Summary

Special-use permits (SUPs) held by parties who own and seasonally occupy 88 recreation residences 

on two separate tracts on the Safford Ranger District, Coronado National Forest, Graham County, 

Arizona, are scheduled to expire on December 31, 2008. The Forest Service proposes to issue new 

permits to these parties for a term of 20 years. This action is consistent with Forest Service policy 

(Forest Service Manual 2721.23(e)) to “continue recreation residence use when it is consistent with 

the forest plan” and to work in partnership with holders of these permits to maximize public 

recreational benefits. 

The residences are located on two tracts comprising 77 acres in the Pinaleño Mountains of the 1.8-

million-acre Coronado National Forest. Fourteen residences are located on 25 acres at Old Columbine 

and 74 residences are located on 52 acres at Turkey Flat. The Pinaleño Mountains cover an area of 

198,411 acres. Mt. Graham is the highest peak in the range. 

The proposed action itself is administrative in nature, but the use of the residences has the potential to 

impact natural resources. Direct, indirect, and cumulative effects reported in this draft environmental 

impact statement (EIS) are those associated with the continued occupancy and use of the recreation 

residences over a future 20-year period. Three alternatives to the proposed action were evaluated: no 

action, issue new permits for Turkey Flat residences only, and issue new permits for Old Columbine 

residences only. 

Each aspect of the proposed action was evaluated for consistency with the forestwide and 

management area specific goals, objectives, standards, and guidelines established in the “Coronado 

National Forest Land and Resource Management Plan” (1986, as amended). All aspects were found 

to be consistent with the forest plan, and no amendments to the plan will be necessary prior to new 

recreation residence SUPs being issued. 

The impacts analyses reported in this EIS disclose that no action, the proposed action, and the two 

other action alternatives would have minimal or discountable direct, indirect, and cumulative impacts 

on air quality, soils, water and riparian resources, recreation, visual quality, wild and scenic rivers, 

socioeconomics, and fire management in the area of potential effect. 

With regard to impacts to wildlife resources, the Forest Service conducted formal Section 7, 

Endangered Species Act (ESA), consultation with the U.S. Fish and Wildlife Service (FWS). On 

January 24, 2007, formal consultation was initiated by the Forest Service in a letter submitting a 

biological assessment and evaluation (BAE) of the proposed action. 

The BAE reported that the proposed action “may affect, but would not likely adversely affect” the 

Mexican spotted owl (MSO) and the Apache trout. In this draft EIS, the same determination is 

reported for no action and the other action alternatives. The U.S. Fish and Wildlife Service concurred 

on all of these determinations in a letter dated August 18, 2008. 

For the proposed action and alternatives, an ESA determination of “no effect” was made regarding 

potential impacts to designated critical habitat for the MSO. 

With regard to the Mt. Graham red squirrel (MGRS), an ESA determination of “may affect, likely to 

adversely affect” was made for no action, the proposed action, and the alternative of issuing new 

permits for Old Columbine only. Although the residence tract at Old Columbine represents only 25 

acres out of more than 27,000 acres of potential habitat available to the MGRS, the likelihood exists 

that two squirrel middens and perhaps their occupant(s) may be adversely affected by the proposed 

action. 

Neither recreation residence tract is located within designated critical habitat for the MGRS. 

DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District iii 
Summary 

In a biological opinion (BO) issued August 18, 2008 (see appendix C), the FWS concurs with the 

Forest Service’s ESA determination regarding impacts to the MSO and Apache trout. The BO assigns 

“take” for two Mt. Graham red squirrels. According to the biological opinion, “...this level of take is 

not likely to result in jeopardy to the species.” 

The Forest Service considered the impacts to cultural (also known as heritage) resources, as required 

by the National Historic Preservation Act, Executive Orders 13007 and 13175, and other laws and 

direction. In March 2006, National Historic Preservation Act, Section 106, consultation about issuing 

the new recreation residence permits was initiated with the Arizona State Historic Preservation 

Officer (SHPO) and Native American tribes and nations having traditional ties to the Coronado 

National Forest. 

