United States Department of Agriculture

Draft Land Management Plan

Carson National Forest

Rio Arriba, Taos, Mora, and Colfax Counties, New Mexico

Forest Service Southwestern Region MB-R3-02-09 July 2019
Carson National Forest Title Page: Photo credit – Kathy DeLucas. 

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El USDA es un proveedor, empleador y prestamista que ofrece igualdad de oportunidad.
Draft Land Management Plan

Carson National Forest

Responsible Official: James Duran, Forest Supervisor

Carson National Forest

208 Cruz Alta Road

Taos, NM 87571

For additional Information: Peter Rich, Forest Planner

Telephone: (575) 758-6277

E-mail: peter.rich@usda.gov
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Draft Land Management Plan for the Carson National Forest

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Contents 

CHAPTER 1. INTRODUCTION .............................................................................................................. 1

PLAN AREA ............................................................................................................................................... 1

Geographic Context.............................................................................................................................................. 1

Historical Context................................................................................................................................................. 2

Distinctive Roles and Contributions..................................................................................................................... 4

PURPOSE OF THE PLAN.............................................................................................................................. 6

NEED FOR CHANGING THE 1986 PLAN...................................................................................................... 7

Terrestrial Ecosystems and Habitat...................................................................................................................... 7

Watersheds and Water.......................................................................................................................................... 8

Multiple Uses and Human Influences................................................................................................................... 8

PLAN FRAMEWORK ................................................................................................................................. 10

Plan Organization...............................................................................................................................................10

Plan Components................................................................................................................................................10

Other Required Plan Content .............................................................................................................................14

Adaptive Planning and Monitoring.....................................................................................................................14

Use of Best Available Scientific Information ......................................................................................................15

Plan Concepts.....................................................................................................................................................15

Interrelationships of Plan Content......................................................................................................................18

CONSISTENCY OF PROJECTS WITH THE PLAN.......................................................................................... 19

PLAN IMPLEMENTATION ......................................................................................................................... 21

Transition to Plan Implementation .....................................................................................................................22

CHAPTER 2. FORESTWIDE PLAN COMPONENTS........................................................................ 23

ECOLOGICAL SUSTAINABILITY AND DIVERSITY OF PLANT AND ANIMAL COMMUNITIES ..................... 23

Vegetation (VEG)................................................................................................................................................24

Alpine and Tundra (VEG-ALP)...........................................................................................................................29

Montane and Subalpine Grasslands (VEG-MSG) ..............................................................................................31

Bristlecone Pine (VEG-BP) ................................................................................................................................34

Spruce Fir Forest (VEG-SFF) ............................................................................................................................35

Aspen (VEG-ASP)...............................................................................................................................................38

Mixed Conifer with Aspen (VEG-MCW).............................................................................................................41

Mixed Conifer with Frequent Fire (VEG-MCD) ................................................................................................44

Ponderosa Pine Forest (VEG-PPF) ...................................................................................................................48

Piñon-Juniper Woodland (VEG-PJO) ................................................................................................................52

Piñon-Juniper Sagebrush (VEG-PJS).................................................................................................................55

Sagebrush (VEG-SAGE).....................................................................................................................................59

Soil Resources (SL).............................................................................................................................................61

Watersheds and Water (WSW)............................................................................................................................63

Riparian Management Zones (WSW-RMZ) ........................................................................................................66

Streams (WSW-RMZ-STM)................................................................................................................................. 69

Waterbodies (WSW-RMZ-WB)............................................................................................................................71

Springs and Seeps (WSW-RMZ-SNS)..................................................................................................................72

Wetland Riparian (WSW-RMZ-WR) ...................................................................................................................74

Forest and Shrub Riparian (WSW-RMZ-FSR)....................................................................................................76

Caves and Abandoned Mines (CAM)..................................................................................................................80

Cliffs and Rocky Features (CRF)........................................................................................................................82

Wildlife, Fish, and Plants (WFP)........................................................................................................................84

Nonnative Invasive Species (NIS).......................................................................................................................90

Air Resources (AIR)............................................................................................................................................93

SOCIAL, CULTURAL, AND ECONOMIC SUSTAINABILITY AND MULTIPLE USE ........................................ 95

Northern New Mexico Traditional Communities and Uses................................................................................95

Federally Recognized Tribes (FRT)....................................................................................................................97
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Rural Historic Communities (RHC).................................................................................................................. 100

Cultural Resources (CR)...................................................................................................................................103

Sustainable Rangelands and Livestock Grazing (GRZ)....................................................................................105

Sustainable Forestry and Forest Products (FFP) ............................................................................................109

Recreation (REC)..............................................................................................................................................115

Transportation and Forest Access (TFA) .........................................................................................................120

Facilities Infrastructure (FAC).........................................................................................................................124

Scenery (SCEN) ................................................................................................................................................125

Special Uses (SU) .............................................................................................................................................128

Lands (LAND)...................................................................................................................................................131

Wildland Fire Management (FIRE)..................................................................................................................133

Minerals and Mining (MM) ..............................................................................................................................136

Partnerships (PART).........................................................................................................................................138

CHAPTER 3. DESIGNATED AREAS AND MANAGEMENT AREAS PLAN COMPONENTS 139

DESIGNATED AREAS (DA).................................................................................................................... 139

Vallecitos Federal Sustained Yield Unit (VFSYU)............................................................................................140

Wilderness (WILD) ...........................................................................................................................................141

Wild and Scenic Rivers (WSR)..........................................................................................................................145

Inventoried Roadless Areas (IRA).....................................................................................................................146

National Scenic, Historic, and Recreation Trails (NTRL)................................................................................148

National Scenic Byways (NSBW)......................................................................................................................153

Wild Horse Territories (WHT)..........................................................................................................................154

Sangre de Cristo Pea Clam Zoological Area (ZOO)........................................................................................155

Haplopappus Microcephalus Botanical Area (BOT)........................................................................................156

MANAGEMENT AREAS (MA) ................................................................................................................ 157

Recommended Wilderness Management Area (RWMA)...................................................................................157

Eligible Wild and Scenic River Management Area (EWSR).............................................................................160

Developed Winter and Summer Resort Management Area (DEVRES).............................................................165

Jicarilla Natural Gas Management Area (JICMA)...........................................................................................167

Grassland Maintenance Management Area (GMMA)......................................................................................172

Valle Vidal Management Area (VVMA)............................................................................................................173

San Antonio Management Area (SAMA) ..........................................................................................................176

CHAPTER 4. PLAN MONITORING PROGRAM............................................................................. 179

INTRODUCTION...................................................................................................................................... 179

MONITORING TOPIC I: WATERSHED CONDITIONS ................................................................................ 181

MONITORING TOPIC II: ECOLOGICAL PROCESSES AND CONDITIONS FOR TERRESTRIAL AND AQUATIC 

ECOSYSTEMS......................................................................................................................................... 182

MONITORING TOPIC III: STATUS OF FOCAL SPECIES............................................................................ 184

Recommended Focal Species on the Carson National Forest ..........................................................................185

MONITORING TOPIC IV: STATUS OF AT-RISK SPECIES......................................................................... 187

MONITORING TOPIC V: STATUS OF VISITOR USE, VISITOR SATISFACTION, AND MEETING RECREATION 

OBJECTIVES........................................................................................................................................... 188

MONITORING TOPIC VI: MEASURABLE CHANGES RELATED TO CLIMATE AND OTHER STRESSORS ... 189

MONITORING TOPIC VII: PROGRESS TOWARD MEETING DESIRED CONDITIONS AND OBJECTIVES..... 190

MONITORING TOPIC VIII: PRODUCTIVITY OF THE LAND AND EFFECTS OF MANAGEMENT SYSTEMS . 191

MONITORING TOPIC IX: SOCIAL, ECONOMIC, AND CULTURAL SUSTAINABILITY................................ 191

GLOSSARY ............................................................................................................................................ 192

REFERENCES ........................................................................................................................................ 211

LIST OF PREPARERS.......................................................................................................................... 214

INTERDISCIPLINARY TEAM ................................................................................................................... 214
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REVIEW AND EXPERT SUPPORT ............................................................................................................ 214

APPENDIX A. MAPS............................................................................................................................. 215

APPENDIX B. PROPOSED AND POSSIBLE ACTIONS ................................................................. 231

INTRODUCTION...................................................................................................................................... 231

Forestwide Management...................................................................................................................................231

Designated and Management Areas.................................................................................................................242

APPENDIX C. RELEVANT LAWS, FOREST SERVICE REGULATIONS, POLICES, 

DIRECTIVES, AND OTHER SOURCES OF INFORMATION....................................................... 245

FEDERAL STATUTES.............................................................................................................................. 245

EXECUTIVE ORDERS.............................................................................................................................. 256

FOREST SERVICE DIRECTIVES............................................................................................................... 259

FOREST SERVICE REGULATIONS ........................................................................................................... 262

STATE REGULATIONS............................................................................................................................ 265

PROGRAMMATIC AGREEMENTS ............................................................................................................ 266

Other Sources of Information ...........................................................................................................................267

APPENDIX D. OTHER SUPPORTING PLAN DOCUMENTATION............................................. 272

List of Tables 

Table 1. Acronyms used in plan codes ....................................................................................................... 13

Table 2. Fire regime classification descriptions.......................................................................................... 17

Table 3. Timber production suitability classification for the Carson National Forest.............................. 110

Table 4. Projected harvest levels of timber products (volumes other than salvage or sanitation that meet 

timber product utilization standards) ................................................................................................ 111

Table 5. Harvest levels of other estimated wood products (fuelwood, biomass, and other volumes that do 

not meet timber product utilization standards).................................................................................. 111

Table 6. Inventoried roadless areas on the Carson National Forest.......................................................... 146

Table 7. Eligible river segments with associated classification and outstandingly remarkable values .... 161

Table 8. Criteria for wild, scenic, and recreational eligible river classification ....................................... 163

Table 9. Monitoring questions and associated indicators that evaluate select watershed conditions....... 181

Table 10. Monitoring questions and associated indicators that evaluate select ecological conditions for 

key characteristics of terrestrial and aquatic ecosystems.................................................................. 182

Table 11. Monitoring questions and associated indicators that evaluate the status of focal species ........ 186

Table 12. Monitoring questions and associated indicators that evaluate the status of a select set of 

ecological conditions for at-risk species........................................................................................... 187

Table 13. Monitoring questions and associated indicators that evaluate the status of visitor use, visitor 

satisfaction, and progress toward meeting recreation objectives...................................................... 188

Table 14. Monitoring questions and associated indicators that measure change related to climate change 

and other stressors that may be affecting the plan area..................................................................... 189

Table 15. Monitoring questions and associated indicators that evaluate progress toward meeting the 

desired conditions and objectives in the plan, including providing for multiple-use opportunities . 190

Table 16. Monitoring questions and associated indicators that evaluate the effects of each management 

system to determine that they do not substantially and permanently impair the productivity of the 

land.................................................................................................................................................... 191

Table 17. Monitoring questions and associated indicators that evaluate social, economic, and cultural 

sustainability ..................................................................................................................................... 191

Table 18. Possible annual number of acres of mechanical treatment by treatment type .......................... 239
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Draft Land Management Plan for the Carson National Forest

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List of Figures 

Note: Figures found in Appendix A: Maps are prefaced by the letter A. 

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

Figure 2. Example of plan code .................................................................................................................. 12

Figure 3. Example of nested plan code ....................................................................................................... 12

Figure 4. Example of the three spatial scales.............................................................................................. 25

Figure A-1. Desired recreation opportunity spectrum for the Carson National Forest............................. 216

Figure A-2. Scenery management system scenic class for the Carson National Forest ........................... 217

Figure A-3. Transmission utility corridors and communication sites on the Carson National Forest...... 218

Figure A-4. Vallecitos Federal Sustained Yield Unit, El Rito Ranger District ........................................ 219

Figure A-5. Designated wilderness and designated wild and scenic rivers on the Carson National Forest

.......................................................................................................................................................... 220

Figure A-6. Inventoried roadless areas on the Carson National Forest .................................................... 221

Figure A-7. National scenic, historic, and recreation trails and national scenic byways on the Carson 

National Forest.................................................................................................................................. 222

Figure A-8. Designated wild horse territories, zoological, and botanical areas on the Carson National 

Forest ................................................................................................................................................ 223

Figure A-9. Recommended wilderness management areas on the Carson National Forest...................... 224

Figure A-10. Eligible wild and scenic rivers on the Carson National Forest............................................ 225

Figure A-11. Developed winter and summer resort management areas on the Carson National Forest .. 226

Figure A-12. Jicarilla natural gas management area on the Carson National Forest ................................ 227

Figure A-13. Grassland maintenance management areas on the Carson National Forest ........................ 228

Figure A-14. Valle Vidal management area on the Carson National Forest............................................. 229

Figure A-15. San Antonio management area on the Carson National Forest........................................... 230

List of Commonly Used Acronyms and Abbreviations

BLM Bureau of Land Management

CFR code of federal regulations

DBH diameter at breast height

e.g. for example, from the Latin phrase exempli gratia

FS Forest Service

FSH Forest Service handbook

i.e. that is, namely, or in other words, from the Latin phrase id est

MMCF million cubic feet

MMBF million board feet

NEPA National Environmental Policy Act

NF national forest

NFS National Forest System

NM New Mexico

NMDGF Department of Game and Fish

PTSQ projected timber sale quantity

PWSQ projected wood sale quantity

USDA U.S. Department of Agriculture

USDI U.S. Department of Interior

USFWS U.S. Fish and Wildlife Service 

Note: The glossary includes other acronyms commonly used by the Forest Service. 
Draft Land Management Plan for the Carson National Forest

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Chapter 1. Introduction 

Plan Area

The Carson National Forest (or “the Carson”) is one of five national forests in New Mexico. It 

covers 1,486,372 acres, and is located in Rio Arriba, Taos, Mora, and Colfax counties. The 

Carson is divided into six ranger districts–Camino Real, Canjilon, El Rito, Jicarilla, Tres Piedras, 

and Questa. East of the Rio Grande Gorge, the Questa and Camino Real ranger districts span the 

Sangre de Cristo Mountains (referred to as the “east side”). West of the Rio Grande, the Tres 

Piedras, El Rito, and Canjilon ranger districts cover the slopes of the San Juan Mountains 

(referred to as the “west side”). To the far west, Jicarilla Ranger District sits on the eastern edge 

of the San Juan Basin, with rugged buttes, steep canyons, and prominent mesas. The Carson 

shares boundaries with the Rio Grande National Forest in Colorado, the Santa Fe National Forest, 

the Taos Pueblo, the Jicarilla Apache Nation, the Southern Ute Tribe, the Picuris Pueblo, U.S.

Department of Interior, Bureau of Land Management (BLM), the towns of Red River, Questa, 

Taos, Taos Ski Valley, Peñasco, Tres Piedras, El Rito, Canjilon, and private lands. This land 

management plan covers all the National Forest System (NFS) lands within the Carson National 

Forest boundary.

Figure 1. Vicinity map of the Carson National Forest

Geographic Context

The Carson lies across the Sangre de Cristo (east side) and Tusas mountains (west side), which

extend north into Colorado and south onto the Santa Fe National Forest. Their high elevations fill 

two major rivers, the Rio Grande and Rio Chama, and are vital water sources to both small local 

communities and larger urban areas downstream. The Carson manages resources that are 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

2 

important regionally and nationally, from the rare high alpine environments around the highest 

peak in New Mexico, to the broad meadows and bristlecone pine forests of Valle Vidal, to the 

natural gas producing woodlands of the San Juan Basin, to fuelwood, timber, and other forest 

products that local communities rely on.

The NFS lands make up about 37 and 23 percent of Taos and Rio Arriba counties, respectively,

and the majority of these two counties are under management of Federal agencies or federally 

recognized tribes. Taos, Rio Arriba, Mora, and Colfax counties benefit from having the NFS lands 

close by for activities such as recreation, wood product harvesting, oil and gas production, and 

livestock grazing. Forest Service management supports the continued relationship between the 

Carson National Forest and the communities in these counties, while its economic influence 

reaches beyond those nearby communities and into San Juan County in New Mexico and Conejos 

and Costilla counties in Colorado.

Historical Context

For much of the span of human history, American Indians were the only people to occupy and use 

the lands that encompass the Carson. Their utilization of the forest and the surrounding area 

began with the earliest human occupation of the Western Hemisphere and persists to the present 

day. The land-based cultures that exist today in northern New Mexico have relied on the forests, 

valleys, and water of these public lands spanning many generations. The earliest inhabitants were 

small bands of nomadic hunters and gatherers that roamed the Southwest beginning 

approximately 13,000 years ago. This hunting and gathering lifeway was the sole human 

socioeconomic model until approximately 2,000 years ago when a sedentary agricultural based 

socioeconomic model began to supplement, and in some cases, supplant the hunter-gatherer 

cultures in the area. The contemporary Pueblo people in northern New Mexico developed their 

modern ethnic identities and relationship to the land during the past 2,000 years. Taos Pueblo is 

considered to be one of the oldest continuously inhabited communities in the United States, 

dating back almost 1,000 years.

The first Spanish visitors came to the Taos area as early as 1540 and settled along the Rio Grande 

and its tributaries. In 1598 missionaries at Taos and Picuris Pueblos established the first 

permanent Spanish presence in the valleys, and by the early 1600s, a few Spanish speaking 

pobladores (settlers) were living in fortified ranches or settlements of one or more households 

along streams and rivers. The communities constructed the first acequias (irrigation ditches) to 

transport water from rivers and streams to irrigate fields. The expansion of Spanish settlements 

was nurtured by water management, and water resources remain fundamental to the human and 

social fabric in northern New Mexico. Many Spanish era acequias are still in use and water rights 

are held tightly and highly valued, socially if not monetarily. “Agua es vida” or “water is life” is a 

common phrase in northern New Mexico.

The increased cold, periodic droughts, and subsequent diminished food supply, combined with 

the catastrophic impact of European epidemic diseases, culminated in 1680 with the violent 

expulsion of the Spanish from New Mexico. The Pueblo Revolt was a province-wide rebellion 

organized and initiated by an Ohkay Owingeh (San Juan Pueblo) religious leader named Popé 

who had been in hiding from the Spanish at Taos Pueblo. For over twelve years, the Spanish were 

kept out of the northern Rio Grande Valley, but by 1693, Governor Diego de Vargas had 

reoccupied the capitol at Santa Fe.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

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From the late-1600s to mid-1800s, Spain and later Mexico made land grants or mercedes to 

individuals, groups, and towns to promote development in the frontier lands, which today 

constitute the American Southwest. In New Mexico, land grants-mercedes were issued to 

encourage settlement, and reward patrons of the Spanish government. In the 1800s, Spanish

communities, including land grants-mercedes, began to prosper, and the population increased. As 

farmers and sheepherders moved into these areas, many churches and small villages were created. 

Mexico gained its independence from Spain in 1821 and New Mexico became a part of the 

Mexican Republic. Soon after, Mexico sanctioned a trade route (Santa Fe Trail) with the also 

recently independent United States. For the first time, the area started to move away from a 

strictly barter economy, as many residents became active and successful in the burgeoning 

international trade. The Santa Fe Trail also encouraged a large influx of American, Canadian, and 

other non-Hispanic traders and trappers enticed by the growing fur trade. Fur trapping protected 

valuable and limited domesticated livestock in New Mexico by removing predators including 

Mexican wolves, Mexican grizzly bears, and mainland grizzly bears to the point of extinction.

Sporadic prospecting in the Sangre de Cristo Mountains occurred during the 1850s, but following 

the Civil War prospectors flooded the area. The desire to develop gold interests in the Moreno 

Valley and inner mountains led to the removal of the Jicarilla Apache and Mouache Ute to the 

Cimarron Indian Agency in the 1860s, and to reservations by 1890. There are scattered patented 

mining claim inholdings of private land across the Questa, Camino Real, and Tres Piedras ranger 

districts that have been worked periodically since the late 1800s.

Large commercial sheep ranching took advantage of the expanded American market and growing 

demand for meat from miners across the Southwest, straining what the land could support in an 

attempt to maximize economic gain. In 1856, 200,000 head were driven to California. Breeding 

with American wool-producing varieties made New Mexican sheep profitable for wool as well as 

mutton, and sheep numbers in New Mexico rose from 1.6 million in 1870 to 5.2 million by 1883. 

Railroads began to push into what is now the Carson by 1880, and train logging became a 

powerful economic driver in northern New Mexico for the next 40 years. Timber harvested from 

the Carson was utilized throughout the American West to support rapidly expanding railroads, as 

well as mining operations. Extensive logging cleared all of the largest pine, fir, and spruce trees 

from many areas. This period also marked the beginning of a shift from sheep to more profitable 

cattle, which reached peak numbers in the early 1890s. By 1900 there were 3.5 million sheep 

valued at $7.6 million, and only 843,000 cattle but with a value topping $16 million. The cattle 

and sheep boom and the environmental damage they caused is one of many reasons that led 

Congress to establish and regulate Federal reserves across the American West.

Synchronous with the arrival of the railroads, a new economic enterprise – tourism – arose 

throughout New Mexico, with remarkable infrastructure that provided lodging, dining, and tours 

to the rapidly expanding middle class. The American Southwest became the readily accessible 

new exotic, with its stunning landscapes and terrains, breathtaking vistas, remarkable American 

Indian and Hispanic cultures and a truly original American Art. 

Since the early 1900s, oil and gas exploration and development has been an integral part of the 

local economy and livelihood of residents in the San Juan Basin. Natural gas development began 

on the Jicarilla Ranger District, located on the eastern edge of the San Juan Basin, in the mid1900s. After World War II, increasing national affluence, mobility, and leisure time fueled a 

growing demand for outdoor recreation. The first ski area on the Carson was the Agua Piedra Ski 

Club, which ran a rope tow between 1940 and 1952. Sipapu Ski Area installed the first lift just 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

4 

down Rio Pueblo Canyon in 1952, Taos Ski Valley opened in 1955, and Red River Ski Area in 

1959. The growth of year-round outdoor recreation of multiple types has continued, with most 

visitation on the Carson now being for purpose of some form of recreation. There is growing 

demand for mountain biking, motorized recreation, and hunting. Today, by far the Carson’s 

greatest local economic impact is through recreational tourism.

The Taos Forest Reserve was established in November 1906, fifteen years after the passage of the 

Forest Reserve Act of 1891. The Taos Forest Reserve, at the time of its establishment was under 

the administration of the Secretary of Agriculture which was charged with the administration of 

the Forest Reserves by the Transfer Act of February 1, 1905. In March 1907, with the passage of 

the Receipt Act it became the Taos National Forest. In July 1908 the Taos National Forest with 

land combined from part of the Jemez National Forest officially became the Carson National 

Forest with a total land area of 966,000 acres.

Since its establishment, Congress has designated additional lands as a part of the Carson National 

Forest with a current total land area of 1,486,372 acres. 

Distinctive Roles and Contributions 

Every forest in the National Forest System provides a distinctive role and contribution to the 

surrounding local area and larger region. The rich history and cultural uniqueness of northern 

New Mexico help frame the roles and contributions the Carson provides to the local area and 

region. The Carson is predominately a community forest. There are numerous small 

unincorporated communities within the Carson’s boundaries, as well as several adjacent small 

incorporated towns and villages. Historically, the communities around the Carson have relied 

upon the many resources and uses the forest provides for food, shelter, and economic support for 

their families. Most of these traditional communities and families continue to look to the Carson 

for economic opportunity and vitality. During the development of this land management plan, a 

forest user described the importance of the Carson by stating, “The Forest is what makes the 

community a community.” It is this attachment to the landscape and cultural uniqueness of those 

who settled in the area that provide the background for the roles and contributions of the Carson. 

The natural resources now managed by the Carson have provided for families and communities in 

northern New Mexico for centuries, including before the establishment of the forest. The Forest 

contributes resources and uses, which are important to federally recognized tribes and pueblos, 

land grant communities, acequias, traditional Hispanic communities, and many contemporary 

residents all with historic, cultural, and social connections to the Carson. As people move to the 

area they settle along the flanks of the mountains, in the valleys, in proximity to travel routes, and 

near its rivers and streams; but, it is the mountains, with their majestic beauty and dominance 

over the landscape, their trees for timber and fuelwood, water for irrigating agricultural lands via 

acequias, watering livestock and domestic drinking water, and wildlife and plants for food, which

have drawn individuals and families to settle the land and establish communities. The mountains 

and their natural assets provide the basis for the traditional customs and practices, which

contribute to cultural life and to social institutions important to the people who live here. These

include fuelwood for heating and cooking, latillas and vigas, opportunity for hunting and fishing, 

forage for livestock grazing, medicinal plants and herbs, piñon nuts, family recreation 

opportunities, and water for acequias. There are also important sacred sites to federally 

recognized tribes and pueblos located in the Carson. 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

5 

The Carson comprises some of the most productive and important watersheds and provides an 

important component for biological diversity in the landscape of the southwestern United States. 

Over 1,000 species of plants and animals occur on the Carson. The Carson’s high plateaus and 

rugged mountains are major sources of snowpack and stream runoff, contributing to over 40

percent of the waters that flow into the Rio Grande from northern New Mexico and southern 

Colorado. The Carson National Forest manages varied landscapes, vegetation, and wildlife that 

provide unique combinations of resources and recreation opportunities that attract a wide 

spectrum of forest users. The State of New Mexico has designated many streams and lakes in the 

Carson’s wildernesses and Valle Vidal as outstanding national resource waters.

The high elevations on the Carson support environments that are rare in New Mexico and in the 

region. Alpine and tundra, bristlecone pine, montane and subalpine grasslands, and the piñonjuniper-sage mix are all uncommon in the surrounding landscape. High alpine is particularly 

unique and though it is well protected it is also vulnerable. Riparian corridors and aspen groves 

are also limited in extent, but they attract visitors and provide disproportionately important 

habitat.

The Carson is home to large mammals, such as mule deer, elk, bighorn sheep, pronghorn, 

mountain lion, and black bear, as well as many other species. Diverse wildlife provides 

enjoyment and aesthetic value for photographers, bird watchers, nature lovers, hikers, campers, 

and hunters. Game species support traditional ways of life and employment for outfitters and 

guides. The Carson National Forest manages critical habitat for the southwestern willow 

flycatcher and the Mexican spotted owl, as well as two active wild horse territories.

In the winter, the plateaus and mountains of the Carson provide skiing, snowboarding, 

snowmobiling, and snowshoeing opportunities in developed and undeveloped settings. The rest of 

the year, they attract hikers, mountain bikers, campers, and recreationists from parts of New 

Mexico and other states. The Carson National Forest manages over 110,000 acres of designated 

wilderness, three National Recreation Trails, one National Historic Trail, and a portion of the 

Continental Divide National Scenic Trail. Most visitors to the Carson come for some form of 

recreation, making tourism the single largest contributor to the local economy for surrounding 

communities. Local residents and tourists also visit for relaxation, spiritual ceremony, 

rejuvenation, and to gather resources. Many area residents have jobs or businesses, which are 

directly or indirectly dependent on tourism. Natural gas production on the Jicarilla Ranger 

District also provides many employment opportunities, as well as significant revenue to the State 

of New Mexico and the Federal Government in the form of royalties.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

6 

Purpose of the Plan

Every national forest managed by the Forest Service is required to have a land management plan

(also referred to as “the plan” in this document) that is consistent with the National Forest 

Management Act of 19761 (NFMA) and other laws. The NFMA directs that plans be revised on a 

10- to 15-year cycle. Thirty years have passed since the Regional Forester approved the original

Carson National Forest Plan in September 1986 (USDA 1986). Since that time, the 1986 plan has

been amended 16 times. Scientific information, circumstances, agency and public understanding,

as well as economic, social, and ecological conditions, have changed or evolved over the past 30

years and, as a result, management emphasis has shifted from outputs to outcomes. Land

management plans are one of three levels of planning and decision-making that guide how NFS

lands are managed.

The first and broadest level of planning occurs at the national level through the United States 

Department of Agriculture Forest Service Strategic Plan, a 5-year plan that allows public 

transparency of the agencies goals, objectives, and accomplishments. The second level of 

planning occurs at the level of National Forest System administrative units through land 

management plans. The third level of planning includes development of on-the-ground projects 

and activities, which are designed to make progress toward the desired conditions and objectives 

of the plan. Projects and activities must be consistent with the plan. 

The plan guides the Carson in fulfilling its stewardship responsibilities to best meet the current 

and future needs of the American people. This plan provides forest-specific guidance and 

information for project and activity decision-making over the plan period, generally considered to 

be 10-15 years. It provides the vision, strategy, and constraints that guide integrated resource 

management, provide for ecological sustainability, and contribute to social and economic 

sustainability on the Carson and the broader landscape. 

The plan does not compel any Agency action or guarantee specific outcomes. It does not 

prioritize projects or activities. The Carson National Forest’s priorities fit within the framework 

set forth in the land management plan, but evolve and are reassessed continually by Forest 

Service leadership, in collaboration with the public. Within the constraints of this plan, 

management adapts to better achieve the vision the plan lays out. Decision-making is informed by 

feedback from monitoring that actively tests assumptions, tracks relevant conditions over time, 

and measures management effectiveness.

A land management plan guides and constrains Forest Service personnel, not the public. Any 

constraint on the public needs to be imposed by law, regulation, or through the issuance of an 

order by the responsible official under 36 CFR part 261, Subpart B. In addition to land 

management plans, management of NFS lands is also guided and constrained by laws, 

regulations, policies, practices, and procedures that are in the Forest Service Directive System. 

These are generally not repeated in land management plans. This plan is the result of a revision 

process conducted in accordance with the 2012 National Forest System Land Management 

Planning Rule (36 CFR § 219) and its 2015 planning directives (FSH 1909.12).

1

See 16 U.S. Code § 1604 - National Forest System Land and Resource Management Plans. The current

version in U.S. Code contains all Congressional amendments since 1976.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

7 

Need for Changing the 1986 Plan

There is a better understanding of ecological conditions and trends than in 1986 when the land 

management plan was issued, including the recognition that vegetation conditions (i.e., structure, 

composition, and function) are divergent from reference conditions; forest conditions indicate a 

substantial departure from the natural fire regime; and plant and animal species need further 

consideration in the planning process. In addition, emerging issues, such as nonnative invasive 

plants and climate change, are not addressed by the 1986 plan. The needs to change the Carson’s 

1986 land management plan are as follow: 

• Terrestrial ecosystems and habitat

• Watersheds and water

• Multiple uses and human influences

Terrestrial Ecosystems and Habitat

Ecological conditions have changed since the plan was issued in 1986, including the recognition 

that vegetation conditions (i.e., structure, composition, and function) are divergent from reference 

conditions; forest conditions indicate a substantial departure from the natural fire regime; and 

plant and animal species need further consideration in the planning process. In addition, emerging 

issues, such as nonnative invasive plants and climate change, are not addressed by the 1986 plan. 

The following are the needs to change the Carson’s 1986 land management plan: 

1. Develop desired conditions regarding forest, woodland, and shrubland structure, composition,

and function, as well as objectives, standards, and guidelines, to promote restoration and

achievement of desired conditions; support resiliency and sustainability; and minimize risks

to ecosystem integrity.

2. Provide plan direction to promote restoration and maintenance of grass productivity,

particularly native bunchgrass species, and limit woody species encroachment and invasive

plant establishment, both in grasslands and non-grasslands.

3. Update plan direction to enhance aspen health and resilience through managing regeneration

(i.e., the use of wildland fire or other disturbances) and existing aspen stands.

4. Add plan direction to support integrated pest (invasive plant and animal) management.

5. Update plan direction to allow for an integrated resource approach to prescribed fire activity,

as well as the flexibility for restoration and maintenance of ecosystems.

6. Update plan direction to guide the use of wildland fire (management of wildfire and

prescribed fire) in fire adapted ecosystems, while addressing public safety and health

concerns, especially in the wildland urban interface.

7. Update plan direction to promote the recovery and conservation of federally recognized

species, maintenance of viable populations of the species of conservation concern, and

maintenance of common and abundant species within the plan area.

8. Provide plan direction to address sustainability of habitat(s) for plant and animal species

important to Indian tribes and traditional communities.

9. Incorporate plan direction to manage toward terrestrial, riparian, and aquatic habitat

connectivity for species movement across the landscape.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

8 

10. Update plan direction to enhance wildlife habitat for species that need diverse forest habitats 

(i.e., interior, edge, young, and old forest), by using an assortment of management 

approaches, including timber harvest, thinning, prescribed burning, and other vegetation 

management methods.

11. Update plan direction to promote the maintenance and restoration of soil condition and 

function (i.e., soil hydrology, soil stability, nutrient cycling), particularly in lower elevation 

systems. Plan management approaches should focus on reducing the amount of exposed soil 

by restoring and maintaining sufficient vegetative cover, including downed woody material.

12. Incorporate plan direction that identifies adaptive management strategies and ecological 

desired conditions that are resilient to change.

Watersheds and Water

The Carson comprises some of the most productive and important watersheds in New Mexico. 

The Carson’s high plateaus and rugged mountains are major sources of snowpack and stream 

runoff, contributing to over 40 percent of the waters that flow into the Rio Grande from northern 

New Mexico and southern Colorado. The land-based cultures that exist today in northern New 

Mexico have relied on the water that comes off of the Carson for many generations. In addition, 

emerging issues, such as decline of riparian vegetation and climate change, are not addressed by 

the 1986 plan. The needs to change the Carson’s 1986 land management plan associated with 

water and watershed condition are as follows: 

1. Provide plan direction to promote watershed health and function, and restore and maintain 

ecological integrity of vegetation communities.

2. Identify plan direction to guide the restoration of watersheds.

3. Add desired watershed conditions to maintain water quality and quantity, as well as enhance 

retention.

4. Incorporate plan direction to enhance water resources (e.g., groundwater, springs, wetlands, 

riparian areas, perennial waters) and their interconnections.

5. Provide plan direction to promote the protection, restoration, and maintenance of appropriate 

composition and amount of riparian vegetation.

6. Update plan direction to support the management of riparian areas around all lakes, perennial 

and intermittent streams, and wetlands.

7. Add plan direction to address the protection, restoration, and maintenance of wetland 

condition and function. 

8. Update plan direction to sustain watersheds for multiple uses (e.g., wildlife habitat, livestock 

grazing, recreation use, and mining) and water supplies for downstream users.

9. Add plan direction to allow for improving aquatic passage in streams where it has been 

compromised. Plan direction should also promote the restoration and expansion of the range 

of native aquatic species and connectivity of fragmented populations.

Multiple Uses and Human Influences

The Carson is predominately a community forest, with numerous small unincorporated 

communities within the Carson’s boundaries, as well as several adjacent small incorporated 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

9 

towns and villages. The Carson contributes resources and uses, which are important to federally 

recognized tribes and pueblos, land grant communities, acequias, traditional Hispanic 

communities, and many contemporary residents all with historic, cultural, and social connections 

to the forest. Most of these traditional communities and families continue to look to the Carson

for economic opportunity and vitality, but are also at risk from uncharacteristic wildfire. Visitors 

to the Carson come for some form of recreation, making tourism the single largest contributor to 

the local economy for surrounding communities. Many area residents have jobs or businesses that

are directly or indirectly dependent on tourism. Issues, such as recognizing livestock grazing and 

fuelwood gathering as important uses to be continued on the Carson and a sustainable recreation 

program that will be able to adapt to changes in demand, available resources, and opportunities, 

are not addressed in the 1986 plan. The needs to change the Carson’s 1986 land management plan

associated with multiple uses and human influences are as follows:

1. Recognize in the plan the Carson’s continued contribution to the social and economic benefits 

desired by local communities, families, and visitors and the need to sustain these 

contributions. Update the plan to provide the services and products that local and visiting 

forest users want and need.

2. Identify in the plan how important and integrated relationships with local communities and 

groups are in the management of the Carson. 

3. Update plan direction to recognize American Indian traditional cultural properties and sacred 

sites and places, and other traditional cultural properties.

4. Provide plan direction to address management of historic and contemporary cultural and 

traditional uses, including both economic and non-economic uses for federally recognized 

tribes and for traditional communities not considered under tribal relations (i.e., rural historic 

communities).

5. Recognize in the plan the legally mandated trust responsibilities to federally recognized 

tribes.

6. Update plan direction to ensure privacy for federally recognized tribes engaged in cultural 

and ceremonial activities.

7. Incorporate plan direction to support sustainable rangelands for livestock grazing.

8. Provide plan direction to incorporate adaptive management in the livestock grazing program, 

to move toward ecosystem-based desired conditions.

9. Provide plan direction to promote the Carson’s ability to remain relevant and responsive to 

changing recreation user demands, while also being economically feasible and adaptable.

10. Provide plan direction for the management of commercial and noncommercial use of forest 

products.

11. Add plan direction for the Continental Divide National Scenic Trail.

12. Provide plan direction to address the maintenance of routes not open to public motor vehicle 

use (not on the motor vehicle use map) in watersheds identified as impaired or at-risk.

13. Update plan direction to identify and prioritize alternative methods and opportunities for 

repairing and maintaining existing infrastructure.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

10

14. Update plan direction to authorize towers, facilities, and alternative infrastructure within

electronic communication sites, while giving due consideration to the value and importance

of these areas by federally recognized tribes.

Plan Framework

Plan Organization

Chapter 1. Introduction describes the planning area and its context, purpose of the plan, need 

for changing the plan, the plan framework, consistency of projects with the plan, plan 

implementation, and transitioning from the 1986 plan to this plan. 

Chapter 2. Forestwide Plan Components includes forestwide desired conditions, objectives, 

standards, and guidelines and is split into two sections: “Ecological Sustainability and Diversity

of Plant and Animal Communities” and “Social, Cultural, and Economic Sustainability and 

Multiple Use” (goods and services). 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. Designated Areas and Management Areas Plan Components contains 

management direction applicable to specific areas in addition to or different than forestwide 

management. This chapter is divided into two sections: designated areas and management areas. 

Designated areas are mostly designated by statute, but some categories may be established 

administratively through the Federal executive branch. Plan components for a designated area 

may differ from forestwide guidance and must provide for appropriate management of the 

designated area, based on the applicable authorities and the specific purposes for which the area 

was designated or recommended for designation.

Management areas are used to describe how plan components apply to specific parcels of NFS 

land. A management area represents a management emphasis for an area or several similar areas 

on the landscape. Forestwide plan components are applied, unless there is management direction 

for a designated area or management area. 

Chapter 4. Plan Monitoring Program outlines the monitoring and evaluation of plan 

implementation to determine progress toward achieving desired conditions and objectives, and 

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 Components

The land management plan must include plan components. Plan components (plan decisions) 

guide future project and activity decision-making and include: desired conditions, objectives, 

standards, guidelines, suitability of lands, and goals. Plan components should (1) provide a 

strategic and practical framework for managing the Carson; (2) should be applicable to the 

resources and issues of the Carson; and (3) should reflect the Carson’s distinctive roles and 

contributions. As a whole, the set of plan components must provide for social, economic, and 

ecological sustainability and multiple uses. Plan components were developed collaboratively with 

input from a variety of external and internal stakeholders, with broad interdisciplinary 

representation. Plan components do not need to reiterate existing law, regulation, or policy. 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

11

Except for desired conditions, other plan components are not necessarily in every resource 

section. An interdisciplinary team refined the final form and organization of the land management 

plan to be as understandable, useable, and integrated. The five plan components are described as:

Desired Conditions describe the aspirational vision for the Carson National Forest. They are the 

ecological, cultural, and socioeconomic aspirations toward which management of the land and 

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

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

Projects are designed to maintain or move toward desired conditions and to be consistent with the 

plan over the long term. The desired conditions in this land management plan have been written 

to contain enough specificity so that progress toward their achievement may be determined. In 

some cases, desired conditions may already be achieved while in other cases they may only be 

achievable over hundreds of years. 

Objectives describe how the Carson intends to move toward the desired conditions. Objectives 

are concise projections of measurable, time specific, and fiscally achievable intended outcomes. 

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

change and make progress toward desired conditions. They also provide metrics for evaluating 

accomplishments. Objectives are based on reasonably foreseeable budgets (36 CFR 

219.7(e)(1)(ii)). It is important to recognize that objectives were developed considering historic 

and expected budget allocations as well as professional experience with implementing various 

resource programs and activities. It is possible that annual management accomplishments could 

either exceed or not meet a target based upon a number of factors, including budget and staffing 

increases/decreases, increased/decreased planning efficiencies, increased/decreased partner 

contribution, and unanticipated resource constraints.

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.

Guidelines are required technical design criteria or constraints on project and activity decisionmaking that help 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 site-specific National Environmental Policy Act decision document with the 

supporting rationale. When deviation from a guideline does not meet the original intent, a plan 

amendment is required.

Suitability of lands means specific lands within a plan area are identified as suitable for various 

multiple uses or activities based on the desired conditions applicable to those lands. The plan will 

also identify lands within the plan area as not suitable for uses that are not compatible with 

desired conditions for those lands. The suitability of lands need not be identified for every use or 

activity. Every plan must identify those lands that are not suitable for timber production and this 

plan identifies such lands. Suitability of other resources is handled via the standards and 

guidelines applied to those resources.

Goals are broad statements of intent, other than desired conditions, usually related to process or 

interaction with the public. Goals are expressed in broad, general terms, but do not include 

completion dates like an objective. Plans are not required to include goals, and none have been 

created here.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

12

Plan Codes

Plan components are assigned plan codes, which are alphanumeric identifiers, to ease referencing 

of management direction in the plan. A list of acronyms used in the plan codes are in table 1

below. The plan codes include:

• The level of direction (FW = Forestwide, DA = Designated Area, or MA = Management 

Area); 

• The resource (e.g. VEG = All Vegetation or WFP = Wildlife, Fish, and Plants); 

• The type of direction (DC = desired condition, O = objective, S = standard, and G = 

guideline); and 

• A unique number (i.e. numerical order starting with 1).

For example, the unique code for forestwide (FW) Air Resources (AIR) Desired Condition (DC) 

number 1 is FW-AIR-DC-1. 

Figure 2. Example of plan code

Plan codes with multiple resource identifiers indicate that the resources are nested. Management 

must integrate plan components from all resources identified in the code. For example, the plan 

code FW-WSW-RMZ-STM-O integrates forestwide plan components found within the Streams 

(STM) resource, plus all the plan components within Riparian Management Zones (RMZ) 

resource and Watershed and Water (WSW) resource (figure 3). 

Figure 3. Example of nested plan code

All plan components are listed below section headings that include an acronym in parentheses 

(see table 1 for a description of the plan code acronyms). In addition plan components are 

displayed within text boxes. Any text not associated with a plan code is background material, 

explanations, or a description of management approaches.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

13

Table 1. Acronyms used in plan codes

Code Resource or Term Code Resource of Term

AIR Air Resources NTRL National Scenic, Historic, and Recreational 

Trails

ALP Alpine and Tundra O Objective

ASP Aspen PART Partnerships

BOT Botanical Areas PJO Piñon-Juniper Woodland

BP Bristlecone Pine PJS Piñon-Juniper Sagebrush

CAM Caves and Abandoned Mines PPF Ponderosa Pine Forest

CDNST Continental Divide National Scenic 

Trail REC Recreation

CR Cultural Resources RHC Rural Historic Communities

CRF Cliffs and Rocky Features RMZ Riparian Management Zones

DA Designated Areas RWMA Recommended Wilderness Management 

Area 

DC Desired Condition S Standard

DEVRES Developed Winter and Summer 

Resorts SAGE Sagebrush

EWSR Eligible Wild and Scenic Rivers SAMA San Antonio Management Area

FAC Facilities Infrastructure SCEN Scenery

FFP Forestry and Forest Products SFF Spruce-Fir Forest

FIRE Wildland Fire Management SL Soil Resources

FRT Federally Recognized Tribes SNS Springs and Seeps

FSR Forest and Shrub Riparian STM Streams 

FW Forestwide SU Special Uses

G Guideline TFA Transportation and Forest Access

GMMA Grassland Maintenance Management 

Area VEG Vegetation

GRZ Livestock Grazing VFSYU Vallecitos Federal Sustained Yield Unit

IRA Inventoried Roadless Area VVMA Valle Vidal Management Area

JICMA Jicarilla Natural Gas Management 

Area WB Waterbodies

LAND Lands WFP Wildlife, Fish, and Plants

MA Management Area WHT Wild Horse Territories

MCD Mixed Conifer, with Frequent Fire WILD Existing Wilderness

MCW Mixed Conifer, with Aspen WR Wetland Riparian

MM Minerals and Mining WSW Watersheds and Water

MSG Montane Subalpine Grassland WSR Existing Wild and Scenic Rivers 

NIS Nonnative Invasive Species ZOO Zoological Areas

NSBW National Scenic Byway
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

14

Other Required Plan Content

Distinctive Roles and Contributions of the Carson National Forest (Chapter 1): Describes the 

Carson National Forest’s distinctive contributions to the local area, region, and nation, and the 

roles for which the Carson is best suited, considering the Agency’s mission and capabilities.

Priority Watersheds (Chapter 2 in the Watershed and Water (WSW) Section): Priority 

watersheds have been identified using the Forest Service national Watershed Condition 

Framework as areas where plan objectives for restoration focus on maintaining or improving 

watershed condition. These priorities may change over the life of the land management plan to 

concentrate restoration in other areas.

Plan Monitoring (Chapter 4): Monitoring includes testing assumptions, tracking changes, and 

measuring management effectiveness and progress toward achieving or maintaining the plan’s 

desired conditions or objectives.

Proposed and Possible Actions (Appendix B): Possible actions are the types of projects that the 

Carson may use in the next 3 to 5 years to move toward achieving desired conditions and 

objectives.

Optional Content: A land management plan may also include optional content, such as 

background information, explanatory narrative, general management principles, management 

approaches2

, management challenges, performance history, performance risks, contextual 

information, or referenced material. Optional content is not labeled or worded in a way that 

suggests it is a plan component and does not imply or constitute a decision, but it may help clarify 

plan direction and how it may be applied.

A change to “other required plan content” or “optional content” does not require a plan 

amendment; instead such changes may be made using an administrative correction process.

Adaptive Planning and Monitoring

Forest planning is a continuous process that includes: (1) assessment; (2) plan development, 

amendment, and revision; and (3) monitoring. The intent of this land management planning 

framework is to create an integrated approach to the management of resources and uses, 

incorporate the landscape-scale context for management, allow the Forest Service to adapt to 

changing conditions, and improve management based on monitoring and new information. 

An adaptive land management plan recognizes that there is always uncertainty about the future of 

natural systems and the timing and type of disturbances. Social conditions and human values 

regarding the management of national forests are also likely to change. Given that the setting for 

land management plan implementation will be changing over time, the land management plan

incorporates an effective monitoring program that is capable of detecting change, with an 

adaptive flexibility to respond to those detected changes. The land management plan monitoring 

program recognizes key management questions and identifies measurable indicators that can 

 

2 Management approaches may be used to inform future proposed and possible actions. These techniques and actions 

provide options for plan implementation, and represent possibilities, preferences, or opportunities, rather than 

obligatory actions. Not all plan components are addressed with management approaches, only those for which 

additional information is warranted. They may illustrate suggestions as to how desired conditions and/or objectives 

could be met, convey a sense of priority among objectives, or indicate possible future course of change to a program. 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

15

inform the questions. When conditions change beyond what was anticipated in the land 

management plan, a responsive process using amendments can be used to adjust plans between 

revisions. 

The planning framework creates a structure within which land managers and partners work 

together to understand what is happening on the land. It is intended to establish a flexible land 

management plan that allows a national forest to adapt management to changing conditions and 

improve management based on new information and monitoring.

The plan monitoring phase comes after the plan has been revised. The monitoring phase includes:

a. Designing proposed management activities to implement the plan in a way that will yield 

specific information and support learning.

b. Analyzing monitoring results using scientific methods that reduce uncertainty and 

improve understanding of system behavior. Well-designed monitoring programs and 

management activities contribute to better scientific analysis of these results. Monitoring 

and analysis also evaluate progress of achieving desired conditions and objectives of the 

plan and the assumptions used in developing the plan.

c. Learning from the results of the analysis and sharing how the results either confirm or 

modify the existing assumptions or provide feedback on management effectiveness. 

Learning is proactively shared with land managers and the public.

d. Adapting planning and management activities based on learning from the results of the 

analysis. This adaptation takes the form of modifying assumptions, models, data, and 

understanding of the system. This knowledge is then used to inform the planning process 

that leads to adjustment of plans and projects.

Use of Best Available Scientific Information

The best available scientific information has been used to inform the planning process. The 

planning record documents how best available scientific information was determined to be 

accurate, reliable, and relevant to issues being considered. The best available scientific 

information includes relevant ecological, social, and economic scientific information. Use of best 

available scientific information was documented for the assessment, the plan decision, and the 

monitoring program. The 2012 Planning Rule does not require that planning develop additional 

scientific information, but that planning should be based on scientific information that is already 

available. New studies or the development of new information is not required for planning unless 

required by other laws or regulation. In the context of the best available scientific information, 

available means that the information currently exists in a form useful for the planning process, 

without further data collection, modification, or validation. Analysis or interpretation of the best 

available scientific information may be needed to place it in the appropriate context for planning. 

Development of this revised plan, under the 2012 Planning Rule and directives, was an iterative 

process utilizing best available scientific information, regional guidance, internal feedback, and 

collaboration with a wide variety of government agencies, federally recognized tribes, nongovernmental organizations, and publics.

Plan Concepts

This plan relies on several basic concepts that are either foundational assumptions or frameworks 

that are used throughout to quantify or classify plan direction. Some of these concepts are not 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

16

specifically referred to anywhere else in the plan, but they set the tone for the plan throughout and 

are therefore important to consider during implementation. 

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, federally recognized tribes, and private landowners. This plan was 

developed using an approach that considers the greater landscape and the Carson’s ecological, 

social, and economic role in that landscape.

At-risk species are federally recognized as endangered, threatened, proposed, and candidate 

species, or species of conservation concern. Species of conservation concern are species other 

than federally recognized threatened, endangered, proposed, or candidate species known to occur 

on the Carson and for which the Regional Forester has determined that the best available 

scientific information indicates substantial concern about the species’ capability to persist over 

the long term on the Carson. For species of conservation concern, habitat management and 

compatible multiple uses will be accomplished in a way that ensures species’ persistence on the 

Carson, in accordance with the 2012 Planning Rule (36 CFR § 219.9(b)). For many at-risk 

species, essential ecological conditions can be provided through “coarse filter” plan components, 

such as desired conditions and standards and guidelines, for specific vegetation communities 

(e.g., alpine and tundra, mixed conifer with frequent fire, and piñon-juniper woodland). These 

may be adequate to ensure persistence of at-risk species and maintain viable populations on the 

Carson. For other at-risk species, in addition to coarse-filter plan components, fine-filter plan 

components that are species-specific (timing restrictions, etc.) may be required to ensure 

persistence. In this land management plan, at-risk species associated with a vegetation community 

are listed after plan components, but are not in a text box, since their identification is not a land 

management plan decision, as are plan components. At-risk species can be changed based on new 

scientific information throughout the life of the land management plan, without an amendment 

(FSH 1909.12, 21.22b). 

Adapting to changing climate patterns is addressed throughout this plan, indirectly through 

desired conditions in the form of functional ecosystems and resilient landscapes, and directly 

through management approaches and the monitoring plan where appropriate. This plan is 

designed around strategies that are responsive to an uncertain and changing climate, including 

maintaining and restoring resilient native ecosystems; adaptive management; anticipating 

increased disturbance; increasing water conservation and planning for reduced supply; and 

anticipating increased recreational use (increased number of summer visitors and extended 

summer season of use). 

Ecosystem services are those products and processes in functional ecosystems that people enjoy 

or from which they benefit. The description of each resource in the plan includes a discussion of 

the ecosystem services that it provides. Benefits that people obtain from ecosystems may be 

grouped into four broad categories:

1. Supporting ecosystem services are those that are necessary for the production of other 

ecosystem services, such as pollination, seed dispersal, soil formation, and nutrient cycling. 

2. Regulating ecosystem services are the benefits people obtain from the regulation of 

ecosystem processes, such as long-term storage of carbon; climate regulation; water filtration, 

purification, and storage; soil stabilization; flood and drought control; and disease regulation.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

17

3. Provisioning ecosystem services are the products people obtain from ecosystems, such as

clean air and fresh water, energy, food, fuel, forage, wood products or fiber, and minerals.

4. Cultural ecosystem services are the nonmaterial benefits people obtain from ecosystems

such as educational, aesthetic, spiritual, and cultural heritage values, recreational experiences,

and tourism opportunities (36 CFR 219.19).

Fire regime is a classification of the role that fire plays in a landscape or vegetation community. 

The LANDFIRE3 project classifies fire regimes into five groups based on a combination of fire 

frequency and fire severity (see table 2). 

Table 2. Fire regime classification descriptions

Group Frequency Severity Severity Description

I 0 - 35 years Low/Mixed Generally low-severity fires replacing less than 25% of the 

dominant overstory vegetation; can include mixed-severity 

fires that replace up to 75% of the overstory

II 0 - 35 years Replacement High-severity fires replacing greater than 75% of the 

dominant overstory vegetation

III 35 – 200 

years

Mixed/Low Generally mixed-severity; can also include low-severity 

fires

IV 35 – 200 

years

Replacement High-severity fires

V 200+ years Replacement/ 

Any severity

Generally replacement-severity; can include any severity 

type in this frequency range

Note: The table is based on Fire Regime Condition Class Guidebook version 3.0, September 2010. 

Integrated resource management is multiple use management that recognizes the 

interdependence of ecological resources and is based on the need for integrated consideration of 

ecological, social, and economic factors (36 CFR 219.19). 

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 recreationist’s 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.

Ranges of 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 of values due to spatial variability in soils, 

elevation, aspect, or social values. Where desired conditions specify a range of values, most acres 

would be managed towards the median of the range, but representation across the range is equally 

desired. The 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. For example, managing for lower vegetation density in the wildland-urban 

3 U.S. Geological Service web page: www.landfire.gov
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

18

interface to reduce fire behavior in proximity to private property and human occupancy. Higher 

densities may be desired in other areas to meet habitat requirements for specific species.

Resilience is the ability of an ecosystem and its component parts to absorb, or recover from the 

effects of disturbances through preservation, restoration, or improvement of its essential 

structures and functions and redundancy of ecological patterns across the landscape. (FSM 

2020.5).

Sustainable operations is the commitment by the Forest Service to use energy efficiently and 

reduce consumption of resources in daily operations in six footprint focus areas: 

1. Energy–Improve energy efficiency and reduce greenhouse gas emissions, through the

reduction of energy. Shift toward renewable energy, such as solar power and biomass.

2. Water–Reduce water consumption in Forest Service buildings, grounds, and related facilities.

3. Green Purchasing–Increase the sustainability performance of purchased goods and services,

and the performance of suppliers, contractors, and partners. Increase the number of Forest

Service buildings that are Leadership in Energy and Environmental Design (LEED) certified.

4. Fleet and Transportation–Improve our transportation and travel practices, which in turn will

reduce harmful emissions, increase operational and fuel efficiency, and reduce the use of nonrenewable fuel.

5. Waste Prevention and Recycling–Minimize waste generation and reduce landfill use. Reduce,

reuse and recycle materials.

6. Sustainability Leadership–Make strong efforts to meet or exceed the requirements of

Executive Orders and policies related to sustainable operations. Leadership and management

have a commitment to communicate the agency’s vision for sustainable operations.

Sustainability is the ability of the Carson and its resources to meet the needs of the present 

generation without compromising the ability to meet the needs of future generations. 

Sustainability includes ecological, economic, and social capabilities. It requires the symbiotic 

interaction among ecological integrity, the ability of society to produce and consume or otherwise 

benefit from goods and services, and the ability of society to support the network of relationships, 

traditions, culture, and activities that connect people to the land and to one another in vibrant 

communities. (36 CFR 219.19). 

Vegetation community is a definition of a group of sites that have similar plant species 

composition, successional patterns, and disturbance regimes, such that similar sites will respond 

in similar ways to disturbance, biological, and physical processes. In some areas there is a 

difference between the existing vegetation on a site and the vegetation community it belongs to, 

such as where historic grasslands are currently invaded by trees. The desired vegetation 

community, not the existing vegetation, determines which desired conditions apply. Most 

vegetation communities correspond to a mapped ecological response unit, though it is appropriate 

to base management for a particular vegetation community on local conditions, including soils

and other site-specific indicators.

Interrelationships of Plan Content

This land management plan is not an assemblage of program plans that have unique plan 

components for every resource. What is important is that resource plan components are looked as 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

19

a whole and combined to meet the requirements for ecological integrity, diversity of plant and 

animal communities, multiple-use management, ecologically sustainable production of goods and 

services, and they contribute to economic and social sustainability. All of these requirements go 

hand-in-hand.

To effectively manage to the desired conditions of a forest resource, project planners and decision 

makers must ensure they use the entire plan and not just the plan components listed for that 

resource. Effective integrated resource management recognizes the interdependency of 

ecological, social, cultural, and economic resources and how management of one resource can 

influence the management or condition of other resources. 

At the end of many resource sections, there is a subsection called “Related Plan Content”, which

lists other resources identified as the most important related resources to the section. It is 

recommended that these are reviewed, as well as other resources not listed, but considered

important to a specific project by project planners and decision makers. 

Consistency of Projects with the Plan

All projects and activities authorized by the Forest Service must be consistent with the land 

management plan (16 USC 1604(i) and 36 CFR 219.15(b-c)). If a proposed project or activity is 

not consistent with a plan component, the responsible official has the following options (subject 

to valid existing rights):

• Modify the proposed project or activity to make it consistent with the applicable plan

components;

• Reject the proposal or terminate the project or activity;

• Amend the plan so that the project or activity will be consistent with the plan as amended;

or

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

project or activity will be consistent with the plan as amended. This amendment may be

limited to apply only to the project or activity (36 CFR 219.15(c)).

The following criteria should be used in determining if a project or activity is consistent with the 

land management plan (36 CFR 219.15(d)):

1. Desired conditions, objectives, and goals. A project is consistent with plan desired

conditions, objectives, or goals when it:

a. Maintains or makes progress toward attaining one or more plan desired conditions,

objectives, or goals applicable to the project;

b. Has no effect or only a negligible adverse effect on the maintenance or attainment of

applicable desired conditions or objectives, or goals;

c. Does not foreclose the opportunity to maintain or achieve any of the applicable desired

conditions, objectives, or goals over the long term, even if the project (or an activity

authorized by the project) would have an adverse short-term effect on one or more

desired conditions, objectives, or goals; or

d. Maintains or makes progress toward attaining one or more of the plan's desired

conditions, objectives, or goals, even if the project or activity would have an adverse but

negligible effect on other desired conditions, objectives, or goals.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

20

The project decision document should include an explicit finding that the project is consistent 

with the plan's desired conditions, objectives, and goals, and briefly explain the basis for that 

finding. In providing this brief explanation, the project decision document does not need to 

explicitly address every desired condition, objective, and goal set forth in the plan. Rather, a 

general explanation is all that is needed, so long as the consistency finding is made based on a 

consideration of one of the four factors noted above. 

