca [Yucca spp.], cactus [Opuntia spp.]) occur and can dominate locally. 

The understory—typically sheltered by the shrub overstory—consists of a variety of taller forbs 

and bunch grasses, low-growing grasses and forbs, or well developed cryptobiotic crusts. Plant 

cover is usually not continuous. Species composition varies by location. Fire disturbance is highly 

variable in type and frequency across elevation and moisture gradients and site productivity.

Reference conditions indicate that about two-thirds of the sagebrush shrublands had mixedseverity fire occurring approximately every 120 years, and about one-third of the sagebrush 

shrublands had stand-replacing fire occurring at a longer interval (up to 240 years). 

Sagebrush provides variable habitat that can include a mix of shrublands and grasslands. This 

diversity supports an abundance of birds, animals, and native plants, some of which are specially 

adapted to the system. Overall, wildlife species diversity may be lower in sagebrush systems than 

in habitat types with greater vertical complexity, but the species that occur in sagebrush systems 

often occur nowhere else. Sagebrush shrublands provide important habitat for several migratory 

bird species. Populations of many bird species that depend on these ecosystems are in decline, 

and many have special conservation status. On the Kaibab NF, species that depend on shrub 

steppe habitat include Brewer’s sparrow (Spizella breweri), sage sparrow (Amphispiza belli), and 

sage thrasher (Oreoscoptes montanus) (AGFD species of greater conservation needs), greentailed towhee (Pipilo chlorurus) and black-throated sparrow (Amphispiza bilineata). The 

following desired conditions are intended to address these habitat needs.

Land and Resource Management Plan for the Kaibab National Forest 33
Chapter 2. Forestwide Desired Conditions and Strategies

Desired Conditions for Sagebrush Shrublands

• The composition, structure, and function of biotic and abiotic components of sagebrush 

shrublands are within or moving toward reference conditions. The majority of sagebrush is 

in mid-seral or mature states. 

• Enough shrub cover exists to meet the needs of a variety of sagebrush obligate wildlife 

species. 

• A vigorous, but not necessarily dense, understory community of native grasses and forbs is 

present. Understory vegetation reflects the site potential. 

• Single trees or groups of trees cover less than 10 percent of any sagebrush shrubland

terrestrial ecosystem survey (TES)6 map unit polygon and less than 5 percent of the 

community. 

• Shrub cover is at least 5 percent, and typically makes up 20 to 50 percent of any sagebrush 

shrubland TES soil unit. 

• Characteristic disturbances play a role in the function of the ecosystem. 

Guidelines for Vegetation Management in Sagebrush Communities

• Prior to developing project proposals for restoring sagebrush communities, a 

determination should be made of the sagebrush subspecies because the differing 

subspecies indicate different desired reference conditions. 

• Management activities should be designed to mimic the historic disturbance. 

• Where sagebrush communities are degraded, water should be strategically placed to 

improve animal distribution and reduce grazing impacts.

Management Approach for Sagebrush Shrublands

Vegetation management activities may be needed to enhance shrubland diversity, distribution, and 

productivity to support wildlife.

6 The terrestrial ecosystem survey (TES; USDA 1991) was published by the Kaibab NF in 1991. It maps and evaluates 

the terrestrial ecosystems in the Kaibab NF. The TES contains predictions and limitations of soil and vegetation 

behavior for selected land uses, and highlights hazards and capabilities inherent in the soil, and the impact of selected 

uses on the environment. It can be used to evaluate and adjust land uses to the limitations and potentials of natural 

resources and the environment. Full text of the TES can be found online at: 

http://www.fs.usda.gov/Internet/FSE_DOCUMENTS/stelprdb5138598.pdf.

34 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 2. Forestwide Desired Conditions and Strategies

Grassland Communities 

In northern Arizona, grasslands can consist of various perennial grasses, wildflowers, yucca, 

cactus, shrubs, and/or trees. Life form composition varies due to fluctuations in the area’s diverse 

topography, elevation, and associated microclimates. Grassland communities on the Kaibab NF 

are categorized as montane/subalpine, Colorado Plateau/Great Basin, or semi-desert. Collectively, 

these grasslands, savannas, and mountain meadows border every forest type on the Kaibab NF. 

Each bears its own unique structure, composition, biological components, and conservation 

needs. 

Historically, these grassland communities had less than 10 percent tree cover and occurred 

between 4,400 and 8,400 feet in elevation. Impacts from grazing, logging, and fire suppression

practices that started in the late 1800s are still discernible on the landscape today. These practices 

reduced or eliminated the vegetation necessary to carry low intensity surface fires across the 

landscape, thereby altering the natural fire regimes and allowing uncharacteristic forest 

succession to take place. Portions of grassland communities across the Kaibab NF have been 

encroached (i.e., invaded) by coniferous trees due to disruption of the historic fire regimes and 

historic grazing patterns. These conditions have been further exacerbated by recent increases in 

invasive, nonnative plants, soil erosion, and low density rural home development on adjacent 

private lands, which further threaten the ecological integrity of grassland systems on the Kaibab 

NF.

Grasslands provide important habitat for wildlife including birds, mammals, and herpetofauna 

(lizards and amphibians). However, functional grasslands are much less abundant than they were 

historically, which reduces the amount of available habitat for grassland-associated species. Many 

of these animals—such as Gunnison prairie dogs (Cynomys gunnisoni), snakes, and burrowing 

owls (Athene cunicularia)—use the consistent environmental conditions found below ground. 

Grasslands provide valuable breeding sites and foraging opportunities for both resident and 

migratory grassland associated birds, which have experienced greater declines than any other 

group of bird species. Pronghorn use grasslands for both cover and forage. 

Desired Conditions for All Grasslands

• Vegetation is dominated by herbaceous plants composed of a mix of native grasses and 

forbs. The structure, composition, and distribution of vegetation are within the range of 

natural variability and occur in natural patterns of abundance and diversity, which vary 

depending on soil type and microclimate.

• Disturbance processes are similar to reference conditions and play a primary role in the 

function of the ecosystem. 

• In pronghorn habitat, understory vegetation provides cover for fawning. Vegetation cover 

is sufficient for small mammal foraging and songbird nesting.

• Vegetation height and cover are sufficient to support the historic fire return interval.

• Vegetation composition is within the natural range of variability and contains diverse 

native herbaceous plant species that provide nutrition for pronghorn and other species. 

• Depending on soil type, bare soil varies between 5 and 80 percent. Basal vegetation varies 

between 5 and 60 percent ground cover. Organic litter varies between 30 and 50 percent of 

Land and Resource Management Plan for the Kaibab National Forest 35
Chapter 2. Forestwide Desired Conditions and Strategies

the ground cover. Vegetation composition will average 40 to 60 percent grass, and 10 to 30 

percent forbs. Vegetation reflects the site potential.

• Tree and shrub canopy cover are each less than 10 percent.

Objectives for Restoring Grasslands

To restore the extent and quality of grasslands and grassland habitat:

• Reduce tree density to less than 10 percent on 5,000 to 10,000 acres of historic 

grasslands annually.

• Modify fences and/or install crossings to facilitate pronghorn movement on 50 miles

of fence within 10 years of plan approval.

Guidelines for Restoring Grasslands

• Pronghorn fence crossings should be installed along known movement corridors.

• Prior to implementation of grassland restoration treatments, consideration should be given 

to making the residual firewood available for personal collection. 

• In areas where native herbaceous cover is sparse and seed sources are depleted, seeding 

should be considered.

Management Approach for Grasslands

Restoration of grasslands was identified as a primary need for change due to the relatively recent 

loss of grassland habitat due to tree encroachment. Potential strategies for implementing 

grassland restoration treatments include: 

• Delineating historic grasslands based on the terrestrial ecosystem soil types that are 

associated with grasslands (mollisols), evidence of presettlement trees, and historic maps. 

• Identifying areas in need of revegetation using TES mapping to guide site potential. 

• Prioritizing areas for treatment that are at greater risk of loss and that have the capacity to 

restore to fully functional, high-quality grasslands. 

• Initiating public education efforts so the public can understand how conditions have 

changed and to gain public support.

Species-specific wildlife needs are addressed on a site-specific basis and considered during 

project level planning and implementation. For example, where they occur, pronghorn typically 

benefit from grasses and shrubs greater than 11 inches in height to provide fawns protection from 

predators during the fawning season. This habitat consideration is, however, dependent in large 

part on weather. Optimal fawning habitat conditions may not always be achievable due to

variable environmental conditions (e.g. winter snow fall and spring precipitation). Project 

specialists work together to determine achievable conditions that would optimize for wildlife 

habitat at the site level, and give consideration to follow up monitoring that could assess how well 

such conditions have been met.

36 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Montane/Subalpine Grasslands

On the Kaibab NF, montane/subalpine grasslands occur at elevations from 6,000 to 8,400 feet. 

This community covers approximately 48,500 acres across the Kaibab NF and can be found on all 

three ranger districts, although it is of limited extent on the Tusayan Ranger District. Areas of 

montane grasslands vary from small patches (less than 10 acres) surrounded by conifer forest to 

large landscape size areas (for example, Demotte Park, Garland Prairie, Government Prairie, and 

Pleasant Valley are several thousand acres each). Smaller patches can be circular in shape and 

coincide with small sinkhole features or long and narrow and coincide with valley bottoms. The 

montane/subalpine grasslands on the North Kaibab Ranger District are often linear, and as a 

result, are at a higher risk of loss because trees encroach from the edges and the openings close 

quickly. They are often forb dominated and are better described as montane/subalpine meadows 

rather than grasslands.

High-elevation meadows are unique sites that often contain habitat for relict plant species that 

require cool, moist conditions. As a result, these areas are particularly vulnerable to changes in 

climate, and are often considered a higher priority for vegetation treatment than areas at lower 

risk. 

Desired Conditions for Montane/Subalpine Grasslands 

• Montane and subalpine meadow vegetation has high soil productivity and biological 

diversity. Native species occur in natural patterns of abundance, composition, and 

distribution. Vegetation is healthy and at least stable. 

• Vegetation and litter are sufficient to maintain and improve water infiltration, nutrient 

cycling, and soil productivity.

See also “Soils and Watersheds” section.

Management Approach Montane/Subalpine Grasslands

The primary strategies for moving toward desired conditions focus on reducing conifer 

encroachment from grasslands. Other strategies may be used such as treatments that improve the 

understory vegetation in the surrounding area, which improves elk and livestock distribution and 

reduces grazing pressure, as well as providing media and public information focused on the 

importance of meadows and appropriate activities within wet meadows.

Colorado Plateau/Great Basin Grasslands

Found at between 4,900 and 7,200 feet in elevation on the Tusayan and Williams Ranger 

Districts, this community consists of approximately 44,000 acres on the Kaibab NF. It consists of 

mostly grasses and interspersed shrubs, and is typically located in drainage bottoms surrounded 

by sagebrush or pinyon-juniper habitat. In some cases, ponderosa pine forest is present on the 

grassland border when it is on a north-facing aspect.

Grass species may include but are not limited to: Indian ricegrass (Achnatherum hymenoides), 

threeawn (Aristida spp.), blue grama (Bouteloua gracilis), fescue (Festuca spp.), needle and 

thread grass (Hesperostipa comata), spike fescue (Leucopoa kingii), Muhlenbergia spp., James’ 

galleta (Pleuraphis jamesii), and Sandberg bluegrass (Poa secunda). Shrub species may include 

Land and Resource Management Plan for the Kaibab National Forest 37
Chapter 2. Forestwide Desired Conditions and Strategies

but are not limited to: sagebrush (Artemesia tridentate spp.), cliffrose (Purshia stansburiana), 

rabbitbrush (Chrysothamnus spp.), saltbush (Atriplex spp.), Ephedra (Ephedra viridis), 

snakeweed (Gutierrezia spp.), winterfat, and wax currant (Ribes cereum). Historically, this 

vegetation type had less than 10 percent tree cover and 10 percent shrub cover. The area provides 

valuable winter habitat for deer, elk, pronghorn, and Merriam's wild turkey (Meleagris gallopavo 

merriami).

Desired Conditions for Colorado Plateau/Great Basin Grasslands 

• Vegetation height and canopy cover are sufficient to carry fire under low wind conditions 

to support a 10 to 30-year fire return interval.

Management Approach Conditions for Colorado Plateau/Great Basin 

Grasslands

Vegetation management activities may be needed to enhance shrub diversity, distribution, and 

productivity to support wildlife. 

Semi-desert Grasslands

Covering about 25,000 acres, semi-desert grasslands are found between 4,400 and 6,400 feet in

elevation on the North Kaibab Ranger District. Species composition consists of mostly grasses 

and interspersed shrubs. Dominant grassland associations/types are blue grama grassland, Indian 

ricegrass, threeawn, fescue, needle and thread grass, spike fescue, Muhlenbergia spp., James’ 

galleta, and Sandberg bluegrass. Shrub species may include but are not limited to: sagebrush, 

rabbitbrush, saltbush, Ephedra, snakeweed, winterfat, and wax currant. Historically, this

vegetation type would have had less than 10 percent tree cover. Semi-desert grasslands provide 

important winter range for mule deer and year-long habitat to pronghorn and bison.

Desired Conditions for Semi-desert Grasslands

• Vegetation height and canopy cover are sufficient to carry fire under low wind conditions 

to support fire on a 10 to 30-year return interval.

Management Approach for Semi-desert Grasslands

It is important to work collaboratively AGFD and other state and federal agencies to implement 

strategies for to maintain and improving habitat for the bison and other wildlife.

Desert Communities

The desert communities vegetation type occupies a proportionately small area of the Kaibab NF, 

covering only approximately 13,700 acres, but provides habitat for a number of species not found 

in other areas. It is only found in the Kanab Creek Wilderness. It surrounds the cottonwoodwillow forest community and occurs at elevations ranging from 3,000 to 4,300 feet. Vegetation 

cover is sparse to dense and includes desert grasses, desert shrubs, succulent species, and some 

herbaceous cover. Fire did not historically play a role in this vegetation community.

38 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Desired Conditions for Desert Communities

• Desert communities are characterized by extensive grasses with a shrub cover less than 30 

percent. Vegetation canopy cover ranges from 5 to 40 percent. Shrubs contribute to the 

native plant diversity and structure. Plant litter occupies up to 5 percent of the soil surface. 

• Density of juniper and other shrubby species is maintained at levels that promote natural 

fire regimes and long fire return intervals. Fire occurrence is low and infrequent. Natural 

disturbance regimes include soil engineers such as arthropods and sometimes small 

mammals.

• Rocky outcroppings and shrubby plant species provide abundant browse and foraging 

opportunities for mule deer and bighorn sheep.

• Native ungulates are free from disease. 

• Livestock are absent, except for recreation and administrative packing and riding animals. 

• Native plants provide for traditional foods and materials including ephedra, yucca, and 

prickly pear. 

Guidelines for Desert Communities

• Fire should not be used as a vegetation management tool in desert communities.

Management Approach for Desert Communities

In the desert communities of Kanab Creek, it is important to work collaboratively with the AGFD 

and BLM to implement strategies identified in the “Arizona Strip Desert Bighorn Sheep 

Management Plan.”

See also management area direction for “Recommended Wilderness Areas.”

Gambel Oak Shrublands

On the Kaibab NF, the Gambel oak shrubland vegetation community occurs at elevations ranging 

from 7,000 to 8,600 feet and is associated with relatively steep, rocky, south-facing slopes. 

Gambel oak shrublands occur on the southern flank of Bill Williams Mountain on the Williams 

Ranger District and along the East Rim break in Saddle Mountain Wilderness on the North 

Kaibab Ranger District. Gambel oak shrublands make up less than 0.3 percent of the Kaibab NF 

and total approximately 5,370 acres.

Desired Conditions for Gambel Oak Shrublands

• The system is dominated by native tall shrubs and hardwood trees. Some areas contain 

many trees with relatively large hollow boles or limbs. Coniferous trees are widely 

scattered and are frequently mature or old. Young Gambel oak thickets and sometimes 

other species comprise a patchy shrub layer. 

• Ground cover is mostly comprised of oak litter, with grasses and forbs present. 

• Low-intensity fire occurs regularly in intervals of less than 25 years. 

Land and Resource Management Plan for the Kaibab National Forest 39
Chapter 2. Forestwide Desired Conditions and Strategies

• Old stands contain habitat for birds and arboreal nesting or roosting mammals. A variety 

of oak growth forms, sizes, and densities that benefit wildlife species can be found across 

the landscape. 

Management Approach for Gambel Oak Shrublands

Gambel oak may be managed to increase hard mast production, cavities, and deciduous foliage 

volume to promote and enhance wildlife habitat. Potential activities include thinning encroaching 

conifers and low-intensity fire to kill stems less than 6 inches d.b.h.

40 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Wetland/Cienega

The wetland/cienega vegetation communities are associated with perennial springs or headwater 

streams where groundwater intersects the surface and creates pools of standing water, sometimes

with channels flowing between pools. Soils are often saline. Riparian vegetation occurs in wet 

areas and ranges widely depending on amount, timing, and water source, as well as biophysical 

characteristics (e.g. gradients in saturated soils and salinity). Some vegetation types found in 

saline areas of wetlands/cienegas include salt grass (Distichlis spicata), yerba mansa (Anemopsis 

californica), and sacaton (Sporobolus spp). Pools and saturated soils support rushes (Juncus spp.), 

sedges (Carex spp.), flat sedges (Cyperus spp.), spike rushes (Eleocharis spp.), and other aquatic 

vegetation. Wetlands/cienegas have historic and contemporary significance to area tribes due to 

the cultural value of water and because they contain traditionally used resources that are rare on 

the landscape. 

On the Kaibab NF, wetlands/cienegas primarily occur as ephemeral wetlands at elevations 

ranging from 5,900 to 9,500 feet, but also occur in high elevation (up to 11,000 feet) meadows 

with subsurface flows dominated by herbaceous cover. Historically, this vegetation community 

would have had less than 10 percent tree canopy cover.

Ephemeral wetlands contain standing water for a portion of the year (typically from snowmelt in 

years when precipitation is normal to above normal) and are dry for a portion of the year. They 

provide important resting habitat during spring migration. They cover about 1,500 acres on the 

North Kaibab and Williams Ranger Districts, and include landmarks such as Davenport, Dry, and 

Duck Lakes on the Williams Ranger District. 

Drought and flooding are the primary natural disturbances. Fire is an infrequent disturbance and 

enters from adjacent vegetation types.

Desired Conditions for Wetlands/Cienegas

• Wetland conditions are consistent with their flood regime and flood potential.

• Native plant and animal species that require wetland habitats have healthy populations 

within the natural constraints of the particular wetland community. 

• Wetlands infiltrate water, recycle nutrients, resist erosion, and function properly. 

Objectives for Wetlands/Cienegas

• Restore native vegetation and natural water flow patterns on at least 6 acres of wetlands 

within 5 years of plan approval.

Management Approach for Wetlands/Cienegas

Standing water and vegetation in wetlands may barely exist in dry periods, but during wet periods

these communities can be highly productive. Because tree encroachment and high tree density of 

adjacent vegetation types can lower the water table and reduce water flow, vegetation 

management can be an effective strategy for increasing water flow into these systems. 

See also “Natural Waters.”

Land and Resource Management Plan for the Kaibab National Forest 41
Chapter 2. Forestwide Desired Conditions and Strategies

Cottonwood-Willow Riparian Forest 

Southwestern riparian ecosystems—which include ephemeral, intermittent, and perennial streams 

and rivers—are ecologically dynamic habitats characterized by linear patches of vegetation. 

Riparian systems have decreased in size over the past 100 years, largely as a result of human 

development. In the West, factors such as livestock grazing, beaver extirpation, and road 

development are commonly attributed to the loss of riparian habitat. Riparian areas are considered 

one of the most important habitat types for Arizona and the Southwest. Activities such as 

channelization and river diversion, domestic livestock grazing, timber harvest, invasive species

colonization, recreation, and infrastructure development have led to a 90 percent reduction of this 

habitat type in Arizona and New Mexico, compared to historic (prior to 1890) conditions.

Cottonwood-willow riparian forests are characterized by dense groves of low, shrublike trees or 

tall shrubs to woodlands of small to medium and large sized trees. This vegetation type is found 

adjacent to permanent surface water, such as streams and springs, and in places where shallow 

ground water is consistently available. Usually an abrupt transition occurs between this and 

adjacent shorter and more open desert vegetation communities. 

Riparian vegetation height depends on constituent plant species. Willow (Salix spp.) thickets 

range from 3 to 10 feet (1 to 3 meters) in height while Fremont cottonwoods (Populus fremontii) 

may exceed 80 feet (24 meters). Plant species vary and may exist as a variety of structural stages 

ranging from seedlings through tree/shrub to large tree. Vegetation within this community is 

predominantly composed of deciduous species. Common native trees and shrubs, depending on 

location and elevation, include narrowleaf cottonwood (Populus angustifolia), box-elder (Acer 

negundo), bigtooth maple (Acer grandidentatum), Rocky Mountain maple (Acer glabrum), water 

birch (Betula occidentalis), aspen, thin-leaf alder (Alnus tenuifolia), New Mexico locust, Scouler 

willow (Salix scouleriana), and arroyo willows (Salix lasiolepis). Canopy development and plant 

density depend on available water, plant species, and site characteristics. Soils vary from silty 

alluvial to rocky, sandy, well-drained substrates. Hot, dry summers, and cool to cold, moist 

winters characterize this vegetation type.

On the Kaibab NF, this vegetation community is located only within Kanab Creek Wilderness at 

elevations ranging from 3,200 to 4,500 feet and covers approximately 1,200 acres. It evolved with 

flooding as a major natural disturbance. Upstream diversions, impoundments, and tamarisk 

(Tamarix ramosissima) invasion has resulted in departures from the historic flooding regime. As a 

result, this vegetation community on the Kaibab NF does not typically occur in patches large 

enough to be considered a “forest.” 

Desired Conditions for Cottonwood-willow Riparian Forest

• The extent, diversity, and condition of riparian habitat contribute to ecological 

sustainability. Dense shrubbery and high levels of vegetative diversity (structural and 

compositional) and permanent water provide food, cover, and water for wildlife, including 

terrestrial and aquatic invertebrates and vertebrates. 

• Vegetation is characterized by willow and other herbaceous understory species. Snag and 

gallery tree components comprise 55 percent mid-aged to mature cottonwood and willow 

trees, 25 percent younger trees and 20 percent in grass, forbs, shrubs, suckers, seedlings, 

and tree sprouts. 

42 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

• Vegetation is structurally diverse and provides habitat for high bird species diversity and 

abundance with nesting and foraging opportunities for neotropical migrant birds. 

• Mature cottonwood and other trees provide cavities for cavity dependent wildlife such as 

woodpeckers, sapsuckers, and secondary cavity users. 

• Tall trees provide lookouts and opportunities for nesting raptors.

• Water flow regime approximates reference conditions (i.e., perennial flows) and flows 

freely. Sedimentation is minimized. Springtime flooding contributes to ecosystem 

sustainability by optimizing germination conditions for seedlings and/or suckering 

opportunities from the parent plant.

• Native vegetation dominates, but when nonnative vegetation is present, the spatial and 

structural composition contributes to overall faunal diversity.

• Grazing from domestic ungulates is minimal or absent. 

• Soil is free from compaction and includes sand and gravelly reaches and provides suitable

germination sites for desirable plant species.

• Sandy and vegetated terraces provide habitat for reptiles and amphibians.

• Shallow exposed watersides provide drinking and foraging opportunities for wildlife.

• Fire is limited or absent in this system. 

Management Approach for Cottonwood-willow Riparian Forests

The Kaibab NF recognizes the importance of riparian areas during project planning and 

implementation, and emphasizes their protection while managing them within multiple-use 

guidelines.

Program managers work with public affairs to communicate the ecological significance of these 

systems to the broader public and to garner support for restoration activities, which may facilitate 

increasing water into these systems. Restoration activities may also include burning and/or 

mechanical removal of invasive non-native species (tamarisk, Russian olive (Elaeagnus 

angustifolia)) followed by herbicide treatments (if necessary) and active revegetation of desirable 

species. The recent arrival of tamarisk beetles (Diorhabda elongate) on the Kaibab NF (originally 

introduced off-Forest as a biological control agent) may call for active burning and planting of 

native species following tamarisk mortality to make progress toward desired conditions. 

Increased capacity and broad support may be gained through partnerships. Work with various 

stakeholders, including the Kaibab Band of Paiute Tribe to restore cottonwood-willow riparian 

vegetation communities.

Soils and Watersheds

Soil and watershed condition is integral to all aspects of resource management and use. Good 

watershed management maintains the productive capacity of soils, protects water quality and 

quantity, sustains native species, provides beneficial uses, and reduces the threat of flood damage

to Forest Service infrastructure and downstream values.

On the Kaibab NF, there are 127 6th-level hydrologic unit code (HUC) watersheds. Roughly twothirds of these are in fair to excellent condition. Watershed conditions have been generally static 

over the last 20 years. Some portions of watersheds have been improved through tree thinning 

Land and Resource Management Plan for the Kaibab National Forest 43
Chapter 2. Forestwide Desired Conditions and Strategies

and managed fires while forest density in other areas continues to increase. The primary risk to 

watersheds on the Kaibab NF is uncharacteristic fire. Watersheds containing departed vegetation 

types are at higher risk of erosion, sedimentation, and nonnative species invasion following 

uncharacteristic fire, as well as a downstream risk of sedimentation. 

Desired Conditions for Soils 

• Soils provide for diverse native plant species. Vegetative ground cover is well distributed 

across the soil surface to promote nutrient cycling and water infiltration. 

• Accelerated soil loss is minimal, especially on sensitive or highly erodible sites. 

• Soils can readily absorb, store, and transmit water vertically and horizontally; accept, hold, 

and release nutrients; and resist erosion. 

• Infiltration rates are good in TES soil units that are described as well drained and 

moderately well drained.

• Logs and other woody materials are distributed across the surface to maintain soil 

productivity. 

• Biological soil crusts (mosses, lichens, algae, liverworts) are stable or increasing in semidesert grasslands, desert, pinyon-juniper, and sagebrush communities.

• Soils are free from anthropogenic contaminants that could alter ecosystem integrity or 

affect public health.

Desired Conditions for Watersheds 

• Vegetation conditions within watersheds contribute to downstream water quality and 

quantity. Surface runoff, sheet, rill, and gully erosion, and subsequent sedimentation into 

connecting waters downstream is minimal.

• Flooding maintains normal stream characteristics (e.g., water transport, sediment, woody 

material) and dimensions (e.g., bankfull width, depth, slope, and sinuosity). Vertical down 

cutting and embeddedness are absent in drainages. 

• Flood plains are functioning and lessen the impacts of floods on human safety, health, and 

welfare. 

• The fuels composition within watersheds does not put the watersheds at risk for

uncharacteristic disturbance. 

• Water quality meets or surpasses State of Arizona or Environmental Protection Agency 

water quality standards for designated uses. Water quality meets critical needs of aquatic 

species. 

Guidelines for Soils and Watershed Management

• Projects should incorporate the national best management practices for water quality 

management and include design features to protect and improve watershed condition.

• In disturbed areas, erosion control measures should be implemented to improve soil 

conditions.

44 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

• Seeds and plants used for revegetation should originate from the same PNVT and general 

ecoregion (i.e. southern Colorado Plateau) as the project area.

Management Approach for Soils and Watersheds

Watershed protection was one of the primary reasons for establishing the national forests. 

Forested lands absorb precipitation, refill regional underground aquifers, sustain watershed 

stability and resilience, and provide aquatic and wildlife habitat. On the Kaibab NF, the highest 

risk to watersheds is uncharacteristic wildfire. Projects that reduce this risk and restore the natural 

vegetative and fuels composition also restore watersheds. As a result, the Kaibab NF uses an 

integrated management approach to make progress toward the soil and watershed desired 

conditions. Objectives to address these needs are found in the “Major Vegetation Community 

Types,” “Nonnative Invasive Species,” and “Natural Waters” sections of this plan. With these and 

other activities, the Kaibab NF generally employs best management practices before, during, and 

after activities to reduce or eliminate adverse effects. 

The priority watersheds for restoration were identified on the Kaibab NF using the Watershed 

Condition Classification guide. The top six priority watersheds are Cataract Creek Headwaters, 

Coconino Wash Headwaters, Upper Hell Canyon, Upper Spring Valley Wash, Rock Canyon, and 

Slide Canyon. These priorities are expected to change over time with changed conditions and new 

information.

Natural Waters

Streams, springs, groundwater, and other natural waters are centers of high biological diversity in 

arid landscapes, and the ecological health of these resources is important for forest ecosystem 

sustainability. Wildlife is more concentrated around open water sources than in the general 

landscape, and obligate aquatic and semiaquatic species on the Kaibab NF are sometimes entirely 

dependent on these limited and scattered water sources. Collectively, these resources contribute to 

connectivity for wildlife across the landscape. Springs are highly productive habitats in otherwise 

low productivity arid landscapes. Springs are frequently more stable ecologically than 

surrounding upland ecosystems in arid regions, and may offer biological refugia for some species, 

particularly those that are narrowly endemic. 

Natural waters provide water and food resources that are especially vital to wildlife; particularly

birds, bats, and invertebrates. Springs have important traditional cultural significance to humans 

inhabiting arid landscapes. Contemporary uses include contributions to potable local and urban 

water supplies and agricultural uses such as livestock watering. These uses are vital to domestic 

and commercial interests in and around the Kaibab NF. In addition, springs provide cultural and 

recreational opportunities. 

Land and Resource Management Plan for the Kaibab National Forest 45
Chapter 2. Forestwide Desired Conditions and Strategies

Desired Conditions for Natural Waters

• Stream channel stability and aquatic habitats retain their inherent resilience to disturbances

and climate fluctuations. Stream channel morphology reflects changes in the hydrological 

balance, runoff, and sediment supply appropriate to the landscape setting. 

• Springs and ponds have the necessary soil, water, and vegetation attributes to be healthy 

and functioning. Water levels, flow patterns, groundwater recharge rates, and 

geochemistry are similar to reference conditions. Springs, streams, and ponds have 

appropriate plant cover to protect banks and shorelines from excessive erosion. 

• Hydrophytes and emergent vegetation exist in patterns of natural abundance in wetlands 

and springs in levels that reflect climatic conditions. Overhanging vegetation and floating 

plants such as water lilies exist where they naturally occur.

• The necessary physical and biological components, including cover, forage, water, 

microclimate, and nesting/breeding habitat, provide habitat for a diverse community of 

plant and wildlife species. 

• Riparian dependent plant and animal species are self-sustaining and occur in natural 

patterns of abundance and distribution. Within its capability, stream flow and water quality 

are adequate to maintain aquatic habitat and water sources for native and desired 

nonnative species.

7 Native macroinvertebrates are appropriately abundant and diverse. 

• Native amphibians are free from or minimally impacted by nonnative predation and 

diseases. Unwanted nonnative species do not exert a detectable impact on aquatic and 

wetland ecosystems

• Where springs or other natural waters have been modified for livestock and/or human 

consumption, developments are operational.

• The location and status of springs and water resources are known, organized, and 

available.

Objectives for Natural Waters

• Protect and/or restore at least 10 individual springs within 5 years of plan approval.

Guidelines for Activities In and Around Natural Waters

• Access to natural waters should be restricted to designated trails and points of entry to 

mediate erosion and prevent trampling and inadvertent introduction of nonnative and 

undesirable biota and disease.

• Activities in and around waters should use decontamination procedures to prevent the 

spread of chytrid fungus.

• Fences constructed around natural waters should allow bats and other desirable wildlife to 

pass through unharmed.

7

 Desirable non-native species are those with high social or economic value.

46 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 2. Forestwide Desired Conditions and Strategies

• Diversions of water sources that recharge wetlands should be assessed and appropriate 

actions should be identified to mitigate or minimize effects. 

• Spring source areas should be preferentially protected.

• Forest springs information should be maintained in a database that facilitates long-term 

archiving, easy data entry, and comparison with monitoring results.

• Water rights for springs should be secured where there are no existing water rights or 

claims.

• The impacts of management activities on springs, streams, and wetlands should be 

evaluated and minimized.

Management Approach for Natural Waters

Due to the limited information available, Kaibab NF efforts and emphasis are placed on 

improving knowledge on the distribution of water resources and aquatic or wetland biota, 

resource protection, and rehabilitation of springs, including groundwater flow and geochemical 

analyses. Potential management activities include fencing or other physical protections, 

restoration of diversions, and revegetation with native species. 

Develop collaborative strategies and partnerships for spring inventory, assessment, restoration, 

monitoring, and research when appropriate. Use volunteers to maintain and improve fence 

exclosures and decrease agency maintenance costs.

The Forest Service and Arizona Department of Environmental Quality (ADEQ) share the 

common objective of improving and protecting the nation’s waters. ADEQ serves as the 

designated management agency within the context of the Arizona Water Quality Management 

Program for all NFS lands within Arizona. The Kaibab NF coordinates with ADEQ to ensure 

Forest Service projects meet the requirements of State Water Quality Management Plans and the

Nonpoint Source Management Program developed pursuant to Federal regulations and the Clean 

Water Act.

To meet common objectives, the Kaibab NF works with partners and stakeholders (i.e., Museum 

of Northern Arizona, Grand Canyon Wildlands Council, The Nature Conservancy, Grand Canyon 

Trust , National Park Service (NPS), AGFD, and USFWS) to develop a Geographic Information 

System (GIS) layer of northern Arizona springs and seeps. The Kaibab NF also collaborates with 

stakeholders and uses public education and outreach to garner support for spring restoration. 

See also “Wetland/Cienega” vegetation type

Constructed Waters

Various water impoundments have been constructed on the Kaibab NF for a variety of purposes 

including reservoirs, constructed lakes, stock tanks, and wildlife drinkers. Some constructed 

waters provide unique riparian habitats and recreation opportunities. 

Land and Resource Management Plan for the Kaibab National Forest 47
Chapter 2. Forestwide Desired Conditions and Strategies

Desired Conditions for Constructed Waters 

• Drinkers have escape ramps that provide safe access and egress for wildlife.

• Constructed waters do not contribute to the spread of chytrid fungus or unwanted 

nonnative species.

• Reservoirs maintain high water quality for parameters such as temperature, pH, and 

dissolved oxygen, and water levels are within the seasonal range of variable conditions.

• Artificial waters do not concentrate ungulate use in aspen stands. 

• Desirable nonnative fish species provide recreational fishing opportunities in reservoirs 

and lakes consistent with the needs of native species. 

Objectives for Constructed Waters 

• Issue closure orders for prohibiting swimming and wading at Dogtown Reservoir and 

Kaibab, Cataract, and Whitehorse lakes within one year of plan approval.

• Issue a closure order for restricting foot and boat traffic in the northern part of Scholz 

Lake during waterfowl nesting season within one year of plan approval.

Guidelines for Activities In or Near Constructed Waters

• Swimming and wading is should not be allowed at Dogtown Reservoir, Kaibab, Cataract, 

or Whitehorse Lake.8

• During waterfowl nesting season, foot and boat traffic should be restricted in the northern 

part of Scholz Lake.9

• Scholz Lake should not be managed for recreational sport fishing.

• Current protocols for preventing the spread of chytrid fungus should be followed in 

riparian aquatic areas.

• If new waters are constructed, they should be located in areas that would reduce ungulate 

impact to sensitive vegetation or soils such as riparian, aspen, and wet meadow areas. 

• Drinkers should be maintained to provide water during times of scarcity. 

Management Approach for Constructed Waters

Work with the Arizona Game and Fish Department, grazing permittees, and sporting groups to 

manage constructed waters. Improve understanding of whether and how drinkers, tanks, and other 

constructed water features influence wildlife distribution and movement. 

8,9 Implementation and enforcement of these guidelines require closure orders.

48 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 2. Forestwide Desired Conditions and Strategies

Wildlife 

The Kaibab NF provides habitat for a wide variety of wildlife species. Topographical and 

geological conditions, particularly between the South Zone (Williams and Tusayan Ranger 

Districts) and the North Kaibab Ranger District provide for variation in wildlife distribution and 

habitat use. The spatially disjunct nature of the three districts influences movement patterns of 

wide ranging mammal herds such as elk, mule deer, and pronghorn. The Kaibab NF is primarily 

responsible for providing habitat to maintain species diversity on national forest lands. The Forest 

Service has ultimate responsibility over NFS lands, but the AGFD and the USFWS are the lead 

agencies responsible for managing wildlife populations in Arizona. Specifically, USFWS works 

with the Forest Service on the management and recovery of threatened and endangered species, 

migratory birds, and bald and golden eagles (Aquila chrysaetos).

Desired Conditions for Wildlife

• Native wildlife species are distributed throughout their potential natural range. Desirable 

nonnative wildlife species are present and in balance with healthy, functioning 

ecosystems.

• Habitat is available at the appropriate spatial, temporal, compositional, and structural 

levels such that it provides adequate opportunity for breeding, feeding, nesting, and 

carrying out other critical life cycle needs for a variety of vertebrate and invertebrate 

species.

• Species with specific habitat needs (e.g. snags, logs, large trees, interlocking canopy, and 

cavities) are provided for. 

• Grasses, forbs, and shrubs provide forage, cover, fawning, and nesting sites. 

• Interconnected forest and grassland habitats allow for movement of wide ranging species

and promote natural predator-prey relationships, particularly for strongly interactive 

species (e.g., mountain lions).

• Habitat configuration and availability allow wildlife populations to adjust their movements 

(e.g., seasonal migration, foraging, etc.) in response to climate change and promote 

genetic flow between wildlife populations.

• Human-wildlife conflicts are minimal. Hunting, fishing and other wildlife based recreation 

opportunities exist, but do not compromise species populations or habitat.

Guidelines for Wildlife

• Project activities and special uses should be designed and implemented to maintain refugia 

and critical life cycle needs of wildlife, particularly for raptors.

• Project activities and special uses should incorporate recommended measures for golden 

eagle management such as temporary closures to limit human disturbance in the vicinity 

of golden eagle nests.

• Potentially disturbing project-related activities should be restricted within 300 yards of 

active raptor nest sites between April 1 and August 15.

Land and Resource Management Plan for the Kaibab National Forest 49
Chapter 2. Forestwide Desired Conditions and Strategies

Management Approach for Wildlife

The Kaibab NF strives to create and maintain natural communities and habitats in the amounts, 

arrangements, and conditions capable of supporting viable populations of existing native and 

desired nonnative plant, aquatic, and wildlife species within the planning area while contributing 

to broader landscape-scale initiatives where appropriate. This is accomplished in an integrative 

fashion by working closely with range, fire, timber, and other resource areas to coordinate and 

maximize activities for wildlife benefit. Cooperation with State and federal wildlife management 

agencies also helps to minimize conflicting wildlife resource issues related to hunted, fished, and 

trapped species. The Kaibab NF coordinates with Rocky Mountain Research Station and other 

entities to identify future areas of research that would support management decisions and enable 

the adaptive management process.

The Kaibab NF continues to support the AGFD in various capacities directed toward managing

wildlife, fish, and habitat. Areas for potential collaboration include (but are not limited to) 

achieving management goals and objectives specified in Arizona’s State Wildlife Action Plan 

(SWAP), carrying out memoranda of understanding (MOUs) and the cooperative agreement for 

management of the Grand Canyon National Game Preserve, and management of recreation 

fisheries.

The Kaibab NF works closely with the BLM, Grand Canyon National Park, and AGFD in 

managing desert bighorn sheep, bison, and California condor (Gymnogyps californianus). Kaibab 

NF has been working and will continue to collaborative with the Arizona Wildlife Linkages 

Workgroup to implement strategies identified in the “Arizona Wildlife Linkages Assessment” as 

well as the “Coconino County Wildlife Corridor Assessment.”

The Kaibab NF cooperates with State, Federal, and 

nongovernmental organizations to reestablish 

naturally occurring species that have been affected 

by anthropogenic activities. These include species 

such as the California condor and northern leopard 

frog (Lithobates pipiens), and where feasible and 

appropriate, the recovery and/or restoration of 

strongly interactive species within their historical

range. 

Potential climate change, drought, El Niño Southern 

Oscillation (ENSO), and the resulting potential 

effects of management activities are considered 

during project planning. Particular species that are 

sensitive to changes in weather may need special 

consideration. Changes in typical weather patterns 

can affect migration habitat use, breeding seasons, 

and fecundity (i.e., in hotter, drier years, mitigations 

may be needed to reduce physiological stress on 

breeding wildlife). Climate change is an important 

consideration when managing habitat for wildlife 

species.

50 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

The Kaibab NF references current literature and the best available science when making site 

specific decisions relevant to project planning. This is done in an interdisciplinary context with 

input from other resource specialists. For example; the wildlife guideline specifying disturbance 

buffers around raptor nests is intended as a minimum buffer. Some raptor species (e.g., osprey) 

are more adapted to disturbance and are likely to tolerate a buffer of just 300 yards during the 

breeding season while other, less tolerant species (e.g. peregrine falcons (Falco peregrinus)) may 

require buffers of up to a 1⁄2 mile. Wildlife biologists work with other IDT resource specialists to 

identify and define the appropriate site specific buffers (within the context of plan guidance) for 

other raptors on a case-by-case basis.

Threatened, Endangered, and Sensitive Species

Threatened and endangered species are those listed under the Endangered Species Act of 1973. 

On the Kaibab NF, these species include the California condor, Mexican spotted owl, Apache 

trout (Oncorhynchus apache), and Fickeisen Plains cactus (Pediocactus peeblesianus var. 

fickeiseniae) at the time of plan implementation. Region 3 Sensitive Species10 are those plants

and animals identified by the Regional Forester for which population viability is a concern. The 

primary needs for threatened, endangered, and sensitive species (TES) are addressed through law, 

regulation, and policy (e.g., recovery plans and conservation agreements). As a result, this plan 

provides the framework for implementing the recommendations from these higher-level laws, 

regulations, policies, plans, and agreements for TES, with limited needed additional (below) 

direction.

Desired Conditions for Threatened, Endangered, and Sensitive Species

• Threatened, endangered, and sensitive species have quality habitat, stable or increasing 

populations, and are at low risk for extirpation.