The entire Pinaleño mountain range comprises the Western Apache traditional cultural property 

(TCP), Dził Nchaa Si’an 1

 (Mt. Graham), which is eligible for listing on the National Register of 

Historic Places. In consultation with the SHPO, the Forest Service determined that about threequarters of the residences at both Turkey Flat and Columbine have been modified extensively in the 

last 50 years; therefore, neither tract is eligible for listing on the National Register of Historic Places. 

While most of the 88 recreation residences are over 50 years old, only 21 of them retain their original 

characteristics. 

Further, in consultation with the SHPO, the presence or absence of the recreation residences was 

determined to have no adverse effect on the qualities that make Dził Nchaa Si’an eligible for the 

National Register of Historic Places. For these reasons, it was determined that issuing new residence 

permits at Turkey Flat or Columbine would have no adverse effect on historic properties, per Code 

of Federal Regulations Title 36, Section 800. 

From the Western Apache perspective, the Mt. Graham International Observatory and other 

developments within the Dził Nchaa Si’an TCP have damaged its spiritual and cultural integrity. The 

Western Apache believe that no action (i.e., not to issue new permits) would have the beneficial effect 

of returning additional land on the mountain to its natural state. Under the authority of the American 

Indian Religious Freedom Act, the Religious Freedom Restoration Act, and Executive Orders 13007 

and 13175, the Forest Service consulted with the San Carlos Apache Tribe and the White Mountain 

Apache Tribe to identify ways to reduce the effects of the recreation residences on the Western 

Apache TCP. The resulting mitigation measures developed to minimize the ongoing effects of 

recreation residences on the traditional cultural, spiritual, and historical values of Dził Nchaa Si’an

will be included as stipulations in each permit. These measures are defined in the chapter 2, 

“Mitigation” section of this EIS. 

Table 1, shown here and in Chapter 2, summarizes the results of the impacts analysis reported in this 

EIS, by resource. 

 

1

 Known to nonnatives as Mt. Graham and to the Apaches as Dził Nchaa Si'an, or big-seated mountain, the site is religiously 

significant as a source of divine power. Apaches have occupied the region for many centuries. 

iv DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District 
DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District v

Table 1. Comparison of potential impacts of all alternatives evaluated in this environmental impact statement 

Resource 

Recreation 

Residence 

Tract 

Alternative 1 – No Action 

Alternative 2 – 

Proposed Action, Issue Permits for Both Tracts 

Alternative 3 – Issue 

Turkey Flat Only 

A

C

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Wildlife Mexican spotted owl (MSO) 

Turkey Flat 

Noise and human presence would sporadically disturb the owl during the removal of improvements. Thus, removal will not be allowed during MSO nesting season. As natural succession occurs, the loss of open areas on the tracts may result in a decrease in populations of small mammals, upon which the MSO preys. Eventual regrowth of trees (60 to 80 years afterward) may provide new habitat suitable for MSO nesting. Removal of residences would negate the need for future fire suppression, which, in turn, would encourage the return of the natural fire cycle. With this, less intense fires would be expected, and old growth nesting habitat conserved. 

No change from existing conditions. Owls would continue to be disturbed occasionally by human presence and activity, but populations and habitat would not be significantly affected. Retention of the openings created by the residences would benefit populations of small mammals, upon which the MSO preys. A determination of “may affect, not likely to adversely affect” was made with regard to the potential impacts to the MSO at both tracts. There would be “no effect” on designated critical habitat. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Wildlife Mt. Graham red squirrel (MGRS) 

Old Columbine 

Removal of an outhouse at Old Columbine could directly impact one midden and possibly result in MGRS death or injury. Thus, a 

No change from existing conditions. Because of human presence at and near an 

Effects would be the same as those identified for alternative 1. 