When a categorical exclusion from National Environmental Policy Act documentation applies 

and there is no project decision document, the finding and explanation should be in the project 

record.

2. Standards. A project or activity is consistent with a standard if the project or activity is

designed in exact accord with the standard.

The project documentation should confirm that the project or activity is designed in exact accord 

with all applicable plan standards.4 The responsible official can make a single finding of 

consistency with all applicable standards, rather than there needing to be individual findings.

The project documentation should briefly explain how the project is consistent with the 

applicable plan guidelines. When the project is designed in exact accord with all applicable 

guidelines, the project documentation should simply confirm that fact in a single finding of 

consistency with all applicable guidelines. When the project varies from the exact guidance of 

one or more applicable guidelines, the project documentation should explain how the project 

design is as effective in meeting the purpose of the guideline(s) as the exact guidance in the 

guideline(s).

4 For timber projects there should positive findings for meeting the timber standards and guidelines because the 2012 

planning rule requires plans to have direction to meet those NFMA requirements. There must be specific findings 

that the project meets the requirements. So, if there is clearcutting, there must be an explanation why in this situation, 

clearcutting is the optimum method to use. Also, while the National Environmental Policy Act analysis describes the 

effects to soils, watershed etc. there must be a finding that these resources will not be “irreversibly damaged.”

3. Guidelines. A project or activity must be consistent with all guidelines applicable to the type

of project or activity and its location in the plan area. A project or activity can be consistent

with a guideline in either of two ways:

a. The project or activity is designed exactly in accord with the guideline, or

b. A project or activity design varies from the exact words of the guideline but is as

effective in meeting the purpose of the guideline to contribute to the maintenance or

attainment of relevant desired conditions and objectives.

4. Suitability. A project with the purpose of timber production may only occur in an area

identified as suitable for timber production (16 U.S.C. 1604(k)). Except for projects with a

purpose of timber production, a project or activity can be consistent with plan suitability

determinations in either of two ways:

a. The project or activity is a use for which the area is specifically identified in the plan as

suitable, or

b. The project or activity is not a use for which the area is specifically identified in the plan

as suitable, but is not a use precluded by a “not suitable” determination.
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

21

The project documentation should confirm that the project or activity conforms to items 1 or 2 

above. Any substantive changes to plan components require a plan amendment, with appropriate 

analysis as required under the National Environmental Policy Act. Administrative changes can be 

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

background information; to fix typographical errors; or to update other required content of a plan 

(content that are not plan components). The public will be notified of all administrative changes 

to the land management plan. 

Plans may have other content, such as, background, collaboration strategies, context, existing 

conditions, glossary, introduction, monitoring questions, other referenced information or 

guidance, performance history, performance measures, performance risks, program emphasis, 

program guidance, program priorities, possible actions, roles and contributions, management 

challenges, or strategies, but such other content are not matters to which project consistency is 

required.

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. Projects address 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 higherlevel direction, project potential effects on moving toward 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 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 C. 

To ensure a project is consistent with the plan, its design and implementation should consider its 

setting, any designated or management areas it overlaps, and plan guidance related to any 

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

geologic formations, wildlife, etc.). Additionally, potential conflicts with other authorized projects 

and activities should be considered. Project design should be consistent with forestwide plan 

direction except where superseded by designated or management area direction, which takes 

precedence.

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 4 of this document, in conjunction with project-level monitoring, will 

provide the framework to support adaptive management on the Carson. 
Chapter 1. Introduction

Draft Land Management Plan for the Carson National Forest

22

Transition to Plan Implementation 

The land management plan will direct future projects, plans, and assessments. It is not expected 

that this plan direction be used to reevaluate or change decisions that have been made under the 

previous land management plan. A smooth and gradual transition to the new land management 

plan is anticipated, rather than one that forces an immediate reexamination or modification of all 

contracts, projects, permits, and other activities that are already in progress. As new project 

decisions, contracts, permits, renewals, and other activities are considered, conformance to the 

new plan direction as described in the previous section is expected.
Draft Land Management Plan for the Carson National Forest

23

Chapter 2. Forestwide Plan Components

Ecological Sustainability and Diversity of Plant and Animal 

Communities

The Carson National Forest’s vision is for ecosystems in the plan area to have ecological integrity and 

adaptive capacity. Ecosystems have integrity when their composition, structure, function, and 

connectivity are operating normally over multiple spatial and temporal scales. However, not every desired 

condition or acre has to meet the definition of ecological integrity, because some specific areas may not 

have the capability or because another concern, such as public safety is more important in a specific area.

Ecological restoration is an outcome of managing for desired conditions and may be necessary in 

degraded ecosystems. It is an intentional activity that initiates or accelerates ecosystem recovery with 

respect to its health (functional processes and productivity), integrity (species composition and 

community structure), and sustainability (resistance and resilience to disturbance) under current and 

future conditions. Restoration may not necessarily return an ecosystem to its former state, because 

contemporary constraints and conditions can cause it to develop along an altered trajectory. 

In light of possible changes in species composition under the effects of changing climate patterns and 

with a focus on restoration, the plan components for the Carson’s land management plan are designed to 

provide ecological conditions to sustain functional ecosystems based on a future viewpoint. Functional 

ecosystems are those that sustain critical ecological functions over time to provide ecosystem services 

including, clean air, fresh water, food, and fuel (provisioning ecosystem services); pollination, soil 

formation, and nutrient cycling (supporting ecosystem services); carbon storage, climate regulation, water 

filtration, and flood control (regulating ecosystem services); and educational, aesthetic, spiritual, cultural, 

and recreational experiences (cultural ecosystem services).
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

24

Vegetation (VEG) 

Desired conditions and other plan components (objectives, standards, and guidelines) related to the major 

vegetation communities are presented first in this plan, because they provide the setting or habitat that 

reflects not only healthy ecological systems, but also the social and economic considerations needed for 

long-term sustainability. Vegetation provides ecosystem services, including, climate regulation and soil 

stabilization (regulating), food and wood products (provisioning), nutrient cycling (supporting), and 

aesthetic and cultural values (cultural). Desired conditions and other plan components have been 

incorporated within each vegetation community for the needs and requirements of at-risk species, and, in 

some cases, general wildlife dependent on these major vegetation types.

Ecological desired conditions for terrestrial ecosystems are grouped by vegetation communities and 

described at multiple, nested scales when possible. Not all of these conditions will be achievable over the 

life of this plan, some may only be realized over long timeframes (up to several hundred years). Most 

vegetation communities correspond to a mapped ecological response unit,5 though it is appropriate to 

base management for a particular vegetation community on local conditions, including soils and other 

site-specific indicators. Small inclusions of other ecological response units or ecological response unit

subtypes may be managed under a single prescription or evaluated separately at the project or activity 

level. 

Where scientific information is available, desired conditions are based on the historical ecology of a 

vegetation community that can be inferred based on historic ranges of natural variability. They also reflect 

current conditions and stressors that may not have existed historically and also reflect social and 

economic desires in terms of the services that humans expect from ecosystems. Therefore, desired 

conditions do not necessarily represent reference conditions, since it may not be possible or desirable to 

return to a historic condition in all situations. Ranges of values presented as part of desired conditions 

reflect spatial variability in soils, elevation, or aspect, and provide managerial flexibility to meet local 

project objectives. Most acres should be managed towards the median of the range, but representation 

across the range is equally desired. For those vegetation communities with seral state proportion tables, 

the quantitative information they contain reflects the desired condition narrative. Seral state percentages 

(proportions) represent the approximate mid-point of the range of desired conditions described under the 

landscape scale, and are used primarily to compute overall system departure,

6 not intended as a 

prescription. In other words, the seral state percentages do not need to be achieved by every project, 

instead a reasonable range is expected, while managing toward those percentages on average across the 

landscape.

Scale

Desired conditions for forest and woodland vegetation communities are described at three spatial scales 

where appropriate: landscape scale (1,000+ acres), mid-scale (10 - 1,000 acres), and fine-scale (less than 

10 acres). Not enough science is available to provide descriptions at all scales for alpine tundra, 

bristlecone pine, montane subalpine grassland, and sagebrush communities. The landscape scale describes 

the big picture of desired conditions (Figure 4). A landscape area comprises ten or more mid-scale units of

 

5 An exception is aspen which is not its own ecological response unit, but occurs as a seral stage in several other ecological 

response units. Forest and shrub riparian includes several riparian ecological response units and may include additional areas 

based on site specific delineations. Wetland riparian includes areas in addition to the herbaceous riparian ecological response 

unit. 

6 Seral state departure is calculated at the landscape scale relying on remotely sensed information such as the Southwestern 

Region’s midscale mapping project. The minimum mid-scale vegetation mapping unit is five acres.
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

25

variable elevations, slopes, aspects, soils, plant associations, and disturbance processes. It includes 

multiple stands and natural openings and meadows. Contributions from all seral stages and low departure 

at the landscape scale are positive indicators of ecosystem condition. Seral state proportions apply only at 

this scale.

Descriptions at the mid- and fine-scales provide additional detail necessary for guiding future projects and 

management activities. The mid-scale comprises assemblages of fine-scale units which have similar 

biophysical conditions. The mid- and fine-scales in forests and woodlands include open grass-forb-shrub 

interspaces and uneven-aged stand conditions consisting of single and grouped trees of different 

vegetation structural stages, young to old. Species composition, age, structure, and distribution of 

individual trees (single, grouped, or aggregates of groups) are described at the fine-scale. Fine-scale 

desired conditions typically contain greater variability, which is desirable for providing heterogeneity at 

smaller spatial scales.

Figure 4. Example of the three spatial scales

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

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 the project contributes to the ecological 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 ecological progress is made toward desired conditions and maintained across 

the project area.
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

26

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

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

viewed. For example, when ecological 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 does exist at smaller scales.

All Vegetation Community Desired Conditions (FW-VEG-DC)

Landscape Scale (1,000 acres or greater)

1 Ecosystems contain a mosaic of vegetation conditions, densities, and structures. This mosaic occurs 

at a variety of scales across landscapes and watersheds, reflecting the disturbance regimes that 

naturally affect the area. Natural ecological cycles (i.e., hydrologic, energy, nutrient) facilitate the 

shifting of plant communities, structure, and ages across the landscape over time.

2 Ecosystems are resilient or adaptive to the frequency, extent, and severity of disturbances (e.g., 

human impacts, fire in fire-adapted systems, flooding in riparian systems, insects, pathogens, and 

climate variability). Natural disturbance regimes, including fire, are restored where practical and 

allowed to function in their natural ecological role. Wildfire maintains and enhances resources, 

including wildlife habitat for species associated with fire-adapted systems. Uncharacteristic wildland

fire behavior is minimal or absent on the landscape.

3 Ecosystems maintain all of their essential components (i.e., plant density, species composition, 

structure, coarse woody debris, and snags), processes (i.e., disturbance and regeneration), and 

functions (i.e., nutrient cycling, water infiltration, and carbon sequestration) despite changing and 

uncertain future environmental conditions. 

4 Old growth is well distributed, dynamic in nature, and shifts on the landscape over time, as a result 

of succession and disturbance. Old growth attributes (e.g., multistory structure, large old trees, large 

trees with sloughing, exfoliating bark, snags, large downed logs, and other indicators of decadence) 

are present in all forest and woodland vegetation communities and provide habitat for associated 

species.

5 Ecological conditions affecting habitat quality, distribution, and abundance contribute to selfsustaining populations of native and desirable non-native plants and animals that are healthy, well 

distributed, genetically diverse, and connected (on NFS lands and to adjacent public and privately 

conserved lands), enabling species to adapt to changing environmental and climatic conditions. 

Conditions provide for the life history, distribution, and natural population fluctuations of the species 

within the capability of the ecosystem. 

6 Vegetation conditions allow for gradual transitions between vegetation communities. Transition 

zones shift in time and space, due to ecological processes affecting site conditions (i.e., fire and

climate).

7 Vegetation characteristics (e.g., tree density, litter depth) support favorable water flow and quality.

8 All age classes of deciduous trees (e.g. aspen, cottonwood, and Gambel oak) are well represented on 

appropriate ecological settings, and provide habitat for wildlife and rare plants.

9 Organic ground cover and herbaceous vegetation provide protection of soil, moisture infiltration, and 

contribute to plant and animal diversity and to ecosystem function.
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

27

10 Vegetation connectivity and abundance provide for genetic exchange, daily and seasonal movements 

of animals, and predator-prey interactions across multiple spatial scales, consistent with existing 

landforms and topography. Habitat configuration and availability and species genetic diversity allow 

long distance range shifts of plant and wildlife populations, in response to changing environmental 

and climatic conditions.

11 Native plant communities dominate the landscape, while invasive species are nonexistent or low in 

abundance and do not disrupt ecological function. 

12 Native insect and disease populations are generally at endemic levels with occasional outbreaks. The 

scale of insect and disease outbreaks is usually restricted by variation of vegetation structure and 

composition. 

13 The transition from NFS lands to adjacent lands where similar desired conditions are being met is 

seamless and does not exhibit abrupt changes in visual or ecological integrity.

14 Habitats and refugia for rare, endemic, and culturally important species are intact, functioning, and 

sufficient for species persistence and recovery. 

15 Overall plant composition similarity to site potential (FSH 2090.11) averages greater than 66

percent, but can vary considerably at fine- and mid- scales owing to a diversity of seral conditions.

Mid-Scale (10-1,000 acres)

16 Diverse cool and warm season grasses, forb species, and litter are abundant and contiguous enough 

to support natural fire regimes, consistent with site potential. Herbaceous vegetation amount and 

structure (e.g., plant density, height, litter, and seed heads) provide habitat to support wildlife and 

prey species.

17 The composition, density, structure, and mosaic of vegetation conditions reduce the threat of 

uncharacteristic wildfires to ecosystems and local communities.

18 Native plants provide nectar, floral diversity, and pollen throughout the seasons when pollinator 

species are active.

Fine-Scale (10 acres or less)

19 At-risk plant community habitats (e.g., gypseous or limy sandstones; Mancos Shale soils; margins of 

springs; basalt lava flows and cinders; calcareous soil and alkaline clay; canyons, cliffs, and ledges; 

granitic soils and igneous rocks; and sandstone rocks and soils) are present, to maintain selfsustaining populations of associated at-risk plant species.

20 The structure and function of the vegetation and associated microclimate and special features (e.g., 

snags, logs, large trees, interlocking canopy, cliffs, cavities, talus slopes, bogs, fens, rock piles, 

specific soil types, and wet areas) exist in adequate quantities within the capability of the Carson, to 

provide habitat and refugia for at-risk species with restricted distributions.

21 Ecological conditions, as described in these desired conditions, provide habitat to support, sustain, 

and recover rare, endemic, or at-risk species. 
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

28

All Vegetation Community Vegetation Standards (FW-VEG-S)

1 Collection of plant at-risk species shall be for research or scientific purposes only.

All Vegetation Community Guidelines (FW-VEG-G)

1 Management activities and special uses occurring within federally listed species’ habitat should 

integrate habitat management objectives and species protection measures from the most recent 

approved USFWS recovery plan, to maintain the persistence or contribute to the recovery of that 

species.

2 Where the Forest Service has entered into a signed conservation agreement that provides 

guidance on activities or actions to be carried out by the Carson, those activities or actions 

should be undertaken consistent with the guidance found within the Conservation Agreement, to 

maintain the persistence or contribute to the recovery of federally listed species.

3 Vegetation should provide for at-risk species’ habitats, by minimizing disturbance, providing 

recovery strategies, and managing for desired levels of key structural elements for at-risk species

(e.g., large old trees and snags, downed woody debris, denser vegetation structure, and soil 

structure) important for nesting, rearing, breeding, foraging, and dispersal, to maintain the 

persistence or contribute to the recovery of at-risk species. 

4 For cavity nesting birds, snags should be retained at levels indicated in vegetation desired 

condition statements or in the largest diameter classes available, if available, and replaced at 

natural recruitment rates, to maintain the persistence of cavity nesting birds. 

5 Naturally ignited fires (i.e., lightning-caused fires) that occur in fire adapted vegetation types 

should be managed for resource benefit when burning conditions facilitate progress toward 

desired conditions and risks to firefighters, infrastructure, and the public can be mitigated.

Management Approaches for All Vegetation Communities

1. To meet old growth desired conditions, consider designing management activities to restore and

maintain characteristic levels of:

a. Large, old ponderosa pine trees with reddish-yellow, wide platy bark, flattened tops, moderate to

full crowns, and large drooping or gnarled limbs (e.g., Thomson’s age class 4, Dunning’s tree

class 5, or Keen’s Tree Class 4, A & B).

b. 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.

c. Large snags, partial snags, and trees greater than 18 inch diameter (DBH) with broken tops,

cavities, sloughing bark, lightning scars greater than 4 inches wide, and large stick nests.

d. Gambel oak greater than 8 inches diameter at root collar.

2. In areas of high vulnerability to changing climate patterns, consider alternative management

approaches to facilitate natural adaptation to changing conditions. Consider managing tree basal area

at the low end of the range of desired conditions to mitigate water stress.
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

29

3. Consider using mechanical, chemical, and prescribed fire treatments to maintain existing grassland

and meadow openings, expand openings by removing woody species from the perimeter, and create

new openings.

4. When thinning, consider leaving characteristic levels of snags, downed logs, and other woody

components that collect drifting seeds, provide shade, reduce surface temperatures, retain moisture,

and increase forage for ungulate grazing.

5. Consider using methods, such as fencing, aerating soil (decompacting soils), improving livestock

grazing strategies, or strategically locating constructed waters or roads to protect and enhance

grassland composition, structure, and productivity and soil function.

6. Consider working closely with the U.S. Fish and Wildlife Service (USFWS) to provide for federally

listed species’ habitats, through minimizing disturbance, providing recovery strategies, and managing

for desired levels of key structural elements (e.g., large old trees and snags, downed woody debris,

denser vegetation structure, and soil structure) important for nesting, rearing, breeding, foraging, and

dispersal.

7. Consider working collaboratively with federally recognized tribes, NMDGF, local governments, and

other partners to plan and accomplish projects that will make progress toward desired conditions.

8. Consider fostering partnerships with universities and other science organizations to develop concepts

and tools applicable to vegetation management, as well as to identify research opportunities related to

management activities aimed at ecosystem restoration.

9. Consider planning in cooperation with landowners, when proposed vegetation treatments are adjacent

to private land.

10. Consider working with volunteer groups on projects that improve vegetation condition and ecosystem

function.

11. Consider using computer models or other tools as they are developed to understand management

impacts on carbon stocks and fluxes (changes over time).

Related Plan Content for All Vegetation Communities

Below are those resources which have been identified as the most important related resources to this 

section. We recommend you look at these sections, as well as other resources not identified below that

you deem to be important to your specific project. 

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species

Alpine and Tundra (VEG-ALP)

The alpine and tundra vegetation community is present on only 9,996 acres on the Carson in the Questa 

and Camino Real Ranger Districts. It occurs on sites above 10,600 feet and supports sparse, low-growing 

vegetation as a result of unstable substrates, exposure to high winds, and a short growing season. On 

gradual to moderate slopes, flat ridges, valleys, and basins, where soils are fairly stable, the vegetation 

community may support tundra systems with diverse alpine flora, characterized by perennial, 

rhizomatous, sod-forming sedges, and prostrate and mat-forming forbs with thick rootstocks or taproots. 

Fire is not a significant disturbance in these communities, though plants and soils are very sensitive to 

impacts from grazing and recreation.

Occupying the highest and coldest peaks and ridges, the alpine and tundra vegetation community is an 

important source of snow accumulation and water production (regulating and provisioning ecosystem 
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

30

services). Designated wildernesses make up 86 percent of the alpine and tundra vegetation community, 

but some areas, such as Kachina Peak in Taos Ski Valley and Wheeler Peak, are subject to heavy 

recreation from hikers, backpackers, and skiers (cultural ecosystem service). Cold temperatures are a 

defining feature that makes the alpine and tundra vegetation community especially vulnerable to changes 

in climate. The Carson plays a significant role in the sustainability of the alpine and tundra vegetation 

community in the broader landscape and may provide an important refuge for dependent organisms, 

because this vegetation community within the Carson is relatively intact.

Alpine and Tundra Desired Conditions (FW-VEG-ALP-DC) 

1 Desired seral stage proportions for the alpine and tundra vegetation community at landscape scale: 

Class Description Proportion (%)

Early Early development 5 

Herbaceous All herb types 95

Treed Uncharacteristic tree cover; contemporary landscapes only 0 

2 The ecological attributes and processes that provide habitat for native biota or historic and cultural 

values are maintained.

3 The patch distribution of rock and herbaceous cover is finely patterned with about 60 percent total 

vegetation cover.

4 Tree cover is typically less than 10 percent. Completely barren or rocky areas make up only a small 

percentage of the vegetation community.

5 Endemic levels of disturbances (e.g., insects, diseases, fire, snow, and wind) maintain a functioning 

ecosystem that contains all its components, processes, and conditions. Mixed severity fires occur 

very infrequently, every 100 to 200 years (fire regime IIIc). Plants, animals, and geologic features 

that contribute to ecological diversity and uniqueness are maintained.

6 Alpine ecosystems occupy harsh high elevation sites, resulting in short stature and relatively slow 

growth for both shrubs and herbaceous species. Wetland communities are present in snowloaded 

depressions and are dominated by plane leaf willow, snow willow, and artic willow. Alpine fellfields 

are free of snow in the winter and dominated by alpine clover, tufted hairgrass, and Bellardi bog 

sedge, to allow for the persistence of at-risk species. 

7 Key features (e.g., boulder fields and talus slopes) that are necessary for alpine dependent plant and 

animal species (e.g., alpine larkspur, marmots, pika, and bighorn sheep) are well distributed and not 

uncharacteristically disturbed, within the capacity of the vegetation community.

8 The alpine and tundra vegetation community continues to be resilient to natural and human-caused 

impacts.

Alpine and Tundra Guidelines (FW-VEG-ALP-G)

1 Trail construction and maintenance in the alpine and tundra vegetation community should 

minimize disturbance to at-risk plants and to important key habitat features (e.g., rock outcrops, 
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

31

willows, and talus slopes) for at-risk species and other alpine dependent species (e.g., yellowbellied marmot and American pika), to maintain the persistence of native species. 

2 To assist breeding and nesting success of at-risk species, adaptive seasonal use or percent 

utilizations for livestock grazing should be considered and based on the best available 

information, as well as on site-specific factors (e.g., topography and available habitat).

At-risk Species for Alpine and Tundra

 American peregrine falcon

 White-tailed ptarmigan (Questa and Camino Real Ranger Districts)

 Alpine larkspur (Questa and Camino Real Ranger Districts)

Related Plan Content for Alpine and Tundra

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species

Montane and Subalpine Grasslands (VEG-MSG)

Montane and subalpine grasslands vegetation community cover 125,351 acres across every ranger district, 

except the Jicarilla. They are naturally fragmented, occurring as meadows and openings in spruce fir, 

mixed conifer, and ponderosa pine forests, between 8,000 and 10,000 feet elevation. They are often 

intermingled with the wetland riparian vegetation community. A diverse mix of grass and forb species 

may be present, varying according to soil type, soil moisture, and temperature. Dominant species may 

include Arizona fescue, mountain muhly, various sedges, Parry’s oatgrass, pine dropseed, Thurber’s 

fescue, and blue grama. Grassland openings are created and maintained by a combination of tree-limiting 

site conditions (e.g., soils and climate) and disturbance (mainly fire). Trees may occur along the periphery 

of meadows and some shrubs may be present, though canopy cover was historically no more than 10

percent for either. Hydrology is closely tied to snowmelt, and these meadows are seasonally wet, but do 

not typically experience flooding. Grassland communities are susceptible to channel and gully erosion 

and their size and number have been reduced, as a result of encroaching trees and shrubs and livestock 

grazing. Invasive species infestation is a concern, and introduced Kentucky bluegrass dominates native 

species in some areas.

Expansive grasslands like Valle Vidal and Lucero Lakes provide important habitat, forage, and hydrologic 

benefits (provisioning and regulating ecosystem services). Smaller meadows and herbaceous riparian 

areas create unique habitats within other communities and contribute to biodiversity and livestock 

production (provisioning ecosystem services). Montane and subalpine grassland vegetation community 

has been altered from historic condition by natural and anthropogenic impacts. Bunchgrasses are less 

common, trees and shrubs have displaced herbaceous cover, and reduced vegetation cover and ground 

disturbing activities have altered hydrologic function and increased erosion.

Montane and Subalpine Grasslands Desired Conditions (FW-VEG-MSG-DC)

1 Desired seral stage proportions for montane and subalpine grassland vegetation community at the 

landscape scale: 
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Class Description Proportion

(%)

Early Recently burned; sparsely vegetated; early development grassland 20

Herbaceous All grass and forb types; mid to late development. Perennial-mixed grasses, 

<10% shrub/tree cover, >10% grass cover 

80

Treed Tree or shrub invaded; contemporary landscapes only 0 

Landscape Scale (1,000 acres or greater)

2 The montane and subalpine grassland community is open and grassy with tree and shrub canopy 

cover of less than 10 percent each. Vegetation is dominated by native herbaceous plants. 

Regeneration, seed head production, and a balance of grass and forb species, including warm and 

cool season species, occur in most years and within the capability of soils. The structure, 

composition, and distribution of vegetation are within the range of natural variability and occur in 

natural patterns of abundance and diversity, varying with soil type and microclimate.

3 Herbaceous vegetation cover (herbaceous cover, decaying debris, and leaf litter) is maintained at 

levels that contribute to suitable hydrologic function, soil stability, and nutrient cycling, while 

providing food and cover for at-risk species and other wildlife species. A diversity of native grass 

and forb species and adequate plant litter reduce compaction and erosion.

4 Soil function is sustained. Soils are permeable and capable of infiltrating water to reduce overland 

flows during precipitation events and allow for burrowing by small mammals (e.g., Gunnison’s 

prairie dog, ground squirrels, and masked shrew). Adequate water infiltration discourages arroyos, 

gullies, and head cuts from forming in drainages. Existing arroyos and gullies are stabilizing and 

recovering.

5 Natural surface drainages and subsurface flow patterns are not altered by human or animal 

trampling, to assure water flow into connected waterbodies or streams.

6 Fire plays its natural role on the landscape. Vegetation height and density carry fire and support the 

historic fire return interval. Fires are low-intensity but with high aboveground consumption. Fire 

return intervals are influenced by the fire regime in adjoining vegetation types and range from 1 to 

35 years (fire regime II). Introduced annuals do not cause changes to the natural fire regime.

7 Biological soil crusts are present and improve nutrient cycling and stabilize soils, especially on 

sandier soils.

Mid-Scale (10-1,000 acres)

8 The composition, structure, and distribution of native vegetation reflect a mix of early, middle, and 

late seral stages. Early seral stages will typically contain more forbs, older stages are dominated by 

more grasses and fewer forbs. Native plant species are present in all age classes and are healthy, 

reproducing, and persisting.

9 Depending on soil type, bare soil is no more than 30 percent by area and is most often less than 10

percent. Basal vegetation varies between 30-75 percent groundcover. Organic litter varies between

15 and 50 percent cover. Vegetation composition averages 40-60 percent grass, and 10-30 percent

forbs. 
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10 Vegetation conditions provide hiding, nesting, and thermal cover in contiguous blocks for wildlife, 

including small mammals and songbird nesting. Soil condition, as defined by basic soil functions 

(e.g., stability, soil hydrology, and nutrient cycling), has the capacity to support the diversity of 

associated species (e.g., western burrowing owl, prairie dog, and masked shrew). 

Fine Scale (10 acres or less)

11 Biological diversity is high in the montane and subalpine grassland vegetation community. Within 

site capability, a mosaic of vegetation density exists across the landscape, ranging from densely 

vegetated areas, to provide cover for the small mammals, ground-nesting birds, and neonate 

ungulates, to bare areas that result from natural processes, such as freeze–thaw action or burrowing 

by small mammals.

12 Fine scale features of rock piles and wet areas that are necessary to support at-risk species are well 

distributed, within the capacity of the vegetation community.

13 Cool season grasses and forbs provide nutritional forage; while shrubs and standing grass growth 

from the previous year provide adequate hiding cover (over 6”) to protect wildlife from predation.

14 Grasslands are connected (consistent with the distribution of Mollisol soils) and are not fragmented.

Montane and Subalpine Grasslands Standards (FW-VEG-MSG-S)

1 Heavy equipment and log decks shall not be staged in montane meadows.

Montane and Subalpine Grasslands Guidelines (FW-VEG-MSG-G)

1 New stock tanks and wildlife waters should be placed in locations that reduce concentrations of 

grazing animals and subsequent vegetation and soil effects in open grasslands and meadows. 

At-risk Species for Montane and Subalpine Grasslands

 Black-footed ferret

 Northern leopard frog

 American peregrine falcon

 Western burrowing owl

 Gunnison’s prairie dog

 Masked shrew

Related Plan Content for Montane and Subalpine Grasslands

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species 
Chapter 2. Forestwide Plan Components

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Bristlecone Pine (VEG-BP)

The bristlecone pine vegetation community is rare on the Carson, found on less than 5,000 acres scattered 

across the Questa and Camino Real Ranger Districts. The bristlecone pine vegetation community occurs 

above 10,500 feet and favors south-facing, dry, rocky ridges and slopes. Bristlecone pine is the dominant 

species, though Douglas-fir, Engelmann spruce, and ponderosa pine may also be present. The canopy is 

open and patchy and the understory is typically sparse.

Bristlecone pine trees have unique structural and physiological qualities that make them stress tolerant 

and allow them to occupy sites that other species cannot. They provide unique ecological functions on 

these sites, including slope stability, snow retention, and post-fire recovery (regulating ecosystem 

services). Their presence on harsh sites influences watershed hydrology, facilitates succession, provides 

habitat, and maintains forested cover on sites that may otherwise become treeless (regulating and 

provisioning ecosystem services). As some of the oldest trees on the Carson they are valued for their 

charismatic gnarled forms and their longevity (cultural ecosystem service). 

Bristlecone Pine Desired Conditions (FW-VEG-BP-DC)

1 Desired seral stage proportions for the bristlecone pine vegetation community at the landscape scale: 

Class Description Proportion

(%)

Early Recently burned; grass, forb, shrub, and seedling/sapling size trees 20

Mid-Closed Small trees, closed canopy; contemporary landscapes only 0 

Mid-Open Small trees, open canopy 20

Late-Open Medium and large trees, open canopy 60

Late-Closed Medium and large trees, closed canopy; contemporary landscapes only 0 

Landscape Scale (1,000 acres or greater)

2 Bristlecone pine is resistant to white pine blister rust or resilient when it occurs.

3 Trees persist despite changing and uncertain future environmental conditions and continue to provide

slope stability, snow retention, and watershed hydrology.

4 Native grasses and forbs are present in the understory, but cover is generally sparse and 

discontinuous. However, plant litter (e.g., leaves and needles) and coarse woody debris are present in 

sufficient quantity to resist accelerated soil erosion and promote nutrient cycling and water retention.

5 Fire is rare in the bristlecone pine vegetation community (especially at higher elevations) and not 

stand replacing. Stands with continuous understory may carry low-severity surface fire (mainly at 

lower elevations). Bristlecone pine establishment is rare, but may be stimulated following fire that 

removes competition from other species.

Mid-Scale (10-1,000 acres)

6 At the mid-scale, tree distribution is patchy in the bristlecone pine vegetation community, with an 

open canopy, influenced by disturbance, exposure, soil type, aspect, and site productivity. The 
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majority of trees are large, late seral and widely spaced, but all age classes are represented and 

provide a reliable source of replacement. 

7 Bristlecone pine is the dominant and most common tree species, though other occasional species 

may occur. 

Fine Scale (10 acres or less)

8 Moist soil conditions (e.g., thick litter layers, wet areas, coarse woody debris, and decaying debris) 

are maintained and well distributed, within the capacity of the vegetation community for at-risk

species. 

Bristlecone Pine Guidelines (FW-VEG-BP-G)

1 Planting should use white pine blister rust resistant trees from an appropriate seed transfer zone, 

to reduce spread of disease. 

At-risk Species for Bristlecone Pine

 Masked shrew

Management Approaches for Bristlecone Pine

1. Consider creating a mosaic of mixed age classes and regeneration opportunities across the landscape 

to retain a range of bristlecone attributes in the area while white pine blister resistant selection occurs 

rapidly in younger stands and slowly in older stands.

Related Plan Content for Bristlecone Pine

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species

Spruce Fir Forest (VEG-SFF)

The spruce-fir forest vegetation community occupies the coldest and wettest forested slopes, ridges, and 

valleys on the Carson. It covers nearly 290,000 acres, at elevations between 9,000 and 11,500 feet, 

bounded at upper elevations by the alpine and tundra vegetation community and transitioning to mixed 

conifer at lower elevations. It occurs in all districts, except the Jicarilla. Engelmann spruce, western 

subalpine fir, and corkbark fir are the dominant species. Near timberline, firs are less abundant, while at 

lower elevations mixed conifer species may be present. Below 10,500 feet, quaking aspen occurs 

following disturbances and may be dominant or codominant. On the Carson, common understory species 

include whortleberry, huckleberry, common juniper, Oregon boxleaf, spruce-fir fleabane, Jacob’s-ladder, 

Parry’s goldenrod, and strawberry. As a result of past logging, fewer large trees exist now than what 

occurred historically. 

The disturbance frequency in the spruce-fir forest vegetation community is both historically and currently 

low, but the natural disturbance regime includes infrequent, but high-intensity events like wind throw, 

fire, and spruce beetle epidemics. The current disturbance regime in the spruce-fir forest vegetation 

community is probably not outside the historic norm.

The spruce-fir forest vegetation community covers the highest forested peaks and slopes on the Carson. 

The cold, dark forests accumulate and retain deep snowpack late into the spring, regulating snowmelt, 
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streamflow, and water infiltration throughout the year (regulating ecosystem services). Due to the low 

product value and the difficulty of building roads, some areas of spruce-fir forests were not logged prior 

to 1950. Because these forests were neither roaded nor cut, 27 percent of the spruce-fir forest vegetation 

community has been designated as wilderness (cultural ecosystem service). Other areas of the spruce-fir 

forest vegetation community were heavily logged in the past and still lack trees in the oldest age classes. 

At lower elevations the spruce-fir forest vegetation community may include some Douglas-fir, which is 

preferred as fuelwood by local communities (provisioning ecosystem service). Medicinal osha is collected 

from aspen stands and other wet areas in the spruce-fir forest vegetation community (provisioning 

ecosystem service). 

Spruce Fir Forest Desired Conditions (FW-VEG-SFF-DC)

1 Desired seral stage proportions for the spruce-fir forest vegetation community at the landscape scale: 

Class Description Proportion

(%)

Non-Tree Non-tree: Recently burned; grass, forb, and shrub types 9 

Aspen All aspen, deciduous tree mix, and evergreen-deciduous mix tree types 11

Early Seedling/sapling and small trees, all cover classes 21

Mid Medium trees, all cover classes 14

Late Large trees, closed canopy 45

Landscape Scale (1,000 acres or greater)

2 Spruce-fir forest vegetation community comprises multiple species of varying ages in a mosaic of 

seral stages and structures. Its arrangement on the landscape is similar to historic patterns, with 

groups and patches of variably-sized and aged trees and other vegetation. Tree canopies are 

generally more closed than in mixed conifer forests. 

3 Old growth structure generally occurs over large areas as stands or patches.

4 Vigorous trees dominate, but older declining, top-killed, lightning-scarred, and fire-scarred trees are 

a component that provide for snags and coarse woody debris and are well-distributed throughout the 

landscape. Generally, there are 13 to 30 snags greater than 8 inches in diameter per acre and 1 to 3 of 

those snags are 18 inches or greater in diameter. Lower snag densities within those ranges are 

associated with early seral states and higher densities are associated with late seral states. Coarse 

woody debris ranges from 5 to 30 tons per acre for early-seral stages; 30 to 40 tons per acre for midseral stages; and 40 tons per acre or greater for late-seral stages

5 Natural openings and subalpine meadows are well distributed throughout SFF and are maintained by 

natural processes. They provide sufficient quality habitat for at-risk species to persist. 

6 The understory consists of native grasses, forbs, sedges, mosses, liverworts, and shrubs.

7 In the lower spruce-fir type, mixed severity fires (fire regime III) occur infrequently. In the upper 

spruce-fir type, high severity fires (fire regime IV and V) occur very infrequently.
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Mid-Scale (10-1,000 acres)

8 At the mid-scale, the distribution of groups and patches varies, depending on disturbance, elevation, 

soil type, aspect, and site productivity. Patches are primarily even-aged with variation in species 

composition and size, but are mostly in the hundreds of acres. Disturbances of thousands of acres are 

rare. There may be frequent small disturbances resulting in groups and patches of tens of acres or 

less. Disturbance-created grass, forb, and shrub openings may compose up to 100 percent of the midscale area, depending on the local disturbance history. 

9 Tree density ranges from 20 to 250 square feet of basal area per acre, depending on disturbance 

history, structural stage, and site productivity. 

10 Aspen is occasionally present in large patches, providing habitat for organisms that depend on it 

(e.g., northern goshawk, cavity nesters including woodpeckers and owls, and a variety of fungi and 

microorganisms). Where they naturally occur, all age classes of aspen are present in even-aged 

groups or patches and are regenerating and vigorous. A diverse understory of native herbaceous and 

shrub species has a variety of seral and age classes and is vigorous and regenerating.

11 Localized, accelerated soil erosion may occur following high-severity fires, but not to the extent that 

it results in long-term impairment to connected waters downstream or causes loss of soil productivity 

over major portions of the 5th or 6th code watershed.

12 Uneven-aged groups and patches compose about 20 percent of the spruce-fir forest vegetation 

community and provide for wildlife species that need multi-storied canopies with dense low- to midcanopy layers.

13 Forest conditions in goshawk post fledging areas are generally consistent with surrounding forest 

conditions, except these forests contain 10-20 percent greater tree density (basal area) than goshawk 

foraging areas and the general forest. Goshawk nest areas have forest conditions that are multi-aged, 

but are dominated by large trees with relatively denser canopies than other areas in the spruce-fir 

forest vegetation community. 

14 The wildland-urban interface has strategically located areas in a more open condition than occur in 

the surrounding general forest. Grass/forb/shrub vegetation and aspen may make up a much larger 

percentage of the wildland-urban interface than they do in the general forest. Structures in the 

wildland-urban interface are surrounded by grassy openings with very few to no trees such that 

available fuels support surface fires.

Fine Scale (10 acres or less)

15 Mid- to old-aged trees grow tightly spaced with interlocking crowns. Trees are generally of the same 

height and age in early group/patch development, but may be multi-layered in late development. 

Small openings (gaps) are present as a result of localized disturbances (e.g. wind and disease).

16 Moist soil conditions (e.g., thick litter layers, wet areas, coarse woody debris, and decaying debris) 

are maintained and well distributed, within the capacity of the vegetation community for at-risk

species. 
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Spruce Fir Forest Guidelines (FW-VEG-SFF-G)

1 Soil and vegetation disturbance from management activities should occur in confined, localized 

areas, where impacts to long-term soil and vegetation condition are avoided. 

2 A minimum of 6 nest areas (known and replacement) should be located per goshawk territory, to 

maintain the persistence or contribute to the recovery of at-risk species. Goshawk nest and 

replacement nest areas should generally be located in drainages, at the base of slopes, and on 

northerly (NW to NE) aspects. Nest areas should generally be 25 to 30 acres in size. 

3 Goshawk postfledging areas of approximately 420 acres in size should be designated 

surrounding the nest sites, to maintain the persistence or contribute to the recovery of at-risk 

species.

4 In goshawk foraging areas and postfledging areas, groups of 6 reserve trees should be retained 

within management created openings greater than 0.5 acre, to maintain the persistence or 

contribute to the recovery of at-risk species. 

5 Human presence should be minimized in occupied goshawk nest areas during nesting season of 

March 1 through September 30, to maintain the persistence or contribute to the recovery of atrisk species.

At-risk Species for Spruce Fir Forest

 Canada lynx

 Northern goshawk

 Masked shrew

 Pale Townsend’s big-eared bat

 Robust larkspur

Related Plan Content for Spruce Fir Forest

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species 

Aspen (VEG-ASP) 

On the Carson, aspen occurs as an early seral component of other vegetation communities. It does not 

persist indefinitely, but is dependent on disturbance for its regeneration and therefore its distribution is 

expected to shift spatially across the landscape over time. However, when a conifer seed source is 

unavailable, aspen may persist as a seral state for decades to centuries. Aspen is adapted to a wider range 

of environmental conditions than most of the plant species it is associated with and spans elevations from 

ponderosa to spruce and fir forests. Where they occur, aspen stands provide important moist and cool 

habitat, water storage and water recharge, nutrient cycling, reduced fire intensity, and slowed fire spread. 

They provide a disproportionately large ecological benefit and tend to have higher biodiversity and a 

greater abundance of plants, fungi, invertebrates, mammals, and cavity-nesting bird species than the 

surrounding forest (supporting and provisioning ecosystem services). Even small aspen stands provide 

refugia. The soft wood of decaying stems and snags provides valuable habitat, particularly for cavitydependent species.
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Aspen stands may be single- or multi-storied depending on disturbance history and local stand dynamics. 

The canopy is usually closed. Understory structure may be complex with multiple shrub and herbaceous 

layers, or simple with just an herbaceous layer. The herbaceous layer may be dense or sparse, dominated 

by graminoids or forbs. Some of the species typically found associated with the aspen vegetation 

community include western yarrow, violet, and several grasses and sedges. The understory may also 

contain shrubs, including creeping barberry, Oregon boxleaf, and mountain snowberry. Aspen stands 

provide important habitat for wildlife and plants.

They also have high scenic value and provide opportunities for recreation and cultural or spiritual 

experiences (cultural ecosystem services). The green leaves and white trunks provide a natural contrast to 

the surrounding forest. The aspen vegetation community attracts both residents and visitors to the Carson

to enjoy abundant wildlife, shade, and scenery (cultural ecosystem services). During fall months, the 

landscape is transformed into a patchwork of green and gold, drawing fall color lovers from around the 

region (cultural ecosystem services). Aspen provide unique seasonal opportunities for hiking, biking, bird 

watching, nature exploration, picnicking and other recreation activities (cultural ecosystem services). On 

the Carson, aspen is also an important source of building material (i.e., latillas and coyote fences), as well 

as fuelwood for local forest-dependent communities (provisioning and cultural ecosystem services). 

Aspen bark is used as a medicinal tea (provisioning ecosystem service). 

At lower elevations on the Carson where fire regimes have been disrupted (the mixed conifer with aspen 

and mixed confer with frequent fire vegetation communities), aspen is slightly to very underrepresented 

relative to reference conditions. It is well represented in the higher elevation spruce-fir forest vegetation 

community, but many of the stands that exist are aging and being overtaken by conifers.

Aspen Desired Conditions (FW-VEG-ASP-DC)

Landscape Scale (1,000 acres or greater)

1 The aspen vegetation community occurs as a slowly shifting mosaic and in natural patterns of 

abundance and distribution across its range, with new aspen clones establishing over time. New 

openings provide adequate regeneration and old, declining stands transition to conifer dominance.

2 Fire intervals in vegetation communities where aspen is a component are similar to reference 

conditions and the size, age, and spatial extent of the aspen vegetation community stands reflect 

large-scale disturbance patterns and processes.

3 Stands with the potential for aspen are affected 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 and in turn contribute to high quality 

wildlife habitat and biodiversity.

4 Snags, 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.

Mid-Scale (10-1,000 acres)

5 Aspen in multistoried patches may compose 10 to 100 percent of the mid-scale area, depending on 

local disturbance history.
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6 Aspen is successfully regenerating and recruiting into older and larger size classes.

7 Understory vegetation consists of shrubby or herbaceous species, providing forage and cover for 

wildlife and livestock.

Fine Scale (10 acres or less)

8 Size classes have a natural distribution, with the greatest number of stems in the smallest classes.

9 Moist soil conditions (e.g., thick litter layers, wet areas, coarse woody debris, and decaying debris) 

are maintained and well distributed, within the capacity of the vegetation community for at-risk

species. 

Aspen Guidelines (FW-VEG-ASP-G)

1 To provide necessary habitat characteristics for wildlife species, aspen trees 10 inch or greater 

diameter (DBH), both live and dead, should be protected during management activities, except 

where they may pose a risk to worker or public safety or to infrastructure. 

2 A minimum of 6 nest areas (known and replacement) should be located per goshawk territory, to 

maintain the persistence or contribute to the recovery of at-risk species. Goshawk nest and 

replacement nest areas should generally be located in drainages, at the base of slopes, and on 

northerly (NW to NE) aspects. Nest areas should generally be 25 to 30 acres in size. 

3 Goshawk postfledging areas of approximately 420 acres in size should be designated 

surrounding the nest sites, to maintain the persistence or contribute to the recovery of at-risk 

species.

4 Human presence should be minimized in occupied goshawk nest areas during the nesting season 

of March 1 through September 30, to maintain the persistence or contribute to the recovery of atrisk species.

At-risk Species for Aspen

 Canada lynx

 American peregrine falcon

 Northern goshawk

 Masked shrew

 Robust larkspur

Management Approaches for Aspen

1. Consider stimulating aspen growth and managing for pure aspen stands in high elevation forested 

wildland-urban interface forests to help mitigate fire hazard. 

2. Consider using small patch clearcuts (< 5 acres), conifer removal, and wildland fire to stimulate aspen 

sprouting in areas that currently have or previously supported aspen.
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3. Consider strategies to promote aspen regeneration, such as jackstrawing, planting, public education, 

temporary exclosure fencing, and improving the forage and browse in the surrounding area to diffuse 

browse pressure.

4. Consider selective removal of fire-sensitive species (i.e., white fir) and small diameter conifers. 

Retain large ponderosa pine and Douglas-fir.

5. Consider monitoring to quantify the size and distribution of aspen patches required to overcome 

existing levels of browse pressure.

Related Plan Content for Aspen

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species

Mixed Conifer with Aspen (VEG-MCW)

The mixed conifer with aspen vegetation community is found in the cooler wetter sites within the mixed 

conifer life zone, where fires are less frequent and are characterized by more mixed to high severities. The 

distinguishing feature of the mixed conifer with aspen vegetation community is the presence of quaking 

aspen in a post-disturbance seral state. On the Carson, the mixed conifer with aspen vegetation 

community is found on about 131,000 acres at elevations between 7,000 and 10,000 feet. It is most 

common in the eastside ranger districts, and does not occur in the Jicarilla Ranger District. 

Dominant and codominant vegetation in the mixed conifer with aspen vegetation community varies by 

elevation and moisture availability. Ponderosa pine occurs incidentally or is absent, while Douglas-fir, 

southwestern white pine, white fir, and Colorado blue spruce are dominant or codominant. Oregon 

boxleaf is characteristic in the understory, but a wide variety of other shrubs, graminoids, and forbs may 

be present, depending on soil type, aspect, elevation, disturbance history, and other factors. In the aspen 

component, conifer species may or may not be present in significant proportions, depending on 

successional status.

The mixed conifer with aspen vegetation community occurs on productive sites that grow large Douglasfir trees that are valued as timber and fuelwood (provisioning ecosystem services). Selective harvesting 

during the last century has shifted stand structure and composition, favoring dense, moderate-sized, true 

firs. Fire exclusion has had an impact by reducing opportunities for aspen establishment. Aspen in this 

vegetation community is slightly underrepresented and young aspen stands are particularly rare. When 

combined with predicted warming and drying, the current stand conditions are likely to become 

increasingly susceptible to insects, disease, and large, uncharacteristic wildland fires in the future. 

The mixed conifer with aspen vegetation community covers many areas that provide important 

recreational opportunities including Sipapu and Red River ski resorts, the South Boundary mountain bike 

trail, and Elephant Rock, Cabresto Lake, and Trout Lakes areas (cultural ecosystem services). Designated 

wildernesses make up 14.5 percent of the mixed conifer with aspen vegetation community (cultural 

ecosystem service). There are good hunting and osha collecting opportunities in the mixed conifer with 

aspen vegetation community forests (cultural and provisioning ecosystem services). 

Mixed Conifer with Aspen Desired Conditions (FW-VEG-MCW-DC)

1 Desired seral stage proportions for the mixed conifer with aspen vegetation community at the 

landscape scale: 
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Class Description Proportion

(%)

Non-Tree Non-tree: Recently burned; grass, forb, and shrub types 1 

Aspen All aspen, deciduous tree mix, and evergreen-deciduous mix tree types 21

Early-Mid Seedling/sapling, small trees and medium trees, all cover classes 29

Late-Closed Large trees, closed canopy 49

Late-Open Large trees, open canopy; contemporary landscapes only 0 

Landscape Scale (1,000 acres or greater)

2 The mixed conifer with aspen vegetation community comprises variable species of varying ages in a 

mosaic of seral stages and structures. Its arrangement on the landscape is similar to historic patterns, 

with groups and patches of variably-sized and aged trees and other vegetation. A range of seral 

states, each characterized by distinct dominant species composition and biophysical conditions, are 

distributed across the landscape, such that each state adequately supplies the subsequent states 

progressively through time. Canopies in older seral stages are generally more closed than in dry 

mixed conifer.

3 Mixed severity fire (fire regime III) is characteristic at the lower elevations of this type (every 50 to 

100 years). High-severity fires (fire regimes IV & V) occur less frequently and are more likely to

occur at higher elevations.

4 Old growth structure generally occurs over large areas as stands or patches. 

5 Vigorous trees dominate, but older declining, top-killed, lightning-scarred, and fire-scarred trees are 

a component. Declining trees are well distributed throughout the landscape and provide for snags, 

and coarse woody debris. Generally, there are an average of 20 snags greater than 8 inches in 

diameter per acre and 1 to 5 of those snags are 18” or greater in diameter. Lower snag densities are 

associated with early seral stages and higher densities are associated with late seral stages. Coarse 

woody debris, including downed logs, ranges 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.

6 Dwarf mistletoe infestations may be present in stands with a Douglas-fir or spruce component, but 

rarely in other tree species. Infestation size, 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 and red-tailed hawks).

7 An understory consisting of native grass, forbs, and shrubs is present. Mosses and lichens are 

prevalent and function to recycle soil nutrients. 

Mid-Scale (10-1,000 acres)

8 At the mid-scale, the distribution of groups and patches varies in the mixed conifer with aspen 

vegetation community, depending on disturbance, elevation, soil type, aspect, and site productivity. 

Patch sizes vary, but are frequently in the hundreds of acres, with rare disturbances in the thousands 

of acres. Groups and patches of tens of acres or less are relatively common. A mosaic of groups and 

patches of trees, primarily even-aged, and variable in size, species composition, and age is present. 
Chapter 2. Forestwide Plan Components

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43

Disturbance-created grass, forb, shrub openings may compose 10-100 percent of the mid-scale area, 

depending on the local disturbance history. 

9 Tree density ranges from 20 to 180 square feet of basal area per acre, depending on disturbance 

history and site productivity.

10 Basal area is 10-20 percent higher in some areas than in the general forest. Examples include 

goshawk post- fledging family areas and north-facing slopes. Goshawk nest areas have forest 

conditions that are multi-aged, but are dominated by large trees with relatively denser canopies than 

other areas in the wet mixed conifer type.

11 The prevalence of aspen is dependent on seral stage, but is occasionally present in large patches, 

providing habitat for organisms (e.g., cavity-nesting birds, fungi, and microorganisms) that depend 

on it. Where they naturally occur, all age classes of aspen are present in even-aged groups or patches 

and are regenerating and vigorous. A diverse understory of native herbaceous and shrub species has a 

variety of seral and age classes and is vigorous and regenerating.

12 Fire behavior is often smoldering low-intensity surface fire, with single tree and isolated group 

torching. Due to the presence of ladder fuels, when environmental conditions align fires transition 

rapidly into the canopy as passive or active crown fire behavior with conifer tree mortality up to 100

percent across mid-scale patches (10-1,000 acres). High-severity fires generally do not result in areas 

of mortality exceeding 1,000 acres. Other more frequent disturbances affect smaller areas.

13 Uneven-aged groups and patches, comprising about 20 percent of the mixed conifer with aspen 

vegetation community, provide habitat for species (e.g., black bear and bobcat) that need 

multistoried canopies with dense low- to mid-canopy layers.

14 The wildland-urban interface is dominated by early-seral fire-adapted species growing in a more 

open condition than in the surrounding general forest. These conditions result in fires that burn 

primarily on the forest floor and rarely spread as crown fire.

Fine Scale (10 acres or less)

15 In mid-aged and older forests, 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.

16 Small openings (gaps) are present as a result of disturbances and provide wildlife and plant species 

habitat.

17 Moist soil conditions (e.g., thick litter layers, wet areas, coarse woody debris, and decaying debris) 

are maintained and well distributed, within the capacity of the vegetation community for at-risk

species. 

Mixed Conifer with Aspen Guidelines (FW-VEG-MCW-G)

1 Slash piles should be retained across the landscape for several years, to increase small mammal 

occupancy in areas where coarse woody debris is deficient and provide nesting habitat and cover 

for associated wildlife species (e.g., turkeys, birds, small mammals, reptiles, and invertebrates). 
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

44

2 If slash is scattered, it should be at a height that still allows big game movement.

3 A minimum of 6 nest areas (known and replacement) should be located per goshawk territory, to 

maintain the persistence or contribute to the recovery of at-risk species. Goshawk nest and 

replacement nest areas should generally be located in drainages, at the base of slopes, and on 

northerly (NW to NE) aspects. Nest areas should generally be 25 to 30 acres in size. 

4 Goshawk postfledging areas of approximately 420 acres in size should be designated 

surrounding the nest sites, to maintain the persistence or contribute to the recovery of at-risk 

species, to maintain the persistence or contribute to the recovery of at-risk species.

5 In goshawk foraging areas and postfledging areas groups of 6 reserve trees should be retained 

within management created openings greater than 0.5 acre, to maintain the persistence or 

contribute to the recovery of at-risk species. 

6 Human presence should be minimized in occupied goshawk nest areas during nesting season of

March 1 through September 30, to maintain the persistence or contribute to the recovery of atrisk species. 

At-risk Species for Mixed Conifer with Aspen

 Mexican spotted owl

 American peregrine falcon

 Northern goshawk

 Masked shrew

 Pale Townsend’s big-eared bat

 Robust larkspur

Related Plan Content for Mixed Conifer with Aspen

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species

Mixed Conifer with Frequent Fire (VEG-MCD)

The mixed conifer with frequent fire vegetation community occupies the warmer, drier sites within the 

mixed conifer life zone. It covers nearly 183,000 acres on the Carson at elevations of 6,000 to 10,000 feet. 

It is present on every district except the Jicarilla Ranger District. The mixed conifer with frequent fire 

vegetation community is distinguished from mixed conifer with aspen vegetation community by having a 

more frequent, lower severity fire regime and aspen as a minor component found within dissimilar 

inclusions, rather than as a seral stage. The mixed conifer with frequent fire vegetation community is 

dominated by ponderosa pine, with some Douglas-fir and white fir. When fire is episodic and low- to 

mixed-severity, both mature and juvenile white fir are killed and an open forest structure is maintained 

with fire adapted ponderosa pine and Douglas-fir in the overstory, and Gambel oak, creeping barberry, 

and mountain snowberry are common in the understory. The natural fire regime in mixed conifer with 

frequent fire is highly departed and has resulted in dense, homogeneous stands with a shift toward more 

shade tolerant tree species that are not adapted to fire.
Chapter 2. Forestwide Plan Components

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45

Dense stands outcompete aspen which would have historically been a minor and dispersed component in 

the mixed conifer with frequent fire vegetation community, but is now very underrepresented. Dense 

stands are susceptible to insects and disease and much more at risk from large, high severity fire. There 

are many fewer openings that support grass, forb, and oak cover than there would have been historically, 

which results in less forage for wildlife and livestock grazing. Many forest dependent communities are 

near mixed conifer with frequent fire forests and rely on them for fuelwood and other products, like osha

(cultural and provisioning ecosystem services). 

Mixed Conifer with Frequent Fire Desired Conditions (FW-VEG-MCD-DC)

1 Desired seral stage proportions for the mixed conifer with frequent fire vegetation community at the 

landscape scale: 

Class Description Proportion (%)

Non-Tree-Early Recently burned; grass, forb, and shrub types; seedling/sapling 

size trees 9 

Mid-Closed Small trees, closed canopy 3 

Mid-Open Small trees, open canopy 3 

Late-Closed Medium to large trees, closed canopy 25

Late-Open Multi-storied with open canopy, largest trees are medium to large 60

Landscape Scale (1,000 acres or greater)

2 The mixed conifer with frequent fire vegetation community comprises multiple species of varying 

ages in a mosaic of seral stages and structures. Its arrangement on the landscape is similar to historic 

patterns, with groups and patches of variably-sized and aged trees and other vegetation. Portions of 

the forest may be in various stages of development (including temporary openings or groups of very 

young trees) providing a source of future old growth structure on the landscape. Even-aged structure 

may be present on up to 10 percent of the landscape to provide structural diversity. 

3 Frequent, low-severity fires (fire regime I) occur across the entire landscape, including throughout 

goshawk home ranges, with a return interval of 14 to 24 years. Fires burn primarily on the forest 

floor and typically do not spread between tree groups as crown fire.

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

growth components or as clumps of old growth. Old growth may be intermixed with groups of 

younger trees or distinct groups of mostly old trees.

5 Vigorous trees dominate, but older declining, top-killed, lightning-scarred, and fire-scarred trees are 

a component that provide for snags and coarse woody debris and are well distributed throughout the 

landscape. 

6 Dwarf mistletoe infestations may be present on ponderosa pine and Douglas-fir, but rarely in other 

tree species. It occurs in less than 15 percent of host trees in uneven-aged forest structures and less 

than 25 percent in even-aged forest structures. Infestation size, severity, and amount of mortality 

varies among infected trees. 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).
Chapter 2. Forestwide Plan Components

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46

7 The majority of soil cover comprises native grasses and forbs, as opposed to needles and leaves, but 

all contribute to the fine fuels that maintain a natural fire regime.