• Goshawk nest areas are multi-aged forests dominated by large trees with interlocking 

crowns and are generally denser than the surrounding forest.

Guidelines for Threatened, Endangered, and Sensitive Species

• Project activities and special uses occurring within federally listed species habitat should 

integrate habitat management objectives and species protection measures from approved

recovery plans.

• Project activities and special uses should be designed and implemented to maintain refugia 

and critical life cycle needs of Forest Service Sensitive Species.

• Activities occurring near areas used by bald eagles should follow recommendations

identified in the National Bald Eagle Management Guidelines and Arizona Conservation 

Assessment and Strategy for the Bald Eagle.

• A minimum of six goshawk nest areas (known and replacement) should be located per 

territory. Nest and replacement nest areas should generally be located in drainages, at the 

10 The Regional Forester’s Sensitive Species List for the Southwestern Region can be found at 

http://www.fs.usda.gov/detail/r3/plants-animals/?cid=FSBDEV3_022105

Land and Resource Management Plan for the Kaibab National Forest 51

 
Chapter 2. Forestwide Desired Conditions and Strategies

base of slopes, and on northerly (NW to NE) aspects. Nest areas should generally be 25 to 

30 acres in size.

• Goshawk PFAs (post-fledging family areas) of approximately 420 acres in size should be 

designated surrounding the nest sites.

• Potentially disturbing project-related activities should be minimized in occupied goshawk 

nest areas during nesting season of March 1 through September 30. 

Management Approach for Threatened, Endangered, and Sensitive Species

The Kaibab NF maintains strong partnerships between the State, other federal agencies, 

academia, and nongovernment organizations to provide for TES species. Emphasis is placed on 

the protection and replacement of key habitats that contain threatened, endangered, and/or 

sensitive species of plants and animals. The Kaibab NF works with the USFWS and other 

partners to develop conservation measures (e.g. public education to reduce human impacts) to 

prevent listing and to aid to in the recovery and delisting of federally listed species. For 10(j) 

species, such as the California condor, this applies inside and outside the designated experimental 

range.

See also “Wildlife”, “Natural Waters,” “Caves, Karsts, and Mines,” “Cliffs and Rocky 

Features,” “Pediocactus Conservation Area,” and “Arizona Bugbane Botanical Area.”

Rare and Narrow Endemic Species

Some species face threats simply by virtue of their relatively limited distribution. Species (or 

subspecies) are considered to have a restricted distribution if they are limited in extent in the 

Southwest. A species is considered to be a rare and narrow endemic if it has extremely limited 

distribution and/or habitat in northern Arizona. Due to limited distributions and potential 

susceptibility to perturbations, some species may require specific management considerations. On 

the Kaibab NF there are currently 74 known species for which restricted distribution is considered 

a threat; of these, 48 are narrow endemics, some of which are on the Regional Forester’s sensitive 

species list (see above).

Desired Conditions for Rare and Narrow Endemic Species

• Habitat and refugia are present for narrow endemics or species with restricted distributions 

and/or declining populations.

• Location and conditions of rare and narrow endemic species are known. 

Guidelines for Rare and Narrow Endemic Species

• Project design should incorporate measures to protect and provide for rare and narrow 

endemic species where they are likely to occur.

52 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Management Approach for Rare and Narrow Endemic Species

Species-specific information and management recommendations can be found in the Kaibab NF 

endemic species guidebook, which is to be maintained as a living document. This guidebook will 

be updated with new species, information, and locations as they become available. 

See also “Wildlife,” “Threatened, Endangered, and Sensitive Species,” “Natural Waters,” 

“Caves, Karsts, and Mines,” “Cliffs and Rocky Features,” “Pediocactus Conservation Area,”

and “Arizona Bugbane Botanical Area.”

Nonnative Invasive Species 

Some nonnative species have invasive tendencies and threaten native species, ecosystem 

function, and the quantity and quality of forest goods and services (e.g. noxious weeds). Some 

nonnative species are desirable and/or not likely to cause ecosystem disruption, and are not 

addressed in this section. The nonnative species with the highest treatment priority are bull thistle

(Cirsium vulgare), cheatgrass (Bromus tectorum), Dalmatian toadflax (Linaria dalmatica), 

tamarisk (Tamarix sp.), and knapweeds (Centaurea sp.) (Russian (C. repens), diffuse (C. diffusa), 

and spotted (C. maculosa)), which have made significant increases in their overall population size 

in the plan area over the last 10 years. Leafy spurge (Euphorbia esula) and yellow starthistle 

(Centaurea solstitialis) are also of high treatment priority due to their invasiveness and tendency 

to outcompete native plants and form monocultures. Invasive weeds have been documented to 

alter soil temperature, soil salinity, water availability, nutrient cycles and availability, native seed 

germination, infiltration and runoff of precipitation, and fire severity and frequency. The 

alteration of physical conditions and disturbance regimes allow the invasive species to spread 

farther. 

The Kaibab NF also has known populations of invasive animals including bullfrogs (Rana 

catesbeiana) and crayfish (Cambarus sp.). Similar to invasive plants, invasive animals have the 

potential to adversely affect native species and ecosystem function. They can out compete and 

prey upon native animal species, alter food web interactions, and impact native vegetation.

Desired Conditions for Nonnative Invasive Species

• Invasive species are contained and/or controlled so that they do not disrupt the structure or 

function of ecosystems or impact native wildlife.

• Visitor experiences are not adversely impacted by the presence of invasive species. 

Guidelines for Nonnative Invasive Species

• All ground-disturbing projects should assess the risk of noxious weed invasion and 

incorporate measures to minimize the potential for the spread of noxious and invasive 

species. New populations should be detected early, monitored, and treated as soon as 

possible.

• Treatment approaches should use integrated pest management (IPM) practices to treat 

noxious and nonnative invasive species. IPM includes manual, biological, mechanical, and 

herbicide/pesticide treatments. 

Land and Resource Management Plan for the Kaibab National Forest 53
Chapter 2. Forestwide Desired Conditions and Strategies

• Use of pesticides, herbicides, and biocontrol agents should minimize impacts on nontarget flora and fauna.

Objectives for Nonnative Invasive Species

• Treat 2,000 to 3,000 acres invaded by nonnative invasive plants annually.

Management Approach for Nonnative Invasive Species

Strategies to prevent the spread of nonnative invasive species include education, inventory, and 

control guidelines. Educational programs that increase awareness are critical to effectively 

manage nonnative invasives. Treatments focus on those species that have the potential to 

permanently alter historical fire regimes or pose the greatest threat to biological diversity and 

watershed condition. To effectively manage invasive species populations, it is important to 

coordinate with other agencies, grazing permittees, and adjacent landowners in efforts for 

prevention and control.

While management that provides for interconnected habitats is desirable for many native wildlife 

species. In some circumstances such as springs, connectivity can also provide vectors for 

nonnative species to spread (e.g., water and vehicles used in fire suppression). The use of best 

management practices can minimize and prevent the spread of non-native invasive species. 

See also “Wildlife”, “Natural Waters,” “Wildland Fire Management”, “Rare and Narrow 

Endemic Species”, “Wilderness”, “Recommended Wilderness Areas”.

Air Quality 

The goal of air quality management is to meet human health standards, to meet visibility goals in 

areas of high scenic value, and to address and respond to other air quality concerns, such as 

nuisance smoke. 

Human health standards are defined in the National Ambient Air Quality Standards (NAAQS) set 

by the Environmental Protection Agency (EPA) for seven pollutants considered harmful to public 

health: carbon monoxide, lead, nitrogen dioxide, particulate matter 10 microns in size or smaller 

(PM10), particulate matter 2.5 microns in size or smaller (PM2.5), ozone, and sulfur dioxide. 

Population centers with the potential to be impacted by management activities on the Kaibab NF 

are Sedona, Camp Verde, Flagstaff, Williams, Parks, and Tusayan. The Sedona/Camp Verde area 

is carefully monitored as it receives diurnal air drainage from the Prescott, Kaibab, and Coconino 

National Forests. To protect visibility in the national parks and wilderness areas of high scenic 

value, Congress designated all wilderness areas over 5,000 acres and all national parks over 6,000 

acres as mandatory Federal Class I areas in 1977, subject to the visibility protection requirements 

in the Clean Air Act. The Class I areas most likely to be impacted by activities on the Kaibab NF

are Grand Canyon National Park and Sycamore Canyon Wilderness.

EPA defines nuisance smoke as the amount of smoke in the ambient air that interferes with a right 

or privilege common to members of the public, including the use or enjoyment of public or 

private resources. Complaints of the odor or soiling effects of smoke, poor visibility, and impaired 

ability to breathe or other health-related effects are common examples. While no laws or 

54 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

regulations govern nuisance smoke, it effectively limits opportunities of land managers to use 

fire. Public outcry regarding nuisance smoke often occurs long before smoke exposures reach 

levels that violate NAAQS. The areas of particular concern for nuisance smoke from wildland 

fire on the Kaibab NF are the Sedona/Verde Valley, Flagstaff, Williams, Parks, Tusayan, Grand 

Canyon National Park, and Sycamore Canyon Wilderness.

Coconino County enjoys good air quality. Few pollution sources, such as large metropolitan 

areas, industry, or power plants, exist in northern Arizona, which contributes to its reputation for 

clean air. Air quality in the air sheds the Kaibab NF shares with lands of other ownership 

experiences some impacts from emission sources and processes off Forest, such as pollution from 

distant metropolitan communities, or industrial activities on lands of other ownership. These 

impacts are outside the scope of forest management control. 

Heavy equipment used on paved and unpaved roads during the implementation of projects has the 

potential to create localized impacts from fugitive dust. With high wind events, this fugitive dust 

has the potential to be carried for several kilometers.

Temporary decreases in air quality from management activities on the Kaibab NF are primarily 

from prescribed fires. Wildfires originating on the Kaibab NF also produce emissions. The 

NAAQS pollutant of concern from wildland fire is fine particulate matter, both PM10 and PM2.5.

Studies indicate that 90 percent of smoke particles emitted from wildland fires are PM10, and 

about 90 percent of PM10 is PM2.5. Because of its small size, PM2.5 has an especially long 

residence time in the atmosphere and penetrates deeply into the lungs.

Ozone is also a NAAQS pollutant. Levels are increasing and trending up in northern Arizona. 

Smoke from prescribed fires and wildfires may contribute to ozone formation under certain 

atmospheric conditions, but prescriptive criteria that land managers can use to minimize ozone 

creation do not yet exist.

The same fine particulate matter that poses health risks is also largely responsible for visibility 

impairment. The State of Arizona has developed a State implementation plan (ADEQ 2003) with 

long-term strategies to make “reasonable progress” in improving visibility in Class I areas inside 

the state and in neighboring jurisdictions,” and focuses on anthropogenic sources of emissions. 

Smoke and visibility impairment from wildland fire that closely mimics what would occur 

naturally is generally acceptable.

Federal agencies in Arizona fund a Smoke Management Group that is housed in the Arizona 

Department of Environmental Quality offices. This group assembles and coordinates planned 

burning activities from all Federal agencies on a daily basis, and works closely with officials in 

ADEQ to approve or disapprove prescribed fire activities to help ensure compliance with both 

health standards and visibility goals. 

Much of the Kaibab NF is departed from its historic fire regime. By not burning periodically, 

accumulated fuels contribute to a greater amount of emissions when large uncharacteristic severe 

wildfires occur. Prescribed fires are implemented when ventilation conditions are favorable to 

reduce the concentration of emissions, and other emission-reduction techniques are used when 

feasible. They generally produce far fewer emissions than the uncharacteristic severe wildfires

they are designed to deter because they burn primarily surface fuels, and not the forest canopy.

On wildfires, burnout operations are used to protect values at risk by consuming fuels around 

them, to assist in confining the fire to the desired fire area, to modify fire intensity, and even to 

Land and Resource Management Plan for the Kaibab National Forest 55
Chapter 2. Forestwide Desired Conditions and Strategies

manage smoke production. On these wildfires, timing of burnout operations is often at the fire 

manager’s discretion, and they can also be performed when ventilation conditions are favorable.

Over time, as fire reentry occurs, the reduced fuel load results in lower emissions per acre.

Desired Conditions for Air Quality 

• Air quality meets or surpasses State and Federal ambient air quality standards.

• Management activities on the Kaibab NF do not adversely impact Class I airshed visibility 

as established in the Clean Air Act.

Guidelines for Air Quality

• Project design for prescribed fires and strategies for managing wildfires should 

incorporate as many emission reduction techniques as feasible, subject to economic, 

technical, safety criteria, and land management objectives.

• Decision documents, which define the objectives and document line officer approval of 

the strategies chosen for wildfires, should identify smoke sensitive receptors, and identify 

appropriate objectives and courses of action to minimize and mitigate impacts to those 

receptors.

Management Approach for Air Quality

Public tolerance for nuisance smoke, rather than law, regulation, or policy, effectively sets the 

social limit to the number of acres that can be treated with wildland fire. Community public 

relations and education, coupled with preburn notification, greatly improve public acceptance of 

fire management activities. In order to maintain public support for prescribed burns and the use of 

wildfires to accomplish resource benefits, it is important that land managers be responsive to the

public’s tolerance thresholds to balance ecological benefits with social and economic values. The 

public will tolerate several days of nuisance smoke in a row, and up to several weeks total a year, 

but even the most supportive have tolerance limits. Public acceptance of smoke varies greatly 

from year-to-year. Acceptance of smoke from prescribed fires and wildfires is high following 

seasons with high profile, high-severity events, and during extremely dry years when the threat of 

large, high-severity incidents is elevated. Conversely, acceptance wanes during wetter years when 

the threat of uncharacteristic fires is low.

Control measures developed for site specific projects can reduce these localized particulate matter 

emissions. Examples include reducing travel speeds on unpaved surfaces, ceasing work activities 

during periods of high winds, applying gravel or soil stabilizers on dust problem areas, covering 

loads, and covering ground surfaces with water during earth moving activities. 

See also “Wildland Fire Management”.

Caves, Karst, and Mines 

Caves, karst, and mines provide habitat for many biota including bats, which require specialized 

niches for roosting and overwintering. Bats are important to cave ecosystems, especially large 

roosts. Cave ecosystems rely almost entirely on the surface for nutrients. As a result, bats deposit 

considerable amounts of surface nutrients into caves via guano. Because of this, the presence of 

56 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

bats can support an entire ecosystem. Consequently, cave-roosting bats are often considered 

keystone species. Eighteen bat species are known to regularly use caves in the American 

Southwest, and Arizona is home to all of these species. Many caves also have important 

traditional cultural significance to area tribes. Due to these and other resource concerns, there are 

no caves on the Kaibab NF currently identified as appropriate for recreational activities. 

Desired Conditions for Caves, Karst, and Mines

• Caves maintain moisture and temperature levels consistent with reference conditions.

• Archaeological, geological, and biological features of caves and mines are not disturbed 

by visitors.

• Caves, karst features, and abandoned mines provide quality habitat for bat species. 

Disease is within natural levels. 

• Mine closures do not compromise habitat for species that require specialized niches for 

roosting and overwintering (e.g., bats).

Guidelines for Managing for Caves, Karst, and Mines

• Project design should include protections for subsurface geologic features to minimize 

disruptions to cave microbiology and other aspects of cave ecology.

• When entering caves or mines, decontamination procedures should be followed for 

preventing the spread of white-nose syndrome (WNS; Pseudogymnoascus destructans). 

• Caves containing endemic species should be managed for the protection of those species 

over other uses. 

• Before closing caves or mines, they should be inspected to determine if bats are using 

these areas. If roost sites are present, closure structures such as wildlife friendly bat gates 

that meet the most current recommendations should allow bats to continue to use the cave 

or mine.

Management Approach for Caves, Karst, and Mines

Currently, neither the cause nor the transmission of WNS is well understood; however, it is 

known that a cave or abandoned mine environment containing this fungus is infectious to 

hibernating bats. To ensure that management activities are using the best available information, 

the Kaibab NF has been collaborating with the USFWS, Bat Conservation International, AGFD, 

and others to address conservation management for bat species, including the development of a 

response plan for WNS. A complete inventory of caves and associated endemic species may be 

needed on the Kaibab NF to inform management.

Additionally, strategies include working with public affairs, recreation, invasive species, cave and 

mine staffs; State and other Federal agency partners; and involved publics such as local caving 

groups to internally and externally increase WNS awareness at local and regional levels. Cave 

management plans will be developed as needed to address cave and karst resource concerns. 

See also “Wildlife,” “Threatened, Endangered, and Sensitive Species,” and “Natural Waters”

Land and Resource Management Plan for the Kaibab National Forest 57
Chapter 2. Forestwide Desired Conditions and Strategies

Cliffs and Rocky Features

Cliffs and rocky features, which are common in the mountainous West, can be found across a 

wide elevation range that includes cool alpine landscapes to desert environments. Cliffs, rock 

outcrops, and talus slopes are unique habitats that increase topographic and biological diversity. 

On the Kaibab NF, these features provide important nesting habitat for California condors and 

peregrine falcons, and support numerous other wildlife and plant species including rare and 

narrow endemics. Recreational activities such as rock climbing, rock hounding, and mineral 

exploitation are also associated with these features. 

Desired Conditions for Cliffs and Rocky Features

• Cliff ledges provide cover and nesting habitat for wildlife such as the American peregrine 

falcon, California condor, snakes, bats, birds, and small mammals.

• Rocks and rocky areas promote seedling germination and maintain cover for vertebrate 

and invertebrate species. 

• Rock climbing and related recreational activities do not disrupt the life processes of rare or 

threatened species or diminish the function of specialized vegetation, such as mosses, 

lichens, and fleabanes. 

• Rockslides and talus slopes are natural, undisturbed features that provide habitat for 

wildlife such as lizards, snakes, and land snails.

Guidelines for Activities On or Near Cliffs and Rocky Features

• Activities involving heavy machinery or blasting should minimize impacts to habitat 

associated with rocky features and cliffs. 

• Near known active raptor nest sites, temporary closures and use restrictions should be 

implemented for rock climbing and other potentially disruptive activities.

• Where recreation activities have the potential to trample known populations of narrow and 

endemic plant species, signs should be posted educating the public to stay on designated 

trails and avoid impacts. 

• Talus slopes should be surveyed for endemic species prior to authorizing quarrying, rock 

hounding, or construction activities that may alter them. 

Management Approach for Cliffs and Rocky Features

In many cases, information on the rare and narrow endemics species that use cliffs and rocky 

features is lacking. Additional survey efforts and or targeted monitoring and research on life 

history and habitat needs may be needed to fill in those information gaps. Strategies include 

working with academia, state and private forestry, rocky mountain research station and other 

groups. The forest also works with public affairs, recreation, invasive species; State and other 

Federal agency partners to educate the public on the importance of these features, especially for 

threatened, endangered and sensitive wildlife (e.g. California condor and peregrine falcon). The 

forest consults with the Rare and Narrow Endemic Guidebook to help identify design criteria and 

mitigation measures during project design and implementation.

58 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Cultural Resources

The Kaibab NF is rich in historically and culturally significant resources. To date, approximately 

30 percent of the Kaibab NF has been surveyed for cultural resources and over 9,600 historic 

properties have been identified and documented. These historic properties are related to a long 

history of human occupation and use of the Kaibab NF dating back at least 12,000 years. Such 

sites include preceramic lithic scatters associated with Archaic hunter-gatherers, pithouse and 

masonry structures associated with early farmers, historic sites related to Native American and 

early Anglo-European use of the area, numerous petroglyph and pictograph sites, and traditional 

cultural properties. Forty-four historic properties on the Kaibab NF have been listed to the 

National Register of Historic Places for their historic significance and more than 2,400 additional 

sites have been determined to be eligible for inclusion to the National Register.

Desired Conditions for Cultural Resources

• Cultural resources, including known traditional cultural properties, are preserved, 

protected, or restored.

• Historic artifacts are preserved in situ or, when necessary, curated following current 

standards.

• All historic properties are evaluated for their eligibility to the National Register and 

properties that are appropriate are listed to the National Register of Historic Places.

• Cultural resource findings will be synthesized and shared with the scientific community 

and public through formal presentations, publications, and educational venues.

• Public understanding about the cultural resources and historic preservation issues 

contribute to their protection. 

• The Kaibab NF historic documents, including photographs, maps, journals, and Forest 

Service program management records, are available to the public for research and 

interpretation.

Objectives for Cultural Resource Management

• A “Passport in Time”11 project is hosted every year.

• At least 20 interpretive presentations are provided to the public each year. 

• Non-project related cultural resource survey (Section 110 survey) is conducted in areas 

with a high likelihood of historic properties on at least 200 acres per year.

11 Passport in Time (PIT) is a volunteer archaeology and historic preservation program of the 

USDA Forest Service. PIT volunteers work with professional Forest Service archaeologists and 

historians on national forests throughout the United States on activities such as archaeological 

survey and excavation, rock art restoration, surveys, archival research, historic structure 

restoration, oral history gathering, and analysis and curation of artifacts. For more information, 

visit: http://www.passportintime.com/. 

Land and Resource Management Plan for the Kaibab National Forest 59

 
Chapter 2. Forestwide Desired Conditions and Strategies

Standards for Cultural Resources Protection 

• The purposeful excavation of human remains for educational purposes, such as research or 

field schools, is not permitted.

Guidelines for Cultural Resources Protection

• For archaeological projects with the potential to address the culture history of area tribes, 

the Kaibab NF should ensure that such projects address topics of known importance to 

tribes.

Management Approach for Cultural Resources Protection

The Kaibab NF has been working and will continue to work to identify, evaluate, and protect 

cultural resources. Collaborative partnerships and volunteer efforts that will assist the Kaibab NF 

in historic preservation will be developed and maintained. The Kaibab NF uses a proactive 

approach in protecting cultural resources from adverse impacts and conducts outreach to educate 

the public on the history of the area and historic preservation issues. Additionally, the Kaibab NF 

seeks opportunities to do additional survey beyond the stated objective of 200 acres per year 

when funding and other resources are available. Partnerships with federally recognized tribes help 

to protect ancestral sites and manage cultural resources through meaningful collaboration. The 

Kaibab NF recognizes that there are important tribal sacred sites, ethnographic resources and 

traditional use areas that may not meet the definition of a historic property. The Kaibab NF

works to protect these resources using existing authorities in collaboration with federally 

recognized tribes. Memoranda of understanding with federally recognized tribes promote strong 

working relationships by addressing issues of mutual concern.

See also “Traditional and Cultural Uses,” “Bill Williams Mountain Management Area,” and 

“Red Butte Management Area” sections of this plan.

60 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Traditional Cultural Properties

A traditional cultural property (TCP) is a type of historic property under the National Historic 

Preservation Act defined as “eligible for inclusion in the National Register because of its 

association with cultural practices or beliefs of a living community that (a) are rooted in that 

community’s history, and (b) are important in maintaining the continuing cultural identity of the 

community.” In northern Arizona, TCPs are predominantly, but not necessarily, associated with 

American Indian tribes or communities.

Desired Conditions for Traditional Cultural Properties

• Traditional practitioners have access to TCPs for ceremonial use and privacy to conduct 

ceremonies. 

• TCPs are preserved, protected, or restored for their cultural importance and are generally 

free of impacts from other uses.

• The significant visual qualities of TCPs are preserved consistent with the TCP eligibility 

determination.

• Traditional use of TCPs by the associated cultural groups is accommodated.

• Confidential and/or sensitive information regarding TCPs is protected.

Guidelines for Traditional Cultural Properties

• Development of new facilities and commercial and recreational activities should be 

minimized in TCPs. 

• Consultation with federally recognized tribes should be conducted for all proposed special 

use permits within TCPs.

Management Approach for Traditional Cultural Properties

In order to achieve and maintain the desired conditions for TCPs, the Kaibab NF continues to 

identify, evaluate, and protect TCPs and work with associated communities to collaboratively 

manage TCPs by developing programmatic agreements, management plans, memoranda of 

understanding, or other management tools. The Kaibab NF accommodates and facilitates 

traditional use of TCPs and other culturally important places (such as trails and springs) that are 

essential to maintaining the continuing cultural identity of associated communities. The Kaibab 

NF takes an active role in educating the public on the importance of TCPs and issues related to 

their management while protecting confidential and/or sensitive information regarding TCPs.

See also “Traditional and Cultural Uses,” “Bill Williams Mountain Management Area,” and 

“Red Butte Management Area” sections of this plan.

Land and Resource Management Plan for the Kaibab National Forest 61
Chapter 2. Forestwide Desired Conditions and Strategies

Forest Uses, Goods, and Services 

National Forest System lands were reserved with the intent of providing multiple uses, goods, and 

services to satisfy public needs over the long term. The following sections describe the desired 

conditions and strategies for meeting this intent.

Recreation and Scenery

The natural, cultural, and scenic environments of the Kaibab NF offer settings for a wide range of 

high-quality recreation opportunities. The Kaibab NF provides quiet mountain, forested, and high 

desert places to escape from urban environments and to enjoy cooler temperatures. Cultural 

features provide historical context to the natural scenery, adding to the richness of the experience 

and sense of place. Scenic areas and associated outdoor recreation provide places to hike, bike, 

fish, hunt, view wildlife, drive for pleasure, and enjoy the peace, quiet, and spiritual values of 

nature. Forest landscapes, resources, and programs offer opportunities for education and 

engagement of children and adults alike. This facilitates an understanding of and participation in 

resource conservation and promotes knowledge and appreciation of the natural world and its 

relationship to human communities.

62 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Desired Conditions for Recreation and Scenery

• A wide spectrum of high-quality recreation settings exists. Users have access to a variety 

of developed and dispersed opportunities.

• The Kaibab NF provides sustainable recreation consistent with public demand. Use levels 

are compatible with other resource values.

• Conservation education actively engages children and adults resulting in increased forest 

stewardship, ecological awareness, partnerships, and volunteerism. Information and 

educational programs provide opportunities to connect youth, low-income, and minority 

populations with nature.

• Visitors have access to information that enriches their recreation experiences and 

contributes to an understanding of their role in public land stewardship. “Leave No 

Trace,12” “Tread Lightly,13” fire prevention, wildlife awareness (e.g. lead reduction, Be 

Bear Aware14, Animal Inn15, etc.), and archaeological resource protection principles are 

promoted and practiced by the visiting public.

• Opportunities for off-highway vehicle (OHV) riding and driving for pleasure are available 

on the designated system of NFS roads and motorized trails. 

• Recreation management activities complement and support local economies and tourism.

• User conflicts are infrequent.

• The Great Western Trail16 route can be driven boundary to boundary through each of the 

districts where it occurs. Signage helps to identify and highlight the route.

• The historic character of the Beale Wagon Road and Overland Road trails is preserved.

12 Leave No Trace” is a program that strives to educate all those who enjoy the outdoors about the nature of their 

recreational impacts as well as techniques to prevent and minimize such impacts.

13 “Tread Lightly” is a program designed to “promote responsible outdoor recreation through ethics education and 

stewardship” (http://www.treadlightly.org). The program is framed under five principles: (1) travel responsibly; (2) 

respect the rights of others; (3) educate yourself; (4) avoid sensitive areas; and (5) do your part by modeling 

appropriate behavior, properly disposing of waste, etc.

14 Be Bear Aware” is a program that to seeks to reduce human/wildlife conflicts and keep bears wild. It emphasizes 

education and safety techniques for avoiding encounters with bears.

15 Animal Inn is a program that seeks to help people realize the critical value of dead, dying, and hollow trees for 

wildlife and fish and encourage them to save certain types of dead, dying, and hollow trees.

16 The Great Western Trail is a long-distance, multiple use route that traverses over 4,000 miles from Mexico to 

Canada. On the Kaibab, all sections occur on roads that are open for morotorized travel.

Land and Resource Management Plan for the Kaibab National Forest 63

 
Chapter 2. Forestwide Desired Conditions and Strategies

The Kaibab NF provides both front country and back-country opportunities. The front country is 

composed of outdoor areas that are easily accessible by vehicle and heavily visited by day users. 

Front country locations include developed sites, tend to be more crowded, and attract a wider 

range of visitors than back-country areas. Recreation opportunity spectrum (ROS) classes of 

urban, rural, roaded natural, and roaded modified characterize front-country areas.

Back-country recreational areas are more remote and are not as easily accessed as front-country 

areas. They are used primarily by overnight visitors. ROS classes of semiprimitive motorized, 

semiprimitive nonmotorized, primitive, roaded natural, and roaded modified designations 

characterize back-country areas. See chapter 4 for more information on recreation suitability and 

for ROS maps of the Kaibab NF.

Desired Conditions for Recreation – Front Country 

• Front-country areas provide initial contact points for forest users and developed recreation 

settings where people can engage in a variety of recreation activities including scenic 

driving, hiking, camping, picnicking, fishing, and boating. Motorized and nonmotorized 

recreation opportunities are available. 

• Recreation settings retain high to moderate scenic quality. Some human influenced 

elements in the background are present.

• Service centers such as district offices, visitor information centers, developed 

campgrounds, and other staffed recreation sites provide information and services in 

communities and along primary forest access corridors and scenic byways. 

• Front-country areas are safe, orderly, and capable of supporting moderate to high visitor 

use. 

• Formal interpretive programs and opportunities for self-guided nature study are provided. 

• Constructed facilities in front-country settings provide for user comfort and resource 

protection. They blend in with the surrounding landscape and often incorporate naturally 

occurring or naturally appearing materials. The number and size of constructed facilities is 

appropriate for the use and activities that occur at each site. 

• Developed campgrounds meet the needs of vehicle-based camping. The overall capacity 

of campgrounds meets demand at high-use seasons including large groups. Artificial and 

modified natural waters provide opportunities for fishing, picnicking, natural quiet, 

wildlife viewing, and, in some cases, for camping and boating. 

Desired Conditions for Recreation – Backcountry

• Back-country areas are mostly undeveloped places where people engage in a variety of 

more primitive recreation activities. Visitors rely on their outdoor skills and provide their 

own equipment as they engage in recreation activities.

• Main access corridors to NFS lands and contact points such as developed trailheads and 

observation points have information available and provide a transition and orientation 

place for forest users as they enter back-country areas. Visitor use in these areas is 

moderate and disperses from these points.

64 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

• Facilities are few in number, use the minimum area needed, and have simple construction 

designs that blend in with the surrounding area. They are made of native materials or other 

well-matched materials. Constructed facilities provide for natural resource protection.

• Informal pullouts and minimal signing provide access to areas such as forest trails, scenic 

vistas, or wildlife viewing locations. 

• Users have low to occasional contact with other visitors and Forest Service personnel.

• Visitors can find information on recreation opportunities in the area. Informal interpretive 

and educational information is available at secondary visitor contact points and focus on 

appropriate use of the Kaibab NF, incorporating natural and cultural resource conservation 

messages. 

• Back-country recreation settings retain high to moderate scenic quality.

• Back-country areas provide opportunities for natural quiet and spiritual values. 

Objectives for Activities Affecting Recreation and Scenery

• Issue closure orders to facilitate implementation and enforcement of the standards for 

recreation activities within one year of plan approval.

Standards for Recreation Activities17.

• The maximum allowable occupancy of NFS lands within the Kaibab NF is 14 out of any 

30 consecutive days, except as allowed by permit.

• Camping and campfires are not allowed at developed trailheads and day use sites.

• Areas within 1⁄2 mile of cabin rentals, developed campgrounds on the North Kaibab 

Ranger District, and the East Rim Overlook are closed to dispersed camping and 

campfires.

• Areas within one mile of developed campgrounds and cabin rentals on the Tusayan and 

Williams Districts are closed to dispersed camping and campfires.

• Tusayan RD prohibits camping on all NF lands within 1⁄4 mile of the centerline of Hwy 

64. 

• Sledding devices used at the Oak Hill Snowplay Area must be constructed of soft 

materials (i.e. no metal, wood, or hard plastic). 

Guidelines for Activities Affecting Recreation and Scenery

• Any new motorized trailheads should be located in front-country areas, incorporate or 

convert existing roads, protect open space, and protect natural and cultural resources.

• Group uses should be concentrated in front-country areas.

17 Implementation and enforcement of these standards require closure orders.

Land and Resource Management Plan for the Kaibab National Forest 65

 
Chapter 2. Forestwide Desired Conditions and Strategies

• Resource impacts should be reduced in front and back-country areas by directing camping 

to existing dispersed and designated campsites. New campsites are designated only when 

necessary to further reduce resource damage.

• Pack-it-in, pack-it-out practices should be used at dispersed sites.

• The “Kaibab NF Recreation Opportunity Spectrum and Scenery Management Handbook” 

(USDA 2004)18 and “Built Environment Image Guide” should be used for recreation 

management and project design.

• In areas with high scenic integrity objectives, only minimal alterations from landscape 

character goals should be allowed. 

• In areas with moderate scenic integrity objectives, only slight alterations should be 

allowed, and they remain visually subordinate to the landscape character. 

See also “Special Uses,” “Transportation and Forest Access,” “Recreation Suitability,”

“Developed Recreation Sites,” and “Bill Williams Mountain Management Area”.

Management Approach for Recreation and Scenery

Recreation management decisions on the Kaibab NF are guided by three primary approaches. 

These approaches are aimed at providing managers a more complete framework for considering

management actions. Their purpose is to minimize new development in remote settings and to 

protect and manage both low and high use areas and facilities. These approaches guide actions in 

response to changing or increasing use. 

Provide a range of recreation opportunities. Manage in a way that maximizes the 

opportunities available to all types of recreationists to the degree allowed by this plan and 

other agency regulations. 

Concentrate use at specific sites or locations rather than dispersing use within the area 

or to other areas. In keeping with the principles of recreation ecology, this approach would 

assure that impacts associated with recreational use are constrained to particular areas.

Minimize the extent to which forest management actions disperse use from high to low 

use areas. This would help accomplish the goal of constraining the number and size of areas 

impacted by recreational use where possible.

The ultimate goal of these approaches is to maintain the visitors’ perceived freedom to recreate 

how and where they choose, while retaining healthy, sustainable public lands. When impact and 

user capacity questions arise, indicators and standards to determine how and where to allocate 

visitor use should be employed. These approaches would not preclude the Kaibab NF from 

developing new sites or adapting old sites to accommodate new uses, provided appropriate 

analyses are conducted to make those decisions. 

18 The “Kaibab NF Recreation Opportunity Spectrum/Scenery Management System (ROS/SMS) Guidebook” (USDA 

2004) provides detailed information about applying the Recreation Opportunity Spectrum in the management of 

outdoor recreation settings and the Scenery Management System and its related scenic integrity levels on the Kaibab 

NF.

66 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 2. Forestwide Desired Conditions and Strategies

As the population in northern Arizona and the popularity of mountain biking and OHV use 

continues to grow, the pressure for more trails will likely increase. Any new trail development 

needs to strike a balance between opportunities for different types of recreation and other 

resource concerns. Due to the nature of motorized, equestrian, and bicycle trail use, regular 

maintenance is needed. Partners, volunteers, and potentially a fee system could help to provide 

increased capacity and revenue for maintenance materials, operation, education, and enforcement 

of regulations.

Many forest users have expressed concerns about recreation use impacts and a desire for 

opportunities to engage in shared stewardship of the Kaibab NF. With limited Forest Service 

budgets and increased recreation pressure, volunteers and partners will likely play an increasingly 

important role in helping to construct and maintain trails and manage dispersed camping, 

especially at popular areas such as viewpoints.

The Kaibab NF places emphasis in its specific niches. As such, recreation opportunities on the 

North Kaibab Ranger District emphasize dispersed recreation, nonmotorized trail and wilderness 

opportunities, while on the Williams and Tusayan districts, the recreation emphasis is on day-use 

areas, developed recreation opportunities, and facilities such as campgrounds.

Traditional and Cultural Uses 

The Kaibab NF recognizes that area tribes have cultural ties and knowledge about lands now 

managed by the Forest Service, and that they have important roles in stewardship of the land.

Tribes with aboriginal territories and traditional ties to the land now administered by the Kaibab 

NF include the Havasupai Tribe, Hopi Tribe, Hualapai Tribe, Kaibab Band of Paiute Indians, 

Navajo Nation, Yavapai-Prescott Indian Tribe, and Pueblo of Zuni. The Kaibab NF shares 

boundaries with the Havasupai and Navajo Reservations and is in close proximity to numerous 

tribal communities. Tribal members visit the Kaibab NF to gather medicinal plants and for other 

traditional and cultural purposes. The Kaibab NF recognizes the importance to area tribes of 

maintaining these traditions and accommodates traditional use on NFS lands. 

Desired Conditions for Traditional and Cultural Uses 

• Traditionally used resources are not depleted and are available for future generations. 

• Tribal members have access to sacred sites for individual and group prayer and traditional 

ceremonies and rituals. There are opportunities for solitude and privacy for ceremonial 

activities.

• Traditional uses such as the collection of medicinal plants and wild plant foods are valued 

as important uses.

• The Kaibab NF provides a setting for educating tribal youth in culture, history, and land 

stewardship, and for exchanging information between tribal elders and youth.

Land and Resource Management Plan for the Kaibab National Forest 67
Chapter 2. Forestwide Desired Conditions and Strategies

Guidelines for Traditional and Cultural Uses

• Activities and uses should be administered in a manner that is sensitive to traditional 

American Indian beliefs and cultural practices. 

• The temporary closure authority should be used to accommodate traditional use.

• Tribal traditional use of medicinal plants and other botanical resources should take priority 

over applications for commercial harvesting. 

• Important traditional use resources should be monitored to ensure healthy sustainable 

plant populations are available for traditional uses.

Management Approach for Traditional and Cultural Uses

Establishing and maintaining strong, mutually beneficial working relationships with tribes is 

critical to future success in addressing tribal issues related to land management. Tribal 

relationships and communication are strengthened through volunteer opportunities and 

employment of tribal members. Because all lands managed by the Kaibab NF were once tribal 

lands, the Kaibab NF uses a shared stewardship approach to land management based on 

meaningful consultations with area tribes. The Kaibab NF works to accommodate access and 

traditional use of resources and places of importance. The Kaibab NF and area tribes have a 

mutual interest in maintaining healthy, sustainable populations of plants and other resources 

important for traditional and cultural purposes.

The Kaibab NF continues to work with tribes to identify, collaboratively manage, and monitor 

these resources, as well as build and maintain more detailed information about culturally 

important plants. This would aid in ensuring that the physical integrity of resources and places of 

importance are balanced with the traditional use needs of tribes. The Kaibab NF works with tribes 

to protect the physical integrity of places of importance and balance the traditional use needs of 

tribes with the long-term protection of forest resources. The Kaibab and Coconino NF’s Official 

Policy on “Forest Products for Traditional and Cultural Purposes” will help to provide consistent 

and clear direction across forest boundaries regarding traditional use. 

See also “Traditional Cultural Properties” “Bill Williams Mountain Management Area,” and 

“Red Butte Management Area” sections of this plan.

Livestock Grazing

Western lifestyles associated with ranching and livestock grazing 

have long been a part of the landscape. These historic and 

contemporary uses have become symbols of independence and 

contribute to the sense of place. Many people living in local 

communities participate in or have connections to ranching and 

identify with the associated values.

During World War II, Congress demanded as much protein production as possible from 

rangelands, and many areas were grazed unsustainably. The Kaibab NF made major reductions in 

authorized livestock from the 1950s through the 1970s in an effort to balance forage production 

with capacity. Further adjustments to grazing management have been made through site-specific 

68 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

NEPA analysis and decisions on all allotments. Currently, the Kaibab NF manages the range 

resource to balance livestock numbers with forage capacity.

Desired Conditions for Livestock Grazing

• There are opportunities to engage in ranching activities and graze livestock on NFS lands.

These activities contribute to the stability and social, economic, and cultural aspects of 

rural communities.

• Grasses and forbs provide adequate forage for permitted livestock.

• Livestock use is consistent with other desired conditions.

• Allotment fencing allows for passage of animals susceptible to movement restrictions such 

as pronghorn.

Guidelines for Livestock Grazing

• Livestock management should favor the development of native cool season grasses and 

forbs.

• As grazing permits are waived back to the Kaibab NF, they should be evaluated for 

conversion to forage reserves to improve flexibility for restoring fire-adapted ecosystems 

and in response to other range and resource management needs.

• New construction and reconstruction of fences should have a barbless bottom wire that is 

at least 18 inches high.

• Annual operating instructions for livestock grazing permittees should ensure livestock 

numbers are balanced with capacity and address any relevant resource concerns (e.g.,

forage production, weeds, fawning habitat, soils, etc.). 

• Grazing of domestic sheep and goats should not be authorized on the Tusayan and North 

Kaibab Ranger Districts due to the proximity of bighorn sheep in Grand Canyon and 

Kanab Creek to prevent the spread of disease between domestic and wild populations. 

• Post-fire grazing should not be authorized until Forest Service range staff confirm range 

readiness. 

• Livestock use in aspen areas should be authorized at levels that are consistent with the 

desired conditions for aspen regeneration and establishment. 

• Livestock use in and around wetlands should be evaluated on an allotment specific basis. 

Mitigation measures such as deferment and fencing (full or partial) should be implemented

as needed to minimize potential livestock effects. 

• The concentrated use of montane meadows for livestock grazing should be minimized

when soils are saturated to reduce grassland impacts. When no other options are available,

use should be rotated annually. 

• The term permit for the Rain Tank grazing allotment should be first offered to the 

Havasupai Tribe if one becomes available.

Land and Resource Management Plan for the Kaibab National Forest 69
Chapter 2. Forestwide Desired Conditions and Strategies

Management Approach for Livestock Grazing

Adaptive management is being used by the Kaibab NF’s recent rangeland management projects. 

Monitoring is used to adjust management to maintain and improve the rangeland resources. In 

general, the Kaibab NF continues to keep grazing at conservative use levels (30 to 40 percent). 

This grazing intensity, based on percent use of forage by weight, should provide for plant 

integrity, density, diversity, and regeneration over time.

To make adjustments for changing conditions, the annual operating instructions are reviewed. 

Numbers may go up and down annually, but do not exceed the number set in the grazing permit.