Efthe idealt
vi DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District

Resource Recreation Residence Tract Alternative 1 – No Action Alternative 2 – Proposed Action, Issue Permits for Both Tracts Alternative 3 – Issue Turkey Flat Only A

C

determination that no action “may affect, is likely to adversely affect” the MGRS was made. Natural succession of trees on Old Columbine, but not Turkey Flat, may provide 25 acres of MGRS habitat over the long term. Increased tree density may reduce nutrients available for cone production. This, in turn, would negatively impact the squirrel’s food supply. The removal of residences at either tract would the need for future fire suppression, which, in turn, would encourage the return of the natural fire cycle. With this, less intense fires would be expected, and MGRS habitat at Old Columbine would be conserved. 

active midden, a determination of “may affect, likely to adversely affect” was made for Old Columbine. A biological opinion issued by the FWS on August 18, 2008, assigned a “take” of two squirrels and reported that this take would not result in jeopardy to the species. The tract is not within designated critical habitat for the MGRS. 

Wildlife Mt. Graham red squirrel (MGRS) 

Turkey Flat Removal of an outhouse at 

Old Columbine could directly impact one midden and possibly result in MGRS death or injury. Thus, a determination that no action “may affect, is likely to adversely affect” the MGRS 

No change from existing conditions. A determination of “may affect, not likely to adversely affect” was made with regard to potential impacts at Turkey Flat. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt
DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District vii

Resource 

Recreation 

Residence 

Tract 

Alternative 1 – No Action 

Alternative 2 – 

Proposed Action, Issue Permits for Both Tracts 

Alternative 3 – Issue 

Turkey Flat Only 

A

C

was made. Natural succession of trees on Old Columbine, but not Turkey Flat, may provide 25 acres of MGRS habitat over the long term. Increased tree density may reduce nutrients available for cone production. This, in turn, would negatively impact the squirrel’s food supply. The removal of residences at either tract would the need for future fire suppression, which, in turn, would encourage the return of the natural fire cycle. With this, less intense fires would be expected, and MGRS habitat at Old Columbine would be conserved. 

Wildlife Apache trout 

Old Columbine 

Removal of improvements would increase erosion and runoff from the tracts in the 

short term. Impacts to water quality in the subwatershed would be insignificant. 

No change from existing conditions. A determination of “may affect, not likely to adversely affect” was made with regard to the 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

 
viii DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District

Resource Recreation Residence Tract Alternative 1 – No Action Alternative 2 – Proposed Action, Issue Permits for Both Tracts Alternative 3 – Issue Turkey Flat Only A

C

Turkey Flat This species does not occur at 

the Turkey Flat tract. 

potential impacts to the Apache trout at Old Columbine. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Wildlife Forest Service Sensitive Species 

Turkey Flat 

No trend toward Federal listing or loss of viability of any of the Forest Service sensitive species that occur at or near each tract. 

No change from existing conditions. No trend toward Federal listing or loss of viability of any of the Forest Service sensitive species found at or near both tracts. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Wildlife Management Indicator Species 

Turkey Flat 

No significant changes in forestwide populations and habitat of forest management indicator species. 

No change from existing conditions. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Heritage Resources (Sites on or eligible for the National Register of Historic 

 Old Columbine 

A determination of “no adverse effect” on historic properties was made, per 36 CFR 800.5 (b). Removal is the preferred alternative of the Western 

Because residences were present prior to eligibility designation of the Traditional Cultural Property and their continued presence would not affect the qualities 

Effects would be the same as those identified for alternative 1. 