Mid-Scale (10-1,000 acres)

8 At the mid-scale, appearance is variable, but generally uneven-aged and open. Openness typically 

ranges from 50 percent in more productive sites to 90 percent in less productive sites. Occasionally 

small patches (generally less than 60 acres) of even-aged forest structure are present, based upon 

disturbance events and regeneration establishment. A small percentage of the landscape may be 

predisposed to larger even-aged patches, based on physical site conditions that favor mixed-severity 

and stand replacement fire and other disturbances. Disturbances sustain the overall variation in age 

and structural distribution. 

9 Tree density ranges from 30 to 125 square feet of basal area per acre, with the majority coming from 

larger trees. 

10 Trees are arranged in small clumps and groups interspersed within variably-sized openings of 

grass/forb/shrub vegetation associations similar to historic patterns. Size, shape, number of trees per 

group, and number of groups per area are variable across the landscape depending on elevation, soil 

type, aspect, and site productivity. More biologically productive forested sites contain more trees per 

group and more groups per area.

11 Snags are typically 18 inch diameter (DBH) or larger, and average 3 per acre. Downed logs (>12 

inch diameter at mid-point, >8 feet long) average 3 per acre in forested areas. Coarse woody debris, 

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

12 Basal area is 10 to 20 percent higher in some areas than in the general forest. Examples include 

goshawk post- fledging family areas, north-facing slopes, and canyon bottoms. Goshawk nest areas 

have forest conditions that are multi-aged but are dominated by large trees with relatively denser 

canopies than other areas in the dry mixed conifer type.

13 Groups of aspen are present in the mixed conifer with frequent fire vegetation community where 

they naturally occur.

14 Where the potential exists, Gambel oak thickets with various diameter stems and low growing, 

shrubby oak are present. These thickets provide forage, cover, and nesting habitat for species (e.g., 

small mammals, birds, deer, and elk). Gambel oak mast (acorns) provides food for wildlife species, 

such as black bear. The distribution and abundance of oak balances wildfire hazard fuels reduction 

and tree regeneration with wildlife habitat, grazing conditions, age class diversity, and soil condition.

15 The wildland-urban interface comprises smaller and more widely spaced groups of trees and lower 

numbers of snags and coarse woody debris than surrounding general forest. Crown base heights may 

be higher than in areas outside the wildland-urban interface. Within the wildland-urban interface, 

fires burn primarily on the forest floor and rarely spread as crown fire.
Chapter 2. Forestwide Plan Components

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47

Fine Scale (10 acres or less)

16 Tree groups are typically less than 1 acre 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.

17 Interspaces between groups are variably shaped, comprised of a native grass-forb-shrub mix, and 

may contain individual trees or snags.

18 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.

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

20 Groundcover consists primarily of perennial grasses and forbs capable of carrying surface fire. Fires 

generally burn as surface fires, but single-tree torching and isolated group torching is not 

uncommon.

21 Moist soil conditions (e.g., thick litter layers, wet areas, coarse woody debris, and decaying debris) 

are maintained and well distributed, within the capacity of the vegetation community for at-risk 

species.

Mixed Conifer with Frequent Fire Objectives (FW-VEG-MCD-O)

1 Mechanically treat at least 5,500 - 10,000 acres, during each 10-year period following plan 

approval. 

2 During each 10 year period following plan approval, treat at least 20,000 - 40,000 acres using a 

combination of prescribed fire and naturally ignited wildfire to make progress toward or to 

maintain desired conditions. 

Mixed Conifer with Frequent Fire Guidelines (FW-VEG-MCD-G)

1 Slash piles should be retained across the landscape for several years, to increase small mammal 

occupancy in areas where coarse woody debris is deficient and provide nesting habitat and cover 

for wildlife-associated species (e.g., turkeys, birds, small mammals, reptiles, and invertebrates). 

2 If slash is scattered, it should be at a height that still allows big game movement.

3 A minimum of 6 nest areas (known and replacement) should be located per goshawk territory, to 

maintain the persistence or contribute to the recovery of at-risk species. Goshawk nest and 

replacement nest areas should generally be located in drainages, at the base of slopes, and on 

northerly (NW to NE) aspects. Nest areas should generally be 25 to 30 acres in size. 

4 Goshawk postfledging areas of approximately 420 acres in size should be designated 

surrounding the nest sites, to maintain the persistence or contribute to the recovery of at-risk 

species. 
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

48

5 In goshawk foraging areas and postfledging areas groups of 3 to 5 reserve trees should be 

retained within management created openings greater than 1 acre, to maintain the persistence or 

contribute to the recovery of at-risk species. 

6 Human presence should be minimized in occupied goshawk nest areas during the nesting season 

of March 1 through September 30, to maintain the persistence or contribute to the recovery of atrisk species. 

At-risk Species for Mixed Conifer with Frequent Fire

 Mexican spotted owl

 American peregrine falcon

 Northern goshawk

 Pale Townsend’s big-eared bat

 Robust larkspur

Related Plan Content for Mixed Conifer with Frequent Fire

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species

Ponderosa Pine Forest (VEG-PPF) 

Ponderosa pine forest is the most common vegetation community on the Carson, covering nearly 313,000 

acres and occurring on every ranger district. It spans moisture gradients from 6,000 to 7,500 feet. 

Ponderosa pine is the dominant species, but other trees, such as Gambel oak, piñon pine, and juniper, may 

be present. There is typically a productive grass-forb-shrub understory. Gambel oak and kinnikinnick are 

common. In other savannah areas, grasses and forbs dominate the understory and extensive interspaces 

are between widely spaced individuals or clumps of trees. Common grass species are blue gramma, 

mountain muhly, muttongrass, and Arizona fescue. The ponderosa pine has evolved mechanisms to

tolerate frequent, low intensity surface fires and adapts to drought during the growing season. The fire 

regime in the ponderosa pine forest vegetation community is highly departed from reference condition 

and has resulted in dense, homogeneous stands with a shift toward more shade tolerant tree species that 

are not adapted to fire. The ponderosa pine forest vegetation community on the Carson is an important 

source of commercial timber, and fuelwood (provisioning ecosystem services). 

Past activities have created a departed condition in most of the ponderosa pine forest vegetation 

community on the Carson. The result is a lack of open canopy, few large tree dominated stands, and less

snags. Beginning around the turn of the 19th century and continuing into the 1950s, high-grade logging on 

the Carson removed much of the most valuable merchantable timber from accessible ponderosa pine 

forest stands. What remains are even-aged, relatively young dense stands of small diameter ponderosa 

pine trees. Dense ponderosa pine forest supports less grass in the understory now than it did in the past, 

providing less forage for wildlife and livestock. In addition, a legacy of unmanaged livestock grazing in 

the early 1900s and fire suppression have significantly reduced the ability of fire to play a natural role in 

the ponderosa pine forest vegetation community and has allowed fire-sensitive species, such as white fir, 

to establish. The current ponderosa pine forest vegetation community condition is extremely susceptible 

to large, uncharacteristic wildfire and disturbance agents (especially dwarf mistletoe) that will be 

exacerbated under a warming and drying climate. In many cases mechanical treatment is required prior to 
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

49

reintroducing fire. Treatments that create canopy openings can induce an oak response that suppresses 

tree regeneration and can increase fire hazard.

Beginning in the 1940s through the 1980s, over 50,000 acres of ponderosa pine, piñon pine and juniper 

trees and sagebrush were converted to grasslands. These conversions were accomplished by plowing, 

chaining, dozer piling, tree crushing, and hand clearing with chainsaws, then seeding to grass (mostly 

crested wheat). The primary purpose of these conversion areas was to increase available forage for 

wildlife and livestock grazing. Some lands that have the potential to support ponderosa pine forest

continue to be managed instead for forage production. Those areas are identified as Grassland 

Maintenance Management Areas, and are managed toward the desired conditions defined for that 

management area.

Ponderosa Pine Forest Desired Conditions (FW-VEG-PPF-DC)

1 Desired seral stage proportions for the ponderosa pine forest vegetation community at the landscape 

scale: 

Class Description Proportion

(%)

Non-Tree Recently burned; grass, forb, and shrub types; 0 

Early Seedling/sapling and small trees, closed canopy 1 

Mid Single-storied with open canopy, largest trees are medium to large 3 

Late Multi-storied with open canopy, largest trees are medium to large 96

Single Story Small to large trees, single storied, closed canopy; contemporary 

landscapes only 0 

Landscape Scale (1,000 acres or greater)

2 The ponderosa pine forest vegetation community comprises trees of varying ages in a mosaic of seral 

stages and structures. Its arrangement on the landscape is similar to historic patterns, with groups and 

patches of variably-sized and aged trees. Forest appearance is generally uneven-aged and open; 

occasional areas of even-aged structure may be present. Denser stand conditions exist in some 

locations, such as north facing slopes and canyon bottoms.

3 The majority of soil cover is native grasses and forbs, as opposed to needles and leaves, but all 

contribute to the fine fuels that maintain a natural fire regime.

4 Frequent, low-severity fires (fire regime I) occur across the entire landscape including throughout 

the range of northern goshawks, with a return interval of 4 to 18 years. Fires burn primarily on the 

forest floor and typically do not spread between tree groups as crown fire.

5 Old growth structure (large, old ponderosa pine trees with reddish-yellow, wide platy bark, flattened 

tops, moderate to full crowns, and large drooping or gnarled limbs) occurs throughout the landscape, 

generally in small areas as individual old growth components or as clumps of old growth. Old 

growth is generally intermixed with groups of uneven-aged trees but may occasionally occur in 

larger even-aged patches.
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

50

6 Vigorous trees dominate, but older declining, top-killed, lightning-scarred, and fire-scarred trees are 

a component that provide for snags and coarse woody debris that are irregularly distributed across 

the landscape and may not exist in some patches. 

7 Isolated dwarf mistletoe infestations may be present. It occurs in less than 15 percent of host trees in 

uneven-aged forest structures and less than 25 percent in even-aged forest structures. Infestation size, 

severity, and amount of mortality varies among infected trees. 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), raptors (e.g., 

goshawks and owls), and invertebrate species.

Mid-Scale (10-1,000 acres)

8 At the mid-scale forest appearance is variable but generally uneven-aged and open. Generally all age 

classes are represented and evenly distributed, ranging from young to old. Seedlings and saplings are 

maintained at sufficient levels to provide a reliable source of replacement. Occasionally patches of 

even-aged forest structure are present, based upon disturbance events and regeneration 

establishment. A small percentage of the landscape may be predisposed to larger even-aged patches, 

based on physical site conditions that favor mixed-severity and stand replacement fire and other 

disturbances. Disturbances sustain the overall variation in age and structural distribution.

9 Tree species composition is relatively homogeneous. Trees may be isolated individuals or arranged 

in small clumps and groups interspersed within variably-sized openings of grass/forb/shrub 

vegetation associations similar to historic patterns. Size, shape, number of trees per group, and 

number of groups per area are variable across the landscape depending on elevation, soil type, 

aspect, and site productivity. More biologically productive forested sites contain more trees per 

group and more groups per area.

10 Snags are typically 18 inch diameter (DBH) or larger, and average 1 to 2 per acre. Downed logs (>12 

inch diameter at mid-point, >8 feet long) average 3 per acre. Coarse woody debris, including downed 

logs, ranges from 3 to 10 tons per acre.

11 Where the potential exists, Gambel oak thickets with various diameter stems and low growing, 

shrubby oak are present. These thickets provide forage, cover, and nesting habitat for species (e.g., 

small mammals, birds, deer, and elk). Gambel oak mast (acorns) provides food for wildlife species, 

such as black bear. The distribution and abundance of oak balances wildfire hazard fuels reduction 

and tree regeneration with wildlife habitat, grazing conditions, age class diversity, and soil condition.

12 Interspaces typically range from 52 percent in more productive sites to 90 percent in less productive 

sites. In areas with high fine-scale aggregation of trees into groups, mid-scale openness ranges from 

78-90 percent. Tree density within forested areas generally ranges from 22 to 89 square-foot basal 

area per acre.

13 In some areas, basal area is 10-20 percent higher in mid-aged to old tree groups compared to the rest 

of the forest (i.e., goshawk postfledging areas). Goshawk nest areas have forest conditions that are 

multi-aged, but dominated by large trees with interlocking crowns and a canopy that is denser 

relative to other ponderosa pine areas.
Chapter 2. Forestwide Plan Components

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51

14 In the wildland-urban interface, the density of snags, downed logs, coarse woody debris, live trees, 

and Gambel oak may be at the low range of desired conditions, to reduce fire intensity and assist the 

control of fire. Groups of trees may be smaller, more widely spaced, or may have fewer trees per 

group (but still within desired condition) compared to areas outside the wildland-urban interface. 

Crown base heights may be higher than in areas outside the wildland-urban interface to reduce the 

potential for fire spreading to the tree canopy.

Fine Scale (10 acres or less)

15 Trees typically occur in irregularly shaped small groups of less than one acre, though they may be 

larger, such as on north-facing slopes. Some groups form tight clumps, or trees may occur as isolated 

individuals depending on soils, plant associations, climate, and disturbance.

16 Groups range in size from 2 to approximately 40 trees and may contain species other than ponderosa 

pine. Trees within groups may be of similar or variable ages. Crowns of trees are interlocking or 

nearly interlocking in groups that are mid-aged to old. 

17 The interspaces between groups are variably shaped, 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.

18 Groundcover consists primarily of perennial grasses, forbs, shrubs, and needle cast capable of 

carrying surface fire. Generally, fires burn as surface fires, but single-tree torching and isolated 

group torching are not uncommon and contribute to a mosaic across the landscape.

19 Rocky features, outcrops of gypseous or limy sandstones, volcanic substrate soils, and Mancos Shale 

soils provide habitat within the capacity of the vegetation community for at-risk species. 

Ponderosa Pine Forest Objectives (FW-VEG-PPF-O)

1 Mechanically treat at least 22,000 - 50,000 acres, during each 10-year period following plan

approval. 

2 During the 10 years following plan approval, treat at least 80,000 - 125,000 acres using a 

combination of prescribed fire and naturally ignited wildfire to make progress toward or 

maintain desired conditions.

Ponderosa Pine Forest Guidelines (FW-VEG-PPF-G)

1 Vegetation treatments should be designed such that structural stages and age classes are 

proportionally represented to assure continuous recruitment of old growth characteristics at the 

appropriate scale over time.

2 To provide necessary habitat components, the largest and tallest snags (representative of the 

stand) and downed logs should be retained along edges of openings and within groups/clumps of 

trees, to provide habitat and roost sites for wildlife species (e.g., small mammals, cavity-nesting 

birds, and tree-dwelling bats). 
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

52

3 Slash piles should be retained across the landscape for several years, to increase small mammal 

occupancy in areas where coarse woody debris is deficient and provide nesting habitat and cover 

for turkeys, birds, small mammals, reptiles, and invertebrates.

4 If slash is scattered, it should be at a height that still allows big game movement.

5 A minimum of 6 nest areas (known and replacement) should be located per goshawk territory, to 

maintain the persistence or contribute to the recovery of at-risk species. Goshawk nest and 

replacement nest areas should generally be located in drainages, at the base of slopes, and on 

northerly (NW to NE) aspects. Nest areas should generally be 25 to 30 acres in size. 

6 Goshawk postfledging areas of approximately 420 acres surrounding nest sites should be 

designated, to maintain the persistence or contribute to the recovery of at-risk species. 

7 In goshawk foraging areas and postfledging areas groups of 3 to 5 reserve trees should be 

retained within management created openings greater than 1 acre, to maintain the persistence or 

contribute to the recovery of at-risk species. 

8 Human presence should be minimized in occupied goshawk nest areas during the nesting season 

of March 1 through September 30, to maintain the persistence or contribute to the recovery of atrisk species. 

At-risk Species for Ponderosa Pine Forest

 American peregrine falcon

 Northern goshawk

 Pale Townsend’s big-eared bat

 Spotted bat

 Pagosa milkvetch (Jicarilla Ranger District) 

 Ripley’s milkvetch (Tres Piedras, Questa, and Camino Real Ranger Districts) 

 Small-headed goldenweed (Tres Piedras and El Rito Ranger Districts) 

Related Plan Content for Ponderosa Pine Forest

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species

Piñon-Juniper Woodland (VEG-PJO) 

The piñon-juniper woodland vegetation community covers 178,000 acres and occurs on every ranger 

district of the Carson. It occupies drier sites from 6,200 to above 7,500 feet, where it begins to be 

outcompeted by ponderosa pine and Douglas-fir. The moderate- to high-density overstory is dominated by 

two-needle piñon pine, Rocky Mountain juniper, and one-seed juniper. Soils are generally shallow, 

coarse, and often rocky, and support sparse shrubs and grasses, mainly blue and sideoats gramas. Typical 

disturbances (e.g., fire, insects, and disease) are high severity and occur infrequently, creating and 

maintaining even-aged patches. Woodland development occurs in distinctive phases, ranging from open 

grass-forbs, to mid-aged open canopy, to mature closed canopy forest.
Chapter 2. Forestwide Plan Components

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53

American Indians have occupied the piñon-juniper woodland vegetation community in northern New 

Mexico for centuries and have utilized plants from these areas for many purposes, including food and 

building materials (cultural and provisioning ecosystem services). Piñon pine and juniper are highly 

valued by local forest-dependent communities for fuelwood and pine nuts, and openings provide forage 

for livestock and wildlife (provisioning ecosystem services). Between 2002 and 2005, bark beetles killed 

a significant portion of the piñon pine component on approximately 284,500 acres in the piñon-juniper 

woodland, piñon-juniper sagebrush, and other vegetation communities on the Carson. Soil function has 

been degraded due to a lack of effective groundcover, less overall organic matter, and changes in species 

composition, resulting in altered soil stability and reduced nutrient cycling. The pinyon jay is dependent 

on piñon pine trees and nuts, and the piñon-juniper woodland vegetation community provides important 

habitat for game species, including elk, deer, and bear. 

Beginning in the 1940s through the 1980s, over 50,000 acres of ponderosa pine, piñon pine, and juniper 

trees and sagebrush were converted to grasslands. These conversions were accomplished by plowing, 

chaining, dozer piling, tree crushing, and hand clearing with chainsaws, then seeding to grass (mostly 

crested wheat). The primary purpose of these conversion areas was to increase available forage for 

wildlife and livestock grazing. Some lands that have the potential to support the piñon-juniper woodland 

vegetation community are still being managed instead for forage production. Those areas are identified as 

Grassland Maintenance Management Areas, and are managed toward the desired conditions defined for 

that management area.

Piñon-Juniper Woodland Desired Conditions (FW-VEG-PJO-DC)

1 Desired seral stage proportions for the piñon-juniper woodland vegetation community at the

landscape scale: 

Class Description Proportion

(%)

Non-Tree Non-tree: Recently burned; grass, forb, & shrub types 10

Early-Open Seedling/sapling and open canopy small trees 5 

Early-Closed Small trees, closed canopy 15

Late-Open Medium to large trees, open canopy 10

Late-Closed Medium to large trees, closed canopy 60

Landscape Scale (1,000 acres or greater)

2 The piñon-juniper woodland vegetation community is characterized by even-aged patches of piñon 

pines and junipers that, at the landscape scale, form multi-aged woodlands. In treed seral states, 

piñon pine trees are occasionally absent, but one or more juniper species is always present.

3 Tree density is high, and where interlocking crowns shade the ground over extensive areas shrubs are 

sparse to moderate and herbaceous cover is low and discontinuous. However, plant litter (e.g., leaves

and needles) and coarse woody debris are present in sufficient quantity to resist accelerated soil 

erosion and promote nutrient cycling, water retention, and the microclimatic conditions necessary for 

piñon pine seed germination (improved nutrient and soil properties, higher soil moisture, lower 

temperatures, and reduced solar insolation).
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4 Biological soil crusts are present and improve nutrient cycling and stabilize soils, especially on 

sandier soils.

5 Based on site capability, native grass and forb cover is maximized to protect and enrich soils, as well 

as provide forage for ungulate grazing.

6 Widespread fire occurs infrequently, on the order of centuries, and its effects are variable due to 

variation in groundcover. The fires that do occur are mixed to high severity (fire regimes III, IV, & 

V).

7 Old growth structure occurs throughout the landscape, often concentrated in mid- and fine-scale 

units as patches of old growth. Very old trees (>300 years old) are present. 

8 Older, declining, infested, or diseased trees are a component that provide a source of snags and 

coarse woody debris and are well-distributed throughout the landscape. There are an average of 2 

snags per acre, and coarse woody debris averages 2 to 5 tons per acre.

Mid-Scale (10-1,000 acres)

9 The distribution of patches varies depending on disturbance, elevation, soil type, aspect, and site 

productivity. Patches are primarily even-aged and vary in size but are mostly in the 10s to 100s of 

acres.

10 Tree densities vary among seral stages, but average 150-200 trees per acre. 

11 Where the potential exists, 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 (e.g., small mammals, nesting or feeding birds, deer, and elk). Gambel oak mast (acorns) 

provides food for wildlife species, such as black bear and small mammals. The distribution and 

abundance of oak balances wildfire hazard fuels reduction and tree regeneration with wildlife 

habitat, grazing conditions, age class diversity, and soil condition.

12 In the wildland-urban interface the density of snags, coarse woody debris, live trees and Gambel oak

may be lower than in the rest of the vegetation community, to reduce fire intensity and assist in the 

control of fire. Trees may be younger and more widely spaced, and disturbances (e.g., prescribed fire

and vegetation treatments) may occur more frequently than in areas outside of the wildland-urban 

interface. Crown base heights may be higher than in areas outside of the wildland-urban interface to 

reduce the potential for fire spreading to the tree canopy.

Fine Scale (10 acres or less)

13 Small fires may occur more frequently at the fine scale, burning single trees or small patches (fire 

regime III, return interval 35-200 years).

14 Rocky features, outcrops of gypseous or limy sandstones, volcanic substrate soils, and Mancos Shale 

soils provide habitat within the capacity of the vegetation community for at-risk species. 
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Piñon-Juniper Woodland Standards (FW-VEG-PJO-S)

1 On non-grassland soils in the piñon-juniper woodland vegetation community, seral grasslands 

created by previous vegetation treatments shall be managed toward restoration of piñon-juniper 

woodland vegetation community desired conditions, unless they are in a Grassland Maintenance 

Management Area. 

Piñon-Juniper Woodland Guidelines (FW-VEG-PJO-G)

1 Treatments in the piñon-juniper woodland vegetation community should leave key habitat 

features (i.e., roosting trees, snags, partially dead or dying trees, large trees, or downed logs) and 

single or small groups of medium to large native trees that are widely spaced, with expanses of 

herbaceous vegetation and coarse woody debris, to provide for soil productivity, traditional uses 

(e.g., piñon nut gathering), and wildlife needs, such as foraging habitat for at-risk species, 

migratory birds, and other piñon-juniper obligate species.

2 Treatments in the piñon-juniper woodland vegetation community should avoid creating a sharp, 

well-defined edge between dense woodlands and recovered shrublands, to provide foraging 

habitat of at-risk species. 

3 Grassland soil inclusions (Mollisols) should be managed towards montane and subalpine 

grasslands vegetation community desired conditions, to protect soil function and provide forage. 

4 If slash is scattered, it should be at a height that still allows big game movement.

At-risk Species for Piñon-Juniper Woodland

 American peregrine falcon

 Pinyon jay

 Pale Townsend’s big-eared bat

 Spotted bat

 Chaco milkvetch

 Chama blazing star

 Pagosa milkvetch

 Ripley’s milkvetch

 Tufted sand verbena (Canjilon Ranger District) 

Related Plan Content for Piñon-Juniper Woodland

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species, Grassland Maintenance 

Management Area

Piñon-Juniper Sagebrush (VEG-PJS) 

Piñon-juniper sagebrush is a transitional vegetation community, spanning conditions between wetter, 

higher elevation (piñon-juniper woodland vegetation community) and the lower elevation sagebrush 
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shrubland vegetation community. The piñon-juniper sagebrush vegetation community occurs on over 

217,000 acres of the Carson, between 5,900 and 7,500 feet. It is found on every ranger district. The twoneedle piñon pine and Rocky Mountain juniper overstory is open, with trees occurring as individuals or in 

small, often even-aged clumps. Some Utah juniper is found in the southern Tres Piedras and El Rito 

Ranger Districts. Cover in the understory is between 6 and 25 percent big sagebrush, with a limited 

herbaceous layer concentrated in canopy openings. Blue grama and sideoats grama are common grass 

species.

Piñon pine and juniper are highly valued by local forest-dependent communities for fuelwood, building 

materials, and pine nuts (cultural and provisioning ecosystem services). Openings provide forage for 

livestock and wildlife (cultural and provisioning ecosystem services). Recent bark beetle induced piñon 

pine mortality was greatest at lower elevations and on drier sites, the same areas that favor the piñonjuniper sagebrush over the piñon-juniper woodland vegetation community. Soil function has been 

degraded due to a lack of effective groundcover, less overall organic matter, and changes in species 

composition, resulting in altered soil stability and reduced nutrient cycling. The pinyon jay is dependent 

on piñon pine trees and nuts, and the piñon-juniper sagebrush community provides important habitat for 

game species including elk, deer, and bear.

Beginning in the 1940s through the 1980s, over 50,000 acres of ponderosa pine, piñon pine, and juniper 

trees and sagebrush were converted to grasslands. These conversions were accomplished by plowing, 

chaining, dozer piling, tree crushing, and hand clearing with chainsaws, then seeding to grass (mostly 

crested wheat). The primary purpose of these conversion areas was to increase available forage for wild 

and livestock grazing. Some lands that have the potential to support the piñon-juniper sagebrush

vegetation community are still being managed instead for forage production. Those areas are identified as 

Grassland Maintenance Management Areas, and are managed toward the desired conditions defined for 

that management area.

Piñon-Juniper Sagebrush Desired Conditions (FW-VEG-PJS-DC)

1 Desired seral stage proportions for the piñon-juniper sagebrush vegetation community at the 

landscape scale: 

Class Description Proportion

(%)

Early Non-tree: Recently burned, grass, forb, & shrub types 10

Mid-Open Seedling/sapling and open canopy small trees 25

Mid-Closed Medium to large trees, open canopy 35

Late-Open Small trees, closed canopy 20

Late-Closed Medium to large trees, closed canopy 10

Landscape Scale (1,000 acres or greater)

2 The piñon-juniper sagebrush vegetation community is a mix of trees and shrubs that occurs as a 

series of vegetation states that move from herbaceous-dominated to shrub-dominated to treedominated over time. Trees occur as individuals or in smaller groups ranging from young to old 

across the landscape. Typically groups are even-aged. Piñon pine trees are occasionally absent but 

one or more juniper species is always present. 
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3 The understory is dominated by moderate to high density shrubs depending on successional stage. 

The shrub component consists of sagebrush or a mix of sagebrush and other shrub species, which are 

well-distributed. Shrub canopy is typically closed during the later successional stages. Litter and 

rock compose the greatest proportion of groundcover. Native grasses and forbs are sparse due to 

shrub dominance.

4 Biological soil crusts are present and improve nutrient cycling and stabilize soils, especially on 

sandier soils.

5 Native grass and forb cover are adequate, based on site capability, to protect and enrich soils, as well 

as provide for ungulate grazing.

6 Fires are typically infrequent (fire return intervals of 80-100+ years) and mixed severity (fire regime

III). Stand replacing fire may occur at longer intervals.

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

growth components or as clumps of old growth. Snags and old trees with dead limbs or tops are 

scattered across the landscape. Large deadwood is present. 

8 Older, declining, infested, or diseased trees are a component that provide a source of snags and 

coarse woody debris and are well-distributed throughout the landscape. There are an average of 6 

snags per acre, and coarse woody debris averages 4 tons per acre. 

Mid-Scale (10-1,000 acres)

9 Snags and old trees with dead limbs/tops are scattered, with snags 8 inches and above (diameter at 

root collar) averaging 6 snags per acre, while snags 18 inches and above average 1 snag per acre.

Coarse woody debris averages about 4 tons per acre.

10 The understory is dominated by moderate to high density shrubs with a closed shrub canopy in later 

successional stages.

11 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, feeding or nesting birds, deer, and elk. Gambel oak mast (acorns) 

provides food for wildlife species (e.g. black bear and small mammals). The distribution and 

abundance of oak balances wildfire hazard fuels reduction and tree regeneration with wildlife 

habitat, grazing conditions, age class diversity, and soil condition.

12 In the wildland-urban interface the density of snags, coarse woody debris, live trees, and Gambel oak

may be lower than in the rest of the vegetation community to reduce fire intensity and assist in the 

control of fire. Trees may be younger and more widely spaced, and disturbances (e.g., prescribed fire

and vegetation treatments) may occur more frequently than in areas outside of the wildland-urban 

interface. Crown base heights may be higher than in non-wildland-urban interface areas to reduce the 

potential for fire spreading to the tree canopy.
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Fine Scale (10 acres or less)

13 Trees occur as individuals or in smaller groups ranging from young to old. Typically groups are 

even-aged. The patch size of woodlands ranges from 1 to 10s of acres, and occasionally includes 

patches of even-aged woodland structure, based upon disturbance events and regeneration 

establishment.

14 Piñon pine trees are occasionally absent, but one or more juniper species is always present.

15 Small fires may occur more frequently at the fine-scale, burning single trees or small patches, but 

usually not spreading through shrubs, perennial grasses, and forb groundcover (fire regime III, return 

interval 35-200 years).

16 Rocky features, outcrops of gypseous or limy sandstones, volcanic substrate soils, and Mancos Shale 

soils provide habitat within the capacity of the vegetation community for at-risk species. 

Piñon-Juniper Sagebrush Standards (FW-VEG-PJS-S)

1 On non-grassland soils in the piñon-juniper sagebrush community, seral grasslands created by 

previous vegetation treatments shall be managed toward restoration of piñon-juniper sagebrush

desired conditions unless they are in a Grassland Maintenance Management Area. 

Piñon-Juniper Sagebrush Guidelines (FW-VEG-PJS-G)

1 Vegetation community inclusions with Mollisol soils should be managed toward montane and 

subalpine grassland desired conditions, to protect soil function and provide forage. 

2 If slash is scattered, it should be at a height that still allows big game movement.

3 Treatments in the piñon-juniper sagebrush vegetation community should avoid creating a sharp, 

well-defined edge between dense woodlands and recovered shrublands, to provide foraging 

habitat of at-risk species.

4 Treatments in the piñon-juniper sagebrush vegetation community should leave key habitat 

features (i.e., roosting trees, snags, partially dead or dying trees, large trees, or downed logs) and 

single or small groups of medium to large native trees that are widely spaced, with expanses of 

shrubs and coarse woody debris, to provide for soil productivity, traditional uses (e.g., piñon nut 

gathering), and wildlife needs, such as foraging habitat for at-risk species, migratory birds, and 

other piñon-juniper obligate species.

At-risk Species for Piñon-Juniper Sagebrush

 American peregrine falcon

 Pinyon jay

 Spotted bat

 Chama blazing star (Canjilon and El Rito Ranger Districts)

 Ripley’s milkvetch (Tres Piedras, Questa, and Camino Real Ranger Districts)
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 Tufted sand verbena (Canjilon Ranger District) 

Related Plan Content for Piñon-Juniper Sagebrush

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species, Grassland Maintenance 

Management Area

Sagebrush (VEG-SAGE) 

The sagebrush vegetation community only occurs in significant amounts on the Jicarilla Ranger District 

and the southern portion of the Tres Piedras Ranger District. It covers 59,144 acres on the Carson, but is 

common on the lower elevation land adjacent to the Carson. Many communities that were historically 

grasslands have been invaded by sagebrush shrubs, both on and outside the Carson. Sagebrush in northern 

New Mexico is at the southern edge of its range, and temperature and available moisture limit the amount 

of grass cover in the understory. Big sagebrush is the dominant species in this vegetation community, with 

less than 10 percent tree cover and few other shrub species present. Grama grass species occur sparsely. 

Historically, fires burned as frequently as every 35 years and maintained both treeless shrub states and 

large grass dominated interspaces.

Although sagebrush is a common species on the landscape surrounding the Carson, its range has shifted 

as trees encroach on shrublands and shrubs encroach on grasslands. The sagebrush vegetation community

is defined by climate and soils that historically favored sagebrush over either trees or grasslands. SAGE

on the Carson, particularly on the Tres Piedras Ranger District, has uniquely low departure in the context 

landscape. The Carson plays a significant role in the sustainability of the sagebrush vegetation community

in the broader landscape and may provide an important refuge for dependent organisms. A majority of 

soils in the sagebrush vegetation community are in unsatisfactory condition, altering soil stability and 

reducing nutrient cycling. A lack of effective vegetation groundcover contributes to this soil condition, 

and also provides less forage for livestock and lower quality habitat for wildlife. The sagebrush vegetation 

community is important for the western burrowing owl, the black-footed ferret, and Gunnison’s prairie 

dog. Sagebrush is collected for medicinal and ceremonial purposes (a cultural ecosystem service). 

Sagebrush Desired Conditions (FW-VEG-SAGE-DC)

1 Desired seral stage proportions for the sagebrush vegetation community at the landscape scale: 

Class Description Proportion

(%)

Early Recently burned, all herb types 15

Late-Closed Shrub, closed canopy 30

Late-Open Shrub, open canopy 55

Tree All tree types; contemporary landscapes only 0 

2 The composition, structure, and function of biotic and abiotic components of the sagebrush 

vegetation community are within or moving toward reference conditions. The majority of sagebrush 

is in mid-seral or mature states.

3 Shrub cover and the distribution of large contiguous shrub patches meet the needs of a variety of 

sagebrush obligate wildlife species, as described in these desired conditions. 
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4 A vigorous, though not necessarily dense, understory community of native grasses and forbs is 

present.

5 Biological soil crusts are present and improve nutrient cycling and stabilize soils, especially on 

sandier soils.

6 Single trees or groups of trees cover less than 10 percent of any sagebrush vegetation community

terrestrial ecosystem unit polygon and less than 5 percent of the vegetation community as a whole.

7 Shrub cover is 20 to 50 percent of any sagebrush vegetation community terrestrial ecosystem unit

polygon.

8 Stand replacing fires burn every 35-200 years (fire regime III). 

9 Soil condition, as defined by basic soil functions (e.g., stability, soil hydrology, and nutrient cycling), 

has the capacity to support the diversity of associated species and at-risk species. 

At-risk Species for Sagebrush

 Black-footed ferret

 American peregrine falcon

 Western burrowing owl

 Gunnison’s prairie dog

 Spotted bat

 Ripley’s milkvetch (Tres Piedras, Questa, and Camino Real Ranger Districts)

 Tufted sand verbena (Canjilon Ranger District) 

Management Approaches for Sagebrush

1. Consider vegetation management activities in the sagebrush vegetation community (e.g., chemical 

application, mowing, disking, and burning), to enhance shrubland diversity, distribution, and 

productivity to support wildlife.

Related Plan Content for Sagebrush

Watersheds and Water, Wildlife, Fish, and Plants, Nonnative Invasive Species
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Soil Resources (SL)

Soil is the crucial area of unconsolidated mineral and organic material where organic matter accumulates 

and decomposes. It is the zone of maximum biological activity and nutrient release and is the basis of the 

terrestrial ecosystem. Soil performs four important functions–as a medium for plant growth; as a means of 

water storage, supply, and purification; in modification of the earth’s atmosphere through carbon storage 

and other means; and as habitat for organisms that decompose organic matter (supporting and regulating 

ecosystem services). 

The physical and chemical characteristics of soils are vulnerable to forest management activities and other 

disturbance. Physical characteristics are surface structure, bulk density, infiltration, erosion, and surface 

horizon. Impacts to these characteristics may be compaction, erosion, rutting, and loss of the surface 

horizon. Chemical characteristics include nutrient cycling and soil composition. Impacts to the chemical 

aspect of soil may result from changes in vegetation community composition, litter loss, lack of coarse 

woody material, and atmospheric deposition.

Soils are variable on the Carson and range from relatively hot, dry desert soils at the lowest elevations to 

cold, moist soils found in the alpine tundra vegetation community at the highest elevations. Soils are 

inventoried and classified into terrestrial ecosystem units by the Terrestrial Ecosystem Survey for the 

Carson National Forest (USDA FS Carson 1987). 

Soil condition or soil quality is rated based upon the ability of soils to sustain biological health and 

productivity, maintain environmental quality, cycle nutrients, and infiltrate water. From 40 to over 70

percent of montane and subalpine grasslands and lower elevation vegetation communities of the Carson

have soil conditions that are unsatisfactory. Soil conditions in the upper elevation spruce-fir forest, 

bristlecone pine, and mixed conifer vegetation communities are mostly satisfactory. In addition, naturally 

unstable geology (e.g. unconsolidated metavolcanics and slow geologic landslides) contributes to 

sediment loads in downstream rivers.

Soil Resources Desired Conditions (FW-SL-DC)

1 Soil productivity, function, and inherent physical, chemical, and biological processes remain intact 

or are enhanced. Soils can readily absorb, store, and transmit water vertically and horizontally; 

accept, hold, and release nutrients; and resist erosion.

2 Logs and other woody material are distributed across the soil surface to maintain soil productivity

and key habitat features. 

3 Vegetation, woody debris, and litter are distributed across the soil surface in adequate amounts to 

limit accelerated erosion and contribute to soil deposition and development.

4 Relatively undisturbed biological soil crusts (i.e., soil consisting of cyanbacteria, lichens, mosses, 

and algae organisms) are present or reestablished where the potential exists.

5 Soil productivity is not inhibited by nonnative invasive plant species.

6 Soils are free from anthropogenic contaminants that could alter ecosystem integrity or affect public 

health.

7 Volcanic substrate soils and Mancos Shale soils where present provide habitat within the capacity of 

the vegetation community for at-risk species. 
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Soil Resources Guidelines (FW-SL-G)

1 Ground-disturbing management activities should be designed to minimize short- and long- term 

impacts to soil resources (e.g., soil compaction and soil loss). Where disturbance cannot be 

avoided, project specific soil and water conservation practices should be developed.

2 Soil compaction from all management activities should not affect ecological and hydrological 

functions.

3 Masticated material should not exceed an average depth of 4 inches, to mitigate burn severity 

and protect soil function. 

Related Plan Content for Soil Resources

All affected vegetation communities, Watersheds and Water, Sustainable Rangelands and Livestock 

Grazing, Sustainable Forestry and Forest Products, Recreation, Transportation and Forest Access, and 

Minerals and Mining.
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Watersheds and Water (WSW) 

Watersheds produce water that flows and collects as surface water or infiltrates into groundwater. Water 

from the Carson supports many uses throughout New Mexico, and further downstream (provisioning 

ecosystem services). Streams, springs, lakes, and other natural waters are centers of high biological 

diversity in arid landscapes, and their ecological health 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 Carson are dependent on these limited and scattered resources. 

Collectively, surface waters contribute to connectivity for wildlife across the landscape; local and urban 

potable water supplies; agricultural uses (including livestock watering and irrigation); and recreation

(provisioning and cultural ecosystem services). Water in arid northern New Mexico also has important 

traditional cultural significance (cultural ecosystem services) and will only become more vital in the 

future with additional pressures from predicted changes in climate patterns and continually increasing 

demands from growing urban populations. 

The Carson is an important source of groundwater recharge (regulating ecosystem service). It sits above 

three state declared groundwater basins – the Canadian, Rio Grande, and San Juan. All groundwater in 

northern New Mexico originates as infiltrating precipitation. Surface water from each basin supplies both 

shallow and deep geologic aquifers. Two deep aquifer systems area connected with the Carson, the Rio 

Grande aquifer and the Colorado Plateau aquifer. Groundwater is used on NFS and surrounding lands for 

many purposes, including drinking, waste disposal, domestic use, livestock and wildlife watering, and to 

supply Forest Service facilities. 

Lands within the Carson form the headwaters of numerous rivers and streams that flow into the Rio 

Grande, Rio Chama, San Juan River, and Canadian River (provisioning ecosystem services). Because of 

human demand for water resources and other human land uses, watersheds, and aquatic ecosystems have 

been altered from their reference condition. While the location of stream channels is generally unchanged, 

diversion into acequias has changed the hydrologic, riparian, and agroecosystem function of stream 

systems. On the Carson, these effects primarily occur just at the edge of the forest, but on-forest 

diversions have extensive effects in the irrigated floodplain valleys that are immediately adjacent to the 

forest. Water is dispersed across a wider area and maintains additional riparian systems and agriculture. 

Surface flow from unlined ditches and irrigated fields seeps into groundwater and contributes to aquifer 

recharge and delayed return flow to streams.

Acequias provide cultural and provisioning ecosystem services. They feed water to communal 

agricultural lands, bring families and traditional communities together through the shared work of 

maintaining them, and contribute to a way of life that spans generations.

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 State designated water uses; and reduces threat of flood damage to Forest Service 

infrastructure and downstream values (supporting, provisioning, and regulating ecosystem services). The

Carson intersects 131 6th level hydrologic unit code watersheds. Approximately 20 percent are functioning 

properly, most are functioning at risk. While restoration can restore proper function of many watersheds, 

some of those at risk are likely to remain at risk, due to reduced extent and timing of winter precipitation, 

risk of stand replacing fire events in forested areas, and the effects of projected increased average 

temperatures. 

Some riparian areas surrounding open water are not in properly functioning condition and many streams 

on the Carson are not in full attainment of water quality standards. According to the 2016-2018 State of 
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New Mexico Clean Water Act Section 303(d)/30b(b) Integrated Report (NMED 2018) the most common 

cause of impairment is high water temperature, as a result of reduced shading or reduced stream flows

from drought or water diversion. High turbidity nutrient and eutrophication biological indicators, and E. 

coli are also common causes of impairment of streams on the Carson. 

The primary risk to watersheds on the Carson is uncharacteristic wildland fire. Watersheds containing 

departed vegetation types are at higher risk of erosion, sedimentation, and nonnative species invasion 

following uncharacteristic wildland fire, as well as a downstream risk of sedimentation. Northern New 

Mexico has been affected by a drought for the past two decades, causing spring runoff to diminish overall 

and end earlier in the spring. Drought has multiple and interrelated effects on ecological and 

socioeconomic resources and the benefits they provide. The availability of clean and cold water will 

become more threatened in the future with additional pressures from predicted changes in climate patterns

and continually increasing demands.

Priority Watersheds

Priority watersheds have been identified using the Forest Service national watershed condition framework

as areas where plan objectives for restoration focus on maintaining or improving watershed condition. 

These priorities may change over the life of the land management plan and are reevaluated every five 

years to concentrate restoration in other areas, based on (1) broad scale restoration strategies; (2) the 

importance of water and watersheds; (3) the urgency and ability of management action to address threats; 

(4) alignment with other objectives and priorities of the Forest Service and other agencies and 

organizations; (5) ecological values; and (6) impaired ecosystems including those where improvement or 

restoration are necessary to meet regulatory requirements. The USDA Forest Service watershed condition 

and prioritization interactive map will always contain the current watershed condition framework priority 

watersheds and associated information. The plan components and management approaches for 

Watersheds and Water (including subsections) apply to all watersheds, including the priority watersheds.

Outstanding National Resource Waters

Outstanding national resource waters are streams, lakes and wetlands that receive special protection 

against degradation under New Mexico’s water quality standards and the Federal Clean Water Act. They 

are designated by the State of New Mexico Water Quality Control Commission. The Surface Water 

Quality Bureau’s website identifies the most current list of designated outstanding national resource 

waters in the State of New Mexico. On the Carson, outstanding national resource waters designations 

include the West, Middle, and East Forks of the Rio Santa Barbara (Camino Real Ranger District), all 

surface waters within Valle Vidal (Questa Ranger District), and all perennial streams, lakes, and wetlands 

within the Carson’s six wildernesses. 

Outstanding national resource waters receive the highest level of protection under the New Mexico's 

Water Quality Standards, which establish designated uses for water bodies, set criteria to protect those 

uses, and establish provisions to preserve water quality. Outstanding national resource waters are subject 

to the same water quality criteria as other waters with the same designated uses; however, outstanding 

national resource waters receive additional protection aimed at preserving water quality. Degradation of 

water quality is not allowed in outstanding national resource waters except under very limited 
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circumstances.7 Where water quality meets or exceeds standards, that higher water quality must be 

protected. Nonpoint sources of pollution in these areas must be minimized and controlled through the use 

of best management practices. Land use activities that predate outstanding national resource waters

designation, including grazing, are allowed to continue, but are controlled using best management 

practices, and stocking rates will be evaluated and adjusted to ensure proper range management and 

protection of water quality.

Watershed and Water Desired Conditions (FW-WSW-DC)

1 Watersheds are functioning properly8 in that they exhibit high geomorphic, hydrologic, and biotic 

integrity relative to their potential condition.

2 Ecological components (e.g., soil, vegetation, and fauna) are resilient or adaptive to disturbances, 

including human activities, changes in climate patterns, and natural ecological disturbances (e.g., 

fire, drought, flooding, wind, grazing, insects, disease, and pathogens) and maintain or improve 

water quality and riparian and aquatic species habitat.

3 Soils, riparian areas, and watersheds sustain groundwater quantity and quality, and recharge in 

aquifers. The water table is maintained at a level that sustains native riparian and aquatic vegetation, 

high productivity, and soil moisture characteristics. 

4 Aquatic habitats are connected and free from alterations (e.g., temperature regime changes, lack of 

adequate streamflow, and constructed barriers to aquatic organism passage) to allow for species 

migration, connectivity of fragmented populations and genetic exchange. A constructed barrier to 

movement exists only to protect native aquatic species from nonnative aquatic species or for

agricultural benefit (e.g., headgates). 

5 Aquatic and riparian habitats support self-sustaining populations of native fish, as well as other 

aquatic and riparian species, and provide the quantity and quality of aquatic and riparian habitat 

within reference conditions. 

6 Watersheds support multiple uses (e.g., timber, recreation and grazing) with no long-term decline in 

ecological conditions. Short-term impacts occur only when they serve to improve conditions over the 

life of the plan.

7 Surface water and groundwater quality meet State water quality standards for designated uses.

 

7 Per current New Mexico State Regulations, approved piscicide application and acequia operation, maintenance, and repairs are 

not subject to outstanding natural resource water requirements. Degradation resulting from characteristic wildfire in an 

outstanding natural resource water is part of the essential character of an outstanding natural resource water. Other

management activities may result in temporary and short-term changes in water quality, when those activities have been 

allowed by the State or are necessary to mitigate an immediate threat to public health or safety. Anytime the State allows 

temporary degradation, all practical means of minimizing such degradation must be implemented. Actions that mitigate an 

immediate threat to public health or safety must be communicated to the New Mexico Environment Department in writing 

within 7 days of initiation of the action and a summary of the action taken will be provided within 30 days of initiation of the 

action. 

8

 According to the watershed condition framework or similar current protocol. 
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Watershed and Water Objectives (FW-WSW-O)

1 Improve or maintain watershed function on at least 5,000-10,000 acres annually. Treatments 

align with priority watersheds.

Watershed and Water Guidelines (FW-WSW-G)

1 For all management activities applicable best management practices9 should be identified and 

implemented, to maintain water quality, water quantity, and timing of flows, and prevent or 

reduce accelerated erosion.

2 New or rerouted roads, infrastructure, and recreation sites, or similar constructed facilities 

should not be located within 300 feet of water resource features, except where necessary for 

stream crossings or to provide for resource protection to avoid the long-term adverse impacts 

associated with the occupancy and modification of floodplains and water resource features.

3 Meadow management should consider patterns of recharge and discharge and minimize 

disruptions to groundwater levels that are critical for wetland integrity.

4 New groundwater wells, particularly those in riparian management zones (e.g., along streams, 

around seeps, springs, lakes, and wetlands), should be located to minimize effects on the 

character and function of connected water resources. 

Management Approaches for the Watersheds and Water

1. Consider completing watershed restoration action plans or similar process for priority watersheds.

2. Consider including quantitative analysis of pollutant sources and pollutant load reductions in 

watershed restoration action plans when feasible.

Riparian Management Zones (WSW-RMZ) 

Riparian management zones include those portions of watersheds around lakes, perennial and intermittent 

streams, and open water wetlands that have characteristic riparian vegetation and provide riparian 

function. The riparian ecosystem within that zone encompasses any surface water and its associated 

aquatic habitat, connected shallow groundwater, aquatic and riparian vegetation, associated soils (i.e., 

hydric and alluvial), and contributing fluvial landforms.

Southwestern riparian ecosystems are dynamic habitats that border streams, springs, ponds, lakes or 

occupy other wet areas, such as wetlands, cienegas, fens and bogs. They occur within all terrestrial 

vegetation communities and are the interface between the terrestrial uplands and open water. They include 

water dependent plants near the water’s edge and often transition to a combination of upland and riparian 

species as distance from water increases, which adds significantly to their ecosystem diversity. Riparian 

vegetation may vary widely depending on amount, timing, and source of water, as well as biophysical 

characteristics (e.g., salinity and gradients in saturated soils). Riparian areas are more productive than 

other vegetation communities in terms of plant and animal biomass per acre. As a result, they provide 

some of the most important habitat on the Carson and in the Southwest (supporting ecosystem service). 

 

9 As defined by the National Core Technical Guide for best management practices, the Southwestern Region Soil and Water 

Conservation Handbook, or other best available scientific listings of soil and water best management practices.
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Healthy riparian areas slow water movement that raises the water table and saturation zone and recharges 

aquifers (regulating ecosystem services). Riparian zones protect streams from excessive sedimentation, 

erosion, and pollution, and, thus, play a role in water quality (regulating and provisioning ecosystem 

services). They provide shelter and food for aquatic animals and shade that is important for water 

temperature regulation (supporting and provisioning ecosystem services). They dissipate stream energy 

which can reduce flood damage (regulating ecosystem service). They provide wildlife habitat, increased 

biodiversity, and wildlife connectivity, enabling aquatic and riparian organisms to move along river 

systems and thus preventing community isolation and fragmentation (supporting ecosystem service). 

They are a source of large woody debris recruitment. Soils in riparian ecosystems play a key role in 

nutrient and water storage and distribution (regulating and supporting ecosystem services). There is not 

specific information for the each of these aspects, so plan components were developed using the “proper 

functioning condition” concept. In this way, managers can achieve desired conditions for each riparian 

area according to its potential or capability, which supports higher ecological functions such as habitat.

Natural disturbances in stream ecosystems include animals (e.g., beavers), flooding, and changing 

climatic conditions (e.g., extended drought). The seasonality and quantity of water in floods are key 

factors in the germination and establishment of riparian vegetation. Fire is an infrequent disturbance and 

is dependent on the fire regime in adjacent vegetation communities. Historically on the Carson as in most 

of the Southwest, riparian areas have been influenced by water withdrawal (from private water rights),

roads and motor vehicle activity, recreation pressure, and animal grazing, which can all impact riparian 

ecosystem function. As a result of some of these activities, there is also a higher influx of invasive species 

found with riparian areas.

Riparian Management Zone Desired Conditions (FW-WSW-RMZ-DC)

1 Riparian ecosystems are not fragmented or constrained and are and properly functioning; within their 

type and capability, riparian ecosystems have vegetation, landform, large coarse woody debris, litter, 

and root masses to capture sediment, filter contaminants, dissipate stream energy and overland flow 

from uplands to protect and enrich soils and stabilize banks and shorelines.

2 Riparian vegetation, particularly native species, support a wide range of vertebrate and invertebrate 

animal species. There is adequate recruitment and reproduction to maintain diverse native plant 

species composition indicative of the soil moisture conditions for the site. 

3 Native obligate wetland species dominate herbaceous bank cover.

4 Riparian vegetation (density and structure) provides site-appropriate shade to regulate water

temperature in streams.10

5 Riparian ecosystems exhibit connectivity between and within aquatic, riparian, and upland 

components that reflect their natural linkages and range of variability. Stream courses and other links 

provide habitat and movement that maintain and disperse populations of riparian-dependent species, 

including beaver. Riparian areas are connected vertically between surface and subsurface flows. 

 

10 Based on New Mexico State water temperature thresholds, riparian vegetation community desired conditions, and terrestrial 

ecosystem unit inventory.
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6 Floodplains and adjacent upland areas provide diverse habitat components (e.g., vegetation, debris, 

logs) necessary for migration, hibernation, and brumation (extended inactivity) specific to the needs 

of riparian-obligate species. 

7 Compared to surrounding uplands, riparian corridors have characteristics (e.g., surface water and 

saturated soils) that reduce the frequency and severity of fire. Fire is limited or absent. Fire that 

occurs is typically smoldering and of low intensity. High to mixed severity fire occurs very 

infrequently.

8 Natural disturbances (e.g., flooding and scouring) promote a diverse vegetation structure necessary 

for the recruitment of riparian-dependent species. The ecological function of riparian areas is 

resilient to other disturbance, including animal and human use, drought, and changes in climate 

patterns. 

9 Within the capability of individual wetland types and consistent with the hydrologic cycle, wetland 

vegetation provides life cycle habitat needs for native and desirable nonnative, obligate riparian, and 

aquatic species and supports other wildlife. 

Riparian Management Zone Objectives (FW-WSW-RMZ-O) 

1 Restore structure and function of at least 200 - 300 acres of nonfunctioning and functioning-atrisk riparian areas annually. Treatments align with priority watersheds.

Riparian Management Zone Guidelines (FW-WSW-RMZ-G)

1 Riparian management zones should be defined by either a site-appropriate delineation of the 

riparian area or a minimum buffer of 100 feet from the edge of all perennial streams and lakes. 

The exact width of riparian management zones may vary based on ecological or geomorphic 

factors or waterbody type, but includes those areas which provide riparian and aquatic 

ecosystem functions and connectivity.

2 Within riparian management zones, management activities, permitted uses, and structural 

developments (e.g., livestock water gaps, pipelines, or other infrastructure) should occur at 

levels or scales that move towards desired conditions for water, soils, and vegetation. 

Management activities and facilities with a small footprint (e.g., intermittent livestock crossing 

locations, water gaps) may be necessary to manage larger scale impacts to riparian areas or to 

protect life and property. 

3 To protect riparian function, the use of motorized equipment should be avoided in riparian 

management zones, except when there is a designated stream crossing or when short-term uses 

are required to improve resource conditions and maintain infrastructure.

4 To protect water quality and aquatic species, refueling, maintaining equipment, and storing fuels 

or other toxicants should not occur in riparian management zones.

Related Plan Content for Riparian Management Zones 

Streams, Wetland Riparian, and Forest and Shrub Riparian
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Streams (WSW-RMZ-STM)

Stream ecosystems have flowing water and include rivers, creeks, streams, and their associated riparian 

vegetation zones and flood plains. There are microhabitats, such as riffles, pools, and backwaters. They 

provide unique habitats for plants, animals, and micro-organisms that are specialized to live in and around 

water. Stream ecosystems moderate flood events and collect and transport water, sediment, and organic 

material from upslope and upstream (supporting, regulating and provisioning ecosystem services). Lush 

stream corridors and cool water attract campers, hikers, and fishermen (cultural ecosystem services).

Stream ecosystems provide water, forage, shelter, and habitat for nesting, roosting, and bedding and are 

among the most important habitats for wildlife on the Carson. Species that require water for all or part of 

their life cycles (i.e., aquatic and semiaquatic species) are entirely dependent on limited and scattered 

water sources on the Carson. Twenty-seven percent (3 out of 11) of the native fish species on the Carson

are considered species of conservation concern. 

There are three types of streams on the Carson National Forest: ephemeral, intermittent, and perennial. 

They differ in the timing and duration of water flow and corresponding vegetation. Ephemeral streams 

flow for short duration in response to storm events. Intermittent streams flow seasonally, usually in 

response to snowmelt, and may contain perennial pools. Perennial streams flow year-round, though some 

of their flows may be below the surface.

Streams Desired Conditions (FW-WSW-RMZ-STM-DC)

1 Stream ecosystems, riparian zones, and associated stream courses are functioning properly11 and are

resilient to human and natural disturbances (e.g., flooding) and changes in climate patterns. 

Fluctuations in flow promote movement of water, sediment, and woody debris that is within the 

natural range of variability. Flooding creates a mix of stream substrates for fish habitat, including 

clean gravels for fish spawning and sites for germination and establishment of riparian vegetation. 

2 Stream ecosystems, including ephemeral watercourses are not fragmented by infrastructure or 

development, except when the fragmentation serves to protect native aquatic species from nonnative 

aquatic species. Streams provide connectivity important for dispersal, access to new habitats, 

perpetuation of genetic diversity, as well as nesting and foraging for at-risk species. 

3 Aquatic species are able to move throughout their historic habitat including opportunities for 

seasonal and opportunistic movements. Barriers to movement only exist to protect native aquatic 

species from nonnative aquatic species or for agricultural benefit (e.g., headgates). 

4 Streams and their adjacent floodplains are connected and capable of filtering, processing, and storing 

sediment; aiding floodplain development; facilitating floodwater retention; withstanding high flow 

events; and increasing groundwater recharge.

5 Water quality meets or surpasses State of New Mexico water quality standards for designated uses.

 

11 Functioning properly as defined by the Bureau of Land Management’s properly functioning condition protocol or a similar 

metric. 
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6 The quantity and timing of stream flows are sustained at levels that maintain or enhance essential 

ecological functions, including channel and floodplain morphology, groundwater recharge, water 

quality, and stream temperature regulation.

7 Channel type (width/depth ratio, sinuosity, gradient, etc.) is appropriate for the landscape setting 

(i.e., landform, geology, bioclimatic region). Stream channels are vertically stable.

8 Woody and herbaceous overstory and understory regulate stream temperatures and maintain soil 

moisture in the riparian zone.

9 Habitat conditions, as described in stream desired conditions, are capable of supporting selfsustaining native aquatic species populations. These habitat conditions include stream characteristics 

(i.e., riffles, runs, pools, and channel meandering) that allow for natural processes to occur (e.g., 

floodplain connectivity and organic matter and sediment transport). Quality aquatic habitat is 

provided by overhanging banks, woody and herbaceous overstory, and instream large woody debris, 

to regulate stream temperatures, maintain soil moisture, create structural and compositional 

diversity, and provide cover, food, and water for riparian species along streams.

10 In forested streams, large woody debris consists of greater than 30 pieces per mile, greater than 12 

inches in diameter, and greater than 35 feet in length.

11 Ungulate trampling does not significantly increase soil bulk density between years; change the 

structure of the plant community; or impede geomorphological development of streambank-channel 

geometry.

Streams Objectives (FW-WSW-RMZ-STM-O)

1 Restore or enhance at least 100 - 150 miles of stream habitat, during each 10-year period 

following plan approval.

2 Repair at least 2 road/stream crossings every 5 years at locations where chronic sedimentation 

causes are found. For example, up-size culverts, reduce sediment delivery to waterways from 

roads, or realign stream constraining road segments. Give precedence to road crossings that are 

causing unacceptable road damage.