The annual operating instructions are the means by which adjustments of livestock numbers, 

change of season of use, and pasture rest periods are made in response to monitoring information 

such as frequency plots, canopy cover, pace frequency transects, and allotment inspections.

Grazing intensity (measured before the end of the growing season) in combination with other 

factors such as weather patterns, likelihood of plant regrowth, and previous years’ utilization 

levels, is used in determinations. Projects involving new or modified fences, corrals, salt stations, 

and artificial water sources promote healthy wildlife interaction and movement. Deferred-rotation 

grazing with a special emphasis of deferment during the spring may be necessary to manage 

toward desired conditions. 

See also the desired conditions for the relevant vegetation types, “Natural Waters,” 

“Constructed Waters”, and “Wetland/Cienega.”

Forestry and Forest Products

NFS lands were reserved with the intent of providing goods (including production of a 

sustainable supply of forest products) and services to satisfy public needs over the long term. The 

Forest Service focus has broadened over time, and the desired conditions for this plan are focused 

on outcomes rather than outputs. As a result, no specific timber volume outputs are desired for the 

Kaibab NF. Rather, timber production activities are tools that economically contribute to restoring 

and maintaining ecosystem diversity and supporting a viable wood products processing industry

over the long term. Therefore, some level of regulated forest production is appropriate for 

forested lands. 

Loss of the region’s wood harvesting and utilization infrastructure has been a critical impediment 

to implementing large-scale mechanical thinning treatments necessary for prompt and effective 

restoration of fire-adapted forests. Although there are initial signs of emerging small-scale 

operations, development of a competitive market for the wood fiber removed by restoration-based 

treatment is needed. Without establishment of a viable industry, it is unlikely that forest 

restoration will occur on a scale that will produce the needed widespread improvements in 

ecological health or reduction in the risk of high severity wildfire.

70 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Desired Conditions for Forestry and Forest Products 

• Wood products (e.g., wood pellets for home and industrial heating, oriented strand board, 

animal bedding, wood moulding, pallets, structural lumber, firewood, posts, poles, 

biomass for electricity) and other products (e.g., Christmas trees, boughs, wildflowers, 

mushrooms, grasses, seeds, nuts, cones, etc.) are available to businesses and individuals in 

a manner that is consistent with other desired conditions on a sustainable basis within the 

capacity of the land. 

• A sustainable supply of wood is available to support a wood harvesting and utilization

industry of a size and diversity that can effectively and efficiently restore and maintain the 

desired conditions for ponderosa pine and frequent fire mixed conifer communities.

• Wood products are available to local tribes for traditional uses.

Standards for Forestry and Forest Products

• Regulated timber harvest only occurs on suitable lands.

Guidelines for Forestry and Forest Products

• Timber harvest activities should be carried out in a manner consistent with maintaining or 

making progress toward the desired conditions in this plan. 

• Harvesting systems should be selected primarily for their ability to meet desired 

conditions and not on their ability to provide the greatest dollar return, although cost 

efficiency and practicality in terms of transportation and harvest requirements should also 

be considered.

• On suitable timber lands, even-aged stands should have reached or surpassed 95% of the 

culmination of mean annual increment prior to having a regeneration harvest, unless it is 

needed to reduce fire hazard within the wildland-urban interface, or would contribute 

toward achieving the desired uneven aged vegetation conditions over the long term.

• On lands classified as not suited for timber production, timber harvesting should only be 

used for making progress toward desired conditions or for salvage, sanitation, public 

health, or safety.

Guidelines for Personal Firewood Collection 

The following should be permitted for personal use firewood gathering:

• Dead and downed ponderosa pine, Douglas-fir, white fir, spruce, juniper, pinyon pine, 

Gambel oak, and aspen.

• Standing dead ponderosa pine, Douglas-fir, white fir, or spruce less than 12 inches d.b.h. 

or less than 15 feet in total height 

• Standing dead juniper without green foliage Pinyon pine less than 12 inches diameter at 

root collar (d.r.c.) or less than 12 feet in height Gambel oak less than 8 inches d.r.c.

Land and Resource Management Plan for the Kaibab National Forest 71
Chapter 2. Forestwide Desired Conditions and Strategies

• Standing dead aspen less than 12 inches d.b.h. Live trees specifically designated by the 

Forest Service.

Management Approach for Forestry and Forest Products

On lands classified as suitable for timber production, mechanical tree removal and prescribed fire 

are needed to effectively make progress toward the desired conditions and are intended to retain 

characteristics of desired conditions for at least 20 years. In terms of prescriptions, this means that 

the post-treatment conditions may need to be on the more open end of the desired range to 

accommodate the growth that is anticipated in the interval between treatments. Within a given 

project boundary, some acres may be left untreated if they are already approaching desired 

conditions, or to provide for specific habitat needs as long as it would not affect desirable fire 

behavior at the mid-scale.

The objectives in this plan would mechanically thin 11,000 to 19,000 acres in ponderosa pine and 

1,200 to 2,400 acres annually in the frequent fire mixed conifer type. This restoration work in 

ponderosa pine and frequent fire mixed conifer PNVTs is anticipated to be implemented using a 

combination of prescriptions to meet desired conditions including free thinning all sizes to a 

target basal area, group selection cuts with matrix thinning to a target basal area, individual tree 

selection, thin from below, and even-aged regeneration methods. Implementation of the proposed 

mechanical thinning treatments across the Kaibab NF would result in a significant supply of 

wood that could support a wood harvesting and utilization industry and help pay for treatments. 

The amount of wood that is estimated to be available for sale from the suitable land within the 

plan area for the first decade of plan implementation is called the allowable sale quantity (ASQ). 

The ASQ is better described as the “average allowable sale quantity” because it may be exceeded 

in a given year as long as the 10-year average is not exceeded. For this plan, the ASQ is 107,815 

CCF (hundred cubic feet). 

Once the desired conditions are met, the amount of wood harvest that can be sustained from lands 

being managed for timber production under a specified management intensity consistent with 

multiple-use objectives is the long-term sustained yield (LTSY). The LTSY calculated for the 

proposed plan is 74,737 CCF.

Wildland Fire Management

The National Interagency Fire Center (NIFC) “Guidance for the 

Implementation of Federal Wildland Fire Management Policy”

provides much of the current direction for managing wildland fire 

on Federal lands. This document provides definition of wildland fire 

used in this plan. Wildland fire describes any non-structure fire that 

occurs in the wildland. Wildland fires are categorized into two 

distinct types:

• Wildfires – Unplanned ignitions including human and 

naturally caused fires. These include prescribed fires that 

have been declared escaped wildfires.

• Prescribed fire – Planned ignitions. 

72 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Most of the Kaibab NF’s vegetation is adapted to recurring wildfires started by lightning from 

spring and summer thunderstorms. Frequent, low-intensity fire plays a vital role in maintaining 

ecosystem health of much of the pinyon-juniper, ponderosa pine, and frequent fire mixed conifer 

vegetation types. These three vegetation types cover over 80 percent of the Kaibab NF.

Grasslands are also adapted to frequent fire. Other vegetation types, such as pinyon-junipersagebrush, mesic mixed conifer, and spruce-fir, are also fire dependent, but have a historic fire 

regime of less frequent, mixed-severity fires. 

The condition and structure of most of northern Arizona’s forests, woodlands, shrublands, and 

grasslands have changed dramatically from reference conditions. Today, the Kaibab NF contains 

uncharacteristically dense forests with many more young trees than were present historically. 

Ponderosa pine, spruce, fir, juniper, and pinyon seedlings have invaded forest openings, 

grasslands, and savannahs. The forest and woodlands are deficient in grasses, forbs, and shrubs 

due to tree competition, and are at high risk for insect and disease outbreaks. With the denser 

more continuous canopy cover and accumulated live and dead woody material, the probability 

and occurrence of large, uncharacteristic, stand-replacing fires continues to increase. These fires 

burn with more intensity, have higher tree and seed mortality, degrade watersheds, change soil 

chemistry, structure, nutrient availability, kill seeds,, and threaten homes and communities.

Entry with fire during appropriate weather and fuel moisture conditions is the most cost-effective 

way to reduce the likelihood of a high-severity fire. A single fire entry, with low to moderate fire 

behavior, reduces high-severity fire potential for 5 to 10 years in ponderosa pine and frequent fire

mixed conifer and other vegetation communities in Fire Regime 1. With repeated fire entry within 

the historic fire frequency interval, the risk of a high-severity fire could be kept to a minimum 

indefinitely, except for a few days per year when fire danger indices are at their peak. To achieve 

a forest that is resilient to fire disturbance even during dry and windy conditions, forest structure 

needs to be more in line with desired conditions. In addition to treatment with fire, activities such 

as thinning and tree harvesting are needed to reduce tree density and canopy cover and promote 

the natural fire regime. Strategic placement and design more efficiently protects values at risk, 

given the limited resources and capacity to implement activities across the landscape. 

Desired Conditions for Wildland Fire Management

• Wildland fire maintains and enhances resources and, as nearly as possible, is allowed to 

function in its natural ecological role.

• Regular fire entry protects social, economic, and ecological values at risk from highseverity disturbance effects.

• Wildland fires burn within the range of intensity and frequency of the historic fire regime 

of the vegetation community. Uncharacteristic high-severity fires rarely occur, and do not 

burn at the landscape scale.

• Wildland fire is understood, both internally and by the public, as a necessary natural 

disturbance process integral to the sustainability of the Kaibab NF’s fire adapted 

vegetation communities.

• Information and education programs result in children and adults who recognize their 

responsibility for preventing human-caused wildfires.

• Wildfires are detected early.

Land and Resource Management Plan for the Kaibab National Forest 73
Chapter 2. Forestwide Desired Conditions and Strategies

Standards for Wildland Fire Management

• Initial action on human-caused wildfires will be to suppress the fire at the lowest cost with 

the fewest negative consequences with respect to firefighter and public safety. 

• Managers will use a decision support process19 to guide and document wildfire 

management decisions.

Guidelines for Wildland Fire Management

• Decision documents, which define the objectives and document line officer approval of 

the strategies chosen for wildfires that progress past initial attack, should include 

interdisciplinary input to assess site-specific values at risk and develop incident objectives

and courses of action to enhance or protect those values. At a minimum, the 

interdisciplinary team should:

◦ Identify smoke sensitive receptors, and identify appropriate objectives and courses of 

action to minimize and mitigate impacts to those receptors.

◦ Evaluate the risk of cheatgrass invasion. When there is a moderate to high risk of 

cheatgrass invasion, mitigation measures should be developed. If adequate treatments 

are not available, or if they are cost-prohibitive, objectives to minimize the burned area 

should be developed.

◦ Develop objectives and courses of action to minimize fire-created openings to those 

within the reference range of variability for the vegetation community.

◦ Develop objectives and courses of action to address the desired conditions for 

wildlife habitat and key habitat features such as snags, logs, large tree-form oaks, and 

oak thickets.

• If current or anticipated fire behavior and fire effects exceed the desired fire behavior and 

effects, protection objectives should be developed for wildfires, or a more conservative 

prescription window should be produced for prescribed burns. Strategies and tactics to 

mitigate those effects should be implemented on active wildland fires. 

• Actively growing wildfires in the Desert Community vegetation type in Kanab Creek 

Wilderness should be suppressed, as this vegetation type is not known to be fire-adapted.

• Minimum Impact Suppression Tactics 20 should be used whenever they will successfully 

meet incident objectives, especially in the foreground of high scenic integrity areas.

Management Approach for Wildland Fire Management

Objectives for wildland fires may be developed based on fuel conditions, current and expected 

weather, current and expected fire behavior, topography, resource availability, and values at risk. 

19 The decision support system currently being used is the Wildland Fire Decision Support System (WFDSS). 

20 Actionsto be considered that can minimize suprression impacts are listed in the “Interagency Response Pocket 

Guide” PMS-461, NFES1077, January 2010,but implementation may use more recent and/or local guidance.

74 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 2. Forestwide Desired Conditions and Strategies

Social understanding and tolerance may also affect objectives, as well as adjoining governmental 

jurisdictions having similar or differing missions and directives. 

Wildfires may be concurrently managed for one or more objectives. Objectives can change as the 

fire spreads across the landscape; parts of a fire may be managed to meet protection objectives, 

while other parts are managed to maintain or enhance resources. Site specific analysis is 

conducted for prescribed fires and for any wildfire that extends beyond initial attack. For 

prescribed burns, the decision document is the signed NEPA decision. For wildfires, a Wildland 

Fire Decision Support System (WFDSS) analysis is performed, and signed by the appropriate line 

officer. 

In areas not highly departed from desired conditions, wildland fires may be managed to burn with 

the intensity and frequency of the reference fire regime when fire weather conditions are 

appropriate and resources are available to successfully meet objectives. 

In areas moderately to highly departed from desired conditions, somewhat higher fire intensities 

and the associated fire effects may be acceptable or even desirable at the fine scale to move fire 

behavior toward desired conditions. Multiple small areas of high mortality are preferred over a 

single large, high-severity event. 

Fire is one tool in the process of restoring the Kaibab NF’s fire-adapted ecosystems; in areas 

departed from desired conditions the use of fire is most effective when combined with mechanical 

treatments that further restore forest structure. Mechanical treatments are costly, so the capacity to 

implement such treatments across the landscape is limited. Strategic placement and design of 

mechanical treatments increases their effectiveness in protecting values at risk. 

In some areas, fire may be the only viable tool. Examples of such areas are steep rugged terrain 

where the high cost and hazards preclude mechanical treatment, or in remote areas of the Kaibab 

NF where the distance to high values does not justify the expenditure of limited funds and work 

capacity. Fire can be successfully used in these areas to treat NFS lands at the landscape scale and 

at a minimal cost. Objectives allowing for higher fire intensities and higher levels of mortality 

may be needed in these areas to achieve the structural change that will not occur through other 

means, and to move vegetation toward desired conditions. 

Current and expected fire behavior provides the framework for developing objectives and 

strategies for wildfires. High confidence that fire behavior will be of lower intensity is supportive 

of the development of objectives and strategies to reduce fuel loading, and thereby reduce future 

risk of loss to a high severity incident. Current or expected high intensity fire behavior, or even 

uncertainty in the weather and future fire behavior, generally supports the development of 

protection-oriented objectives and suppression strategies. In the vicinity of high ecological 

values (e. g. North Canyon Creek, Arizona Bugbane Conservation Area, Kaibab Plains 

Pediocactus Conservation Area) or high social or economic values (e.g. WUI, TCP, 

Communication Sites), uncertainty in the forecast promotes conservative decision making with 

more protection oriented objectives and strategies. 

Management of wildland fires is coordinated across jurisdictional boundaries whenever there is 

potential for managing a wildfire or a prescribed fire on more than one jurisdiction (e.g., Grand 

Canyon National Park, Coconino NF). This is done with the understanding that fire-adapted 

ecosystems span jurisdictional boundaries. 

Land and Resource Management Plan for the Kaibab National Forest 75
Chapter 2. Forestwide Desired Conditions and Strategies

Fire prevention is also an integral part of the fire management program. The goal of the fire 

prevention program is to educate the public to reduce the number of potentially harmful human 

caused fires; project managers works with the prevention program to develop practices and 

protocols to reduce ignitions from management and recreational use.

See also Forestwide direction for each vegetation community type, “Livestock Grazing,” “Air 

Quality,” “Wildlife,” “Wilderness”, “Arizona Bugbane Botanical Area,” “Pediocactus 

Conservation Area” and the “Wildland-urban Interface Areas.”

Transportation and Forest Access

The Kaibab NF transportation system road network consists of thousands of miles of arterial, 

collector, local, and closed roads ranging from maintenance level 1 (closed to all motorized uses) 

to maintenance level 4 (smooth surface that provides a moderate degree of user comfort and 

convenience at moderate travel speeds). The road system provides access to areas on the Kaibab 

NF including private land, recreational opportunities, research sites, facilities, and to support 

forest and resource management.

Desired Conditions for Transportation and Forest Access

• Forest roads, bridges, and trails provide safe, legal, and reasonable access for recreation 

opportunities and resource management. 

• Resource impacts from roads and trails are balanced with the benefits of having the road 

or trail available for use.

• High use, smooth surfaced roads provide safe access for low-clearance vehicles. 

• Low use roads provide access for high-clearance vehicles.

• All designated routes open to wheeled motorized vehicles are shown on a motor vehicle 

use map (MVUM) that is readily available to the public. 

• An adequate sign system exists to provide for traveler safety, location information, and 

compliance.

• The Kaibab NFt has the road and trail rights-of-way needed to administer the Forest and 

provide public access. 

• Roads and culverts do not contribute to headcuts or downcuts in ephemeral drainages. 

• Roads allow for safe and healthy wildlife movement in areas of human development.

• Vehicular collisions with animals are rare.

• The inventoried roadless areas are free from activities that would alter their roadless 

character.

Objectives for the Transportation System

• Obliterate or naturalize21 20 miles of nonsystem roads (unauthorized, decommissioned, 

etc.) within 10 years of plan approval. 

21 “Naturalizing” is a suite of techniques for restoring roads to a natural condition which may be either active or 

passive ( ripping, revegetating,etc.) 

76 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 2. Forestwide Desired Conditions and Strategies

• Grade surfaces and clean culverts and ditches on 100 miles of open National Forest 

System roads each year.

Standards for Transportation

• Motor vehicle use off the designated system of roads, trails, and areas is prohibited except 

as identified on the MVUMs and as authorized by law, permits, and orders in connection 

with resource management and public safety. 

Guidelines for Transportation

• Motorized uses in semiprimitive nonmotorized areas should be restricted, except for 

necessary minimal administrative activities, permitted activities, and emergency access.. 

• Construction of permanent roads or temporary roads in semiprimitive nonmotorized areas 

should be avoided unless required by a valid permitted activity. If authorized, roads should 

be constructed and maintained at the lowest maintenance level needed for the intended 

use.

• Roads should not be located in meadows when they can be located in other areas.

• Roads should be decommissioned when no longer needed.

• Prior to road or trail construction in areas where subsurface geologic features are 

prominent, the proposed alignment should be surveyed for subsurface voids.

• Surveys should be conducted to assess wildlife use (bats, birds, etc.) and intensity before 

demolishing and/or modifying structures such as old bridges. If surveys determine that 

wildlife are actively using the structures, project design should include efforts to minimize 

impacts.

Management Approach for Transportation

In order to provide safe and efficient travel and support resource management on NFS lands, the 

Kaibab NF manages the Forest transportation system, conducts inventories, surveys and analyses, 

formulates plans, and executes reconstruction, maintenance, and obliteration operations. The 

transportation and facility management on the Kaibab NF is integrated and coordinated with 

Federal, State, county, and other local transportation authorities. This includes working closely 

with the AGFD, Arizona Wildlife Linkages Working Group, and Arizona Department of 

Transportation (ADOT) to identify wildlife habitat needs, potential barriers to wildlife movement, 

and to mediate such threats during new projects by designing effective wildlife crossings and 

travel migration areas early in the transportation planning process.

Roads that serve year-round residents of inholdings are typically turned over to other public road 

agency jurisdictions. In cases where those agencies do not accept jurisdiction of the road, the 

Forest Service attempts to enter into road maintenance agreements to apportion the road 

maintenance according to the amount of use by each type of traffic. This results in some NFS 

Land and Resource Management Plan for the Kaibab National Forest 77
Chapter 2. Forestwide Desired Conditions and Strategies

roads being maintained by the county, homeowner association, Forest Service, or some 

combination thereof.

Potable Water

The Kaibab NF currently has 18 potable water systems. These include concessionaire operated, 

Forest Service operated, and systems on NFS land operating under a special use permit. Some of 

these systems are hauled water systems which receive water from other systems.

The City of Williams has the only municipal water system supplied by a watershed located on the 

Kaibab NF. The watershed is approximately 26,061 acres in size. Most (96 percent) of this 

watershed is within the Cataract Creek Headwaters and Dogtown Wash HUC12 subwatersheds. 

Citizens of Williams, Arizona, depend on this watershed as a source of public drinking water and 

for other benefits. 

Desired Conditions for Potable Water 

• Potable water systems are safe for human consumption. 

• The City of Williams Municipal Watershed provides a reliable and treatable source of 

water.

Management Approach for Potable Water

To operate and maintain potable water systems that provide water to Kaibab NF facilities, the 

Forest Service often enters into agreements with partners (concessionaires, other agencies, or 

private entities). Both parties operate these systems jointly to ensure water quality standards are 

maintained. Strategies to better achieve the desired conditions include providing training to 

supervisors and certified water system operators, and conducting routine sanitary surveys, 

maintenance, and review of water quality from hauled sources.

Lands

The two primary functions of the lands program are the identification and maintenance of land 

line locations between NFS lands and lands of other ownership, and land adjustments. Land 

adjustments consolidate and improve management efficiency through real estate transactions 

including sales, purchases, exchanges, conveyances, and rights-of-way within the proclaimed 

Kaibab NF boundary. 

Desired Conditions for Lands

• NFS lands exist in a pattern that promotes efficient management, which consists of large 

contiguous areas that provide efficient and effective resource management and wildlife 

connectivity within and across NFS lands.

• Lands identified for disposal and acquisition are displayed on the land adjustment map.

• The public has access to NFS lands within the Kaibab National Forest.

78 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Objectives for Lands

• Obtain public access for all permanent roads and trails within the Kaibab NF boundary 

within 10 years of plan approval. 

Management Approach for Lands

Work closely with the State, counties, and other Federal agencies to resolve rights-of-way issues

and to ensure that public access to the various parts of the Kaibab NF on State, county or

permanent NFS roads meets management objectives for all ownerships.

Work with adjacent landowners to minimize conflicts between public land users and private 

landowners. Resolve permanent legal public access issues by purchase, exchange, donation, and 

condemnation of rights-of-way.

Special Uses

Special use permits authorize the use and occupancy of NFS lands for activities and services. 

Permits are authorized when the proposed activities support the Forest Service mission, meet 

demonstrated public needs, and are consistent with the desired conditions for the use area.

Permits are a partnership between the Forest Service and private businesses, academia, nongovernmental organizations, or individuals to provide these services to the public. 

Special uses are divided into two categories: recreation and lands. Recreation special uses

include permitted activities related to resorts, ski areas, outfitter/guides, and recreation events. 

Lands special uses include communication sites, utility corridors, research permits, road access, 

and other non-recreational uses. Most of the direction for managing special uses is specified in 

the Forest Service directives (FSH and FSM).

Desired Conditions for Special Uses

• Special use permits support and contribute to the Kaibab NF and district niches.

• Permanent structures associated with special uses are concentrated on existing sites or 

designated corridors, minimizing the number of acres encumbered by special use 

authorizations.

• Special use activities blend into the landscape and do not draw attention to the activity or 

equipment. 

• Permitted research promotes an understanding of ecological and socioeconomic systems 

on the Kaibab NF.

Recreation Special Uses 

Recreation special uses on the Kaibab NF include permitted activities related to recreation such as 

resorts, ski areas, outfitter/guides, and recreation events. 

Land and Resource Management Plan for the Kaibab National Forest 79
Chapter 2. Forestwide Desired Conditions and Strategies

Desired Conditions for Recreation Special Uses

• Recreation special uses are consistent with the Recreation and Scenery desired conditions 

of the forest plan.

• Outfitter/guide activities have a minimal impact on the experiences of other forest visitors.

• Recreation events are infrequent so they do not regularly impact the experience of local 

forest users.

• Existing recreation term permits such as golf courses, ski lodges, and resorts adequately

serve forest visitors so that new ones are not needed. 

Standards for Recreation Special Uses 

• Competitive OHV and motorized events are not permitted on the Kaibab NF.

Guidelines for Lands Special Uses 

• Uses should be combined to the extent possible in light of technical and environmental 

constraints.

Communication and Electronic Sites

Communication and electronic sites have been established (>10 sites) on the Kaibab NF as a 

legitimate use of NFS lands. These play an important role in ensuring good communications 

across northern Arizona and provide a critical link in national communication systems. Requests 

to use Federal lands for communication and electronic sites have increased over the past few 

years, and it is likely these types of special use permits will increase. Appendix F displays 

communication and electronic site locations on the Kaibab NF.

Desired Conditions for Communication and Electronic Sites

• Wildland fires do not interrupt the operation of communication and electronic facilities.

Guidelines for Communication and Electronic Sites

• New commercial communication sites should have a communication site management 

plan in place prior to the start of operations that is consistent with the Kaibab NF forest 

plan.

• The number of communication and electronic sites should be the minimal that is 

consistent with appropriate public services that require the use of Forest lands.

• Environmental disturbance should be minimized by co-locating communication and 

electronic sites.

80 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Energy Transmission and Development 

National emphasis on energy transmission and development is expected to grow. Requests to use 

Federal lands for energy development have rapidly increased over the past few years, and as the 

demand for alternative power sources continues to grow, it is likely these types of special use 

requests will increase. Most of the requests have been for energy transmission corridors, wind 

farms, and solar energy development. Most of the direction for the permitting process of energy 

transmission and development is conducted in accordance with the Forest Service policy for 

special use authorization and is not within the scope of this plan. Appendix F displays locations of 

major energy transmission corridors on the Kaibab NF.

Desired Conditions for Energy Transmission and Development 

• Energy transmission and development on the Kaibab NF meets the legal mandates to 

facilitate the transmission and development of energy resources in a manner that 

minimizes adverse impacts and does not detract from meeting other desired conditions 

applicable to the area. 

• Energy corridors provide a reliable supply of energy essential to meet local, regional, and 

national economic demands.

• Joint use of rights-of-way is provided to concentrate uses to the extent possible.

• Energy transmission lines are not visible (usually underground) across the landscape.

• Vegetative conditions and land uses within energy rights-of-way facilitate the operation 

and maintenance of the associated facilities and infrastructure. They may differ from the 

surrounding PNVT desired conditions in that they generally consist of low growing or 

non-woody vegetation. 

• Wildland fires do not interrupt the delivery of energy resources within the rights-of-way.

Standards for Energy Transmission 

• Major utility corridor development is confined to the area identified and mapped in the 

“West-wide Energy Corridor Programmatic EIS (USDOE and BLM 2008).”

Guidelines for Energy Transmission and Development

• Environmental disturbance should be minimized by co-locating pipelines, power lines, 

fiber optic lines, and associated infrastructure.

• Existing energy corridors should be used to their capacity with compatible upgraded 

power lines, before evaluating new routes.

• When compatible with protection of heritage resources, the use of below-ground utilities 

should be optimized in order to avoid potential conflicts with wildlife, scenery, wildfire, 

and long-term vegetative management.

Land and Resource Management Plan for the Kaibab National Forest 81
Chapter 2. Forestwide Desired Conditions and Strategies

Management Approach for Energy Transmission and Development

Work closely with the AGFD and Federal agencies to incorporate the Avian Powerline Interaction 

Committee for new and retrofitted powerlines 

See also “West-wide Energy Corridor” management area.

Mineral and Mining Activities

Minerals of economic interest are classified as leasable, salable, or locatable. Coal, oil shale, oil 

and gas, phosphate, potash, sodium, geothermal resources, and all other minerals that may be 

acquired under the Mineral Leasing Act of 1920, as amended, are referred to as leasable minerals. 

Common varieties of sand, stone, gravel, pumicite, and clay that may be acquired under the 

Materials Act of 1947 are considered salable minerals or mineral materials. Minerals that are not 

salable or leasable, such as gold, silver, copper, tungsten, and uranium, are referred to as locatable 

minerals. Locatable mineral deposits include most metallic mineral deposits and certain 

nonmetallic and industrial minerals. Locatable minerals are subject to the General Mining Law of 

May 10, 1872, as amended, and for the most part are outside the scope of this plan. 

Salable minerals on the Kaibab NF consist of sand and gravel deposits, building materials, and 

volcanic deposits such as cinders. Sand and gravel deposits exist but are relatively isolated within 

the North Kaibab and Tusayan Ranger Districts, and are mostly associated with the Moenkopi 

Formation and alluvial deposits. On the Williams Ranger District, gravel deposits have formed at 

the bottom of the southwestern slope of the Mogollon Rim. Building materials (primarily 

flagstone) are also widespread in this area and are associated with the Coconino Sandstone. 

The commercial demand for saleable materials (e.g., flagstone, cinders, etc.) has decreased over

the last few years with the downturn in the economy. As the economy recovers, the demand for 

construction products is expected to increase. Currently, there are no active mineral leases and no 

known coal, oil, or gas reserves on the Kaibab NF. The geological formations of the area do not 

favor such leasable mineral deposits, and the potential for oil, gas, or geothermal energy is low 

across the entire Kaibab NF.

All of the Tusayan and North Kaibab Ranger Districts and Kendrick Wilderness on the Williams 

Ranger District are withdrawn from locatable mineral entry. Existing mining claims in these areas 

may be developed where existing claims can prove valid existing rights. The locatable mineral 

deposits on the Williams Ranger District are associated entirely with stratabound deposits, which 

are small, and in today’s economic climate are not commercially viable.

Desired Conditions for Mineral and Mining Activities

• Mineral and mining activities meet the legal mandates to facilitate the development of 

minerals on the Kaibab NF in a manner that minimizes adverse impacts to surface and 

groundwater resources, and that do not detract from meeting other desired conditions 

applicable to the area. 

82 Land and Resource Management Plan for the Kaibab National Forest
Chapter 2. Forestwide Desired Conditions and Strategies

Standards for Mineral and Mining Activities22

• Surface use and occupancy is restricted within foreground23 of heritage resource sites 

nominated or listed on the National Register of Historic Places.

• Construction of oil and gas well surface facilities within foreground of heritage resource 

sites with National Register status and in the visible foreground of State highways is not 

permitted. 

• Oil and gas leases and plans of operation for exploration shall incorporate the following 

stipulation: “Yearlong surface occupancy is not permitted in recreation, administrative

and special use sites; on slopes of 15 percent or greater; and within foreground of all sites 

listed on the National Register.” 

Guidelines for Mineral and Mining Activities

• Adverse surface impacts should be minimized through the appropriate administration of 

mining and mineral laws and regulations. Soil disturbance should be kept to a minimum.

• Restoration and reclamation of surface disturbance associated with mineral activities 

should be implemented to achieve 70 percent of ground cover (as compared to nearby 

undisturbed areas) with permanent native vegetation within three growing seasons. 

• Surface use should be restricted or prohibited in areas with habitat for threatened, 

endangered, and sensitive plant and animal species, and for heritage resources nominated 

or listed on the National Register of Historic Places. Use and occupancy should be 

restricted yearlong in areas supporting populations of threatened, endangered, and 

sensitive plant species.

• On acquired lands where the Forest Service holds the mineral rights, leasable (hard rock)

mineral activities that would remove more than 50 pounds of materials should not be 

permitted.

See also “Minerals and Energy Development Suitability.”

22 These standards retained direction from the original forest plan.

23 Foreground is defined as the part of a scene, landscape, etc., which is nearest to the viewer, and in which detail is 

evident, usually one-quarter to one-half mile from the viewer.

Land and Resource Management Plan for the Kaibab National Forest 83

 

Chapter 3: Management Areas

This chapter of the plan contains direction for management areas that have specific management 

direction that differs from the general forest. In some cases, there may appear to be a conflict 

between direction presented at larger and finer scales. If there is an apparent conflict, the direction 

at the finer scale takes precedence. There are two types of management areas: 

Designated Areas are areas or features identified and managed to maintain their unique special 

character or purpose. Some categories of designated areas are designated by statute and some 

categories may be established administratively in the land management planning process or by 

other administrative processes of the Federal executive branch. Examples of statutorily 

designated areas are wilderness areas and national scenic trails. Examples of administratively

designated areas are national scenic byways, national recreation trails, and botanical areas.

Management Areas (MAs) are delineated to provide plan direction for areas to meet specific 

management needs. They have a corresponding common set of plan components that differ from 

the general forest. Some management areas apply to more than one area on the Kaibab NF such 

as developed recreation sites, wildland-urban interface, and utility corridors. Other areas, such as 

Red Butte and Bill Williams Mountain are geographically specific. 

Figures 2, 3 and 4 display designated areas and management areas on the North Kaibab, Tusayan, 

and Williams ranger districts, respectively.

Throughout this chapter, plan components (plan decisions) are displayed within text boxes. Text 

outside of boxes are background material, explanations, or descriptions of management 

approaches and are not plan decisions

Designated Areas 

Wilderness

Designated wilderness provides places where natural processes dominate and the impacts of 

humans are minimized. Congress preserved these places to pass on to future generations. 

Wilderness provides large areas for the study of nature and unique scientific and educational 

opportunities. Wilderness areas are: 

• “...lands designated for preservation and protection in their natural condition... ” Section 

2(a) 

• “...an area where the earth and its community of life are untrammeled by man...” Section 

2(c) 

• “...an area of undeveloped Federal land retaining its primeval character and influence, 

without permanent improvement or human habitation...” Section 2(c) 

• “...generally appears to have been affected primarily by the forces of nature, with the 

imprint of man’s work substantially unnoticeable...” Section 2(c) 

• “...outstanding opportunities for solitude or a primitive and unconfined type of 

recreation...” Section 2(c)

85
Chapter 3. Management Areas

• “...shall be devoted to the public purposes of recreation, scenic, scientific, educational, 

conservation and historic use.” Section 4(b)

(Wilderness Act of 1964 [Pub. L. 88-577])

Existing Wilderness on the Kaibab NF

Kendrick Mountain Wilderness

Kendrick Mountain Wilderness is a 6,66024-acre area that encompasses Kendrick Peak, one of the 

highest peaks in the San Francisco volcanic field. On the top of Kendrick Mountain there is a fire 

lookout tower, which predates wilderness designation. The lookout is important to the detection 

of wildland fires in the southern units of the Kaibab and northern part of the Coconino National 

Forest. 

In 2000, most of the wilderness was burned in a large wildfire. Fire intensities ranged from light 

to very severe, with more intensely burned areas located on the west, north, and east slopes of the 

peak. Montane mixed conifer forests are present in the unburned and lightly burned areas. Natural 

recovery processes are occurring in more intensely burned areas, with aspen and other early seral 

species becoming established in those sites. Unstable volcanic soils have undergone severe 

erosion on the steeper slopes within burned areas.

The eastern part of Kendrick Mountain Wilderness lies on the Coconino National Forest, but this 

plan contains direction for the entire wilderness.

Kanab Creek Wilderness 

Kanab Creek Wilderness is a 68,474-acre area on the north side of the Grand Canyon National 

Park. Most of the Kanab Creek Wilderness (91%) is managed by the Kaibab NF, with the 

remainder managed by the Arizona Strip District of the BLM. Kanab Creek is a major perennial 

tributary of the Colorado River, flowing from its source some 50 miles north in southern Utah. It 

cuts deep gorges and canyons into the walls of the Kanab and Kaibab Plateaus. The section of 

Kanab Creek on the Kaibab NF is listed eligible in the Nationwide River Inventory, with a 

potential classification as wild. Due to upstream diversions, most of the perennial flow in Kanab 

Creek is from groundwater discharge from springs that emerge in the middle reaches of the creek. 

Flooding from precipitation events remains a very important ecological process in Kanab Creek. 

Elevations vary between 2,000 feet at the Colorado River to about 6,000 feet on the rim. The 

plateaus above are arid with sparse vegetation, while the canyon bottoms are comprised of 

riparian zones. Most of the slopes in this wilderness exceed 40 percent, and the canyon walls have 

been eroded into intricate sculptures of knobs, potholes, and fins in many places. The upper areas 

support desert bighorn sheep, mule deer, and almost all the chukar partridges (Alectoris chukar)

in Arizona. The lower regions support numerous reptiles, snakes, birds, and lizards. Kanab Creek 

Wilderness contains the only desert community and cottonwood-willow vegetation communities 

on the Kaibab NF.

See also Forestwide direction for “Cottonwood-willow Riparian Forest” and “Desert 

Communities.”

24 Management/designated area acreages may vary slightly over time due to factors such as resurvey, improved 

mapping technology, and updates to coprorate GIS layers.

86 Land and Resource Management Plan for the Kaibab National Forest

 
Chapter 3. Management Areas

Saddle Mountain Wilderness

Saddle Mountain Wilderness is a 41,115-acre area the straddles the eastern edge of the Kaibab 

Plateau. It is a rugged landscape of narrow drainage bottoms and steep scarps. The gentle slopes 

on the main ridge of the area drop dramatically to form the Nankoweap Rim on the south. 

Elevations range from about 6,000 feet on Marble Canyon Rim to about 8,000 feet on Saddle 

Mountain, a prominent ridge with a profile that resembles a saddle. Utah juniper (Juniperus 

osteosperma) and pinyon pine in the lowlands give way to mixed conifer in the highlands. The 

only perennial free-flowing stream on the Kaibab NF, North Canyon Creek, lies entirely within 

Saddle Mountain Wilderness. On the southern edge of the Wilderness, the gentle slopes on the 

ridge top drop dramatically to form the Nankoweap Rim, which marks the boundary with Grand 

Canyon National Park.

Sycamore Canyon Wilderness

Sycamore Canyon is the second largest canyon in the Arizona red rock country. The 21-mile-long 

scenic canyon reaches a maximum width of about 7 miles. Sycamore Canyon Wilderness is 

58,408 acres and is a designated Class I Airshed. The Sycamore Canyon Wilderness is located on 

the Coconino, Kaibab, and Prescott National Forests, but the management direction for Sycamore 

Canyon Wilderness is contained in the Coconino National Forest Land and Resource 

Management Plan. 

Desired Conditions for Wilderness Areas

• Wilderness provides opportunities for nonmotorized and non-mechanized primitive and 

unconfined recreation and contiguous wildlife habitat. Social encounters are infrequent 

and occur only with individuals or small parties.

• The environment is essentially unmodified. No services are provided and self-reliance is 

required. The naturally occurring scenery dominates the landscape. Manmade features are 

rare and use natural or complimentary materials. Some constructed features are present

when needed to provide for public safety or resource protection. 

• Enduring, high-quality wilderness values are maintained while providing for solitude and 

primitive, unconfined recreation experiences. 

• Natural processes are maintained within wilderness. Fires function in their natural 

ecological role. 

• Wilderness areas have minimal to no nonnative invasive species.

• Wilderness boundary postings are well maintained. 

• Maps, information, and educational material are provided at wilderness access points. The

materials encourage understanding of wilderness philosophy and support for its ecological 

and social benefits.

• A reproducing population of Apache trout is maintained in North Canyon Creek.

Land and Resource Management Plan for the Kaibab National Forest 87
Chapter 3. Management Areas

Objectives for Wilderness Areas

• Inspect and maintain at least 10 percent of wilderness trails and signs annually.

• Monitor 10 percent of wilderness campsites each year.

Standards for Wilderness Areas

• Establishment of geocaches is not permitted in wilderness areas.

Guidelines for Wilderness Areas

• Group size should be limited to 12 people. 

• Wildfires should be suppressed in the desert communities of the Kanab Creek Wilderness.

• Wildfires in North Canyon of the Saddle Mountain Wilderness should be suppressed when

high severity fire is anticipated.

• Nonnative, invasive species should be treated in order to allow natural processes to 

predominate. 

• The fire lookout on Kendrick Mountain should be supplied and maintained using nonmotorized equipment and non-mechanized transport. 

• Activities in the section of Kanab Creek identified eligible as wild in the Nationwide 

Rivers Inventory should improve or maintain its free-flowing condition and outstanding

remarkable values.

Management Approach for Wilderness Areas

Wilderness on the Kaibab NF is managed consistent with the 1964 Wilderness Act, specifically 

with a focus on maintaining natural processes and freedom for primitive and unconfined 

recreation opportunities. Further, wilderness management is guided by the elements outlined in 

the Forest Service’s Ten-Year Wilderness Stewardship Challenge (Challenge). The ten elements 

outlined are: fire management, invasive plants, air quality, education planning, 

solitude/primitive/unconfined recreation, recreation site inventory, outfitter/guide management, 

management direction, data collection and analysis, and baseline workforce. While the Challenge 

is set to expire in 2014, its principles are useful for monitoring wilderness character and will 

likely continue to be incorporated in agency policy.

As every wilderness area is unique, a separate management plan should be developed for each. 

Wilderness plans address the specific desired conditions for each wilderness, and develop a 

framework for monitoring and maintenance. Monitoring is conducted to assess current conditions 

and to compare them to the desired condition. If current conditions depart from the desired 

condition, a management response may be appropriate. Responses may range from signage and 

education to changes in the type and intensity of allowed uses. Management responses would 

depend on the type and degree of departure from the desired condition.

88 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

Frank’s Lake Geologic-Botanic Area 

The Frank’s Lake Geologic-Botanic Area is a 145-acre area on the North Kaibab Ranger District 

established as an ecosystem management area in the original Kaibab forest plan (1988). At 8,550 

feet elevation, this geologic-botanic area represents a relatively undisturbed example of limestone 

sinks or karsts. There are three such sinks within the geologic-botanic area. The three sinks, along 

with their tributary drainage, represent various stages of geologic and vegetative development 

associated with the Kaibab limestone geology, which dominates the Kaibab Plateau. The 

easternmost sink is known as Frank’s Lake and contains a grassy meadow and small pond.

In the water, typical plants include bulrush (Scirpus sp.), cattail (Typha sp.), and pondweed 

(Potamogeton sp.). Around the edges, grasses and grasslike plants include sedges, rushes, and 

Kentucky bluegrass (Poa pratensis). Blue spruce, Englemann spruce (Picea engelmannii), 

ponderosa pine, and quaking aspen characterize the surrounding forest community. The lake 

supports nesting mallards and various shorebirds. 

Desired Condition for Frank’s Lake Geologic-Botanic Area 

• The natural features are preserved, perpetuating the natural geologic and ecologic 

processes affecting the area. 

• There is minimal evidence of human disturbance.

Guidelines for Frank’s Lake Geologic-Botanic Area

• Camping within the fenced boundary of Frank’s Lake should not be permitted.

• Livestock should be excluded from the Frank’s Lake Geologic-Botanic Area.