Efthe idealt
DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District ix 

Resource 

Recreation 

Residence 

Tract 

Alternative 1 – No Action 

Alternative 2 – 

Proposed Action, Issue Permits for Both Tracts 

Alternative 3 – Issue 

Turkey Flat Only 

A

C

Places) Turkey Flat Apaches. that make the mountain 

eligible for the National Register, a determination of “no adverse effect” on historic properties was made, per 36 CFR 800.5 (b). 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

 Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Heritage Resources (Dził Nchaa 

Si’an, eligible Traditional Cultural Property) 

Turkey Flat 

Removal would enhance the sacredness of the mountain by fostering restoration of the natural fire regime and wildlife habitat, reducing visual intrusions, and reducing human occupation and potential disrespectful behavior. 

No change from existing conditions, for example, restoration of wildlife habitat and natural fire regime would be inhibited, visual and noise intrusions would continue. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Air Quality 

Turkey Flat 

Short-term, sporadic, localized particulate matter (PM-10) emissions in fugitive dust from residence removal, burning debris, and vehicle traffic. Attainment of National Ambient Air Quality Standards would not be compromised. 

No change from existing conditions. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt
x DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District

Resource Recreation Residence Tract Alternative 1 – No Action Alternative 2 – Proposed Action, Issue Permits for Both Tracts Alternative 3 – Issue Turkey Flat Only A

C

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Soils 

Turkey Flat 

Minimal short-term increase in erosion after improvements are removed. Use of best management practices would minimize impacts to insignificant levels. Sites would eventually return to a more natural slope. No change in soil productivity. 

No change from existing conditions. Natural soil bulk density and structure would remain slightly compacted and altered by foot and vehicle traffic within the 77 acres occupied by the tracts. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Water and Riparian Resources 

Turkey Flat 

Potential for increased erosion on 77 acres in the short term. Effects of sediment runoff in the subwatersheds would be discountable given the small acreage of the tracts relative to the size of the watersheds. Use of best management practices to minimize erosion would result in insignificant stream turbidity levels. As the tracts are replenished with vegetation, hydrologic function would improve. The riparian channel of Ash Creek would eventually naturalize. 

No change from existing conditions. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt
DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District xi 

Resource 

Recreation 

Residence 

Tract 

Alternative 1 – No Action 

Alternative 2 – 

Proposed Action, Issue Permits for Both Tracts 

Alternative 3 – Issue 

Turkey Flat Only 

A

C

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Recreation 

Turkey Flat 

Use of the tracts for developed recreation would discontinue after 10 years. Tracts would become dispersed-use sites. Minimal increase in use of other recreation sites on the district. Recreation Opportunity Spectrum setting for Old Columbine would change from Rural to Roaded Natural. 

No change from existing conditions. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Visual and Aesthetic Resources 

Turkey Flat 

Short-term changes in visual quality during removal of improvements. Visual quality objective of Retention would not be affected. 

No change from existing conditions 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Old Columbine 

Wild and Scenic Rivers 

Turkey Flat 

No change from existing conditions. 

No change from existing conditions. 

No change from existing conditions. 

No exco
xii DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District

Resource Recreation Residence Tract Alternative 1 – No Action Alternative 2 – Proposed Action, Issue Permits for Both Tracts Alternative 3 – Issue Turkey Flat Only A

C

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Social and Economic Resources 

Turkey Flat 

Until improvements are removed after 10 years, the family culture and tradition of permit holders, the small positive effect on the economy of surrounding towns, and revenues to Forest Service and Graham County would continue. Removal of improvements would result in a cost to permit holders of about $3,000. No disproportionate impacts to low income and minority populations. 

No change from existing conditions. No disproportionate impacts to low income and minority populations. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Fire Management 

Turkey Flat 

After 10 years, Forest Service would realize cost savings because fuel thinning near structures and fire suppression would no longer be needed. As native vegetation repopulates the tracts, the fire cycle would gradually return to more natural fire-adapted conditions. 