Streams Standards (FW-WSW-RMZ-STM-S)

1 Management activities in and around streams shall use decontamination procedures to prevent 

the spread of non-desirable fungus, disease, nonnative and invasive biota.

2 Heavy equipment and vehicles used for instream management activities shall be free of 

petroleum-based fluid residue and not leak.
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Streams Guidelines (FW-WSW-RMZ-STM-G)

1 Management of streams should include adequate vegetation cover12and width-to-depth ratio to 

move toward State of New Mexico standards for stream water temperatures. 

2 Downed woody material in stream channels should be retained, to improve channel morphology, 

except where safety is a concern.

3 Streambed should contain less than 20 percent fines (sand, silt, clay) in riffle habitat, to maintain 

fish spawning. 

4 Streambanks should be less than 10 percent unstable (lineal streambank distance), to reduce 

erosion and sedimentation. 

At-risk Species for Streams

 Northern leopard frog

 Rio Grande cutthroat trout

 Rio Grande chub

 Rio Grande sucker

Related Plan Content for Streams

Riparian Management Zones, and Watersheds and Water

Waterbodies (WSW-RMZ-WB)

Waterbodies include lakes, ponds, and reservoirs. They store water and support recreation and fisheries

(regulating and cultural ecosystem services). They provide unique habitats for plants, animals, and microorganisms that are specialized to live in and around water. Together with their associated riparian 

ecosystems they are among the most important habitats for wildlife on the Carson, providing water, 

forage, shelter, and habitat for nesting, roosting, and bedding. Species that require water for all or part of 

their life cycle (i.e., aquatic and semiaquatic species) are entirely dependent on the limited and scattered 

water resources on the Carson. Many smaller waterbodies on the Carson are constructed or modified, 

which improves water availability for livestock and wildlife (provisioning ecosystem services), but 

impounds water that would otherwise supply perennial or intermittent streams.

Waterbodies Desired Conditions (FW-WSW-RMZ-WB-DC)

1 Lakes, natural ponds, and their associated wetlands have the necessary soil, water, and vegetation 

attributes (e.g., diverse age classes and diverse composition of native plant species) to be resilient to 

human and natural disturbances and changing climate conditions across the landscape. 

2 Waterbodies support native biotic communities. In other words, there is adequate riparian vegetation 

and large woody debris to provide ecological conditions necessary for persistence. Consistent with 

site capability, native vegetation around lakes and ponds exhibits various age classes and diverse 

 

12 Based on New Mexico State water temperature thresholds, and density and structure defined by riparian vegetation community 

desired conditions, and terrestrial ecosystem unit inventory.
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composition of native species (e.g., grasses, forbs, sedges, shrubs, and deciduous trees) and includes 

species that indicate maintenance of riparian soil moisture characteristics (e.g., sedges, rushes, 

willows, and other riparian vegetation). Vegetation associations are variable depending on waterbody 

size, location, and type and may include aquatic plants or algae, submergent and floating vegetation, 

emergent vegetation, grasses, forbs, sedges, shrubs, and deciduous trees.

3 The physical and biological components of lakes and ponds provide habitat for a diverse community 

of riparian and aquatic species, including cover, forage, available water, microclimate, and nesting or 

breeding habitat.

4 Hydrophytes and emergent vegetation exist in patterns of natural abundance in waterbodies and 

associated wetlands, at levels that reflect climatic conditions. Overhanging vegetation and floating 

plants (e.g., water lilies), exist where they naturally occur.

5 Water quality and quantity of waterbodies meet the needs of designated uses (e.g. livestock watering, 

coldwater aquatic life, irrigation, wildlife habitat), consistent with water rights and site capability.

6 Ungulate trampling does not significantly increase soil bulk density between years or change the 

structure of the plant community around lakes and natural ponds.

Waterbodies Standards (FW-WSW-RMZ-WB-S)

1 Management activities in and around waterbodies shall use decontamination procedures to 

prevent the spread of non-desirable fungus, disease, nonnative and invasive biota.

2 Heavy equipment and vehicles used for management activities in and around waterbodies shall 

be free of petroleum-based fluid residue and not leak.

At-risk Species for Waterbodies

 Northern leopard frog

 Western boreal toad (Tres Piedras and Canjilon Ranger Districts)

 Rio Grande cutthroat trout

 Rio Grande chub

 Rio Grande sucker

Related Plan Content for Waterbodies

Riparian Management Zones and Watersheds and Water 

Springs and Seeps (WSW-RMZ-SNS) 

Seeps and springs occur where groundwater emerges on sloping terrain, toe-slope breaks, and geologic 

formation transition zones. The may contribute to streamflow or infiltrate through the immediate geology 

back to the groundwater (regulating ecosystem services). Seeps are a particular type of spring with low 

flow that filters to the surface through permeable soils and substrates. Springs are highly productive 

habitats what may be in otherwise low productivity arid landscapes. Springs and their associated wetlands 

are frequently more biologically diverse and ecologically stable than surrounding upland ecosystems in 
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73

arid regions, and they may offer biological refugia for some species, particularly those that are narrowly 

endemic (supporting ecosystem services). 

There are multiple types of springs on the Carson that vary based on landform and geology. Examples 

include seeps and hanging gardens. Springs often have important traditional, cultural significance to 

humans inhabiting arid landscapes and provide many cultural and recreational opportunities (cultural 

ecosystem services). Contemporary uses consist of contributions to potable community water supplies 

and agricultural uses, such as livestock watering (provisioning ecosystem services). These uses are vital to 

domestic and commercial interests in and around the Carson (provisioning ecosystem services). Springs 

are also important to tribes and pueblos that have traditionally used lands within the Carson (cultural 

ecosystem services). 

Springs and Seeps Desired Conditions (FW-WSW-RMZ-SNS-DC)

1 Seeps and springs and their associated streams and wetlands are functioning properly13 and have the 

necessary soil, water, and vegetation attributes and are resilient to human and natural disturbances 

(e.g., flooding) and changes in climate patterns. Water flow patterns, recharge rates, and 

geochemistry are similar to historic levels and persist over time.

2 Consistent with site capability, native vegetation around seeps and springs exhibits diverse age 

classes and diverse composition of native species and includes species that indicate maintenance of 

riparian soil moisture characteristics (e.g., sedges, rushes, willows, and other riparian vegetation). 

Vegetation associations are variable depending on seep or spring type and may include aquatic plants 

or algae, submergent and floating vegetation, emergent vegetation, grasses, forbs, sedges, shrubs, 

and deciduous trees.

3 The physical and biological components of seeps and springs provide habitat for a diverse 

community of riparian and aquatic species, including cover, forage, available water, microclimate, 

and nesting or breeding habitat.

4 Hydrophytes and emergent vegetation exist in patterns of natural abundance in springs and 

associated wetlands at levels that reflect climatic conditions. Overhanging vegetation and floating 

plants (e.g., water lilies) exist where they naturally occur.

5 Seeps and springs provide sufficient water to maintain essential ecological functions. 

6 Seep and spring ecosystems are not fragmented by infrastructure or development, consistent with 

valid existing water rights. Springs are rarely developed or altered by human-made structures (e.g., 

head boxes, cisterns, and pipelines) consistent with valid existing water rights.

7 Water quality meets or surpasses State of New Mexico water quality standards for designated uses.

8 Microhabitat condition for bog violet (soggy soils under shrubs and willows) is present, within the 

capability of the vegetation conditions for at-risk species. 

9 Nectar sources of thistle, horsemint, and Joe-pye weed are available for the at-risk species. 

 

13 Functioning properly as defined by the Bureau of Land Management’s properly functioning condition protocol or similar 

metric.
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Springs and Seeps Objectives (FW-WSW-RMZ-SNS-O)

1 Improve or maintain function of at least 10 - 20 individual springs, during each 10-year period 

following plan approval.

Springs and Seeps Standards (FW-WSW-RMZ-SNS-S)

1 Management activities in and around seeps and springs shall use decontamination procedures to 

prevent the spread of non-desirable fungus, disease, nonnative and invasive biota.

Springs and Seeps Guidelines (FW-WSW-RMZ-SNS-G)

1 Spring recharge areas, where known, should be managed to maintain or improve spring 

discharge.

At-risk Species for Springs and Seeps

 Nokomis fritillary butterfly

Related Plan Content for Springs and Seeps

Riparian Management Zones and Watersheds and Water

Wetland Riparian (WSW-RMZ-WR)

Wetland riparian vegetation communities include open water wetlands, slope wetlands, marshes, wet 

meadows, cienegas, bogs, and fens. Wetland riparian is extensive and inclusive, occurring at nearly all 

elevations on the Carson. It supports a wide diversity of riparian and wetland herbaceous species that can 

vary widely with elevation, water availability, as well as biophysical characteristics (i.e., gradient, 

salinity), but sedges and rushes are particularly important to system function.

14 It is most common in 

wide, low gradient meadows, where the water table is seasonally high, soils are saturated, and trees or 

shrubs are mostly absent. The prevalent vegetation and aquatic life require saturated or seasonally 

saturated soil conditions (i.e., hydric soil) for growth and reproduction. Wetland riparian vegetation 

communities on the Carson may be connected to groundwater or completely reliant on precipitation as its 

water source. Wetlands may be permanent, seasonal, temporary, or ephemeral. Wetland riparian

vegetation communities provides water storage, wildlife habitat, recreation, fisheries, and livestock 

watering (regulating, provisioning, and cultural ecosystem services). Drought and flooding are the 

primary natural disturbances and standing water and vegetation can fluctuate widely from basically 

nonexistent during dry periods to highly productive during wet periods. Increasing upland tree cover that 

reduces vegetation cover on upland soils contributes to wetland erosion and sedimentation. Fire is an 

infrequent disturbance but many enter from adjacent vegetation types during dry periods.

Wetland types differ in water permanency, wetland vegetation, and size. Wetlands and marshes associated 

with streams, springs, and waterbodies are part of the riparian management zone for those features and are 

often intermixed with other riparian vegetation. Slope wetlands and wet meadows often occur in a mosaic 

with grassland vegetation communities. Wetlands and marshes associated with streams, springs, and 

waterbodies are part of the riparian management zone for those features and are often intermixed with 

 

14 The wetland riparian vegetation community includes the herbaceous riparian ecological response unit in addition to other 

areas. Wetland riparian does not correspond to any single terrestrial ecosystem unit, but is a minor inclusion in many. Wetland 

riparian species composition cannot be separated from that of the majority of the terrestrial ecosystem unit. 
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other riparian vegetation. Slope wetlands and wet meadows often occur in a mosaic with grassland 

vegetation communities. 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. Cienegas are linear streams 

associated with spring recharge that are primarily herbaceous and do not have woody vegetation. Bogs 

and fens are dominated by peat-forming grasses and mosses and act as carbon sinks since biomass 

production exceeds decomposition.

Wetland riparian provides important habitat for wetland and riparian obligate species, such as Arizona 

willow, masked shrew, and water shrew. Wetlands and cienegas have historic and contemporary 

significance to tribes, pueblos, and traditional communities, due to the cultural value of water and because 

they contain traditionally used resources that are rare on the landscape (cultural ecosystem services). 

Wetland Riparian Desired Conditions (FW-WSW-RMZ-WR-DC)

1 Necessary soil, hydrologic regime, vegetation, and water characteristics of wetland riparian

vegetation communities sustain the system’s ability to support unique physical and biological 

attributes and the diversity of associated species (e.g., shrews and voles). Soils’ ability to infiltrate 

water, recycle nutrients, and resist erosion is maintained and allows for burrowing by at-risk species. 

2 Upland vegetation is not encroaching and the extent of wetlands is widening or has achieved its 

potential extent and is within the natural range of variability. Development of fens continues.

3 Wetlands have groundcover and species composition (richness and diversity) indicative of site 

potential with vegetation comprised mostly of sedges, rushes, perennial grasses, and forbs. Meadows 

with the potential for hardwood shrubs contain a diversity of age classes (at least 2) along the banks 

of perennial streams.

4 Microhabitat condition for bog violet (soggy soils under shrubs and willows) is present, within the 

capability of vegetation conditions for at-risk species. 

5 Nectar sources (e.g., thistle, horsemint, and Joe-pye weed) are available for at-risk species. 

Wetland Riparian Standards (FW-WSW-RMZ-WR-S)

1 Heavy equipment and log decks shall not be staged in wetland areas.

2 In wetland areas, management activities, permitted uses, and structural developments (e.g., 

livestock water gaps, pipelines, or other infrastructure) may only occur when necessary to move 

towards water, soils, and vegetation desired conditions or to protect life and property.

3 The use of motorized equipment shall be avoided in wetland areas, except when there is a 

designated crossing or when short-term uses are required to improve resource conditions and 

maintain existing infrastructure.

At-risk Species for Wetland Riparian

 New Mexico meadow jumping mouse

 Northern leopard frog
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 Western boreal toad (Tres Piedras and Canjilon Ranger Districts) 

 American peregrine falcon

 Nokomis fritillary butterfly

 Masked shrew

 Spotted bat

 Water shrew

 Arizona Willow (Tres Piedras, Questa, and Camino Real Ranger Districts) 

 Robust larkspur

Related Plan Content for Wetland Riparian

Riparian Management Zones and Watersheds and Water

Forest and Shrub Riparian (WSW-RMZ-FSR) 

Forest and shrub riparian vegetation communities occur most frequently in wet drainages that range from 

narrow, steep and confined to low gradient streams with wider floodplains that provide flood terraces. The 

overstory may be shrubby in the case of willow-thinleaf alder sites, or tree dominated with a variety of 

species depending on elevation and site conditions, including spruce, narrowleaf cottonwood, and Rio 

Grande cottonwood. Willow species are common in the understory. Drought and flooding are the primary 

natural disturbances. Fire is an infrequent disturbance but many enter from adjacent vegetation types 

during dry periods and effects are generally less severe than in the surrounding uplands.

Forest and shrub riparian vegetation communities includes multiple ecological response units that may be 

arranged into 3 broad groups; the Cottonwood Group, the Montane-Conifer Willow Group, and the 

Cottonwood Evergreen Group. On the Carson the Cottonwood Group includes the narrowleaf 

cottonwood/shrub and Rio Grande cottonwood/shrub ecological response units. The Montane-Conifer 

Willow Group includes the upper montane conifer/willow, willow-thinleaf alder, and ponderosa 

pine/willow ecological response units. The narrowleaf cottonwood-spruce ecological response unit is the 

only one in the Cottonwood Evergreen Group.

15

Forest and shrub riparian vegetation communities provides important habitat, including breeding and 

migration, for many riparian wildlife and bird species (e.g., masked shrew, water shrew, beaver,

southwestern willow flycatcher, Wilson’s warbler, and yellow-billed cuckoo). Riparian areas have historic 

and contemporary significance to tribes and traditional communities, due to the cultural value of water 

and because they contain traditionally used resources that are rare on the landscape (cultural ecosystem 

services).

 

15 Riparian ecological response units (and thus the forest and shrub riparian vegetation community) do not correspond directly to

terrestrial ecosystem units. The Assessment identified a central terrestrial ecosystem unit for five of the forest and shrub 

riparian ecological response units. The central terrestrial ecosystem unit is the most common ecological response unit and has 

similar species composition: Willow-Thinleaf Alder = terrestrial ecosystem unit map unit number 76; Upper Montane 

Conifer/Willow = terrestrial ecosystem unit map unit number 94; Narrowleaf Cottonwood-Spruce = terrestrial ecosystem unit 

map unit number 90; Rio Grande Cottonwood/Shrub = terrestrial ecosystem unit map unit number 33; Narrowleaf 

Cottonwood/Shrub = terrestrial ecosystem unit map unit number 84.
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Forest and Shrub Riparian Desired Conditions (FW-WSW-RMZ-FSR-DC)

1 Desired seral stage proportions for forest and shrub riparian–Cottonwood Group at landscape scale: 

Class Description

Proportion 

(%)

Early-Open Herbaceous, open shrub cover, or seedling/sapling trees ≥ 16 feet tall (all cover 

classes) 25

Mid-Open Shrub cover ≥ 25%, or small, medium, or large trees, open canopy, ≥ 16 feet tall 50

LateClosed Small, medium, or large trees, closed canopy, ≥ 16 feet tall 25

Novel Upland dominance types and exotic vegetation 0 

2 Desired seral stage proportions for forest and shrub riparian–Montane-Conifer Willow Group at 

landscape scale: 

Class Description

Proportion

(%)

Early Herbaceous, open shrub cover, or seedling/sapling trees ≥ 16 feet tall (all cover 

classes) 65

Mid-Late Shrub cover ≥ 25%, or small, medium, or large trees, all cover classes, ≥ 16 feet

tall 35

Novel Upland dominance types and exotic vegetation 0 

3 Desired seral stage proportions for forest and shrub riparian–Cottonwood Evergreen Group at 

landscape scale: 

Class Description Proportion

(%)

Early Herbaceous, open shrub cover, or seedling/sapling trees ≥16 feet tall (all cover 

classes) 25

Mid Small trees, 16-40 feet tall, all cover classes 55

Late Medium and large trees, ≥ 40 feet tall, all cover classes 20

Novel Upland dominance types and exotic vegetation 0 

4 Riparian forest vegetation provides nesting and foraging habitat for neotropical migrant birds, 

raptors, and cavity-dependent wildlife. 

5 Woody riparian species are reproducing and are structurally diverse with all age classes present at 

the landscape scale. Diverse vegetation structure, including mature trees, snags, logs, and coarse 

woody debris, is present to provide habitat for riparian-dependent species.

6 Coarse woody debris provides habitat and is being adequately recruited to provide a reliable source 

of replacement. 
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7 Upland, dry-site vegetation is not encroaching and the extent of riparian communities is widening or 

has achieved it potential and is within the natural range or variability.

8 Bebb, coyote, red and Arizona willows are reproducing with a range of age classes present, where 

the potential for these species exists.

9 Microhabitat condition for bog violet (soggy soils under shrubs and willows) is present, within the 

capability of vegetation conditions for at-risk species. 

10 Nectar sources of thistle, horsemint, and Joe-pye weed are available for at-risk species. 

11 Moist soil conditions (e.g., thick litter layers, wet areas, coarse woody debris, and decaying debris) 

are maintained and well distributed, within the capacity of the vegetation community for at-risk

species. 

12 Dense willow conditions (70 percent cover or greater) are retained for at-risk species habitat. 

13 Beaver are present and play a role in wetland development and riparian dynamics.

Forest and Shrub Riparian Guidelines (FW-WSW-RMZ-FSR-G)

1 Connectivity within forest and shrub riparian vegetation communities should be restored or 

maintained by protecting ecological functions, tree density and growth, and native understory, to 

reduce the risk of predation and nest parasitism, and to provide habitat for at-risk and other 

wildlife species.

2 Fuelwood cutting or wood removal should be managed to protect understory species, maintain

tree density (including wildlife cover and stream shading), promote large woody material 

recruitment, and avoid channel down cutting and accelerated erosion.

3 Large mature cottonwood trees should be protected from management activities that could 

degrade them as suitable habitat for at-risk species. Projects occurring in these areas should 

incorporate restoration prescriptions, to ensure persistence of this habitat type.

At-risk Species for Forest and Shrub Riparian

 Western yellow-billed cuckoo

 Southwestern willow flycatcher

 New Mexico meadow jumping mouse

 Wilson’s warbler

 Nokomis fritillary butterfly

 Masked shrew

 Water shrew

 Arizona willow (Tres Piedras, Questa, and Camino Real Ranger Districts) 
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 Robust larkspur

Management Approaches for Forest and Shrub Riparian

1. Consider reintroducing beaver, where habitat exists and where they historically occurred but cannot

repopulate naturally.

Related Plan Content for Forest and Shrub Riparian

Riparian Management Zones, and Watersheds and Water
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Caves and Abandoned Mines (CAM)

Caves are natural biophysical features that include any naturally occurring void, cavity, recess, or system 

of interconnected passages beneath the surface of the Earth or within a cliff or ledge that is large enough 

to permit a person to enter, whether the entrance is excavated or naturally formed. This definition includes 

any fissure (large crack), lava tube, natural pit, sinkhole, karst feature or other opening which is an 

extension of a cave entrance or which is an integral part of the cave.

Caves may possess significant features, characteristics, values, or opportunities. Many caves also have 

important traditional cultural significance to tribes and pueblos (cultural ecosystem services). Currently 

(2017) on the Carson, no caves have been identified with significant biological, geological, cultural, or 

recreational value.

Abandoned mines are the remains of former mining operations. The Forest Service’s Abandoned Mine 

Lands program identifies mine features posing a danger to the public, which are prioritized and identified 

for closure or remediation. The classification as abandoned applies when there are no entities or 

individuals left operating the mining activity or who have financial ties to the mine. The significance of 

this classification is that for most abandoned sites there is no money from the original operators available 

to clean up the sites. Although occasionally a responsible party can be found to contribute funds toward 

cleanup, the major burden falls on the Forest Service to finance cleanup and remediation. Cultural 

ecosystem services provided by abandoned mines include history education and recreational mine 

exploring, when safe and appropriate.

Caves and abandoned mines provide specialized seasonal and year-round habitats for a variety of wildlife 

species, including bats, cliff-nesting birds, snails, reptiles, and amphibians (supporting ecosystem 

services). Animal species found in these features include many species of bats and small and large 

mammals as opportunistic users. Bats use caves and abandoned mines as specialized niches for roosting 

and overwintering. Cave ecosystems rely almost entirely on the surface for nutrients. Bats deposit 

considerable amounts of surface nutrients into caves via guano, which can support an entire ecosystem. 

Eighteen bat species are known to regularly use caves or abandoned mines in the American Southwest, 

and New Mexico is home to all of these species. 

Cave and Abandoned Mine Desired Conditions (FW-CAM-DC)

1 Cave and abandoned mine features provide microclimate (temperature and humidity) and geological 

features for associated species (e.g., bats and snakes) that require specialized niches for roosting and 

overwintering.

2 Caves and abandoned mines provide undisturbed habitat for native bat species, particularly in 

locations known to be used for maternity or hibernation roost.

3 Archaeological, geological, and biological features of caves and abandoned mines are not disturbed 

by visitors.

4 Features, characteristics, values, or opportunities for which caves have been designated or nominated 

as “significant” are maintained.
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Cave and Abandoned Mine Guidelines (FW-CAM-G)

1 Caves or abandoned mines that are to be closed should use the most currently recommended 

closure devices, to allow for the continued use of any species determined to be present in the 

cave or abandoned mine. 

2 The most current Forest Service guidance or most recent decontamination procedures should be 

used in caves and abandoned mines to avoid spread of white-nose syndrome 

(Pseudogymnoascus destructans fungus).

3 Management activities (e.g., prescribed fire, thinning) within 100 feet of a cave or abandoned 

mine openings should not affect microclimate conditions by altering vegetation, hydrology, and 

sedimentation, except where necessary to protect associated natural resources or to protect health 

and safety.

At-risk Species for Caves and Abandoned Mines 

 Pale Townsend’s big-eared bat

Management Approaches for Caves and Abandoned Mines

1. Currently, neither the cause nor the transmission of white nose syndrome (WNS) is well understood; 

however, it is known that a cave or abandoned mine environment containing this fungus is infectious 

to certain species of hibernating bats. Consider the development of a response plan for WNS through 

continued collaboration with the U.S. Fish and Wildlife Service (USFWS), Bat Conservation 

International, NM Department of Game and Fish, the National Speleological Society, and others with 

interests in conservation management for bat species. 

2. Consider working with public affairs, recreation, invasive species, minerals staffs; State and other 

Federal agency partners; and the public to internally and externally increase WNS awareness at local 

and regional levels.

Related Plan Content for Caves and Abandoned Mines

Vegetation, Nonnative Invasive Plants, Recreation
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Cliffs and Rocky Features (CRF)

Cliffs and rocky features, which are common in the mountainous West, can be found across a wide 

elevation range spanning cool alpine landscapes to desert environments. Cliffs, rock outcrops, and talus 

slopes are unique habitats that increase topographic and biological diversity. On the Carson, these features 

provide important habitat for Rocky Mountain bighorn sheep, golden eagles, peregrine falcons, marmots, 

and pika. They also support numerous other wildlife and plant species, including rare and narrow 

endemics, such as small-headed goldenweed. Ecosystem services, such as rock art, rock climbing, rock 

hounding, and mineral exploitation, are also associated with these features (cultural and provisioning

ecosystem services). 

Cliff and Rocky Feature Desired Conditions (FW-CRF-DC)

1 Geological and biological features (e.g., talus slopes and rocky outcrops) of cliffs and rocky features 

provide wildlife and plant habitat, as well as scenic diversity. 

2 Cliff ledges provide cover and nesting habitat for wildlife (e.g., raptors, snakes, bats, birds, bighorn 

sheep, and small mammals).

3 Rocks and rocky areas promote seedling germination and habitat conditions for wildlife and plant 

species. 

Cliff and Rocky Feature Guidelines (FW-CRF-G)

1 Management activities affecting rockslides and talus slopes should maintain habitat and unique 

components (e.g., denning spaces and substrate) for wildlife (e.g., small mammals, lizards, 

snakes, rare plants, and land snails), to maintain the persistence or contribute to the recovery of 

at-risk species, unless they are to maintain designated road or trail access or protect public 

safety.

2 Rock climbing and related recreation activities should not disrupt the life processes of cliff or 

rocky feature at-risk species (e.g., American peregrine falcon, spotted bat, and small-headed 

goldenweed), diminish the function of specialized vegetation (e.g., mosses, lichens, and small 

headed goldenweed), to maintain the persistence or contribute to the recovery of at-risk species. 

3 Permanent fixed anchors for rock climbing should be allowed only by prior written 

authorization, if demonstrated impacts to at-risk species, scenic integrity, cultural resources, or

user-conflict concerns have been communicated to the public. 

4 Where recreation or other management activities have the potential to trample known 

populations of at-risk plant species, signs should be posted educating the public to stay on 

designated trails, to maintain the persistence or contribute to the recovery of at-risk species. 

At-risk Species for Cliffs and Rocky Features 

 Mexican spotted owl 

 American peregrine falcon

 Pale Townsend’s big-eared bat
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 Spotted bat

 Chaco milkvetch (Canjilon Ranger District) 

 Chama blazing star (Canjilon and El Rito Ranger Districts) 

 Small-headed goldenweed (Tres Piedras and El Rito Ranger Districts) 

 Tufted sand verbena (Canjilon Ranger District) 

Management Approaches for Cliffs and Rocky Features

1. Consider additional survey efforts, targeted monitoring, and research on life history and habitat needs, 

to fill information gaps on the rare and narrow endemic species that use cliffs and rocky features. 

2. Consider working with public affairs, recreation, invasive species, and minerals staffs; State and other 

Federal agency partners; and the public to internally and externally increase the awareness and 

valuation of these features, especially for threatened, endangered, and species of conservation concern 

(e.g., small-headed goldenweed and peregrine falcon).

3. Consider partnering with volunteers, rock climbing organizations, other government agencies, 

cooperators, and permit holders to help co-manage sustainable rock climbing opportunities, including 

planning, design, implementation, operations, and maintenance of rock climbing areas.

Related Plan Content for Cliffs and Rocky Features 

All affected vegetation communities, Wildlife, Fish, and Plants, Recreation
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Wildlife, Fish, and Plants (WFP)

Species are dependent on the health of their habitats. Species viability is addressed in the plan by 

providing guidance to maintain or enhance habitat elements that are important for species, in addition to 

addressing species-specific threats. Collectively, guidance to address species viability is found in this and 

other sections of this plan that relate to their habitats (e.g., Vegetation and Watersheds and Water). 

The Carson’s diverse ecosystems create a biologically rich landscape that supports a diversity of wildlife, 

fish, and plant populations. The Carson is home to over 2,000 species of vertebrates, invertebrates, plants, 

bryophytes (mosses, hornworts, and liverworts), lichens, and fungi; some of which are at-risk species. Atrisk species consist of (1) federally recognized threatened, endangered, proposed, and candidate species 

and (2) species of conservation concern. Species of conservation concern are species native to, and known 

to occur in, the plan area; and for which there is substantial concern about the species ability to persist in 

the plan area. The Carson currently has six species that are federally listed (USDI FWS 2019) under the 

Endangered Species Act of 1973 (Public Law 93-205). Two of those species have critical habitat 

designated on the Carson. Twenty-six species of conservation concern are found on the Carson. 

Topographical and geological conditions, particularly between the east and west sides of the Rio Grande 

Gorge, provide for variation in wildlife distribution and habitat use. The spatially dissimilar nature of the 

east (Questa and Camino Real Ranger Districts), west (Tres Piedras, El Rito, and Canjilon Ranger 

Districts), and the far west (Jicarilla Ranger District) influences movement patterns of wide ranging 

mammal herds, such as elk, mule deer, and pronghorn.

Streams, springs, groundwater, and constructed waters are centers of high biological diversity in arid 

landscapes, and the ecological health of these resources is important for forest ecosystem sustainability. 

Stream ecosystems provide water, forage, shelter, and habitat for nesting, roosting, and bedding and are 

among the most important habitats for wildlife on the Carson. Species that require water for all or part of 

their life cycles (i.e., aquatic and semiaquatic species) are entirely dependent on limited and scattered 

water sources on the Carson. Collectively, these resources contribute to connecting habitat for wildlife 

across the landscape.

The needs of individual or groups of wildlife species include food, water, and shelter. Adequate habitat 

connectivity is also crucial to daily and seasonal movements, finding mates, being able to use available 

habitat across the landscape, and the ability to find new suitable habitats when landscape conditions 

change. Healthy, diverse vegetation and functioning ecosystem processes help ensure diversity of habitats 

and wildlife, while reducing risks to the sustainability of those habitats and species. In addition, unique 

habitats (e.g., rocky areas, unroaded areas) are necessary to sustain other species.

The Carson is primarily responsible for providing habitat to maintain species diversity on NFS lands. The 

Forest Service has ultimate responsibility over NFS lands, but the NM Department of Game and Fish and 

the U.S. Fish and Wildlife Service (USFWS) are the lead agencies responsible for managing most wildlife 

populations in New Mexico. The USFWS has primary responsibility for managing federally endangered 

and threatened species, as well as migratory birds, while the NM Department of Game and Fish is 

responsible for managing all other protected vertebrates, mollusks, and crustaceans. Terrestrial and 

aquatic species and habitats are managed in conjunction with other resources according to the Multiple 

Use Sustained Yield Act of 1960 (Public Law 86-517). For federally endangered and threatened species 

on the Carson, habitat management and compatible multiple uses are determined in accordance with 

Section 7 of the Endangered Species Act, as amended (Public Law 93-205). 
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Wildlife, fish, and plants on the Carson also provide ecosystem services by contributing to social vitality 

and quality of life and promoting recreational and educational opportunities (cultural ecosystem service). 

The opportunity to hunt, fish, or just commune with nature is a very important tradition for many northern 

New Mexico families and communities, as well as for in-state and out-of- state tourism and recreation 

(cultural and provisioning ecosystem services). Generations of families have participated in these 

activities and they have become part of the social fabric in developing and growing family relationships 

(cultural ecosystem services). Many tribes also rely on wildlife, fish, and plant resources within the 

Carson, for cultural and traditional uses (cultural and provisioning ecosystem services).

Hunting and fishing opportunities are important to many local residents and visitors. The Carson plays a 

valuable role for game and fish management in northern New Mexico. Seven of New Mexico’s 11 big 

game species occur on the Carson. Five of the 10 small game species have abundant habitat on the 

Carson, and there are also opportunities to hunt waterfowl, predators, and furbearers (cultural and 

provisioning ecosystem services). Fishing opportunities on the Carson are abundant (cultural and 

provisioning ecosystem services). The NM Department of Game and Fish manages about seven coldwater 

sport fish species in New Mexico, and the Carson provides angling opportunities for four of them in 

stream and lake habitats. Of the four, the subspecies Rio Grande cutthroat trout is the only native. The 

Carson provides a unique opportunity to fish for native Rio Grande cutthroat trout on 136 miles of stream.

Wildlife, Fish, and Plant Desired Conditions (FW-WFP-DC)

1 Sustainable populations of terrestrial and aquatic plant and animal species, including at-risk species,

are supported by healthy ecosystems, as described by vegetation and watersheds and water desired 

conditions. 

2 Ecological conditions (vegetation and watersheds and water desired conditions) affecting habitat 

quality, distribution, and abundance contribute to self-sustaining populations of terrestrial and 

aquatic plant and animal species, including at-risk species, that are healthy, well distributed, 

genetically diverse, and connected (on NFS lands and to adjacent public and privately conserved 

lands), enabling species to adapt to changing environmental and climatic conditions. Conditions as 

described in vegetation and watersheds and water desired conditions provide for the life history, 

distribution, and natural population fluctuations of the species within the capability of the ecosystem.

3 Ecological conditions (vegetation and watersheds and water desired conditions) provide habitat that 

contribute to the survival, recovery, and delisting of species under the Endangered Species Act; 

preclude the need for listing new species; improve conditions for species of conservation concern; 

and sustain both common and uncommon native species.

4 Habitat conditions (vegetation and watersheds and water desired conditions) provide the resiliency 

and redundancy necessary to maintain species diversity and metapopulations.

5 Habitat connectivity and distribution provide for genetic exchange, daily and seasonal movements of 

animals, and predator-prey interactions across multiple spatial scales, consistent with existing 

landforms and topography. 

6 Habitat configuration and availability and species genetic diversity allow long distance range shifts 

of plant and wildlife populations, in response to changing environmental and climatic conditions.

Barriers to movement may exist to protect native species and prevent movement of nonnative 

species (e.g., a fish structure to protect Rio Grande cutthroat trout from nonnative invasion).
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7 Species are free to extent possible from harassment and human disturbance at a scale that impacts 

vital functions (e.g., breeding, feeding, and rearing young) that could affect persistence of the 

species.

8 Plant communities across the Carson are a mix of native grass, wildflowers, forb, shrub, and tree 

species, with a diverse structure (including snags and large down woody material), diverse 

communities of multiple seral stage, and pattern across the Carson as described in vegetation and 

watersheds and water desired conditions, providing foraging habitat for native pollinator species.

9 Habitats in the forest allow for the maintenance and promotion of interspecific relationships (e.g., 

predator-prey relationships and keystone species relationships).

10 All aquatic and riparian habitats are hydrologically functioning and have sufficient emergent 

vegetation as described in watersheds and water desired conditions or site potential, as well as

macroinvertebrate populations to support resident and migratory species.

11 Risk of disease transmission from permitted domestic sheep or goats to bighorn sheep is low.16

Wildlife, Fish, and Plant Objectives (FW-WFP-O)

1 Restore or enhance at least 50,000 - 150,000 acres of terrestrial wildlife habitat, during each 10-

year period following plan approval. This may be done in conjunction with objectives for 

treatment in the vegetation section.

2 Reconstruct or maintain 20 - 30 existing water developments for wildlife, during each 10 year 

period following plan approval. Improve seep and spring function, when needed and consistent 

with the purpose of the development.

3 Reduce nonnative fish within native fish populations in 4 - 6 stream reaches, during each 10-

year period following plan approval.

4 Improve wildlife or aquatic habitat connectivity by removing unneeded structures (e.g., fences, 

roads, cattleguards, culverts, and spring developments) or completing improvement projects 

(e.g., removing barriers and connecting fragmented habitat) in at least 10 - 20 locations, during 

each 10-year period following plan approval.

5 Complete at least 5 projects to improve habitat connectivity for aquatic and riparian species 

(e.g., remove barriers, restore dewatered stream segments, connect fragmented habitat, wildlife 

passage friendly fences, etc.), during the 10 years following plan approval.

6 Complete at least 30 to 40 products or activities that educate the public, particularly youth, about 

wildlife, fish, and plant resources, during each 10-year period following plan approval. 

Examples of products include educational signs and brochures, website pages, species 

checklists, presentations, and field trips.

 

16 Based on risk of contact models or best available science.
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Wildlife, Fish, and Plant Guidelines (FW-WFP-G)

1 Management activities and special uses occurring within federally listed species habitat should 

integrate habitat management objectives and species protection measures from the most recent 

approved USFWS recovery plan, to maintain the persistence or contribute to the recovery of 

federally listed species. 

2 Where the Forest Service has entered into a signed conservation agreement that provides 

guidance on activities or actions to be carried out by the Carson, those activities or actions 

should be undertaken consistent with the guidance found within the Conservation Agreement, to 

maintain the persistence or contribute to the recovery of federally listed species. 

3 Management activities should avoid disturbance at known active raptor nests and fledging areas, 

to maintain the persistence or contribute to the recovery of at-risk species. Timing restrictions, 

adaptive percent utilizations, distance buffers, or other means of avoiding disturbance should be 

based on the best available information, as well as on site-specific factors (e.g., topography and 

available habitat).17

4 Management activities should avoid disturbance to big game species during birthing season and 

on winter range during the winter period, to maintain the persistence of big game species. 

Management activities should concentrate activities in time and space to reduce impacts to big 

game species. Timing restrictions, adaptive percent utilizations, distance buffers, or other means 

of avoiding disturbance should be based on the best available information, as well as sitespecific factors (e.g., topography, available habitat, etc.).

5 Vegetation treatments that require seeding should use a mix of native plant species, to increase 

plant cover and improve quality and diversity of forage for both wildlife and livestock.

6 To conserve wildlife and fish habitat connectivity, constructed features (e.g., exclosures, wildlife 

drinkers, range improvements, fences, and culverts) should be maintained to support the 

purpose(s) for which they were built. Constructed features should be removed when no longer 

needed, to restore natural hydrologic function and maintain habitat connectivity. 

7 Where known bat use and concentrations of bats occur (e.g., maternity colonies, hibernacula, or 

seasonal roosts), measures to maintain habitat and reduce disturbance by human activities 

through use of seasonal or permanent access restrictions should be used. These habitats generally 

include abandoned mines, caves, bridges, rock crevasses, old buildings, or tree snags.

8 New infrastructure (e.g., fences, roads, facilities, drinkers) should be designed, to improve 

habitat connectivity.

Wildlife, Fish, and Plant Species of Conservation Concern

• New Mexico meadow jumping mouse

• Western yellow-billed cuckoo

• Mexican spotted owl

 

17 Birds known to have established nests near preexisting human activities are assumed to be tolerant of the level of activity 

present when the nest was established.
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• Southwestern willow flycatcher

• Canada lynx

• Black-footed ferret

• Northern leopard frog

• Western boreal toad (Tres Piedras and Canjilon Ranger Districts) 

• American peregrine falcon

• Northern goshawk

• Pinyon jay

• Western burrowing owl

• White-tailed ptarmigan (Questa and Camino Real Ranger Districts) 

• Wilson’s warbler

• Rio Grande cutthroat trout 

• Rio Grande chub

• Rio Grande sucker

• Nokomis fritillary butterfly

• Gunnison’s prairie dog

• Masked shrew

• Pale Townsend’s big-eared bat

• Spotted bat

• Water shrew

• Alpine larkspur (Questa and Camino Real Ranger Districts) 

• Arizona willow (Tres Piedras, Questa, and Camino Real Ranger Districts) 

• Chaco milkvetch (Canjilon Ranger District) 

• Chama blazing star (Canjilon and El Rito Ranger Districts) 

• Pagosa milkvetch (Jicarilla Ranger District) 

• Ripley’s milkvetch (Tres Piedras, Questa, and Camino Real Ranger Districts) 

• Robust larkspur

• Small-headed goldenweed (Tres Piedras and El Rito Ranger Districts) 

• Tufted sand verbena (Canjilon Ranger District) 

Management Approaches for Wildlife, Fish, and Plants

1. Coordinate with the NM Department of Game and Fish (NMDGF), USFWS, adjacent Federal and 

State land managers, and federally recognized tribes regarding listed and native species; 

reintroductions, introductions, or transplants and habitat improvements of listed or native species; 

control or eradication of nonnative species; and the management of sport and native fishes, including 

the identification of refugia for native fish.
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2. Work collaboratively with the USFWS, NMDGF, 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.

3. Consider working collaboratively with federally recognized tribes and pueblos, NMDGF, State

agencies, adjacent Federal land managers, local agencies, USFWS, sportsman’s and conservation 

groups, adjacent landowners, to identify wildlife migration routes forestwide and important habitat to

improve or maintain connectivity for terrestrial species.

4. Consider identifying linkages and barriers to wildlife movements and mitigating impacts during 

project design, by working with NMDGF, NM Department of Transportation, federally recognized 

tribes, Federal, State, and local agencies, Federal and State land managers, private landowners, and 

other organizations.

5. Cooperate with State and Federal wildlife management agencies, to minimize conflicting wildlife 

resource issues related to hunted, fished, and trapped species.

6. Coordinate with the NMDGF, USFWS, sportsman’s groups, the scientific community, and other 

stakeholders regarding information, education, and knowledge gaps as they relate to promoting and 

improving wildlife, fish, and plant resources and management. 

7. Work collaboratively with academia, State and Private Forestry, Forest Service Rocky Mountain 

Research Station, and other groups to fill information gaps related to rare and narrow endemic species 

that use cliffs and rocky features.

8. Coordinate with Federal and State land managers, federally recognized tribes, adjacent landowners, 

and other Federal and State agencies, when proposing management that may impact habitat 

connectivity and to discuss what mitigation may be needed.

9. Consider converting permitted domestic sheep allotments that are within Rocky Mountain bighorn 

sheep occupied habitat18 to permitted cattle allotments.

10. In coordination with NMDGF, consider “dusting” prairie dog colonies with flea-controlling powder to 

reduce the spread of sylvatic plague. When possible identify and potentially avoid burrows occupied 

with burrowing owls prior to application. To increase carrying capacity for put-and-take and wild 

trout fisheries, consider installing stream improvement structures and allowing beaver to build and 

maintain beaver dams. Consider the amounts, arrangements, and condition of natural communities 

and habitats that benefit wildlife during planning by multiple resource areas including range, fire, and 

timber. 

Related Plan Content for Wildlife, Fish, and Plants

All other sections

 

18 As defined by New Mexico Department of Game and Fish or best available science.
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Nonnative Invasive Species (NIS) 

Executive Order 13112 defines an invasive species as any plant or animal species that is nonnative19 (or 

alien) to the ecosystem under consideration, and which introduction causes or is likely to cause economic 

or environmental harm or harm to human health. Invasive species generally possess one or more of the 

following characteristics: aggressive and difficult to manage; poisonous; toxic; parasitic; a carrier or host 

of serious insect or disease; and being nonnative, new, or not common to the United States or parts 

thereof. Invasive species pose an increasing threat to the integrity of ecosystems by decreasing native 

plant and animal diversity, increasing soil erosion and sedimentation, and interfering with natural fire 

regimes. Some nonnative species have invasive tendencies and threaten native species, ecosystem 

function, and the quantity and quality of forest goods and services. Reducing the threat of aquatic and 

terrestrial invasive plant and animal species will allow the Carson to better manage resilient landscapes 

and species populations that have a greater capacity to survive natural disturbances and uncertain future 

environmental conditions, such as those driven by changes in climate patterns and increasing human uses.

The nonnative species with the highest treatment priority are class A and B noxious weeds (defined by 

New Mexico Department of Agriculture), which have made significant increases in their overall 

population size in the plan area between 2007 and 2017. Class A and B noxious weeds currently known to 

the Carson include, but are not limited to, leafy spurge, rock snot, Canada thistle, hoary cress, and yellow 

toadflax. The Carson also has known populations of invasive animal species and diseases, including 

bullfrogs, whirling disease, and chytrid fungus. Similar to invasive plants, invasive animals and diseases 

have the potential to adversely affect native species and ecosystem function. Chytrid fungus and whirling 

disease has been linked to infectious disease and dramatic die-offs in amphibians and trout world-wide, 

while white-nose syndrome has been decimating bat populations and slowly moving westward in North 

America. Feral animals, including unauthorized livestock, may be an issue in the future on the Carson. 

These animals are managed by other agencies, such as the New Mexico Livestock Board and the USDA 

Animal and Plant Health Inspection Service.

Nonnative Invasive Species Desired Conditions (FW-NIS-DC)

1 Nonnative invasive plant and animal species are absent or exist at levels where they do not disrupt 

ecological function or affect the sustainability of native and desirable nonnative species.

Nonnative Invasive Species Objectives (FW-NIS-O)

1 Contain, control, or eradicate at least 300 - 500 acres of invasive species (e.g., musk thistle, 

spotted knapweed) annually.

 

19 Some nonnative species are desirable and were intentionally released into the wild to establish self-sustaining populations of 

wildlife that meet public demands for recreation or other purposes (e.g., sport fishes). These desirable nonnative species are 

not likely to cause ecosystem disruption and are not addressed in this section.
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Nonnative Invasive Species Standards (FW-NIS-S)

1 Forest management activities must apply best management practices20 and management 

guidance from the most current Forest Service Southwestern Region Guidance for Invasive 

Species Management, to minimize the introduction or spread of invasive species, including 

decontamination procedures on vehicles and equipment and using weed-free products. 

2 Projects, authorized activities, and special uses shall be designed (e.g., weed hay, off-highway 

vehicle washing, waders) to reduce the potential for introduction of new species or spread of 

existing invasive or undesirable aquatic or terrestrial nonnative populations.

3 Domestic goats and sheep shall not be used to control invasive plants in native bighorn sheep 

occupied habitat21. 

Nonnative Invasive Species Guidelines (FW-NIS-G)

1 When drafting water from streams or other water bodies, measures should be taken to prevent 

entrapment of fish and aquatic organisms and the spread of parasites or disease (e.g., chytrid 

fungus, Didymo, and whirling disease).

22

2 Desirable nonnative species (e.g., brown trout, brook trout, and Kentucky bluegrass) should be 

managed in such a way that they do not conflict with the recovery of native species or existing 

multiple uses.

3 Integrated pest management approaches and other treatments to control, treat or retreat noxious 

and invasive species should be used to improve watershed condition and maintain ecosystem

function, while minimizing project impacts on native species.

4 If chemical application is necessary near sensitive habitat (e.g., developed sites, known at-risk

plants, riparian areas), techniques (e.g., buffers, type of chemical, mixture) should be applied to 

minimize effects on native species and sensitive habitat. 

5 Ground-disturbing activities should be assessed for risk of noxious weed invasion and 

incorporate measures that minimize the potential for the spread of noxious and invasive species.

6 Preventive measures, such as requiring pre- and post-work cleaning of equipment and using 

certified weed-free seed, should be implemented through contracting, permitting, and other 

administrative processes. Weed-free plant material should be selected for all seeding and 

mulching projects, to restore natural species composition and ecosystem function to the 

disturbed area. Plant or seed materials should be used, which are appropriate to the site, capable 

of becoming established, and are not invasive.

 

20 Best management practices as defined in the Region 3 Soil and Water Conservation Practices Handbook or other, most current 

regional best management practices guidance. 

21 As defined by New Mexico Department of Game and Fish or best available science.

22 Guidance can be found in the most current version of Preventing Spread of Aquatic Invasive Organisms Common to the 

Southwestern Region Technical Guidelines for Fire Operations, Interagency Guidance and best available science.
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7 Fill and rock material should be inspected for nonnative invasive plants, prior to using in a 

project, to control the spread on nonnative invasive plants. 

Management Approaches for Nonnative Invasive Species

1. Consider prioritizing treatment based on State status, refer to the New Mexico Department of 

Agriculture website for the “Introduced, Invasive, and Noxious Plant List”.

2. Consider prioritizing inventories in areas of unique and rare habitats first and then areas of high use 

and disturbance second (e.g., material pits, trailheads, campgrounds, corrals, roads, boat ramps, and 

bridges).

3. For control of invasive species, consider prioritizing areas (e.g., wilderness, research natural areas, 

botanical areas, wild and scenic river areas, and riparian areas) to maintain the integrity of native 

species and ecosystems. 

4. Coordinate with stakeholders and educate the public to reduce, minimize, or eliminate the potential 

introduction, establishment, spread, and impact of nonnative invasive species.

Related Plan Content for Nonnative Invasive Species

All other sections
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Air Resources (AIR)

Air resources on national forests are an important resource to be protected. Not only does the public value 

the fresh air and sweeping views that national forests can provide, but forest health, water quality, and 

fisheries can also be affected by poor air quality. The goal of air quality management is to meet human 

health standards, to achieve visibility goals in areas of high scenic value, and to address and respond to 

other air quality concerns, such as critical atmospheric pollutant loads and atmospheric deposition of 

acidic chemical compounds.

Human health standards are defined in the national ambient air quality standards set by the Environmental 

Protection Agency 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. Smoke impacts from wildland fires and prescribed

fires can affect nearby communities. 

To protect visibility in the national parks and wildernesses of high scenic value, Congress designated all 

wildernesses 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 management activities on the Carson are the Wheeler Peak Wilderness and the 

northern portion of the Pecos Wilderness. Class I areas that could be affected by projects and sources on 

or near the Carson include the San Pedro Parks Wilderness (Santa Fe National Forest), Bandelier National 

Monument (USDI Park Service), and the southern portion of the Pecos Wilderness (Santa Fe National 

Forest), all of which are south of the Carson. 

The ecosystem services provided by air include oxygen for respiration; carbon dioxide for photosynthesis; 

and global redistribution of biological and physical byproducts (supporting ecosystem services), as well 

as the delivery of aesthetically pleasing aromas (cultural ecosystem service). These ecosystem services

are generally stable and not at risk. Air quality and visibility conditions on the Carson are within 

regulatory levels and the trend, based on projected emission inventories, appears to be stable or is 

improving for most pollutants. 

The main challenge in the future could be from both coarse and fine particulate matter, which can affect 

the ambient air quality and visibility on the Carson. Land use on and off the Carson, as well as changes in 

climate patterns and drought, can contribute to windblown and fugitive dust. Wildfires can also be a 

significant source of particulate matter and ecological restoration must take into consideration public 

health concerns. Additionally, the Jicarilla Ranger District may be at risk of ozone impacts as the trend in 

volatile organic compounds, an ozone precursor, are increasing from natural gas development and there is 

a history of high ozone levels near the ranger district. 

Air Resources Desired Conditions (FW-AIR-DC)

1 Good air quality contributes to visibility, human health, quality of life, economic opportunities, 

quality recreation, and wilderness values.

2 Air quality meets or surpasses State and Federal ambient air quality standards.

3 Visibility in designated wildernesses (class I and sensitive class II areas) is free of anthropogenic 

(human caused) impacts. 

4 There are no measurable disturbances to water chemistry or biotic components due to atmospheric 

deposition of pollutants.
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5 Smoke impacts on air quality related values are minimal.

Air Resource Guidelines (FW-AIR-G)

1 Decision documents for wildfires and prescribed burns should identify smoke sensitive areas and 

include management prescriptions and courses of action to mitigate impacts to air quality in 

those areas.

2 To reduce air impairments, dust abatement should occur during construction and road projects 

where dust is a potential effect.

Management Approaches for Air Resources

1. Consider advanced notification of potential smoke from fire management activities through the media 

to promote public awareness and protection of human health and safety, and place smoke warning 

signs along roads when visibility may be reduced. 

2. Consider design features, best management practices, or mitigation measures to reduce fugitive dust 

where needed.
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Social, Cultural, and Economic Sustainability and Multiple Use

The land is a common thread that binds all people. Our mountain landscapes are a life-sustaining resource 

and they help us form individual and community relationships, provide for continuity of cultural identity, 

strengthen ancestral connections, and contribute to the economic sustainability and stability for local 

communities. The communities located within or surrounding the Carson are reflective of a diverse and 

rich history of people and uses connected to the Carson. 

Long-standing, land-based traditional communities established themselves and persisted in large part due 

to their proximity to needed resources. Plants are used for food, medicine, and ceremonial purposes; wood 

was used for construction, fencing, heat, and ceremonial fires; perennial streams were utilized for 

domestic needs and sometimes controlled to provide water for agricultural needs or mechanical power; 

pasture land was utilized and springs developed to support sheep and cattle; and arable land was utilized 

for crops and orchards.

The Carson’s vision for social, cultural and economic sustainability is to manage toward a healthy, 

diverse, and productive forest that meets the needs of traditional communities, now and into the future. 

The Carson provides a variety of goods and services, including water, supplies of wood products, 

recreational opportunities, wildlife, energy, and domestic livestock forage. Sustainable management of 

natural resources ensures that the availability of goods and services is achieved and land productivity is 

maintained.

The management of ecosystems, goods, and services is interdependent and must adapt to change. The 

following sections guide the Carson’s contribution to social and economic sustainability to provide people 

and communities with a range of social, cultural, and economic benefits for present and future 

generations.

This portion of chapter 2 is divided into multiple sections. The first two sections focus on traditional and 

cultural uses of traditional communities that have a long-standing history in and around the NFS lands 

managed by the Carson. These communities of northern New Mexico include federally recognized tribes 

and descendants from Spain and Mexico. These sections are followed by uses that are both contemporary 

and have historic significance, including rangeland and livestock grazing, forestry and forest products, 

recreation, special uses, and minerals and mining. The Heritage Resources section does not emphasize 

use, rather focuses on the material record of prehistoric and historic occupation and land use. These 

resources are an important component of the historic and contemporary uses and are integral to the 

protection and maintenance of the cultural identity and socioeconomic wellbeing of people that care about 

these natural landscapes. 

Northern New Mexico Traditional Communities and Uses

A traditional community refers to a federally recognized tribe or a land-based rural community that has a 

long-standing history in and around the lands managed by the Forest Service. There are numerous small 

unincorporated communities within the boundaries of the Carson, as well as several adjacent federally 

recognized tribes and small incorporated towns and villages. The Carson is a community forest and each 

of these communities is geographically and historically rooted to a particular landscape.

The Carson manages the natural resources and landscapes that sustain northern New Mexico traditional 

communities, their cultures, and traditions, now and into the future. Local heritage, culture, traditions, and 

values have been handed down over generations and predate United States management of this area. 

Long-standing use of the Carson and its natural resources are fundamental to the interconnected 

economic, social, and cultural vitality of many northern New Mexico inhabitants, including federally 
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recognized tribes and pueblos, Spanish and Mexican land grants-mercedes and acequias, grazing permit 

holders, and other rural historic communities. In managing National Forest System (NFS) lands, it is 

important to allow opportunities for these communities to be engaged with the Carson, so that sustained 

use of the national forest for cultural and subsistence needs are supported. These important uses or 

traditional uses include, but are not limited to: 

• Use of common waters (e.g., acequias or irrigation ditches) for drinking, irrigating crops, and 

watering livestock.

• Use of common pasture for grazing livestock.

• Wood gathering for fuelwood, building materials, and ceremonial use.

• Collection of soils (e.g. sand, adobe, and micaceous clay) and rocks for building materials and other 

purposes (including production of crafts and ceremonial uses). 

• Gathering of plants and plant products for various purposes (including religious, medicinal, and 

consumption).

• Hunting and fishing for food and ceremonial purposes.

• Religious and ceremonial uses, including for cemeteries, pilgrimages, calvarios, and shrines.

• Recreational uses for weddings, family reunions, and dispersed camping.

• Traditional uses are found in other section narratives and plan components throughout this land 

management plan, especially Federally Recognized Tribes, Rural Historic Communities, Cultural 

Resources, Rangelands and Livestock Grazing, Forestry and Forest Products, and Recreation. 

The desire to recognize and preserve northern New Mexico traditional uses has been an integral part of 

managing the Carson National Forest and is reflected through various documents (e.g., USDA 1986; 

Hurst 1972; Hassell 1968). This land management plan seeks to build upon past initiatives and continues 

to recognize and support the traditional uses associated with the Carson. 

The Carson continues to have strong cultural and historic significance to the many diverse peoples and 

communities who have called northern New Mexico home for many generations. The Carson contributes 

resources and uses that are important to federally recognized tribes and pueblos, land grant communities, 

acequia associations, rural historic communities, and many contemporary residents all with historic, 

cultural, and socioeconomic connections to the national forest. To this day, these traditional communities 

retain a strong connection to the land and rely upon the Carson and its natural resources to sustain their 

cultural, spiritual, and economic way of life.

Forest management needs to balance this traditional way of life, defined by cultural identity of traditional 

communities, and the changes brought about by increased development, tourism, recreation, and other 

more contemporary uses. The people of northern New Mexico, their culture, their traditions, and their 

knowledge of the land must be recognized and treated as unique resources. When these unique resources 

are recognized, they become an asset to the Agency, and the Forest Service can serve as a viable, helpful, 

and productive force in maintaining and improving the many positive values inherent in northern New 

Mexico and its people.

People continue to benefit directly and indirectly from a variety of ecosystem services that they obtain 

from the land. In addition to providing the necessary resources to sustain life, these landscapes also form 

an anchor for those communities, providing people a sense of identity and their place in the world. 

Generations of families formed communities, adapted to their environment, and developed a way of life 

dependent upon and complimentary of the mountain resources at hand.
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Federally Recognized Tribes (FRT) 

For much of the span of human history, American Indians were the only people to occupy and use the 

lands that encompass the Carson. Their utilization of the Carson and the surrounding area began with the 

earliest human occupation of the Western Hemisphere and persists to the present day. The land-based 

cultures that exist today in northern New Mexico have relied on the forests, valleys, and water of these 

public lands spanning many generations.

The Federal Government has a trust responsibility to federally recognized tribes that arises from the 

United States’ unique legal and political relationship with tribes. It is a legally enforceable fiduciary 

obligation on the part of the United States to protect tribal treaty rights, lands, assets, and resources, as 

well as a duty to carry out the mandates of Federal law with respect to all federally recognized tribes. This 

responsibility requires the Federal Government to consider the best interests of the tribes in its dealings 

with them and when taking actions that may affect them. In meeting these responsibilities, Forest Service

managers consult with federally recognized tribes and pueblos as sovereign entities when proposed 

policies or management actions may affect their interests.

The government-to-government relationship between the Forest Service and federally recognized tribes is 

distinct from that of other interests and constituencies under a variety of Federal authorities. These 

authorities direct the agency to administer forest management activities and uses in a manner that is 

sensitive to traditional American Indian beliefs and cultural practices, and are integral in the Carson’s 

relationship with federally recognized tribes. The plan components in this section are based upon agency 

policy and Federal authorities (e.g., American Indian Religious Freedom Act, Native American Graves 

Protection and Repatriation Act, 2008 Farm Bill, Tribal Forest Protection Act, Executive Order 13175). A 

comprehensive list of these authorities can be found in Appendix C. 

The Forest Service manages a great diversity of landscapes and sites that are culturally important sites and 

held sacred by federally recognized tribes. Specific locations on the Carson are often held in confidence 

to protect these important values. 