Arizona Bugbane Botanical Area

This 490-acre area was established as a botanical area to protect the Arizona bugbane (Cimicifuga

arizonica). It is located in a canyon bottom on the north face of Bill Williams Mountain. Only a 

few population areas of this plant are known in northern and central Arizona. It is found in 

montane riparian habitats characterized by Douglas-fir, maple, and bracken fern (Pteridium 

aquilinum). A primary threat to this species is trampling by hikers in areas where access to the 

populations is easy. Uncharacteristic fire is also a threat.

Desired Conditions for the Arizona Bugbane Botanical Area

• Arizona bugbane has a sustainable population and is at low risk for extirpation.

Objectives for the Arizona Bugbane Botanical Area

• Annually inspect the recreation trails and maintain to manage hiking use.

Land and Resource Management Plan for the Kaibab National Forest 89
Chapter 3. Management Areas

Guidelines for the Arizona Bugbane Botanical Area

• Arizona bugbane plants should not be collected, except through scientific permit.

• Trail maintenance and any other potentially disturbing activities in the botanical area 

should be evaluated, and protective measures should be implemented to protect the 

population. 

• Wildfires should be suppressed when high severity fire is anticipated. Public information 

and recreational brochures should not feature this area. 

Management Approach for the Arizona Bugbane Botanical Area

Arizona bugbane is managed under USFWS direction through the Arizona Bugbane Conservation 

Agreement (USFWS et al. 1998). This agreement represents a commitment by the Forest Service 

and USFWS to manage this species to ensure that it does not become threatened or endangered. 

By working with the USFWS to maintain a current conservation agreement, the character of this 

area is maintained by limiting access and managing threats. Fire suppression activities may be 

needed in this area to prevent damage to the plant colony and habitat. 

Double A Wild and Free Roaming Burro Territory

Wild burros have been known to occupy the area since the late 1800s. A wild burro is a free 

roaming, unclaimed, unbranded burro that descended from pack animals that wandered off or 

were released by prospectors and miners. This territory was established as required by the Wild 

Free Roaming Horse and Burro Act of 1971 (PL 92-195) and has been managed under 

cooperative agreement with the BLM since 1984. The territory is approximately 30,000 acres 

and is located in the northwestern portion of the Williams Ranger District, in the northern half of 

the Double A grazing allotment.

Desired Conditions for the Double A Wild and Free Roaming Burro 

Territory

• A biologically sound and genetically viable burro population is in balance with native 

wildlife, permitted livestock, and other resource values.

Guidelines for the Double A Wild and Free Roaming Burro Territory

• Population control measures should be implemented to maintain genetic diversity and 

desired resource conditions in the area. 

90 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

Management Approach for the Double A Wild and Free Roaming Burro 

Territory

The Forest Service coordinates management of the Wild Horse and Burro program with the BLM 

to facilitate agency coordination to benefit both agencies. Partnering and coordination is key to 

maintaining the desired burro herd size through actions such as capture/relocation and fertility 

treatments. 

Kaibab Squirrel National Natural Landmark

In 1965, 278,459 acres of ponderosa pine forest within the Kaibab NF and Grand Canyon 

National Park were designated as the Kaibab Squirrel National Natural Landmark. National 

natural landmarks (NNLs) are designated by the Secretary of the Interior and represent unique 

examples of ecological and geological features that comprise our Nation’s natural history. The 

Kaibab Squirrel NNL was designated for the Kaibab squirrel and for its largely intact example of 

the western climax community of ponderosa pine. The Management Area boundary is that portion 

of the Kaibab Squirrel NNL that lies within the proclaimed boundary of the Kaibab NF. The 

designated boundary of the NNL is currently being evaluated and reviewed by the Department of 

Interior. When the review is complete, the boundary will likely be adjusted to better align with the 

ponderosa pine vegetation type on the Kaibab Plateau. The Plan maps and description will be 

updated to reflect any changes. The NNL designation is not a land withdrawal and does not direct 

or prohibit any activity.

Desired Conditions for the Kaibab Squirrel National Natural Landmark

• The Kaibab Squirrel National Natural Landmark provides quality ponderosa pine habitat 

for the Kaibab squirrel. 

Management Approach for the Kaibab Squirrel National Natural Landmark

The needs for the Kaibab Squirrel NNL are addressed in 

the Forestwide direction for the ponderosa pine 

vegetation type. The Kaibab NF continues to work 

collaboratively with the NPS NNL Program 

Intermountain Regional Coordinator, as well as other 

interested parties, in developing a better understanding of 

the habitat use, distribution, and conservation needs of 

this unique species. Direction for areas with NNL 

designations requires Federal agencies to consider the 

unique properties of the NNL in their planning and 

impact analysis (Fed. Reg. 64: 25718) and provides 

opportunities to secure funding and develop partnerships 

to achieve management and conservation goals.

Land and Resource Management Plan for the Kaibab National Forest 91
Chapter 3. Management Areas

Grand Canyon Game Preserve 

The Grand Canyon Game Preserve was established through a Presidential Proclamation by 

Theodore Roosevelt on June 29, 1906, to protect game species and their habitat on the Kaibab 

Plateau. The original proclamation does not provide a habitat management prescription, but 

provides a general statement about the vision. Section 1 of the Grand Canyon Game Preserve Act 

states, “The Reserve should be set aside for the protection of game animals and be recognized as 

a breeding place therefore.” The Forestwide plan direction for vegetation, wildlife, and other 

habitat features are consistent with the spirit of the proclamation. As a result, there is very little 

specific direction for this area.

Desired Conditions for the Grand Canyon Game Preserve

• The Grand Canyon Game Preserve provides quality habitat for game animals. 

• There are a variety of vegetation types, in all stages of development, which provide a 

range of habitats for native and desired nonnative wildlife species, including natural 

predators. 

Management Approach for the Grand Canyon Game Preserve

The Kaibab NF cooperates with the AGFD in carrying out the cooperative agreement for 

managing the Grand Canyon Game Preserve. The game preserve is managed in the spirit of the 

original proclamation, informed by advances in scientific information and societal values, with an 

emphasis on the wise use of natural resources.

Kaibab Plateau-North Rim Parkway

Highway 67 is designated as an Arizona State scenic road, a National Forest scenic byway, and a 

national scenic byway. Under the National Scenic Byway Program, the U.S. Secretary of 

Transportation recognizes and supports certain roads as national scenic byways or all-American 

roads, based on their outstanding archaeological, cultural, historic, natural, recreational, and 

scenic qualities. It provides resources to help manage the intrinsic qualities within the broader 

byway corridor to be treasured and shared.

The Kaibab Plateau-North Rim Parkway was designated because of its scenic beauty and natural 

and cultural history. The byway nomination mentions that Highway 67 is unique in that the entire 

route is located on NFS and national park lands and therefore contains an opportunity to highlight 

natural resource management activities. The Kaibab Plateau-North Rim Parkway is managed to 

provide visitors with opportunities to enjoy the outstanding scenery and the natural and cultural 

landscapes of the Kaibab Plateau. The route follows Arizona State Route 67 from Jacob Lake, to 

the north rim of Grand Canyon National Park. Open seasonally, the parkway travels through 

ponderosa pine, mixed conifer forests, and high country meadows on its way to the Grand 

Canyon. Wildlife such as deer, wild turkeys, coyotes (Canis latrans), and many bird species is 

abundant in the area.

92 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

Desired Conditions for the Kaibab Plateau-North Rim Parkway 

• The Kaibab Plateau-North Rim Parkway provides exceptional opportunities for scenic 

driving. 

• Views along the byway are natural appearing and include a variety of landscape 

characteristics including coniferous forest, aspen, and other deciduous species, and highelevation meadows. 

• Road corridor improvements and interpretive facilities are designed and constructed to 

blend with and complement the natural and cultural environment surrounding the byway

and to facilitate animal movement. 

• Facilities are designed to accommodate people with varying abilities. 

• Forest management activities remain largely unnoticeable.

• The byway exhibits natural appearing landscapes where human activities do not stand out 

in the foreground, for up to one-half mile (high scenic integrity).

National Scenic and Recreation Trails

Congress established a system of national scenic, historic, and recreation trails under the authority 

of the National Trails System Act of 1968. Five such designated trails or trail systems occur on 

the Kaibab NF. On the Kaibab NF there is one national scenic trail and two national recreation 

trails. 

National scenic trails are established as extended trails located to provide for maximum outdoor 

recreation potential and for the conservation and enjoyment of the nationally significant scenic, 

historic, natural, or cultural qualities of the areas through which they pass. These trails can only 

be designated by Congress. National recreation trails are established to provide a variety of 

outdoor recreation uses in or reasonably accessible to urban areas. Within NFS lands, these trails 

are designated by the Secretary of Agriculture. 

Arizona National Scenic Trail

The Arizona National Scenic Trail is a nonmotorized, primitive trail that stretches over 800 miles 

from Mexico to Utah across Arizona. It connects deserts, mountains, forests, wilderness, canyons, 

historic sites, communities, and people, and passes through some of the most renowned 

landscapes in the State. The Arizona National Scenic Trail is Arizona’s only national scenic trail, 

and one of only five national scenic trails administered by the Forest Service. It showcases the 

State’s diverse life zones and scenery. A wide variety of nonmotorized recreationists use the trail

including hikers, equestrians, mountain bicyclists, and cross-country skiers. The trail covers 

about 90 miles on the Kaibab NF—40 miles on the Tusayan District and 50 miles on the North 

Kaibab Ranger District. The trail crosses Grand Canyon National Park, connecting the two 

segments on the Kaibab NF.

I-40 – Parks Rest Area National Recreation Trail

The I-40–Parks Rest Area National Recreation Trail was designated in 1979. It is a self-guided 

interpretive trail located immediately adjacent to the westbound rest area on Interstate 40, 

Land and Resource Management Plan for the Kaibab National Forest 93
Chapter 3. Management Areas

between Flagstaff and Williams, Arizona. The half-mile paved trail provides information about 

the ponderosa pine forest, Forest Service management, and nearby recreation opportunities.

Bill Williams Mountain Complex National Recreation Trails

The Bill Williams Mountain Complex National Recreation Trails are a series of nonmotorized 

trails accessing Bill Williams Mountain. It includes the Clover Springs Bypass, Buckskinner, City 

Link, Benham, Bill Williams, and Bixler Saddle Trails. The trails start in the ponderosa pine 

vegetation type and climb the flanks of the mountain providing panoramic views of the Williams 

Ranger District. The trails offer a variety of hiking opportunities from moderate to difficult.

Desired Conditions for National Scenic and Recreation Trails

• Views in the immediate foreground (0 to 300 feet) of national scenic and recreation trails 

include natural-appearing landscapes. The landscapes have high scenic values and 

generally appear unaltered by human activities.

• Signage helps users find nearby developed sites, trailheads, recreation facilities, and 

drinking water sources. 

• User conflicts between differing recreational uses are infrequent.

• In remote areas, the sights and sounds of roads, motorized trails, utility corridors, and 

other facilities are rarely encountered.

• The Arizona National Scenic Trail provides both short and long-distance nonmotorized 

recreation opportunities in mainly remote and primitive settings representative of the 

dramatic natural landscapes and varied vegetation of Arizona.

• Along most of the Arizona National Scenic Trail, infrastructure and facilities are few and 

are constructed in such a way as to be compatible with the scenic, natural, historic, and 

cultural qualities for which the trail was established. Connecting or side trails may provide 

access to developed areas and amenities.

Guidelines for National Scenic and Recreation Trails

• Projects should preserve the recreation opportunity setting for any affected segments, 

particularly within 1⁄2 mile of the Arizona National Scenic Trail. 

• Special use authorizations for trail segments that receive high public use should be limited, 

and compatible with the original intent for the trail’s national designation.

Management Approach for National Scenic and Recreation Trails

The Kaibab NF works with the Arizona Trail Association, volunteer groups, and adjacent 

landowners to maintain trail corridors and the condition and character of the surrounding 

landscape. None of these trails are in wilderness, so motorized vehicles may be used for trail 

maintenance and administrative use. 

A comprehensive plan is currently being developed for the Arizona National Scenic Trail that 

will: provide management direction for its use including, but not limited to, specific objectives 

and practices to be observed in management of the trail; the identification of all significant 

natural, historical, and cultural resources to be preserved; detail any needed cooperative 

94 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

agreements; identify carrying capacity of the trail and a plan for its implementation. Until the 

comprehensive management plan is completed, the Kaibab NF would use strategies specified in 

the 1995 “Arizona Trail Management Guide” and national scenic trail management guides.

See also “Recreation and Scenery.”

Management Areas

Management areas have been established for places on the Kaibab NF with a need for more 

specific management direction than the general Forest. They may be discrete or overlapping. 

Where there are apparent differences in plan direction, the finer, more restrictive guidance 

applies.

Recommended Wilderness Areas

The Recommended Wilderness Area MA is comprised of lands recommended for wilderness 

designation as a result of a potential wilderness area (PWA) evaluation process. The purpose of

this evaluation was to identify all areas within the Kaibab NF not yet designated as wilderness 

that satisfy the definition of wilderness found in the 1964 Wilderness Act. The Kaibab NF

followed a 3-step process for identifying PWAs that included inventory and evaluation of 

potential areas and a determination of which areas would be included in this plan. The intent of 

this management area is to provide direction that would retain or improve the wilderness values 

of these areas if and until they are established by Congress.

The Kaibab NF is recommending four PWAs for wilderness designation. One PWA is on the 

Williams Ranger District, adjacent to Sycamore Canyon Wilderness, at the head of Jacks Canyon 

(about 160 acres). Three are located on the North Kaibab Ranger District: one PWA is comprised 

of eight separate areas bordering the Kanab Creek Wilderness (totaling about 4,700 acres), one 

adjacent to the Saddle Mountain Wilderness that includes a unique landform commonly referred 

to as the “Cockscomb” (approximately 1,300 acres); and one adjacent to Grand Canyon National 

Park that includes the upper reaches of Grassy and Quaking Aspen Canyons (about 230 acres). 

The PWAs adjacent to the Grand Canyon National Park, Kanab Creek Wilderness, and Sycamore 

Canyon Wilderness would bring the boundary of the area managed as wilderness to the rim, 

which would be more recognizable and manageable.

Desired Conditions for Recommended Wilderness Areas

• Recommended wilderness provides non-motorized and non-mechanized opportunities for 

primitive and unconfined recreation and contiguous wildlife habitat. Social encounters are 

infrequent and occur only with individuals or small parties.

• The environment is essentially unmodified. No services are provided and self-reliance is 

required. The naturally occurring scenery dominates the landscape. Manmade features are 

rare and use natural or complimentary materials. Some constructed features are present 

when needed to provide for public safety or resource protection. 

• Enduring, high-quality wilderness values are maintained while providing for solitude and 

primitive, unconfined recreation experiences. 

• Natural processes are maintained within wilderness. Fires function in their natural 

ecological role. 

• Wilderness areas have minimal to no nonnative, invasive species.

Land and Resource Management Plan for the Kaibab National Forest 95
Chapter 3. Management Areas

• Maps, information, and educational material are provided at wilderness access points. The 

materials encourage understanding of wilderness philosophy and support for its ecological 

and social benefits.

Guidelines for Recommended Wilderness Areas

• Activities should maintain or improve the wilderness character until such time as Congress 

acts on the recommended area, either making it designated wilderness or releasing it for

other management.

• Wildfires should be suppressed in the recommended wilderness areas adjacent to Kanab 

Creek in the desert communities vegetation type.

• Nonnative, invasive species should be treated within recommended wilderness areas in 

order to allow natural processes to predominate. 

• Competitive events should not be permitted in recommended wilderness areas.

Management Approach for Recommended Wilderness Areas

Recommended wilderness on the Kaibab NF is intended to be managed consistent with the intent 

of the 1964 Wilderness Act, specifically with a focus on maintaining or achieving wilderness 

values. Although all of these areas have been managed as semi-primitive non-motorized areas in 

the past, they have not been managed as wilderness. Some contain evidence of human activities 

such as old roadbeds, stumps from timber sales, and livestock management structures.

Management may be needed including restoration, trail maintenance, and road obliteration to 

achieve or retain the desired wilderness values. Because recommended wilderness is not 

designated wilderness, use of motorized or mechanized equipment may be appropriate when it is 

used to move the areas toward the desired natural appearing primitive settings. 

Wildland-urban Interface Areas

The wildland-urban interface (WUI), in general terms, is the wildland area surrounding resident 

populations and other human developments having special significance that are at imminent risk 

from wildfire. People increasingly seek to live in more secluded lands bordering public lands. At 

the same time, large, high-severity wildfires are increasing in occurrence as the conditions of 

forests become more departed from reference conditions, putting these widely spaced homes and 

rural communities at risk. This creates the most dangerous and complex fireline situations that 

Federal, municipal, and rural firefighters face. Desired conditions and guidelines specific to this 

area are necessary to reduce the risk to firefighter safety, as well as to human developments. 

The Healthy Forest Restoration Act (HFRA) of 2003 defines the WUI as an area within or 

adjacent to an at-risk community that is identified in a community wildfire protection plan 

(CWPP). Two CWPPs have been prepared that have large WUI zones that overlap Kaibab NF. 

The WUI zone outlined in the Greater Williams Area CWPP covers all of the forested cover type 

on the Williams Ranger District and is 326,000 acres in size. The Tusayan CWPP WUI zone 

covers 63,720 acres—nearly 20 percent of the district. The rationale for such large zones is that 

wildfires in recent history, under critical fire danger conditions, have demonstrated rapid rates of 

96 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

spread over great distances in a single burning period, posing threats to communities and 

infrastructure miles from the point of origin.

Achieving desired conditions for the entirety of the CWPP WUI zones is a long-term aspiration, 

but it is not within the capacity of the Forest Service to achieve within the projected life of this 

plan. Also, these zones do not cover many other highly valued human developments at risk on, 

and adjacent to, the Kaibab NF. For the purposes of this plan, the WUI area is refined to a buffer 

around WUI values to focus more intensive treatments where they will have the most impact for 

fire protection, and includes the following lands:

• Half-mile buffer around all private lands. 

• Half-mile buffer around administrative sites, fee use cabins, fire lookouts, developed 

campgrounds, day use picnic areas, and facilities managed under special use permits. 

• Half-mile buffer around at-risk communication sites.

Desired Conditions for WUI Areas

• Wildland fires in the WUI do not result in the loss of life, property, or characteristic 

ecosystem function. 

• Wildland fires in the WUI are low intensity surface fires. Firefighters are able to safely 

and efficiently suppress wildfires in the WUI using direct attack.

• The desired tree basal area in the WUI is on the lower end of the range given in the 

vegetation community desired conditions. 

• Openings with grass/forb/shrub vegetation occupy the mid to upper end of the percentage 

range in the desired conditions. Trees within groups may be more widely spaced with less 

interlocking of the crowns than desirable in adjacent forest lands.

• Logs and snags, which often pose fire control problems, are present in the WUI, but at the 

lower end of the range given in the vegetation community desired conditions.

• Higher fuel loading or tree densities may be desired in areas where it provides for 

important fine scale habitat structure, as long as it meets the overall intent of protecting 

WUI values at risk.

• Ladder fuels are nearly absent. 

• Dead and down fuel load is between 1 and 5 tons per acre. This light fuel load is desirable 

even in vegetation types with higher reference fuel loads, such as mesic mixed conifer, to 

provide improved fire protection to human developments deemed to have special 

significance. 

• When WUI intersects vegetation types with a mixed or high-severity fire regime, 

characteristic ecosystem function is modified to promote low intensity surface fires. 

• Openings between tree groups are of sufficient size to discourage isolated group torching 

from spreading as a crown fire to other groups. 

Management Approach for WUI Areas

Firefighters need more open stands, with few ladder fuels and low fuel loadings, where wildfires 

drop to the surface before they reach the values at risk. Treatments in the WUI area are designed 

to provide a zone where firefighters can safely perform direct attack on wildfires. The more open 

Land and Resource Management Plan for the Kaibab National Forest 97
Chapter 3. Management Areas

stand conditions also serve to protect NFS lands from human-caused fires started on private lands 

because firefighters can more readily contain a wildfire before it burns into denser, more 

flammable vegetation in the Kaibab NF at large. 

While fire protection is the key objective in this area, other resource objectives are also met, and 

the integrity of the ecosystem is maintained. Treatments are guided by the same Forestwide 

desired conditions for resources, goods, and services as outside the zone, but lands within the 

WUI area are managed to achieve the more open end of the desired conditions for the vegetation 

community. 

A half-mile buffer around human developments is the starting point for determining where more 

open, intensive treatments occur. This distance is recommended in the HFRA (2003) and provides 

a distance conducive for passive crown fire to transition to surface fire. During project-specific 

planning, the area where more intensive treatments are needed may call for adjustment. 

Continuous steep slopes, continuous heavy fuels, or other fire hazards may indicate a need to 

expand more open treatments. On the other hand, sound reasons for retaining more dense stands 

may exist. For example, in the case of a habitat for a narrow endemic species, less intensive 

treatment, no treatment, or moving the buffer area to the outside or around the more densely 

stocked area may be necessary.

All private lands, regardless of whether they contain human improvements or the type of 

improvements they contain, are treated as WUI. In doing so, making subjective value judgments

on different structures is avoided. It also accounts for the potential that any given private 

inholding could be developed during the lifespan of the plan. 

Due to variable budgets, market capacity, and workforce capacity, achieving desirable structural 

changes through planned mechanical treatments is sometimes delayed or occurs sporadically. 

Projects that include lands in the WUI should allow flexibility in the order of treatment 

implementation. This allows fire managers the option to burn before mechanical treatments, 

greatly reducing fire hazard in the WUI area in the interim until mechanical treatments take place.

Including maintenance burning in project design is essential to securing the investment made with 

mechanical thinning and initial entry burns. Without maintenance burning, the fire protection 

value from treatments is largely lost within 40 to 50 years because of increased fuel loads and 

more densely stocked stands. 

Well planned trails at the WUI provide sufficient legal access between NFS trails and 

neighborhoods, reducing the potential development of user-created social trails.

See also major vegetation communities and “Wildland Fire Management.” 

West-wide Energy Corridor

Two corridors were identified in the “West-wide Energy Corridor Record of Decision” (ROD) 

that cross the Kaibab NF, both of which follow existing high-voltage lines (500 kV). One is on

the Tusayan Ranger District, which follows the Four Corners line (No. 47-68), and crosses the 

southern portion of the district. The other corridor is located on the Williams Ranger District (No.

61-207), which follows the Navajo Project Line across the district from the southwest to the 

northeast. These corridors were defined in the ROD as being 3,500-feet wide with the centerline 

identified as the center of existing transmission line and as open to both pipeline and transmission 

98 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

line development. Both of these corridors were identified in the original 1988 Kaibab Forest plan

to allow expansion for major utility lines. The “Environmental Impact Statement for the Westwide Corridor” identified potential energy corridors; evaluated effects resulting from their 

designation; identified mitigation measures of potential effects anticipated from future 

development; and included interagency operating procedures applicable to the planning, 

construction, operation, and decommissioning of future projects within the corridors. The 

environmental consequences of any future projects would be evaluated in site-specific projectlevel planning. The West-wide Corridor decision to designate energy corridors on NFS lands in 

10 western states is programmatic in nature and does not authorize specific right-of-way projects.

Future development within the corridors would need to meet appropriate NEPA requirements and 

comply with other applicable laws, regulations, and policies.

Desired Conditions for the West-wide Energy Corridor

• The West-wide Corridor provides for energy transmission needs across the Kaibab NF.

See also “Energy Transmission and Development” section of this plan.

Developed Recreation Sites

This MA totals 1,556 acres and includes 15 major public and private sector developed recreation 

sites and other smaller sites (trailheads, interpretive sites, etc.). Many visitors to the Kaibab NF 

campgrounds and lodges come from the Phoenix metropolitan area for relief from extreme 

summer temperatures. 

Most campgrounds in the Williams Ranger District unit are adjacent to impounded lakes that 

offer water-oriented recreation activities. Most of the fishing use on the Kaibab NF occurs in this 

MA. All fish are stocked by the AGFD. With the exception of White Horse Lake, all of these 

lakes are water storage facilities for the city of Williams. Campground capacity is established to 

ensure water quality preservation.

Desired Conditions for Developed Recreation Sites

• Developed campgrounds are places where structures and human impacts on vegetation 

may be seen, but they do not dominate the view or attract attention (low to moderate 

scenic integrity). 

• Human activities in the areas visible from campgrounds (foreground to middle ground, 

300 feet to 4 miles) do not attract attention or stand out, and the landscapes appear natural 

(moderate to high scenic integrity).

• Volunteer hosts are provided at all public sector fee campgrounds.

Objectives for Developed Recreation Sites

• Reconstruct or construct at least one-quarter of developed campsites into small group sites 

within 10 years of plan approval.

Land and Resource Management Plan for the Kaibab National Forest 99
Chapter 3. Management Areas

• Reduce developed site recreation deferred maintenance by an average of 5 percent each 

year.

Guidelines for Developed Recreation Sites

• Reconstruction and improvements of private sector developed sites should be within site 

capacity allocations.

• Surveys should be conducted to assess bat activity and intensity of use before demolishing 

and/or modifying structures such as old buildings. If surveys determine that bats are 

actively roosting in such structures and no alternate bat roost sites exist in the immediate 

vicinity, project design should include efforts to minimize impacts and to provide for 

alternate roost sites such as bat boxes where feasible.

• Developed recreation site vegetation management plans should guide tree removal and 

burning activities in the campgrounds.

See also the “Recreation and Scenery” section of this plan.

Garland Prairie Management Area 

The Garland Prairie Management Area is an approximately 340-acre area on the Williams Ranger 

District that was identified as a potential research natural area (RNA) in the original forest plan 

but was never designated. Garland Prairie is typical of the high elevation grassland ecotone 

dominated by Arizona fescue (Festuca arizonica) and mountain muhly (Muhlenbergia montana). 

RNAs are field ecological research areas established for the purpose of research, observation, and 

study. They are selected and established to preserve a wide spectrum of pristine areas that typify 

important habitat types and serve to preserve and maintain genetic diversity, maintain baseline or 

reference areas for the study of ecologic changes, and as a control to other similar habitats being 

manipulated for research or management purposes. When Garland Prairie was originally 

recommended as RNA, there was a need for montane grassland type representation. This is no 

longer true, and as a result, it does not meet the criteria identified in the Region 3 RNA process. 

This area was considered to be in “good” condition when livestock was excluded in 

1989However, since then there has been tree encroachment by ponderosa pine and infestations of 

Dalmatian toadflax. This area was retained as a management area because of its value as a

reference area for research and management purposes.

Desired Conditions for the Garland Prairie Management Area 

• The area serves as a reference for the study of ecologic changes and as a control to other 

similar habitats being manipulated for research or management purposes.

• Lightning fires are able to burn naturally within the area. 

100 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

Objectives for the Garland Prairie Management Area

• Inspect the boundary fence annually and maintain as needed.

Guidelines for the Garland Prairie Management Area 

• The area should be protected from activities that directly or indirectly modify ecologic 

processes. 

Management Approach for the Garland Prairie Management Area 

The PNVT for the Garland Prairie Management Area is “montane/subalpine grassland.” While 

Garland Prairie would not necessarily make a good RNA, the Kaibab NF recognizes it has 

continued value as a reference area and as high quality grassland habitat as it is known to support 

some of the highest fawn: doe ratios for pronghorn anywhere in the state of Arizona.

Bill Williams Mountain Management Area

Bill Williams Mountain has been identified as a management area because it contains multiple 

resources and uses of high natural, cultural, and economic value. It is eligible as a traditional 

cultural property, and has been identified as a sacred site by American Indian tribes. It contains a 

Mexican spotted owl protected activity center, the Arizona Bugbane Botanical Area, and 

communication towers that serve the Arizona Department of Public Safety, U.S. Customs and 

Border Protection, and Federal Aviation Administration. The mountain contains a ski area, a fire 

lookout tower, and national recreation trails. The watershed makes up a large portion of the 

municipal water supply for the city of Williams and contains the headwaters of Cataract Creek, 

which flows into the Havasu drainage and ultimately onto the Havasupai Reservation and Village. 

This management area has the highest value per acre on the Kaibab NF with regard to both 

economic and amenity considerations. It is at high risk for uncharacteristic wildfire due to its 

steep slopes, dense vegetation, and high fuel loading. If a large wildfire occurred within the area, 

it could adversely affect many valuable resources. 

Desired Conditions for the Bill Williams Mountain Management Area 

• The risk is low for substantial damage to municipal water supply, infrastructure, water 

quality, visual quality, and cultural integrity (e.g., tribes and local communities).

• The risk of damage to electronic sites is low and communication related to the site is 

uninterrupted.

• Bill Williams Mountain provides quality habitat for Arizona bugbane, Mexican spotted 

owls, and culturally important plants. 

Objectives for the Bill Williams Mountain Management Area

• Implement a project to improve the health and sustainability of forested conditions on and 

surrounding Bill Williams Mountain within 5 years of plan approval.

Land and Resource Management Plan for the Kaibab National Forest 101
Chapter 3. Management Areas

Standards for Activities in Bill Williams Mountain Management Area

• Artificial snow making within the Bill Williams MA will not be permitted.

Guidelines for Activities in Bill Williams Mountain Management Area

• The existing term permit for the Elk Ridge Ski Area on Bill Williams Mountain should be 

restricted to the existing established permit area. 

• High-use roads within the municipal watershed should be maintained to prevent erosion 

and sedimentation. 

• Commercial plant collection within the Bill Williams MA should not be permitted.

• Vegetation treatments immediately adjacent to the Arizona Bugbane Botanical Area should 

leave enough tree cover to maintain cooler temperatures and higher humidity microsite 

conditions near the bugbane populations.

Management Approach for the Bill Williams Mountain Management Area

Project planning would best be served by a collaborative process because of the complexity of the 

multiple high values and stakeholders. Seasonality of uses, access, and resource needs call for 

coordination and consideration of timing of implementation in project planning. 

The highest priority for fuel reduction treatment is the north and east slopes because of the 

potential risk and consequences of a high-intensity wildfire. Steep slopes and concerns about 

erosion and sedimentation may call for treatments to either treat fuels in place or use cable or 

aerial harvest systems. Other priority areas for treatments are in the WUI. 

See also “Traditional and Cultural Uses,” “Special Uses,” major vegetation communities, 

“Wildlife,” and “Wildland Fire Management.”

Red Butte Management Area

The Red Butte Management Area is of particular importance to several American Indian tribes. It 

lies within a larger area that is eligible for inclusion on the National Register of Historic Places as 

a traditional cultural property and has been identified as a sacred site to American Indian tribes in 

the area. TCP boundaries are largely confidential and do not usually correlate to features that can 

be identified on the ground. The Red Butte MA boundary was selected to include the geologic 

formation of Red Butte, the core area of the eligible TCP, and to facilitate manageability.

Desired Conditions for the Red Butte Management Area

• The environment is essentially unmodified. Naturally occurring scenery dominates the 

landscape.

Guidelines for the Red Butte Management Area

• Activities should be coordinated with tribes to minimize impacts to ceremonial activities.

102 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

• Temporary closures should be implemented upon request by the tribes to provide privacy 

for traditional activities.

• The helipad on Red Butte should only be used for administrative purposes.

• Commercial use such as outfitter guides, plant collection, and firewood cutting/collection 

in the Red Butte MA should not be permitted. 

Management Approach for Red Butte Management Area

Tribal members have identified air traffic surrounding Red Butte as disruptive to tribal 

ceremonies. The Forest Service does not have the authority to regulate air traffic (flights), so it is 

important that the Kaibab NF work closely with and educate potential operators about the 

impacts. When temporary closures are in place for traditional or ceremonial use, a request for air 

operators to avoid the area may be made.

House Rock Wildlife Area

The bison herd has been present on the North Kaibab Ranger District for more than 100 years, 

and was specifically mentioned in legislation leading to the Grand Canyon Game Preserve. The 

State of Arizona owns and manages this free-ranging bison herd on the Kaibab NF through an 

agreement between the AGFD and the U.S. Forest Service.

Desired Conditions for the House Rock Wildlife Area 

• Bison are a desired introduced wildlife species within the designated House Rock Wildlife 

Area in House Rock Valley.

• There are opportunities to hunt bison.

• The bison herd size is in balance with ecological conditions in the House Rock Wildlife 

Area.

Guidelines for the House Rock Wildlife Area

• The bison should be managed so that the herd is concentrated within the House Rock 

Wildlife Area.

• Active management should be used to minimize impacts from bison to sensitive resources, 

particularly outside the House Rock Wildlife Area.

Management Approach for the House Rock Wildlife Area

Coordination and cooperation between the Kaibab NF, AGFD, Grand Canyon National Park, and 

researchers will be needed to identify workable solutions for managing the bison, which are now 

spending much of their time in the remote forested areas of the Kaibab Plateau. Efforts to achieve 

the desired conditions will likely be implemented in phases with an initial emphasis on reducing 

the herd size and excluding them from Grand Canyon National Park. Strategies may include 

hunting and trapping, fencing, and herding.

Land and Resource Management Plan for the Kaibab National Forest 103
Chapter 3. Management Areas

Pediocactus Conservation Area

Pediocactus paradinei B.W. Benson (which is also known as the Paradine or Kaibab plains 

cactus) was previously a Category 1 candidate for listing as endangered by the Fish and Wildlife 

Service. In lieu of formal listing, an interagency conservation assessment and strategy was 

prepared for the Paradine plains cactus. This management area was established to aid in 

managing this species.

Desired Conditions for the Pediocactus Conservation Area

• Paradine plains cactus (Pediocactus paradinei) has a sustainable population and is at low 

risk for extirpation.

Guidelines for the Pediocactus Conservation Area

• Collection of Paradine plains cactus plants should not be permitted.

• Project activities should incorporate protective measures for the Paradine plains cactus. 

Any potentially ground-disturbing activities in the Pediocactus Conservation Area should 

be evaluated, and protective measures should be implemented to minimize resource 

impacts. 

• Nonnative invasive weeds should be regularly monitored and promptly treated.

• Wildfires in the Pediocactus Conservation Area should be managed under a suppression 

strategy when high severity fire is anticipated.

• Motorized access should be restricted.

• Public information and recreational brochures should not feature this area.

Management Approach for the Pediocactus Conservation Area

Pediocactus paradinei is managed under a conservation assessment and strategy developed by the 

Forest Service, BLM, and USFWS (USDA et al. 1997). This document represents the desire to 

achieve self-sustaining populations of Pediocactus paradinei. By working with the USFWS and 

BLM to maintain a current conservation assessment and strategy, the character of this area is 

maintained by limiting access and managing threats. Suppression actions may be needed to 

prevent damage to the plants and habitat.

See also sections for “Pinyon-juniper Communities,” “Sagebrush Shrublands,” “Rare and 

Narrow Endemic Species,” and “Nonnative Invasive Species.”

104 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

Figure 2. Management areas on the North Kaibab Ranger District

Land and Resource Management Plan for the Kaibab National Forest 105
Chapter 3. Management Areas

Figure 

3. Management areas on the Tusayan Ranger District

106 Land and Resource Management Plan for the Kaibab National Forest
Chapter 3. Management Areas

Figure 4. Management areas on the Williams Ranger District

Land and Resource Management Plan for the Kaibab National Forest 107

Chapter 4. Suitability

The National Forest Management Act (NFMA) states that national forest plans shall provide for 

multiple use and sustained yield of products and services through management of renewable 

surface resources to best meet the needs of the American people. NFMA also requires that NFS 

lands be classified as to their suitability for various uses, including timber production, forage 

production, and recreation opportunities. Suitability is the appropriateness of applying certain 

resource management practices to a particular area of land in consideration of the relevant social, 

economic, and ecological factors. Suitability is determined based on compatibility with desired 

conditions and objectives in the plan area. Lands identified in the plan as suitable or not suitable 

for a particular use does not mean that the use will or will not occur on those lands. Suitability 

decisions provide guidance for project and activity decision making, and are not commitments or

final decisions approving projects and activities. 

Timber Suitability

The NFMA requires that NFS lands be classified as to their suitability for timber production. NFS 

lands were reserved with the intent of providing goods and services to satisfy public needs over 

the long term. These goods include the production of a sustainable supply of forest products. 

Timber production is the purposeful growing, tending, harvesting, and regeneration of regulated 

crops of trees for industrial or consumer use. Timber production activities can contribute to social, 

economic, or ecological sustainability. Timber production has the potential to offset some or all of 

the costs of thinning and other forest development or maintenance activities that lower 

uncharacteristic fire and insect risk, increase understory plant diversity and abundance, and create

employment opportunities. 

Areas unsuitable for timber production are those that are either not desirable or not feasible to 

manage for periodic harvests of forest products. For example, restoration of grasslands often 

requires cutting trees. These trees can be made available for sale, but the intent for the future is to 

maintain the areas as grasslands, and as a result timber production would not be desirable because 

it is inconsistent with the desired conditions. Where long-term resource productivity would be 

impaired or law, regulation, or policies prohibit it, timber production is not feasible.

In accordance with the provisions of the current planning rule, a GIS analysis was conducted on 

all NFS lands managed by the Kaibab NF to derive acres of land categorized into suitable and not 

suitable for timber production, which varied by alternative (219.14). Lands not suitable for timber 

production were removed and placed into the following categories: nonforested (219.14(a)(1)), 

irreversible resource damage (219.14(a)(2)), adequate restocking not assured (219.14(a)(3)), and 

withdrawn (219.14(a)(4)). The remaining land was then categorized as tentatively suitable for 

timber production.

Lands not appropriate for timber production were removed from the tentatively suitable lands 

category into lands where management area prescriptions preclude timber production 

(219.14(c)(1)), lands where management requirements (219.27) cannot be met (219.14(c)(2)), and 

lands not cost efficient in meeting timber objectives (219.14(c)(3)). Table 1 provides acreages 

used in the timber suitability calculation. More information about this process can be found in the 

“Final Environmental Impact Statement for the Kaibab NF Land and Resource Management Plan, 

Appendix C.”

109
Chapter 4. Suitability

Table 1. Timber suitability calculation for the Kaibab NF 

Land Category Acres 

Gross area of Kaibab NF 1,600,321*

Area not administered by the Forest Service (Camp Navajo and 

private lands) -57,056

NFS lands administered by the Kaibab NF 1,543,265

Non-forested† -847,376

Irreversible resource damage -54,265

Adequate restocking not assured -21,834

Withdrawn (219.14(a)(4)) -117,563

Subtotal: Not-suitable for timber production 1,041,038

Lands Tentatively Suitable for Timber production 502,227

Management prescriptions preclude timber production -90,782

Management requirements cannot be met -16,903

Not cost efficient in meeting timber objectives -13,025

Subtotal: Not appropriate for timber production -120,710

Lands suitable for timber production 381,517

* Acreages of NFS lands may vary slightly over time due to factors such as resurvey, improved mapping technology, 

and updates to corporate GIS layers.

† Includes Forest lands that are not capable of producing industrial wood, such as pinyon-juniper woodlands.

Grazing Suitability and Capability

The 1982 Planning Rule requires that the suitability of rangelands on NFS lands and their 

capability for producing forage for grazing animals be determined in forest planning. Capability 

is the potential of an area of land to produce resources and supply goods and services. Capability 

depends upon conditions such as climate, slope, landform, soils, and geology. Suitability is the 

appropriateness of applying certain resource management practices to a particular area of land in 

consideration of the relevant social, economic, and ecological factors. Lands within the plan area 

are not suitable if livestock grazing would be incompatible with the desired conditions or result in 

substantial and permanent impairment of the land.

Capability to produce forage for grazing animals was determined for the original forest plan 

(USDA 1988). Most landscape-scale conditions that influence capability have not changed 

significantly since the initial evaluation. However, the data and analysis tools used in the initial 

determination were not as accurate or precise as what is available today. Capability for this plan 

was reassessed using the corporate GIS data. Table 2 displays the results of this analysis. The area 

capable for livestock grazing has about 12 percent fewer acres than the original forest plan. More 

detail about the process and rationale behind these calculations are documented in the white paper 

“Grazing Capability Calculations for the Kaibab NF,” which is filed in the project record.

110 Land and Resource Management Plan for the Kaibab National Forest
Chapter 4. Suitability

Table 2. Grazing capability calculations for the Kaibab NF 

Grazing Capability Category Acres

Gross area of Kaibab NF 1,600,321*

 Area not administered by the Forest Service (Camp Navajo and private lands) -57,056

 Net Analysis Area 1,543,265

 Slopes greater than 40 percent -165,672

 Severe erosion hazard (Terrestrial Ecosystem Survey) -176,554

 Forage productivity less than 100 lb/ac/yr (based on TES) -87,921

Total “No Capability” Areas -430,147

Lands tentatively capable for livestock grazing 1,113,118

* Acreages of NFS lands may vary slightly over time due to factors such as resurvey, improved mapping technology, 

and updates to corporate GIS layers.

The original plan identified four management areas as unsuitable for livestock grazing: the 

Arizona Bugbane Botanical Area, Garland Prairie Management Area, Franks Lake 

Geologic/Botanic Area, and developed recreation sites. These management areas are still 

identified as unsuitable, but a 219-acre adjustment was made to the area managed as developed 

recreation sites. Two developed recreation sites have been closed since the original plan was 

signed and they are no longer managed for recreation: Moqui Lodge and Benham Snowplay Area, 

202 and 17 acres, respectively. The desired conditions for these areas would no longer preclude 

livestock grazing. As a result, this revised plan shows these areas as suitable. 

Since the original plan was approved, each allotment on the Kaibab NF has received site-specific 

environmental review for the authorization of grazing. The decisions for those analyses were 

reviewed for areas where livestock grazing was not authorized. Site specific NEPA identified 

three large contiguous areas were not authorized for grazing following environmental review: the 

Kanab Creek allotment, Jump-up pasture of the Central Winter allotment, and the Bill Williams 

Mountain portion of the Hat allotment. In this revised plan, these areas have been identified as not 

suitable for livestock grazing. Table 3 and Figure 5 describe areas on the Kaibab NF that are 

unsuitable for livestock grazing.