No change from existing conditions. Fire suppression and fuel thinning would continue to be necessary around tracts. Wildland fire use for resource enhancement would not be possible. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt
DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District xiii 

Resource 

Recreation 

Residence 

Tract 

Alternative 1 – No Action 

Alternative 2 – 

Proposed Action, Issue Permits for Both Tracts 

Alternative 3 – Issue 

Turkey Flat Only 

A

C

Old Columbine 

Effects would be the same as those identified for alternative 1. 

Efthe idealt

Cumulative Effects 

Turkey Flat 

The removal of residences at both tracts would decrease the need for future fire suppression over 77 acres of the forest, which, in turn, would encourage the return of the natural fire cycle. Subsequent natural fires would be less intense, and wildlife habitat would be conserved, including MGRS habitat at Old Columbine. The mountain would be returned to a more natural condition, which would begin the reversal of numerous effects to the Western Apache TCP. 

No change to existing cumulative effects in the area of effect of both tracts. 

Effects would be the same as those identified for alternative 2. 

Efthe idealt
Summary 

Acronyms and Symbols 

ADEQ Arizona Department of Environmental Quality 

ADOT Arizona Department of Transportation 

ADWR Arizona Department of Water Resources 

AGFD Arizona Game and Fish Department 

AICA Arizona-Idaho Conservation Act 

AMR Appropriate Management Response 

amsl Above Mean Sea Level 

APE Area of Potential Effect 

BAE Biological Assessment and Evaluation 

BMP Best Management Practice 

BO Biological Opinion 

CAA Clean Air Act 

CE Categorical Exclusion 

CEQ Council of Environmental Quality 

CFR Code of Federal Regulations 

CO Carbon Monoxide 

DBH Diameter at Breast Height 

DEIS Draft Environmental Impact Statement 

EA Environmental Assessment 

EIS Environmental Impact Statement 

EPA Environmental Protection Agency 

ESA Endangered Species Act 

FMU Fire Management Unit 

FMZ Fire Management Analysis Zone 

FRCC Fire Regime Condition Class 

FS Forest Service 

FSH Forest Service Handbook 

FSM Forest Service Manual 

FSS Forest Service Sensitive Species 

FWS Fish and Wildlife Service 

GES General Ecosystem Survey 

GIS Geographic Information System 

LSC Low Sun-Cold (climatic class) 

MA Management Area 

MGIO Mount Graham International Observatory 

MGRS Mount Graham Red Squirrel 

MIS Management Indicator Species 

MSO Mexican Spotted Owl 

NAAQS National Ambient Air Quality Standards 

NEPA National Environment Policy Act 

NF National Forest 

NFMA National Forest Management Act 

NFS National Forest System 

NHPA National Historic Preservation Act 

NO2 Nitrogen Dioxide 

NOA Notice of Availability 

NOAA National Oceanic and Atmospheric Administration 

xiv DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District 
Summary 

DEIS for New Special-Use Permits for Recreation Residences, Safford Ranger District xv 

NOI Notice of Intent 

O&M Operation and Maintenance 

O3 Ozone 

ORVs Outstandingly Remarkable Values 

PAC Protected Activity Center 

Pb Lead 

PEM Pinaleño Ecosystem Management 

PERP Pinaleño Ecosystem Restoration Project 

PILT Payments in Lieu of Taxes 

PM Particulate Matter 

PNV Present Net Value 

ROD Record of Decision 

ROS Recreational Opportunity Spectrum 

RPA Reasonable and Prudent Alternative 

SHPO State Historic Preservation Officer 

SMS Scenery Management System 

SO2 Sulfur Dioxide 

SOPA Schedule of Proposed Actions 

SRSCS Secure Rural Schools and Community Self-Determination Act 

SUP Special Use Permit 

TCP Traditional Cultural Property 

TES Threatened and Endangered Species 

USDA United States Department of Agriculture 

USDI United States Department of the Interior 

VQO Visual Quality Objective 

VRMS Visual Resource Management System 

WFSA Wildland Fire Situation Analysis 

WSR Wild and Scenic River 

WUI Wildland-Urban Interface