The trust responsibilities are maintained through consultation and engagement between the federally 

recognized tribes and the Forest Service. This consultation is critical when proposed management 

activities have a potential to affect tribal interests, including natural or cultural resources of importance. 

The Carson consults with federally recognized tribes and pueblos that have aboriginal territories within 

and traditional ties to the land now administered by the Forest Service. The Carson maintains 

government-to-government relationships with many of these federally recognized tribes and employs a 

variety of avenues to achieve meaningful consultation, with the preferred method being real-time, inperson dialogue between tribal leaders and Forest Service line officers. 

The Carson shares a common boundary with the Jicarilla Apache Nation, the Picuris Pueblo, the Southern 

Ute Indian Tribe, and the Taos Pueblo, and is in close proximity to several other tribal communities.

Federally Recognized Tribes Desired Conditions (FW-FRT-DC)

1 The uniqueness and values of the tribal cultures in the Southwest and the traditional uses important 

for maintaining these cultures are recognized and valued as important.

2 The long history of tribal communities and uses (e.g., livestock grazing, fuelwood gathering, 

acequias, and hunting) to NFS lands and resources are understood, and appreciated.
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3 Forest resources important for cultural and traditional needs (e.g., osha, piñon nuts, okote (pitch 

wood), and micaceous clay), as well as for subsistence practices and economic support of tribal 

communities, are available and sustainable.

23

4 Federally recognized tribes have access to sacred sites, traditional cultural properties, and collection 

areas for traditional and ceremonial use.

5 There are opportunities for solitude and privacy for tribal traditional and cultural activities.

6 Traditional cultural properties, sacred sites, and other locations of identified traditional and cultural 

use are recognized and valued. 

7 The Carson National Forest provides a setting for educating tribal youth in culture, history, and land 

stewardship, and for exchanging information between tribal elders and youth.

Federally Recognized Tribes Standards (FW-FRT-S) 

1 Confidentiality of tribal information and resources collected during consultation shall be 

maintained as allowed by law, unless permission to share information is given.

Federally Recognized Tribes Guidelines (FW-FRT-G)

1 To honor tribal privacy, requests for temporary closure orders for cultural and traditional 

purposes should be accommodated.

2 Consultation with federally recognized tribes should occur at the early stages of project planning 

and design.

3 Management activities and uses should be planned and administered to prevent or minimize 

impacts to the physical and scenic integrity of places that the federally recognized tribes regard 

as sacred sites, traditional or cultural properties.

4 Human remains and cultural items disinterred from NFS lands or adjacent sites should be 

reburied in accordance with the requests of affiliated tribes.24

Management Approaches for Federally Recognized Tribes

1. Coordinate with federally recognized tribes to develop collaborative proposals and accomplish

projects of mutual benefit across shared boundaries, and use available Federally-authorized or 

advocated programs including the Tribal Forest Protection Act of 2004 (Public Law 108-278), and the 

Collaborative Forest Restoration Program).

2. Consider developing and maintaining memoranda of understanding or other agreements, to better 

understand community needs and build respectful, collaborative relationships with federally 

recognized tribes.

 

23 American Indian Religious Freedom Act (AIRFA), as amended (42 U.S.C. 1996)

24 Native American Graves Protection and Repatriation Act of 1990 (NAGPRA) (35 U.S.C. 3001)
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3. Coordinate with federally recognized tribes to gain tribal perspectives, needs, and concerns, as well as 

traditional knowledge, and consider how this information can be incorporated into project design and 

decisions.

4. Develop management tools (e.g., programmatic agreements, management plans, and memoranda of 

understanding), to manage traditional cultural properties collaboratively with associated communities.

5. In collaboration with federally recognized tribes, consider developing interpretive and educational 

exhibits or other media that focus on the history of the lands managed by the Carson, to provide the 

public and Forest Service employees with a greater understanding and appreciation of shared history, 

culture, and traditions. Social, cultural, and economic resources provide a setting for educating tribal 

youth in culture, history, and land stewardship, and for exchanging information between tribal elders 

and youth.

6. Consider working with the public to create awareness on the importance of traditional cultural 

properties and issues related to their management, while protecting confidential or sensitive 

information regarding traditional cultural properties. 

7. Consider utilizing federally authorized or advocated programs (e.g. the Tribal Forest Protection Act

and Community Forest Restoration Program) to develop collaborative proposals and partnerships 

with federally recognized tribes to accomplish projects of mutual benefit and economic development.

8. Consider having Forest Service employees work with federally recognized tribes to understand 

community needs and build respectful, collaborative relationships, to move toward desired 

conditions. 

9. Consider providing training opportunities for Forest Service employees to gain a broader 

understanding of the unique legal relationship between the Federal Government and federally 

recognized tribes and pueblos, and American Indian Law, customs, traditions, and values.

10. Consider incorporating native languages (e.g., Tiwa, Tewa, Athabaskan, Keres) into interpretive 

materials, to highlight the American Indian culture as part of the forest landscape and its surrounding 

areas. 
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Rural Historic Communities (RHC) 

A rural historic community refers to the many peoples of northern New Mexico whose families have 

strong historical ties to the land. The Carson and use of its resources are integral to the subsistence, 

cultural, and social values that help define the people and communities. The founding of the community 

generally predates the establishment of the U.S. Forest Service. The community has a significant 

concentration of human activity, linkage, and continuity of land use on or immediately adjacent to the 

Carson. The day-to-day occupational activities of rural historic communities are rooted in the pragmatic 

need to make a living and evolved on a specific landscape within or adjacent to lands now managed as the 

Carson. Occupational, subsistence, and cultural-based activities associated with rural historic 

communities may include livestock grazing, fuelwood gathering, logging, Christmas tree harvesting, 

piñon picking, medicinal plant collection, hunting, fishing, agriculture, and mining. Many of the 

communities within and adjacent to the national forest occupy a small land base and have limited 

opportunities for growth for community facilities and uses (e.g., cemeteries, dumps, domestic water, 

wastewater, community centers.) Acknowledging the importance of these activities and concerns to area 

families and communities is crucial for understanding their way of life and resolving disputes over public 

land and resource use.

The use of the Carson provides opportunities for community interaction and maintenance of traditional 

culture. 

While the Carson considers itself as a community forest, there are many smaller communities that call the 

forest home and rely upon its many resources and uses. Some people may identify with several rural 

historic communities. For example, some people may see themselves as being from Peñasco, a rancher, a 

member of a land grant, an acequia parciante, or possibly all or a combination of these. Regardless, what 

they have in common is a strong cultural and social tie to lands in and around the Carson. The two 

communities identified below have recognition by the State as governing bodies. 

Land Grants-Mercedes

From the late-1600s to mid-1800s, Spain and later Mexico made land grants or mercedes to individuals, 

groups, and towns to promote development in the frontier lands that today constitute the American 

Southwest. The two most common types of Spanish and Mexican land grants-mercedes made in New 

Mexico were community land grants and individual land grants. Community land grants were typically 

organized around a central plaza, whereby each settler received an individual allotment for a household 

and a tract of land to farm, and common land was set aside as part of the grant for use by the entire 

community. Individual land grants, as its name suggests, were made in the name of specific individuals. 

Between 1689 and 1846, Spain and Mexico granted community and individual land grants-mercedes in 

what is now New Mexico and Southern Colorado.

Many traditional Hispanic communities have ties to lands on the Carson that were once common lands of 

community land grants-mercedes. The Carson maintains relationships with several Spanish- and 

Mexican-era land grant-merced communities. Many have former common lands now administered by the 

Forest Service. Common lands provided land grant-merced communities access to grazing land, stone and 

clay, wood, game, fish, medicinal plants, water for agriculture and consumption, and other forest 

products—uses that continue today. Many land grants-mercedes are actively involved in the management 

and preservation of adjacent NFS lands for traditional and cultural use. Some have boards of trustees to 

fulfill this mission through a variety of activities, including managing, protecting and regulating uses of 

common lands; preserving cultural and historic resources; and partnering with the Forest Service to plan 

and propose forest restoration projects on NFS lands.
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Acequias 

Acequias are community operated and organized water irrigation systems. Many of the State’s acequia 

associations have been in existence since the Spanish Colonial period in the 17th and 18th centuries and 

were historically associated with land grants-mercedes. Acequia and community ditch associations are 

political subdivisions of the State of New Mexico and occupy a unique place in forest management (New 

Mexico Statutes Annotated 1978 §73-2-28). Acequias that existed on unreserved public lands for use in 

connection with a valid water right, prior to the withdrawal of public lands to create the national forests, 

are afforded valid rights and status under National Forest System management. Much of the water 

diverted by acequias comes off of NFS lands and can be affected by forest management activities 

upstream. Acequias are still relevant and vital water delivery and community organizing systems today. 

They serve as important water infrastructure for communities, and their associations are important 

community organizations throughout New Mexico.

Rural Historic Communities Desired Conditions (FW-RHC-DC)

1 The uniqueness and values of rural historic communities and the traditional uses important for 

maintaining these cultures are recognized and valued as important.

2 The long history and ties of rural historic communities and traditional uses (e.g., livestock grazing, 

fuelwood gathering, acequias, and hunting) to NFS lands and resources is understood and 

appreciated.

3 Forest resources important for cultural and traditional needs (e.g., osha, piñon nuts, okote (pitch 

wood), medicinal herbs, and micaceous clay), as well as for subsistence practices and economic 

support (e.g., livestock grazing, acequias, and forest products) of rural historic communities are 

available and sustainable.

4 Rural historic communities have access to places of traditional use (e.g., spiritual places, individual 

and group ceremonies, traditional activities, and the collection of forest products) that are important 

to them.

5 Acequia systems on NFS lands are accessible for operation, maintenance, repair, and improvement.

6 The Forest provides a setting for educating youth in culture, history, and land stewardship, and for 

exchanging information between elders and youth.

Rural Historic Communities Guidelines (FW-RHC-G)

1 Traditionally used products (e.g., fuelwood, latillas, and vigas) should be available on the Carson 

to rural historic communities, except in areas with resource concerns or any areas otherwise 

restricted by standards or guidelines set forth in other sections of this plan, to move toward

desired conditions. 

2 Management activities should be analyzed and mitigated to prevent or minimize the physical and 

scenic integrity of places that rural historic communities regard as spiritually or culturally 

important. 

3 Acequia associations should be provided access to operate, repair, maintain, and improve 

acequia infrastructure located on NFS lands.
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4 Coordination with interested and affected land grant-merced and acequia governing bodies 

should occur at the early stages of planning and project design, to keep them informed and aware 

of projects that may impact them. 

Management Approaches for Rural Historic Communities

1. In collaboration with northern New Mexico communities, consider developing interpretive and 

educational exhibits or other media that focus on the history of the lands administered by the Carson, 

to provide the public and Forest Service employees with a greater understanding and appreciation of 

shared history, culture, and traditions. Social, cultural, and economic resources provide a setting for 

educating youth in culture, history, and land stewardship, and for exchanging information between 

elders and youth.

2. Consider working with rural historic communities, such as land grant-merced and acequia governing 

bodies, to identify partnership, education, and interpretation opportunities that can help sustain the 

traditional communities’ heritage, language, culture, traditions, and environment in northern New 

Mexico. 

3. Coordinate with rural historic communities, such as land grant-merced and acequia governing bodies, 

to gain local perspectives, needs, and concerns, as well as traditional knowledge, and consider how 

this information can be incorporated into project design and decisions.

4. Consider ways of educating northern New Mexico youth in local culture, history, and land 

stewardship, and for exchanging information between community elders and youth.

5. Consider providing training opportunities for Forest Service employees to gain a deeper 

understanding of the unique traditional communities, customs, traditions, and values of northern New 

Mexico. 

6. Consider offering Carson offices as welcoming places for local community members to engage with 

Forest Service employees and one another, disseminate and receive information, and attend meetings, 

seminars, and exhibits that promote community knowledge and collaboration.

7. Consider holding annual meetings with land grant and acequia governing bodies, to improve 

communication and relationships.

8. Consider incorporating Spanish language into interpretive materials to highlight the Hispanic culture, 

as part of the landscape of the Carson and its surrounding areas.

9. Consider ways to make fuelwood permits available locally in the field where the fuelwood 

opportunity is available or allow rural communities to get a fuelwood permit at the Forest Service

district office closest to them or another government office, rather than only at the district office 

administering the permitted area.

10. Work with land grant and acequia governing bodies, rural communities, and other community leaders 

to continually improve relationships and discuss shared opportunities to design projects that 

contribute to the cultural integrity of the many forest-dependent traditional communities.

11. Work collaboratively with land grant and acequia governing bodies, rural communities and other 

community leaders to maintain shared infrastructure (e.g., fencing, roads, and cattleguards). 

Related Plan Content for Rural Historic Communities and Uses

Watersheds and Water, Rangelands and Livestock Grazing, Forestry and Forest Products, Transportation 

and Forest Access
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Cultural Resources (CR) 

The Carson contains cultural and historic resources (e.g., pit houses, pueblitos, masonry structures, 

quarries, rock art, traditional cultural properties, and culturally modified trees) that document almost 

continuous human presence for at least the past 12,000 years. American Indians ancestral to the ethnic 

affiliations of the contemporary Pueblo, Athabascan, Ute, and Comanche people have inhabited or 

utilized forest resources over much of this time. Europeans began to occupy the area over 400 years ago, 

while the Carson has been under the management of the Forest Service since 1906. 

Many cultural resources are also considered traditionally significant to federally recognized tribes and 

pueblos associated with the lands of the plan area. The Carson has at least 6,636 recorded cultural 

resources within its forest boundaries. As of July 2016, only 15 percent (219,713 acres) of the Carson has 

been surveyed. Sixty-four percent (4,320) of the cultural resources recorded on the Carson are prehistoric 

sites, 22 percent (1,449) are historic sites, and 10 percent (642) are multi-component sites. The remaining 

5 percent (225) are unknown, with no temporally or spatially diagnostic artifacts present.

The Carson has six sites listed on the National Register of Historic Places (Pueblito Canyon Ruin, 

Pueblito Canyon East, Cabresto Mesa Tower Complex, Victor Ortega Cabin, the Ring Place and the Aldo 

Leopold House), with 2,588 more sites eligible for listing. In addition, there are 441 sites not eligible for 

listing and 3,604 sites that remain unevaluated. The Cumbres and Toltec Railroad National Historic 

Landmark enters a portion of the Carson and the Old Spanish National Historic Trail crosses the Carson. 

The conditions of the cultural resources on the Carson are most notably impacted by water and wind 

erosion, livestock grazing, recreation, construction, vehicular traffic, and vandalism, which fortunately, in 

most cases, have not been severe. Numerous cultural sites on the Carson are significant social and 

economic contributors to the Geographic Context, region, and nation. They provide opportunities for 

cultural tourism, education, and research. They are also necessary for maintaining the cultural identity of 

the traditional communities within the Carson. 

Cultural resources are nonrenewable with few exceptions. Once the resource has been disturbed, 

damaged, moved, altered, or removed, nothing can recover the information that could have been gained 

through analysis or replace the opportunity for individuals to understand and experience the site. Forest 

Service management activities, public use, and natural processes have impacted cultural resources. 

Damage from vandalism (e.g., pilfering) continues to be a management issue. Current forest management 

practices are aimed at minimizing or avoiding negative impacts to cultural resources.

Cultural Resources Desired Conditions (FW-CR-DC)

1 Cultural resources (buildings, sites, districts, structures and objects) having scientific, cultural, or 

social values are preserved and protected. Site integrity and stability are protected and maintained on 

sites that are susceptible to imminent risks or threats, or where the values are rare or unique.

2 Impacts to cultural resources from vandalism, looting, and other human impacts are minimal.

3 The public has opportunities for learning about, appreciating, and understanding cultural resources, 

as well as resources significant to traditional communities.

4 Traditional communities (e.g., land grant-merced and acequia governing bodies, tribes) have 

opportunities to participate in the identification, protection, and preservation of cultural resources

that have importance to them. 
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Cultural Resources Standards (FW-CR-S)

1 Buildings and structures listed or eligible on the National Register of Historic Places shall be 

maintained to preserve their historic integrity, while also fulfilling their roles as administrative 

and recreational facilities, and other infrastructure functions.

2 Cultural artifacts shall be preserved in situ, except when endangered then they should be curated 

following current standards.

Cultural Resources Guidelines (FW-CR-G)

1 When adverse effects to cultural resources occur, known communities to whom the resources are 

important should be involved in the resolution of the adverse effects.

2 Historic documents (e.g., photographs, maps) should be properly preserved, and made available 

for research and interpretation by Forest Service, contractors, other agencies, universities, 

federally recognized tribes, historic Spanish and Mexican rural communities, and the public.

Management Approaches for Cultural Resources

1. Consider synthesizing cultural resource information and interpreting and sharing it with the scientific 

community, and public through prehistoric and historic contexts, formal presentations, publications, 

and educational venues.

2. Consider developing a database of fire sensitive cultural sites, structures, and other resources and 

making it available for fire management purposes to facilitate resource protection.

3. Consider prioritizing non-project related surveys (i.e., Section 110 of the National Historic 

Preservation Act) as follows:; (1) areas indicated to have high cultural value or high density of 

cultural resources; (2) areas of importance to traditional communities; (3) areas where additional 

surveys will contribute to a greater regional understanding of a specific management unit; and (4) 

areas where eligible cultural resources are threatened or on-going impacts are unknown and need to 

be assessed.

4. Consider providing orientation and learning opportunities for Forest Service personnel, permit 

holders, and contractors that builds support for the Section 106 process of the National Historic 

Preservation Act. Find teaching opportunities to educate personnel on the identification, management 

and protection of significant cultural resources. 

5. Consider the development of opportunities for heritage tourism in concert with local communities.

6. Through interpretive sites, historic standing structures and other materials, consider providing 

opportunities for an appreciation of the region’s history and an awareness of preservation efforts. In 

some cases, consider historic routes (e.g., railroad grades) used for recreation trails with interpretation 

of their history and historic features.
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Sustainable Rangelands and Livestock Grazing (GRZ)

“The ranching tradition in northern New Mexico is long standing, enduring across many generations. 

Livestock ownership and ranch life are powerful forces that bind families and communities, continuing a 

heritage that began with Spanish colonization. Owing to the history of land use and ownership in the 

region, many contemporary ranchers rely to a considerable degree on public land to graze their animals” 

(Raish and McSweeney 2003). Much of this land was formerly granted to or used by traditional 

communities and the ancestors of current permit holders. It is important that Forest Service management 

recognizes and contributes to sustaining the socioeconomic needs, culture, and traditions of Northern 

New Mexican ranchers. 

The Carson issues grazing permits on numerous active allotments. Almost all permit holders are local 

residents, living close to the allotments where they are permitted to graze. To respond to the cultural 

traditions and socioeconomic needs of northern New Mexico, northern New Mexico forests (including the

Carson) are unique in how they administers livestock grazing on National Forest System lands. Around 

25 percent of the permits are issued to grazing associations with multiple members. A grazing association 

is a group of several members who share the use of an allotment under one grazing permit. Associations 

are self-governed and determine how many head of livestock each member can graze within the 

authorized or permitted number for the allotment. The Forest Service officially recognizes the association 

as the sole permit holder and often deals directly with association officers for annual authorization, 

billing, and operating instructions.

In addition, the Carson administers almost 40 percent of the active allotments as community allotments. 

Each individual rancher has a permit for a certain number of animals, along with as many as 10 to 15 

other permit holders on the same allotment. These community allotments will have an association bull 

permit as well, but the Forest Service works with each permit holder one-on-one. The Carson administers 

35 percent of its allotments with only one permit holder. The community and association allotments were 

developed to be responsive to the economic and cultural needs of traditional communities. In addition to 

administering community allotments with multiple permits, the Carson has also waived an acreage 

minimum as long as a permit holder has the facility to water livestock, a corral or facility to handle 

livestock, and forage producing capability. These programs have contributed to the needs of many 

northern New Mexico families.

Livestock management on NFS lands has shifted to an adaptive management philosophy that allows 

appropriate seasonal changes in livestock numbers (increases and decreases) or seasons of use, in 

response to changing ecological conditions (e.g., forage production, water availability, and precipitation 

patterns). Over the last decade, the Carson has worked with partners and permit holders to manage

grazing pressure on sensitive areas (e.g., critical areas, riparian areas) through better distribution and 

improving forage conditions (e.g., restoring fire) away from sensitive areas, without reducing livestock 

numbers. 

Livestock grazing today plays an essential role in providing ecosystem services. Continuing this way of 

life on ancestral lands enhances the culture and heritage for future generations. Many people living in 

traditional communities participate in or have connections to ranching and identify with the associated 

values (cultural ecosystem service). Livestock grazing contributes to the livelihood of permit holders and 

to the economy of traditional communities and counties (provisioning ecosystem service). Some 

ecological benefits from livestock grazing include aeration of the soil through hoof action, invasive plant 

control, reduction of fine fuels (decadent grasses and forbs), maintaining open space off-forest, increased 

water developments in uplands, and an important source of food and fiber (cultural and provisional 

ecosystem services).
Chapter 2. Forestwide Plan Components

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Sustainable Rangelands and Livestock Grazing Desired Conditions (FW-GRZ-DC)

1 Sustainable rangelands provide forage for livestock grazing opportunities that contribute to 

agricultural businesses, local employment, livelihoods, as well as generational ties to the land. 

2 Livestock grazing contributes to the long-term socioeconomic diversity and stability and the cultural 

identity of local communities.

3 Rangelands are resilient to disturbances and variations in the natural environment (e.g., fire, flood, 

climate variability). 

4 Livestock grazing and associated management activities are compatible with ecological function and 

process (e.g., water infiltration, wildlife habitat, soil stability, and natural fire regimes). 

5 Native plant communities support diverse age classes of shrubs, and vigorous, diverse, selfsustaining understories of grasses and forbs relative to site potential, while providing forage for 

livestock.

6 Wetland and riparian areas consist of native obligate wetland species and a diversity of riparian plant 

communities consistent with site potential and relative to Wetland Riparian and Forest and Shrub

Riparian desired conditions. 

7 Range infrastructure functions to maintain or improve livestock grazing and the condition of forest 

ecological and cultural resources.

Sustainable Rangelands and Livestock Grazing Objectives (FW-GRZ-O) 

1 Annually improve or maintain at least 6 - 10 existing range improvement structures for livestock 

grazing.

Sustainable Rangelands and Livestock Grazing Standards (FW-GRZ-S) 

1 Livestock management shall be compatible with capacity and address ecological resources (e.g., 

forage, invasive plants, at-risk species, soils, riparian health, and water quality) that are departed 

from desired conditions, as determined by temporally and spatially appropriate data.

25

2 New or reconstructed fencing shall allow for wildlife passage, except where specifically 

intended to exclude wildlife (e.g., elk exclosure fence), to protect human health and safety.

3 New and reconstructed range improvements must be designed to prevent wildlife entrapment 

and provide safe egress for wildlife (e.g., escape ramps in water troughs and cattleguards).

4 Domestic sheep allotments shall be managed (e.g., fencing, increased herding, herding dogs, 

potential vaccine, or other scientifically supported strategies) to mitigate the potential transfer of 

disease from domestic sheep to bighorn sheep, within bighorn sheep occupied habitat26. 

 

25 Guidance can be found in the most current Grazing Permit Administration Handbook and Regional Supplements or best 

available scientific information. 

26 As defined by New Mexico Department of Game and Fish or best available science.
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107

Sustainable Rangelands and Livestock Grazing Guidelines (FW-GRZ-G)

1 Forage use should be based on current and desired ecological conditions as determined by 

temporally and spatially scientific data during planning cycles (e.g., annual operating 

instructions, permit renewal), to sustain livestock grazing and maintain ecological function and 

processes.

27

2 Livestock grazing within riparian management zones (e.g., along streams, around seeps, springs, 

lakes, and wetlands) should be managed to sustain proper stream channel morphology, 

floodplain function ,

28 and riparian vegetation desired conditions.

3 New livestock troughs, tanks, and holding facilities should be located out of riparian 

management zones (e.g., along streams, around seeps, springs, lakes, and wetlands), to protect 

riparian ecological resources, unless necessary for resource enhancement or protection.

4 New range infrastructure (e.g., troughs, tanks) should be designed to avoid long-term negative

impacts to soil resources (e.g., soil compaction and soil loss), to maintain hydrological function

outside the structures’ footprint. 

5 Salting or mineral supplementation should not occur on or adjacent to areas (e.g., known at-risk 

plant species habitat, riparian areas, wetlands, or archeological sites) that are especially sensitive 

to salt and to increased traffic from ungulates, to protect these sites.

6 Restocking and management of grazing allotments following a major disturbance (e.g., fire, 

flood) should occur on a case-by-case basis after consideration of site-specific resource 

conditions, to sustain livestock grazing. 

7 Vacant or understocked allotments should be made available to permitted livestock, to provide 

pasture during times or events when other active allotments are unavailable and require 

ecosystem recovery as a result of natural disturbances (e.g., wildfire) or management activities 

(e.g., vegetation restoration treatments). 

8 Permit conversions to domestic sheep or goats should not be allowed within bighorn sheep 

occupied habitat29, to mitigate the potential transfer of disease from domestic sheep to bighorn 

sheep.

Management Approaches for Sustainable Rangelands and Livestock Grazing

1. Forest managers cooperate, collaborate, and coordinate with permit holders to respond to changing 

resource conditions. Cooperation, collaboration and coordination among Carson and permit holders is 

key to improving rangeland and forest conditions for multiple uses, moving towards desired 

conditions, and contributing to the socioeconomic wellbeing of local communities. In addition, 

collaboration among stakeholders is important, including local communities; permit holders; Federal, 

State, county and local government entities. 

 

27 Guidance can be found in the most current Grazing Permit Administration Handbook and Regional Supplements or best 

available scientific information.

28 Proper stream channel morphology and floodplain function as defined by BLM’s properly functioning condition protocol, or a 

similar metric.

29 As defined by New Mexico Department of Game and Fish or best available science.
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108

2. Acknowledge the importance of livestock grazing as a traditional and cultural practice that helps 

support the socioeconomic well-being of individual families within local communities, now and into 

the future. 

3. Consider large-scale landscape management for restoring rangelands and the heterogeneity of native 

plant species, with an emphasis on grass, forb, and shrub communities, to promote livestock grazing 

capacity, and encourage movement towards desired conditions of NFS lands.

4. Consider an adaptive management approach to manage rangelands in a manner that promotes 

socioeconomic wellbeing and stability of local communities, ecosystem resilience, sustainability, and 

species diversity, based on scientifically quantified changes to rangelands. An adaptive management 

approach is designed to provide more flexibility to grazing management, while improving or 

maintaining the health of rangelands.

5. Invite association members and individual permit holders on range inspections, and conducting these 

inspections on days when most permit holders can attend.

6. Actual levels of livestock use may vary due to annual fluctuations of individual livestock operations 

or ecological conditions, including nonuse for resource protection or personal convenience. Consider 

not reducing permit numbers based on actual use, including nonuse. 

7. Facilitate a dialogue between the New Mexico Department of Game and Fish and permit holders

about ungulates (e.g., elk, deer, bighorn sheep, and livestock) and the cumulative impacts on forest 

resources.

Related Plan Content for Sustainable Rangelands and Livestock Grazing

All affected vegetation communities, Watersheds and Water, Wildlife, Fish, and Plants, Nonnative 

Invasive Species, Traditional Communities – Rural Historic
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

109

Sustainable Forestry and Forest Products (FFP) 

Forest products include wood (timber, biomass, fuelwood) and special forest products. Special forest 

products include floral greenery, Christmas trees and boughs, mushrooms, wildlings (e.g., transplanted 

trees, shrubs, or herbaceous plants), cones, medicinal plants, cuttings, herbs, nuts, sap, berries, decorative 

wood, and building materials (e.g., stone, rock, gravel). National Forest System (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. Over the last 15-20 years, the Forest 

Service emphasis has broadened and desired conditions for this land management plan focus on 

outcomes, rather than outputs. As a result, no specific timber volume outputs are desired for the Carson. 

Instead, timber production activities are considered tools that economically contribute to restoring and 

maintaining ecosystem diversity and supporting a viable wood products processing industry (provisioning 

ecosystem services). 

Focus has shifted toward ecological restoration and reduction of wildfire hazard to communities by 

creating and maintaining uneven-aged forest conditions as well as managing for desired species 

composition. An increasing level of regulated forest production is necessary to achieve restoration of 

desired conditions in forested vegetation communities at the plan scale. To facilitate achieving desired 

conditions, markets that will make use of forest products resulting from restoration treatments will need to 

be developed and supported. The Forest Service is encouraging the expansion of wood product industries 

to use these products.

The total volume of wood products sold by the Carson has fluctuated over time, with an overall

downward trend since the 1990s. Currently, there is an emphasis on reducing the impacts of wildfires on 

communities and restoring fire-adapted ecosystems rather than maximizing timber volume. The Carson

seeks to integrate a timber and forest products program that supports industry and the general public, with 

ecosystem health, watershed restoration, wildlife habitat improvements, and hazardous fuels reduction. In

northern New Mexico access to wood products continues to be an important component of the local social 

and economic fabric. Fuelwood harvest in particular is regarded as a traditional family activity and the 

Carson is a major source of fuelwood for the many local residents who still rely on wood to heat their 

homes during the cold winter months (provisioning and cultural ecosystem services). The Carson is a 

major source of vigas (heavy logs that support a roof) and latillas (peeled pieces of wood laid between 

vigas), which are essential in building and renovating pueblo-style or territorial-style adobe homes that 

are characteristic of the architecture in northern New Mexico (provisioning and cultural ecosystem 

services). 

To address the needs of traditional communities and families the Carson has actively engaged in the 

Collaborative Forest Restoration Program. The program provides cost-share grants to stakeholders for 

forest restoration projects. Since 2001, 49 collaborative forest restoration projects have been awarded for 

restoration projects on the Carson. These projects result in reduced fire risk, improved watershed health, 

the availability of fuelwood, latillas, vigas for local families and traditional communities and commercial 

products for community stakeholders. The Camino Real Ranger District has managed a successful 

community partnership program referred to as stewardship blocks. The Forest Service identifies parcels of 

land, marks trees and community members can then harvest wood from the areas. Community members 

get fuelwood and other wood products in return for restoration work to the Carson. 

To address a variety of threats, including fire, changes in climate patterns, and bark beetle infestations on 

the Carson, it is critical for the pace of restoration to increase. Two wood processing facilities operate 

within the plan area, but limited wood harvesting capability potentially restrains the Carson’s ability to 

increase restoration. Loss of the region’s wood harvesting and utilization infrastructure has been a critical 
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

110

impediment to accomplishing large-scale mechanical thinning treatments necessary for prompt and 

effective restoration of fire-adapted forests. However, small-scale operations, such as a new wood 

processing facility in southern Colorado near Tres Piedras Ranger District, are signs that a competitive 

market for the wood fiber removed by restoration-based treatment from the Carson may be emerging. A 

viable industry would allow for forest restoration on a scale that will produce the needed widespread 

improvements in ecological health or reduction in the risk of high severity wildfire. The Carson will need 

to expand its capability to support industry that facilitates restoration and achieving desired conditions.

Forest products from the Carson provide many different ecosystem services. Wood products (e.g., 

fuelwood and latillas) are both cultural and provisioning ecosystem services. Gathering fuelwood is a 

family event, but fuelwood is also essential for heating homes. Forest products (e.g., Christmas tree, herb, 

and piñon nut gathering) are cultural ecosystem services. Timber harvesting provides regulating and 

provisional ecosystem services. Timber harvesting opens up forests to allow grasses to grow which 

improves water retention and contributes to the economy.

Timber Suitability

The National Forest Management Act and the 2012 Planning Rule require that the suitability of NFS 

lands for timber production be analyzed. Timber production is a specific type of timber harvest for 

resource use and is distinct from timber harvest used as a management tool to move toward desired 

conditions. Timber production is the purposeful growing, tending, harvesting, and regeneration of 

regulated crops of trees for industrial or consumer use. Timber production may only occur on NFS lands 

that are identified as being suitable for timber production. Timber harvest may occur on all NFS lands 

where not specifically prohibited (i.e., designated wilderness), including those not suited for timber 

production.

30

Table 3. Timber production suitability classification for the Carson National Forest

Land Classification Category

Area 

(acres)

A. Total NFS lands in the plan area 1,486,353

B. Lands not suitable for timber production due to legal or technical reasons 1,021,003

C. Lands that may be suitable for timber production (A-B) 465,350

D. Total lands suitable for timber production because timber production is compatible with the 

desired conditions and objectives established by the plan

455,844

E. Lands not suitable for timber production because timber production is not compatible with the 

desired conditions and objectives established by the plan (C-D)

9,506

F. Total lands not suitable for timber production (B+E) 1,030,509

Projected Harvest Levels

The sustained yield limit is an estimate of the amount of timber which could be sustainably harvested 

from NFS lands suitable for timber production in perpetuity. It limits the volume of timber which could be 

sold from a National Forest Unit except under certain circumstances as defined by the National Forest 

Management Act of 1976 (16 USC 1600, 36 CFR 219.11(d)(6)). The sustained yield limit for the Carson

is 422 million board feet (MMBF) or 107 million cubic feet (MMCF). The projected harvest levels: 

projected timber sale quantity (PTSQ) and projected wood sale quantity (PWSQ) were calculated based 

 

30 See EIS Appendix D for a detailed description of the timber suitability and timber volume calculations analyses including 

mapped lands suitable for timber production.
Chapter 2. Forestwide Plan Components

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111

on plan objectives and considering the operational capacity of the Carson. These are the estimated 

amounts of commercial and other wood products that are expected to be produced under the plan’s 

direction.

Table 4. Projected harvest levels of timber products (volumes other than salvage or sanitation that meet 

timber product utilization standards) 

Timber Products 

MMCF 

First 

Decade

MMBF 

First 

Decade

Tons

First 

Decade

MMCF 

Second 

Decade

MMBF 

Second 

Decade

Tons

Second 

Decade

Lands suitable for timber production 

A1. Sawtimber (industrial softwoods, 9”+)

12.9 60.3 192,729 13.3 64.6 196,476

Lands suitable for timber production 

A2. Other Products (industrial softwood, 

5-9” – roundwood, commonly pulpwood, 

mostly in the form of fuelwood)

2.4 not 

applicable

102,519 2.1 not 

applicable

82,378

Lands not suitable for timber production 

B1. Sawtimber (9"+)

20.8 98.1 311,883 22.9 113.2 33,8618

Lands not suitable for timber production 

B2. Other Products (5-9")

4.1 not 

applicable

13,6559 3.6 not 

applicable

11,2010

C. Projected Timber Sale Quantity

(PTSQ) (A1+A2+B1+B2)

40.1 158.5 743,689 41.9 177.8 729,482

Table 5. Harvest levels of other estimated wood products (fuelwood, biomass, and other volumes that do not 

meet timber product utilization standards) 

Estimated Wood Products

MMCF

First 

Decade

Tons

First 

Decade

MMCF

Second 

Decade

Tons

Second 

Decade

D1. Non-industrial softwood fuelwood (5"+) 5.9 1.6 6.5 1.8

D2. Hardwood fuelwood (5"+) 1.1 0.4 1.0 0.4

D3. Aspen (5"+) 0.7 0.2 0.6 0.1

E. Projected Wood Sale Quantity

(PWSQ) (C+D1+D2+D3)

47.8 743,692 50.0 729,484

Sustainable Forestry and Forest Products Desired Conditions (FW-FFP-DC)

1 Forest products (e.g., fuelwood, latillas, vigas, Christmas trees, herbs, medicinal plants, and piñon 

nuts) are available to businesses and individuals in a sustainable manner (e.g., forest products 

recover between collections) that also effectively contributes to watershed health and the restoration 

and maintenance of desired vegetation conditions.

2 Forest products are available for traditional communities and culturally important activities and 

contribute to the long-term socioeconomic diversity and stability of local communities.

3 Forest products that are a byproduct of management activities are available for personal use (e.g., 

fuelwood) by the public.

4 Private and commercial timber harvest supplements other restoration and maintenance treatments at 

a scale that moves toward landscape desired conditions and contributes to watershed restoration, 

function, and resilience; enhances wildlife habitat; creates opportunities for small and large 

businesses and employment; and provides wood products.
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112

5 Harvest of dead and dying trees for economic value is consistent with the desired conditions of 

wildlife habitat, soil productivity, and ecosystem functions.

6 Theft of permitted forest products is rare.

7 Native seed stock is available to supply reforestation needs.

Sustainable Forestry and Forest Products Standards (FW-FFP-S)

1 Regulated timber harvest (tree harvest for the purpose of timber production) shall occur only on 

lands classified as suitable for timber production.

31

2 Timber harvest shall only occur where soil, slope, and watersheds will not be irreversibly 

damaged, and protection must be provided for streams, streambanks, shorelines, lakes, wetlands, 

other waterbodies, fish, wildlife, recreation (including trails), and aesthetic resources.

3 Regeneration timber harvest shall only occur where there is reasonable assurance of adequate 

restocking (based on site index or other measures) within 5 years of harvest.

4 Even-aged timber harvest methods shall be used only where a completed interdisciplinary team 

review determines them to be appropriate, and clearcutting will only be used where it is 

determined to be the optimum method.

5 Even-aged regeneration cuts will be shaped and blended with the natural terrain.

6 Except for harvests that are the result of a large scale disturbance event (e.g., stand replacing 

fire, wind storm, or insect or disease outbreak), any even-aged regeneration timber harvest unit

(e.g., clearcutting, seed tree cutting, shelterwood cutting) will not exceed 40 acres without 60 

days public notice and review by the Regional Forester.

7 The annual, forestwide sale of timber shall not exceed the quantity which can be removed 

annually in perpetuity on a sustained-yield basis (sustained yield limit), except as defined by the 

NFMA.

32

8 Harvesting systems shall primarily be selected for their ability to move toward ecological 

desired conditions for the site and not for their ability to provide the greatest dollar return or unit 

output of timber.

 

31 Management activities to meet resource objectives other than timber production (e.g., fuelwood harvest, thinning, and habitat 

enhancement) are permitted on all lands, “suitable” and “not suitable”. For example, timber harvest for purposes other than 

timber production may be necessary to enhance habitat for threatened and endangered species or to improve conditions within 

a wildland-urban interface or in recreation sites.

32 16 U.S. Code § 1611(a)(b) Timber
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Sustainable Forestry and Forest Products Guidelines (FW-FFP-G) 

1 On lands classified as suitable for timber production, even-aged stands should have reached or 

surpassed 95 percent of the culmination of mean annual increment prior to having a regeneration 

harvest, unless it is needed to contribute toward achieving the desired uneven-aged vegetation 

conditions over the long term or treat unsustainable stand conditions resulting from insects, 

disease, or other damage agents.

2 On lands classified as not suitable for timber production, timber harvesting should only be used 

for making progress toward ecological desired conditions or for salvage, sanitation, public 

health, or safety.

3 Log landing areas should be located outside of areas that are especially sensitive to ground 

disturbance (e.g., riparian management zones, archeological sites, designated trails, and along 

scenery management system–concern level 1 roads), to protect the resource. When landings 

must be located in these areas, effects to the resource will be mitigated.

Management Approaches for Sustainable Forestry and Forest Products

1. During the planning of forest restoration projects, consider holding discussions with federally 

recognized tribes and land grants-mercedes that collect plants for traditional, cultural, and ceremonial 

purposes should be encouraged, to promote the plants’ persistence. 

2. Consider designing small timber contracts to accommodate small operations based in northern New 

Mexico communities.

3. When planning and implementing projects, consider working collaboratively with Federal, State, 

local governments, federally recognized tribes, and private landowners to promote integrated 

ecological and social-economic goals of harvesting forest products through the use of mechanisms 

such as Collaborative Forest Restoration Projects, Tribal Forest Protection Act, youth programs, and 

stewardship contracting authorities to support a sustainable and appropriately-scaled industry.

4. Consider utilization of woody material that results from management activities, prior to on-site 

burning and chipping.

5. Consider making fuelwood more available through public access within a project area, providing 

some decked woody material along roads, or allowing collection within utility or road corridors that 

are being thinned or cleared. 

6. Consider maintaining and expanding the partnership block program on the Carson. 

7. Consider ways to inform the public of the effects from illegal wood cutting, to ensure the 

sustainability of quality habitat over the long term. Illegal woodcutting reduces the quantity and 

quality of woodland habitat, especially piñon pine and juniper.

8. During the planning process, consider uneven- or even-aged timber harvest methods that reflect the 

scale of natural disturbances and are designed to move toward desired conditions (e.g., size class 

distribution, species composition, patch size, fuel reduction, insect and disease).

9. Consider using even-aged management prescriptions as a strategy for achieving the desired unevenaged conditions over the long term or at the landscape scale. Even-aged 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 move toward

desired conditions has been significantly impaired.
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114

10. Consider preparing pest control plans with forest health specialists that contain appropriate mitigation 

measures (e.g., planting resistant tree species, maintaining species diversity, removing damaged trees, 

and using pesticides) and monitoring procedures. Monitoring may include:

a. Measuring effectiveness of treated areas.

b. Determining effects on non-target organisms.

c. Determining effects on water quality.

d. Determining effects of pesticide that enters the soil or air.

11. Consider treatments within infrequent-fire vegetation communities (e.g., spruce-fir forest, mixed 

conifer with aspen, and piñon-juniper woodland) for ecological and socioeconomic benefits.

12. Consider designating and managing stands of mature and over-mature piñon for the gathering of 

piñon nuts and potentially restricting the harvest of fuelwood in these stands.

13. Consider prioritizing utilization of woody material that results from management activities over onsite burning and chipping.

Related Plan Content for Sustainable Forestry and Forest Products

Northern New Mexico Traditional Communities and Uses, Scenery
Chapter 2. Forestwide Plan Components

Draft Land Management Plan for the Carson National Forest

115

Recreation (REC)

Over the past 30 years, the number of recreationists and businesses that support outdoor recreation have 

increased significantly in northern New Mexico and on the Carson. The recreation-tourism industry is the 

largest economic contributor to the region attracting visitors from all over the country. Many come to 

experience the strong cultural distinctiveness and almost mystical and mythical quality the area provides, 

others come to partake in various outdoor summer and winter pursuits or to take in the beauty of the 

landscape.

As many as one million people visit the Carson annually. Most visit specifically for recreation. Generally 

there are slightly more non-local recreational visitors than local recreational visitors.

33 Hiking, walking, 

downhill skiing and snowboarding, and wildlife and scenery viewing are the primary recreation activities.

The Carson is also one of New Mexico’s premier destinations for year-round mountain biking. It has 

special trout waters for fishing and high quality hunting units. Other important recreation activities 

include off-highway vehicle and motorcycle riding, cross-country skiing, snowmobiling, gathering of 

forest products, and camping.

It is important that forest management recognizes that recreation is as diverse as the people who live 

around and use the Carson. The recreation program must be responsive to the interests of local users, as 

well as those who come from outside the area. Recreation on the Carson and in northern New Mexico

takes on a different meaning for many of the local peoples and communities who have for many 

generations called northern New Mexico home. For them, recreation can be more personal. It means 

spending time with their families to enjoy the benefits the Carson has to offer. Fuelwood or piñon 

gathering become a family outing that may include a picnic or other family activity. A parent may take a 

son or daughter hunting, who in turn takes his or her child hunting. These traditional uses create strong 

social bonds, and for many are considered important recreation activities. Many families have a favorite 

spot on the Carson, a dispersed camping area, a group shelter, or other location where families and friends 

can come together and celebrate weddings, birthdays, life-changing events, family reunions, and holidays.

Recreational opportunities can be grouped into the following types: (1) dispersed recreation; (2) 

developed recreation; and (3) motorized recreation. Dispersed recreation is any recreation outside of a 

developed site. It is the most popular form of recreation on the Carson and includes, dispersed camping, 

hiking, scenic viewing, wildlife watching, horseback riding, fishing, hunting, mountain biking, and crosscountry skiing. Dispersed recreation may provide a more solitary experience, access to more remote 

areas, a closer connection with nature, or better wildlife viewing opportunities. Secluded, less-visited 

spots may also provide better hunting, foraging, and fishing opportunities or a place to camp undisturbed. 

Among all of the dispersed uses across the forest, trail use rates the highest in both the summer and 

winter. The Carson is also popular for large family groups that enjoy dispersed camping adjacent to Forest 

Service roads or water sources.

The Carson has a variety of developed recreation facilities, including campgrounds, picnic areas, 

interpretative sites, fishing piers, overlooks, and trailheads. Developed recreation provides a more 

accessible experience, with available parking, shelters, running water, or other facilities. In many cases 

these sites are a gateway to the natural benefits that the Carson provides, such as trailheads and 

campgrounds, but others are an attraction themselves, such as group sites and fishing piers.

 

33 Adhikari, D. and J.A. Thacher. 2015. Economic impact analysis of the Carson National Forest. Albuquerque, NM: Department 

of Economics, University of New Mexico. 
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Most developed campgrounds on the Carson are fee sites and are operated by a concessionaire. The 

remaining fee sites are managed by the Forest Service through the Recreation Enhancement Act program. 

Some campgrounds are on a reservation system. Campgrounds are typically open from Memorial Day 

through Labor Day weekend. Use is highest in July and on summer holiday weekends. Most developed 

trailheads are near State highways and can be accessed year-round. Due to seasonal closures or poor road 

conditions, remote trailheads accessed from Forest Service roads are typically inaccessible in the winter.

Motorized recreation is popular across the Carson during the summer and fall. The Town of Red River 

draws a large number of visitors, who participate in motorized recreation activities during the summer 

months. In the fall hunting season, a significant increase in the use of off-highway vehicles occurs across 

the Carson. Motor vehicle use maps indicate where motor vehicle use is allowed on the national forest

and can be found on the Carson’s website. 

The Carson also provides snow-mobile opportunities in the winter. Recent below normal snowfall and 

above normal temperatures in most of New Mexico have resulted in few places that have reliable 

snowpack for snowmobile use. Portions of the Tres Piedras, Questa, Canjilon, and Camino Real ranger 

districts are destinations for winter motorized recreation on the Carson. 

Recreational settings and experiences are defined by the recreation opportunity spectrum. Outdoor 

recreation contributes to provisioning, cultural, and regulating ecosystem services. Activities (e.g., 

hunting, fishing, and fuelwood and plant gathering) are important for providing food and the social 

cultural fabric of many local communities (provisioning and cultural ecosystem services). These activities 

help maintain or control wildlife populations to improve forest and watershed health (regulating 

ecosystem service). Popular recreation activities (e.g., camping, hiking, biking, and skiing) help connect 

individuals and families to nature and contribute to tourism and the local economy (provisioning and 

cultural ecosystem services). 

Future management of the Carson recreation program must be sustainable.34 The Carson needs to provide 

healthy, safe, and well-maintained recreation opportunities that are important to local communities and 

visitors to the area. Many of the recreation facilities on the Carson were built 30-50 years ago and have 

reached the end of their useful life without significant maintenance investment. Some facilities receive 

little or no use, and no longer serve the demand that existed in years past. A sustainable recreation 

program will be able to adapt to changes in demand, available resources, and opportunities. The overall 

goal of the sustainable recreation program on the Carson is to:

• Focus resources on the most appropriate recreation opportunities, to meet changing public desires 

and demands

• Maintain or enhance visitor satisfaction with the sites and services provided

• Meet quality health and safety standards at all developed recreation sites

• Be financially sustainable

• Be environmentally sound

• Maintain community sustainability

 

34 Refer to USDA Forest Service (2010). Connecting People with America’s Great Outdoors: A Framework for Sustainable 

Recreation. 
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Sustainable recreation program goals apply to developed recreation sites and motorized recreation, but 

also to the management of dispersed recreation opportunities. Because the ability to effectively maintain 

and manage all recreation sites is limited as a result of reduced funding, the Carson will need to seek 

innovative opportunities to fund, maintain, and enhance desired recreation sites and infrastructure through 

partnership opportunities with local communities and governments, as well as organizations. Community 

engagement is essential for creating a sustainable recreation program.

Recreation Desired Conditions (FW-REC-DC)

1 The unique cultural, historical, and ecological resources of the Carson are featured through 

recreation opportunities, education, and interpretation. Visitors are connected to the importance of 

the past, present, and future of the Carson. 

2 Recreation activities important to traditional communities (e.g., hunting, fishing, camping, family or 

group gatherings, fuelwood or piñon nut collecting, and scenic driving) are available. 

3 A variety of high quality developed and dispersed recreation opportunities and activities are 

available to a diverse group of forest users, including persons with disabilities. Recreation 

opportunities are commensurate with the recreation setting and other natural and cultural resource 

values.

4 Recreation opportunities are sustainable and contribute to the economic, cultural, and social vitality 

and well-being of surrounding communities. 

5 Recreation opportunities are responsive and adaptable to changing uses and trends, and are available 

commensurate with public interest, resource capacity, and other natural and cultural resource values.

6 Conservation education, visitor information (e.g., brochures, posters, and signage) and interpretative 

information engage diverse communities of visitors and locals. These resources are readily available, 

make use of current technology, are up-to-date, and encourage increased forest stewardship, shared 

use of forest recreation resources, ecological awareness, visitor orientation, and knowledge of 

recreation opportunities.

7 Conflicts among various recreation uses and other forest uses are infrequent. 

8 Vandalism, littering, theft, illegal activity, or resource damage from recreation activities are 

infrequent. 

9 Recreation sites complement the Carson’s scenery resources and scenic character. Facilities range 

from primitive to highly developed, with an emphasis on blending the facilities with the natural 

landscape.

10 Recreation resources and facilities are well maintained and function as intended.

11 A spectrum of developed recreation opportunities characterized by varying levels of development 

and amenities consistent to the recreation setting are available. The quality, locations, and variety of 

recreation sites and their associated amenities add to visitor satisfaction and resource protection.

12 Year-round dispersed recreation occurs in mostly undeveloped, natural areas consistent to the 

recreation setting and do not impact other cultural and natural resources.
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13 A system of motorized and non-motorized trails is available in a variety of settings that provide 

differing levels of challenge, types of experiences, and linkages to local neighborhoods, 

communities, and other public lands.

Recreation Objectives (FW-REC-O) 

1 Develop and accomplish at least 1 strategy that raises awareness of discouraged practices (e.g., 

illegal dumping, shooting practices, driving on closed roads) to promote visitor safety, during 

the 10-year period following plan approval. 

2 Develop at least 2 additional methods for providing visitor information and education, during the 

10-year period following plan approval.

3 Develop at least 1 collaborative partnership for the recreation program to expand public 

awareness, understanding, and promote responsible behavior, during the 10-year period 

following plan approval.

4 Modify or accomplish 2 actions within the Carson’s Sustainable Recreation Strategy to maintain 

relevancy, every 5 years following plan approval. 

5 Rehabilitate 5 to 7 areas where dispersed camping is causing unacceptable erosion, during each 

10-year period of the plan.

Recreation Standards (FW-REC-S)

1 No new motorized roads, trails, or areas shall be constructed or designated for public, 

administrative, or permitted use where primitive recreation settings are desired (Figure A-1).35

2 Where Semi-primitive Non-motorized recreation settings are desired, no new permanent 

motorized roads, trails, or areas shall be constructed or designated for public, administrative, or 

permitted use. Any temporary road construction where Semi-Primitive Non-motorized recreation

settings are desired must be decommissioned within 2 years of project completion.

Recreation Guidelines (FW-REC-G) 

1 Recreation activities should be compatible with and managed adaptively to minimize impacts to 

at-risk species and ecological desired conditions, including in riparian management zones (e.g., 

along streams, around seeps, springs, lakes, and wetlands). 

2 All project-level decisions and implementation activities should be consistent with recreation 

opportunity spectrum classes and setting descriptions in the desired recreation opportunity 

spectrum, to sustain recreation settings and opportunities.

 

35 The desired recreation opportunity spectrum map included in this appendix represents approximate locations of desired 

recreation opportunity spectrum classes. References to desired recreation opportunity spectrum classes apply to those lands of 

a specific character (e.g., where a primitive recreation setting is desired), not precisely to those classes as mapped.
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3 Recreation facilities and improvements should be designed to minimize human and wildlife 

conflicts (e.g., bear-proof dumpsters, capped pipe used for fences, survey markers, and sign post, 

or wildlife egress in plumbing vents).

4 Managing the use of technological devices (e.g., drones, unmanned vehicles, robots) or 

recreational trends at developed recreation sites should be considered on a case-by-case basis for 

protection of public safety and other resources, and to preserve quality recreation opportunities.

5 Dispersed sites that are no longer consistent with the area’s scenic integrity objective or result in 

unacceptable ecological resource damage should be closed or rehabilitated.

Management Approaches for Recreation

1. Consider developing a sustainable recreation strategy that is economically feasible and adaptable, to 

include closing or decommissioning underutilized sites and infrastructure; developing new sites or 

trails; and upgrading existing infrastructure to meet user needs and desires.

2. Consider providing educational, safety, and other information that enhances the visitor experience at 

district offices, local visitor information centers, campgrounds, and other developed recreation sites.

3. Partner with local communities, skilled stewardship organizations, volunteers, other government 

agencies, cooperators, and permit holders to help co-manage a sustainable recreation program, 

including planning, design, implementation, operations, conservation education, and maintenance. 

Recognize partners for their roles in providing recreational opportunities.

4. Local communities are involved in partnerships and long-term relationships with stakeholders are 

fostered, to facilitate and participate in the management of sustainable recreation on the Carson. 

5. Consider working with partners and volunteers in the coordination, development, and delivery of 

educational and community outreach programs. Actively engage urban populations, youth, and 

underserved communities in programs.

6. Consider coordinating with partners early in project development using a clear and concise process to 

elicit collaborative input on sustainable recreation opportunities, needs, and potential conflicts. 

7. Consider developing motorized and non-motorized nested loop trail systems, improved connectivity 

of existing routes and communities, and opportunities for long distance travel. 

8. Consider using a sign coordinator to build partnerships with other organizations and user groups, to 

design, develop, and install new interpretive, trail, and developed recreation signage.

Related Plan Content for Recreation

Alpine and Tundra, Riparian Management Zones, Streams, Waterbodies, Wetland Riparian, Forest and 

Shrub Riparian, Cliff and Rocky Feature Guidelines, Wildlife, Fish, and Plants, Nonnative Invasive 

Species, Sustainable Rangelands and Livestock Grazing, Transportation and Forest Access, Facilities 

Infrastructure, Scenery, Special Uses, Partnerships, Wilderness, Wild and Scenic Rivers, National Scenic, 

Historic, and Recreation Trails, Haplopappus Microcephalus Botanical Area, Recommended Wilderness 

Management Area, Eligible Wild and Scenic River Management Area, Developed Winter and Summer

Resort Management Area, Valle Vidal Management Area, San Antonio Management Area
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Transportation and Forest Access (TFA) 

The Carson transportation system includes both NFS roads and trails. The system roads consist of

thousands of miles of arterial, collector, and local roads that are:

1. Open to the public, shown on the motor vehicle use map and are a maintenance level 2 through 

maintenance level 5.

2. Closed to the public for administrative use by the Forest Service, generally maintenance level 2.

3. Permitted for individual access, generally maintenance level 2.

4. Roads placed in storage, maintenance level 1.

Forest road maintenance levels, which convey the level of service provided by and maintenance required 

for a specific road, range from maintenance level 1 (basic maintenance is performed to prevent damage to 

other ecological resources) to maintenance level 5 (provides a high degree of user comfort). The majority 

of the road system on the Carson consists of roads managed to a maintenance level 2. Twenty-two bridges 

are also a part of the transportation system. The construction and maintenance of the road system includes 

the roadbed, culverts, drainages, signage, cut and fill, and clearing of brush and overgrowth. The Carson

performs routine maintenance and upkeep with a dedicated road crew and utilizes contractors for larger, 

complicated projects. Future management of roads on the forest will increasingly rely upon partnerships 

with many stakeholders to maintain the integrity of the road system, as well as vehicle safety. 

Temporary roads are roads authorized by contract, permit, lease, other written authorization or are 

necessary for emergency operations. A temporary road is not a forest road and not part of the forest 

transportation system and are not necessary for long-term management. Temporary roads are 

decommissioned upon completion of the project. 

Forest access is also provided through a system of non-motorized and motorized trails. There are

approximately 600 miles of non-motorized trails and 85 miles of motorized trails. Maintenance and 

improvements are completed primarily by a small seasonal crew. Future maintenance and improvement of 

trails will increasingly rely upon shared partnership and volunteer assistance. Trail system maintenance 

includes improving drainage, signage, and clearing dead and down trees and brush. Any new trails or 

major improvements will require substantial partner support for project planning, additional funding, 

analysis of effects, and implementation.

Motorized Access (Travel Management)

From 2010 to 2013, four separate environmental analyses were conducted to identify and designate 2,613 

miles of road and 85 miles of trail open to motor vehicle use under the 2005 Travel Management Rule (36 

CFR §§ 212, 251, 261, and 295). These roads and trails are identified on motor vehicle use maps by area: 

(1) Jicarilla Ranger District; (2) Tres Piedras, El Rito, and Canjilon ranger districts; (3) Questa Ranger 

District; and (4) Camino Ranger District. Some of the designated roads and trails are open seasonally, 

while others are open year-round. Currently, the Carson has not designated any areas open to crosscountry motorized use (e.g., play areas). Consistent with the Travel Management Rule, motor vehicle use

off designated roads and trails or outside of play areas identified on a motor vehicle use map is prohibited 

on the Carson. 
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In the winter, the Carson is a destination for motorized over-snow use, with portions of the Tres Piedras, 

Questa, Canjilon, and Camino Real ranger districts open to snowmobiling. These areas are identified on 

the over-snow vehicle use map,

36 separate from the motor vehicle use map. 

The designated road and motorized trail system provides motor vehicle (e.g., autos, trucks, off-highway 

vehicles, utility task vehicles, motorcycles, and e-bikes) access to areas on the Carson, including private 

land inholdings, recreation sites, fuelwood and forest product gathering areas, administrative and 

recreation facilities, and to support forest and resource management. This system allows visitors to gain 

access to the many provisioning and cultural ecosystem services important to them. Roads allow access 

for fuelwood gathering, hunting, fishing, hiking, mountain biking, and other forms of recreation. Local 

businesses and communities benefit from visitors who can safely access and experience the Carson on 

NFS roads and trails.

Unauthorized Roads

The 2015 Carson Travel Analysis Plan identifies opportunities for decommissioning, placing into 

intermittent stored service, or converting to other uses, approximately 1,950 miles of non-system roads

(e.g., user-created routes and old timber roads) on the Carson. These roads remain unauthorized until one 

of two decisions is made: 1) the permanent purpose of the road is determined and it becomes part of the 

Carson roads system or 2) the road is determined to be necessary for emergency operations or authorized 

by contract, permit, lease or other written authorization in which case it becomes a temporary road but not 

part of the roads system. System roads should be maintained to the standards required of their

maintenance level. Temporary roads should be decommissioned at the end of their use. Unauthorized 

roads that are unneeded should be slated for decommissioning or converted to other uses. 