Table 3. Areas unsuitable for grazing on the Kaibab NF 

Feature Acres Note

Arizona Bugbane Botanical Area 490

Management areas closed to 

grazing in the original forest plan.

Garland Prairie 340

Franks Lake Geologic-Botanic Area 145

Existing Developed Recreation Sites 1,556

Kanab Creek Allotment 39,280 Closed to grazing in site-specific 

NEPA decision in March 2001. Jump-up Pasture, Central Winter Allotment 15,745

Bill Williams Mountain, Hat Allotment 2,500 Closed to grazing in site-specific 

NEPA decision in September 2010.

Total Unsuitable Area 60,056

Land and Resource Management Plan for the Kaibab National Forest 111
Chapter 4. Suitability

A suitable determination indicates that grazing is compatible with the desired conditions for the 

relevant portion of the plan area. It is guidance for project and activity decision making, and is 

not a commitment or a final decision. It does not mean that grazing will or will not occur in a 

particular area. The final decision to authorize livestock grazing and the determination for how 

lands are managed (including those that have been identified as not capable of producing forage), 

is made at the project/allotment level. The decision to authorize grazing and under what 

conditions is made following NEPA review, under which site specific conditions can be assessed 

and addressed through project design. During site-specific NEPA review, the condition and trend 

of each of the Kaibab NF’s allotments was assessed to ensure availability of forage for all species. 

A summary of these evaluations can be found in the project record and Appendix D of the EIS.

112 Land and Resource Management Plan for the Kaibab National Forest
Chapter 4. Suitability

Figure 5. Kaibab NF lands suitable and unsuitable for livestock grazing

Land and Resource Management Plan for the Kaibab National Forest 113
Chapter 4. Suitability

Minerals and Energy Development Suitability

Forest plan decisions can make suitable (or unsuitable) determinations for extraction or use of 

common variety minerals and energy (oil, gas, geothermal) resources on the Kaibab NF. Minerals 

are classified as leasable, salable, or locatable. Coal, oil shale, oil and gas, phosphate, potash, 

sodium, geothermal resources, and all other minerals that may be acquired under the Mineral 

Leasing Act of 1920, as amended, are referred to as leasable minerals. Common varieties of sand, 

stone, gravel, pumicite, and clay that may be acquired under the Materials Act of 1947 are 

considered saleable minerals or mineral materials. 

Any minerals that are not saleable or leasable, such as gold, silver, copper, tungsten, and uranium, 

are referred to as locatable minerals. Locatable minerals include most metallic minerals and 

certain nonmetallic and industrial minerals. Locatable minerals are subject to the General Mining 

Law of May 10, 1872, as amended, and withdrawal decisions are outside the authority of national 

forest planning. The areas of the North Kaibab and Tusayan Ranger Districts that were designated 

as part of the Grand Canyon Game Preserve are closed to locatable mineral entry. This area of 

“public domain lands” was designated as a game preserve in 1906, and was set aside from 

mineral entry as described in the 1872 General Mining Law. In 1985, a court decision determined 

that the area is open to leasable minerals activities that are consistent with the character of the 

game preserve. 

The remaining areas of the North Kaibab and Tusayan Ranger Districts were recently withdrawn 

from locatable mineral entry under the “Record of Decision for the Northern Arizona 

Withdrawal” (January 9, 2012). The “Record of Decision for the Northern Arizona Withdrawal” 

prevents the establishment of new mining claims on public domain lands within the Tusayan 

Ranger District, and the specified portions of the North Kaibab Ranger District, but would have 

no effect on existing valid claims. Existing valid mining claims may still be developed within the 

withdrawn area where valid existing rights can be proven. 

The following were considered in evaluating potential changes to mineral and energy suitability: 

• Solar and wind resources are being developed near the Kaibab NF and requests for 

development on the Kaibab NF have been received. Energy transmission was addressed 

in the “West-Wide Energy Corridor Environmental Impact Statement.” Solar and wind 

generation demands and technology are rapidly changing and may need to be revisited 

within the plan period. 

• Demand for mineral materials is likely to continue. 

Table 4 displays the current status of minerals and energy resources suitability on the Kaibab NF. 

114 Land and Resource Management Plan for the Kaibab National Forest
Chapter 4. Suitability

Table 4. Suitability for mineral and energy activities on the Kaibab NF

Location Suitability Notes

Grand Canyon Game 

Preserve

Withdrawn

This area is withdrawn from all locatable mineral entry. It is 

available for saleable and leasable mineral development on a caseby-case basis and government uses as needed, for roads and facility 

maintenance or construction that are consistent with the purpose of 

the game preserve.

Kanab Creek 

Wilderness

Most of this wilderness was withdrawn from locatable mineral entry 

with designation of the Grand Canyon Game Preserve. The 

remaining portions of the area were withdrawn from all mineral 

entry with its wilderness designation.

Kendrick Mountain 

Wilderness

This area was withdrawn from all mineral entry with its wilderness 

designation. 

Saddle Mountain 

Wilderness 

This wilderness was withdrawn from locatable mineral entry with 

designation of the Grand Canyon Game Preserve. It was withdrawn 

from all mineral entry with its wilderness designation.

The remaining portions 

of the Tusayan Ranger 

District and North 

Kaibab Ranger District

Withdrawn from locatable mineral entry with the “Record of 

Decision for the Northern Arizona Withdrawal,” January 9, 2012. 

These areas are available for saleable and leasable mineral entry and 

development.

Administrative, 

communication, and

electronic sites

Most administrative sites are currently withdrawn. Note: a few are in

the process of being withdrawn and have not been finalized. 

Administrative, communication and electronic sites that are not 

currently withdrawn are unavailable.

Areas of acquired lands 

for which the Forest 

Service has mineral 

rights

Unavailable Determination regarding mineral rights would be made on a sitespecific basis in response to proposals.

Bill Williams 

Watershed Unavailable

Due to the high value of the Williams Municipal Watershed and the 

potential for adverse effects associated with mineral uses, this area is 

unavailable for mineral entry. 

Solar and wind Unavailable

There are opportunities off of the the Kaibab NF on adjacent private, 

tribal, and Arizona State lands. Off-Forest areas would be considered 

first for solar and wind development consistent with the screening 

process specified in FSH 2709.11, chapter 70.

All other NFS lands on 

the Kaibab NF Available Open to mineral and energy resource development consistent with the desired conditions, standards, and guidelines of this plan.

Suitability Key: 

Withdrawn: Not open to locatable mineral entry except for mining claims with valid existing rights. 

Available: Open to entry for locatable mineral development and saleable or leasable resources if site-specific NEPA 

determines it is appropriate.

Unavailable: Not open to entry for saleable or leasable mineral development. Open to locatable mineral entry.

Land and Resource Management Plan for the Kaibab National Forest 115
Chapter 4. Suitability

Recreation Suitability

Recreation suitability on the Kaibab NF corresponds to the recreation opportunity spectrum 

(ROS) and scenery management system scenic integrity objectives (SIO). ROS is based on the 

premise that visitors choose specific settings for their recreation activities in order to enjoy the 

desired experiences. Using a classification system, seven potential classes of recreation 

opportunity are applied to lands on the Kaibab NF. Each class describes different outdoor 

recreation settings and characteristics such as size, scenic quality, type and degree of access, 

remoteness, level of development, social encounters, and amount of onsite management. The 

classes are primitive, semiprimitive nonmotorized, semiprimitive motorized, roaded natural, 

roaded modified, rural, and urban. By describing the existing recreation opportunities in each 

class, ROS helps visitors select their preferred recreation setting. 

The Forest Service developed the scenery management system to provide a vocabulary and 

systematic approach for managing scenery in national forests. It integrates the biological, 

physical, and cultural elements that combine to make each landscape unique. The process 

involves identifying scenery components as they relate to people, mapping the components, and 

developing a value for aesthetics from the data gathered. Most recreation-oriented people who 

visit national forests have an image of what they expect to see. Application of the mapping is 

based upon the assumption that people value most highly the more visually attractive and 

naturally appearing landscapes. Scenic integrity is used to describe the degree of intactness of the 

scenery, and the levels include very high, high, moderate, low, and very low. Scenic integrity can 

also be used to describe past, present, and future landscapes. 

The ROS classes and SIO levels displayed in the suitability maps (figures 6-11) indicate the 

desired conditions for the Kaibab NF landscape. The existing ROS and SIO may not currently 

meet these desired conditions, but projects are designed to maintain or improve these to meet the 

desired conditions.

116 Land and Resource Management Plan for the Kaibab National Forest
Chapter 4. Suitability

Figure 6. Recreation opportunity settings for the Williams Ranger District

Land and Resource Management Plan for the Kaibab National Forest 117
Chapter 4. Suitability

Figure 7. Scenic integrity objectives for the Williams Ranger District

118 Land and Resource Management Plan for the Kaibab National Forest
Chapter 4. SuitabilityFigure 

8. Recreation opportunity settings for the Tusayan Ranger District

Land and Resource Management Plan for the Kaibab National Forest 119
Chapter 4. Suitability

Figure 

9. Scenic integrity objectives for the Tusayan Ranger District

120 Land and Resource Management Plan for the Kaibab National Forest
Chapter 4. Suitability

Figure 10. Recreation opportunity settings for the North Kaibab Ranger District

Land and Resource Management Plan for the Kaibab National Forest 121
Chapter 4. Suitability

Figure 11. Scenic integrity objectives for the North Kaibab Ranger District

122 Land and Resource Management Plan for the Kaibab National Forest
Chapter 5. Monitoring and Evaluation

Introduction

Monitoring and evaluation are required by the 1982 Planning Rule provisions. Monitoring and 

evaluation documents and reports how well a plan is being implemented, how well it is working, 

and if its direction is still appropriate. Evaluation examines altered conditions that result from

management, identifies possible reasons desired conditions are not being met, and proposes 

alternative solutions. Monitoring is essential to provide information to the responsible official so 

he or she can decide if a change in plan components or other plan content may be needed to 

respond to changing conditions and issues. Monitoring is the feedback that enables adaptive 

management. 

Monitoring and evaluation are fundamental to good program management and they:

• Provide data on project implementation and effectiveness

• Improve decision making

• Allow for accountability to stakeholders

• Help identify needed changes in management

• Inform further information needs 

The monitoring plan outlines the general framework for achieving forest plan monitoring 

objectives. It is strategic in nature and contains specific questions that ask how well the Kaibab 

NF is moving toward and achieving its desired conditions and objectives within a given resource 

area. The monitoring plan uses a multi-scaled approach to monitor short and long-term changes. 

Monitoring is not completed on every activity. It does not address project level compliance 

monitoring, which is conducted to evaluate consistency with law, regulation, or policy, unless 

such monitoring answers a Forest-wide question. It is not intended for research purposes and may 

have varying degrees of statistical rigor.

This monitoring plan is intended to be adaptive in nature and incorporates strategies that are 

holistic, collaborative, and grounded in science. This approach should provide the Kaibab NF 

with the best chance for achieving long-term sustainability of its natural resources, as well as the 

natural resources of the greater landscape. 

Although this monitoring plan was developed under the 1982 Planning Rule, current policy 

requires it be compliant with the new (2012) Planning Rule within 4 years. Section 36 CFR 

219.12 (c)(1) states “...The responsible official shall develop the plan monitoring program as 

part of the planning process for a new plan development or plan revision. Where a plan’s 

monitoring program has been developed under the provisions of a prior planning regulation and 

the unit has not initiated plan revision under this part, the responsible official shall modify the 

plan monitoring program within 4 years of the effective date of this part, or as soon as 

practicable, to meet the requirements of this section...” In an effort to streamline this process, 

this monitoring plan was developed proactively and considered many of the key monitoring 

components outlined under the new planning rule. As such, it includes concepts such as 

effectiveness monitoring, adaptive management, and the integration of local scale (e.g. plan-level) 

monitoring with broader landscape-level strategies (e.g. across multiple units, regions). Further, it 

is supportive of multi-party monitoring and intends to leverage existing data sets and the 

inventory and monitoring efforts of other partners and agencies. When additional changes to the 

monitoring plan are necessary to bring it in further compliance with the new planning rule, these 

123
Chapter 5. Monitoring and Evaluation

changes will be addressed through administrative corrections or plan amendments. Additional 

information can be found in Appendix A of the Final Programmatic Impact Statement for the 

2012 Planning Rule, §219.12; Monitoring. Further guidance on monitoring program development 

for individual forest units can be found under Chapter 30-Monitoring, in the Draft Forest Service 

Land Management and Planning Handbook (FSH 1909.12).

An interdisciplinary team developed this monitoring plan to: (1) meet legal requirements, (2) be 

consistent with corporate data standards and protocols, and (3) address the various aspects of 

forest management in an integrated manner. 

This chapter of the Forest Plan provides the overall monitoring strategy, which is one of three 

components that comprise the monitoring and adaptive framework. The three components have 

distinct and complimentary roles.

1. Forest Plan Direction provides broad, strategic guidance and specifies the monitoring 

requirements in the plan itself. It provides the overall monitoring strategy, including 

specific questions that need to be answered, what will be monitored, timetables for 

reporting, and other information. 

2. Monitoring and Evaluation Implementation Guide provides specific, technical 

guidance. It describes how, where, and when to accomplish the monitoring prescribed in 

the plan and provides the specific methods, protocols, and analytical procedures. The 

guide is not part of the forest plan so that it may be more flexible and responsive to new 

information, updated procedures, emerging issues, and budgetary considerations without 

amending the plan. 

3. Annual Monitoring Evaluation Review provides a regular process for reviewing recent

findings and evaluating the need for modifications in the plan, monitoring plan and 

practices. 

Monitoring Strategies

These strategies employ and build on existing methodologies and sources of information, but can 

be expanded and modularized to increase the robustness and comprehensiveness of data 

collection and processing when additional need and capacity arise. These strategies are intended 

to achieve statistically valid outputs through transparent data collection, processing, and analyses, 

as well as facilitate consistency in data collection methods by partners (e.g., adjacent landowners, 

stakeholders, tribes, etc.). This will foster greater efficiency, accountability, comparability of data, 

and the ability to better leverage monetary resources.

The Kaibab NF works with Rocky Mountain Research Station, Forest Service State and Private 

Forestry, and Research and Development, Northern Arizona University, as well as other partners 

(e.g. 4FRI collaborative) and interested organizations to assess research needs, opportunities, and 

methods relevant to current and future forest management. Research organizations help the 

Kaibab NF fill knowledge gaps and develop a better understanding of ecosystem processes, 

structure, pattern, and composition and additional avenues of investigation necessary to validate 

desired conditions and/or improve implementation practices. 

Information Management

Data will be designed and collected according to appropriate data standards and entered into 

corporate databases such as Natural Resource Inventory System or GIS. The information can 

124 Land and Resource Management Plan for the Kaibab National Forest
Chapter 5. Monitoring and Evaluation

then be accessed and analyzed to produce information products such as monitoring reports that 

would be available for internal and external review. These reports should provide the information 

necessary to make informed management decision.

Monitoring and Evaluation Implementation Guide

A more prescriptive implementation guide is being drafted that will describe “the how” in terms 

of specific sample designs and strategies, identify indicator variables and models to be used, and 

determine any appropriate target thresholds/benchmarks to be met. This guide will be tested and 

likely modified over time. The implementation guide is not part of the plan; rather it is 

supplemental information to improve effective implementation of the plan and to identify 

adaptive management strategies. As such, it can be adjusted as needed to improve efficiency and 

updated to be adaptive and responsive to address emerging issues, new science, changes to 

recommended survey methodologies and techniques, and fluctuations in budget without a plan 

amendment. The guide is being developed collaboratively with area experts and statisticians in 

order to reflect the best available science, while yielding statistically valid, robust, and 

contemporary data sets to the extent possible. The implementation guide will build off of and 

integrate methodologies specified in the background reports for the rapid plot monitoring design

and remotely sensed tools for determining changes in forest structural conditions (Dickson et al. 

2011, Ray, et al. 2012).

Monitoring Matrix

This monitoring matrix contains the plan decisions of the monitoring plan. It includes a 

combination of effectiveness and implementation monitoring. It is organized by five primary 

methods of data acquisition. Each matrix subheading is described in detail below. The order of 

monitoring items within each subheading follows the order of each resource area within the plan. 

In many cases, data collected on one metric may help to answer several questions, improving 

efficiency and utility of the data. Efficiency is also achieved by leveraging existing and 

complimentary data sources from internal as well as external parties to the extent practicable.

Frequency of data collection, evaluation, and reporting varies by resource area and monitoring 

question. That is, not every item identified in the matrix is monitored or reported out on every 

year.

Data Acquisition Methods

Specific monitoring questions require that data be gathered at multiple scales. As a result, a 

combination of strategies for obtaining data are used, including existing methodologies and 

sources of information, rigorous field assessment protocols, remote sensing techniques, and 

existing monitoring efforts and other sources of information. Additionally, data collected for other 

purposes that can be used to answer monitoring questions are specified, obtained, and evaluated 

as part of the monitoring plan.

Rapid Plots indicate status of key ecological attributes for a focal ecological resource at the mid 

to fine spatial scales, although measurements in multiple locations may provide wide spatial 

coverage. Data include relatively simple field based metrics. Examples include snags, down logs, 

large trees, presence of nonnative invasive species, and soil conditions. 

Rapid plot data would be collected on key parameters using a systematic sampling framework 

superimposed across the entire Kaibab NF. Planned and existing projects would help guide the 

Land and Resource Management Plan for the Kaibab National Forest 125
Chapter 5. Monitoring and Evaluation

plot placement process with the intent that data collected at the project level would be aggregated 

with other rapid plot data to make inferences at the Forest level. The Rapid Plot Monitoring 

Design and Statistical Guide for the Kaibab NF (Ray et al. 2012) supports the monitoring plan 

and provides more detailed information.

Remotely Sensed monitoring indicates status of key ecological attributes for a focal ecological 

resource at landscape scales and/or at coarser spatial resolution. Data sources include GIS and 

remote sensing imagery, which would indicate changes in land cover across the entire Kaibab NF, 

as well as adjacent and nearby lands. Examples of outputs include landscape composition, 

pattern, and fragmentation. Some data collected through rapid plots may be used to validate and 

improve the accuracy of remote sensing data.

Existing Sources are existing data the Kaibab NF or its partners already collect and report. Much 

of these data are managed under the Natural Resource Manager system, a system of database 

tools for managing Agency data across the Forest Service. Natural Resource Manager includes 

Forest Service Activity Tracking System, Infrastructure, and the Natural Resource Information 

System databases, among others. Data routinely collected by the Arizona Department of 

Environmental Quality, Arizona Game and Fish Department, and USDA Animal and Plant Health 

Inspection Service are other sources of existing data that can be leveraged to answer Forest-wide 

questions.

Interviews are largely qualitative in nature and may be subjective. These may include questions 

posed to resource specialists or partners or during tribal discussions. Follow-up interpretation of 

the results is required to obtain information. 

Intensive monitoring indicates status of key ecological attributes for focal ecological resources at 

fine spatial scales or spatial resolution, although measurements in multiple locations can provide 

wide spatial coverage. Data sources might include simple to complex field-based metrics that are 

usually quantitative and collected within a statistical sampling design. Examples include surveys 

of birds to assess density levels, analyses involving specific soil and water chemistry parameters, 

and quantitative vegetation structure measurements.

Matrix Data Fields

Resource area: A quantitative or qualitative resource, use, or activity parameter that can be 

assessed, e.g., vegetation communities, wildlife species, invasive species, recreation, etc.

Monitoring question: Specific monitoring questions ensure that the information essential to 

measuring progress toward meeting the plan objectives and desired conditions is collected and 

evaluated. Monitoring questions focus on key plan components where carrying out projects and 

activities are planned and changes are likely to result over time.

Metric: Metrics or indicators that are key attributes for a particular resource area. Indicators 

were selected that are specific and measurable, and occasionally include multiple metrics. In 

some cases, one metric can answer several different questions. These attribute measurements can 

be quantitative and/or qualitative and should provide enough information to answer the 

monitoring question(s). Indicators should be conducive to effective and systematic repeatable 

monitoring with existing survey methodology and within budgetary constraints.

126 Land and Resource Management Plan for the Kaibab National Forest
Chapter 5. Monitoring and Evaluation

Driver: Monitoring drivers identify the reasons for monitoring a particular item. Drivers can be:

(1) legal and regulatory requirements and Forest Service Manual direction; (2) forest plan desired 

conditions, goals, objectives, standards, and guidelines; (3) validation of assumptions and 

predictions; or (4) court rulings or legal and regulatory compliance. The matrix below lists the 

primary drivers associated with the forest monitoring questions; it is not an exhaustive list. 

Measurement interval: Describes how often monitoring information is collected. This varies 

based on the resource area, monitoring drivers, and questions.

Evaluation and reporting interval: Describes how often monitoring information is evaluated 

and reported. The initial data will be assessed to establish a “baseline” against which change can 

be compared. Monitoring reports will be prepared on an annual basis with a comprehensive 

review occurring approximately every five years. This would allow the Kaibab NF to evaluate the 

overall monitoring program and management actions and to identify any conditions that would

trigger a change in management or prompt further investigation, either internally or externally. 

This evaluation would allow the Kaibab NF to add, modify, or delete existing questions no longer 

needed in the monitoring plan. It would also assess plan components and implementation 

effectiveness, and whether or not the Kaibab NF is achieving and maintaining desired conditions. 

Precision and Reliability: Two categories of precision and reliability are appropriate at the plan 

scale: 

Class A (Quantitative) are methods appropriate for modeling or quantitative measurement. 

Results have a high degree of repeatability, reliability, accuracy, and precision. 

Class B (Qualitative) are methods based on project records, personal communications, ocular 

estimates, pace transects, informal visitor surveys, and similar types of assessments. The 

degree of repeatability, reliability, accuracy, and precision are not as high as Class A 

methods, but they still provide valuable information and are more appropriate for some 

resource areas.

Land and Resource Management Plan for the Kaibab National Forest 127
Chapter 5. Monitoring and Evaluation

128 Land and Resource Management Plan for the Kaibab National Forest

Table 5. Matrix for the Kaibab NF Monitoring Plan

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measurement 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

RAPID PLOT

01 Ponderosa 

Pine and 

Frequent 

Fire Mixed 

Conifer

Soils and 

Watersheds,

Threatened, 

Endangered 

and Sensitive 

Species

Are snags, 

coarse woody 

debris, downed 

logs and large 

old trees at 

desired levels at 

the midscale 

(100-1,000 acre 

average)? 

Number 

per acre

Ponderosa Pine Midscale Desired Condition 

(DC)s: Snags 18 inches d.b.h. or greater average 1 to 

2 snags per acre. Snags and green snags of variable 

size and form are common. 

Downed logs (greater than12 inches diameter at midpoint and greater than 8 feet long) average 3 logs per 

acre. Coarse woody debris greater than 3 inches in 

diameter (including downed logs) ranges from 3 to 

10 tons per acre (Ponderosa Pine). Coarse woody 

debris, including downed logs, ranges from 5 to 15 

tons per acre (Frequent Fire Mixed Conifer).

Ponderosa Pine, Frequent Fire Mixed Conifer 

Landscape scale DCs: Old growth occurs 

throughout the landscape, generally in small areas as 

individual old growth components, or as clumps of 

old growth. Old growth components include old 

trees, snags, coarse woody debris, and structural 

diversity. The location of old growth shifts on the 

landscape over time as a result of succession and 

disturbance (tree growth and mortality).

Soils DC: Logs and other woody materials are 

distributed across the surface to maintain soil 

productivity.

MSO Recovery Plan

1-5 2-5 A

02 Ponderosa 

Pine and 

Frequent 

Fire Mixed 

Conifer

Is the fuel 

loading within 

the desired 

range?

Tons per 

acre

Ponderosa Pine Midscale DC: Coarse woody 

debris greater than 3 inches in diameter (including 

downed logs) ranges from 3 to 10 tons per acre. 

Frequent Fire Mixed Conifer Midscale DC:

Coarse woody debris, including downed logs, ranges 

from 5 to 15 tons per acre.

1-5 2-5 A
Chapter 5. Monitoring and Evaluation

Land and Resource Management Plan for the Kaibab National Forest 129

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

03 Soils and 

Watersheds

What is the 

percent of 

effective ground 

cover?

What is the 

proportion of 

live and dead

vegetation, rock, 

and bare

ground? 

Percent

cover

Soils DC: Vegetative ground cover is well 

distributed across the soil surface to promote nutrient 

cycling and water infiltration.

LandscapePonderosa Pine, Frequent Fire Mixed 

Conifer, Mesic Mixed Conifer/Spruce Fir 

Finescale DC: Organic ground cover and 

herbaceous vegetation provide for soil and moisture 

infiltration, and contribute to plant and animal 

diversity and to ecosystem function.

1-52-5A

04 Soils and 

Watersheds

Are the effects 

of forest 

management 

resulting in 

changes to the 

productivity of 

soils (e.g. 

evidence of 

platy structures, 

pedastalling of 

vegetation or

rock, rills)?

Presence /

absence

Soil DC: Soils can readily absorb, store, and 

transmit water vertically; accept, hold, and release 

nutrients; and resist erosion.

National Forest Management Act, 1976 (16 U.S.C. 

1604(g)(3)(C))

1-52-5 A/B

05 Soils and 

Watersheds

Is there 

downcutting 

and/or

embeddedness 

in ephemeral 

drainages?

Presence /

absence

Watershed DC: Vertical down cutting and 

embeddedness are absent in drainages.

1-52-5B
Chapter 5. Monitoring and Evaluation

130 Land and Resource Management Plan for the Kaibab National Forest

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

06 Nonnative

Invasive

Species

What is the 

percent cover of 

noxious weeds

1

by species?

Percent

cover

Nonnative Invasive DC: Invasive species are 

contained and/or controlled so that they do not 

disrupt the structure or function of ecosystems or 

impact native wildlife.

Nonnative Invasive Guideline(GD): New 

populations should be detected early, monitored, and 

treated as soon as possible.

1-52-5A

REMOTELY SENSED

07 Ponderosa 

Pine and 

Frequent 

Fire Mixed 

Conifer

How many acres 

of the Kaibab 

NF is in an 

uneven aged 

open state, at the 

midscale (above 

100 acres)?

Acres Ponderosa Pine and Frequent Fire Mixed Conifer 

Landscape DC: The ponderosa pine/frequent fire 

mixed conifer forest vegetation community is a 

mosaic of forest conditions composed of structural 

stages ranging from young to old trees. The forest is 

generally uneven aged and open.

Frequent Fire Mixed Conifer DCs: The frequent 

fire mixed conifer forest vegetation community is 

characterized by variation in the size and number of 

tree groups depending on elevation, soil type, aspect, 

and site productivity. Forest appearance is variable,

but generally uneven-aged and open; occasional 

patches of even-aged structure are present. 

Frequent Fire Mixed Conifer and Ponderosa Pine 

Midscale DC: Forest conditions in some areas 

contain 10 to 20 percent higher basal area in mid-

aged to old tree groups than in the general forest 

(e.g. goshawk post-fledging family areas, MSO 

nesting/roosting habitat, drainages, and steep north-

facing slopes).

MSO Recovery Plan

3-53-5 A/B
Chapter 5. Monitoring and Evaluation

Land and Resource Management Plan for the Kaibab National Forest 131

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

08 Ponderosa 

Pine and 

Frequent 

Fire Mixed 

Conifer

How many acres 

are predicted to 

support active 

crown fire as 

modeled under 

typical peak fire 

danger 

conditions at the 

midscale?

Acres Ponderosa Pine and Frequent Fire Mixed Conifer 

Midscale DC: Fires burn primarily on the forest 

floor and typically do not spread between tree 

groups as crown fire.

Ponderosa Pine Objective (OBJ): To reduce the 

potential for active crown fire in ponderosa pine 

communities: Mechanically thin 11,000 to 19,000 

acres annually; Burn an average of 13,000 to 55,000 

acres annually using a combination of prescribed fire 

and naturally ignited wildfires.

Frequent Fire Mixed Conifer OBJs: Burn an 

average of 1,000 to 13,000 acres annually using 

prescribed fire and/or naturally ignited wildfires. 

Mechanically thin 1,200 to 2,100 acres per year.

3-53-5A

09 Ponderosa 

Pine and 

Frequent 

Fire Mixed 

Conifer

Is the stand 

density within a 

range that will 

allow for a 

robust 

understory?

Acres, 

SDI

2

Finescale DC: Organic ground cover and 

herbaceous vegetation provide protection for soil

and moisture infiltration, and contribute to plant and 

animal diversity and to ecosystem function.

3-53-5 A/B
Chapter 5. Monitoring and Evaluation

132 Land and Resource Management Plan for the Kaibab National Forest

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

10 Ponderosa 

Pine, Mixed Conifer, Spruce fir, 

and Pinyon-

juniper Communi

-

ties.

How many acres 

are at high risk

for insect 

outbreaks? 

Acres, 

SDI

Ponderosa Pine Landscape DC: The landscape is a 

functioning ecosystem that contains all components, 

processes, and conditions associated with endemic 

levels of disturbances (e.g. fire, dwarf mistletoe, 

insects, diseases, lightning, drought, and wind).

Forest vegetation conditions are resilient to the 

frequency, extent, and severity of disturbances and 

climate variability.

Frequent Fire Mixed Conifer Landscape DC: The 

landscape is a functioning ecosystem that contains 

all components, processes, and conditions that result 

from endemic levels of disturbances (e.g., fire, 

insects, diseases, and wind). 

Mesic Mixed Conifer/Spruce Fir Landscape DCs: 

The forest landscape is a functioning ecosystem that 

contains all components, processes, and conditions 

that result from endemic levels of disturbances (e.g. 

insects, diseases, wind, snow, and fire), including 

snags, downed logs, and old trees. The composition, 

structure, and function of vegetative conditions are 

resilient to the frequency, extent, and severity of 

disturbances and climate variability.

Pinyon-juniper Communities DC: The 

composition, structure, and function of vegetative 

conditions are resilient to the frequency, extent, and 

severity of disturbances (e.g. insects, diseases, and 

fire) and climate variability.

1-22-5 A/B
Chapter 5. Monitoring and Evaluation

Land and Resource Management Plan for the Kaibab National Forest 133

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

11 Ponderosa 

Pine and 

Frequent 

Fire Mixed 

Conifer

What is the total

area within the 

desired range for basal area and 

openings? 

BA, 

OpenCan

opy

Ponderosa Pine Midscale DCs: Basal area within 

forested areas generally ranges from 20 to 80 sq

ft/acre, with larger trees (i.e. >18 inches in diameter) 

contributing the greatest percent of the total basal 

area. Interspaces with native grass, forb, and shrub 

vegetation are variably shaped and typically range 

from 10 to 70 percent, with the more open 

conditions typically occurring on less productive 

sites.

Frequent Fire Mixed Conifer Midscale DCs:

Basal area within forested areas generally ranges 

from 30 to 100 sq ft/acre, with larger trees 

contributing the greatest percent of the total basal 

area. Interspaces with native grass, forb, and shrub 

vegetation typically range from 10 to 50 percent of 

the area.

3-53-5A

12 Aspen What is the areal 

extent and 

configuration of 

aspen on the

Kaibab NF?

Acres Aspen DC: Aspen occurs in natural patterns of 

abundance and distribution at levels similar to or 

greater than those at the time of plan approval.

3-53-5A

13 Grasslands What percent of 

the grassland 

PNVT has <10

percent canopy 

cover?

Percent 

cover

Grassland DC: Tree and shrub canopy cover are 

each less than 10 percent.

3-53-5 A/B

14 Wildlife Does habitat 

configuration 

provide 

functional 

connectivity for 

pronghorn?

Suitability 

Index

3

Wildlife DCs: Interconnected forest and grassland 

habitats allow for movement of wide ranging 

species. Habitat configuration and availability allows 

wildlife populations to adjust their movements (e.g. 

seasonal migration, foraging, etc.) in response to 

climate change and promote genetic flow between 

wildlife populations.

3-53-5 A/B
Chapter 5. Monitoring and Evaluation

134 Land and Resource Management Plan for the Kaibab National Forest

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measurement 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

EXISTING SOURCES

15 Fire Adapted 

Ecosystems25

How many acres 

were burned 

with desired and 

undesired fire 

behavior and 

effects? 

Acres Ponderos Pine and Frequent Fire Mixed Conifer 

Finescale DC: Fires generally burn as surface fires, 

but single tree torching and isolated group torching 

is not uncommon.

Ponderos Pine and Frequent Fire Mixed Conifer 

Midscale DC: Fires primarily burn on the forest 

floor and typically do not spread between tree 

groups as crown fire.

Ponderos Pine and Frequent Fire Mixed Conifer 

Landscape DC: Fire and other disturbances are 

sufficient to maintain desired overall tree density, 

structure, species composition, coarse woody debris 

loads, and nutrient cycling. Frequent, low severity 

fires (Fire Regime I) occur across the entire 

landscape with a return interval of 0 to 35 years.

1-2 5 A

16 Fire Adapted 

Ecosystems

How many acres 

were treated 

with mechanical 

thinning by 

PNVT?

Acres Ponderosa Pine OBJ: To reduce the potential for 

active crown fire in ponderosa pine communities: 

Mechanically thin 11,000 to 19,000 acres annually.

Frequent Fire Mixed Conifer OBJ: Mechanically 

thin 1,200 to 2,100 acres per year.

Grasslands OBJ: Reduce tree density to less than 

10 percent on 5,000 to 10,000 acres of historic 

grasslands annually.

1-2 2-5 A

25Fire adapted ecosystems include pinyon-junper, ponderosa pine, mixed conifer forests, grasslands, Gambel oak wodlands, and some 

sagebrush shrublands. 

 
Chapter 5. Monitoring and Evaluation

Land and Resource Management Plan for the Kaibab National Forest 135

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

17 Fire Adapted 

Ecosystems

How many acres 

of conifer 

species were 

planted? Were 

they successful?

Acres Activies Following Large

-Scale Disturbance 

OBJ: Plant 300 to 700 acres annually

1982 Planning Rule: 219.12

1-52-5 A/B

18 Aspen

(Tusayan 

and Williams Ranger Districts)

What was the 

total area of 

aspen fenced?

Acres Aspen OBJ: Fence 200 acres of aspen within 10 

years of plan approval. 

1-2 2-5A

19 Aspen How many acres 

treated for 

conifer 

encroachment?

Acres Aspen OBJ: Reduce conifer encroachment on 800 

acres of aspen within 10 years of plan approval. 

1-22-5A

20 Grasslands What is the 

relative 

composition and 

cover of 

grasslands?

Frequency Grassland DCs: Vegetation is dominated by 

herbaceous plants composed of a mix of native 

grasses and forbs. The structure, composition, and 

distribution of vegetation are within the range of 

natural variability and occur in natural patterns of 

abundance and diversity, which may vary depending 

on soil type and microclimate.

Organic litter varies between 30 and 50 percent of 

the ground cover. Vegetation composition will 

average 40 to 60 percent grass, and 10 to 30 percent 

forbs. Understory vegetation reflects the site 

potential.

1-52-5A/B
Chapter 5. Monitoring and Evaluation

136 Land and Resource Management Plan for the Kaibab National Forest

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

21 Grasslands How many 

miles of fence 

were modified 

for pronghorn?

Miles Grasslands OBJ: Modify fences and/or install 

crossings to facilitate pronghorn movement on 50 

miles of fence within 10 years of plan approval.

1-2 2-5A

22 Ponderosa 

Pine, 

Frequent fire 

Mixed 

Conifer, 

Mesic Mixed 

Conifer/Spru

ce-fir, and 

Pinyon-

juniper 

What is the 

acreage of 

outbreaks of 

insects and 

disease? 

Acres Ponderosa Pine Landscape DC: The landscape is a 

functioning ecosystem that contains all components, 

processes, and conditions associated with endemic 

levels of disturbances (e.g. fire, dwarf mistletoe, 

insects, diseases, lightning, drought, and wind).

Forest vegetation conditions are resilient to the 

frequency, extent, and severity of disturbances and 

climate variability.

Pinyon-juniper Communities DC: The 

composition, structure, and function of vegetative 

conditions are resilient to the frequency, extent, and 

severity of disturbances (e.g. insects, diseases, and 

fire) and climate variability.

1-22-5A

23 Wildlife 

(MIS

4

)

What is the 

estimated 

population trend 

of pronghorn?

Trend FSM Policy: Population trends of the management 

indicator species will be monitored and relationships 

to habitat changes determined. This monitoring will 

be done in cooperation with state fish and wildlife 

agencies to the extent practicable.

1982 Planning Rule: 219.19

1-22-5 A/B

24 Nonnative 

Invasive 

Species

What is the areal 

extent of priority 

nonnative 

invasive plants 

on the Kaibab 

NF?

Acres Nonnative Invasive Species GD: New populations 

should be detected early, monitored, and treated as 

soon as possible.

1-2 2-5A

25 Nonnative 

Invasive 

Species

How many acres 

of invasive 

plants were 

treated?

Acres Nonnative Invasive SpeciesOBJ: Treat 2,000 to 

3,000 acres invaded by nonative plants annually.

1-2 2-5A
Chapter 5. Monitoring and Evaluation

Land and Resource Management Plan for the Kaibab National Forest 137

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

26 Natural 

Waters

How many 

springs were 

protected and 

restored?

Count Natural Waters OBJ: Protect and/or restore at 

least 10 individual springs within 5 years of plan 

approval. 

1-2 2-5A

27 Wetlands/ 

Cienegas

How many acres 

of wetlands

were restored?

Acres Wetlands/CienegasOBJ: Restore native vegetation

and natural water flow patterns on at least 6 acres of 

wetlands within 5 years of plan approval.

1-2 2-5A

28 Soils and 

Watersheds

Are there any 

water bodies not 

meeting Arizona 

water quality 

standards?

Count Watershed DC: Water quality meets or exceeds 

State of Arizona or Environmental Protection 

Agency water quality standards for designated uses. 

Water quality meets critical needs of aquatic species.

2-52-5A

29 Air Quality How many days 

did forest 

activities 

contribute to 

exceeding State 

standards for 

visibility and 

public health?

Count Air Quality DC: Air quality meets or surpasses all 

state and federal ambient air quality standards.

1-22-5 A

30 Recreation How many acres 

of the Kaibab 

NF had a change 

in ROS or SMS 

reclassification?

Visitor 

Use

Recreation DCs: A wide spectrum of high-quality 

recreation settings exists. Users have access to a 

variety of developed and dispersed opportunities. 

The Kaibab NF provides sustainable recreation 

consistent with public demand. Use levels are 

compatible with other resource values. User conflicts 

are infrequent.

1-2 2-5B

31 Recreation How many 

miles of trails 

were maintained 

to standard? 

Miles Recreation DCs: Recreation use levels are 

compatible with other resource values.

1-2 2-5A
Chapter 5. Monitoring and Evaluation

138 Land and Resource Management Plan for the Kaibab National Forest

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

32 Cultural 

Resources

How many acres 

of non-project 

related cultural 

resource surveys 

were conducted?

Acres Cultural Resource OBJ: Non-project related 

cultural resource survey (Section 110 survey) is 

conducted in areas with a high likelihood of historic 

properties on at least 200 acres per year.

1-2 2-5A

33 Forestry and 

Forest 

Products

How many acres 

of suitable 

timberlands 

were managed 

(TSI, harvest, 

etc.) for timber 

production? 

Acres National Forest Management Act 

(1976)

1-2 2-5A

34 Forestry and 

Forest 

Products

Have much 

wood was 

offered?

CCF

5 Forestry and Forest Products DC

s: Wood 

products (e.g., wood pellets for home and industrial 

heating, oriented strand board, animal bedding,

wood moulding, pallets, structural lumber, firewood, 

posts, poles, biomass for electricity.) are available to 

businesses and individuals in a manner that is 

consistent with other desired conditions on a 

sustainable basis within the capacity of the land. 

A sustainable supply of wood is available to support 

a wood harvesting and utilization industry of a size 

and diversity that can effectively and efficiently 

restore and maintain the desired conditions for 

ponderosa pine and frequent fire mixed conifer 

communities. 

1-2 2-5A

35 Forestry and 

Forest 

Products

How many 

direct jobs does 

the Kaibab NF

support/provide 

from harvesting 

and utilization 

of wood 

products? 

Number 

of jobs

Forestry and Forest Products DC: A sustainable 

supply of wood is available to support a wood 

harvesting and utilization industry of a size and 

diversity that can effectively and efficiently restore 

and maintain the desired conditions for ponderosa 

pine and frequent fire mixed conifer communities.

2-52-5A
Chapter 5. Monitoring and Evaluation

Land and Resource Management Plan for the Kaibab National Forest 139

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

36 Forestry and 

Forest 

Products

Have there been 

significant 

investments in 

the wood har-

vesting and util-

ization infra-

structure in the 

operating area?

Produc-

tion 

capacity

Forestry and Forest Products DC: A sustainable 

supply of wood is available to support a wood 

harvesting and utilization industry of a size and 

diversity that can effectively and efficiently restore 

and maintain the desired conditions for ponderosa 

pine and frequent fire mixed conifer communities.

2-52-5B

37 Forestry and 

Forest 

Products

What was the 

average cost per 

acre to the 

Forest Service 

for mechanical 

treatments?

Dollars/ 

acre

National Forest Management Act (1976)

2-52-5A

38 Forestry and 

Forest 

Products

What is the ratio 

of costs to 

revenues for 

mechanical 

thinning activities?

Cost: 

revenue

National Forest Management Act (1976)

2-52-5A

INTERVIEWS

39 Ponderosa 

Pine, Mixed Conifer, 

Spruce-fir, 

and Pinyon-

juniper Communities

Were there any 

incidences of 

insect outbreaks 

in recently 

treated areas? If 

so, where?

Presence /

absence, 

location

National Forest Management Act (1976)

1-22-5 A/B
Chapter 5. Monitoring and Evaluation

140 Land and Resource Management Plan for the Kaibab National Forest

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

40 Ponderosa 

Pine, Mixed 

Conifer, 

Spruce-fir, 

and Pinyon-

juniper 

Communi-

ties.

What was the 

median and 

maximum size 

openings created 

through 

implementation 

of precribed 

mechanical 

treatments?