Non-motorized Access

All Carson lands are open to the public and can be accessed through non-motorized means. To facilitate 

access and use, the Carson currently maintains approximately 600 miles of non-motorized trails. Similar 

to the road system, the non-motorized trail system allows visitors to gain access to the many provisioning 

and cultural ecosystems services important to them. This section provides forest management for the 

maintenance of its system trails. The Recreation section in this plan provides forest management for the 

many opportunities and experiences that can be provided by a well maintained and functional trail system. 

Transportation and Forest Access Desired Conditions (FW-TFA-DC)

1 Roads, bridges, and trails are well-marked and provide safe and reasonable access for public travel, 

recreation uses, traditional and cultural uses, and land and resource management activities, as well as 

contributing to the social and economic sustainability of local communities.

2 Motor vehicle use maps accurately reflect current designations.

3 The road and trail sign system is maintained and provides for traveler safety, location information, 

and compliance.

4 System road and trail infrastructure has minimal impacts on ecological and cultural resources.

 

36 Or other, most current direction such as the forest visitor map.
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5 Unauthorized roads and trails are determined for their purpose in the transportation system or 

determined to be unneeded. Unneeded roads and trails, are decommissioned to reduce impacts to 

ecological resources (i.e., watersheds, wildlife, and soil erosion) and improve habitat connectivity. 

Transportation and Forest Access Objectives (FW-TFA-O) 

1 Obliterate or naturalize at least 20 miles of unneeded roads within the 10-year period following

plan approval.

2 Grade surfaces and clean culverts and ditches on at least 500 miles of open National Forest 

System roads annually.

3 Maintain at least 100 - 300 miles of trails (including motorized) annually. 

4 Maintain at least 10 - 20 percent recreation signage, during each 5-year period of the plan.

Transportation and Forest Access Standards (FW-TFA-S) 

1 Motor vehicle use off the designated system of roads, trails, and areas identified on the Carson’s 

most updated motor vehicle use map is prohibited, except as authorized by law, permits, or 

orders, to protect public safety and ecological resources.

2 Over-snow use outside of designated areas identified on the Carson’s most updated over-snow 

vehicle use map37 is prohibited, except as authorized by law, permits, or orders, to protect public 

safety and ecological resources.

3 Temporary roads that support ecosystem restoration activities, fuels management, or other shortterm projects shall be decommissioned upon project completion, to protect watershed condition, 

minimize wildlife disturbance, and prevent illegal motorized use. 

Transportation and Forest Access Guidelines (FW-TFA-G) 

1 Unauthorized and maintenance level 1 roads within a project area should be evaluated for use 

(e.g., temporary, administrative use, placed in storage) prior to any new road construction, to 

minimize negative impacts to ecological and cultural resources. 

2 Construction of new system roads should be accompanied by a mitigating action (e.g., 

decommissioning) of other unneeded roads, and trails to offset any resource damage resulting 

from their construction. 

3 All system roads not open to the public and unauthorized roads within an ecosystem restoration 

project area should be evaluated for need (e.g., administrative use, placed in storage, open to the 

public) or determined to be unneeded (available for decommissioning) to reduce the amount of 

system roads that need to be maintained.

 

37 Or other, most current direction such as the forest visitor map.
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4 Unauthorized roads and maintenance level 1 roads should be evaluated based on transportation 

system need, long term effects to adjacent resources, and capacity to maintain additional system 

roads in order to identify roads eligible for decommissioning. 

5 Bridges and other structures determined to be important habitat for at-risk wildlife (birds, bats, 

etc.) should be retained unless demolition is necessary to ensure public safety. 

6 Road construction and maintenance activities should avoid or minimize habitat disturbance of

known at-risk species, to maintain the persistence of at-risk species. 

7 To improve habitat connectivity, methods that accommodate wildlife (e.g., fencing, underpasses, 

overpasses, larger culverts) should be used when constructing or reconstructing highways or 

high traffic volume Forest Service roads. 

8 System roads and trails should accommodate terrestrial and aquatic wildlife species movement 

and habitat connectivity.

9 System trails found to adversely impact at-risk species habitats should be seasonally or 

permanently closed or alternative travel routes should be developed.

10 Where recreation or other management activities have the potential to trample known 

populations of at-risk plant species, signs should be posted educating the public to stay on 

designated trails and avoid impacts.

Management Approaches for Transportation and Forest Access

1. Good relationships and communications with internal and external customers as well as partners are 

important. Consider notifying county and other potentially affected users (including permit holders) 

of changes in road status or significant deviations in traffic pattern of a month or greater duration.

2. Collaborative relationships with adjacent stakeholders and public land managers are actively 

encouraged, to develop contiguous road and trail systems across multiple ownerships. Where possible 

seek opportunities for acquiring access through private lands to promote trail connectivity and 

manageability.

3. Consider continuing current road maintenance agreements and seeking to enter into new agreements 

with other entities including Federal, State, and local government agencies, as well as private 

organizations and individuals to provide safe travel on all roads, as well as to prevent or mitigate 

resource damage. 

4. While developing the proposed action for environmental analysis, consider incorporating 

decommissioning of roads that are redundant, adversely impact flow regimes, or cause resource 

damage.

5. Consider predicted future runoff, when reconstructing existing or building new roads. 

6. Consider maintaining a spatial database of existing roads, including roads needed for public access, 

future project use, administrative use, and access to private land.
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Facilities Infrastructure (FAC)

The Carson provides for the maintenance and construction of multiple facilities and sites on NFS lands. 

Most of this work is completed through the use of qualified private contractors. Facility infrastructure 

includes the site (e.g., driveways, parking, landscaping), buildings, and the utilities (e.g., electric, water, 

wastewater) that service the site and building. The Carson has both administrative and recreation sites and 

facilities that it must maintain as safe and functional for employee and public use.

Administrative facilities are the support facilities for Forest Service personnel. Many of the 

Administrative facilities are accessible to the general public for getting information and buying permits. 

The Carson has many recreation facilities and sites that is manages. These include campsites, trail heads, 

scenic vistas, vault toilets and other structure or sites that support recreation opportunity on the Carson. 

The Forest also maintains 22 dams within its boundaries. 

Other infrastructure the Carson constructs and maintains (e.g., fish barriers and range improvements), are 

addressed elsewhere in the land management plan. The Carson also manages communication sites and 

utility corridors through special use permits, but does not provide the maintenance or construction of 

these sites. This infrastructure is addressed in the special use section of the land management plan. 

Facilities do not detract from ecological sustainability when they are properly designed, integrated within 

the landscape, and well maintained. Negative economic and social contributions could result from having 

to close sites, because funds are inadequate for appropriate maintenance to keep sites safe for human use. 

Closures would reduce or limit opportunities to access and gain enjoyment from recreational resources 

and experiences. Ecological damage would result from a key dam failure, site erosion, or issues with 

septic systems.

Recreation facilities infrastructure (i.e., campgrounds, dams that support fishing areas, scenic vistas, and 

toilet facilities) allow for recreation opportunities, which support communities directly (e.g., ski area and 

outfitter guide jobs) and indirectly (e.g., increased tourism in community lodging, shops, and restaurants). 

A well planned, managed, and maintained Forest Service infrastructure allows for these opportunities.

Facilities Infrastructure Desired Conditions (FW-FAC-DC)

1 Facilities are safe, well maintained, function as intended, and accessible to persons with disabilities. 

2 Facilities are energy-efficient and renewable energy, such as solar power and biomass technology, is 

used for a power source. Water consumption in Forest Service buildings, grounds, and related 

facilities is efficient and not wasted. 

3 Facilities complement the Carson’s scenery resources and character. 

Facilities Infrastructure Guidelines (FW-FAC-G) 

1 Facilities no longer utilized as intended should be repurposed to accommodate a new use or be 

decommissioned, to minimize maintenance backlog and infrastructure deterioration, and to 

protect public safety and health.

2 Facilities and structures should be designed and maintained to minimize impacts to terrestrial 

and aquatic species (e.g., bear-proof dumpsters, capped pipe used for fences, survey markers, 

and sign post, or wildlife egress in plumbing vents). 
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Scenery (SCEN)

Some of the finest mountain scenery in the Southwest is found across the Carson. Elevations rise from 

6,000 to 13,161 feet at Wheeler Peak, the highest peak in New Mexico. The Carson offers breathtaking 

views of far off mountains, the valley below, and unsurpassed sunsets from almost every elevation. Green 

forests with lingering mountain meadows, streams, colorful wild flowers, and vibrant fall colors are all 

peppered throughout the Carson’s broad landscape. The Carson also offers open landscapes full of desert 

vegetation and beautiful canyon backdrops rich in colorful clays. At night, the stars are unhindered by 

urban lights and provide a spectacular light show. 

Research shows there is a high degree of public agreement regarding scenic preferences and people tend 

to value most highly more visually attractive and natural-appearing landscapes. Scenic characteristics are 

important in creating a sense of place for local residents and visitors alike. They provide a sense of 

attachment to nature and a sense of serenity or excitement, depending on the purpose of the visit. The 

Carson is the scenic backdrop for many communities in northern New Mexico. Scenery defines the

region’s character and contributes to the experiences people seek on the Carson (cultural ecosystem 

services). All landscapes have definable scenic character attributes. In most national forest settings, scenic 

character attributes are positive natural elements, such as landform, vegetation patterns, and water 

characteristics.

Places are based on people’s shared image of specific geographic areas and serve as the primary unit for 

the Carson National Forest scenery management system inventory (Figure A-2). Places establish the 

physical context of recreation settings. Places serve well as an interdisciplinary analysis unit, to foster 

open public dialog, provide geographic focus and a shared understanding of resource issues, and also 

build supportive relationships necessary for community-based ecosystem stewardship. Places focus on the 

aesthetic, recreational and social values of a geographic area, reflecting its history, culture, social meaning 

and human attachments to the land, as well as the bio-physical attributes of an area. 

During the places identifying process, the physical boundaries are of less importance than its core values. 

These values create a “sense of place” and make each place important and unique. Key attributes of

places may range widely, and can include social, emotional, mental, spiritual, political, economic, 

aesthetic, occupational, recreational, biological, and physical aspects. These places encompass multiple 

jurisdictions and ownerships. The Carson identified 24 places on the forests that have unique 

place/landscape character descriptions. 

The landscape character is the unique combination of the physical, biological and cultural images that 

give each place its positive scenic identity. The ability of a landscape to absorb or recover from alterations 

was also included in this description. By identifying the existing valued attributes, landscape character 

provides a frame of reference to determine scenic attractiveness, measure scenic integrity, and describe 

the recreation setting.

Scenery Desired Conditions (FW-SCEN-DC)

1 The Carson contains a variety of ecologically sound, resilient, and visually appealing landscapes that 

sustain scenic character in ways that contribute to visitors’ sense of place and connection with 

nature.

2 Naturally appearing landscapes are interconnected throughout the Carson and connected to natural 

landscapes outside the national forest boundary. 
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3 Landscapes possess vegetation patterns and compositions that are naturally variable in appearance 

and contribute to scenic values. The natural and cultural features that provide a sense of place are 

intact.

4 Visitors have opportunities to experience important scenic elements (e.g. fall colors, rolling 

grasslands, picturesque vistas, and green riparian corridors).

5 The Carson appears predominantly natural and human activities do not dominate the landscape.

6 High-quality scenery dominates the landscape in areas the public values highly for scenery (e.g., 

scenic byways, major roads and trails, and developed recreation sites) and high scenic integrity areas 

(e.g., wildernesses, wild and scenic rivers (wild classification only), inventoried roadless areas). 

7 Scenery reflects ecosystem diversity, enhances recreation settings, and contributes to the quality of 

life for local residents and communities, as well as forest users from outside the area. 

Scenery Guidelines (FW-SCEN-G) 

1 Constructed features, facilities, and other infrastructure activities should blend with the natural 

appearing landscape and compliment the natural setting. 

2 Management activities should minimize visual disturbances and be consistent with or move the 

area toward achieving scenic integrity objectives (Figure A-2): 

a. In areas with very high scenic integrity objectives, the scenic character should have only 

minor, if any, deviations.38 The areas should appear unaltered, with the majority of the area 

dominated by ecological processes. Range facilities are allowed, but mitigation measures 

should be used to minimize impacts to scenic quality.

b. In areas with high scenic integrity objectives, the scenic character should appear intact but 

may include deviations that are not evident (e.g., completely repeat the scenic attributes of 

size, shape, form, line, color, texture, or patterns common to the scenic character).

c. In areas with moderate scenic integrity objectives, the scenic character may appear slightly 

altered. Management activities, manmade structures and facilities should not dominate the 

scenic character (e.g., repeat the scenic attributes of size, shape, form, line, color, texture, or 

patterns common to the scenic character). 

d. In areas with low scenic integrity objectives, the scenic character may appear moderately 

altered. Management activities including manmade structures and facilities may begin to 

dominate the scenic character but use scenic attributes to blend into the landscape (e.g., 

repeat the scenic attributes of size, shape, form, line, color, texture, or patterns common to 

the scenic character). 

 

38 Deviations as defined by Agricultural Handbook 701 (USDA FS 1995) are departures from scenic character and can be 

positive, negative, or have no effect.
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3 Management activities that result in short-term impacts inconsistent with scenic integrity 

objectives should achieve the scenic integrity objectives over the long term. Short-term and 

long-term timeframes should be defined during site-specific project planning.

4 Effects to scenery from prescribed fire should be considered during project planning and 

implementation. Efforts should be made to minimize high intensity fire along areas valued 

highly by the public for scenery (as defined by concern level 1 travelways and use areas in the 

Scenery Management System), unless necessary to meet management objectives or ensure 

public safety.

Management Approaches for Scenery

1. The scenery management system is a tool for inventorying and managing scenic resources. Consider 

using this system to incorporate scenery management principles into the planning, design, and 

implementation of projects and management activities. 

2. Consider displaying interpretive or informational signs at sites with impacts to scenery to inform the 

public about the nature and consequences of such projects or events. 

3. Consider cooperating with other entities, such as the New Mexico Department of Transportation, 

Tribal and local governments, and commercial and private entities to protect scenic integrity on, and 

adjacent to, the Carson, including along scenic byways.
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Special Uses (SU)

Special use 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–lands and recreation. Additional direction for managing special uses is 

specified in Forest Service directives.

Lands special use permits are authorized for infrastructure related uses, such as communication sites, 

utilities (e.g., electrical, communication, and internet lines), pipelines (e.g., natural gas and water), road 

access, sanitation, and alternative energy development. Activities, such as research and monitoring and 

commercial filming are also permitted uses. Communication sites are critical to ensuring good 

communications across northern New Mexico and contributing to national infrastructure systems. Utility 

and energy transmission rights-of-way, along with communication sites, are generally long-term 

commitments of NFS lands. Requests to use NFS lands for communication and electronic sites have 

increased over the past few years, and will likely increase. More demand for utility lines, renewable 

energy sources, community infrastructure, and private land access on NFS lands is also expected. Figure 

A-3 displays the designated communication and electronic site and public utility corridor locations on the 

Carson. 

Recreation special use 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 area

where the use will occur. Permitted private commercial ventures include ski areas, outfitters and guides,

events, as well as recreation residences. Issuing recreation permits enables the Forest Service and its 

partners to serve visitors and local communities by providing a broad range of nature- and heritage-based 

outdoor recreation and tourism opportunities that promote the responsible use and enjoyment by local 

communities and their visitors. These permitted uses also promote economic sustainability in local 

communities through the commercial opportunities provided by special use permits. Directly through jobs 

created by the permit holder and indirectly through spending by the clients of a permit holder. 

The administration of lands special use permits seeks to minimize impacts to forest resources and 

ecosystem services, such as scenic vistas (cultural ecosystem service) and wildlife habitat and soil 

function (supporting ecosystem services), while still meeting the infrastructure needs of the public

(provisioning ecosystem services). Permitted recreation activities provide the opportunity for guided 

hunting and fishing, or accessing a wilderness on horseback to just experience natural surroundings in a 

primitive setting (cultural and provisioning ecosystem services). Recreation special use permits are 

mostly authorized to small businesses that help support local communities and economies (provisioning 

ecosystem services) and contribute to the social vitality and quality of life by promoting recreational and 

educational opportunities (cultural ecosystem services).

Special Uses Desired Conditions (FW-SU-DC)

1 Special uses contribute to the local economy by providing small business opportunities.

2 Special uses activities support the public’s need and conflicts with multiple-use opportunities 

afforded to other forest users are minimized. 

3 The number of communication and electronic sites are the minimum required to meet the needs of 

the Forest Service and appropriate public services.

4 Permitted utility infrastructure is in the public interest and is the minimum required to meet the 

needs of the public. 
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5 Vegetation conditions and land uses within a right-of-way or easement facilitate the operation and 

management of the associated facilities and structure and may differ from the surrounding vegetation 

desired conditions.

6 Recreation special uses provide unique opportunities, services, and experiences for the recreating 

public and address a demonstrated demand for a specific recreation opportunity.

7 Services provided by recreation special uses enhance the recreation experiences of forest visitors, 

increase public understanding and respect for the Carson National Forest and nearby communities, 

provide for public health and safety, and have minimal impact to ecological and cultural resources.

8 Permitted outfitter and guide activities do not conflict with the experiences of other forest visitors.

Special Uses Standards (FW-SU-S) 

1 Communication and electronic equipment or system upgrades at designated sites shall not 

interfere with other services.

2 No new transmission utility corridors shall be designated.

3 Use of domestic sheep or goats through special use permit authorization (e.g., by outfitters and 

guides or for filming) is prohibited in bighorn sheep occupied habitat39. 

Special Uses Guidelines (FW-SU-G) 

1 Environmental disturbance should be minimized by co-locating communication and electronic 

equipment, pipelines, powerlines, fiber optic lines, and associated infrastructure.

2 To prevent unnecessary environmental disturbance, local energy distribution lines and smaller 

pipelines should be located in conjunction with the existing road system or other previously 

disturbed areas.

3 To prevent unnecessary environmental disturbance, existing utility rights-of-way should be used 

to their capacity, before evaluating new routes.

4 New or upgraded energy and utility lines should be located and designed to minimize impacts to 

wildlife, scenery, and wildfire risk. 

5 Existing communication sites should be utilized prior to designation of a new site, to minimize 

impacts to ecological and cultural resources. 

6 Organized group events (non-motorized and motorized) authorized under a special use permit

should be limited to existing NFS trails and roads, suitable developed sites, or where resource 

impacts are determined to be minimal.

 

39 As defined by New Mexico Department of Game and Fish or best available science
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Management Approaches for Special Uses

1. Consider authorizing special use permits for recreation events and outfitting and guiding services 

based on any current and future capacity studies and administrative capabilities.

2. Consider using tools that assist in efficiencies to the program or that expand administrative capacity 

(e.g., Environmental Assessment and Decision Making, special use modernization efforts, regional 

billing team, proposed statewide outfitter/guide permits). 

3. Consider including in the operations and maintenance plan of recreation residence special uses 

authorizations to use the most recent edition of “A Guide to Maintaining the Historic Character of 

Your Forest Service Recreation Residence” for guidance on any improvements or maintenance to 

eligible historic or unevaluated recreation residences.
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Lands (LAND)

The Carson encompasses 1,587,097 total acres, with 1,486,372 acres administered by the Forest Service 

and 100,725 acres in other ownership within its boundaries. Many of the other ownership areas are small 

towns and communities, but a large number are small parcels of privately owned lands. In addition, much 

of the national forest boundary adjoins State, BLM, and tribal lands. Ecological processes are seldom 

confined by administrative and jurisdictional boundaries; therefore, the impacts of management policies 

on adjacent lands must be recognized by the Carson. Restoration activities to improve watershed health, 

increase water quantity, improve water quality, generate rural prosperity, and meet a shared vision of 

healthy, resilient landscapes cannot happen in a fragmented manner, but must be on a scale that 

supersedes ownership. An all-lands approach brings landowners and stakeholders together across 

boundaries to decide on common goals for the landscapes they share. It brings them together to achieve 

long-term outcomes. Our collective responsibility is to work through landscape-scale conservation to 

meet public expectations for all the services people get from forests and grasslands.

The lands program handles land adjustments and identifies and maintains land line locations between 

National Forest System (NFS) lands and lands of other ownership. Boundary identification is important to 

prevent encroachment onto NFS lands. Land adjustments consolidate and improve management 

efficiency of resources through real estate transactions, including sales, purchases, exchanges, 

conveyances, donations, and rights-of-way within the Carson National Forest boundary.

Lands Desired Conditions (FW-LAND-DC)

1 NFS lands exist as a mostly contiguous land base that best provides for and contributes to long-term 

socioeconomic diversity and stability of local communities, management of vegetation and 

watershed health, wildlife habitat and diversity, and recreation and scenic opportunity.

2 Rights-of-ways provide access to private property inholdings. 

3 Forest boundaries are identified and correctly marked.

4 Right-of-way access to forest lands exist where required through other lands.

Lands Guidelines (FW-LAND-G) 

1 Rights-of-ways for roads, utilities, and communications sites should maximize use of existing 

infrastructure before new uses are authorized, to minimize natural resource impacts.

2 Only one access route should be authorized to each private property inholding, regardless of the 

number of property owners. No new access points to private property should be authorized if a 

parcel is subdivided, to minimize natural resource impacts on NFS lands.

3 Rights-of-way easements should be granted only when no other reasonable access alternatives 

exist, to minimize road impacts. 

Management Approaches for Lands

1. Collaborative relationships with adjacent stakeholders and public land managers are actively 

encouraged to develop contiguous habitat connectivity across multiple ownerships.
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2. Collaborative relationships with rural historic communities that are dependent on the Carson are 

actively encouraged, to ensure traditional and cultural uses are incorporated into the management of 

any newly acquired lands.

3. Consider working with private land owner easement grantors to avoid compromising continued 

access.
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Wildland Fire Management (FIRE)

Wildland fire is any non-structure fire that occurs in the wildlands, including unplanned human- or 

naturally-caused fires or prescribed fires (i.e., planned ignitions).40 Most of the vegetation on the Carson

National Forest is adapted to recurrent wildland fires started by lightning from spring and summer 

thunderstorms. Frequent low-intensity and low-severity fires play a vital role in maintaining the health of 

many fire-adapted ecosystems (supporting and regulating ecosystem services). Fire–both planned and 

unplanned–is a tool for restoring these fire-adapted ecosystems, if properly managed. When appropriate 

weather and fuel conditions exist, the use of wildland fire is a cost-effective tool for reducing the 

likelihood of uncharacteristic wildland fire and restoring ecosystem function. 

The risk of uncharacteristic wildland fire can be reduced when fires occur within a vegetation type’s 

historic fire regime. Vegetation structures that are more consistent with desired conditions support

ecosystems that are resilient to fire disturbance. In addition to fire treatments, management activities, such 

as thinning and tree harvesting, may be needed to reduce tree density and canopy cover and support the 

natural fire regime. Strategic placement and design of fuels treatments are key to efficiently minimizing 

the impact from fire on values to be protected because these activities are costly and there is limited 

capacity to accomplish them.

The wildland-urban interface is the area or zone where structures and other human development meet and 

intermingle with undeveloped wildland or vegetation fuels. Generally, the wildland-urban interface is a 

buffer of at least 0.5 mile around communities, private lands, or other infrastructure, though it may vary 

based on topography, fuels, and values at risk. This plan does not define wildland-urban interface

boundaries. It may be most helpful to think of the wildland-urban interface not as a place, but rather as a 

set of conditions that can exist in and around nearly every community and surround other infrastructure. 

These conditions are defined by the amount, type, and distribution of vegetation; the flammability of the 

structures (homes, businesses, outbuildings, decks, fences) in the area and their proximity to fire prone 

vegetation and other combustible structures; weather patterns and general climate conditions; topography, 

hydrology, average lot size, road construction, and more.

Wildland Fire Management Desired Conditions (FW-FIRE-DC)

1 Wildland fires burn within the range of severity and frequency of historic fire regimes for the 

affected vegetation communities. High-severity fires rarely occur, where they were not historically 

part of the fire regime.

2 Wildland fire protects, maintains, and enhances resources and moves ecosystems toward desired 

conditions. Wildland fire functions in its natural ecological role on a landscape scale and across 

administrative boundaries, under conditions where safety and values at risk can be protected. In 

frequent fire systems, regular fire mitigates high-severity disturbances and protects social, economic, 

and ecological values at risk.

3 Planned and unplanned natural ignitions predominate. Unplanned human caused ignitions are rare.

4 Wildland fires do not result in the loss of life, property, or cultural resources, or create irreparable 

harm to ecological resources.

 

40 Guidance for the implementation of Federal Wildland Fire Management Policy (Fire Executive Council 2009) 

provides for the consistent implementation of the 1995/2001/2003 Federal Fire Policy.
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5 Wildland fires in the wildland-urban interface are predominantly low to moderate intensity. 

Residents living within and adjacent to the Forest are knowledgeable about wildfire protection of 

their homes and property, including providing for defensible space. 

6 Wildland fire is understood, both internally and by the public, as a necessary disturbance process 

integral to the function and sustainability of ecosystems.

Wildland Fire Management Standards (FW-FIRE-S) 

1 Human safety shall be the highest priority in all fire response actions.

2 The response to wildfire will be spatially and temporally dynamic based on a risk management 

approach while accomplishing integrated resource objectives.

3 Managers will use a decision support process to guide and document wildfire management 

decisions. The process will provide situational assessment, analyze hazards and risk, define 

implementation actions, and document decisions and rationale for those decisions.

4 When suppression is an objective the agency administrator must consider firefighter exposure, 

risk, values, cost, and likelihood of success, before trying to limit the size of wildfires. 

5 Human-caused fires and fires that threaten life, investments, and valuable resources (e.g., 

cultural resources, wildland-urban interface) must be suppressed safely and cost effectively and 

must not be managed for resource benefits.

6 Aerial application of retardant in live water, wetlands, and riparian areas must be avoided unless 

necessary to protect human safety or prevent property loss.

7 Planned ignitions in wildernesses shall not be justified because they improve wildlife habitat, 

maintain vegetation types, improve forage production, or enhance other resource values; 

although these additional effects may result.41

Wildland Fire Management Guidelines (FW-FIRE-G) 

1 To restore fire on the landscape, naturally ignited fires (including those occurring in designated 

areas) should be managed to meet multiple resource objectives when fire weather conditions 

facilitate progress toward desired conditions (per desired conditions of various resources 

throughout the plan).

2 Measures should be taken to prevent entrapment of fish and aquatic organisms and the spread of 

parasites or disease (e.g., chytrid fungus, Didymo, and whirling disease), when drafting 

(withdrawing) water from streams or other water bodies for fire suppression activities.

3 Measures should be taken to prevent the spread of invasive plant species by equipment, 

personnel, or rehabilitation operations.

 

41 Planned ignitions may be used to reduce to an acceptable level the risks and consequences of wildfire within wilderness or 

escaping from wilderness.
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4 Minimum impact suppression techniques should be used in designated areas and when impacts 

to sensitive resources (including wilderness and known rare or sensitive plants) could result 

during fire suppression activities.

5 The wildland-urban interface should be spatially delineated for projects that manage toward 

wildland-urban interface-specific desired conditions, to identify where those desired condition 

are applicable. 

6 Fire management activities should protect cultural resources, with priority given to known sites 

where eligibility is unevaluated and to historic properties. 

7 Fire management activities should be conducted in a manner that avoids irreversible damage to 

at-risk species, to maintain the persistence of at-risk species. 

8 Post-fire restoration and recovery should be provided where critical resource concerns merit 

rehabilitation for controlling the spread of invasive species, protecting areas of cultural concern, 

protecting critical or endangered species habitat, or protecting other highly valued resources. 

Management Approaches for Wildland Fire Management

1. Consider managing naturally ignited fires to meet multiple resource objectives concurrently (i.e., 

protection and resource enhancement), which can change as the fire spreads across the landscape. 

Objectives are based on interdisciplinary assessment of site-specific values used to develop incident 

objectives and courses of action to enhance or protect those values.

2. In areas that are moderately to highly departed from desired conditions consider accepting higher fire 

intensities and associated fire effects at the fine scale. Multiple small areas of high mortality may be 

preferable to a single large, high-severity event.

3. Consider promoting public safety and reducing the risk of wildfire on lands of other ownership by 

supporting the development and implementation of community wildfire protection plans (CWPPs).

4. Consider working with fire and project managers to develop practices and protocols to reduce nonprescribed human ignitions through information, education, and interpretive programs. Educate the 

public on their responsibility to help reduce human-caused wildfires by providing information in the 

form of signage, public contacts, and fire restrictions.

5. Consider planning and accomplishing fuels projects, planned ignitions, and all hazard response by 

working collaboratively with Federal, State, and local governments, local fire departments, and 

private landowners.

6. Consider prioritizing treatments based on their benefit to ecological integrity or the ability to manage 

future fires to protect values at risk.

7. Consider assigning a wilderness resource advisor to all fires in wilderness that are not suppressed 

during initial attack.

Related Plan Content for Wildland Fire Management

Nonnative Invasive Species (NIS), wildland-urban interface desired conditions for each vegetation 

community. 
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Minerals and Mining (MM)

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 (30 U.S.C. 181), as amended, are referred to as leasable minerals. Common 

varieties of rock, sand, stone, gravel, pumicite, and clay that may be acquired under the Materials Act of 

1947 (30 U.S.C. 601–604) are considered salable minerals or common variety mineral materials. Minerals 

that are not salable or leasable (e.g., 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 Act of 1872 (30 

U.S.C. 22-42), as amended, and for the most part are outside the scope of this plan.

No active locatable mineral mines occur on the Carson, although uranium deposits do exist and the 

Carson has two inactive uranium mines. The Carson contains numerous abandoned gold and silver mines. 

Several streams on the Carson are used for recreational gold panning. There are known rare-earth deposits 

in the Petaca Mining District.

Within Valle Vidal of the Questa Ranger District, the Valle Vidal Protection Act of 2005 (Public Law 109-

385) withdraws (1) all forms of entry, appropriation, and disposal under the public land laws; (2) location, 

entry, and patent under the mining laws; and (3) operation of the mineral leasing and geothermal leasing 

laws and common variety mineral materials laws. This withdrawal is subject to valid existing rights. A 

private corporation currently holds coal rights on approximately 60,000 acres of Valle Vidal. 

Saleable materials on the Carson include sand and gravel, decorative stones, and clay. The Carson

provides opportunity for local communities to harvest these products from designated areas. The current 

use of these materials is such that existing sites can remain functional over an extended time.

Renewable energy sources on the Carson are limited to solar and geothermal energy. The Carson does not 

have any water resource that could support hydropower development and, due to terrain and accessibility 

issues, the Carson is considered to have low wind power potential. The Forest does have good potential to 

provide solar and geothermal power as a source of renewable energy. No existing renewable energy 

sources have been developed on the Carson for commercial or noncommercial use.

Mining and mineral resources provide provisioning and cultural ecosystem services important to 

communities and people around the Carson. Provisioning ecosystem services are provided through natural 

gas deposits, mineral resources, renewable energy generation potential, and electric transmission lines 

that cross NFS lands. Cultural ecosystem services are provided by clay deposits and other stones used in 

artwork and traditional practices.

Minerals and Mining Desired Conditions (FW-MM-DC)

1 Energy, mineral, and mining activities meet the legal mandates to facilitate the development of 

minerals in a manner that minimizes adverse impacts to surface and groundwater resources, 

watershed and forest ecosystem health, wildlife and wildlife habitat, scenic character, and other 

desired conditions applicable to the area.

2 Reclamation of energy, mining, and mineral activity sites provides for public safety and the 

protection of forest resources, and are in a natural condition.

3 Mining activities are not visually evident along major highways.
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4 Information on Forest Service operating requirements and opportunities for recreational gold 

prospecting, gold panning, and related activities are available.

5 Common variety mineral materials are available for personal and commercial use consistent with 

other resource desired conditions.

Minerals and Mining Standards (FW-MM-S) 

1 Structures or occupancy for mining purposes shall be limited to only those that are necessary and 

incidental to approved mining operations.

2 Oil and gas leasing, exploration, and development is prohibited outside the Jicarilla Natural Gas 

Management Area (JICMA), until a leasing analysis has been conducted in accordance with 36 

CFR 228 § 102.

Minerals and Mining Guidelines (FW-MM-G) 

1 To reduce erosion, restoration and reclamation of surface disturbance associated with mineral 

activities should be implemented to achieve 70 percent of groundcover (as compared to nearby 

undisturbed areas) with permanent native vegetation within 3 growing seasons.

2 To reduce ecological impacts, reclamation should be carried out concurrently with mining. 

Restoration of the environment takes place at the earliest opportunity for each area on a mine 

site.

Management Approaches for Minerals and Mining

1. Consider the potential to use sites for mineral collection areas during the development of a 

reclamation plan.
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Partnerships (PART)

Successful implementation of the land management plan will require the development of new and existing 

collaborative partnerships with Federal, State, and local governments, federally recognized tribes and 

pueblos, non-profit organizations, private landowners, and the public. Collaborative partnerships may 

include identifying, planning, funding, and implementing projects and activities together with others. 

Partnership opportunities begin with building strong relationships. Partnerships with rural historic 

communities, land grant-merced and acequia governing bodies, and federally recognized tribes will 

improve trust and contribute to projects that best provide for cultural, social, and economic needs. 

Partnerships with other government entities and nonprofit organizations will increase the Carson’s ability 

to do quality restoration work and to develop and provide improved recreation opportunities. 

The Forest Service does not expect to have the personnel or funding resources to successfully execute the 

many projects desired by the public and communities who use the Carson National Forest. Partnering 

with others across boundaries creates a dynamic of shared work, assets, and ideas, and will lead to 

ecological, social, and cultural projects that benefit the greater forest community.

Partnerships Desired Conditions (FW-PART-DC)

1 Partners and volunteers are a collaborative network that increases capacity for managing forest 

resources, assists in communicating with and educating the public, and is a crucial component to 

achieving short and long-term mutually shared goals (e.g., restoration and sustainable recreation). 

2 Open communication with partners about expectations and partnering opportunities encourages 

growth in existing relationships and promotes new partnerships. The open exchange of information 

promotes collaborative development of Forest priorities, a connection to place and its history, and a 

sense of stewardship.

3 Partnerships improve landscape-scale management across ownership boundaries to find solutions to 

ecological and societal issues.

4 Volunteer and partnership opportunities continue to expand over time, but remain within the 

Carson’s management capacity.

Management Approaches for Partnerships

Management approaches related to partnerships are integrated throughout this plan in other sections.

1. Consider increasing internal knowledge through training in grants and agreements and the various 

authorities that facilitate the creation of formal partnerships.
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Chapter 3. Designated Areas and 

Management Areas Plan Components 

Plan components for a designated or management area may differ from forestwide guidance by:

• Constraining an activity where forestwide direction does not;

• Constraining an activity to a greater degree than forestwide direction; or

• Providing for an exception to forestwide direction, when forestwide direction is in conflict with the 

management emphasis of the management area. For example, a forestwide desired condition in the 

spruce-fir forest vegetation community (SFF) describes openings to be maintained by natural 

processes, while a desired condition for the developed winter and summer resort management area 

(DEVRES) describes resort activities playing a dominant role in maintaining created grassy 

openings intermixed with forested areas.

Where designated areas, management areas, or forestwide direction overlap and contain conflicting plan 

direction, designated area plan direction takes precedence over management area direction, and 

management area direction takes precedence over forestwide direction. When plan direction is 

compatible, it is applied for all overlapping areas. When management areas overlap, the plan direction for 

each area will not conflict and plan direction for each area applies. 

Designated Areas (DA)

The Carson has areas that contain special, exceptional, or unique values that provide important ecosystem 

services. Many of these areas meet the criteria to be considered special places and are awarded specially 

designated status. Designation protects the special values of the area and the ecosystem services those 

values provide. This status can be on a national, regional, or local scale. The term “designated area” refers 

to categories of area or feature established by, or pursuant to, statute, regulation, or policy. Designation of 

areas requires approval at upper levels of administration, including Congress, and in some cases requires 

multiple administrators. Once established, the designation continues until a subsequent decision by the 

appropriate authority removes the designation. Management direction for each of the designated areas is 

in the sections that follow. The designated areas on the Carson are:

• Vallecitos Federal Sustained Yield Unit (VFSYU)

• Wilderness (WILD)

• Wild and Scenic Rivers (WSR)

• Inventoried Roadless Areas (IRA)

• National Scenic, Historic, and Recreation Trails (NTRL)

• National Scenic Byways (NSBW)

• Wild Horse Territories (WHT)

• Sangre de Cristo Pea Clam Zoological Area (ZOO)

• Haplopappus Microcephalus Botanical Area (BOT)
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Vallecitos Federal Sustained Yield Unit (VFSYU)

The Sustained Yield Forest Management Act of 1944 authorized the Secretary of Agriculture to create 

federal sustained yield units. In 1946, northern New Mexico was facing issues of community poverty, 

overgrazing, and new demands for timber off of National Forest System (NFS) lands. To address these 

issues and mitigate the effects of recent grazing reductions in the Vallecitos area, the Forest Service 

created the Vallecitos Federal Sustained Yield Unit (Figure A-4) in 1948, allocating 73,400 acres of NFS 

lands towards sustained yield management. The primary purpose of the Vallecitos Federal Sustained Yield 

Unit is to provide the maximum feasible, permanent support to the Vallecitos community and nearby 

areas, including Petaca and Cañon Plaza, from forest products industries obtaining a wood products 

supply from the national forest lands of the unit. 

Currently, there is no operable sawmill nearby to manage the Vallecitos Federal Sustained Yield Unit as

originally intended. The Carson continues to plan and accomplish thinning and fuels reduction projects in 

the Vallecitos Federal Sustained Yield Unit. Many of these projects are carried out for the purpose of 

decreasing fire hazard and maintaining the health of the forested ecosystems in the Vallecitos Federal 

Sustained Yield Unit. The additional purpose and benefit of many of these projects is to make fuelwood

accessible and available for the surrounding communities. More recently, there has been small-scale 

thinning activity in the Vallecitos Federal Sustained Yield Unit, due to approved operators obtaining grant 

monies from the Collaborative Forest Restoration Project. These projects have been the only activity with 

respect to forest management in the Vallecitos Federal Sustained Yield Unit over the past 10 years. The 

projects have thinned acres and provided fuelwood to local communities on a small scale.

Vallecitos Federal Sustained Yield Unit Desired Conditions (DA-VFSYU-DC)

1 The Vallecitos Federal Sustained Yield Unit provides continuous support to the Vallecitos 

community and nearby areas with forest products. 

2 Timber products are available from the Vallecitos Federal Sustained Yield Unit to support a 

sawtimber industry that maintains steady employment opportunities for a local resident workforce 

and provide the ability to obtain lumber for local community needs.

3 Local residents have opportunities for harvesting forest products within the Vallecitos Federal 

Sustained Yield Unit, to establish a wood products business. 

4 Local communities have opportunities to obtain forest products from the Vallecitos Federal 

Sustained Yield Unit for their requirements.

5 Vegetation within the Vallecitos Federal Sustained Yield Unit is consistent with desired conditions 

for Mixed Conifer with Aspen, Mixed Conifer with Frequent-Fire, and Ponderosa Pine Forest. 

Vallecitos Federal Sustained Yield Unit Guidelines (DA-VFSYU-G) 

1 The Vallecitos Federal Sustained Yield Unit should be managed according to the most recent 

policy statement. 
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Wilderness (WILD)

In 1964, Congress acknowledged the immediate and lasting benefits of wild places, by passing landmark 

legislation that permanently protected some of the most natural and undisturbed places in America. The 

Wilderness Act established the National Wilderness Preservation System “. . . to secure for the American 

people of present and future generations the benefits of an enduring resource of wilderness.” The Carson

manages six wildernesses (Figure A-5), comprising around 110,662 acres or 7.5 percent of the Carson. 

Four of these are completely managed by the Carson and the other two have shared management with the 

Santa Fe National Forest. 

Wheeler Peak Wilderness

The Wheeler Peak Wilderness was designated by Congress in 1964. It is located in the Sangre de Cristo 

Mountains, the southernmost reach of the Rockies and spans 18,457 acres (Figure A-5). Wheeler Peak, 

the highest point in New Mexico, is the highlight of this area rising to 13,161 feet above sea level. This 

feature attracts many visitors, making the Wheeler Peak Wilderness the most heavily used within the 

Carson. 

Many of the high peaks and ridges in this area are covered by alpine tundra, rare in the American 

Southwest. Rocky Mountain big horn sheep are abundant year-round in this habitat type and may exhibit 

habituation to human presence, allowing visitors to gain a close look at these unique animals. The 

Wheeler Peak Wilderness is also home to elk, mule deer, golden eagles, marmots, martens, pikas, 

mountain lions, and black bears. Perhaps the most unusual resident of this area is the white-tailed 

ptarmigan found in the alpine tundra. Approximately 40 inches of precipitation fall in the Wheeler Peak 

Wilderness annually, making the winter months ideal for backcountry and cross-country skiing, as well as 

snowshoeing.

Aside from having the tallest peak in New Mexico, Wheeler Peak Wilderness also has easy access that is 

paved up to its trailheads. There are limited opportunities for solitude in portions of this wilderness, given 

its high level of use. The boundary for the Wheeler Peak Wilderness was modified to allow mountain bike 

use on the Lost Lake loop in 2014 under the same legislation designating the Columbine-Hondo 

Wilderness, which did not result in a net loss of acres. The Wheeler Peak Wilderness has a limits of 

acceptable change document guiding management of the area.

Pecos Wilderness

The Pecos Wilderness was also designated by Congress in 1964. Jointly managed with the Santa Fe 

National Forest, the Pecos Wilderness spans a total of 250,020 acres in the Sangre de Cristo Mountains, 

southeast of Peñasco and north of Santa Fe (Figure A-5). The Carson administers about 25,000 acres 

north of the Santa Barbara Divide Trail, which is the least visited portion of the wilderness. Currently, the 

northern portion of the Pecos Wilderness is the largest wilderness managed by the Carson. 

Elevations on the Carson side of the Pecos Wilderness range from 8,000 to 12,835 feet, atop Jicarita Peak. 

South Truchas Peak (13,103 feet), the second highest point in New Mexico, is located just south of the 

Santa Barbara Divide, on the Santa Fe National Forest side of the Pecos Wilderness. Stands of spruce, fir, 

pine, and aspen are interspersed with canyons, mesas, rugged peaks and ridges, clear streams, meadows, 

and multiple lakes. The topography and scenery of this wilderness are diverse, creating a myriad of 

opportunities for recreation and habitat for elk, mule deer, black bear, turkey, and Rocky Mountain big 

horn sheep.

On the Carson portion of this wilderness, the Santa Barbara access is the most popular, along the Middle 

Fork Trail. The first 3 to 4 miles of this trail is characterized by high use and is popular for larger groups, 
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such as school groups. After the first 3 to 4 miles; however, use drops dramatically. Portions of the Pecos 

Wilderness on the Carson are known for their steep and rugged terrain. This serves to funnel use along 

streams and trails, where the terrain is gentler. Equestrian use is popular on the Carson’s side of the Pecos 

Wilderness, and many people begin from the Santa Fe National Forest’s southern end and exit north from 

the Carson’s side, or vice versa.

Latir Wilderness

The Latir Peak Wilderness was designated by Congress in 1980 and spans a total of 20,405 acres north of 

Questa, New Mexico (Figure A-5). This remote area contains deep forest cover interrupted by meadows 

and streams, with alpine tundra and alpine lakes found at higher elevations. Cabresto Lake is the most 

popular access point. From the lake, the Lake Fork Trail follows Cabresto Creek north to Heart Lake, 

Baldy Mountain, and Latir Mesa, which are all within the wilderness.

The Latir Wilderness’s primary access is through the Cabresto Lake area. One feature that stands out is 

historic Baldy cabin, characterizing the history of the area. This wilderness has many trails, but use is 

comparatively low with respect to the Carson’s other wildernesses, thus providing more opportunities for 

solitude.

Cruces Basin Wilderness

The Cruces Basin Wilderness was also designated by Congress in 1980. This is the smallest wilderness on 

the Carson, spanning 18,867 acres, just south of the New Mexico-Colorado border (Figure A-5). It is 

located northwest of Tres Piedras, in the southern San Juan Mountains. Lack of designated trails and 

difficult access contribute to the pristine nature of this wilderness, and provide excellent opportunities for 

solitude. All trails in this wilderness are either fisherman-created or game trails, with just one wellestablished route entering the wilderness from Osha Canyon, on the southern border.

Mountain plateau surrounds and forms the boundary between the Cruces Basin and Brazos area, adjoining 

to the west and southwest. Elevations range from 8,600 to 10,900 feet, featuring spruce, fir and aspen 

forests, interspersed with grassy meadows and prominent rock features. The lush meadows found 

throughout the basin provide important summer range for elk. Mountain lions, black bear, and many other 

birds and mammals can be seen as well. Diablo and Beaver creeks, located in the southern portion of the 

basin, are popular with fly fisherman, due to their abundance of brook trout.

The Cruces Basin Wilderness is the least visited wilderness on the Carson. It is also the most difficult to 

access, along 15 miles of dirt road that receives little maintenance. Unlike all of the Carson’s other 

wildernesses, Cruces Basin is situated in a bowl and rather than along and around mountainous peaks. It 

also has no designated trails.

Chama River Canyon Wilderness

The Chama River Canyon Wilderness was also designated by Congress in 1978 and encompasses 50,300 

acres, with only 2,949 acres on the Carson (Figure A-5). It is managed entirely by the Santa Fe National 

Forest. The Wild and Scenic Rio Chama, managed jointly by the Santa Fe National Forest and the BLM, 

is popular among river rafters and canoeists and runs through six miles of the wilderness. Access the 

colorful sandstone bluffs and impressive rock formations that rise to high rims on both riverbanks is poor 

from the Carson. 

Varying canyon elevations also provide a wide range of vegetation, from low-lying piñon-juniper 

woodland to ponderosa pine and fir. Fishing opportunities abound, and onshore residents include mule 
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deer, black bears, elk, coyotes, and mountain lions. Between 70 and 80 different bird varieties are found 

in the Chama River Canyon.

Access to the small portion of the Chama River Canyon Wilderness that is located on the Carson is 

difficult because of poorly maintained dirt roads. There is one trailhead on the Carson, however the trail is 

in poor condition and is not maintained.

Columbine-Hondo Wilderness

Designated by Congress in December 2014, the Columbine-Hondo Wilderness is the newest addition to 

the wilderness system on the Carson. Before its designation, Columbine-Hondo was a wilderness study 

area since 1980 and encompassed 43,706 acres (Figure A-5). These acres may change slightly when the 

area is surveyed using the legal description outlined in the Columbine-Hondo Wilderness Act (Public Law 

113-291). The Columbine-Hondo Wilderness is adjacent to the Wheeler Peak Wilderness in the Sangre de 

Cristo Mountains. Elevation ranges from 7,600 to 12,700 feet. There is an extensive and popular trail 

system that accesses the area from various points along New Mexico State route 150 in Hondo Canyon, as 

well as other plentiful recreation opportunities, including viewing scenery, wildlife watching, picnicking, 

camping, and hunting. There are several scenic landmarks, including Gold Hill, Lobo Peak, and Flag 

Mountain. Elk, deer, bear, coyote, and birds of prey can be found within the area, and beavers have 

created small ponds on many of the streams. Wildflowers bloom throughout the spring and summer and a 

variety of berries, mushrooms, and herbs can be gathered seasonally along the drainages.

The Columbine-Hondo Wilderness shares many similarities with the Wheeler Peak Wilderness. Both are 

located adjacent to each other, receive high levels of use, offer easy access to wilderness opportunities, 

and have a high number of trails popular for day hikes. Like Wheeler Peak, the area is also popular for 

larger group sizes of 15 people or more, and the occasional school group will visit the wilderness as well.

Since this is a newly designated wilderness, the Carson is beginning to conduct inventories and address 

management of its use. Signage will be assessed, along with new information released about the newly 

added wilderness. Illegal mountain bike use is a management challenge that may increase into the future 

as the activity continues to grow in popularity.

Wilderness Desired Conditions (DA-WILD-DC)

1 Wilderness is valued by the public and contributes to clean air and water, wildlife habitat 

enhancement, and outstanding opportunities for solitude or primitive and unconfined recreation. 

2 Natural processes (e.g., insects, disease, blowdown, and fire) are maintained and function in their 

natural ecological role. Wildernesses have minimal to no nonnative invasive species.

3 The environment within a wilderness is essentially unmodified. Naturally occurring scenery 

dominates the landscape. Manmade features are rare and use natural or complimentary materials. 

They are present when needed to provide for public safety or resource protection.

4 Wilderness provides recreation opportunities where social encounters are infrequent and occur only 

with individuals or small groups so that there are opportunities for solitude. Visitors experience selfreliance, challenge, and risk while enjoying opportunities to pursue non-motorized or mechanized 

activities.
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Wilderness Standards (DA-WILD-S) 

1 No more than 15 persons and 15 pack stock are permitted within a single group, unless 

otherwise noted in a wilderness management plan. Exceptions may include special use permits, 

formal agreements, emergency services, and management activities for maintaining wilderness 

character.

2 Outfitter-guide activities in wilderness shall include appropriate wilderness practices, such as 

Leave No Trace principles, and incorporate awareness for wilderness values in their interaction 

with clients and others.

3 Research conducted in wilderness shall not have adverse effects to wilderness character.

4 Non-native invasive species shall be treated using methods and in a manner consistent with 

wilderness character, to promote natural values in designated wilderness.

5 Pack goats shall not be allowed within wilderness.

Wilderness Guidelines (DA-WILD-G) 

1 Intervention in natural processes through management actions should only occur when this 

would move the area towards desired conditions, preserve wilderness character, protect public 

health and safety within and adjacent to wilderness, or uphold other Federal laws and 

regulations.

2 Management activities should be consistent with the scenic integrity objective of very high in 

designated wilderness, to maintain wilderness character. 

3 Prohibited uses may only be authorized when they are determined to be the minimum necessary. 

A minimum requirements analysis42 should be utilized when considering new non-emergency

activities and uses.

Management Approaches for Wilderness

1. Consider clearly identifying wilderness boundaries through signage at official entry points and 

needed locations (e.g., informal access points) that is consistent with trail maps, and boundary 

markers.

2. Consider working with local partners to maintain wilderness, including trail maintenance and 

construction.

3. Consider partnering with other Federal agencies to ensure management is as consistent as possible for 

contiguous wildernesses.

4. Consider helicopter use in wildernesses to manage fish or wildlife populations when deemed 

appropriate by minimum requirements analysis. Approval of helicopter use is made by the Regional 

Forester, after appropriate environmental analysis.

5. Consider using the most recent version of a wilderness’s respective management plan, if it exists.

 

42 Arthur Carhart National Wilderness Training Center, 2008. Minimum Requirements Decision Guide, U.S. Forest Service 

Guidelines. Link: https://www.wilderness.net/MRDG/documents/MRDG_FS_guidelines.pdf. 
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Wild and Scenic Rivers (WSR)

In 1968, Congress passed the Wild and Scenic Rivers Act to preserve the beauty and free-flowing nature 

of some of the most precious waterways in America. To be designated, rivers or sections of rivers must be 

free-flowing and possess at least one outstandingly remarkable value, such as scenic, recreational, 

geologic, fish, wildlife, historic, cultural, or other features identified under the Act. 

The Carson includes two river sections designated as wild and scenic rivers (Figure A-5); however, both 

are managed by the BLM, as part of the Rio Grande Wild and Scenic River. One Carson segment is 

approximately 5 miles of the Rio Grande, along the west boundary of the Questa Ranger District. The 

other Forest Service segment is the lower 3.25 miles of the Red River, where it meets the Rio Grande. 

These sections were among the original eight rivers to be designated as National Wild and Scenic River 

Systems by Congress in 1968. Both sections of river are classified as wild, flow through deep gorges, and 

offer spectacular views from the gorge rim. One hiking trail leads down into the gorge from the recreation 

area and another from Cebolla Mesa on the Questa Ranger District. 

Wild and Scenic Rivers Desired Conditions (DA-WSR-DC)

1 The outstandingly remarkable values, free-flowing condition, and classifications of wild and scenic 

river corridors are preserved. 

Wild and Scenic Rivers Standards (DA-WSR-S) 

1 Designated wild and scenic rivers shall be managed to protect or enhance their free flowing 

condition. Proposed water resources projects, including activities within the bed and banks and 

below the ordinary high water mark of the river, shall require a free flow analysis.

2 Designated wild and scenic rivers shall be managed to protect or enhance existing outstandingly 

remarkable values.

3 Management of the Rio Grande Wild and Scenic River shall comply with BLM’s river 

management plan.

4 Pack goats shall not be allowed within the Rio Grande Wild and Scenic River corridor.
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Inventoried Roadless Areas (IRA)

Inventoried roadless areas provide clean drinking water and function as biological strongholds for 

populations of threatened and endangered species. They provide large, relatively undisturbed landscapes 

with high scenic quality that are important to biological diversity and the long-term survival of many at 

risk species. Inventoried roadless areas provide opportunities for dispersed outdoor recreation. They also 

serve as buffers against the spread of non-native invasive plant species and serve as reference areas for 

study and research. The Carson manages 12 inventoried roadless areas, totaling around 105,000 acres

(Figure A-6).43

Table 6. Inventoried roadless areas on the Carson National Forest

Inventoried Roadless Area

Size 

(acres) Ranger District

Bull Canyon 11,512 Canjilon

Canjilon Mountain 7,971 Canjilon

Osier Mesa 2,840 Tres Piedras 

Comales Canyon 4,388 Camino Real

Pecos 13,434 Camino Real

Sierra Negra 9,469 El Rito

Cruces Basin 5,243 Tres Piedras

Latir Peak 3,572 Questa

Columbine-Hondo Wilderness 43,738 Questa

Bull-of-the-Woods 487 Questa

Wheeler Peak Wilderness 2,677 Questa 

While a range of management and activities may occur in inventoried roadless areas including system 

roads and motorized recreation, generally road construction and cutting of timber is limited. The Chief of 

the Forest Service reviews all projects involving road construction or reconstruction and the cutting, sale, 

or removal of timber in inventoried roadless areas, with the exception of the following management 

activities, which are reviewed by the Regional Forester: 

• Any necessary timber cutting or removal or any road construction including road reconstruction in 

emergency situations involving wildfire suppression, search and rescue operations, or other 

imminent threats to public health and safety in inventoried roadless areas. 

• Timber cutting, sale, or removal in inventoried roadless areas incidental to the implementation of an 

existing special use authorization. Road construction or road reconstruction is not authorized 

through this re-delegation without further project specific review.

• The cutting, sale, or removal of generally small diameter timber when needed for one of the 

following purposes:

♦ To improve threatened, endangered, proposed species habitat;

 

43 The Carson National Forest inventoried roadless areas are managed according to the 2001 Roadless Area Conservation Rule 

(66 FR 3244). 
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♦ To maintain or restore the characteristics of ecosystem composition and structure, such as to 

reduce the risk of uncharacteristic wildfire effects within the range of variability, that would be 

expected to occur under natural disturbance regimes of the current climatic period; or,

♦ For administrative and personal use, as provided for in 36 CFR 223, where personal use 

includes activities, such as Christmas tree and fuelwood cutting, and where administrative use 

includes providing materials for activities, such as construction of trails, footbridges, and 

fences.

Inventoried Roadless Areas Desired Conditions (DA-IRA-DC)

1 Inventoried roadless areas encompass large, relatively undisturbed landscapes that are important to 

biological diversity and the long-term survival of federally listed species. They provide public 

drinking water, serve as safeguards against the spread of invasive plant species, and provide 

reference landscapes for study and research.

2 Inventoried roadless areas appear natural, have high scenic quality, and provide opportunities for 

dispersed recreation.

Inventoried Roadless Areas Standards (DA-IRA-S) 

1 A road shall not be constructed or reconstructed in an inventoried roadless area, unless the 

responsible official determines that a road is needed according to the circumstances allowed in 

the 2001 Roadless Rule (66 FR 3244). Review authorities shall be followed.

2 Timber shall not be cut, sold, or removed in inventoried roadless areas, unless the responsible 

official determines that activities meet the circumstances provided in the Roadless Rule (66 FR 

3244). Review authorities shall be followed.

Inventoried Roadless Areas Guidelines (DA-IRA-G) 

1 Inventoried roadless areas should be managed for primitive, semi-primitive non-motorized, and 

semi-primitive motorized recreation settings, to preserve their roadless area characteristics44. 

2 Management activities should be consistent with the scenic integrity objective of high, to 

preserve their roadless area characteristics. 

 

44 The following often characterize inventoried roadless areas: (1) high quality or undisturbed soil, water, and air; (2) sources of 

public drinking water; (3) diversity of plant and animal communities; (4) habitat for threatened, endangered, proposed, 

candidate, and species of conservation concern and for those species dependent on large, undisturbed areas of land; (5) 

primitive, semi-primitive non-motorized, and semi-primitive motorized classes of dispersed recreation; (6) reference 

landscapes; (7) natural appearing landscapes with high scenic quality; (8) traditional cultural properties and sacred sites; and 

(9) other locally identified unique characteristics (66 FR 3244).
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National Scenic, Historic, and Recreation Trails (NTRL)

Congress passed the National Trails System Act in 1968. The Act authorized creation of a national trail 

system comprised of national scenic trails, national historic trails45, and national recreation trails. The 

Carson administers all three types of nationally designated trails (figure a-7). 

Continental Divide National Scenic Trail

The Continental Divide National Scenic Trail traverses the Rocky Mountains from Canada to Mexico for 

approximately 3,100 miles (USDA FS 2015b). It travels through portions of 25 national forests, 3 national 

parks, 4 BLM districts, as well as various private lands in Montana, Idaho, Wyoming, Colorado, and New 

Mexico. It was established by Congress in 1978 to provide high-quality scenic, primitive hiking, and 

horseback riding opportunities, and to conserve natural, historic, and cultural resources along the 

Continental Divide National Scenic Trail corridor. These uses persist today and are now joined by a 

growing diversity of users, including mountain bikers, cross-country skiers, and long-distance runners. 

The Continental Divide National Scenic Trail navigates dramatically diverse ecosystems through 

mountain meadows, granite peaks, and high-desert surroundings. It is one of the most renowned trails in 

the United States, for its scenic beauty, recreational opportunities, elevation gains, and primitive character. 

On the Carson 69.8 miles of the Continental Divide National Scenic Trail have been completed and the 

remaining 35 miles have been surveyed. 

Old Spanish National Historic Trail

The Old Spanish National Historic Trail was designated by Congress in 2002. The trail traverses six states 

(Arizona, California, Colorado, Nevada, New Mexico, and Utah) and was primarily a horse and burro 

pack route between Santa Fe and Los Angeles, which developed partly from a network of American 

Indian and Hispanic trade routes in the 1800s (National Park Service website). The entire trail (with 

various loops) transverses 2,700 miles, with 49.6 of those miles on the Carson. 

Columbine-Twining National Recreation Trail

The Columbine-Twining National Recreation Trail was designated in 1978. It is a difficult trail with the 

length of 14.2 miles and an elevation gain of 1,500 feet, from 7,900 to 9,400 feet, through Columbine 

Canyon to the ridge of Rio Hondo Canyon. The trail offers hiking through aspens to exceptional views of 

Lobo Peak and Flag Mountain above tree line. 

The first couple of miles of the Columbine-Twining National Recreation Trail receive heavy use on either 

end, especially by day hikers. The trail is also easily accessible through campgrounds at either end of the 

trail, the Columbine Campground on the north and the Twining Campground on the south, making it 

popular among the campers. The trail is in good condition, but it can be difficult to follow along the 

ridgeline. It has also had four footbridges removed from the sections of the trail that go into the Wheeler 

Peak Wilderness. While only two bridges have been replaced, access is unimpaired. 

South Boundary National Recreation Trail

Designated in 1982, the South Boundary National Recreation Trail is 22 miles long and offers various 

summer and winter trail opportunities from Taos to Angel Fire, New Mexico. The South Boundary Trail is 

a diverse tour of the Sangre de Cristo Mountains, crossing ridges, valleys, and several peaks, through 

dense conifer forests and open stands of aspen. The trail is at its very best in the fall, when aspens along 

 

45 While a portion of El Camino Real de Tierra Adentro is known locally to traverse the Carson National Forest, it is not 

nationally designated.
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the route turn shades of yellow, gold, and fiery orange. Besides being a wonderfully scenic tour of New 

Mexico’s Rocky Mountains, this is also one of the State’s best mountain bike rides. 

The South Boundary Trail is one of the Carson’s most popular and heavily used trails for several reasons. 

It offers backpacking opportunities, as well as day trips, without having to go to higher elevations, and it 

is in close proximity to Taos and Angel Fire. It is also one of the premiere mountain biking trails in New 

Mexico. Mountain bikers travel from many parts of the country to ride this trail. The trail is also long 

enough to accommodate overnight mountain biking, an increasingly popular form of mountain biking.

Jicarita Peak National Recreation Trail

The Jicarita Peak National Recreation Trail was designated in 1979. It offers a challenging experience in 

the Pecos Wilderness and spectacular views from atop Jicarita Peak (12,835 feet), looking off to the west 

across the Rio Grande Valley and north to the Rocky Mountains in Colorado. Fall aspens are especially 

prominent along this route. Elk, marmot, ptarmigan, deer, and black bear are some of the wildlife to be 

found in the area. The trail is 23 miles long and starts at 8,860 feet and ends at 12,835 feet in elevation. 

The stretch of the Jicarita Peak Trail between the Serpent Lake Trailhead and Jicarita Peak receives 

moderate use. After reaching the peak however the trail gets very little use. This is because there are a 

number of Forest Service trails in the area that are more popular. The other popular access point to Jicarita 

Peak is via the Santa Barbara Trail, from the Santa Barbara Campground on the northern end of Pecos 

Wilderness. 

National Scenic, Historic, and Recreation Trails Desired Conditions (DA-NTRL-DC)

Continental Divide National Scenic Trail (CDNST)

1 The Continental Divide National Scenic Trail provides high-quality scenic, primitive hiking, 

mountain biking, pack and saddle stock opportunities to conserve natural, historic, and cultural 

resources along the trail. Other activities and opportunities are allowed, when compatible with the 

nature and purposes of the Continental Divide National Scenic Trail. 

2 Viewsheds from the Continental Divide National Scenic Trail have high scenic values. The 

foreground of the trail (up to 0.5 mile on either side) is natural-appearing, and generally looks 

unaltered by human activities.

3 The Continental Divide National Scenic Trail is consistent with a primitive or semi-primitive nonmotorized setting and may intermittently pass through more developed settings. The Continental 

Divide National Scenic Trail provides for a continuous route through predominately undeveloped 

settings.

4 Visitors are aware of the Continental Divide National Scenic Trail and the nature and purpose of the 

trail designation.

5 Conflicts among recreation users are rare. 

6 The Continental Divide National Scenic Trail has access points that provide various opportunities to 

select the type of terrain, scenery, and trail length (e.g., ranging from long-distance to day use) that 

best provide for compatible outdoor recreation experiences.
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7 Wild and remote backcountry segments of the Continental Divide National Scenic Trail provides 

opportunities for solitude immersion in natural landscapes and primitive outdoor recreation; while 

easily accessible trail segments complement local community interests and needs.

Other National Scenic, Historic, and Recreation Trails

8 National scenic, historic, and recreation trails and the nature and purposes of the trail designation are 

protected. 

9 Conflicts among recreation users are rare.

10 Designated national scenic and recreation trails are well maintained, signed, and passable.

11 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.

12 National scenic, historic, and recreation trails provide a non-motorized trail opportunity, where 

visitors can experience the scenic qualities of the area.

National Scenic, Historic, and Recreation Trails Standards (DA-NTRL-S) 

Continental Divide National Scenic Trail (CDNST)

1 Management of the Continental Divide National Scenic Trail shall comply with the most recent 

version of the Continental Divide National Scenic Trail Comprehensive Plan. Best available 

science can be used in lieu of the comprehensive plan if plan is more than 15 years old. 

2 Motorized use shall not be allowed on newly constructed segments of the Continental Divide 

National Scenic Trail. Existing motorized use may continue on the Continental Divide National 

Scenic Trail (where it overlaps with existing roads and motorized trails).

3 No surface occupancy for geothermal energy leasing activities shall occur within 0.5 mile either 

side of the Continental Divide National Scenic Trail. 

4 No common variety mineral (e.g., limestone, gravel, pumice, sandstone) extraction shall occur 

within 0.5 mile either side of the Continental Divide National Scenic Trail. 

5 Motorized events and motorized special use permits shall not be permitted or authorized on the 

Continental Divide National Scenic Trail. 

National Scenic, Historic, and Recreation Trails Guidelines (DA-NTRL-G)

Continental Divide National Scenic Trail (CDNST)

1 New or relocated trail segments should be located primarily within settings consistent with or 

complementing primitive or semi-primitive non-motorized recreation opportunity spectrum

classes, to retain or promote the character for which the Continental Divide National Scenic Trail

was designated. Road and motorized trail crossings and other signs of modern development 

should be avoided.
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2 Management activities should be consistent with or make progress toward achieving, scenic 

integrity objectives of high or very high within the visible foreground of the trail, to protect or 

enhance the scenic qualities of the Continental Divide National Scenic Trail. 

3 If management activities result in short-term impacts to the scenic character along the 

Continental Divide National Scenic Trail, mitigation measures should be included (e.g., 

screening, feathering, and other scenery management techniques), to minimize visual impacts at 

key points (e.g., vistas), within 0.5 mile either side of the trail.

4 The Continental Divide National Scenic Trail should not be permanently re-located onto routes 

open to motor vehicle use, to promote a non-motorized setting. 

5 Special-use authorizations for new communication sites, utility corridors, and renewable energy 

sites should not be allowed within visible foreground (up to 0.5 mile) and middle ground

viewshed (up to four miles), to protect the Continental Divide National Scenic Trail’s scenic 

values.

6 Linear utilities and rights-of-way should be limited to a single crossing per special use 

authorization of the Continental Divide National Scenic Trail unless additional crossings are 

documented as the only prudent and feasible alternative. 

7 New temporary and permanent road or motorized trail construction across or adjacent to the 

Continental Divide National Scenic Trail should be avoided unless necessary for resource 

protection, access to private lands, or to protect public health and safety. 

8 Using the Continental Divide National Scenic Trail for landings or as a temporary road should 

not be allowed. Hauling or skidding along the Continental Divide National Scenic Trail itself 

should be allowed only when design criteria are used to minimize impacts to the trail 

infrastructure and where the Continental Divide National Scenic Trail is currently located on an 

open road and no other haul route or skid trail options are available.

9 Unplanned fires in the foreground (up to 0.5 mile) of the Continental Divide National Scenic 

Trail should be managed using minimum impact suppression tactics or other tactics appropriate 

for the protection of trail values. Prescribed fires in the foreground of the CDNST should be 

managed to protect health and safety but also incorporate the values of the trail. Heavy 

equipment fireline construction up to 0.5 mile of either side should not be allowed unless 

necessary for emergency protection of life and property.

10 The minimum trail facilities necessary to accommodate the amount and types of use anticipated 

on any given segment should be provided, to protect resource values and for health and safety 

(not for the purpose of promoting user comfort), to preserve or promote a naturally appearing 

setting.

Other National Scenic, Historic, and Recreation Trails

11 National recreation trails should be managed for non-motorized and mechanized travel to 

enhance visitor experience, except where portions of a trail currently coincide with a designated 

road (e.g., portions of the South Boundary Trail) and such motorized uses may continue. 
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12 National historic trail segments should follow a route of historic significance as closely as 

possible, to protect the route and its artifacts for public use and enjoyment.

Management Approaches for National Scenic, Historic, and Recreation Trails

1. If the Continental Divide National Scenic Trail’s scenic values are able to be protected, consider 

special-use authorizations for new communication sites, utility corridors, and renewable energy sites 

that would not be visually apparent within visible foreground (up to 0.5 mile) and middle ground

viewshed (up to four miles).

2. Consider coordinating trail management and activities across unit and jurisdictional boundaries, 

specifically with the Santa Fe and Rio Grande National Forests and the Bureau of Land Management.
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National Scenic Byways (NSBW) 

A national scenic byway is a road recognized by the United States Department of Transportation for one 

or more of six intrinsic qualities: archeological, cultural, historic, natural, recreational, and scenic. The 

program was established by Congress in 1991 to preserve and protect the nation's scenic but often lesstraveled roads and promote tourism and economic development. The Forest Service’s Scenic Byways 

Program is intended to enhance rural community tourism and provide amazing opportunities to explore 

the beauty, history and natural heritage of the national forests. This is especially true of the Enchanted 

Circle National Scenic Byway, an 84-mile loop of scenic driving from Taos, through Questa, Red River, 

Angel Fire and back to Taos again (Figure A-7). It is currently the only Forest Service scenic byway that 

travels through the Carson. 

The Enchanted Circle National Scenic Byway has outstanding scenery, offers various recreation 

opportunities, and showcases the unique cultural history of northern New Mexico. It receives heavy yearround use by tourists and local commuters alike, who travel by motor vehicle, motorcycle, and bicycle. 

All the communities along the Enchanted Circle benefit economically from the visitation this scenic 

byway generates, and most of the draw is from the scenic and recreational opportunities found on the 

Carson. The Town of Taos, Village of Taos Ski Valley, Village of Questa, Town of Red River, Village of 

Eagle Nest, and Angel Fire Convention and Visitor’s Bureau have partnered to plan ways to add or 

improve recreational opportunities along the byway, as well as making it an extended stay location. The 

Carson has been engaged in these discussions and looks to more partnership opportunities in the future.

National Scenic Byways Desired Conditions (DA-NSBW-DC)

1 Viewsheds along national scenic byways provide natural appearing landscapes and enhance 

recreation tourism that supports local communities. 

2 The values for which a national scenic byway is designated remain intact. 

3 National scenic byways exhibit natural appearing landscapes, where human activities do not stand 

out in the foreground, up to 0.5 mile (high scenic integrity).

4 National scenic byways provide roaded-natural recreation opportunities.
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Wild Horse Territories (WHT)

The Carson has four designated wild horse territories. Jarita Mesa Wild Horse Territory and Jicarilla Wild 

Horse Territory are the only two that are occupied and managed. The Wild Free-Roaming Horses and 

Burros Act of 1971, as amended by the Federal Land Policy and Management Act of 1976 and the Public 

Rangeland Improvement Act of 1978, directs the protection and management of wild horses and burros on 

public lands. The Forest Service, by authority of the Secretary of Agriculture, is responsible for managing 

the nation's wild horses and burros on NFS lands. Management of wild horse and burro territories is 

guided by individual management plans.

Jarita Mesa Wild Horse Territory comprises approximately 23,000 acres on the El Rito Ranger District

(Figure A-8). The history of this herd is tied to the local Hispanic communities that have been present in 

the area for some 300 years. The foundation blood for the horses is Spanish mustang, but genetic testing 

and physical appearance indicate other bloodlines may have influenced the herd as well. 

Jicarilla Wild Horse Territory comprises 75,986 acres of the Jicarilla Ranger District (Figure A-8). The 

history of this herd is vague, but appears to be based on cavalry stock and ranch horses from the area, 

along with an influx of horses from the adjacent Jicarilla Apache Reservation. Genetic testing has 

indicated a mixed breeding background.

Wild Horse Territory Desired Conditions (DA-WHT-DC)

1 A biologically sound and genetically viable horse population is supported by healthy ecosystems, 

essential ecological processes, and land stewardship activities, and reflect the diversity, quantity, 

quality, and capability of natural habitats.

2 Rangelands are resilient to disturbances, fluctuations, and extremes in the natural environment.

3 Forage, browse, and cover needs of wild horses, wildlife, and authorized livestock are available and 

are at or moving towards a healthy, persistent state relative to site potential.

Wild Horse Territory Standards (DA-WHT-S) 

1 Humane methods will be utilized to gather animals, when it has been determined acceptable 

management levels have been exceeded.

Wild Horse Territory Guidelines (DA-WHT-G) 

1 Horse numbers within a territory should be aligned with the appropriate management level as 

described in wild horse territory management plans.

2 Population control measures on wild horses should be implemented to maintain genetic diversity 

and desired resource conditions in the area.

Management Approaches for Wild Horse Territories

1. Consider coordinating management of the Carson’s wild horse program with the BLM, to benefit 

both agencies. 

2. Consider partnering and coordinating with wild horse advocates, federally recognized tribes, adjacent 

landowners, and grazing permit holders to maintain the desired appropriate management level of wild 

horses through actions, such as capture and removal and fertility control treatments.
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Sangre de Cristo Pea Clam Zoological Area (ZOO)

A zoological area is a designated area that contains animal specimens, animal groups, or animal 

communities that are significant because of their occurrence, habitat, location, life history, ecology, rarity, 

or other features (FSM 2372.05 (4)). The Sangre de Cristo Pea Clam Zoological Area is the only 

zoological area on the Carson. The Sangre de Cristo pea clam is on the State’s Group 1 Endangered List 

and only known to occur in the Middle Fork Lake on the Questa Ranger District; however, this pea clam 

has not been determined as a valid separate species at this time. The lake, its shoreline, and immediate 

surrounding drainage are within the designated area as protected habitat for the pea clam.

The Sangre de Cristo Pea Clam Zoological Area is located on the Questa Ranger District (Figure A-8). 

This watershed is functioning at risk, meaning it exhibits moderate geomorphic, hydrologic, and biotic 

integrity, relative to its natural potential condition. In terms of ecological integrity, provided the pea clam 

is a valid species, this is the only location within the State of New Mexico where it is found.

Sangre de Cristo Pea Clam Zoological Area Desired Conditions (DA-ZOO-DC)

1 See Watersheds and Water (FW-WSW-DC).

2 See Waterbodies (FW-WSW-WB-DC).

Sangre de Cristo Pea Clam Zoological Area Standards (DA-ZOO-S) 

1 Management activities, including vehicle use, shall not cause pollution or change in water 

chemistry of Middle Fork Lake. 
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Haplopappus Microcephalus Botanical Area (BOT)

A botanical area is a designated area that contains plant specimens, plant groups, or plant communities 

that are significant because of their form, color, occurrence, habitat, location, life history, arrangement, 

ecology, rarity, or other features (FSM 2372.05(3)). The Haplopappus Microcephalus Botanical Area is 

the only botanical area designated on the Carson (Figure A-8). Haplopappus microcephalus is a smallheaded goldenweed that is a Carson species of conservation concern and on the State Endangered Plant 

List. The massive granite outcrops northeast and northwest of Tres Piedras on the Carson are the only 

places within New Mexico where the plant has been located, thus adding to the ecological integrity of the 

area. The designated area is 60 acres.

Haplopappus Microcephalus Botanical Area Desired Conditions (DA-BOT-DC)

1 See Cliffs and Rocky Features (FW-CRF-DC).

2 See Ponderosa Pine Forest (FW-VEG-PPF-DC).

Haplopappus Microcephalus Botanical Area Guidelines (DA-BOT-G) 

1 Rock climbing and related recreation activities should not disrupt the life processes of smallheaded goldenweed. Installation of permanent rock climbing hardware should be allowed only 

by authorization, if small-headed goldenweed is being impacted. 

2 Where recreation activities have the potential to trample known populations of small-headed 

goldenweed, signs should be posted educating the public to stay on designated trails.
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Management Areas (MA)

The Carson has several areas requiring different management that cannot be met through forestwide plan 

components. These areas are identified as management areas. A management area represents a 

management emphasis for an area or several similar areas on the landscape. Forestwide plan components 

are applied, unless there is management direction for a specific management area. Management direction 

for each management area is in the sections that follow. Management areas identified in this plan for the 

Carson are:

• Recommended wilderness management area

• Eligible wild and scenic river management area

• Developed winter and summer resort management area

• Jicarilla natural gas management area

• Grassland maintenance management area

• Valle Vidal management area

• San Antonio management area

Recommended Wilderness Management Area (RWMA)

The recommended wilderness management area comprises lands recommended for wilderness 

designation (Figure A-9) as a result of a 4-step recommended wilderness process: (1) inventory; (2) 

evaluation; (3) analysis; and (4) recommendation. The purpose of the recommendation process was to 

identify all areas within the Carson National Forest not yet designated as wilderness that satisfy the 

definition of wilderness found in the 1964 Wilderness Act and recommend those areas deserving of future 

designation. 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 recommendation is a 

preliminary administrative recommendation that will receive further review and possible modification by 

the Chief of the Forest Service, the Secretary of Agriculture, and the President of the United States. The 

plan direction stated below will be applied to recommended wilderness management areas until such time 

as the area is designated as wilderness or released for other management by Congress. 

Recommended Wilderness Management Area Desired Conditions (MA-RWMA-DC)

1 Recommended wilderness management areas are valued by the public and contribute to clean air and 

water, wildlife habitat enhancement, primitive recreation opportunities, other cultural ecosystem 

services, as well as their wilderness characteristics.

2 Natural processes (e.g., insects, disease, blowdown, and fire) are maintained and function in their 

natural ecological role or are mimicked (e.g., prescribed fire, suppression of human caused fire). 

Recommended wilderness management areas have minimal to no nonnative invasive species.

3 The environment within recommended wilderness management areas is essentially unmodified. 

Naturally occurring scenery dominates the landscape. Manmade features are rare and use natural or 

complimentary materials. They are present when needed, to provide for public safety or resource 

protection.

4 Recommended wilderness management areas provide recreation opportunities, where social 

encounters are infrequent and occur only with individuals or small groups so that there are 
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opportunities for solitude. Visitors experience self-reliance, challenge, and risk, while enjoying 

opportunities to pursue non-motorized or mechanized activities.

5 Sustainable rangelands provide forage for livestock grazing opportunities.

Recommended Wilderness Management Area Standards (MA-RWMA-S) 

1 Motorized travel and uses shall not be allowed in a recommended wilderness management area, 

unless specifically authorized for emergency use or the limited needs required for management 

activities (e.g., grazing management, wildlife needs, or search and rescue).

2 Mechanized recreation shall not be allowed in a recommended wilderness management area, to 

protect the wilderness characteristics of the area.

3 No new permanent or temporary roads, motorized trails, or mechanized (e.g., mountain bike) 

trails for public access shall be constructed or designated in a recommended wilderness 

management area. 

4 Timber harvest for the purpose of timber production is prohibited in a recommended wilderness 

management area. 

5 The development of existing mining claims within a recommended wilderness management area

shall be subject to valid existing rights. 

6 New energy developments or leases shall not be permitted in a recommended wilderness 

management area. 

7 Sales or extraction of common variety minerals shall not be permitted in a recommended 

wilderness management area. 

8 Non-native invasive species shall be treated using methods and in a manner consistent with 

wilderness characteristics, to promote natural values in a recommended wilderness management 

area. 

Recommended Wilderness Management Area Guidelines (MA-RWMA-G) 

1 Intervention in natural processes through management actions (e.g., prescribed fire and active 

weed management) should only occur when this would move the recommended wilderness 

management area toward desired conditions, preserve wilderness characteristics, protect public 

health and safety within and adjacent to the recommended wilderness management area, or 

uphold other Federal laws and regulations.

2 Unplanned and planned ignitions in recommended wilderness management areas should be used, 

to reduce the risks and consequences of uncharacteristic wildfire, to increase apparent 

naturalness, or to enhance ecosystem function.

3 Motorized equipment or mechanized transport for management activities (e.g., chainsaws or

wheelbarrows) should be allowed in recommended wilderness areas if they do not permanently 

degrade wilderness characteristics of the area.
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4 Management activities should be consistent with the scenic integrity objective of very high, to 

maintain wilderness characteristics.

5 Existing structures necessary for administration of the area should be maintained but not 

expanded, to protect the recommended wilderness management area’s wilderness characteristics. 

Maintenance of existing structures should be carried out in a manner that does not expand the 

evidence of motor vehicle and mechanized equipment use beyond current conditions within the 

recommended wilderness management area. 

6 Competitive events should not be permitted in recommended wildernesses, to maintain 

wilderness characteristics of solitude and primitive and unconfined recreation.
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Eligible Wild and Scenic River Management Area (EWSR)

Eligible wild and scenic rivers meet the basic criteria for inclusion in the National Wild and Scenic Rivers 

System. They are free-flowing and possess at least one value that is outstandingly remarkable regionally 

or nationally. 

The Carson has 50 river segments totaling approximately 170 miles that have been identified by the 

agency through this plan as eligible to be included in the National Wild and Scenic Rivers System. There 

are 78.8 miles classified as wild, 28.6 miles classified as scenic, and 62.1 miles classified as recreational. 

Table 7 provides a list of river segments deemed eligible on the Carson National Forest. Each river 

segment is listed alphabetically by ranger district, and each has a description of the (1) segment location;

(2) the segment classification; (3) the outstandingly remarkable values for which it is eligible; (4) the

length of the segment in miles; and (5) a narrative describing the outstandingly remarkable values and 

classification determination. Identification numbers are unique to each ranger district and correspond to 

the river location on the maps in Figure A-10. 

Agency-identified eligible rivers are managed to retain their status until a suitability determination has 

been made whether to recommend them for inclusion in the National Wild and Scenic Rivers System. A 

suitability study must analyze the effects of designation to other resource values, identify issues, and 

explore alternatives for protecting river values. The Carson may authorize projects and activities in 

eligible rivers or the surrounding corridor so long as they preserve the free-flowing condition of the river, 

protect the outstandingly remarkable values that provide the basis of the river’s eligibility for inclusion in 

the system and do not affect the classification of the river segment. In most cases, in-stream structures 

that unnaturally impound water have a negative impact on free-flow, however some impoundments may 

be allowed if they are built from natural appearing materials that harmonize with the river environment, 

mimic natural events (e.g., trees falling across a river), do not cause hazards that interfere with the 

recreational use of the river, and do not prevent natural river processes in the future. Free-flow may be 

positively affected when instream structures promote more natural levels of river processes (e.g., bank 

erosion, channel shifting, groundwater infiltration, and floodplain development) and bed load or debris 

movement. For example, a degraded, incised river may be considered free-flowing, but in some cases that 

free-flow may be altered, to restore a more natural flow by slowing water and reconnecting the river with 

its floodplain.
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Table 7. Eligible river segments with associated classification and outstandingly remarkable values 

Ranger 

District ID1 River Segment River Segment Location

Classification & Outstandingly Remarkable 

Values

Camino Real 3 Alamitos Creek Headwaters to fish barrier Wild (fish) 

Camino Real 4 North Fork Alamitos Creek Headwaters to Alamitos Creek Wild (fish) 

Camino Real 6 Arroyo Hondo Forest boundary to Forest boundary Scenic (geologic) 

Camino Real 31 Rio Santa Barbara (main stem and 3 forks) Headwaters to Santa Barbara Campground Wild (scenic, recreational, fish, historic) 

Camino Real 49 Rio Grande del Rancho Private land to Forest boundary Recreational (wildlife, other) 

Camino Real 67 Agua Caliente Canyon Headwaters to Forest boundary Scenic (historic, cultural)

Canjilon 2 Arroyo del Yeso FR 138 to private land Wild (scenic, recreational, geologic) 

Canjilon 5 Canjilon Creek Private land to Forest boundary Recreational (scenic, recreational, geologic)

Canjilon 6 Canjilon Creek Headwaters to fish barrier Scenic (recreational) 

El Rito 3 Arroyo del Chamiso Headwaters to Forest boundary Recreational (scenic) 

El Rito 11 Cañada de Chacon Headwaters to El Rito Creek Wild (fish) 

El Rito 32 El Rito Creek Headwaters to fish barrier Wild (fish) 

El Rito 33 Hachita Canyon Headwaters to El Rito Creek Wild (fish) 

El Rito 42 Rio Vallecitos Jarosa Creek to FR 274 Wild (scenic, recreational) 

Jicarilla 3 Carracas Canyon Forest boundary to Forest boundary Recreational (historic)

Jicarilla 4 La Jara Canyon Forest boundary to Vaqueros Canyon Recreational (historic)

Questa 2 Bitter Creek Headwaters to private land (section 21) Recreational (recreational, historic)

Questa 4 Bull Creek Headwaters to Lagunitas Fork Wild (fish) 

Questa 7 Chuck-wagon Creek Headwaters to Comanche Creek Scenic (fish) 

Questa 8 Columbine Creek headwaters to Deer Creek Wild (fish) 

Questa 9 Columbine Creek Deer Creek to Columbine trailhead Wild (recreational)

Questa 10 Comanche Creek Headwaters to Costilla Creek Recreational (scenic, recreational, geologic, fish, 

other) 

Questa 11 Costilla Creek Forest boundary to fish barrier Recreational (scenic, recreational, fish) 

Questa 64 Costilla Creek Fish barrier to Forest boundary Recreational (scenic, recreational) 

Questa 12 Deer Creek Headwaters to Columbine Creek Wild (fish) 

Questa 13 East Fork Headwaters to trailhead Wild (scenic, historic) 
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Ranger 

District ID1 River Segment River Segment Location

Classification & Outstandingly Remarkable 

Values

Questa 14 Foreman Creek Private property boundary to Comanche 

Creek

Recreational (fish) 

Questa 17 Gold Creek Private land boundary to Comanche Creek Scenic (fish) 

Questa 19 Grassy Creek Headwaters to Comanche Creek Scenic (fish) 

Questa 20 Holman Creek Headwaters to Comanche Creek Recreational (fish) 

Questa 22 La Belle Creek Private property boundary to Comanche 

Creek

Recreational (fish) 

Questa 23 La Cueva Canyon Headwaters to Costilla Creek Scenic (fish) 

Questa 24 Lagunitas Fork Headwaters to Lake Fork Wild (fish) 

Questa 25 Lake Fork Headwaters to Cabresto Lake Wild (fish) 

Questa 29 Little Costilla Creek Headwaters to Comanche Creek Scenic (fish) 

Questa 34 Middle Fork Below Middle Fork lake to private land Scenic (scenic, historic) 

Questa 41 Placer Fork Headwaters to Columbine Creek Wild (fish) 

Questa 42 Powderhouse Canyon Headwaters to Forest boundary Recreational (fish) 

Questa 45 Red River Canyon mouth below Hwy 522 to fish 

hatchery

Recreational (recreational) 

Questa 53 Sawmill Creek Headwaters to East Fork Wild (scenic, historic) 

Questa 57 Vidal Creek Headwaters to Comanche Creek Wild (fish) 

Questa 60 Willow Fork Headwaters to Placer Fork Wild (fish) 

Tres Piedras 36 Rio de los Pinos Colorado border to private land boundary Recreational (scenic, recreational, geologic) 

Tres Piedras 37 Rio de los Pinos Private land boundary to private land 

boundary

Recreational (scenic, recreational) 

Tres Piedras 39 Rio San Antonio Stewart Meadows to Forest boundary Scenic (scenic) 

Tres Piedras 43 Rio Tusas Headwaters to section 16 tank Wild (recreational) 

Tres Piedras 50 Toltec Creek Forest Boundary to private land Wild (scenic, recreational, geologic) 

1. ID is the Identification number used to locate the river on the corresponding map (see Figure A-10).
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There are three possible classifications of eligible river segments, based on the level of development and human use in the river and along its corridor. 

Table 8 contains the criteria that must be met under each classification.

Table 8. Criteria for wild, scenic, and recreational eligible river classification 

Attribute Wild Scenic Recreational

User Experience Essentially primitive Largely primitive and undeveloped Substantial evidence of human activity.

Water Resource 

Development

Free of impoundment Free of impoundment Some existing impoundment or diversion. The 

existence of low dams, diversions, or other 

modifications of the waterway is acceptable, 

provided the waterway remains generally 

natural and riverine in appearance.

Shoreline 

Development

Little or no evidence of human activity. The presence 

of a few inconspicuous structures, particularly those of 

historic or cultural value, is acceptable.

No substantial evidence of human 

activity.

The presence of small communities or 

dispersed dwellings or farm structures is 

acceptable.

Some development. The presence of extensive 

residential development and a few commercial 

structures is acceptable.

Transportation 

Infrastructure 

Generally inaccessible except by trail.

No roads, railroads, or other provision for vehicular 

travel within the river area. A few existing roads 

leading to the boundary of the area are acceptable.

Accessible in places by road.

Roads may occasionally reach or bridge 

the river. The existence of short 

stretches of conspicuous or longer 

stretches of inconspicuous roads or 

railroads is acceptable.

Readily accessible by road or railroad.

The existence of parallel roads or railroads on 

one or both banks as well as bridge crossings 

and other river access points is acceptable.

Water Quality Meets, or exceeds criteria, or federally approved State 

standards for aesthetics, for propagation of fish, and 

wildlife normally adapted to the habitat of the river, and 

for primary contact recreation (swimming) except 

where exceeded by natural conditions. 

No criteria are prescribed by the Wild 

and Scenic Rivers Act. 

See the Watersheds and Water section 

of this plan for water quality plan 

components that apply to all waters.

No criteria are prescribed by the Wild and 

Scenic Rivers Act. 

See the Watersheds and Water section of this 

plan for water quality plan components that 

apply to all waters.

Agriculture A limited amount of domestic livestock grazing or hay 

production is acceptable.

The presence of grazing, hay 

production, or row crops is acceptable.

Lands may have been developed for the full 

range of agricultural uses.

Timber 

Production

Little or no evidence of past timber harvest. No 

ongoing timber harvest.

Evidence of past or ongoing timber 

harvest is acceptable, provided the 

forest appears natural from the 

riverbank. 

Lands may have been developed for the full 

range of forestry uses.

May show evidence of past and ongoing timber 

harvest.
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Eligible Wild and Scenic River Desired Conditions (MA-EWSR-DC)

1 The outstandingly remarkable values and free-flowing condition of eligible segments are preserved.

2 Eligible river segments and their corridors are protected for the benefit and enjoyment of present and 

future generations.

3 The user experience in eligible river corridors is consistent with the river’s classification.

Eligible Wild and Scenic River Standards (MA-EWSR-S)

1 Any authorized water resources project in an eligible river segment must not adversely modify 

the river’s free-flowing character.46

2 Any authorized project or activity within 0.25 mile of an eligible river segment must protect the 

outstandingly remarkable values that provide the basis of the river’s eligibility for inclusion in 

the system.

3 The classification of an eligible river segment shall be maintained as inventoried. Any project or 

activity within 0.25 mile of an eligible river segment must preserve the appropriate user 

experience according to the river’s classification.

4 A suitability study shall be conducted for any proposed project or activity that would conflict 

with the river’s eligibility requirements. 

5 Existing or new mining activity on agency-identified eligible river segments must be conducted 

in a manner that minimizes surface disturbance, sedimentation, pollution, and visual impairment.

6 The sale of common variety mineral material is prohibited within 0.25 mile of any wild eligible 

river segment.

7 Cutting of trees shall not be permitted in wild eligible river segment corridors, except when 

needed in association with a primitive recreation experience, to protect users, or to protect the 

outstandingly remarkable values that provide the basis of the river’s eligibility for inclusion in 

the system.

8 New airfields may not be developed within 0.25 mile of a wild eligible river segment.

Eligible Wild and Scenic River Guidelines (MA-EWSR-G)

1 New roads or motorized trails should not be constructed within 0.25 mile of a wild classified 

eligible river segment, to preserve the essentially primitive user experience. 

 

46 Water resources projects include all modifications to the stream channel or banks below the ordinary high water mark of a 

river. Proposed water resources projects must be analyzed to determine their effects on free flow, specifically whether they 

alter or restrict the natural function of the river (i.e., bank erosion, channel shifting, bed-load or debris movement). Water 

resources projects that modify free-flowing character may occur only when they mimic natural river processes, restore more 

natural river function, and are otherwise consistent with the river’s eligibility.
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Developed Winter and Summer Resort Management Area (DEVRES) 

The developed winter and summer resorts management area includes the existing four resorts that are 

currently permitted and developed on the Carson. The existing resorts are Taos Ski Valley, Red River Ski 

and Summer Area, and Enchanted Forest Cross-Country Ski Area, located on the Questa Ranger District, 

and Sipapu Ski and Summer Resort, which is on the Camino Real Ranger District (Figure A-11). Initially 

developed and managed as ski areas, winter and summer resorts on the Carson are now operated by the 

private sector to provide opportunities for outdoor recreation activities during all seasons of the year. 

Snow skiing and boarding is still one of the Carson’s most popular recreation activities. These resorts 

provide winter sports activities and other intensively managed outdoor recreation opportunities for large 

numbers of national and international visitors in highly developed settings. Opportunities for solitude 

within developed the winter and summer resorts management area are limited. In some areas, use in the 

summer may be as intensive as in the winter.

Winter and summer resorts are managed under a special use permit. As a part of the special use permit, 

each ski area develops master development plan that is accepted by the Forest Service. Master 

development plans describe the improvements and facilities that are desired at each resort and are the 

guiding document used to describe its expected future condition. A master development plan encompasses

all of the area authorized for use under permit (permit area), including areas that are currently

undeveloped.

Developed Winter and Summer Resort Management Area Desired Conditions (MA-DEVRES-DC)

1 Resort activities play a dominant role in affecting the composition, structure, and pattern of 

vegetation across most of the management area. Vegetation is a mosaic (e.g., varying widths and 

shapes) that includes natural and created grassy openings intermixed with forested areas, partially 

forested areas, and rocky outcroppings providing a variety of species and age classes.

2 Forests within the developed winter and summer resort management area have structure, 

composition, and densities that are resilient to disturbances (e.g., fire, wind throw, insects, and 

disease). 

3 Resort facilities (e.g., buildings, lifts, and groomed trails) may be evident, but blend and harmonize 

with the forest setting from key viewpoints. 

4 Transportation routes within the permit area blend with the surrounding forest.

5 Base area development within the developed winter and summer resort management area

complements the overall forest setting and serves the needs of forest visitors.

6 Focused and diverse recreational opportunities in specific areas respond to demand. Local 

communities can easily access these areas for a variety of motorized and non-motorized experiences.

7 Contacts with Forest Service personnel are common, generally for the purposes of providing 

information, education, interpretation, and monitoring compliance with the terms and conditions of 

the special use permit.

8 Traditional and cultural uses are recognized within the developed winter and summer resort 

management area. 
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Developed Winter and Summer Resort Management Area Guidelines (MA-DEVRES-G)

1 Scenic values of the developed winter and summer resort management area should be protected

through the application of basic landscape aesthetics and design principles.

2 Visibility of structures (e.g. ski lifts, roads, utilities, buildings, signs, and other constructed

facilities) should be limited, to minimize their impacts outside the management area.

3 Facilities and transportation routes that are no longer used within the developed winter and 

summer resort management area should be removed or rehabilitated.
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Jicarilla Natural Gas Management Area (JICMA)

Oil and natural gas development on the Carson is currently limited to the Jicarilla Ranger District (see 

Figure A-12). Leasing is authorized over the entire Jicarilla Ranger District, with the exception of the 

historic Gasbuggy Site (640 acres).47 Leasing activity varies with fluctuations in the price of oil and gas. 

Resource issues and conflicts surrounding oil and gas development on the Jicarilla Ranger District

primarily consist of effects to cultural resources. Traditionally these resources have been avoided, but in 

recent years site mitigation has been proposed, but not conducted. The Jicarilla Ranger District has a high 

density of archeological sites and cultural resources are often the final driving force for well pad and 

access road location. Wildlife issues primarily influence projects proposed near northern goshawk or 

Mexican spotted owl habitat. These issues are mitigated with survey requirements and timing limitations.

It is important to note that the special lease stipulations apply only to new leases. Pre-existing leases are 

subject to the stipulations of their leases. However, new development on existing leases must also comply

with management direction of this plan.

48 Any additional mitigation measures would need to be 

justifiable, still provide reasonable access for the leaseholder and would be incorporated in a site-specific 

document.

Amendment 13 of the 1986 land management plan identifies five areas of resource concern with 

important resource values that need to be protected on the Jicarilla Ranger District. These areas and their 

resource values are:

• Bancos Canyon (cultural resources, watershed, wildlife habitat, and seclusion)

• La Jara Canyon (undeveloped characteristics, cultural resources, wildlife security, seclusion)

• Valencia Canyon (undeveloped characteristics, cultural resources, wildlife security, seclusion)

• Fierro Mesa and Canyon (undeveloped characteristics)

• Vaqueros Canyon (visual resources, wildlife habitat)

The Jicarilla Roads Committee is a longstanding, unique partnership between the Jicarilla Ranger District

and oil and gas lease and pipeline operators. Each year, operators pledge a certain amount of services, 

equipment, and money to conduct maintenance on over 100 miles of NFS roads. The committee has been 

funding annual road maintenance on the Jicarilla Ranger District since 2000, with an annual maintenance 

budget of over $200,000.

 

47 The location of a nuclear experiment to fracture formations to increase gas flow conducted in 1967. The Atomic Energy 

Commission (now the Department of Energy) withdrew the area from leasing through Public Land Order 4232.

48 This direction is consistent with Interior Board of Land Appeals decisions (Yates Petroleum Corp., IBLA 2006-213, 2006-226 

and William P. Maycock, IBLA 2008-197, 2008-200), which give the Bureau of Land Management (BLM) discretion to 

modify surface operations to add specific mitigation measures supported by site-specific National Environmental Policy Act

analysis undertaken during the development phase on existing leases (CO-2010-028). 
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Jicarilla Natural Gas Management Area Desired Conditions (MA-JICMA-DC)

1 Oil and natural gas development is consistent with mineral and leasing laws and valid existing rights 

in a manner that minimizes adverse impacts to surface and groundwater resources, air quality, 

watershed and forest ecosystem health, wildlife and wildlife habitat, scenic character, and other 

desired conditions applicable to the area and similar desired conditions on adjacent Federal and tribal 

lands.

2 The resource values of each area of resource concern (currently Bancos Canyon, La Jara Canyon, 

Valencia Canyon, Fierro Mesa and Canyon, and Vaquero Canyon) are protected, maintained, and 

enhanced. 

Jicarilla Natural Gas Management Area Standards (MA-JICMA-S)

1 All newly developed facilities shall comply with the air quality mitigation requirements set forth 

by the New Mexico Air Quality Bureau. When existing facilities are updated, these mitigation 

measures will also be followed. 

2 Sound levels generated by oil and gas production and transportation shall comply with BLM 

direction for sound in the San Juan Basin described in the “Notice to Lessees and Operators on 

Onshore Oil and Gas Leases within the jurisdiction of the Farmington BLM Field Office” (NTL 

04-2 FFO). As changes occur over time, the Forest Service will continue to adopt the BLM 

standards as they develop. 

3 New drilling activity and completions shall be limited to April 1 through October 31. This 

applies as a condition of approval in new leases. Exceptions may be considered on a case-bycase basis. Normal recurring production and day-to-day operations will continue to occur yearround. 

4 Well pad construction shall be excluded in riparian areas.

5 New roads crossing slopes greater than 40 percent that do not specify controlled surface use 

shall be avoided, unless there is no other option–then an engineering design approved by the 

Forest Service is required to support road construction on slopes greater than 40 percent. 

6 Maximum grades shall be limited to 8 percent for new roads, unless pitches are less than 300 

feet (up to 10 percent permitted in some cases).

7 Pipelines shall be aligned along existing roads and rights-of-way and pipes shall be located to 

allow multiple surface uses and co-location of infrastructure (e.g., water lines, electrical lines, 

etc.) to occur on top of or near these lines, to minimize surface disturbance. 

8 Lands disturbed in conjunction with lease development activities shall be reclaimed to stable and 

productive conditions, to meet forestwide desired conditions, multiple use goals, and any 

specific resource needs identified during project level environmental analysis.

9 A 5-year development strategy shall be required, prior to proposed development on leases in 

areas of resource concern (Bancos Canyon, La Jara Canyon, Valencia Canyon, Fierro Mesa and 

Canyon, and Vaquero Canyon). 
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10 The following stipulations apply to new leases, including those pending, currently unleased, and 

any existing leases that become available for leasing in the future:

a. No Surface Occupancy: A no surface occupancy stipulation shall be applied to new leases in 

Bancos Canyon, La Jara Canyon, Valencia Canyon (beyond 300 feet from existing roads), 

and Fierro Canyon, and in Mexican spotted owl critical habitat. Leasing with a no surface 

occupancy stipulation in these areas of resource concern makes energy resources available for 

companies willing to employ unconventional drilling technology. Extraction of these energy 

resources without roads or well pads allows the Forest Service to pursue the management 

objectives of protecting undeveloped characteristics, cultural resources, wildlife habitat, and 

seclusion of these areas. 

b. Controlled Surface Use: A controlled surface use stipulation shall be applied to new leases on 

the Jicarilla Natural Gas Management Area, to minimize the potential for excessive erosion 

and loss of soil productivity. With the exception of areas where a no surface occupancy

stipulation is applied, new leases on the rest of Jicarilla Natural Gas Management Area are 

open to development subject to the following constraints: (1) no well pad construction on 

slopes greater than 20 percent, with cuts over 15 feet in depth and (2) no roads on side slopes 

greater than 40 percent. 

c. Timing Restrictions: New drilling activity or completion (e.g., construction, drilling, 

completions, swabbing, pump changes, tubing changes, replacing production equipment, or 

any other maintenance activity that requires heavy equipment) is limited to April 1 through 

October 31. This timing restriction does not apply to day-to-day maintenance and operation 

of producing wells.

d. Cultural Resource Lease Notice: The following will be included in all future lease packages 

prior to sale. “All development activities proposed under the authority of this lease are subject 

to compliance with Section 106 of the National Historic Preservation Act and Executive 

Order 13007. The lease may contain historic properties, traditional cultural properties, or 

sacred sites currently unknown to the Forest Service during the lease parcel review process. 

Depending on the nature of the lease developments and activities being proposed, the Forest 

Service will not approve any activities as part of future lease operations that have the 

potential to affect traditional cultural properties and historic properties, until it completes 

applicable requirements of the National Historic Preservation Act, including any required 

procedure for notification and consultation with appropriate Indian tribe(s) and the State 

Historic Preservation Officer. Mitigation measures may be required to avoid, minimize, or 

mitigate adverse effects to historic properties and traditional cultural properties, the costs of 

which will be borne by the lessee. The Forest Service may require modifications to surface 

use plans of operations or disapprove proposed exploration or development activities that are 

likely to adversely affect historic properties, traditional cultural properties, or sacred sites for 

which no mitigation measures are possible. This could result in extended timeframes for 

processing authorizations for development activities, as well as changes in the ways in which 

development are implemented.” 

11 Restoration and reclamation of surface disturbance from well pad construction and well drilling 

shall be completed to achieve 70 percent of the groundcover (compared to nearby undisturbed 

areas), with permanent native vegetation within 3 growing seasons. The success of groundcover 
Chapter 3. Plan Components for Designated Areas and Management Areas

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establishment shall be monitored until 70 percent of the groundcover is attained. Reclamation 

meeting the same standard is required for redisturbance of revegetated areas.

Jicarilla Natural Gas Management Area Guidelines (MA-JICMA-G)

1 Drilling techniques, such as directional or horizontal drilling and well siting measures (e.g., colocation and twinning and closed loop drilling), should be used, to minimize impacts to surface 

resources. Existing well pads, roads, and pipeline rights-of-way for new facilities should also be 

used. 

2 Established best management practices found in the most current version of the Surface 

Operating Standards for Oil and Gas Development: The Gold Book49 or other applicable sources

should be applied to natural gas activities. 

3 Electrification of lease facilities should be developed, to minimize noise and emissions related to 

internal combustion engines for new and existing leases.

4 Oil and gas related seismic activities should be conducted on established roads or utilizing heliportable equipment for cross-country operations, to minimize surface disturbance.

5 To prevent erosion, well pad construction on slopes greater than 20 percent, with cuts over 15 

feet, should be avoided, unless there is no other option.

6 All new lease roads over 300 feet in length should be closed to public motorized access, except 

where other resource needs dictate the road should be left open to the public, to reduce motor 

vehicle impacts. 

7 Loop roads to access leases should be permitted only where a transportation proposal developed 

by the operator and approved by the Forest Service demonstrates that there would be a benefit to 

surface resources.

8 Centralized collection points and water pipelines for drilling and produced water should be 

developed, to minimize impacts to ecological and cultural resources. 

9 Reclaimed areas should be monitored and maintained, to minimize the establishment of invasive 

plants during the reclamation period.

10 Vaqueros Canyon Area of Resource Concern – Design criteria for oil and gas development 

activities should adhere to the natural characteristics dominating the landscape. 

Management Approaches for Jicarilla Natural Gas Management Area

1. Consider alternative drilling technology and various site locations, prior to developing new well sites, 

roads, or pipelines within an area of resource concern, to minimize the impacts to surface resources.

 

49 USDI 2007. Surface Operating Standards and Guidelines for Oil and Gas Exploration and Development: The Gold Book, 

Fourth Edition. BLM/WO/ST-06/021+3071/REV 07. Bureau of Land Management. Denver, Colorado. 84 pp. available online 

at https://www.blm.gov/programs/energy-and-minerals/oil-and-gas/operations-and-production/the-gold-book 
Chapter 3. Plan Components for Designated Areas and Management Areas

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2. Continue with the partnership between the Forest Service and natural gas lease and pipeline operators

(Jicarilla Roads Committee) to provide services, equipment, and money in maintaining roads on the 

Jicarilla Ranger District. 

3. Consider offsite mitigation based on the scope and complexity of the project or adverse impacts to 

resources due to development.
Chapter 3. Plan Components for Designated Areas and Management Areas

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172

Grassland Maintenance Management Area (GMMA)

The Carson has converted some stands of piñon pine and juniper and ponderosa pine to production of 

native and introduced grass species. There are a total of 61,824 acres that have been identified for 

maintenance as grasslands through active management (Figure A-13). The original conversions were 

accomplished by plowing, chaining, dozer piling, tree crushing, and hand clearing with chainsaws then 

seeding to grass, primarily crested wheat. These conversion projects began in the late 1940s and have 

continued to be maintained. Generally, these areas are flat to gently rolling. The soils have high 

revegetation potential and low to moderate erosion hazard. Most of the converted areas provide valuable 

habitat for many species of wildlife, and many are key elk and deer winter range. The primary purpose of 

these conversion areas is to increase available forage for grazing, and they need to be maintained in a 

seral grass state if the Carson is to maintain its grazing commitment.

Grassland Maintenance Management Area Desired Conditions (MA-GMMA-DC)

1 In previously converted areas, vegetation remains in a seral grass state, with tree and shrub canopy 

cover of less than 10 percent each.

2 Regeneration, seed head production, and a balance of grass and forb species, including warm and 

cool season species, occur in most years and within the capability of soils. 

3 Soil function is sustained. Soils are permeable and capable of infiltrating water to reduce overland 

flows during precipitation events and allow for burrowing by small mammals (Gunnison’s prairie 

dog and masked shrew). Adequate water infiltration discourages arroyos, gullies, and head cuts from 

forming in drainages. Existing arroyos and gullies are stabilizing and recovering.

Grassland Maintenance Management Area Standards (MA-GMMA-S)

1 Unconverted portions of this management area are managed consistent with the appropriate 

vegetation community plan direction.

2 Native grass seed shall be used when reseeding is required, to reestablish native vegetation. 

3 Reseeding shall focus on areas where herbaceous groundcover prior to treatment is less than 30

percent. 
Chapter 3. Plan Components for Designated Areas and Management Areas

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Valle Vidal Management Area (VVMA) 

Valle Vidal management area is approximately 100,000 acres of rolling, grassland meadows surrounded 

by conifers, bristlecone pines, and aspen stands in the northern portion of the Questa Ranger District

(Figure A-14). On December 31, 1981, the Pennzoil Company donated a portion of its 492,560-acre 

Vermejo Ranch in northeastern New Mexico to the people of the United States through the USDA Forest 

Service and called it Valle Vidal (“Valley of Life”). The special warranty deed that accompanied the 

donation specifically: (1) excludes the mining claims and town site within the La Belle area; (2) conveys 

all improvements located on the lands transferred; (3) recognizes the perpetual coal royalty interest 

Indenture Agreement with Kaiser Corporation; and (4) includes two road easements to Vermejo Park. No 

other provisions or restrictions were included in the deed.

The Valle Vidal management area’s streams and lakes are the headwaters of the Costilla and Ponil 

watersheds. All of the perennial streams within Valle Vidal are designated as Outstanding National 

Resource Waters by the State of New Mexico. Forests are predominantly spruce-fir, ponderosa pine, and 

mixed conifer, interspersed with aspen. There are large, contiguous stands of mature bristlecone pine and 

mixed stands of bristlecone, aspen, and large Douglas-fir trees. The variety of forest age classes and 

structures provides diverse habitats with abundant wildlife.

The Valle Vidal Management Area is managed for multiple uses, focusing on the restoration and 

protection of diverse, resilient, biological communities for future generations, while providing a quality 

outdoor recreation experience. Wildlife habitats provide for a diversity of native plants, fish, and wildlife. 

Frequent fire plays a role in lessening the probability of a catastrophic wildfire, while contributing to the 

reestablishment of ecological processes. With its large, open meadows, Valle Vidal supports one of New 

Mexico’s largest elk herds. Meadows are not only significant to elk, but also provide one of Valle Vidal’s 

many scenic features for outdoor recreationists.

The Valle Vidal Management Area is a special place to the people of New Mexico and people from 

around the world, who come to marvel at the impressive views and its prized elk herd and their calves, to 

enjoy recreation and sporting opportunities, and to catch the rare Rio Grande cutthroat trout. Not only 

does the Valle Vidal offer outstanding scenic, wildlife viewing, and recreational opportunities, it also 

serves as an important resource for the ranching and agricultural communities of New Mexico, with its 

fresh water, firewood, and traditional grazing lands. 

Valle Vidal Management Area Desired Conditions (MA-VVMA-DC)

1 Sustainable populations of terrestrial and aquatic plant and animal species are supported by healthy 

ecosystems, as described by Vegetation and Watersheds and Water desired conditions, especially 

within young rearing and winter range habitat of ungulates. 

2 Species are free from harassment and human disturbance at a scale that impacts vital functions (e.g.

breeding, feeding, and rearing young) that could affect persistence of the species. 

3 Habitat conditions are capable of supporting self-sustaining native aquatic species populations.

4 A variety of outstanding outdoor recreation experiences are available, with an emphasis on Primitive 

and Semi-primitive settings.

5 Opportunities exist for outdoor, nature-based education (e.g., youth development and wilderness 

skills) and inspiring land stewardship.
Chapter 3. Plan Components for Designated Areas and Management Areas

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Valle Vidal Management Area Standards (MA-VVMA-S)

1 Except Forest Road 1950, the west side (Taos County) shall be closed to all public entry from 

May 1 to June 30, to provide security for elk calving.

2 Except Forest Road 1950, Forest Road 1910, and Forest Road 1900, the east side (Colfax 

County) shall be closed to all public entry from January 1 to March 31, to provide security for 

elk winter range.

3 Over-snow use off of designated areas identified on the Carson’s most updated over-snow 

vehicle use map50 is prohibited, except as authorized by law, permits, or orders, to protect public 

safety and ecological resources. 

4 Long-term public vehicle access into Valle Vidal shall be limited to the Cerrososo Canyon and 

Costilla Creek routes, along existing Forest Service Road 1950.

5 The designated road system open to the public at current maintenance levels includes Forest 

Service Roads 1900, 1910, 1913, 1914, 1915, 1916, and 1950. No roads for public access shall 

be added to the current designated road system.

6 The number of designated overnight parking areas outside of campgrounds shall be limited to 

21.

7 Vehicle camping shall be limited to Cimarron and McCrystal Campgrounds only. 

8 Overnight parking for backcountry camping shall be limited to designated parking areas. 

9 Backcountry camping shall be limited to outside of 0.5 mile of open roads, 100 yards of natural 

waters, or 300 yards of constructed waters.

10 Feeding, tethering, and holding of horses are limited to designated sites within Cimarron and 

McCrystal Campgrounds and Clayton Corral.

11 Any livestock feed brought into Valle Vidal Management Area shall be either commercially 

processed (pelletized) feed or certified weed-free hay.

12 Gathering of downed, dead, or green trees for firewood shall be allowed only in designated areas 

and authorized through a fuelwood permit issued by the Forest Service.

13 Shuree Canyon Pasture shall be used by permitted livestock as a trailing pasture only.

14 Development of commercial infrastructure for renewable power generation is prohibited.

15 Private for-profit commercial facilities are prohibited in Valle Vidal management area. 

16 Designated public and commercial communication or electronic sites are prohibited.

17 Outstanding (existing) mineral rights shall be recognized as authorized by the United States 

mining laws (30 U.S.C. 21-54). Any entry to access existing mineral rights will be conducted in 

an environmentally sound way through appropriate administration of mineral laws and 

 

50 Or other, most current direction such as the forest visitor map.
Chapter 3. Plan Components for Designated Areas and Management Areas

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regulations so as to minimize adverse environmental effects on National Forest System 

resources. Site-specific analysis shall occur to evaluate potential effects and develop appropriate 

mitigation measures. Operating plans and bonds shall be used if needed, to ensure protection and 

restoration of surface resources.

18 Subject to valid existing rights, Valle Vidal management area shall be withdrawn from: 

a. all forms of mineral entry, appropriation, and disposal under the public land laws;

b. location, mineral entry, and patent under the mining laws; and

c. operation of the mineral leasing and geothermal leasing laws and common variety mineral 

materials laws.

51

19 If valid existing rights are relinquished or otherwise acquired by the United States, the lands that 

were subject to the rights shall be immediately withdrawn.

20 Extraction of common variety minerals for commercial or public use is prohibited. 

Valle Vidal Management Area Guidelines (MA-VVMA-G)

1 Any temporary project-level motorized routes or temporary road construction should be 

rehabilitated within two years of project completion, to protect the recreation experience. 

2 Temporary roads should not be allowed, except to meet resource objectives, to protect the 

recreational experience.

Management Approaches for Valle Vidal Management Area

1. Consider working with groups and individuals interested in the management of Valle Vidal to provide

guidance during planning, implementation, and monitoring of environmental restoration projects.

2. Consider coordinating with the New Mexico Department of Game and Fish, so that management 

activities are consistent with the agency’s fisheries management plans. 

3. Consider identifying and working with partners to restore Shuree Lodge (in keeping with the National 

Historic Preservation Act and in consultation with the State Historic Preservation Officer), to use for 

nonprofit activities open to the public, such as an interpretive center, volunteer lodging during 

educational and cultural events, or as an administrative facility. Other historic structures may also be 

restored and adaptively reused. Potential uses include renting cabin(s) to the public as part of the 

Forest Service cabin rental program, administrative needs, or other appropriate uses. No private forprofit commercial facilities are allowed.

 

51 In compliance with the Valle Vidal Protection Act of 2006.
Chapter 3. Plan Components for Designated Areas and Management Areas

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176

San Antonio Management Area (SAMA)

San Antonio Management Area is approximately 117,035 acres of rolling, grassland surrounded by 

conifers, ponderosa pines, and aspen stands in the northern portion of the Tres Piedras Ranger District

(Figure A-15). The San Antonio Management Area contains the Rio San Antonio gorge, San Antonio 

Mountain, streams with Rio Grande cutthroat trout populations, Continental Divide National Scenic Trail, 

speckled granite outcrops, eligible wild and scenic rivers, wetlands, and the existing Cruces Basin 

Wilderness. San Antonio Mountain is the largest free standing mountain in the Lower 48. It is the tallest 

of the Cerros, a solitary volcanic peak rising out of the desert floor. There is a crater (caldera) at the 

summit, with unique alpine grassland ecology. This area contains the renowned San Antonio Cave, one of 

the oldest lava tubes in North America, with some of the oldest mammalian fossils ever found. Forests are 

predominantly spruce-fir, ponderosa pine, and mixed conifer, interspersed with aspen. The variety of 

forest age classes and structures provides diverse habitats with abundant wildlife.

San Antonio Management Area is managed for multiple uses, focusing on the protection of diverse, 

resilient, biological communities for future generations, while providing a quality outdoor recreation 

experience. Wildlife habitats provide for a diversity of native plants, fish, and wildlife. Frequent fire plays 

a role in lessening the probability of a catastrophic wildfire, while contributing to the reestablishment of 

ecological processes. With its large grasslands, San Antonio Management Area supports one of New 

Mexico’s largest elk herds during critical winter months.

San Antonio Management Area is a special place to marvel at the prized elk herds, to enjoy recreation and 

sporting opportunities (e.g., hunting, mountain biking, and snowmobiling), and to catch the rare Rio 

Grande cutthroat trout. Not only does the San Antonio Management Area offer wildlife viewing and 

recreational opportunities, it also serves as an important resource for the ranching and agricultural 

communities of New Mexico, with its fresh water, firewood, and traditional grazing lands.