Acres Ponderosa Pine and Frequent Fire Mixed 

Conifer Finescale DC: Regeneration openings 

occur as a mosaic and are similar in size to nearby 

groups.

1982 Planning Rule: 219.12

1-2 2-5A

41 Pinyon

-

Juniper 

Woodlands

Was a robust 

crop of pinyon 

nuts produced 

on any of the districts?

Presence

/absence, 

location

Pinyon-Juniper DC: A robust crop of pinyon pine 

nuts is regularly produced.

1-2 5B

42 Recreation Did we receive 

any comments 

that reflect 

visitor 

satisisfaction? 

Were there 

common 

themes?

Yes or 

no, 

themes.

Recreation DCs: User conflicts are infrequent. 

Service centers such as district offices, visitor 

information centers, developed campgrounds, and 

other staffed recreation sites provide information and 

services in communities and along primary forest

access corridors and scenic byways. Front-country 

areas are safe, orderly, and capable of supporting 

moderate to high visitor use.

1-2 2-5B

43 Wilderness Were the 

wilderness trails 

and campsites 

monitored? 

What were the 

results?

Yes or 

no; 

findings

Wilderness OBJs: Inspect and maintain at least 10 

percent of wilderness trails and signs annually. 

Monitor 10 percent of wilderness campsites each 

year.

1-2 2-5B
Chapter 5. Monitoring and Evaluation

Land and Resource Management Plan for the Kaibab National Forest 141

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

44 Recreation 

and 

Transpor-

tation

Are there areas 

of the Kaibab 

NF where 

recreation or 

vehicle use is

causing 

detrimental 

resource effects 

that are in need 

of management? 

Where is it 

occurring?

Presence /

absence, 

location

Recreation DCs: A wide spectrum of high-quality 

recreation settings exists. Users have access to a 

variety of developed and dispersed opportunities. 

The Kaibab NF provides sustainable recreation 

consistent with public demand. Use levels are 

compatible with other resource values.

Transportation DCs: Roads and culverts do not 

contribute to headcuts or downcuts in ephemeral 

drainages. 

Roads allow for safe and healthy wildlife movement 

in areas of human development.

Vehicular collisions with animals are rare.

2-52-5A/B

45 Cultural 

Resources

Are cultural 

resources being 

protected in 

place?

Yes or 

no

Cultural Resource DC: Cultural resources,

including known traditional cultural properties, are 

preserved, protected, or restored.

1-2 2-5B

46 Livestock 

Grazing

Are livestock 

numbers 

balanced with 

forage capacity 

on each 

allotment?

Yes or noLivestock Grazing DCs: Grasses and forbs provide 

adequate forage for permitted livestock. Livestock 

use is consistent with other desired conditions. 

1-2 1-5B

47 Tribal 

Traditional 

and Cultural 

Uses

Are plant 

species of

known

medicinal and 

cultural value

being depleted?

Yes or 

no

Tribal Traditional and Cultural Use DCs:

Traditional tribal uses such as the collection of 

medicinal plants and wild plant foods are valued as 

important uses.

Traditionally used resources are not depleted and are 

available for future generations.

1-22-5B
Chapter 5. Monitoring and Evaluation

142 Land and Resource Management Plan for the Kaibab National Forest

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

48 Arizona 

Bugbane 

Botanical 

Area, 

Threatened, 

Endangered, 

and Senstive 

Species

Were the 

monitoring 

requirements 

met as identified 

in the AZ 

Bugbane 

conservation 

agreement? 

Yes or 

no

Bugbane Botanical Area DCs: Arizona bugbane 

has a sustainable population and is at low risk for 

extirpation.

Other: Arizona Bugbane Conservation Agreement

55B

49 Pediocactus 

Conserva-

tion Area, 

Threatened, 

Endangered, 

and Senstive 

Species

Were the 

monitoring 

requirements 

met as identified 

in the 

Pediocactus 

conservation 

agreement?

Yes or 

no

Pediocactus Conservation Area DC: Paradine 

plains cactus (Pediocactus paradinei) has a 

sustainable population and is at low risk for 

extirpation.

Other: Pediocactus Conservation Agreement

55B

50 Timber 

Suitability

Were there any 

events or 

changed 

circumstances 

that would 

indicate a 

potential 

change to timber 

suitability?

Acres of 

suitable 

timber 

lands

1982 Planning Rule: 219.122-52-5 A/B

INTENSIVE

51 Aspen Is aspen 

regenerating and 

becoming 

established in 

treated areas?

Regener-

ation and 

recruit-

ment

Aspen DCs: Aspen is successfully regenerating and 

recruiting into older and larger size classes. Size 

classes have a natural distribution, with the greatest 

number of stems in the smallest classes. Aspen 

occurs in natural patterns of abundance and 

distribution at levels similar to or greater than those 

at time of plan approval.

2-5 5 A/B
Chapter 5. Monitoring and Evaluation

Land and Resource Management Plan for the Kaibab National Forest 143

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measure-

ment 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

52 Natural and 

Constructed 

Waters

What is the 

functional 

condition of the 

lakes and 

wetlands on the 

Kaibab NF?

PFC

6 Natural Waters DC: Water levels, flow patterns, 

groundwater recharge rates, and geochemistry are 

similar to reference conditions.

Constructed Waters DC: Reservoirs maintain high 

water quality for parameters such as temperature, 

pH, and dissolved oxygen, and water levels are

within the seasonal range of variable conditions.

3-5 5 A/B

53 Natural 

Waters

In treated/

protected areas, 

are waterflow 

patterns and 

vegetation 

intact? 

Yes or 

no

Natural Waters DC: Water levels, flow patterns, 

groundwater recharge rates, and geochemistry are 

similar to reference conditions.

2-102-10B

54 Wildlife 

(MIS)

What is the 

estimated 

population trend 

for Graces 

warbler, western 

bluebird and 

ruby-crowned 

kinglet?

Trend FSM Policy: Population trends of the management 

indicator species will be monitored and relationships 

to habitat changes determined. This monitoring will 

be done in cooperation with state fish and wildlife 

agencies to the extent practicable.

1982 Planning Rule: 219.19

1-55-10 A/B

55 Threatened Endangered 

and Sensitive 

Species

Are Mexican 

spotted owls 

present in 

PACs?

Presence

/absence

Mexican Spotted Owl Recovery Plan

1-52-5B
Chapter 5. Monitoring and Evaluation

144 Land and Resource Management Plan for the Kaibab National Forest

No. Resource 

Area 

Monitoring 

Question Metric Driver (desired conditions, objectives, policy, etc.)

Measurement 

Interval 

(years)

Evaluation/

Report 

Interval 

(years)

Precision

56 Threatened 

Endangered

and Sensitive

Species

What is the 

population trend 

of Pediocactus 

peeblesianus

var. fickeisenii?

Trend FSM 2670: Determine distribution, status, and trend 

of threatened, endangered, proposed, and sensitive 

species and their habitats on Forest lands.

1-5 2-5 A/B

57 Double A 

Wild and 

Free 

Roaming 

Burro 

Territory

What is the 

estimated burro 

population 

within the area? 

Count Double A Wild and Free Roaming Burro 

Territory DC: A biologically sound and genetically 

viable burro population is in balance with native 

wildlife, permitted livestock, and other resource 

values.

Other: Wild Free-Roaming Horses and Burros Act 

of 1971: Forest Service Handbook sections 2263.1 

Territory Plans and 2265.3 - Removal of Excess 

Animals.

3-5 3-5 B

Key: 1 Noxious weed is a legal term applied to plants or plant parts regulated by Federal and State laws. Arizona Administrative Codes R3-4-244, R3-

4-245 (Arizona Department of Agriculture 1999) regulate certain invasive species in the state: “A noxious weed is defined as any species of plant 

that is detrimental or destructive and difficult to control or eradicate and includes plant organisms found injurious to any domesticated, cultivated, 

native, or wild plant.”

2

 Stand density index (SDI) is a relative measure of stand density that converts a stand’s current density into a density at a reference size 

(Reineke 1933).

3

 Based on connectivity modeling (Hurteau 2010)

4

 Management indicator species

5

 CCF: Wood volume (hundred cubic feet) 6

 Proper functioning condition: a methodology for assessing the physical function of riparian and wetland areas.
List of Preparers

Interdisciplinary Team

Ariel Leonard, Forest Planner, ID Team Leader

Bruce Higgins, Planning Assistance Contractor (2009-present) ID Team Leader (2005-2009)

Gary Snider, Natural Resources Planner and Economist

Valerie Stein Foster, Wildlife Biologist

Holly Kleindienst, Fuels and Fire Management Specialist

Jared Scott, GIS Specialist

John Brown, Lands and Special Uses

Charlotte Minor, Recreation Specialist/Landscape Architect

Mike Hannemann, Range Specialist

Mike Lyndon, Heritage Resource Specialist and Tribal Liaison

Barb Phillips, Zone Botanist for the Kaibab, Coconino, and Prescott National Forests

Christopher MacDonald, Soil Scientist

Ed Monin, Engineer

Dustin Burger, Range Management Specialist

Review and Expert Support

Kat Woods, Independent Resources Recreation Specialist

Kevin Larkin, Deputy District Ranger, Recreation Staff Officer

Alvin Brown, Forest NEPA Specialist

Stu Lovejoy, Stewardship Staff Officer

Christa Osborn, Recreation Specialist

Chirre Keckler, Forest Wildlife Biologist

Angela Gatto, North Kaibab District Wildlife Biologist

John O’Brien, Forest Engineer

Connie Reid, Archeologist and North Kaibab RD Tribal Liaison

Russ Truman, Fuels Specialist

Marcos Roybal, Planning Assistant

Larry Stevens, Museum of Northern Arizona springs consultant

Julie Rowe, Recreation and Wilderness Program Manager

Mark Herron, Forest Silviculturalist/NEPA Specialist

145

Glossary and Acronyms 

Glossary

Adaptive management is a system of management practices based on clearly identified intended 

outcomes and monitoring to determine if management actions are meeting those outcomes. If not, 

adaptive management facilitates management changes that will best ensure that those outcomes 

are met or reevaluated. Adaptive management stems from the recognition that knowledge about 

natural systems is sometimes uncertain.

All lands is the concept that ecosystems transcend land ownership boundaries, thus, effective 

land and resource management requires cooperation and collaboration among the Forest Service, 

other land managing agencies, tribes, and private landowners. This plan was developed using an 

approach whereby plan components were developed considering the greater landscape and the 

Kaibab NF’s ecological, social, and economic role. 

Age class is defined as trees that originated within a relatively distinct range of years. Typically 

the range of years is considered to fall within 20 percent of the average natural maturity (e.g., if 

100 years is required to reach maturity, then there would be five 20-year age classes).

Basal area is the cross-sectional area at breast height (4.5 feet above the ground) of trees,

measured in square feet. Basal area is a way to measure how much of a site is occupied by trees. 

The cross-sectional area is determined by calculating the tree’s radius from its diameter 

(diameter/2 = radius) and using the formula for the area of a circle (π x radius2 = cross-sectional 

area). Basal area per acre is the summation of the cross-sectional area of all trees in an acre or in a 

smaller plot used to estimate basal area per acre. Diameter at root collar (defined below) is used 

to calculate the cross-sectional area of multi-stemmed trees such as juniper and oak.

Browse is either: (1) the part of shrubs, half shrubs, woody vines, and trees available for animal 

consumption; or (2) to search for or consume browse. Interagency Technical Reference 1734-4 

Sampling Vegetation Attributes. 1999 (ITR 1734-4).

Climate change refers to any significant change in the measures of climate lasting for an 

extended period of time. In other words, climate change includes major changes in temperature, 

precipitation, or wind patterns, among other effects, that occur over several decades or longer.

Clump refers to a tight cluster of two to five trees of similar age and size originating from a 

common rooting zone that typically lean away from each other when mature. A clump is 

relatively isolated from other clumps or trees within a group of trees, but a standalone clump of 

trees can function as a tree group. 

Coarse woody debris is woody material on the ground greater than 3 inches in diameter, 

including logs.

Collaboration describes people working together to share knowledge and resources to describe 

and achieve desired conditions for National Forest System (NFS) lands and for associated social, 

ecological, and economic systems in a plan area. Collaboration applies throughout land 

management, encompasses a wide range of external and internal relationships, and entails formal 

and informal processes.

Connectivity is the ecological conditions that exist at several spatial and temporal scales that 

provide landscape linkages that permit the exchange of flow, sediments, and nutrients; the daily 

147
Glossary and Acronyms

and seasonal movements of animals within home ranges; the dispersal and genetic interchange 

between populations; and the long distance range shifts of species, such as in response to climate 

change.

Corporate Databases are Forest Service-wide information management systems using a 

common information structure and process to store, maintain and access shared automated 

inventory, monitoring, and assessment data.

Declining refers to the senescent (aging) period in the lifespan of plants that (for trees) includes 

the presence of large dead and/or dying limbs, snag tops, large, old lightning scars, and other 

characteristics that indicate the later life stages of vegetation.

Desired Conditions are the ecological and socioeconomic attributes toward which management 

of the land and resources of the plan area are directed. They are not commitments or final 

decisions approving projects or activities; rather, they guide the development of projects and 

activities.

Designated Areas are areas or features identified and managed to maintain their unique special 

character or purpose. Some categories of designated areas may be designated only by statute and 

some categories may be established administratively in the land management planning process or 

by other administrative processes of the Federal executive branch. Examples of statutorily 

designated areas are national heritage areas, national recreation areas, national scenic trails, wild 

and scenic rivers, wilderness areas, and wilderness study areas. Examples of administratively 

designated areas are experimental forests, research natural areas, scenic byways, botanical areas, 

and significant caves.

Diameter at breast height (d.b.h.) is the diameter of a tree typically measured at 4.5 feet above 

ground level.

Diameter at root collar (d.r.c.) is the diameter typically measured at the root collar or at the 

natural ground line, whichever is higher, outside the bark. For a multi-stemmed tree, d.r.c. is 

calculated from the diameter measurements of all qualifying stems (1.5 inches or greater diameter 

and at least 1 foot in length).

Dispersed recreation is outdoor recreation in which visitors are spread over relatively large 

areas. Where facilities or developments are provided, they are more for access and protection of 

the environment than for the comfort or convenience of the visitors.

Disturbance is any relatively discrete event in time that disrupts ecosystem, watershed, 

community, or species population structure and/or function and changes resources, substrate 

availability, or the physical environment.

Disturbance regime is a description of the characteristic types of disturbance on a given 

landscape; the frequency, severity, and size distribution of these characteristic disturbance types; 

and their interactions.

Diversity is the distribution and abundance of different plant and animal communities and 

species within the area covered by a land and resource management plan.

Drinkers are devices that provide water for livestock or wildlife in a contained, aboveground 

location.

148 Draft Land and Resource Management Plan for the Kaibab National Forest
Glossary and Acronyms

Endemic describes a population that has unique genetic characteristics and likely exists in a very 

limited geographic area.

Environmental justice is the fair treatment and meaningful involvement of all people regardless 

of race, color, national origin, or income with respect to the development, implementation, and 

enforcement of environmental laws, regulations, and policies.

Even-aged stand is a stand of trees composed of a single age class. 

Even-aged silvicultural practices are the application of a combination of actions that results in 

the creation of stands in which trees of essentially the same age grow together. Managed evenaged forests are characterized by a distribution of stands of varying ages (and, therefore, tree 

sizes) throughout the forest area. The difference in age between trees forming the main canopy 

level of a stand usually does not exceed 20 percent of the age of the stand at harvest rotation age. 

Regeneration in a particular stand is obtained during a short period at or near the time that a stand 

has reached the desired age or size for regeneration and is harvested. Clearcut, shelterwood, or 

seed tree cutting methods produce even-aged stands.

Federally recognized Indian Tribe is an Indian or Alaska Native Tribe, band, nation, pueblo, 

village, or community that the Secretary of the Interior acknowledges to exist as an Indian Tribe 

under the Federally Recognized Indian Tribe List Act of 1994, 25 U.S.C. 479a.

Fire regime refers to the patterns of fire that occur over a long period of time across an 

appropriately scaled area and its immediate effects on the ecosystem in which it occurs. Five fire 

regimes are classified based on frequency (average number of years between fires) and severity 

(amount of replacement on the dominant overstory vegetation) of the fire. These five regimes are: 

Fire Regime I: 0 to 35-year frequency and low (surface fires most common, 

isolated torching can occur) to mixed severity (less than 75 percent of dominant

overstory vegetation replaced).

Fire Regime II: 0 to 35-year frequency and high severity (greater than 75 

percent of dominant overstory vegetation replaced).

Fire Regime III: 35 to 100+-year frequency and mixed severity.

Fire Regime IV: 35 to 100+-year frequency and high severity.

Fire Regime V: 200+-year frequency and high severity.

Fire suppression is the work of extinguishing a fire or confining fire spread.

Forage is: (1) browse and herbage which is available and can provide food for animals or be 

harvested for feeding; or (2) to search for or consume forage. ITR 1734-4.

Forested land is land at least 10 percent occupied by forest trees of any size or formerly having 

had such tree cover and not currently developed for nonforest use. Lands developed for nonforest 

use include areas for crops, improved pasture, residential, or administrative areas, improved roads 

of any width, and adjoining road clearing and powerline clearing of any width.

Land and Resource Management Plan for the Kaibab National Forest 149
Glossary and Acronyms

Functioning ecosystem is an ecosystem that contains all components and processes necessary to 

maintain resilience over time.

Gap refers to the space occurring in a forested area as a result of individual or group tree 

mortality from small disturbance events or from local site factors such as soil properties that 

influence vegetation growth patterns.

Goals are concise statements that describe desired conditions to be achieved sometime in the 

future. They are normally expressed in broad, general terms and are timeless in that they have no 

specific date by which they are to be completed. Goal statements form the principal basis from 

which desired conditions and objectives are developed.

Goods and services are the various outputs—including onsite uses—produced from forest and 

rangeland resources.

Goshawk post-fledging family areas (PFAs) are the areas that surround nest areas. They 

represent an area of concentrated use by the northern goshawk family until the young are no 

longer dependent on adults for food. PFAs are approximately 420 acres in size (not including the 

nest area acres).

Group refers to a cluster of two or more trees with interlocking or nearly interlocking crowns at 

maturity surrounded by an opening. Size of tree groups is typically variable depending on forest 

type and site conditions, and can range from fractions of an acre (a 2-tree group) to many acres. 

Trees within groups are typically not uniformly spaced and some may be tightly clumped.

Guidelines are technical design criteria or constraints on project and activity decision making 

that help to make progress toward desired conditions. A guideline allows for departure from its 

terms, so long as the intent of the guideline is met. Deviation from a guideline must be specified 

in the decision document with the supporting rationale. When deviation from a guideline does not 

meet the original intent, a plan amendment is required.

Hydrologic function is behavioral characteristics of a watershed described in terms of ability to 

sustain favorable conditions of waterflow. Favorable conditions of waterflow are defined in terms 

of water quality, quantity, and timing.

Hydrologic unit code refers to the division and subdivision of the United States into successively 

smaller hydrologic units, which are identified by unique hydrologic unit codes (HUCs). The 

number of digits in a HUC indicates its relative size; HUCs with more digits are smaller than 

HUCs with fewer digits.

Hydrophytes are plants that grow only in water or very moist soil.

Initial attack/initial action are actions taken by the first firefighting resources to arrive at a 

wildfire.

Integration recognizes and identifies key relationships between various plan resources and 

activities. Plan components are integrated to address a variety of ecological and human needs. For 

example, desired conditions for ponderosa pine incorporate habitat needs for a variety of species, 

as well as the scenic components recreationists desire. Interrelationships between parts of the plan 

are identified with crosswalks to show their systematic nature. 

150 Draft Land and Resource Management Plan for the Kaibab National Forest
Glossary and Acronyms

Interspaces are the open spaces not under the vertical projection of the outermost perimeter of 

tree canopies. They are generally composed of grass-forb-shrub vegetation but may also include 

scattered rock or bare soil. Interspaces do not include meadows, grasslands, rock outcroppings 

and wetlands. 

Invasive species are species that are not native to the ecosystem being described. For all 

ecosystems, the desired condition is that invasive species are rarely present, or are present at 

levels that do not negatively influence ecosystem function.

Inventory is the survey of an area or entity for determination of such data as contents, condition, 

or value, for specific purposes such as planning, evaluation, or management. An inventory 

activity may include an information needs assessment; planning and scheduling; data collection, 

classification, mapping, data entry, storage and maintenance; product development; evaluation; 

and reporting phases. 

Key ecological attributes are attributes for which alteration beyond some critical range/threshold 

will lead to loss of the resource in a short period of time. Examples include changes in structure, 

composition, pattern, and process.

Litter is dead, unattached organic material on the soil surface that is effective in protecting the 

soil surface from raindrop splash, sheet, and rill erosion and is at least 1⁄2-inch thick. Litter is 

composed of leaves, needles, cones, and woody vegetative debris, including twigs, branches, and 

trunks.

Long-term, sustained-yield timber capacity is the highest uniform wood yield from lands being 

managed for timber production that may be sustained under a specified management intensity 

consistent with multiple-use objectives.

Maintain, in reference to an ecological condition, is to keep in existence or continuance of the 

desired ecological condition in terms of its desired composition, structure, and processes. 

Depending upon the circumstance, ecological conditions may be maintained by active or passive 

management or both.

Management area is a land area identified within the planning area that has the same set of 

applicable plan components. A management area does not have to be spatially contiguous.

Management concern is an issue, problem, or condition that constrains the range of management 

practices identified by the Forest Service in the planning process.

Management direction is a statement of multiple use and other goals and objectives, the 

associated management prescriptions, and standards and guidelines for attaining them.

Management intensity is the management practice or combination of management practices and 

associated costs designed to obtain different levels of goods and services.

Management practice is a specific activity, measure, course of action, or treatment.

Management prescription refers to the management practices and intensity selected and 

scheduled for application on a specific area to attain multiple use and other goals and objectives.

Land and Resource Management Plan for the Kaibab National Forest 151
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Monitoring is the collection and analysis of repeated observations or measurements to evaluate 

changes in condition and progress toward meeting a resource or management objective. A 

monitoring activity may include an information needs assessment; planning and scheduling; data 

collection, classification, mapping, data entry, storage and maintenance; product development; 

evaluation; and reporting phases.

Mosaic is described as the patterns of patches, corridors, and matrix (forest or non-forest) that 

form a landscape in its entirety.

Multiple use is the management of all the various renewable surface resources of NFS lands so 

they are utilized in the combination that will best meet the needs of the American people. This 

includes making the most judicious use of the land for some or all of these resources or related 

services over areas large enough to provide sufficient latitude for periodic adjustments in use to 

conform to changing needs and conditions. Some lands will be used for less than all of the 

resources. Multiple use includes the harmonious and coordinated management of the various 

resources, each with the other, without impairment of the productivity of the land, with 

consideration being given to the relative values of the various resources, and not necessarily the 

combination of uses that will give the greatest dollar return or the greatest unit output.

Native species is an organism that was historically or is currently present in a particular 

ecosystem as a result of natural migratory or evolutionary processes and not as a result of an 

accidental or deliberate introduction into that ecosystem. An organism’s presence and evolution 

(adaptation) in an area are determined by climate, soil, and other biotic and abiotic factors.

Natural variability references past conditions and processes that provide important context and 

guidance relevant to the environments and habitats in which native species evolved. Disturbance 

driven spatial and temporal variability is vital to ecological systems. Biologically appropriate 

disturbances provide for heterogeneous conditions and subsequent diversity, whereas 

“uncharacteristic disturbance” such as high-intensity fire can have the effect of reducing diversity, 

increasing homogeneity, and resulting in states that may be permanently altered. 

Natural waters are features such as springs, seeps, ponds, lakes and streams that are not humancreated. Natural waters may or may not have experienced human modification.

Nest areas (goshawk) are the areas immediately around a nest that are used by northern 

goshawks in relation to courtship and breeding activities. They cover approximately 30 acres and 

contain multiple groups of large, old trees with interlocking crowns.

Noxious weed is a legal term applied to plants or plant parts regulated by Federal and State laws. 

Arizona Administrative Codes R3-4-244, R3-4-245 (Arizona Department of Agriculture 1999) 

regulate certain invasive species in the state: “A noxious weed is defined as any species of plant 

that is detrimental or destructive and difficult to control or eradicate and includes plant organisms 

found injurious to any domesticated, cultivated, native, or wild plant.” The director of Arizona’s 

noxious weed program uses five biological criteria to describe noxious weeds: (1) exotic, (2) 

invasive, (3) competitive, (4) persistent, and (5) aggressive.

Nurse trees are larger trees that shelter young trees. Nurse trees create an understory 

microclimate with improved nutrient and soil properties, higher soil moisture, lower 

temperatures, and lower light levels, all of which facilitate the growth of the smaller tree. 

152 Draft Land and Resource Management Plan for the Kaibab National Forest
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Nutrient cycling is the circulation and exchange of elements such as nitrogen and carbon 

between nonliving and living portions of the environment.

Objectives are concise, time specific statements of measurable planned results that respond to 

pre-established goals. Objectives form the basis for further planning to define the precise steps to 

be taken and the resources to be used in achieving identified goals.

Old growth in southwestern forested ecosystems is different than the traditional definition based 

on northwestern infrequent fire forests. Due to large differences among Southwest forest types 

and natural disturbances, old growth forests vary extensively in tree size, age classes, presence 

and abundance of structural elements, stability, and presence of understory (Helms 1998). Old 

growth refers to specific habitat components that occur in forests and woodlands—old trees, dead 

trees (snags), downed wood (coarse woody debris), and structure diversity (Franklin and Spies 

1989, Helms 1998, Kaufmann et al. 2007). These important habitat features may occur in small 

areas, with only a few components, or over larger areas as stands or forests where old growth is 

concentrated (Kaufmann et al. 2007). In the Southwest, old growth is considered “transitional” 

(Oliver and Larson 1996), given that the location of old growth shifts on the landscape over time 

as a result of succession and disturbance (tree growth and mortality). Some species, notably 

certain plants, require “old forest” communities that may or may not have old growth components 

but have escaped significant disturbance for lengths of time necessary to provide the suitable 

stability and environment.

Openings are spatial breaks between groups or patches of trees as large as or larger than groups

that contain grass, forb, shrub, and/or tree seedlings, but are largely devoid of big trees with a 

total tree cover of less than 10 percent.

Patches are areas larger than tree groups in which the vegetation composition and structure are 

relatively homogeneous. Patches comprise the midscale, thus they range in size from 100 to 1,000 

acres.

Plan or land and resource management plan refers to a document or set of documents that 

provide management direction for an administrative unit of the NFS developed under the 

requirements of a planning rule.

Planning area is the area of the NFS covered by a plan.

Planning period is the time interval within the planning horizon (the overall time period 

considered in the planning process that spans all activities covered in the analysis or plan and all 

future conditions and effects of proposed actions which would influence planning decisions) that 

is used to show incremental changes in yields, costs, effects, and benefits (one decade).

Post-fledging family areas (goshawk) surround the nest areas. They represent an area of 

concentrated use by the goshawk family until the time the young are no longer dependent on 

adults for food. PFAs are approximately 420 acres in size.

Potential natural vegetation types are the “climax” vegetation that will occupy a site without 

disturbance or climatic change. PNV is an expression of environmental factors such as 

topography, soils, and climate across an area.

Land and Resource Management Plan for the Kaibab National Forest 153
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Predator-prey relationship is a natural relationship which helps to maintain healthy wildlife 

populations. Top level predators hunt sick, weak, and/or young prey; this in turn keeps growth 

and carrying capacity of hunted species in balance with their surrounding environment. Examples 

include carnivores such as mountain lions and wolves, which prey on deer or elk, or raptors 

which regulate small mammal populations. 

Prescribed fire is a wildland fire originating from a planned ignition to meet specific objectives 

identified in a written, approved, prescribed fire plan for which NEPA requirements have been 

met prior to ignition.

Project refers to an organized effort to achieve an outcome on NFS lands identified by location, 

tasks, outputs, effects, times, and responsibilities for execution.

Range readiness is the condition when grazing would not permanently damage perennial plants. 

Range readiness is determined when plants that would likely be grazed exhibit at least one of the 

following characteristics: seed heads or flowers, multiple leaves or branches, and/or a root system 

that does not allow them to be easily pulled from the ground. These characteristics provide 

evidence of plant vigor, reproductive ability, and recovery.

Ranges of Values presented in desired conditions account for natural or desired variation 

in the composition and structure within a community or resource area. Desired conditions 

may have a wide range due to spatial variability in soils, elevation, aspect, or social 

values. Where desired conditions specify a range, the full spectrum of values within that 

range is desirable, although the desired distribution may vary depending on the resource. 

It may also be desirable to manage for desired conditions at the upper or lower end of a 

range in a particular area, such as lower vegetation density in the wildland-urban 

interface (WUI) to achieve the desired fire behavior within proximity of private property 

and human occupancy; higher densities may be desired in other areas to meet habitat 

requirements for specific species. 

Recreation opportunity spectrum is the framework for defining the types of outdoor recreation 

opportunities the public might desire, and identifying that portion of the spectrum a given 

national forest area might be able to provide. The broad classes are: 

Primitive (P), which is characterized by an essentially unmodified natural 

environment. Interaction between users is very low and evidence of other users is 

minimal. Essentially free from evidence of human-induced restrictions and 

controls. Motorized use within the area is generally not permitted. Very high 

probability of experiencing solitude, closeness to nature, tranquility, self-reliance, 

and risk.

Semiprimitive Nonmotorized (SPNM), which is characterized by a 

predominantly natural or natural appearing environment. Interaction between 

users is low, but there is often evidence of other users. The area is managed in 

such a way that minimum onsite controls and restrictions may be present, but are 

subtle. Motorized use is generally not permitted. High probability of 

experiencing solitude, closeness to nature, tranquility, self-reliance, and risk.

Semiprimitive Motorized (SPM), which is characterized by a predominantly 

natural or natural appearing environment. Concentration of users is low, but there 

154 Draft Land and Resource Management Plan for the Kaibab National Forest
Glossary and Acronyms

is often evidence of other users. The area is managed in such a way that 

minimum onsite controls and restrictions may be present, but they are subtle. 

Motorized use is generally permitted. Moderate probability of experiencing 

solitude, closeness to nature, tranquility, self-reliance, and risk.

Roaded Natural (RN), which is characterized by a predominantly natural 

appearing environment with moderate evidence of the sights and sounds of other 

humans. Such evidence usually harmonizes with the natural environment. 

Interaction between users may be low to moderate, but with evidence of other 

users prevalent. Resource modification and utilization practices are evident, but 

harmonize with the natural environment. Conventional motorized use is provided 

for in construction standards and design of facilities. Opportunity to affiliate with 

other users in developed sites, but with some chance for privacy.

Roaded Modified (RM), which is characterized by substantially modified 

natural environment except for campsites. Roads and management activities may 

be strongly dominant. There is moderate evidence of other users on roads. 

Conventional motorized use is provided for in construction standards and design 

of facilities. Opportunity to get away from others, but with easy access.

Rural (R), which is characterized by substantially modified natural environment. 

Resource modification and utilization practices are to enhance specific recreation 

activities and to maintain vegetative cover and soil. Sights and sounds of humans 

are readily evident, and the interaction between users is often moderate to high. A 

considerable number of facilities are designed for use by a large number of 

people. Facilities are often provided for special activities. Moderate densities are 

provided far away from developed sites. Facilities for intensified motorized use 

and parking are available. Opportunity to observe and affiliate with other users is 

important, as is convenience of facilities.

Urban (U), which is characterized by a substantially urbanized environment, 

although the background may have natural appearing elements. Resource 

modification and utilization practices are to enhance specific recreation activities. 

Vegetative cover is often exotic and manicured. Sights and sounds of humans 

onsite are predominant. Large numbers of users can be expected, both onsite and 

in nearby areas. Facilities for highly intensified motor use and parking are 

available with forms of mass transit often available to carry people throughout 

the site. Opportunity to observe and affiliate with other users is very important, as 

is convenience of facilities.

Recreation setting refers to the social, managerial, and physical attributes of a place that, when 

combined, provide a distinct set of recreation opportunities. The Forest Service uses the 

recreation opportunity spectrum to define recreation settings and categorize them into six distinct 

classes: primitive, semiprimitive nonmotorized, semiprimitive motorized, roaded natural, rural, 

and urban.

Reference conditions are environmental conditions that infer ecological sustainability. When 

available, reference conditions are represented by the characteristic range of variation (not the 

total range of variation) prior to European settlement and under the current climatic period. For 

Land and Resource Management Plan for the Kaibab National Forest 155
Glossary and Acronyms

many ecosystems, the range of variation also reflects human-caused disturbance and effects prior 

to settlement. It may also be necessary to refine reference conditions according to contemporary 

factors (e.g., invasive species) or projected conditions (e.g., climate change). Reference 

conditions are most useful as an inference of sustainability when they have been quantified by 

amount, condition, spatial distribution, and temporal variation.

Regeneration openings are opening created in the forest canopy to stimulate regeneration of a 

new age group of trees. 

Research natural areas are specially designated areas that represent some of the finest examples 

of natural ecosystems for the purposes of scientific study, education, and for maintenance of 

biological diversity.

Resilience is the ability of a social or ecological system to absorb disturbances while retaining the 

same basic structure and ways of functioning, the capacity for self-organization, and the capacity 

to adapt to stress and change.

Responsible official is the Forest Service employee who has the authority to select and/or carry 

out a specific planning action.

Restoration is the process of assisting the recovery of an ecosystem that has been degraded, 

damaged, or destroyed. Ecological restoration focuses on establishing the composition, structure, 

pattern, and ecological processes necessary to facilitate terrestrial and aquatic ecosystem 

sustainability, resilience, and health under current and future conditions.

Risk is a combination of the likelihood that a negative outcome will occur and the severity of the 

subsequent negative consequences.

Scale. Desired conditions are described at multiple scales where appropriate. Descriptions at 

various scales are sometimes necessary to provide adequate detail and guidance for the design of 

future projects and activities that will help achieve the desired conditions over time. The three 

scales used in this plan are: fine scale, mid-scale, and landscape scale. 

Fine scale is an area10 acres or less in size at which the distribution of individual 

trees (single, grouped, or aggregates of groups) is described. Fine-scale desired 

conditions provide the view that can be observed standing in one location on the 

ground. Fine-scale desired conditions typically contain greater variability, which 

is desirable for providing heterogeneity at smaller spatial scales.

Mid-scale desired conditions are composed of assemblages of fine-scale units 

and have descriptions that would be averaged across areas of 100- to 1,000-acre 

units. 

Landscape scale is an assemblage of 10 or more mid-scale units, typically totaling more 

than 10,000 acres, composed of variable elevations, slopes, aspects, soils, plant 

associations, and disturbance processes. Landscape scale desired conditions provide the 

big picture overview with resolution that would, for example, be observable from an 

airplane or from a zoomed out Google Earth view. The landscape scale is also appropriate 

scale for describing less common components that would not necessarily occur on every 

mid-scale unit within the landscape.

156 Draft Land and Resource Management Plan for the Kaibab National Forest
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Scenic integrity objectives in the context of the plan are equivalent to goals or desired 

conditions. Scenic integrity describes the state of naturalness or a measure of the degree to which 

a landscape is visually perceived to be “complete.” The highest scenic integrity ratings are given 

to those landscapes that have little or no deviation from the landscape character valued by 

constituents for its aesthetic quality. Scenic integrity is the state of naturalness or, conversely, the

state of disturbance created by human activities or alteration. Scenic integrity is measured in five 

levels: 

Very high (unaltered): A scenic integrity level that generally provides for 

ecological change only.

High (appears unaltered): Human activities are not visually evident. In high 

scenic integrity areas, activities may only repeat attributes of form, line, color, 

and texture found in the existing landscape character.

Moderate (slightly altered): Landscapes where the valued landscape character 

“appears slightly altered.” Noticeable deviations must remain visually 

subordinate to the landscape character being viewed.

Low (moderately altered): Human activities must remain visually subordinate to 

the attributes of the existing landscape character. Activities may repeat form, line, 

color, or texture common to these landscape characters, but changes in quality of 

size, number, intensity, direction, pattern, and so on, must remain visually 

subordinate to these landscape characters.

Very low (heavily altered): Human activities of vegetative and landform 

alterations may dominate the original, natural landscape character, but should 

appear as natural occurrences when viewed at background distances.

Snags are standing dead or partially dead trees (snag topped), often missing many or all limbs. 

They provide essential wildlife habitat for many species and are important for forest ecosystem 

function.

Stand density index (SDI) is a relative measure of stand density the converts a stand’s current 

density into a density at a reference size (Reineke 1933).

Standards are technical design constraints that must be followed when an action is being taken to 

make progress toward desired conditions. Standards differ from guidelines in that standards do 

not allow for any deviation without a plan amendment.

Strongly interactive species is a species whose absence leads to significant changes in some 

feature of its ecosystem(s). Such changes include structural or compositional modifications, 

alterations in the import or export of nutrients, loss of resilience to disturbance, and decreases in 

native species diversity. The type of interactions these species have with their surrounding 

environment is paramount to the persistence of certain ecosystem features through time. 

Examples of strong interactions include mutualisms (e.g., pollinators such as butterflies, and 

spore and seed dispersers such as birds), consumers (e.g., large predators such as mountain lions), 

and ecosystem engineers (e.g., prairie dogs, beavers).

Land and Resource Management Plan for the Kaibab National Forest 157
Glossary and Acronyms

Suitability is the appropriateness of applying certain resource management practices to a 

particular area of land, as determined by an analysis of the economic and environmental 

consequences and the alternative uses foregone. A unit of land may be suitable for a variety of 

individual or combined management practices.

Sustainability is the capability to meet the needs of the present generation without compromising 

the ability of future generations to meet their needs. For purposes of this plan, “ecological 

sustainability” refers to the capability of ecosystems to maintain ecological integrity; “economic 

sustainability” refers to the capability of society to produce and consume or otherwise benefit 

from goods and services including contributions to jobs and market and nonmarket benefits; and 

“social sustainability” refers to the capability of society to support the network of relationships, 

traditions, culture, and activities that connect people to the land and to one another, and support 

vibrant communities.

Thinning Methods

Single tree selection is used in uneven-aged silvicultural systems in which scattered 

individual trees of multiple size and/or age classes are removed throughout the stand to 

achieve desired structural characteristics.

Group selection is a method of regenerating uneven-aged stands in which trees are 

removed, and new age classes are established, in small groups. Small openings provide

micro-environments suitable for tolerant regeneration and the larger openings provide

conditions suitable for more intolerant regeneration. In the group selection system, the 

management unit or stand in which regeneration, growth, and yield are regulated consists 

of a landscape containing an aggregation of groups

Sanitation cutting is the removal of dead, dying, or damaged trees to prevent or interrupt 

the spread of insects or disease.

Salvage cutting is the removal of trees that have been killed or damaged by wildland 

fire, severe wind, insects or disease, or other natural disturbances.

Even-aged regeneration is a cutting method by which a new stand with a single age 

class is created.

Matrix thinning is the thinning of the “matrix” of trees outside of a regeneration area. 

The matrix is generally thinned from below to some specified density in order to increase 

stand vigor and resiliency.

All-size free thinning is the removal of trees to control stand spacing and favor desired 

trees, using a combination of thinning criteria without regard to crown position.

Thinning from below is the removal of trees from lower canopy positions while 

retaining the largest and most vigorous trees with the best-developed crowns.

Timber production is the purposeful growing, tending, harvesting, and regeneration of regulated 

crops of trees to be cut into logs, bolts, or other round sections for industrial or consumer use. For 

purposes of this plan, the term timber production does not include production of firewood.

158 Draft Land and Resource Management Plan for the Kaibab National Forest
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Traditional cultural property refers to a type of historic property defined as “eligible for 

inclusion in the National Register because of its association with cultural practices or beliefs of a 

living community that (a) are rooted in that community’s history, and (b) are important in 

maintaining the continuing cultural identity of the community.”

Uneven-aged forests are forests that are composed of three or more distinct age classes of trees, 

either intimately mixed or in small groups.

Uneven-aged management is the application of a combination of actions needed to 

simultaneously maintain continuous high forest cover, recurring regeneration of desirable species, 

and the orderly growth and development of trees through a range of diameter or age classes to 

provide a sustained yield of forest products. Cutting is usually regulated by specifying the number 

or proportion of trees of particular sizes to retain within each area, thereby maintaining a planned 

distribution of size classes. Cutting methods that develop and maintain uneven-aged stands are 

single tree selection and group selection.

Utility Corridor is a linear strip of land identified for the present or future location of 

transportation or utility rights-of-way within its boundaries.

Vegetation Structure includes both the vertical and horizontal dimensions. Horizontal 

structure may refer to patterns of trees or groups of trees and openings, as well as tree 

size and tree density. Vertical structure may refer to the layers, appearance, and 

composition of vegetation between the forest floor and the top of the canopy. 

Viable population is a population of a species that continues to persist over the long term with 

sufficient distribution to be resilient and adaptable to stressors and likely future environments.

Watershed is a region or land area drained by a single stream, river, or drainage network; a 

drainage basin. 

Watershed condition is the state of a watershed based on physical and biogeochemical 

characteristics and processes.

Wetlands are areas inundated by surface water or groundwater with a frequency sufficient to 

support, and under normal circumstances, a prevalence of vegetation or aquatic life that requires 

saturated or seasonally saturated soil condition for growth and reproduction. Generally includes 

swamps, marshes, bogs, and similar areas such as sloughs, potholes, wet meadows, river 

overflows, mud flats, and natural ponds.

Wide ranging species are species that have large area requirements, utilizing expansive 

landscapes for breeding, foraging, and movement that are typically beyond the boundaries of any 

one land management jurisdiction. Examples include large birds of prey, migratory birds, and 

nomadic mammals subject to seasonal movements (e.g., winter and summer range for deer, elk, 

and pronghorn). 

Wilderness describes any area of land designated by Congress as part of the National Wilderness 

Preservation System that was established in the Wilderness Act of 1964 (16 U.S.C. 1131-1136).

Wildfire is an unplanned ignition of a wildland fire, such as fire caused by lightning, 

unauthorized or accidental human-caused fires, or an escaped prescribed fire.

Land and Resource Management Plan for the Kaibab National Forest 159
Glossary and Acronyms

Wildland fire is a general term describing any nonstructure fire that occurs in the wildland. This 

includes both prescribed fires and wildfires.

Wildlife Corridors are land that connects two or more areas of habitat through which a species 

can travel or reach areas suitable for reproduction or other life-sustaining needs.

Wildland-urban interface (WUI) describes a line, area, or zone where structures and other 

human development meet or intermingle with undeveloped wildland or vegetation fuels.

Witches’ broom is a disease or deformity in a woody plant (typically a tree) that results in a 

dense mass of shoots resembling a broom or bird’s nest.

160 Draft Land and Resource Management Plan for the Kaibab National Forest
Glossary and Acronyms

Essential Government Acronym Dictionary 

(EGAD)

Acronym Term

4FRI Four Forest Restoration Initiative

ADEQ Arizona Department of Environmental Quality

ADOT Arizona Department of Transportation

AMS analysis of the management system

AOI annual operating instructions

ASQ allowable sale quantity

AGFD Arizona Game and Fish Department

BA basal area

BLM Bureau of Land Management

BMP best management practice

CCF hundred cubic feet

CER comprehensive evaluation report

CPST Climate Project Screening Tool

CWPP community wildfire protection plan

d.b.h. diameter at breast height

DC desired conditions

EIS environmental impact statement

d.r.c. diameter at root collar

ENSO El Niño Southern Oscillation

EPA Environmental Protection Agency

FACTS Forest Service Activity Tracking System 

FIA Forest Inventory Assessment

FSH Forest Service Handbook

FSM Forest Service Manual

GIS geographic information system

HFRA Healthy Forest Restoration Act

HUC hydrologic unit code

IPM integrated pest management

KFHF Kaibab Forest Health Focus

LAC limits of acceptable change

Land and Resource Management Plan for the Kaibab National Forest 161
Glossary and Acronyms

LTSY long term sustained yield

MA management area

MIS management indicator species

MOU memorandum of understanding

MSO Mexican spotted owl

MVUM motor vehicle use map

NAAQS National Ambient Air Quality Standards 

NAU Northern Arizona University

NEPA National Environmental Policy Act

NF national forest

NFMA National Forest Management Act

NFS National Forest System

NKRD North Kaibab Ranger District

NNL National Natural Landmark

NPS National Park Service

NRIS Natural Resource Information System

NRM Natural Resource Manager

OHV off-highway vehicle

PAC protected activity center

PFC proper functioning condition

PIT Passport in Time

PJ pinyon-juniper

PNVT potential natural vegetation type

PWA potential wilderness area

RD ranger district

RNA Research Natural Area

ROD record of decision

ROS recreation opportunity spectrum

SAVS system for assessing vulnerability of species

SDI stand density index

SIO scenic integrity objectives

SWAP State Wildlife Action Plan

TCP traditional cultural property

162 Draft Land and Resource Management Plan for the Kaibab National Forest
Glossary and Acronyms

TES terrestrial ecosystem survey; threatened, endangered, and sensitive species

USDA United States Department of Agriculture

USDI United States Department of the Interior

USFS United States Forest Service

USFWS United States Fish and Wildlife Service

VDDT Vegetation Development Dynamics Tool

WFDSS Wildfire Fire Decision Support System

WNS white nose syndrome

WUI wildland-urban interface

Land and Resource Management Plan for the Kaibab National Forest 163

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Guidebook.

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Field Office and U.S. Department of Agriculture Forest Service Coconino, Kaibab, and 

Tonto National Forests. 1998. Arizona Bugbane (Cimicifuga arizonica) Conservation 

Agreement. Available online: http://www.fws.gov/southwest/es/arizona/Documents/ 

SpeciesDocs/AZBugbane/azbugbanefnl.pdf.

166 Draft Land and Resource Management Plan for the Kaibab National Forest
Appendix A. Proposed and Possible Actions

This appendix describes the proposed and possible actions that may occur within the plan area 

during the life of the plan (approximately 10 to 15 years), including the methods of forest 

vegetation management practices expected to be used (16 U.S.C. 1604(e)(2) and (f)(2)). This list 

of proposed and possible actions is not intended to be all-inclusive; it is simply a list of possible 

actions that may take place. The actions described in this Appendix do not commit the Agency to 

perform work; instead, they are provided as possible actions that would likely be consistent with 

plan components, particularly the desired conditions and objectives. Furthermore, this 

information is not a “proposal” as defined by the Council on Environmental Quality regulations 

for implementing NEPA (40 CFR 1508.23, 42 U.S.C. 4322(2)(C)).

A plan amendment is not required to change or modify any of the proposed or possible actions. 

The list of these actions can be updated at any time through an administrative correction of the 

plan.

Vegetation Management

Mechanically thin at least 11,000 to 19,000 acres in ponderosa pine and another 1,200 to 2,100 

acres annually in the frequent fire mixed conifer type forestwide (mechanical treatment acreage 

may be greater to support landscape-scale restoration projects, needs, or opportunities). Thinning 

treatments would use a combination of prescriptions to meet desired conditions including free 

thinning all sizes to a target basal area, group selection cuts with matrix thinning to a target basal 

area, individual tree selection, thin from below, sanitation, and regeneration cuts.

The allowable sale quantity (ASQ) is 107,815 CCF (hundred cubic feet) per year. The ASQ is 

better described as the “average allowable sale quantity” because it may be exceeded in a given 

year as long as the 10-year average is not exceeded. 

Other vegetation management activities expected to occur include: 

• Reducing tree density in pinyon-juniper woodlands 

• Planting trees on 300 to 700 acres annually in areas where seed source has been lost

• Reducing conifer encroachment on 800 acres of aspen and fencing 200 acres of aspen 

within 10 years of plan approval

• Restoring grasslands by reducing tree density to less than 10 percent on 5,000 to 10,000 

acres of historic grasslands annually

Fire and Fuels Management

• Use prescribed fire and wildfire on 14,000 to 68,000 acres per year (in all vegetation 

types except desert communities) to reduce fuel loadings, restore forest structure, 

promote understory vegetation, improve nutrient cycling, etc.

• Suppress human-caused wildfires.

• Burn activity generated slash.

• Thin and treat fuels in the wildland-urban interface and around other highly valued 

human improvements to prevent loss in the event of a wildfire, and thin to improve 

control lines for prescribed burns.

167
Appendix A. Proposed and Possible Actions

Water Resources 

• Restore and protect at least 10 individual springs through fencing, maintenance, 

revegetation, and establishing trails and points of entry.

• Fence wetlands for resource protection.

• Restore native vegetation and natural waterflow patterns on at least 6 acres of wetlands 

within 5 years of plan approval

• Monitor water quality of lakes.

Wildlife and Plants

• Improve pronghorn population connectivity by removing or modifying 50 miles of fence 

within 10 years of plan approval.

• Inventory and monitor Mexican spotted owls, bald and golden eagles, peregrine falcons, 

northern goshawks, Gunnison’s prairie dogs, and other wildlife species of conservation 

concern.

• Conduct floristic surveys.

• Collaborate with other Federal and State biologists and researchers to address a variety of 

wildlife issues. 

• Inspect, maintain, and construct fenced exclosures around wetlands that are important to 

wildlife. 

• Monitor populations of invasive species that occur on the Kaibab NF. 

• Treat weeds using an integrated pest management approach, which includes chemical, 

biological, and physical methods, on 2,000 to 3,000 acres annually. 

Recreation

• Maintain trails according to development level and managed use.

• Provide interpretive programs for school groups and other activities that connect youth, 

low-income, and minority populations with nature.

• Education and outreach programs and/or improved signage to help reduce user conflicts. 

• Conduct long-range planning for trails, wilderness, and outfitter/guide permits. These 

efforts could result in the development or improvement of trails and trail spurs to 

accommodate user needs and in increased authorized outfitter/guide use. 

• Develop a Sustainable Recreation Management Plan, which will provide a framework for 

developing and/or decommissioning recreation sites as needed to meet public need. 

• Develop a Visitor Guide and other literature to improve public education and outreach.

• Regularly update Recreation Opportunity Guides to ensure accuracy of information and

improve electronic delivery/availability of this information. 

• Implementation of the Corridor Management Plan for the Kaibab Plateau-North Rim 

Scenic Byway. 

• Review and correct alignment of the Arizona Trail. Develop or improve trailheads, spurs, 

and signing where needed. 

168 Draft Land and Resource Management Plan for the Kaibab National Forest
Appendix A. Proposed and Possible Actions

Livestock Grazing

• Grazing of cattle, sheep, and horses consistent with other desired conditions.

• Monitoring and adapt grazing management. 

Forestry and Forest Products

• Offer wood products for sale.

• Provide opportunities for commercial and personal firewood collection.

• Sell Christmas tree permits.

• Provide forest products for traditional cultural uses.

Heritage Resources

• Conduct project- and non-project-related cultural resources surveys.

• Host “Passport In Time” and other cultural resource events and projects.

• Provide at least 20 interpretive programs per year.

• Monitor 18 Priority Heritage Asset Sites per year.

Roads and Access

• Grade roads and clean culverts on 100 miles of open National Forest System roads 

annually.

• Maintain ownership boundaries.

• Acquire legal access, as opportunities arise.

• Decommission roads that are no longer needed.

• Obliterate or naturalize 20 miles of nonsystem roads (unauthorized, decommissioned, 

etc.) within 10 years of plan approval. 

• Implement decisions made under the 2005 Travel Management Rule.

Land Adjustments

• Land adjustments where feasible and advantageous to the Kaibab NF.

Minerals and Energy Uses

• Uranium mining on claims with valid existing rights.

• Sandstone quarrying.

• Rehabilitation of common variety mineral sites no longer in use.

Special Uses

• Construction and maintenance of communication and electronic sites.

• Review of new proposals for various uses. Environmental analysis of approved proposals 

and issuance of new permits. 

• Authorization and/or reauthorization of recreation special use permits, such as 

outfitter/guides, recreation events, and resorts.

Land and Resource Management Plan for the Kaibab National Forest 169
Appendix A. Proposed and Possible Actions

• Conduct long-range planning for outfitter/guide and recreation event permits. This effort 

could result in increased permit issuance and improvement of trails or other sites for these 

uses.

Special Areas

• Implement the comprehensive plan for the Arizona National Scenic Trail including trail 

maintenance and signing.

• Capture and relocate wild burros.

• Monitor Arizona Bugbane and Pediocactus populations.

Wilderness

• Development and implementation of wilderness management plans.

• Implementation of wilderness education plans.

• Continued partnership with Northern Arizona University wilderness course to improve 

wilderness management.

• Ongoing monitoring of wilderness character and solitude in accordance with national 

protocols.

• Ongoing inventory and monitoring of camp sites in accordance with national protocols.

• Continued invasive plant surveys and monitoring, and eradication when necessary.

• Monitoring tamarisk beetle activity in Kanab Creek Wilderness.

• Implementation of the Wilderness Information Needs Assessment, which includes various 

methods of survey and data gathering to inform management of existing conditions and 

to inform potential management actions to preserve wilderness character. 

Monitoring, Adaptive Management, and Capacity 

Building

• Monitor and report on indicators as described in the Monitoring and Evaluation 

Implementation Guide to assess existing conditions, track accomplishments, and 

determine treatment effectiveness.

• In response to monitoring findings, reevaluate and adapt management approaches and 

treatment strategies where necessary to more effectively achieve desired conditions.

• Establish and maintain mutually beneficial partnerships with tribes, community groups, 

governmental and nongovernmental organizations, and academic institutions.

• Issue permits for research occurring on the Kaibab NF.

170 Draft Land and Resource Management Plan for the Kaibab National Forest
Appendix B. Relevant Laws,

Regulation, and Policy

The operating environment for managing NFS lands comes from a variety of sources. This 

appendix contains a partial listing of relevant statutes, regulations, policies, and agreements. 

Kaibab NF projects and activities are developed to be consistent with the direction found in the 

plan, as well as applicable laws, regulations, and executive orders. Other relevant sources that 

provide varying levels of guidance include Forest Service Handbooks and Manuals, 

programmatic agreements, memoranda of understanding, memoranda of agreement, and existing 

decisions. 

Federal Statutes 

The following is a partial listing of relevant laws which have been enacted by Congress. A 

Federal statute, or law, is an act or bill which has become part of the legal code through passage 

by Congress and approval by the President (or via congressional override). Although not specified 

below, many of these laws have been amended.

American Indian Religious Freedom Act (AIRFA) 

as amended (42 U.S.C. 1996)

Protects and preserves for American Indians their inherent right of freedom to believe, express, 

and exercise the traditional religions of the American Indian, Eskimo, Aleut, and Native 

Hawaiians, including but not limited to access to sites, use, and possession of sacred objects and 

the freedom to worship through ceremonial and traditional rites. 

Americans with Disabilities Act of 1990 

Provides a clear and comprehensive national mandate for the elimination of discrimination 

against individuals with disabilities; for clear, strong, consistent, and enforceable standards 

addressing discrimination against individuals with disabilities; to ensure that the Federal

Government plays a central role in enforcing the standards established in this act on behalf of 

individuals with disabilities; and to invoke the sweep of congressional authority, including the 

power to enforce the fourteenth amendment and to regulate commerce, in order to address the 

major areas of discrimination faced by people with disabilities. 

Antiquities Act of 1906 (16 U.S.C. 431-433)

Prevents the appropriation, excavation, injury, or destruction of any historic or prehistoric ruin or 

monument, or any object of antiquity, situated on lands owned or controlled by the United States, 

without permission. Provides for permits, for misdemeanor-level penalties for unauthorized use, 

and authorizes the President to declare by public proclamation historic landmarks, historic and 

prehistoric structures, and other objects of historic or scientific interest that are situated upon 

lands owned or controlled by the United States to be national monuments, and to reserve as a part 

thereof parcels of land needed for the proper care and management of the objects to be protected. 

The Archaeological Resources Protection Act has replaced the Antiquities Act as the authority for 

special use permits if the resource involved is 100-years old or greater.

Land and Resource Management Plan for the Kaibab National Forest 171
Appendix B: Relevant Laws, Regulation, and Policy

Archaeological and Historic Preservation 

Act of 1974 (AHPA) (16 U.S.C. 469) 

This act is also known as the Archaeological Recovery Act. AHPA amended and expanded the 

Reservoir Salvage Act of 1960 and was enacted to complement the Historic Sites Act of 1935 by 

providing for the preservation of significant scientific, historical, and archaeological data which 

might be lost or destroyed as the result of the construction of a federally authorized dam or other 

construction activity. AHPA also allows for any Federal agency responsible for a construction 

project to appropriate a portion of project funds for archaeological survey, recovery, analysis, and 

publication of results.

Archaeological Resources Protection Act of 1979 

as amended (ARPA) (16 U.S.C. 470 aa et seq.)

The act establishes permit requirements for removal or excavation of archaeological resources

from Federal and Indian lands. Provides criminal and civil penalties for the unauthorized 

excavation, removal, damage, alteration, defacement, or the attempted unauthorized removal, 

damage, alteration, or defacement of any archaeological resource more than 100 years of age

found on Federal or Indian lands. Prohibits the sale, purchase, exchange, transportation, receipt, 

or offering of any archaeological resource obtained from public lands or Indian lands. The act 

further directs Federal land managers to survey land under their control for archaeological 

resources and create public awareness programs concerning archaeological resources.

Bald and Golden Eagle Protection Act of 1940, as 

amended

The act prohibits anyone, without a permit issued by the Secretary of the Interior, from “taking” 

bald and golden eagles, including their parts, nests, or eggs. The act defines “take” as “pursue, 

shoot, shoot at, poison, wound, kill, capture, trap, collect, molest or disturb.” Disturbance 

includes impacts that result from human-induced alterations in the nesting area even when eagles 

are not present. Sections 22.26—28 allow take of bald and golden eagles or their nests where it is 

unavoidable and where it is compatible with the continued preservation of the eagle. Permits for 

take are issued based on certain criteria such as, but not limited to, certifications, reporting, and 

monitoring.

Clean Air Act of August 7, 1977, as amended 

(1977 and 1990) 42 U.S.C. §7401 et seq. (1970)

Enacted to protect and enhance the quality of the Nation’s air resources; to initiate and accelerate 

a national research and development program to achieve the prevention and control of air 

pollution; to provide technical and financial assistance to state and local governments in 

connection with the development and execution of their air pollution prevention and control 

programs; and to encourage and assist the development and operation of regional air pollution 

prevention and control programs. 

172 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

Clean Water Act (see Federal Water Pollution Control Act)

Common Varieties of Mineral Materials Act of July 31, 

1947 

Authorizes the Secretaries of the Interior and Agriculture, under such rules and regulations as 

they may prescribe, to dispose of mineral materials (including but not limited to common 

varieties of sand, stone, gravel, pumice, pumicite, cinders, and clay) and vegetative materials 

(including but not limited to yucca, manzanita, mesquite, cactus, and timber or other forest 

products) on public lands of the United States, if the disposal of such materials is not otherwise 

expressly authorized by law, is not expressly prohibited by laws of the United States, and would 

not be detrimental to the public interest. 

Cooperative Forestry Assistance Act of July 1, 1978 

Authorizes the Secretary of Agriculture to assist in the establishment of a coordinated and 

cooperative Federal, state, and local forest stewardship program for the management of nonFederal forest lands and forest lands in foreign countries. 

Emergency Flood Prevention Act

(Agricultural Credit Act) of August 4, 1978 

Authorizes the Secretary of Agriculture to undertake emergency measures for runoff retardation 

and soil erosion prevention, in cooperation with landowners and users, as the Secretary deems 

necessary to safeguard lives and property from floods, drought, and the products of erosion on 

any watershed whenever fire, flood, or other natural occurrence is causing or has caused a sudden 

impairment of that watershed. 

Endangered Species Act of 1973, as amended

Authorizes the determination and listing of species as endangered and threatened; prohibits 

unauthorized taking, possession, sale, and transport of endangered species; authorizes the 

assessment of civil and criminal penalties for violating the act or regulations; and, authorizes the 

payment of rewards to anyone furnishing information leading to arrest and conviction for any 

violation of the act or any regulation issued thereunder. Section 7 of the act requires Federal 

agencies to use their authorities to carry out programs for the conservation of endangered and 

threatened species and to insure that any action authorized, funded, or carried out by them is not 

likely to jeopardize the continued existence of listed species or adversely modify their critical 

habitat. 

Section 4 of the act directs the development and implementation of recovery plans for threatened 

and endangered species and the designation of critical habitat. Several species listed under the act 

are found on the Kaibab NF, some with recovery plans and some with designated critical habitat. 

Those with a recovery plan and/or a critical habitat designation are listed below:

Recovery Plan for the Mexican spotted owl 

http://ecos.fws.gov/docs/recovery_plan/MSO_Recovery_Plan_First_Revision_D

ec2012.pdf.

Land and Resource Management Plan for the Kaibab National Forest 173
Appendix B: Relevant Laws, Regulation, and Policy

Critical Habitat for the Mexican spotted owl 

http://www.fws.gov/southwest/es/arizona/Documents/SpeciesDocs/MSO/FR_MS

O_CH_8_31_04.pdf

Recovery Plan for the California condor 

http://ecos.fws.gov/docs/recovery_plans/1996/960425.pdf

Critical Habitat for loach minnow and spikedace

http://www.fws.gov/southwest/es/arizona/Documents/SpeciesDocs/SD_LM/2012

_FR_SD-LM_fCHandUplisting.pdf

Energy Policy Act of 2005

Requires the Secretary of Agriculture to ensure timely action on oil and gas permits, improve 

collection and retrieval of oil and gas information, and improve inspection and enforcement of 

permit terms (Section 362). 

Energy Security Act of June 30, 1980 

Authorizes the Secretary of Agriculture to make available timber resources of the National Forest 

System, in accordance with appropriate timber appraisal and sale procedures, for use by biomass 

energy projects. 

Federal Advisory Committee Act of October 6, 1972 

Sets standards and uniform procedures to govern the establishment, operation, administration, and 

duration of advisory committees. 

Federal Cave Resources Protection Act of November 

18, 1988 

Established requirements for the management and protection of caves and their resources on 

Federal lands, including allowing land managing agencies to withhold the location of caves from 

the public, and requiring permits for any removal or collecting activities in caves on Federal

lands. 

Federal Land Policy and Management Act of October 

21, 1976

Requires that public lands be managed in a manner that will protect the quality of scientific, 

scenic, historical, ecological, environmental, air and atmospheric, water resource, and 

archaeological values; that, where appropriate, will preserve and protect certain public lands in 

their natural condition; that will provide food and habitat for fish and wildlife and domestic 

animals; and that will provide for outdoor recreation and human occupancy and use. Also states 

that the United States shall receive fair market value of the use of the public lands and their 

resources unless otherwise provided for by law. 

Federal Noxious Weed Act, 1974, as amended

Authorizes the Secretary of Agriculture to designate plants as noxious weeds by regulation; to 

prohibit the movement of all such weeds in interstate or foreign commerce except under permit; 

174 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

to inspect, seize and destroy products, and to quarantine areas, if necessary to prevent the spread 

of such weeds; and to cooperate with other Federal, state and local agencies, farmers associations, 

and private individuals in measures to control, eradicate, prevent, or retard the spread of such 

weeds. 

Federal Water Pollution Control Act and 

Amendments of 1972 (Clean Water Act) 

Enacted to restore and maintain the chemical, physical, and ecological integrity of the Nation’s 

waters. Provides for measures to prevent, reduce, and eliminate water pollution; recognizes, 

preserves, and protects the responsibilities and rights of States to prevent, reduce, and eliminate 

pollution, and to plan the development and use (including restoration, preservation, and 

enhancement) of land and water resources; and provides for Federal support and aid of research 

relating to the prevention, reduction, and elimination of pollution, and Federal technical services 

and financial aid to state and interstate agencies and municipalities for the prevention, reduction, 

and elimination of pollution. 

Established goals for the elimination of water pollution; required all municipal and industrial 

wastewater to be treated before being discharged into waterways; increased Federal assistance for 

municipal treatment plant construction; strengthened and streamlined enforcement policies; and 

expanded the Federal role while retaining the responsibility of states for day-to-day 

implementation of the law. 

Fish and Wildlife Conservation Act of September 15, 

1960 

Requires the Secretaries of the Interior and Agriculture, in cooperation with state agencies, to 

plan, develop, maintain, and coordinate programs for the conservation and rehabilitation of 

wildlife, fish, and game on public lands under their jurisdiction. 

Food, Conservation & Energy Act of 2008 (2008 Farm 

Bill) 

Public Law 110-246 Title VIII – Forestry, Subtitle A, 

B, and C

Subtitle A: Amendment to the Cooperative Forestry Assistance Act of 1978. Establishes national 

priorities for private forest conservation, a community forest and open space conservation 

program, and a Secretary level forest resources coordinating committee.

Subtitle B: Cultural and Heritage Cooperation Authority. Authorizes the Secretary of Agriculture 

to provide forest products to Indian tribes for traditional and cultural purposes; to protect the 

confidentiality of certain information, including information that is culturally sensitive to Indian 

tribes; to utilize National Forest System land for the reburial of human remains and cultural items, 

including human remains and cultural items repatriated under the Native American Graves 

Protection and Repatriation Act; prevent the unauthorized disclosure of information regarding 

human remains or cultural items reburied on National Forest System land; to ensure access to 

National Forest System land, to the maximum extent practicable, by Indians and Indian tribes for 

traditional and cultural purposes; to increase the availability of Forest Service programs and 

resources to Indian tribes in support of the policy of the United States to promote tribal 

Land and Resource Management Plan for the Kaibab National Forest 175
Appendix B: Relevant Laws, Regulation, and Policy

sovereignty and self-determination; and to strengthen support for the policy of the United States 

of protecting and preserving the traditional, cultural, and ceremonial rites and practices of Indian 

tribes, in accordance with the American Indian Religious Freedom Act (42 U.S.C. 1996).

Subtitle C: Amendments to Other Forestry Related Laws. Amends the Lacey Act to include the 

illegal taking of plants, establishes an Emergency Forest Restoration Program, and renews 

authority and funding for the Healthy Forest Reserve Program.

Forest and Rangeland Renewable Resources 

Planning Act of August 17, 1974 

Directs the Secretary of Agriculture to prepare a renewable resource assessment every 10 years; 

to transmit a recommended renewable resources program to the President every 5 years; to 

develop, maintain, and, as appropriate, revise land and resource management plans for units of 

the National Forest System; and to ensure that the development and administration of the 

resources of the National Forest System are in full accord with the concepts of multiple use and 

sustained yield. 

Freedom of Information Act of November 21, 1974 

Governs which government records are released to the public either automatically or upon 

request. 

Healthy Forests Restoration Act of 2003 (H.R. 1904)

Purposes are to reduce wildfire risk to communities and municipal water supplies through 

collaborative hazardous fuels reduction projects; to assess and reduce the risk of catastrophic fire 

or insect or disease infestation; to enhance efforts to protect watersheds and address threats to 

forest and rangeland health (including wildfire) across the landscape; to protect, restore, and 

enhance forest ecosystem components such as biological diversity, threatened/endangered species 

habitats, and enhanced productivity.

Historic Sites Act of 1935 (16 U.S.C. 461)

Establishes a policy to preserve for public use historic sites, buildings, and objects of national 

significance for the benefit of the people. Authorizes the National Park Service’s National 

Historic Landmarks Program.

Land and Water Conservation Fund Act of September 

3, 1964 

Authorizes the appropriation of funds for Federal assistance to states in planning, acquisition, and 

development of needed land and water areas and facilities and for the Federal acquisition and 

development of certain lands and other areas for the purposes of preserving, developing, and 

assuring accessibility to outdoor recreation resources. 

Mineral Leasing Act of February 25, 1920 

Provides that the deposits of certain minerals on land owned by the United States shall be subject 

to lease to citizens of the United States, provided royalties on such deposits are paid to the United 

States. 

176 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

Mining and Minerals Policy Act of December 31, 1970 

States that it is the policy of the Federal Government to foster and encourage the development of 

economically sound and stable domestic mining, minerals, metal, and mineral reclamation 

industries; the orderly and economic development of domestic mineral resources, reserves, and 

reclamation of metals and minerals to help assure satisfaction of industrial, security, and 

environmental needs; mining, mineral, and metallurgical research to promote the wise and 

efficient use of our natural and reclaimable mineral resources; and the study and development of 

methods for the disposal, control, and reclamation of mineral waste products and the reclamation 

of mined land. 

Multiple-Use Sustained-Yield Act of June 12, 1960 

States that it is the policy of Congress that the national forests are established and shall be 

administered for outdoor recreation, range, timber, watershed, and wildlife and fish purposes, and 

authorizes and directs the Secretary of Agriculture to develop and administer the renewable 

surface resources of the national forests for the multiple use and sustained yield of products and 

services. 

National Environmental Policy Act of January 1, 1970 

Directs all Federal agencies to consider and report the potential environmental impacts of 

proposed Federal actions and established the Council on Environmental Quality. 

National 1990 Farm Bill (Title XII – Forest 

Stewardship Act) Act of November 28, 1990 

Directs the Secretary of Agriculture to establish a competitive forestry, natural resources, and 

environmental grants program, and provides for other research programs. 

National Forest Management Act of October 22, 1976 

The National Forest Management Act reorganized, expanded, and otherwise amended the Forest 

and Rangeland Renewable Resources Planning Act of 1974, which called for the management of 

renewable resources on National Forest System lands. The National Forest Management Act 

requires the Secretary of Agriculture to assess forest lands, develop a management program based 

on multiple-use, sustained-yield principles, and implement a resource management plan for each 

unit of the National Forest System. It is the primary statute governing the administration of 

national forests. 

National Historic Preservation Act of 1966 

as amended (NHPA) (16 U.S.C. 470)

Sets forth the Federal Government’s policy to preserve and protect historical and cultural 

resources. This act states that the historical and cultural foundations of the Nation should be 

preserved as a living part of the Nation’s community life and development in order to give a sense 

of orientation to the American people. Directs all Federal agencies to take into account the effects 

of their undertakings (actions, financial support, and authorizations) on properties included in or 

eligible for the National Register. Establishes inventory, nomination, protection, and preservation 

responsibilities for federally owned historic properties. As amended extends the policy in the 

Historic Sites Act to State and local historical sites as well as those of national significance, 

Land and Resource Management Plan for the Kaibab National Forest 177
Appendix B: Relevant Laws, Regulation, and Policy

expands the National Register of Historic Places, establishes the Advisory Council on Historic 

Preservation and the State Historic Preservation Officers, and requires agencies to designate 

Federal preservation officers. Establishes criteria for designating tribal historic preservation 

officers to assume the functions of a state historic preservation officer on tribal lands.

National Trails System Act of October 2, 1968 (16

U.S.C.1241-1251)

Created a series of National trails “to promote the preservation of, public access to, travel within, 

and enjoyment and appreciation of the open-air, outdoor areas and historic resources of the 

Nation.” The Act and its subsequent amendments authorized a national system of trails and 

defined four categories of national trails. National Scenic Trails (NST) provide outdoor recreation 

and the conservation and enjoyment of significant scenic, historic, natural, or cultural qualities;

National Historic Trails (NHT) follow travel routes of national historic significance; National 

Recreation Trails (NRT) are in, or reasonably accessible to, urban areas on federal, state, or 

private lands; and Connecting or Side Trails provide access to or among the other classes of trails.

Organic Administration Act of June 4, 1897 

Authorizes the President to modify or revoke any instrument creating a national forest; states that 

no national forest may be established except to improve and protect the forest within its 

boundaries, for the purpose of securing favorable conditions of waterflows, and to furnish a 

continuous supply of timber for the use and necessities of citizens of the United States. 

Authorizes the Secretary of Agriculture to promulgate rules and regulations to regulate the use 

and occupancy of the national forests. 

Public Rangelands Improvement Act of October 25, 

1978 

Establishes and reaffirms the national policy and commitment to inventory and identify current 

public rangeland conditions and trends; manage, maintain and improve the condition of public 

rangelands so that they become as productive as feasible for all rangeland values in accordance 

with management objectives and the land use planning process; charge a fee for public grazing 

use which is equitable; continue the policy of protecting wild free roaming horses and burros 

from capture, branding, harassment, or death, while at the same time facilitating the removal and 

disposal of excess wild free roaming horses and burros which pose a threat to themselves, their 

habitat, and to other rangeland values. 

Religious Freedom Restoration Act (RFRA) (42 U.S.C. 

§ 2000bb) 

Government shall not substantially burden a person’s exercise of religion even if the burden 

results from a rule of general applicability, except when the government demonstrates that 

application of the burden to the person is in furtherance of a compelling governmental interest; 

and is the least restrictive means of furthering that compelling governmental interest.

178 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

Secure Rural Schools and Community SelfDetermination Act of 2000 

Through this law the Forest Service gives rural communities the means to build and improve 

schools, and provide road maintenance, emergency services, and conservation programs for their 

citizens. Thus, communities are no longer dependent on Federal timber sales from national forests 

to improve local schools and roads. 

Sikes Act of October 18, 1974, as amended

Authorizes the Secretary of the Interior and the Secretary of the Agriculture, in cooperation with 

the State agencies, to develop, maintain, and coordinate programs on public lands under their 

jurisdiction for the conservation and rehabilitation of wildlife, fish, and game. Provides that no 

individual will be permitted to hunt, trap, or fish on any public land within the State which is 

subject to a conservation and rehabilitation program under this section unless he/she has a valid 

public land management stamp. Makes provisions for the issuance and sale of such stamps. 

Small Tracts Act of January 22, 1983 

Authorizes the Secretary of Agriculture to sell, exchange, or interchange by quitclaim deed all 

right, title and interest, including the mineral estate, of the United States in and to certain lands 

within the national forest when he/she determines it to be in the public interest. 

Tribal Forest Protection Act of 2004 (Public Law 108-

278)

Authorizes the Secretary of Agriculture and the Secretary of the Interior to enter into an 

agreement or contract with Indian tribes meeting certain criteria to carry out projects to protect 

Indian forest land.

U.S. Mining Laws (Public Domain Lands) Act of May 

10, 1872 

Provides that all valuable mineral deposits in lands belonging to the United States, both surveyed 

and unsurveyed, are free and open to exploration and purchase, and the lands in which they are 

found to occupation and purchase by citizens of the United States and those who have declared 

their intention to become such, under regulations prescribed by law, and according to the local 

customs or rules of miners, so far as the same are applicable and not inconsistent with the laws of 

the United States. There are a number of acts which modify the mining laws as applied to local 

areas by prohibiting entry altogether or by limiting or restricting the use which may be made of 

the surface and the right, title, or interest which may pass through patent. 

Wild Free-Roaming Horses and Burros Act of 

December 15, 1971, as amended by Federal Land 

Policy Management Act of 1976 and Public 

Rangelands Improvement Act of 1978

Protects wild free roaming horses and burros from capture, branding, harassment, or death; and 

states they are to be considered in the area where presently found an integral part of the natural 

system of the public lands. 

Land and Resource Management Plan for the Kaibab National Forest 179
Appendix B: Relevant Laws, Regulation, and Policy

Wild and Scenic Rivers Act of October 2, 1968 

Instituted a National Wild and Scenic Rivers System by designating the initial components of that 

system, and by prescribing the methods by which and standards according to which additional 

components may be added to the system from time to time. 

Wilderness Act of September 3, 1964 

Established a National Wilderness Preservation System to be composed of federally owned areas 

designated by Congress as “wilderness areas” and administered for the use and enjoyment of the 

American people in such manner as will leave them unimpaired for future use and enjoyment as 

wilderness. Provides for the protection of these areas, the preservation of their wilderness 

character, and for the gathering and dissemination of information regarding their use and 

enjoyment as wilderness. States that no Federal lands shall be designated as “wilderness areas”

except as provided for in the act or by a subsequent act. 

Kaibab NF wilderness areas are designated under the following authorities:

Arizona Wilderness Act of 1984 (Public Law 48-406) designates Kanab Creek, 

Kendrick Mountain, and Saddle Mountain areas.

Regulations 

Below is a partial listing of relevant regulations. Federal executive departments and 

administrative agencies write regulations to implement laws. Regulations are secondary to law. 

However, both laws and regulations are enforceable.

36 CFR 60 National Register of Historic Places 

Sets forth the procedural requirements for listing properties on the National Register. 

36 CFR 63 Determinations of Eligibility for Inclusion 

in the National Register of Historic Places 

Developed to assist agencies in identifying and evaluating the eligibility of properties for 

inclusion in the National Register, and to explain how to request determinations of eligibility. 

36 CFR 62 National Natural Landmarks Program

The procedures in this part set forth the processes and criteria for the identification, evaluation, 

designation, and monitoring of national natural landmarks.

36 CFR 65 National Historic Landmarks Program 

Sets forth the criteria for establishing national significance and the procedures used by the 

Department of the Interior for conducting the National Historic Landmarks Program. 

180 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

36 CFR 212 Forest Development Transportation 

System26

Sets forth the requirements for the development and administration of the forest development 

transportation system. 

36 CFR 219 Planning 

Sets forth a process for developing, adopting, and revising land and resource management plans 

for the National Forest System. 

36 CFR 221 Timber Management Planning 

Sets forth the requirements for management plans for national forest timber resources. 

36 CFR 222 Range Management 

Sets forth the requirements for range management on the national forests, and for the 

administration of wild and free roaming horses and burros and their environment. See Subpart B 

(Management of Wild Free-Roaming Horses and Burros).

36 CFR 223 Sale and Disposal of National Forest 

System Timber 

Sets forth the requirements relating to the sale and disposal of National Forest System timber. 

36 CFR 228 Minerals 

Sets forth the rules and procedures through which use of the surface of National Forest System 

lands, in connection with mining and mineral operations, shall be conducted so as to minimize 

adverse environmental impacts on National Forest System surface resources. 

36 CFR 241 Fish and Wildlife 

Sets forth the rules and procedures relating to the management, conservation, and protection of 

fish and wildlife resources on National Forest System lands. 

36 CFR 251 Land Uses 

Sets forth the rules and procedures relating to the use and occupancy of National Forest System 

lands. 

36 CFR 254 Landownership Adjustments 

Sets forth the rules and procedures relating to exchange and conveyance of National Forest 

System lands. 

26 Travel Management; Designated Routes and Areas for Motor Vehicle Use; Final Rule is found in 36 CFR 212, 251, 

261, and 295

Land and Resource Management Plan for the Kaibab National Forest 181

 
Appendix B: Relevant Laws, Regulation, and Policy

36 CFR 261 Prohibitions 

Sets forth the general prohibitions relating to the use and occupancy of National Forest System 

lands. 

36 CFR 293 Wilderness-Primitive Areas 

Sets forth the requirements for the administration of wilderness and primitive areas. 

36 CFR 294 Special Areas 

Sets forth the requirements for designation of special recreation areas. 

36 CFR 295 Use of Motor Vehicles Off Forest 

Development Road 

Sets forth the rules and procedures relating to the administrative designation and location of 

specific areas and trails of National Forest System lands on which the use of motor vehicles 

traveling off of national forest development roads is allowed. 

36 CFR 296 Protection of Archaeological 

Resources: Uniform Regulations

Implements the Archaeological Resources Protection Act by establishing the uniform definitions, 

standards, and procedures for Federal land managers to follow in providing protection for 

archaeological resources located on public lands and Indian lands, including definitions of 

prohibited acts and penalties. The regulations also provide requirements for issuing permits under 

the authority of the Archaeological Resources Protection Act to any person proposing to excavate 

and/or remove archaeological resources from public lands or Indian lands.

36 CFR 297 Wild and Scenic Rivers 

Sets forth the rules and procedures relating to Federal assistance in the construction of water 

resources projects affecting wild and scenic rivers or study rivers on lands administered by the 

Secretary of Agriculture. 

36 CFR 800 Protection of Historic Properties 

Sets forth the provisions for the administration of the National Historic Preservation Act. 

40 CFR 51.300-309 Regional Haze Rule

The primary purposes of this subpart are to require states to develop programs to assure 

reasonable progress toward meeting the national goal of preventing any future, and remedying 

any existing, impairment of visibility in mandatory Class I Federal areas which impairment 

results from manmade air pollution; and to establish necessary additional procedures for new 

source permit applicants, states and Federal land managers to use in conducting the visibility 

impact analysis required for new sources under §51.166. This subpart sets forth requirements 

addressing visibility impairment in its two principal forms: “reasonably attributable” impairment 

(i.e., impairment attributable to a single source/small group of sources) and regional haze (i.e.,

widespread haze from a multitude of sources which impairs visibility in every direction over a 

large area).

182 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

40 CFR 1500 Council on Environmental Quality 

Council on Environmental Quality regulations implementing the National Environmental Policy 

Act.

43 CFR 3 Preservation of American Antiquities

Implements the provisions of the Antiquities Act of 1906.

43 CFR 10 Native American Graves 

Protection and Repatriation Act Regulations 

Implements the provisions of the Native American Graves Protection and Repatriation Act of 

1990. 

49 CFR 24.102, 103, 104 Basic Acquisition 

Policies, Criteria for Appraisals, Review of Appraisals

Real property acquisition.

50 CFR 402 Regulations Governing Interagency 

Cooperation—Endangered Species Act of 1973, as 

amended

Interprets and implements the act. Addresses forms of consultation (early, formal, informal and 

emergency), conferencing, preparation of biological assessments, designation of lead agency, 

responsibilities of Federal agency following issuance of a biological opinion, reinitiation of 

formal consultation, and irreversible or irretrievable commitment of resources.

Executive Orders 

Below is a partial listing of relevant executive orders. Executive orders are official documents by 

which the President provides instructions to executive departments and agencies. An executive 

order may be used to reassign functions among executive branch agencies. It may adopt 

guidelines, rules of conduct, or rules of procedure for government employees or units of 

government. It can also establish an advisory body or task force.

Executive Order 11990 Protection of Wetlands, 1977

Requires each Federal agency to provide leadership and to take action to minimize the 

destruction, loss or degradation of wetlands, and to preserve and enhance the natural and 

beneficial values of wetlands in carrying out the agency’s responsibilities for acquiring, 

managing, and disposing of Federal lands and facilities; providing federally undertaken, financed, 

or assisted construction and improvements; and conducting Federal activities and programs 

affecting land use, including but not limited to water and related land resources planning, 

regulating, and licensing activities. 

Land and Resource Management Plan for the Kaibab National Forest 183
Appendix B: Relevant Laws, Regulation, and Policy

Executive Order 12898 Federal Actions to Address 

Environmental Justice in Minority Populations and 

Low-Income Populations, 1994

Addresses environmental justice in minority and low-income populations and is designed to focus 

Federal attention on the environmental and human health conditions in minority communities and 

low-income communities with the goal of achieving environmental justice. The order is also 

intended to promote nondiscrimination in Federal programs substantially affecting human health 

and the environment, and to provide minority communities and low-income communities access 

to public information on, and an opportunity for public participation in, matters relating to human 

health or the environment. 

Executive Order 13007 Indian Sacred Sites, 1996

Requires each executive branch agency with statutory or administrative responsibility for the 

management of Federal lands, to the extent practicable, permitted by law, and not clearly 

inconsistent with essential agency functions, to accommodate access to and ceremonial use of 

Indian sacred sites by Indian religious practitioners and to avoid adversely affecting the physical 

integrity of such sacred sites. Where appropriate, agencies shall maintain the confidentiality of 

sacred sites. 

Executive Order 13112 Invasive Species, 1999

Ensures that Federal programs and activities to control and prevent invasive species are 

coordinated, effective, and efficient. It defines invasive species as “...an alien (or nonnative) 

whose introduction does or is likely to cause economic or environmental harm or harm to human 

health.”

Executive Order 13175 Consultation and 

Coordination with Indian Tribal Governments, 2000 

Promotes regular and meaningful consultation and collaboration with tribal officials in the 

development of Federal policies that have tribal implications, strengthens the United States 

government-to-government relationships with Indian tribes, and reduces the imposition of 

unfunded mandates upon Indian tribes.

Executive Order 13186 Responsibility of 

Federal Agencies to Protect Migratory Birds, 2001

Directs Federal agencies, as practicable, to support the conservation of migratory birds, restore 

and enhance the habitat of migratory birds, prevent or abate pollution or detrimental alteration of 

the environment for the benefit of migratory birds, ensure agency plans and actions promote 

programs and recommendations of comprehensive migratory bird planning efforts such as 

Partners-in-Flight, ensure that environmental analyses of Federal actions required by NEPA 

evaluate effect on migratory birds, and promote research, education, and training related to 

conservation of migratory birds.

184 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

Executive Order 13195 Trails for America in the 21st 

Century 

“Federal agencies will... protect, connect, promote, and assist trails of all types... This will be 

accomplished by... protecting the trail corridors associated with National Scenic Trails... to the 

degree necessary to ensure that the values for which [the] trail was established remain intact.”

Executive Order 13423 Strengthening Federal 

Environmental, Energy, and Transportation 

Management, 2007

Directs Federal agencies to conduct their environmental, transportation, and energy-related 

activities in support of their respective missions in an environmentally, economically and fiscally 

sound, integrated, continuously improving, efficient, and sustainable manner.

Executive Order 13433 Facilitation of 

Hunting Heritage and Wildlife Conservation, 2007 

Directs Federal agencies with programs and activities that have a measureable effect on public 

management, outdoor recreation, and wildlife management, to facilitate the expansion and 

enhancement of hunting opportunities and the management of game species and their habitat.

Forest Service Directives 

The following is a partial listing of national and regional Forest Service policies relevant to this 

plan. A complete listing can be found in Forest Service Manuals and Forest Service Handbooks at 

http://www.fs.fed.us/im/directives/

The directives system is the primary basis for the management and control of all internal 

programs and serves as the primary source of administrative direction for Forest Service 

employees. The system sets forth legal authorities, management objectives, policies, 

responsibilities, delegations, standards, procedures, and other instructions. 

The Forest Service Manual (FSM) contains legal authorities, goals, objectives, policies, 

responsibilities, instructions, and the necessary guidance to plan and execute assigned programs 

and activities. Forest Service Handbooks (FSH) are directives that provide instructions and 

guidance on how to proceed with a specialized phase of a program or activity. Handbooks either 

are based on a part of the FSM or they incorporate external directives. Forest Service Manuals 

and applicable Forest Service Handbooks provide guidance only and do not provide required 

direction.

FSM 1000 Organization and Management

• FSM 1010 Laws, Regulations, and Orders 

• FSM 1020 Forest Service Mission 

FSM 1400 Controls

• FSM 1410 Management Reviews

FSM 1500 External Relations

Land and Resource Management Plan for the Kaibab National Forest 185
Appendix B: Relevant Laws, Regulation, and Policy

• FSM 1560 State, Tribal, County, and Local Agencies, Public and Private Organizations

FSM 1600 Information Resources 

FSM 1900 Planning 

• FSM 1920 Land and Resource Management Planning

• FSM 1950 Environmental Policy and Procedures

FSM 2000 National Forest Resource Management

• FSM 2060 Ecosystem Classification, Interpretation, and Application 

• FSM 2070 Biological Diversity 

◦ FSM 2070.3 Vegetation Ecology (use of native plants in revegetation, rehabilitation, 

and restoration)

• FSM 2080 Noxious Weed Management, Southwestern Region supplement (weed free 

policy)

FSM 2200 Range Management 

• FSM 2260 Wild Free-Roaming Horses and Burros

FSM 2300 Recreation, Wilderness, and Related Resource Management

• FSM 2320 Wilderness Management

• FSM 2330 Publicly Managed Recreation Opportunities

◦ FSM 2332.11 Hazard Trees

• FSM 2350 Trail, River, and Similar Recreation Opportunities

• FSM 2353.4 Administration of National Scenic and National Historic Trails

◦ FSH 2309.18 Trails Management Handbook

• FSM 2360 Heritage Program Management

◦ FSM 2300-99-3 Southwest Region Supplement

FSM 2400 Timber Management, Southwestern Region.

• FSM 2430 Commercial Timber Sales, Southwestern Region, Small Sales and 

Commercial/Personal Use Permits of Timber, Fuelwood, and other forest products

• FSM 2470 Silvicultural Practices

FSM 2500 Watershed and Air Management 

• FSM 2540 Water Uses and Development, Southwestern Region supplement

◦ FSH 2509.25 Watershed Conservation Practices Handbook

FSM 2600 Wildlife, Fish, and Sensitive Plant Habitat Management 

• FSM 2610 Cooperative Relations

• FSM 2630 Management of Wildlife and Fish Habitat

• FSM 2670 Threatened, Endangered and Sensitive Plants and Animals

186 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

FSM 2700 Special Uses Management 

• FSM 2726 Energy Generation and Transmission

• FSM 2728 Communications

◦ FSH 2709.11 Special Uses Handbook

◦ FSH 2709.14 Recreation Special Uses Handbook

FSM 2800 Minerals and Geology 

• FSM 2810 Mining Claims

• FSM 2820 Mineral Leases, Permits, Licenses

• FSM 2850 Mineral Materials

◦ FSH 2809.15 Minerals and Geology Handbook

FSM 3100 Cooperative Fire Protection

FSM 3400 Forest Pest Management

FSM 5100 Fire Management 

FSM 5400 Land Ownership

• FSM 5410 Appraisals

• FSM 5420 Land Purchases and Donations

◦ FSH 5409.13 Land Acquisition Handbook

• FSM 5430 Exchanges

• FSM 5460 Right-of-Way Acquisition

◦ FSH 5409.17 Rights-of-Way Acquisition Handbook

FSM 5500 Land Ownership Title Management

FSM 7300 Buildings and Other Structures

• FSM 7310 Buildings and Related Facilities

◦ FSH 7309.11 Buildings and Related Facilities Handbook

FSM 7400 Public Health and Pollution Control Facilities 

• FSM 7420 Drinking Water

FSM 7500 Water Storage and Transportation 

FSM 7700 Transportation System

• FSM 7710 Travel Planning

◦ FSH 7709.55 Travel Analysis

◦ FSH 7709.56 Preconstruction Handbook

◦ FSH 7709.57 Road Construction Handbook

• FSM 7720 Development (Policy on Transportation)

• FSM 7730 Operation and Maintenance

Land and Resource Management Plan for the Kaibab National Forest 187
Appendix B: Relevant Laws, Regulation, and Policy

• FSM 7731 FSH 7709.59 Road Operations

State Regulations 

Arizona Administrative Code, Title 18. Environmental Quality, Chapter 2. Department of 

Environmental Quality Air Pollution Control, Article 15. Forest and Range Management Burns. 

http://www.azsos.gov/public_services/Title_18/18-02.htm

Arizona Administrative Code, Title 18. Environmental Quality, Chapter 4. Department of 

Environmental Quality Drinking Water Regulations. 

http://www.azsos.gov/public_services/title_18/18-04.htm

Arizona Administrative Code, Title 18. Environmental Quality, Chapter 5. Department of 

Environmental Quality Environmental Reviews and Certification. 

http://www.azsos.gov/public_services/title_18/18-05.htm

Arizona Administrative Code, Title 18. Environmental Quality, Chapter 9. Department of 

Environmental Quality Water Pollution Control. 

http://www.azsos.gov/public_services/title_18/18-05.htm

Arizona Administrative Code, Title 18. Environmental Quality, Chapter 11. Department of 

Environmental Quality Water Quality Standards. 

http://www.azsos.gov/public_services/title_18/18-11.pdf

Arizona Department of Environmental Quality Regional Haze State Implementation Plan for the 

State of Arizona. http://www.azdeq.gov/environ/air/haze/download/2sip.pdf

Arizona Department of Environmental Quality Revision State Implementation Plan for Regional 

Haze. http://www.azdeq.gov/environ/air/haze/download/2004_RH_SIP_Revision.pdf

Arizona Revised Statute, Title 17 – Game and Fish, Section 308. Unlawful camping relative to 

water and wildlife or domestic stock access. 

http://www.azleg.gov/ArizonaRevisedStatutes.asp?Title=49

Arizona Revised Statute, Title 49 – The Environment, Chapter 2 Water Quality Control, Article 

3.1 Arizona Pollutant Discharge Elimination System Program. 

http://www.azleg.gov/ArizonaRevisedStatutes.asp?Title=49

Programmatic Agreements 

The Memorandum of Understanding (04-MU-110460000-060) between the USDA Forest 

Service, Southwestern and Intermountain Regions and the State of Utah jointly identifies priority 

restoration needs; to build capacity to accomplish needed restoration projects; and to expand the 

use of stewardship contracting or other tools that encourage local employment in order to benefit 

the management of the national forests and communities of the Central Colorado Plateau and 

Great Basin.

A Memorandum of Understanding between the Forest Service, Southwestern Region, and the 

State of Arizona Department of Environmental Quality outlines responsibilities and activities 

related to water quality.

188 Land and Resource Management Plan for the Kaibab National Forest
Appendix B: Relevant Laws, Regulation, and Policy

Memorandum of Understanding between the Havasupai I Tribe and the USDA Forest Service, 

Kaibab National Forest (2008).

Memorandum of Understanding between the Hopi Tribe and the USDA Forest Service, Kaibab 

National Forest (2004).

Memorandum of Understanding between the Hualapai Tribe and the USDA Forest Service, 

Kaibab National Forest (2007).

Memorandum of Understanding between the Kaibab Band of Paiute Indians and the USDA 

Forest Service, Kaibab National Forest (2008).

Various memorandums of understanding with other agencies and organizations to promote 

conservation of migratory birds, to recover California condor, to facilitate survey and monitoring 

of bats and bat habitat with Bat Conservation International, and to improve coordination between 

Arizona Game and Fish Department and the Forest Service Southwestern Region.

First Amended Programmatic Agreement Regarding Historic Property Protection and 

Responsibilities among New Mexico Historic Preservation Officer and Arizona State Historic 

Preservation Officer and Texas State Historic Preservation Officer and Oklahoma State Historic 

Preservation Officer and the Advisory Council on the Historic Preservation and United States 

Department of Agriculture Forest Service Southwestern Region.

Other

Arizona Bugbane Conservation Assessment and Strategy for the Coconino and Kaibab National 

Forests (USDA FS 1995). The character of this area is maintained by limiting access and 

managing threats. Suppression actions may be needed to prevent damage to the plant colony and 

habitat.

Arizona Department of Transportation 2005. Historic Route 66 Corridor Management Plan. 

http://www.azdot.gov/Highways/SWProjMgmt/enhancement_scenic/scenicroads/PDF/cmp_route

_66.pdf

Central Arizona Grotto 2013. Arizona National Forest Cave and Karst Management Plan (draft)

https://docs.google.com/file/d/0B6ltDV4wi2eQZDFyUGJXZGlUY3M/edit?usp=sharing&pli=1

Kaibab National Forest Recreation Opportunity Spectrum-Scenery Management Guidebook, 

Kaibab National Forest Recreation Facility Analysis, Forest Service Built Environment Design 

Guide, ROS Book

Kaibab and Coconino National Forests Official Policy on Forest Products for Traditional and 

Cultural Purposes-2011

National Wildfire Coordinating Group (NWCG) Review and Update of the Federal Wildland Fire 

Management Policy (2001)

http://www.nwcg.gov/branches/ppm/fpc/archives/fire_policy/index.htm 

National Interagency Fire Center (NIFC) Guidance for Implementation of Federal Wildland Fire 

Management Policy (2009) http://www.nifc.gov/policies/guidance/GIFWFMP.pdf 

Land and Resource Management Plan for the Kaibab National Forest 189
Appendix B: Relevant Laws, Regulation, and Policy

National Interagency Fire Center (NIFC) Interagency Prescribed Fire Planning and 

Implementation Guide (2008)

http://www.nifc.gov/fuels/downloads/directions/RXFireGuide_08.30.06.pdf 

Paradine Plains Cactus (Pediocactus paradinei) Conservation Assessment and Strategy on the 

North Kaibab Ranger District, Kaibab NF and the Arizona Strip District, BLM 1997.

Parker, Patricia L. and Thomas F. King, 1998. Guidelines for Evaluating and Documenting 

Traditional Cultural Properties, National Register Bulletin, U.S. Department of the Interior, 

National Park Service, National Register, History and Education.

United Nations Declaration on the Rights of Indigenous People 07-58681—March 2008 —4,000

USDA, Forest Service, Coconino National Forest 1987. Land Management Plan as amended 

June 1996. The Coconino NF plan provides direction for the Sycamore Canyon Wilderness 

which is located within and managed by three national forests—the Coconino, Kaibab, and 

Prescott NFs.

USDA, Forest Service, Kaibab National Forest, Williams RD 1984. Wild Burro Interim 

Management Plan: Double A wild burro territory.

USDA, Forest Service, Southwestern Region 2005. Final Environmental Impact Statement for 

Integrated Treatment of Noxious or Invasive Weeds: Coconino, Kaibab, Prescott National Forests 

within Coconino, Gila, Mojave, and Yavapai Counties, Arizona, MB-R3-16-1.

USDOE and USDOI 2008. Programmatic Final Environmental Impact Statement, Designation of 

Energy Corridors on Federal Lands in the 11 Western States. 

http://corridoreis.anl.gov/documents/fpeis/index.cfm#vol1

Wildland Fire Decision Support System (WFDSS) 

http://wfdss.usgs.gov/wfdss/WFDSS_Home.shtml

190 Land and Resource Management Plan for the Kaibab National Forest
Appendix C. Large Tree

Retention Classes for Ponderosa Pine

Land and Resource Management Plan for the Kaibab National Forest 191
Appendix C: Large Tree Retention Classes for Ponderosa Pine

Age Class Descriptions

Dunning (1928) Age Class 5: Overmature; usually largest trees in stand; bark light yellow with 

wide, long and smooth plates; tops flat with terminals rarely discernible; nearly all branches are 

drooping, gnarled, and crooked.

Keen (1943) Age Class 4: Overmature; making no further height growth; diameter growth very 

slow; bark light yellow, uniform for entire bole (except in extreme top), with wide, long and 

smooth plates and often shallow fissures; tops usually flat or occasionally rounded or irregular; 

branches large, heavy, and often gnarled or crooked and mostly drooping except in extreme top.

Thomson (1940) Age Class 4: Mature to overmature; trees usually large; bark reddish-brown to 

yellow with wide, long and smooth plates; tops usually flat and making no further height growth; 

branches mostly large and drooping, gnarled or crooked.

References

Dunning, D. 1928. A tree classification for the selection forests of the Sierra Nevada. Journal of 

Agricultural Research 36(9): 755–771.

Keen, F. P. 1943. Ponderosa pine tree classes redefined. Journal of Forestry 41(4): 249–253.

Thomson, W. G. 1940. A growth rate classification of Southwestern ponderosa pine. Journal of 

Forestry 38(7): 547–553.

192 Land and Resource Management Plan for the Kaibab National Forest
Appendix D. Kaibab National Forest’s Plan 

Revision Climate Change Approach 

This appendix summarizes the Kaibab National Forest’s climate change approach for plan 

revision and guidance excerpted from “Southwestern Climate Change Trends and Forest 

Planning: A Guide for Addressing Climate Change in Forest Plan Revisions for Southwestern 

National Forests and National Grasslands” (USDA 2010a).

Introduction

Climate scientists agree that the earth is undergoing a warming trend, and that human-caused 

elevations in atmospheric concentrations of carbon dioxide and other greenhouse gases are among 

the causes of global temperature increases. The observed concentrations of these greenhouse 

gases are projected to increase. Climate change may intensify the risk of ecosystem change for 

terrestrial and aquatic systems, thereby affecting ecosystem structure, function, and productivity.

Strategies for protecting climate sensitive ecosystems through management will become 

increasingly important because changes in climate will likely continue regardless of emissions 

mitigation. Climate change exacerbates the already difficult task of managing the National Forest 

System for multiple goals. This appendix summarizes how the Kaibab NF intends to incorporate 

current and possible future climate change into the land management planning process. The 

primary consideration for evaluating responses to climate change lies with the Kaibab NF’s 

ability to modify social, economic, and ecological conditions on the planning unit.

Current Conditions and Trends

Current conditions and trends described in the final environmental impact statement (FEIS) for 

the Kaibab NF land and resource management plan and alternatives addresses risks, 

vulnerabilities, and potential ecological changes that could result from climate change. The plan 

addresses potential climate change impacts that are most likely to affect ecological systems, 

goods, and services. Evaluation of climate change impacts may lead to recognition that some 

conditions may be difficult to maintain over time. Particular attention is given to ecosystems that 

are most at risk due to climate change and vulnerable ecosystem components, such as aquatic 

systems, grassland plant diversity, and high-elevation ecosystems. Information from the 

evaluation of current conditions and trends was used to develop the social, economic, and 

ecological desired conditions in the plan.

Integrating Climate Change into 

Land and Resource Management Plans

Climate change is addressed as an integrated part of this plan rather than as a standalone set of 

desired conditions. An example is the desired condition that “The composition, structure, and 

function of vegetative conditions are resilient to the frequency, extent, and severity of 

disturbances and components that provide resilience to climate variability.” Integration of 

climate-relevant desired conditions throughout the plan helps to ensure these concepts are 

considered during project-level planning. 

Desired conditions for the planning unit were developed considering potential climate effects to:

• Increased extreme weather related forest disturbances (floods, drought, wind-throw)

193
Appendix D. Kaibab National Forest’s Climate Change Approach for Plan Revision

• Water stresses (groundwater, runoff, and timing), aquatic biota

• Wildfire risks

• Shifts in major vegetation types for the Southwest 

• Threatened, endangered, and sensitive species

• Forest insects and disease

• Weather related stresses on human communities (temperature, air quality)

• Outdoor recreation 

• Wildlife movement and biodiversity

Monitoring

No specific element of the monitoring plan was developed solely for monitoring climate change. 

However, the plan monitoring program incorporates provisions that should improve 

understanding of the relationships between key plan components and climate change. For 

example, an inventory of the aquatic ecosystems and information about water temperatures and 

waterflows associated with climate change can be useful for tracking variability within ecosystem 

condition and trends observed over a prescribed evaluation period. Monitoring the frequency and 

spatial extent of uncharacteristic wildfire occurrences and insect outbreaks would help the Kaibab 

NF assess how well management is mitigating for hotter, drier, and more fire-prone conditions, 

and whether existing management is promoting resilient ecosystems. Along similar lines, 

monitoring springs that are sensitive to variable precipitation and naturally more predisposed to 

the effects of prolonged drought would help the Kaibab NF to prioritize protection and restoration 

focused on those ecosystems while gleaning information about endemic species levels and 

refugia. It may also be possible to discern climate change-related patterns in habitat use through 

long-term monitoring of songbirds and their habitat. 

Although not an exhaustive list, some of the key Kaibab NF monitoring plan questions that have 

climate change relevance are:

• What percentage of the Kaibab NF is in an uneven-aged open state at the midscale (above 

100 acres)?

• How many acres burned with desired fire behavior and effects?

• What is the total area of contiguous acres (above the midscale) at risk for active crown 

fire?

• What is functional condition of the natural lakes and wetlands?

• What are the areal extent, distribution, and abundance of priority nonnative invasive 

plants on the Kaibab NF?

As part of its 2010 to 2015 strategic plan, the Forest Service launched a “Roadmap for 

Responding to Climate Change” (USDA 2010b). This comprehensive science-based plan 

emphasized a set of long- and short-term approaches for managing climate change while 

providing the agency with a clear, common vision. This strategic plan should help the Forest 

Service better provide for sustainability over time with climate uncertainty. The roadmap focuses 

on three primary activity areas: (1) assessing current risks, vulnerabilities, policies, and gaps in 

knowledge; (2) engaging internal and external partners in seeking solutions; and (3) managing for 

resilience in ecosystems as well as in human communities. A component of the strategic plan is a 

“Performance Scorecard” (http://www.fs.fed.us/climatechange/pdf/Scorecard.pdf), to be 

194 Land and Resource Management Plan for the Kaibab National Forest
Appendix D. Kaibab National Forest’s Climate Change Approach for Plan Revision

completed annually by each national forest or grassland. This scorecard has a series of questions 

focused on the above three activity areas that allow each management unit to assess how well 

integration of climate change considerations is happening at the local scale. The scorecard 

assesses agency capacity, partnerships and education, adaptation, mitigation, and sustainable 

consumption. All forests are expected to be compliant with 7 of the 10 scorecard elements by 

2015.

Decision Documents

Pertinent aspects of climate change would be addressed in the rationale of decision documents, 

particularly those that may affect the social, economic, and ecological systems within the 

planning unit that are most at risk. Examples of ecosystems, characteristics, and species most at 

risk include fire-adapted vegetation, native aquatic species, and endemic species. Examples of 

socioeconomic systems at risk of change include risks to private property and infrastructure from 

uncharacteristic fires, livestock grazing, winter recreation, water recreation, and personal use 

products. Increasingly, tools are available to aid in understanding and evaluating how climate 

change could affect forest resources. These tools can help with describing existing conditions and 

trends, developing project design criteria, and evaluating potential effects as they relate to 

changing conditions (see planning tools below). 

Potential Climate Change Effects

Based on current projections, the primary regional level effects of climate change most likely to 

occur in the Southwest include: (1) warmer temperatures, (2) decreasing precipitation, (3) 

decreased water availability with increased demand, (4) increased extreme disturbance events, 

and (5) increased use of national forests for relief from higher temperatures in lower elevation 

cities. These climate change factors could, in turn, affect ecological, weather related disturbances, 

and socioeconomic demands, including increases in:

• Frequency of extreme weather events (intense storms);

• Wildfire risks;

• Outbreaks of insects, diseases, and spread of nonnative invasive species;

• Demand for water;

• National forest socioeconomic uses and demands; and

• Changes in habitat quality and quantity for certain desired wildlife and plant species.

Extreme Weather Events

Climate change would likely increase flash floods, making the region’s growing population more 

susceptible to loss of life and property. While the Southwest is expected to become warmer and 

drier, it is also likely to experience more flooding. This relates in part to the fact that warm air 

holds more moisture than cooler air. The frequency of floods is also influenced by the rate of 

snowmelt in the winter and spring, the character of the summer monsoon, and the incidence of 

tropical hurricanes and storms in the autumn.

Hurricanes and other tropical cyclones are projected to become more intense in the future. Since 

Arizona typically receives10 percent or more of its annual precipitation from tropical storms, it is 

likely that this change would also increase flooding. A potential increase in extreme storms, 

floods, heat waves, and droughts may present challenges for achieving desired conditions.

Land and Resource Management Plan for the Kaibab National Forest 195
Appendix D. Kaibab National Forest’s Climate Change Approach for Plan Revision

Impacts from extreme weather events could include changes in the composition and diversity of 

desired ecosystems; destruction of habitat; damage to infrastructure such as trails, facilities, and 

roads; loss of recreation opportunities; and reduced wood and forage supplies. Disturbances that 

exceed the historic range of natural variation can change the composition, structure, and function 

of watersheds and some vegetation types, affecting a wide range of resources. Heavy rains and 

higher flood levels could affect the structural integrity of built infrastructure and increase 

maintenance needs. Flooding is a natural and beneficial disturbance in many aquatic systems. 

However, damage to aquatic systems from flash flooding causes erosion, downed trees, and 

inundation that can change streamside habitats, affect aquatic life, and impact the functioning 

condition of stream channels. These disturbances could create challenges in the ability of a forest 

to achieve desired conditions for aquatic habitats. Overall, increasing weather-related 

disturbances could divert limited Forest staff and funding to recovery efforts for extended 

periods, which would delay progress toward desired conditions, or modify them to allow for more 

dynamic conditions when desired conditions may not be attainable.

Wildfire

Historically, wildfires have played an important role in the vitality of fire-adapted ecosystems. 

Past forest management and fire suppression practices have changed the dynamics of fire on the 

landscape within the Southwestern Region’s national forests and grasslands, resulting in greater 

fuel loads and risk of wildfire. Federal land management agencies in the West routinely exceed 

expenditures of over $1 billion per year for wildfire suppression. Since about the mid-1970s, the 

total acreage of area burned and the severity of wildfires in ponderosa pine and mixed conifer 

forest have increased.

Fire frequency and severity are likely to increase as temperatures rise and precipitation decreases. 

Severe wildfires reduce the land’s ability to sequester and store carbon. Population growth in the 

Southwest may also lead to greater numbers of human-caused wildfires. The 2002 RodeoChediski Fires and the 2011 Wallow Fire in Arizona were started by humans. Combined, these 

fires burned over a million acres.

Outbreaks of Insects, Diseases, and Nonnative 

Invasive Species

Disturbances associated with climate change can have secondary impacts indirectly caused by 

wildfire and climate related extremes. Increased variation in temperature and moisture can cause 

stress and increase the susceptibility of forest ecosystems to invasions by insects, diseases, and 

nonnative species. New environmental conditions can lead to a different mix of species that tend

to favor plants and animals that can adapt their biological functions or are aggressive in 

colonizing new territories (Whitlock 2008). However, changes in adaptability may be too slow 

given the predicted rate of change. Species that are already broadly adapted may become more 

prevalent and species with narrow adaptability may become less prevalent. Disturbance factors 

that create more vulnerability in native ecosystems or require extensive controls to maintain the 

status quo are likely to adversely affect the health and diversity of forests.

Desired conditions for healthy forests include resilience to dramatic changes caused by abiotic 

and biotic stressors and mortality agents (e.g. pine beetle) and a balanced supply of essential 

resources (light, moisture, nutrients, growing space). Insects and diseases typically invade in 

cycles followed by periods of relative inactivity. Nonnative invasive species, such as cheatgrass 

196 Land and Resource Management Plan for the Kaibab National Forest
Appendix D. Kaibab National Forest’s Climate Change Approach for Plan Revision

and saltcedar, are expected to continue to increase in numbers and extent. Vulnerabilities to forest 

threats from an environment that may be much different from the historic range of natural 

variability is an active area of research, and includes developing new management approaches for 

changing conditions.

Diminishing Water Resources

Locations of most snowpack and upland reservoirs are on national forests in the Southwest. In 

much of the Southwest, less precipitation is falling as snow and spring melting is occurring earlier 

in the year. The Colorado River, Rio Grande, and several other southwestern rivers have 

streamflows that appear to be peaking earlier in the year, suggesting that the spring temperatures 

in these regions are warmer than in the past, causing snow to melt earlier. Water supplies are 

projected to become increasingly scarce, calling for tradeoffs among competing uses, potentially 

leading to conflict. In the Southwest, intense debate is likely to occur over resource allocation and 

conservation of available supplies.

Climate Related Socioeconomic Demand

Populations in Arizona and New Mexico are growing at an unprecedented rate. As of the 

American Communities Survey in 2006, Arizona’s population was over 6 million. The total 

increase for Arizona between 1980 and 2006 was 123 percent. The combination of population 

growth and climate change would likely exacerbate climatic effects, putting even greater pressure 

on water, forests, and other resources. Climate change could have long-term impacts on many of 

the amenities, goods, and services from forests, including productivity of locally harvested plants; 

local economics through land use shifts from forest to other uses; forest real estate values; and 

tree cover and composition in urban areas and associated benefits and costs. 

Climate Change and Wildlife Habitat

While climate change has the potential to affect all wildlife species, some are inherently more 

vulnerable than others, particularly species with specialized niches, limited mobility, and limited 

physiological adaptability. Certain habitats are more vulnerable to a changing climate. For 

example, springs and seeps are a valuable natural water source for a variety of birds and 

mammals, particularly in arid environments. These areas may offer critical refugia for rare and 

narrow endemic species. However, springs are especially sensitive to variable precipitation and 

likely to dry up during prolonged drought. As such, the unreliability of natural water resources 

would make it harder for wildlife species to persist, pushing the limits of their natural range. 

Managing for landscape connectivity will be important, as connectivity facilitates movement of 

species among habitats (Taylor et al. 1993, Millar et al. 2007). Connectivity has two components, 

structural and biological connectivity and biological components. Structural connectivity, the 

spatial structure of a landscape, can be described from map elements. Biological connectivity is 

the response of individuals to the scale of landscape features (Brooks 2003). Promoting 

connectivity in landscapes with flexible management goals that can be modified as conditions 

change may assist species to respond naturally to changing climates. Reducing fragmentation and 

planning at landscape scales to maximize habitat connectivity will become increasingly important

(Millar et al. 2007).

Land and Resource Management Plan for the Kaibab National Forest 197
Appendix D. Kaibab National Forest’s Climate Change Approach for Plan Revision

Management Strategies to 

Address Key Climate Change Concerns

Actions to address climate change factors of most concern are those that: 

1. Reduce vulnerability by restoring and maintaining resilient native ecosystems;

2. Anticipate increases in forest recreation; 

3. Use markets and demand for wood and biomass for restoration, renewable energy, and 

carbon sequestration; 

4. Enhance adaptation by anticipating and planning for intense disturbances;

5. Conserve water; and 

6. Monitor climate change influences.

Managing ecosystems under uncertainty necessitates flexible and adaptive approaches that are 

reversible, are implemented in incremental steps, allow for new information and learning, and can 

be modified with changing circumstances (Millar et al. 2007). Southwestern ecosystems have 

evolved under a long and complex history of climate variability and change. Taking into 

consideration the number of mega-droughts and other climate related variation, through time,

southwestern systems have some built-in resilience. The revised plan focuses on restoring and 

maintaining resilience in forest and grassland ecosystems. Risks of increased wildfire, insects and 

disease outbreaks, and invasive species represent ongoing, broad-scale management challenges. 

These issues are not new. However, climate change has the potential to increase and exacerbate 

the impacts of these ecosystem risks.

Because our understanding of climate change is rapidly evolving, management decisions that are 

robust to uncertainty, while being both strategic and tactical in nature, would likely be most 

effective at managing for climate change. Peterson et al. (2011) have developed a guidebook for 

climate change response on national forests. It recommends the following strategies that

incorporate both science and management: (1) become aware of basic climate change science and 

integrate that understanding with knowledge of the local resource conditions and issues (review);

(2) evaluate sensitivity of natural resources to climate change (rank); (3) develop and implement 

options for adapting resources to climate change (resolve); and (4) monitor the effectiveness of 

on-the-ground management (observe) and adjust as needed.

Restoring and maintaining resilience would likely improve the potential for ecosystems to retain 

or return to desired conditions after being influenced by climate change related impacts and 

variability. Managing for resistance (e.g., maintenance thinning to prevent catastrophic fire, forest 

insect or disease pandemics) and resilience (e.g., noxious weed control) offer meaningful 

responses to climate change.

Prescribed fires are a management tool that can serve multiple purposes, from sustaining desired 

conditions for fire-adapted ecosystems and sustaining habitat for threatened and endangered 

species to reducing fuel loads. Prescribed burning is also a management strategy that will be 

important for maintaining desired habitats in a changing climate with more natural disturbances. 

With projections of more frequent storms and other more extreme weather events and increased 

stress from forest pests in a warmer, drier climate, prescribed burning will continue to be an 

important management strategy for the future.

198 Land and Resource Management Plan for the Kaibab National Forest
Appendix D. Kaibab National Forest’s Climate Change Approach for Plan Revision

Forests serve as significant carbon reservoirs; however, large-scale fire events can counter this 

benefit by releasing significant amounts of carbon into the atmosphere. Fuel treatments (e.g., 

thinning, prescribed fire), as identified in the proposed action, promote low-density stand 

structures characterized by larger, fire resistant trees. This strategy should afford greater carbon 

storage in southwestern fire-adapted ecosystems over time (North et al. 2009, Hurteau and North 

2009). Although fire-excluded forests contain higher carbon stocks, this benefit is outweighed in 

the long term by the loss that would be likely from uncharacteristic stand-replacing fires (Hurteau 

et al. 2011) if left untreated.

Prescribed burning helps to mitigate the negative impacts of stand-replacing fire in dry, dense 

forests by consuming less biomass and releasing less carbon into the atmosphere (Wiedinmyer 

and Hurteau 2010). Further, research has shown that the long-term gains acquired through 

prescribed fire and mechanical thinning outweigh short-term losses in sequestered carbon. In the 

long term (e.g., 100 years), thinning and burning would create more resilient forests that are less 

prone to stand-replacing events, and subsequently able to store more carbon in the form of large 

trees. 

Slash resulting from mechanical thinning can be used in place of fuels (North and Hurteau 2011, 

Sorenson et al. 2011). Not all forest products sequester carbon equally. For example, products 

with longer on average lifespans (e.g., houses), have a greater potential to store carbon than shortlived products such as fence posts. In addition, biomass products created from slash can be used 

in place of fossil fuels, greatly reducing carbon emission into the atmosphere (Ryan et al. 2010). 

These types of discussions of tradeoffs in emission and carbon storage rates are likely to be 

increasingly relevant in decision making. Wood products that can substitute for building materials 

such as steel and concrete produce far less greenhouse gas emissions during their production 

while simultaneously sequestering carbon (Ryan et al. 2010). 

Although current programs and guidance are already in place to limit introduction of nonnative 

species, treat invasive species, and control insects and diseases, these efforts are likely to become 

more critical to maintaining desired conditions for healthy forests under a changing climate. Due 

to the fragmented land ownership patterns, success in reducing forest pests requires going beyond 

national forest boundaries, and continued collaboration with partners will be needed. In addition, 

management practices (such as prescribed selection cutting for age class diversity) that sustain 

healthy forests and provide adequate nutrients, soil productivity, and hydrologic function promote 

resilience and reduce the potential for disturbance and damage.

The Wildlife Society with the Inkley et al. (2004) recommended several actions to help wildlife 

adapt to climate change and its potential effects on wildlife. These include: (1) managing for 

diverse conditions; (2) reducing nonclimate stressors on ecosystems; (3) reducing the risk of 

uncharacteristic high-intensity fires; (4) conducting medium and long-range planning; (5) 

ensuring ecosystem processes; and (6) employing monitoring and adaptive management, as well 

as controlling for invasive plant species. Finally, it will be important to set priorities by 

appropriately balancing sensitive and vulnerable species and systems with those that are resistant 

and resilient (Glick and Edelson 2011). 

On the Kaibab NF, existing collaborations between the AGFD and Coconino County generally 

encourage the protection of open lands and the preservation of the land’s natural character within 

local and regional contexts. These collaborative strategies should decrease the potential for future 

land fragmentation while improving the overall integrity of the landscape. This should also 

Land and Resource Management Plan for the Kaibab National Forest 199
Appendix D. Kaibab National Forest’s Climate Change Approach for Plan Revision

provide for more resilience with regard to climate change for those wildlife species that may need 

to adjust migration routes, foraging corridors, or breeding grounds.

Planning Tools

To assist each national forest with better integration of climate change considerations into projectlevel planning, the Agency is actively engaged in developing user-friendly planning tools, 

assessments, and Web-based resources. For example, resource managers are encouraged to use 

rapid assessment tools, such as the Climate Project Screening Tool (CPST) (Morelli et al. 2012). 

The CPST is a decision-support tool that provides a direct link between best available science and 

management actions. Further, it is a process-oriented activity that integrates climate change trends 

for a particular region, with project design considerations for various resource areas. Composed 

of a series of climate change related questions relevant to the area of interest (developed 

collaboratively by scientists and interdisciplinary team specialists), the final outcome of the 

exercise for a particular project is a decision of proceed, modify, or cancel, given how well it 

meets the climate change considerations in the preceding questions, e.g., does it still make sense 

to do the project? Finally, this tool helps managers set priorities by considering the effects of 

different projects with regard to climate change, and helping to reduce management uncertainty.

Specifically for wildlife, the Forest Service Rocky Mountain Research Station has developed a 

System for Assessing Vulnerability of Species (SAVS). This system helps wildlife specialists 

quantify the relative impact of expected climate change effects for terrestrial vertebrate species. 

This decision-support tool uses criteria related to expected response or vulnerability of species in 

a questionnaire to provide a framework for assessing vulnerability to climate change. The 

questionnaire focuses on habitat, physiology, phenology, and biotic interactions. This tool helps 

to inform management by identifying specific traits and issues related to vulnerabilities of 

individual species. Additional information on this application can be found at: 

http://www.fs.fed.us/rm/grassland-shrubland-desert/products/species-vulnerability/

Finally, a comprehensive Web site has been launched that serves as a clearinghouse for climate 

change related information. Organized by resource area, this is a “one-stop shopping” site that 

provides scientists and managers with the information and resources needed to incorporate the 

most up-to-date climate change considerations into both near and long-term planning initiatives: 

http://www.fs.fed.us/ccrc/.

Summary

By managing for resistant and resilient ecosystems, promoting landscape connectivity, and 

implementing concepts of adaptive management, land and resource management plans can 

provide the framework for responding to new information and changing conditions related to 

climate change that have the potential to increase impacts to ecosystem risks. The revised Kaibab 

National Forest Land and Resource Management Plan should provide clear management direction 

and include the necessary monitoring and mechanisms that would facilitate adaptation over time.

200 Land and Resource Management Plan for the Kaibab National Forest
References 

Brooks, C. P. 2003. “A scalar analysis of landscape connectivity.” Oikos 102: 466–439.

Glick, P., B. A. Stein, and N. A. Edelson (editors). 2011. Scanning the Conservation Horizon: A 

Guide to Climate Change Vulnerability Assessment. National Wildlife Federation, 

Washington, DC.

Hurteau, M. and M. North. 2009. Fuel treatment effects on tree-based carbon storage under 

modeled wildfire scenarios. Frontiers in Ecology and the Environment 7: 409–414.

Hurteau, M. D., M. T. Stoddard, and P. Z. Fulé. 2011. The carbon costs of mitigating highseverity wildfire in southwestern ponderosa pine. Global Change Biology 17: 1516–1521.

Inkley, D. B., M. G. Anderson, A. R. Blaustein, V. R. Burkett, B. Felzer, B. Griffith, J. Price, and 

T. L. Root. 2004. Global climate change and wildlife in North America. Wildlife Society 

Technical Review 04-2. The Wildlife Society, Bethesda, Maryland, USA. 26 pp. 

Joyce, L. A., G. M. Blate, et al. 2008. National Forests. Preliminary Review of Adaptation 

Options for Climate-Sensitive Ecosystems and Resources. In: S. H. Julius, J. M. West, J. 

S. Baron et al. (editors). Washington, DC, U.S. Climate Change Science Program and the 

Subcommittee on Global Change Research: 3-1 to 3-127.

Millar, C. I., N. L. Stephenson, et al. 2007. Climate Change and Forests of the Future: Managing 

in the Face of Uncertainty. Ecological Applications 17(8): 2145–2151.

Morelli, T. L., S. Yeh, N. Smith, M. B. Hennessy, and C. Millar. 2012. Climate Project Screening 

Tool. Res. Pap. PSW-RP. Albany, CA: U.S. Department of Agriculture, Forest Service, 

Pacific Southwest Research Station. Online at 

http://www.fs.fed.us/psw/publications/documents/psw_rp263/psw_rp263.pdf

North, M. and M. Hurteau. 2011. High-severity wildfire effects on carbon stocks and emissions in 

fuels treated and untreated forest. Forest Ecology and Management 261: 1115–1120.

North, M., M. Hurteau, and J. Innes. 2009. Fire suppression and fuels treatment effects on mixedconifer carbon stocks and emissions. Ecological Applications 19: 1385–1396.

Peterson, D.L., C.I. Millar, L.A. Joyce, M.J. Fruniss, J.E. Halofsky, R.P Neilson, and T.L. 

Morelli. 2011. Responding to climate change on national forests: A guidebook for 

developing adaptation options. Gen. Tech. Rep. PNW-GTR- Portland, OR: U.S. 

Department of Agriculture, Forest Service, Pacific Northwest Research Station. 

Ryan, M. G., et al. 2010. A Synthesis of the Science on Forests and Carbon for U.S. forests. 

Issues in Ecology 13: 1–16.

Sorensen, C., A. J. Finkral, T. E. Kolb, C. Huang. 2011. Short and long-term effects of thinning 

and prescribed fire on carbon stocks in ponderosa pine stands in northern Arizona. Forest 

Ecology and Management 261: 460–472.

Taylor, P. D., L. Fahrig, et al. 1993. Connectivity is a vital element of landscape structure. Oikos

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Whitlock, C. 2008. Turning Up the Heat...On a Bubbling Cauldron of Forest Threats. Compass.

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201
References

USDA Forest Service, Southwestern Region. 2010a. “Southwestern Climate Change Trends and 

Forest Planning: A Guide for Addressing Climate Change in Forest Plan Revisions for 

Southwestern National Forests and National Grasslands.”

USDA Forest Service. 2010b. National Roadmap for Responding to Climate Change. 30 pp. 

202 Land and Resource Management Plan for the Kaibab National Forest
Land and Resource Management Plan for the Kaibab National Forest 203

Kaibab National Forest potential natural vegetation types (dark areas)

Appendix E. Kaibab National Forest Major Potential Natural Vegetation Types
Major Potential Natural Vegetation Types

Appendix E. Kaibab National Forest

204 Land and Resource Management Plan for the Kaibab National Forest

Kaibab National Forest potential natural vegetation types (dark areas)
Appendix E. Kaibab National Forest

Major Potential Natural Vegetation Types

Land and Resource Management Plan for the Kaibab National Forest 205

Kaibab National Forest potential natural vegetation types (dark areas)
Major Potential Natural Vegetation Types

Appendix E. Kaibab National Forest

206 Land and Resource Management Plan for the Kaibab National Forest

Kaibab National Forest potential natural vegetation types (dark areas)
Appendix F. Electronic Sites and Utility 

Corridors

Figure F1. Electronic sites and utility corridors on the North Kaibab Ranger District 

Land and Resource Management Plan for the Kaibab National Forest 207
Appendix F. Electronic Sites and Utility Corridors

Figure F2. Electronic sites and utility corridors on the Williams and Tusayan ranger 

districts

208 Land and Resource Management Plan for the Kaibab National Forest