San Antonio Management Area Desired Conditions (MA-SAMA-DC)

1 Sustainable populations of terrestrial and aquatic plant and animal species, are supported by healthy 

ecosystems, as described by Vegetation and Watersheds and Water desired conditions.

2 Wildlife and fish species are free from harassment and human disturbance at a scale that impacts 

vital functions (e.g., breeding, feeding, and rearing young) that could affect persistence of the 

species. 

3 A variety of outstanding outdoor recreation experiences are available, with an emphasis on primitive 

and semi-primitive settings. 

4 NFS lands exist as a mostly contiguous land base that best provides for and contributes to 

management of vegetation and watershed health, wildlife habitat and diversity, and recreation and 

scenic opportunity.

San Antonio Management Area Standards (MA-SAMA-S)

1 No new permanent roads for public access shall be constructed.

2 Temporary roads that support ecosystem restoration activities, fuels management, or other shortterm projects shall be closed and rehabilitated upon project completion, to protect watershed 

condition, minimize wildlife disturbance, and prevent illegal motorized use. 
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3 New or reconstructed fencing shall allow for wildlife passage, except where specifically 

intended to exclude wildlife (e.g., elk exclosure fence) or to protect human health and safety.

4 New and reconstructed range improvements must be designed to prevent wildlife entrapment 

and provide safe egress for wildlife (e.g., escape ramps in water troughs and cattleguards).

5 Outstanding (existing) mineral rights shall be recognized as authorized by the United States 

mining laws (30 U.S.C. 21-54). Any entry to access existing mineral rights will be conducted in 

an environmentally sound way through appropriate administration of mineral laws and 

regulations so as to minimize adverse environmental effects on National Forest System 

resources. Site-specific analysis shall occur to evaluate potential effects and develop appropriate 

mitigation measures. Operating plans and bonds shall be used if needed, to ensure protection and 

restoration of surface resources.

6 Development of commercial infrastructure for renewable power generation is prohibited.

7 Extraction of common variety minerals for commercial or public use is prohibited. 

San Antonio Management Area Guidelines (MA-SAMA-G)

1 Management activities should avoid disturbance to big game species during birthing season and 

on winter range during the winter period. Management activities should concentrate activities in 

time and space to reduce impact to big game species. Timing restrictions, adaptive percent 

utilizations, distance buffers, or other means of avoiding disturbance should be based on the best 

available information, as well as site-specific factors (e.g., topography, available habitat, etc.).

Management Approaches for San Antonio Management Area

1. Consider improving wildlife or aquatic habitat connectivity within the San Antonio Management Area 

by removing unneeded structures (e.g., fences, roads, cattleguards, and culverts) or completing 

improvement projects (e.g. removing barriers and connecting fragmented habitat).

2. Consider projects in the San Antonio Management Area that improve habitat connectivity for aquatic 

and riparian species (e.g., remove barriers, restore dewatered stream segments, connect fragmented 

habitat, wildlife passage friendly fences, etc.).

3. Consider working with groups and individuals interested in the management of the greater San 

Antonio landscape, to provide guidance during planning, implementation, and monitoring of 

environmental restoration projects.

4. Consider coordinating with adjacent landowners, Federal and State land managers, and State agencies 

when ground disturbing activities are proposed in the San Antonio Management Area. Consider the 

cumulative impacts of ground-disturbing projects that are occurring or will occur on adjacent lands 

and whether the spatial, temporal, or other design features can mitigate impacts to connectivity.

5. Consider the amounts, arrangements, and condition of natural communities and habitats that benefit 

wildlife, during planning by multiple resource areas including range, fire, and timber.

6. Consider coordinating with the New Mexico Department of Game and Fish, USFWS, adjacent 

Federal land managers, sportsman’s groups, the scientific community, and other stakeholders 

regarding information, education, and knowledge gaps as they relate to promoting and improving 

wildlife, fish, and plant resources and management. 
Chapter 3. Plan Components for Designated Areas and Management Areas

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7. Consider identifying linkages and barriers to wildlife movements and mitigating impacts during 

project design, by working with New Mexico Department of Game and Fish, New Mexico 

Department of Transportation, federally recognized tribes, Federal, State, and local agencies, Federal

and State land managers, private landowners, and other organizations.
Draft Land Management Plan for the Carson National Forest

179

Chapter 4. Plan Monitoring Program

Introduction

Under the 2012 Planning Rule, monitoring consists of two elements: the plan monitoring program and 

broader-scale monitoring strategies. Together, these support adaptive management by demonstrating if a 

change in plan components or other plan content that guide management of resources on the plan area 

may be needed. Broader-scale monitoring strategies are developed by the Regional Forester and are not 

completed at this time. 

The plan monitoring program was developed collaboratively with other agencies, organizations, and 

individuals, in consultation with Tribes, while coordinating with Forest Service Research and State and 

Private Forestry. Monitoring is continuous and provides feedback for the planning cycle by testing 

assumptions, tracking relevant conditions over time, and measuring management effectiveness. It uses the 

best available scientific information while remaining within the financial and technical capabilities of the 

agency. 

The plan-level monitoring program is informed by the assessment report (USDA FS 2015); developed 

concurrently with plan development; and implemented after plan adoption. Biennial monitoring 

evaluation reports document whether a change to the plan or change to the monitoring program is 

warranted based on new information, whether a new assessment may be needed, or whether there is no 

need for change at that time. The monitoring strategy provides a framework for subsequent monitoring 

and evaluation designed to inform adaptive management. The 2012 Planning Rule requires that the plan 

monitoring program contain at least one monitoring question and associated indicator to address each of 

the following eight topics (36 CFR 219.12(a)(5)):

I. The status of select watershed conditions

II. The status of select ecological conditions (including key characteristics of terrestrial and aquatic 

ecosystems)

III. The status of focal species to assess how ecological conditions provide for the diversity of plant 

and animal communities, within the Forest Service authority and consistent with the inherent 

capability of the planning area

IV. The status of select ecological conditions that contribute to the recovery of threatened and 

endangered species, conserve proposed and candidate species, and maintain a viable population 

of each species of conservation concern (species of conservation concern) 

V. The status of visitor use, visitor satisfaction, and progress toward meeting recreation objectives

VI. Measureable changes on the plan area related to climate change and other stressors 

VII. Progress toward meeting desired conditions and objectives in the plan, including for providing 

multiple use opportunities

VIII. The effects of management systems to determine that they do not substantially and permanently 

impair the productivity of the land
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IX. Changes in social, cultural, and economic conditions that are influenced by the plan and 

contributions of plan area management toward meeting social, cultural, and economic attributes 

of desired conditions in order to provide feedback for adaptive management toward expected and 

potential contributions to social and economic sustainability.

Monitoring is the part of the adaptive management strategy used to determine the degree to which on-theground 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.

Monitoring questions focus on providing the information necessary to evaluate whether plan components 

are effective and appropriate and whether management is effectively maintaining or achieving progress 

toward the desired conditions and objectives in the plan area. Indicators are quantitative or qualitative 

variables that can be measured or described and that, when observed periodically, show trends in 

conditions that are relevant to the associated monitoring questions.
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Monitoring Topic I: Watershed Conditions 

These monitoring questions and their associated indicators are related to water resources and watershed conditions in the plan area. The geographic scale 

may extend beyond the plan area and may include downstream areas where water originates in the plan area. 

Table 9. Monitoring questions and associated indicators that evaluate select watershed conditions

Selected Plan 

Components Monitoring Questions Indicators Monitoring Interval

FW-WSW-DC-1 

FW-WSW-O-1 

FW-TFA-O-1 

Are watersheds functioning properly?

Are "impaired" or "functioning-at-risk" 

watersheds moving towards desired 

conditions?

Percentage of watersheds in proper functioning condition.

Number of acres treated in order to improve watershed 

condition.

Miles of road decommissioned

Annual for all indicators except for as 

necessary for project implementation for 

the aquatic focal species

FW-WSW-RMZSTM-DC-5 

FW-WSW-RMZWB-DC-5 

FW-WSW-RMZSNS-DC-5 

FW-WSW-G-1 

Are best management practices being 

implemented to minimize impacts and 

improve water quality?

Are best management practices 

effectively protecting watershed 

condition, including water quality?

Visual confirmation of best management practices 

implementation

Review a sample of soil-disturbing activities for 

compliance with best management practices by project 

and allotment operating instruction implementation.

Monitoring of best management practices 

Every 5 years

FW-VEG-DC-8 Are management actions maintaining or 

improving soil cover contributing to 

improved soil condition?

Ground cover

Soil condition rating

Every 5 years

FW-WSW-DC 4

FW-WSW-O-1 

FW-TFA-O-1 

FW-WFP-O 2

FW-WFP-O 3

FW-WFP-O 4

FW-WFP-O 5

To what extent are forest management 

activities improving ecological condition 

for Aquatic At-Risk Species?

Number of fish passage barriers removed or created

Number of roads decommissioned within the riparian 

management zone

Number of culverts removed or upgraded

Number of activities with stream miles of habitat 

improvements

Stream miles treated for non-native invasive species

Annually
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Monitoring Topic II: Ecological Processes and Conditions for Terrestrial and Aquatic Ecosystems 

These monitoring questions and their associated indicators are related to terrestrial and aquatic ecosystems. The monitoring questions and indicators are 

selected to measure the effectiveness of the plan to maintain or restore ecological conditions for key ecosystem characteristics associated with 

composition, structure, function, and connectivity. 

Table 10. Monitoring questions and associated indicators that evaluate select ecological conditions for key characteristics of terrestrial and aquatic 

ecosystems

Selected Plan 

Components Monitoring Questions Indicators Monitoring Interval

FW-VEG-DC-3 

FW-VEG-DC-2 

FW-VEG-MCD-O-1 

FW-VEG-PPF-O-1 

FW-VEG-MCD-O-2 

FW-VEG-PPF-O-2 

What is the condition and trend of key 

characteristics of vegetation on the 

forest?

Are management actions moving fire 

regimes toward desired conditions?

Vegetation composition, size class, and canopy cover

Acres of Mixed Conifer with Frequent Fire treated 

Acres of Ponderosa Pine Forest treated

Acres and location of insect and disease infestations

Vegetation characteristics-every 10 

years

Acres treated and acres of insect 

and disease–annually

FW-WFP-DC-2 

FW-WSW-RMZ-SNS-O-1 

FW-WFP-O 1

FW-WFP-O 4

FW-WFP-O 5

Are management activities moving 

terrestrial habitat towards desired 

conditions?

What is the status of habitat for At-risk 

Species associated with High Elevation 

Forest on NFS lands? 

What is the status of habitat for At-risk 

Species associated with Frequent Fire 

Forest on NFS lands? 

What is the status of habitat for At-risk 

Species associated with Woodlands on 

NFS lands? 

What is the status of habitat for At-risk 

Species associated with Non-Forested

vegetation on NFS lands?

Number of water features maintained, improved, or 

installed

Acres of terrestrial habitat restored or enhanced

Focal Species presence

Number of water features and 

acres restored or enhanced–

annually

Focal species presence–As 

necessary for project 

implementation

FW-WSW-RMZ-DC-1 

FW-WSW-RMZ-DC-2 

FW-WSW-RMZ-O-1 

FW-NIS-O-1 

What is the condition and trend of key 

ecosystem components for riparian 

vegetation in the plan area?

Are management actions maintaining or 

moving riparian vegetation towards 

desired conditions?

Acres of impaired riparian restored

Stream miles treated for non-native invasive species

Annually
Chapter 4. Forest Plan Monitoring Program

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Selected Plan 

Components Monitoring Questions Indicators Monitoring Interval

FW-WSW-RMZ-DC-2 

FW-WSW-RMZ-DC-5 

FW-WSW-RMZ-STM-O-1 

FW-WSW-RMZ-SNS-O-1 

Is aquatic habitat distributed, connected, 

and in a condition capable of supporting 

native aquatic species?

Are management actions making 

progress towards desired conditions for 

native aquatic species?

Miles of aquatic habitat restored

Number of beneficial barriers created/number of barriers 

removed to reduce undesired fragmentation

Amount of large woody debris in streams 

303d turbidity exceedance

303d temperature exceedance

Annually

Every 10 to 15 years

FW-NIS-DC-1 

FW-NIS-O-1 

FW-NIS-S-1 

What is the status and trend of invasive 

plant species in the plan area?

Acres of non-native invasive inventoried 

Acres of non-native invasive treated 

Annually

FW-FIRE-DC-1 

FW-FIRE-DC-2 

FW-FIRE-G-1 

Are desired fuel levels and vegetation 

characteristics being maintained with 

wildland fire?

Is wildland fire playing its natural 

ecological role?

Are fires being managed across 

administrative boundaries?

Acres burned, by ecological response unit

Range of fire sizes, by ecological response unit

Percentage of acres burned by severity class, by 

ecological response unit Burned acres managed for 

resource objectives

Number of multijurisdictional fires

Every 5-10 years

FW-AIR-DC 1

FW-AIR-DC 2

FW-AIR-DC 3

Is air quality meeting defined standards in 

the plan area?

Are air quality related values being 

impacted in Wilderness Areas and other 

areas of the forest?

Particulate matter (PM2.5/PM10) 

Surface water acidification

Visibility (atmospheric aerosols in Class I airsheds)

Surface water acidification-every 2 

years

Every 5 years or as necessary 

during fires
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Monitoring Topic III: Status of Focal Species

Focal species are defined by the 2012 Planning Rule as “A small subset of species whose status permits inference to the integrity of the larger system to 

which it belongs and provides meaningful information regarding the effectiveness of the plan in maintaining or restoring ecological conditions to maintain 

the diversity of plan and animal communities... commonly selected based on their functional role in ecosystems (36 CFR § 219.19).

Focal species are not selected to make inferences about other species. Focal species are selected because they are believed to be responsive to ecological 

conditions in a way that can inform future plan decisions. Forest Service handbook direction (FSH 1909.12 chapter 30 § 32.13c) for focal species further 

specifies that every plan monitoring program must identify one or more focal species and one or more monitoring questions and associated indicators 

addressing the status of the focal species. The purpose for monitoring the status of focal species over time is to provide insight into the following:

1. Integrity of ecological systems on which focal species depend,

2. Effects of management on those ecological conditions,

3. Effectiveness of the plan components to provide for ecological integrity and maintain or restore ecological conditions, and

4. Progress towards achieving desired conditions and objectives for the plan area. It is not expected that a focal species be selected for every element of 

ecological conditions.

The key considerations for selecting focal species include:

• Does the species provide feedback that is necessary to inform management?

• Are focal species abundant enough to measure change in status?

• Are there “off-site” stressors that would mask the response to activities and conditions on NFS lands?

• Can the species be effectively monitored?

• Is the species cryptic, rare, or otherwise difficult species to monitor?

• Is it within financial capability of the unit(s)?

• Do standardized monitoring approaches exist?

• Are species responses to management activities and other stressors well known?

• Are there opportunities for multi-party monitoring? 

The rule does not require managing habitat conditions for focal species, nor does it confer a separate conservation requirement for these species simply 

based on them being selected as focal species. The 2012 Planning Rule does not require or prohibit monitoring of population trends of focal species. 

Instead, it allows the use of any existing or emerging approaches for monitoring the status of focal species that are supported by current science.
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Monitoring methods for evaluating the status of focal species may include measures of abundance, distribution, reproduction, presence/ absence, area 

occupied, survival rates, or others. The objective is not to choose the monitoring technique(s) that will provide the most information about the focal 

species, but to choose a monitoring technique(s) for the focal species that will provide useful information with regard to the purpose for which the species 

is being monitored. The expectation is that monitoring key ecosystem and watershed conditions along with monitoring the status of a set of well-chosen 

focal species will provide timely information regarding the effectiveness of plan components related to plant and animal diversity.

Overall, two focal species are recommended for the Carson National Forest. The following section describes the recommended focal species and how they 

provide information regarding ecological integrity and ecosystem diversity. These species were selected because they will inform management about the 

status of ecological conditions, diversity, and integrity. Detected population changes are most likely to indicate the effects of management for the selected 

species. 

Recommended Focal Species on the Carson National Forest

Ponderosa Pine Forest and Dry Mixed Conifer: Grace’s Warbler

Grace’s Warbler (Setophaga graciae) is well-associated with ponderosa pine with open canopy characteristics and patches of mature trees (Stacier and 

Guzy, 2002). This species utilizes tall ponderosa pine for both breeding and foraging; they nest in larger ponderosa trees averaging 15.1 meters tall and 

will often forage for insects in the upper canopy (Stacier and Guzy, 2002 and references therein).

Grace’s Warbler response to both timber and fire management within its preferred habitat has been relatively well-studied. In general, abundance of this 

species declined in stands that are severely thinned, including clearcuts (Finch et al., 1997 and references therein), overstory removal plots (Kalies et al., 

2010), and areas affected by wildfire (Johnson and Wauer, 1996; Kalies et al., 2010). However, Grace’s Warbler was detected in areas with small-diameter 

removals and thinning and burning treatments (Finch et al., 1997 and references therein; Kalies et al., 2010). Due to its dependency on mature trees and 

open understory, this species is a good indicator for healthy ponderosa pine and dry mixed conifer woodlands as outlined within the desired conditions of 

this Plan.

Although this species shows a small population decline for the state of New Mexico, (Sauer et al., 2017), surveys for migratory birds on the Carson 

indicated that it is readily found on the Carson National Forest. Also according to NMDGF (2016 and 2017), Grace’s Warbler were one of the most 

commonly detected species during the surveys of Sandia, Manzano, Magdalena, San Mateo, Zuni, Jemez, San Juan, and Sangre de Cristo mountain ranges. 

It is easily detected through vocalizations.

It is expected that management actions meeting the desired conditions outlined in this plan would have a positive effect on Grace’s Warbler. Detecting this 

species within treatment units would indicate that habitat conditions on the landscape are moving towards the stated desired conditions.
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Wet Mixed Conifer: Hermit Thrush 

The hermit thrush (Catharus guttatus) is a distinctive and relatively common species associated with old-growth, closed-canopy mixed-conifer forested 

habitats, including pine, Douglas-fir, fir, and spruce (Dellinger et al. 2012). In the west, this species usually builds nests a few meters above the ground in 

areas with abundant concealment (Dellinger et al. 2012). As an omnivore, the hermit thrush will glean insects and other invertebrates from the forest floor 

or shrubs but will also consume fruits (Dellinger et al. 2012). Sometimes this species will also capture prey in flight or in sub-canopy areas, but they 

generally utilize shady-leaf littered forest floors (Dellinger et al. 2012).

In general, hermit thrushes can tolerate some un-even aged thinning (King and DeGraff 2000; Vanderwel et al., 2007; Kalies et al., 2010) and low to 

moderate burning (Kotliar et al., 2007). However, Hermit Thrush abundance declined when substantial modifications were made to forest structure, 

including removal of interlocking canopies and large trees (Kalies et al., 2010), clearcutting (King and DeGraff, 2000; Simon et al. 2002), or a reduction in 

snags (Simon et al., 2002; Schwab et al., 2006). This species has also been associated with disturbances associated with management activities, including 

building nests on constructed features such as re-seeded log landings, skidder trails, and openings created by road building that were greater than ten years 

old (Dellinger et al., 2007).

Migratory bird surveys on the Carson National Forest suggest that this species is readily detected (Beason et al. 2006, 2007) although the population shows 

a small population decline for the state of New Mexico (Sauer et al. 2017).

Desired conditions for wet mixed conifer consist of a mosaic of structural and seral stages with rare landscape-level disturbances, large areas of oldgrowth, snags, and vigorous trees with interlocking canopies, and a mixed-severity fire regime. Hermit Thrushes are dependent on habitats such as those 

described in this plan and can withstand management activities that would move wet mixed conifer stands toward these conditions. Thus we would expect 

detections of this species within treatment units where the aforementioned conditions are met and that management actions to move this vegetation 

towards desired conditions would have a positive effect on the Hermit Thrush. 

Table 11. Monitoring questions and associated indicators that evaluate the status of focal species 

Selected Plan 

Components Monitoring Questions Indicators Monitoring Interval

FW-VEG-DC-5 

FW-VEG-DC-2 

FW-VEG-PPF-DC-15

FW-VEG-PPF-DC-16

FW-VEG-PPF-O-1 and 2

What is the area of forest occupied by 

Grace’s Warbler?

Proportion of surveyed habitat in which the species is 

detected

As necessary for project 

implementation

FW-VEG-DC-5 

FW-VEG-DC-2 

FW-VEG-MCW-DC-2 

FW-VEG-MCW-DC-5 

FW-VEG-MCW-DC-15

What is the area of forest occupied by 

the Hermit Thrush?

Proportion of surveyed habitat in which the species is 

detected

As necessary for project 

implementation
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Monitoring Topic IV: Status of At-Risk Species

For particular at-risk species, a select set of ecological conditions, including habitat, is monitored. The selected ecological conditions are necessary to 

provide for diversity of plant and animal communities and to contribute to the recovery of federally listed threatened and endangered species, conserve 

proposed and candidate species, and maintain a viable population of each species of conservation concern identified for the Carson. The select set of 

ecological conditions monitored for at-risk species may include characteristics at both the ecosystem and species-specific levels of terrestrial, riparian, or 

aquatic ecosystems.

Table 12. Monitoring questions and associated indicators that evaluate the status of a select set of ecological conditions for at-risk species

Selected Plan Components Monitoring Questions Indicators

Monitoring 

Interval

FW-VEG-DC 20 

FW-VEG-DC 21

Are management actions maintaining or improving the appropriate number, 

distribution, and recruitment of snags? 

Number, distribution, and 

recruitments of snags

Every 5 years

FW-VEG-DC 2 Is vegetation structure meeting or approaching desired conditions? Departure Every 5-10 

years

FW-VEG-DC 5 

FW-VEG-DC 10

Is vegetation structure meeting or approaching desired conditions to improve 

ecological for At-risk Species?

Departure Every 5-10 

years
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Monitoring Topic V: Status of Visitor Use, Visitor Satisfaction, and Meeting Recreation Objectives

The plan monitoring program includes monitoring questions and associated indicators that address the status of visitor use, visitor satisfaction, and 

progress toward meeting recreation objectives.

Table 13. Monitoring questions and associated indicators that evaluate the status of visitor use, visitor satisfaction, and progress toward meeting recreation 

objectives

Selected Plan Components Monitoring Questions Indicators Monitoring Interval

FW-REC-DC-3, FW-REC-DC-5 What are the trends in visitation on the forest?

Are visitors satisfied with the opportunities for recreation 

on the forest?

National Visitor Use Monitoring (type of 

recreational participation); Visitor satisfaction 

surveys 

Every 5 years

FW-REC-DC-10, FW-REC-O-4, 

FW-REC-O-5 

Are developed recreation sites being maintained to 

provide a satisfactory user experience?

Percent of sites maintained to standard; 

Amount of deferred maintenance addressed 

annually; Visitor satisfaction surveys

Annually; Visitor 

satisfaction surveysevery 5 years

FW-TFA-DC-1, FW-TFA-DC-3, 

FW-TFA-DC-4, FW-TFA-O-2, 3 

and 4

Are system roads and trails located and maintained to 

prevent resource degradation and do they support 

designed uses? Are system roads and trails meeting the 

needs of visitors?

Miles of roads and trails maintained; Miles of 

roads and trails accurately mapped and 

signed; Visitor satisfaction surveys

Annually; Visitor 

satisfaction surveysevery 5 years

DA-WILD-DC-3, DA-WILD-DC-4 Are management activities improving wilderness character 

in Designated Wilderness Areas?

Score in Wilderness Stewardship 

Performance; Campsite monitoring

Every 5 years
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Monitoring Topic VI: Measurable Changes Related to Climate and Other Stressors

The plan monitoring program includes monitoring questions and associated indicators to determine whether there are measurable changes on the plan area

related to climate change and other stressors.

Table 14. Monitoring questions and associated indicators that measure change related to climate change and other stressors that may be affecting the plan 

area

Selected Plan 

Components Monitoring Questions Indicators

Monitoring 

Interval

FW-VEG-DC-3 

FW-WSW-DC- 2 

Are vegetation conditions 

resilient to a changing 

climate? 

How do current climate 

patterns, compare to 

vulnerability predictions?

Are insect and disease 

populations within reference 

conditions?

What is the relationship 

between these stressors and 

climate vulnerability 

predictions?

Acres of vegetation treatments; Vegetation structure and composition; Acres of canopy loss in 

ponderosa pine forest vegetation community due to fire, insects, or disease; Treatment 

effectiveness as it relates to the Climate Change Vulnerability Assessment (USDA FS 2014); Tree 

planting and seeding success as it relates to Climate Change Vulnerability Assessment 

Every 5 

years
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Monitoring Topic VII: Progress toward Meeting Desired Conditions and Objectives 

Progress toward meeting desired conditions, objectives, or other plan components that do not fall under one of the other required monitoring topics are 

included in the monitoring program. Specifically, the plan monitoring program contains questions and associated indicators addressing the plan’s 

contribution to communities, social and economic sustainability of communities, multiple use management in the plan area, and progress toward meeting 

the desired conditions and objectives related to social and economic sustainability.

Table 15. Monitoring questions and associated indicators that evaluate progress toward meeting the desired conditions and objectives in the plan, including 

providing for multiple-use opportunities

Selected Plan 

Components Monitoring Questions Indicators

Monitoring 

Interval

FW-GRZ-DC-1 

FW-GRZ-DC-2 

FW-GRZ-DC-3 

Are rangelands providing adequate forage resources to sustain 

agricultural businesses, socioeconomic diversity, and cultural identity of 

local communities?

Is rangeland condition moving towards identified vegetation desired 

conditions and/or ecological site potential?

Number of livestock permittees authorized (head 

months); Daubenmire plots or similar protocol; 

Allotment condition ratings

Every 10 years

FW-REC-DC-4 Are recreational opportunities contributing to local economies? National Visitor Use Monitoring Every 5 years

FW-FRT-DC-5 Do Tribes have adequate solitude and privacy for traditional and 

cultural activities?

Number of temporary closure orders issued for 

tribal traditional and ceremonial activities, based on 

tribal requests.

Every 3 years, or 

as available

FW-RHC-DC-2 

FW-RHC-DC-6 

FW-REC-DC-1 

Is the Carson engaging with partners to provide opportunities for youth 

from local communities to participate in educational programs, cultural 

events and activities, and employment?

Is the Carson providing interpretative and educational opportunities to 

the public about cultural and historic resources?

Number and type of educational programs, events, 

activities, and employment. 

Number of youth participating in educational 

programs, events, activities, and employment on 

the Carson. 

Number of historic and cultural interpreted sites, 

presentations, Passport in Time projects, and 

tours.

Every 2 years
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Monitoring Topic VIII: Productivity of the Land and Effects of Management Systems

This monitoring requirement comes from the National Forest Management Act requirement that there be research regarding the effects of timber 

management systems on the productivity of the land, and that such research is to be based on continuous monitoring and assessment in the field. 

Monitoring is focused on key ecosystem characteristics related to soils and soil productivity. 

Table 16. Monitoring questions and associated indicators that evaluate the effects of each management system to determine that they do not substantially and 

permanently impair the productivity of the land

Selected Plan 

Components Monitoring Questions Indicators

Monitoring 

Interval

FW-SL-DC-1 Are soils in satisfactory condition? Are management actions maintaining or 

improving vegetative ground cover and contributing to improved soil condition?

Review a sample of projects for soil 

condition indicators; 

Best management practices

monitoring; 

Number of acres treated in order to 

improve watershed condition

Every 5 years

Monitoring Topic IX: Social, Economic, and Cultural Sustainability

This monitoring requirement comes from the 2012 Planning Rule (FSH 1909.12 sec 32.13f) which requires monitoring questions that address the social, 

economic and cultural sustainability of communities. This sustainability is an inherent part of several of the other required monitoring topics. 

Table 17. Monitoring questions and associated indicators that evaluate social, economic, and cultural sustainability

Selected Plan 

Components Monitoring Questions Indicators

Monitoring 

Interval

FW-FFP-DC-1 

FW-FFP-DC-4 

Are timber harvests being designed and implemented in a manner that 

ensures sustained-yield and future productivity?

Amount of timber harvested relative to annual 

amount allowed for sustainable yield

Annually
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Glossary 

Acequia or community ditch. A historical community ditch in New Mexico that carries snow runoff, 

spring flows, or river water to irrigate fields and is administered by a governing board.

Adaptation. Adjustment in natural or human systems to a new or changing environment. Adaptation 

includes, but is not limited to, maintaining primary productivity and basic ecological functions, such as 

energy flow; nutrient cycling and retention; soil development and retention; predation and herbivory; and 

natural disturbances. Adaptation occurs primarily by organisms altering their interactions with the 

physical environment and other organisms.

Adaptive capacity. The ability of ecosystems to respond, cope, or adapt to disturbances and stressors, 

including environmental change, to maintain options for future generations. As applied to ecological 

systems, adaptive capacity is determined by:

1. Genetic diversity within species in ecosystems, allowing for selection of individuals with traits 

adapted to changing environmental conditions.

2. Biodiversity within the ecosystem, both in terms of species richness and relative abundance, which 

contributes to functional redundancies.

3. The heterogeneity and integrity of ecosystems occurring as mosaics within broader-scaled landscapes 

or biomes, making it more likely that some areas will escape disturbance and serve as source areas for 

re-colonization.

Adaptive management. Adaptive management is the general framework encompassing the three phases 

of planning: assessment, plan development, and monitoring (36 CFR 219.5). This framework supports 

decision-making that meets management objectives while simultaneously accruing information to 

improve future management by adjusting the plan or plan implementation. Adaptive management is a 

structured, cyclical process for planning and decision-making in the face of uncertainty and changing 

conditions with feedback from monitoring, which includes using the planning process to actively test 

assumptions, track relevant conditions over time, and measure management effectiveness.

Administrative use. Motorized use by Forest Service employees, permitees, or contractors of roads, 

trails, and areas not otherwise designated for motor vehicle use but required for the administration and 

protection of NFS lands.

Airshed. A geographic area that, because of topography, meteorology, or climate is frequently affected by 

the same air mass.

Assessment. For the purposes of the land management planning regulation at 36 CFR part 219 and this 

Handbook, an assessment is the identification and evaluation of existing information to support land 

management planning. Assessments are not decision-making documents, but provide current information 

on select topics relevant to the plan area, in the context of the broader landscape (36 CFR 219.19).

At-risk species. A term used in land management planning and this Handbook to refer to, collectively, the 

federally recognized threatened, endangered, proposed, and candidate species and species of conservation 

concern within a plan area.

Authorized livestock numbers. Year-to-year actual stocking of livestock on a grazing allotment, based 

on forage and water availability, condition of range improvements, climatic conditions, personal 
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convenience for the permit holder, or resource protection. Authorized numbers are not necessarily the 

number on the permit.

Base area (winter and summer resorts). The developed area at the bottom of a winter and summer 

resort.

Base property (grazing). Land and improvements owned and used by the permit holder for a farm or 

ranch operation and specifically designated by the permit holder to qualify for a term grazing permit.

Best management practices. Methods, measures, or practices selected by an agency to meet its nonpoint 

source control needs. Best management practices include but are not limited to structural and 

nonstructural controls and operation and maintenance procedures. Best management practices can be 

applied before, during, and after pollution-producing activities to reduce or eliminate the introduction of 

pollutants into receiving waters (36 CFR 219.19).

Broader landscape. For land management planning pursuant to 36 CFR 219, the plan area and the lands 

surrounding the plan area. The spatial scale of the broader landscape varies depending upon the social, 

economic, and ecological issues under consideration.

Candidate species (36 CFR 219.19).

Chaining. Uprooting of trees and shrubs to create a seedbed by pulling a chain behind two tractors 

traveling parallel to each other.

Climate change. A change in global or regional climate patterns, in particular a change apparent from the 

mid to late 20th century onwards and attributed largely to the increased levels of atmospheric carbon 

dioxide.

Coarse woody debris. Fallen dead trees and the remains of large branches on the ground in forests and in 

rivers or wetlands.

Collaboration or collaborative process. A structured manner in which a collection of people with 

diverse interests share knowledge, ideas, and resources, while working together in an inclusive and 

cooperative manner toward a common purpose. Collaboration, in the context of the land management 

planning regulation at 36 CFR part 219 falls within the full spectrum of public engagement described in 

the Council on Environmental Quality’s publication of October, 2007: Collaboration in NEPA— A 

Handbook for NEPA Practitioners (36 CFR 219.19).

1. For species under the purview of the U.S. Fish and Wildlife Service (USFWS), a species for which

the USFWS possesses sufficient information on vulnerability and threats to support a proposal to list

as endangered or threatened, but for which no proposed rule has yet been published by the USFWS.

2. For species under the purview of the National Marine Fisheries Service, a species that is:

a. The subject of a petition to list as a threatened or endangered species and for which the National

Marine Fisheries Service has determined that listing may be warranted, pursuant to section

4(b)(3)(A) of the Endangered Species Act (16 U.S.C. 1533(b)(3)(A)), or

b. Not the subject of a petition but for which the National Marine Fisheries Service has announced

in the Federal Register the initiation of a status review.
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Common variety mineral materials. A collective term to describe petrified wood and common varieties

of sand, gravel, stone, pumice, pumicite, cinders, clay, and other similar materials. Common varieties do 

not include deposits of those materials which are valuable because of some property giving them distinct 

and special value.

Connectivity. 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 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 (36 CFR 219.19). 

Conservation. The protection, preservation, management, or restoration of natural environments, 

ecological communities, and species (36 CFR 219.19). 

Conserve. For the purpose of meeting the requirements of 36 CFR 219.9, to protect, preserve, manage, or 

restore natural environments and ecological communities to potentially avoid federally listing of proposed 

and candidate species (36 CFR 219.19).

Community Wildfire Protection Plan (CWPP). A comprehensive community based planning and 

prioritization approach for protection of life, property, and critical infrastructure in the wildland-urban 

interface. Protection plans may take a variety of forms based on the needs of the community, but must be 

collaboratively developed, identify and prioritize areas for hazardous fuel reduction treatments, 

recommend treatment types and methods, and recommend measures that homeowners and communities 

can take to reduce the ignitability of structures. The planning process may also identify management 

options and implications in the surrounding landscape. The Healthy Forests Restoration Act of 2003 

instructed the U.S. Forest Service to give consideration of community priorities as outlined in a county 

wildfire protection plan during planning and implementation of hazardous fuel reduction projects.

Critical habitat. For a threatened or endangered species, (1) the specific areas within the geographical 

area occupied by the species, at the time it is listed in accordance with the provisions of section 4 of the 

Endangered Species Act (16 U.S.C. 1533), on which are found those physical or biological features (a) 

essential to the conservation of the species, and (b) which may require special management considerations 

or protection; and (2) specific areas outside the geographical area occupied by the species at the time it is 

listed in accordance with the provisions of section 4 of the Endangered Species Act (16 U.S.C. 1533), 

upon a determination by the Secretary that such areas are essential for the conservation of the species. 

Endangered Species Act, sec. 3 (5)(A), (16 U.S.C. 1532 (3)(5)(A)). Critical habitat is designated through 

rulemaking by the Secretary of the Interior or Commerce. Endangered Species Act, sec. 4 (a)(3) and 

(b)(2) (16 U.S.C. 1533 (a)(3) and (b)(2)). 

Decision document. A record of decision, decision notice, or decision memo (36 CFR 220.3).

Decommission. The demolition, dismantling, removal, obliteration, and or disposal of an otherwise 

undeeded asset in such a manner so as to no longer function as intended. Usually in reference to 

decommissioning of a road so that it no longer requires maintenance and is not apparent on the landscape.

Departure. The degree to which the current condition of a key ecosystem characteristic is unlike the 

desired condition.

Designated area. An area or feature identified and managed to maintain its 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 
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areas, national recreational areas, national scenic trails, wild and scenic rivers, wilderness, and wilderness 

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

areas, scenic byways, botanical areas, and significant caves (36 CFR 219.19). 

Designated road, trail, or area. A National Forest System road, a National Forest System trail, or an area 

on National Forest System lands that is designated for motor vehicle use pursuant to 36 CFR 212.51 on a 

motor vehicle use map (36 CFR 212.1).

Desirable nonnative. Nonnative species that were intentionally released into the wild to establish selfsustaining populations of wildlife that meet public demands for recreation or other purposes (e.g., sport 

fishes). These desirable nonnative species are not likely to cause ecosystem disruption.

Desired conditions. For the purposes of the land management planning regulation at 36 CFR 219, a 

description of specific social, economic, and ecological characteristics of the plan area, or a portion of the 

plan area, toward which management of the land and resources should be directed. Desired conditions 

must be described in terms that are specific enough to allow progress toward their achievement to be 

determined, but do not include completion dates (36 CFR 219.7(e)(1)(i)). Desired conditions are 

achievable, and may reflect social, economic, or ecological attributes, including ecosystem processes and 

functions.

Diameter at breast height (DBH). The diameter of the stem of a tree measured at breast height (4.5 feet) 

above the ground. 

Disturbance. Any relatively discrete event in time that disrupts ecosystem, watershed, community, or 

species population structure or function and changes resources, substrate availability, or the physical 

environment (36 CFR 219.19). 

Disturbance regime. 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 

(36 CFR 219.19).

Easement. A type of special use authorization (usually granted for linear rights-of-way) that is utilized in 

those situations where a conveyance of a limited and transferable interest in National Forest System land 

is necessary or desirable to serve or facilitate authorized long-term uses, and that may be compensable 

according to its terms (36 CFR 251.51).

E-bike (electric bicycle). A bicycle with an integrated electric motor that can be used for propulsion, in 

addition to pedaling. An e-bike is considered a motor vehicle and is subject to regulation under the Travel 

Management Rule (36 CFR § 212.51 (a)).

Ecological conditions. The biological and physical environment that can affect the diversity of plant and 

animal communities, the persistence of native species, and the productive capacity of ecological systems. 

Ecological conditions include habitat and other influences on species and the environment. Examples of 

ecological conditions include the abundance and distribution of aquatic and terrestrial habitats, 

connectivity, roads and other structural developments, human uses, and invasive species (36 CFR 219.19). 

Ecological function. The biological, chemical, and physical processes and components that take place or 

occur within an ecosystem.

Ecological integrity. The quality or condition of an ecosystem when its dominant ecological 

characteristics (e.g., composition, structure, function, connectivity, and species composition and diversity) 
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occur within the natural range of variability and can withstand and recover from most perturbations 

imposed by natural environmental dynamics or human influence (36 CFR 219.19). 

Ecological process. The physical, chemical, and biological actions or events that link organisms and their 

environment including decomposition, production (of plant matter), nutrient cycling, and fluxes of 

nutrients and energy.

Ecological response unit. A classification of a unit of land that groups sites by similar plant species 

composition, succession patterns, and disturbance regimes, such that similar units will respond in a 

similar way to disturbance, biological processes, or manipulation. Each ecological response unit

characterizes sites with similar composition, structure, function, and connectivity, and defines their spatial 

distribution on the landscape.

Ecological sustainability. See sustainability.

Ecological system. See ecosystem.

Economic sustainability. See sustainability.

Ecosystem. (36 CFR 219.19) A spatially explicit, relatively homogeneous unit of the Earth that includes 

all interacting organisms and elements of the abiotic environment within its boundaries. An ecosystem is 

commonly described in terms of its:

1. Composition. The biological elements within the different levels of biological organization, from 

genes and species to communities and ecosystems.

2. Structure. The organization and physical arrangement of biological elements, such as, snags and down 

woody debris, vertical and horizontal distribution of vegetation, stream habitat complexity, landscape 

pattern, and connectivity.

3. Function. Ecological processes that sustain composition and structure, such as energy flow, nutrient 

cycling and retention, soil development and retention, predation and herbivory, and natural 

disturbances, such as wind, fire, and floods.

4. Connectivity. See connectivity above.

Ecosystem diversity. The variety and relative extent of ecosystems (36 CFR 219.19).

Ecosystem integrity. See ecological integrity.

Ecosystem services. Benefits people obtain from ecosystems, including:

1. Provisioning services, such as clean air and fresh water, energy, food, fuel, forage, wood products or 

fiber, and minerals; 

2. Regulating services, such as long-term storage of carbon; climate regulation; water filtration, 

purification, and storage; soil stabilization; flood and drought control; and disease regulation; 

3. Supporting services, such as pollination, seed dispersal, soil formation, and nutrient cycling; and 

4. Cultural services, such as educational, aesthetic, spiritual, and cultural heritage values, recreational 

experiences, and tourism opportunities.

Ecotone. The transition zone between two adjoining ecological communities.
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Encroachment. An increase in the density and cover of trees or shrubs in grasslands that reduces grass 

biomass, density, and cover.

Endangered species. Any species that the Secretary of the Interior or the Secretary of Commerce has 

determined is in danger of extinction throughout all or a significant portion of its range. Endangered 

species are listed at 50 CFR sections 17.11, 17.12, and 224.101. 

Environmental impacts. Possible adverse effects caused by a development, industrial, or infrastructural 

project or by the release of a substance in the environment.

Ephemeral stream. A stream that flows only in direct response to precipitation in the immediate locality 

(watershed or catchment basin), and whose channel is at all other times above the zone of saturation.

Even-aged stand. A stand of trees comprising a single age class (36 CFR 219.19).

Federally recognized tribe. 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 (36 CFR 219.19).

Fire regime. The pattern, frequency, and intensity wildfire that prevails in an area over long periods of 

time.

Forest road or trail. A road or trail wholly or partly within or adjacent to and serving the National Forest 

System that the Forest Service determines is necessary for the protection, administration, and utilization 

of the National Forest System and the use and development of its resources (36 CFR 212.1).

Frequent fire-dependent ecosystem. A vegetation community that requires a fire regime 1 (>35 year fire 

frequency), to maintain its natural function, structure, and species composition.

Functional ecosystem. A system with intact abiotic and biotic processes. Function focuses on the 

underlying processes that may be degraded, regardless of the structural condition of the ecosystem. 

Functionally restored ecosystems may have a different structure and composition than the historical 

reference condition. As contrasted with ecological restoration that tends to seek historical reference 

condition, function refers to the dynamic processes that drive structural and compositional patterns. 

Functional restoration is the manipulation of interactions among process, structure, and composition in a 

degraded ecosystem to improve its operations. Functional restoration aims to restore functions and 

improve structures with a long-term goal of restoring interactions between function and structure. It may 

be, however, that a functionally restored system will look quite different than the reference condition in 

terms of structure and composition and these disparities cannot be easily corrected because some 

threshold of degradation has been crossed or the environmental drivers, such as climate, that influenced 

structural and (especially) compositional development have changed.

Groundcover. The layer of dead and living vegetation that provides protection of the topsoil from erosion 

and drought.

Groundwater-dependent ecosystem. Community of plants, animals, and other organisms whose extent 

and life processes depend on groundwater. Examples include many wetlands, groundwater-fed lakes and 

streams, cave and karst Systems, aquifer systems, springs, and seeps.

Habitat fragmentation. The process by which habitat loss results in the division of large, continuous 

habitats into smaller more isolated remnants.
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Habitat type. A land or aquatic unit, consisting of an aggregation of habitats having equivalent structure, 

function, and responses to disturbance.

Historic properties. Any prehistoric or historic district, site, building, structure, or object included in, or 

eligible for inclusion on the National Register of Historic Places.

Hydrologic unit code (HUC). A unique code for a hierarchical hydrologic unit based on the area of land 

that drains to a single stream mouth or outlet at each level, and nested levels are identified by successively 

longer codes. The code for each level is two digits, so for example a HUC8 or 4th code subbasin is 

identified by 8 digits.

• HUC8 A hydrologic unit code 8 subbasin, or 4th code hydrologic unit is 700 square miles or larger 

and is divided into multiple smaller watersheds (HUC10).

• HUC10 A hydrologic unit code 10 watershed, or 5th code hydrologic unit can range in size from 62 

to 390 square miles. They are divided into multiple subwatersheds (HUC12) and nest inside 

subbasins (HUC8).

• HUC12 Hydrologic unit code 12 subwatersheds, or 6th code hydrologic units are 15 to 62 square 

miles and nest inside watersheds (HUC10). 

Infill. An increase in trees per acre in forests and woodlands, resulting in a decrease in the quality and 

size of interspaces.

Information. For information collection from the public pursuant to 5 CFR part 1320, any statement or 

estimate of fact or opinion, regardless of form or format, whether in numerical, graphic, or narrative form, 

and whether oral or maintained on paper, electronic or other media. Information does not generally 

include items in the following categories; however, the Office of Management and Budget (OMB) may 

determine that any specific item constitutes “information”:

1. Affidavits, oaths, affirmations, certifications, receipts, changes of address, consents, or 

acknowledgments; provided that they entail no burden other than that necessary to identify the 

respondent, the date, the respondent's address, and the nature of the instrument (by contrast, a 

certification would likely involve the collection of “information” if an agency conducted or sponsored 

it as a substitute for a collection of information to collect evidence of, or to monitor, compliance with 

regulatory standards, because such a certification would generally entail burden in addition to that 

necessary to identify the respondent, the date, the respondent's address, and the nature of the 

instrument);

2. Samples of products or of any other physical objects;

3. Facts or opinions obtained through direct observation by an employee or agent of the sponsoring 

agency or through nonstandardized oral communication in connection with such direct observations;

4. Facts or opinions submitted in response to general solicitations of comments from the public, 

published in the Federal Register or other publications, regardless of the form or format thereof, 

provided that no person is required to supply specific information pertaining to the commenter, other 

than that necessary for self-identification, as a condition of the agency's full consideration of the 

comment;

5. Facts or opinions obtained initially or in follow-on requests, from individuals (including individuals 

in control groups) under treatment or clinical examination in connection with research on or 

prophylaxis to prevent a clinical disorder, direct treatment of that disorder, or the interpretation of 
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biological analyses of body fluids, tissues, or other specimens, or the identification or classification of 

such specimens;

6. A request for facts or opinions addressed to a single person;

7. Examinations designed to test the aptitude, abilities, or knowledge of the persons tested and the 

collection of information for identification or classification in connection with such examinations;

8. Facts or opinions obtained or solicited at or in connection with public hearings or meetings;

9. Facts or opinions obtained or solicited through nonstandardized follow-up questions designed to 

clarify responses to approved collections of information; and

10. Like items so designated by OMB (5 CFR 1320.3(h)).

Infrastructure. Infrastructure the Carson manages includes all vertical and horizontal constructed 

structures. Infrastructure is broken into three categories: 

1. Transportation infrastructure includes both the road and trail systems. The road system infrastructure 

is all Forest Service roads, drainage ditches, culverts, signage, and bridges. The trail system includes 

all motorized and non-motorized trails, signage, and bridges.

2. Facilities infrastructure includes administrative and recreation building and sites (e.g., driveways, 

parking, landscaping); support utilities (e.g., electrical, water, wastewater); dams, and other support 

buildings.

3. Other infrastructure directly supports natural resources, which includes fish barriers, wildlife drinkers, 

and range infrastructure (e.g., fencing, trick tanks, water gaps, and cattleguards). 

Inherent capability of the forest. The ecological capacity or ecological potential of an area characterized 

by the interrelationship of its physical elements, its climatic regime, and natural disturbances (36 CFR 

219.19).

Inholding. Private property completely surrounded by National Forest System lands.

Integrated resource management. Multiple use management that recognizes the interdependence of 

ecological resources and is based on the need for integrated consideration of ecological, social, and 

economic factors (36 CFR 219.19).

Intermittent stream. A stream or reach of stream channel that flows, in its natural condition, only during 

certain times of the year or in several years, and is characterized by interspersed, permanent surface water 

areas containing aquatic flora and fauna adapted to the relatively harsh environmental conditions found in 

these types of environments. Intermittent streams are identified as dashed blue lines on USGS 7 1/2-inch 

quadrangle maps. 

Invasive species. An alien species whose introduction does or is likely to cause economic or 

environmental harm or harm to human health. A species that causes, or is likely to cause, harm and that is 

exotic to the ecosystem it has infested. Invasive species infest both aquatic and terrestrial areas and can be 

identified within any of the following four taxonomic categories: Plants, Vertebrates, Invertebrates, and 

Pathogens (Executive Order 13112).

Jackstrawing. Groups of fallen trees usually resulting from blowdown, avalanche, flood, or insect or 

disease mortality. 
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Land grant-merced. A grant of land made by the Government of Spain or of Mexico to a community, 

town, colony, pueblo, or person for the purpose of founding or establishing a community, town, colony, or 

pueblo.

Land grant-merced governing body. A community land grant-merced recognized under a State of New 

Mexico law, statute, or code, with a duly elected or appointed governance body charged with 

management, care and protection of land grant-merced common lands.

Landscape. A defined area irrespective of ownership or other artificial boundaries, such as a spatial 

mosaic of terrestrial and aquatic ecosystems, landforms, and plant communities, repeated in similar form 

throughout such a defined area (36 CFR 219.19). 

Line officer. A Forest Service official who serves in a direct line of command from the Chief (36 CFR 

219.62).

Long-term impacts. Impacts that last through the life of this plan.

Maintain. In reference to an ecological condition: 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 (36 CFR 

219.19). 

Management actions. Any alterations to ecosystems or activities that the Forest Service conducts or 

authorizes on NFS lands. These may include mechanical thinning, prescribed burning, permitted grazing, 

permitted fuelwood gathering, vehicular access, stream restoration treatments, seeding, trail construction, 

fencing, among others.

Management area. 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 (36 CFR 219.19). 

Management system. For the purposes of the land management planning regulation at 36 CFR 219, a 

timber management system including even aged management and uneven-aged management (36 CFR 

219.19). 

Mechanical treatment. Vegetation manipulation using machinery to achieve a prescribed outcome.

Memorandum of understanding. Describes a bilateral or multilateral agreement between two or more 

parties. It expresses a convergence of will between the parties, indicating an intended common line of 

action. It is often used in cases where parties either do not imply a legal commitment or in situations 

where the parties cannot create a legally enforceable agreement. It is a more formal alternative to a 

gentlemen's agreement. 

Minimum requirements analysis. Required by law whenever land managers are considering a use 

prohibited by Section 4(c) of the Wilderness Act of 1964, and is a process that was developed by the 

Arthur Carhart National Wilderness Training Center to help land managers make informed, defensible 

decisions that comply with the Wilderness Act.

Mitigate. To avoid, minimize, rectify, reduce, or compensate the adverse environmental impacts 

associated with an action. 

Mollisol. A soil of an order comprising temperate grassland soils with dark, humus-rich surface layer 

containing high concentration of calcium and magnesium.
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Monitoring. A systematic process of collecting information to evaluate effects of actions or changes in 

conditions or relationships (36 CFR 219.19). 

Motor Vehicle. Any vehicle which is self-propelled, other than:

1. A vehicle operated on rails; and

2. Any wheelchair or mobility device, including one that is battery-powered, that is designed solely for 

use by a mobility-impaired person for locomotion, and that is suitable for use in an indoor pedestrian 

area (36 CFR 212.1, 36 CFR 261.2).

Motor vehicle use map. A map reflecting designated roads, trails, and areas on an administrative unit or a 

ranger district of the National Forest System (36 CFR 212.1).

Multiple use. The management of all the various renewable surface resources of the NFS so that they are 

utilized in the combination that will best meet the needs of the American people; 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; 

that some land will be used for less than all of the resources; and 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, consistent with the 

Multiple-Use Sustained-Yield Act of 1960 (16 U.S.C. 528–531) (36 CFR 219.19). 

National Environmental Policy Act (NEPA). A United States environmental law (42 U.S.C. 4321 et 

seq.), enacted January 1, 1970 that established a U.S. national policy promoting the enhancement of the 

environment and “will encourage productive and enjoyable harmony between man and his environment; 

to promote efforts which will prevent or eliminate damage to the environment and biosphere and 

stimulate the health and welfare of man; to enrich the understanding of the ecological systems and natural 

resources important to the Nation.” Additionally, it established the President's Council on Environmental 

Quality (CEQ).

National Forest System. Includes National Forests, National Grasslands, and the National Tallgrass 

Prairie (36 CFR 219.62). 

National Forest System road. A Forest Service road other than a road which has been authorized by a 

legally documented right-of-way held by a State, county or other local public road authority (36 CFR 

212.1, 36 CFR 251.51, 36 CFR 261.2).

National Forest System trail. A Forest Service trail other than a trail which has been authorized by a 

legally documented right-of-way held by a State, county or other local public road authority (36 CFR 

212.1).

Native species. An organism that was historically or is 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 (36 CFR 219.19).

Natural variability. Is a reference to 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, 
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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 may result in permanently altered 

conditions.

Naturalize. A type of road decommissioning treatment that restores natural vegetation and drainage. 

Neonate ungulate. Offspring of a hoofed animal (e.g., fawn or calf).

Objective. A concise, measurable, and time-specific statement of a desired rate of progress toward a 

desired condition or conditions. Objectives should be based on reasonably foreseeable budgets.

Obliterate. A type of road decommissioning treatment that renders the road unusable and unrecognizable.

Off-highway vehicle (OHV). Any motorized vehicle designed for or capable of cross-country travel on 

or immediately over land, water, sand, snow, ice, marsh, swampland, or other natural terrain; except that 

term excludes (A) any registered motorboat, (B) any fire, military, emergency or law enforcement vehicle 

when used for emergency purposes, and any combat or combat support vehicle when used for national 

defense purposes, and (C) any vehicle whose use is expressly authorized by the respective agency head 

under a permit, lease, license, or contract (EO 116-44 as amended by EO 11989). See also FSM 2355. 01–

Exhibit 01.

Old growth characteristics. Old growth forests are forests that have accumulated specific characteristics 

related to tree size, canopy structure, snags and woody debris and plant associations. Ecological 

characteristics of old growth forests emerge through the processes of succession. Certain features–

presence of large, old trees, multilayered canopies, forest gaps, snags, woody debris, and a particular set 

of species that occur primarily in old growth forests–do not appear simultaneously, nor at a fixed time in 

stand development. Old growth forests support assemblages of plants and animals, environmental 

conditions, and ecological processes that are not found in younger forests (younger than 150-250 years) or 

in small patches of large, old trees. Specific attributes of old growth forests develop through forest 

succession until the collective properties of an older forest are evident. 

Online. Refers to the appropriate Forest Service website or future electronic equivalent (36 CFR 219.62). 

Outstanding natural resource water (ONRW). Streams, lakes and wetlands that receive special 

protection against degradation under New Mexico’s water quality standards and the Federal Clean Water 

Act. They are designated by the Water Quality Control Commission. Waters eligible for outstanding 

natural resource water designation include waters that are part of a national or State park, wildlife refuge 

or wilderness, special trout waters, waters with exceptional recreational or ecological significance, and 

high quality waters that have not been significantly modified by human activities (NMED 2015). 

Outstandingly remarkable value. A scenic, recreational, geologic, fish and wildlife, historic, cultural, or 

other similar river-related value that is unique, rare, or exemplary feature and is significant when 

compared with similar values from other rivers at a regional or national scale.

Participation. Activities that include a wide range of public involvement tools and processes, such as 

collaboration, public meetings, open houses, workshops, and comment periods (36 CFR 219.19). 

Perennial stream. A stream or reach of a channel that flows continuously or nearly so throughout the 

year and whose upper surface is generally lower than the top of the zone of saturation in areas adjacent to 

the stream. These streams are identified as solid blue on the USGS 7 1/2-inch quadrangle maps.
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Permit area. Area in which an activity is authorized through a special use permit. 

Permit holder or permittee. Any person or entity that has been issued a grazing or special use permit on 

NFS lands. 

Persistence. Continued existence (36 CFR 219.19).

Piscicide. A chemical substance which is poisonous to fish. The primary use for piscicides is to eliminate 

a dominant species of fish in a body of water, as the first step in attempting to populate the body of water 

with a different fish.

Plan or land management plan. A document or set of documents that provide management direction for 

an administrative unit of the NFS developed under the requirements of the land management planning 

regulation at 36 CFR part 219 or a prior planning rule (36 CFR 219.19). 

Plan area. The NFS lands covered by a plan (36 CFR 219.19), specifically lands managed by the Forest 

Service as the Carson. 

Plan components. The parts of a land management plan that guide future project and activity decisionmaking. Specific plan components may apply to the entire plan area, to specific management areas or 

geographic areas, or to other areas as identified in the plan. Every plan must include the following plan 

components: Desired conditions; Objectives; Standards; Guidelines; Suitability of Lands. A plan may also 

include Goals as an optional component. 

Plan development. The second phase in the land management plan revision process. Plan development 

requires preparation of an environmental impact statement (EIS). It is grounded in the information 

developed during the assessment phase and other information relevant to the plan area, it addresses needs 

for change, and it involves the public. Every plan must have management areas or geographic areas or 

both and may identify designated or recommended designated areas (36 CFR 219.7).

Plan monitoring program. An essential part of the land management plan that sets out the plan 

monitoring questions and associated indicators, based on plan components. The plan monitoring program 

informs management of resources on the plan area and enables the responsible official to determine if a 

change in plan components or other plan content that guide management of resources on the plan area 

may be needed. 

Plant and animal community. A naturally occurring assemblage of plant and animal species living 

within a defined area or habitat (36 CFR 219.19). 

Productivity. The capacity of NFS lands and their ecological systems to provide the various renewable 

resources in certain amounts in perpetuity. For the purposes of the land management planning regulation 

at 36 CFR part 219 and this Handbook, productivity is an ecological term, not an economic term (36 CFR 

219.19). 

Project. An organized effort to achieve an outcome on NFS lands identified by location, tasks, outputs, 

effects, times, and responsibilities for execution (36 CFR 219.19).

Properly functioning condition (PFC). Properly functioning condition is a methodology for assessing 

the physical functioning of riparian and wetland areas. The term properly functioning condition is used to 

describe both the assessment process, and a defined, on-the-ground condition of a riparian-wetland area. 

In either case, properly functioning condition defines a minimum or starting point.
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Proposed species. Any species of fish, wildlife, or plant that is proposed by the U. S. Fish and Wildlife 

Service or the National Marine Fisheries Service in the Federal Register to be listed under Section 4 of the 

Endangered Species Act. (36 CFR 219.19) 

Rangelands. Forage-producing forested and non-forested lands. 

Recovery. For the purposes of the land management planning regulation at 36 CFR part 219 and with 

respect to threatened or endangered species: The improvement in the status of a listed species to the point 

at which listing as federally endangered or threatened is no longer appropriate (36 CFR 219.19). 

Recreation opportunity. An opportunity to participate in a specific recreation activity in a particular 

recreation setting to enjoy desired recreation experiences and other benefits that accrue. Recreation 

opportunities include non-motorized, motorized, developed, and dispersed recreation on land, water, and 

in the air (36 CFR 219.19). 

Recreation setting and recreation opportunity spectrum. The social, managerial, and physical 

attributes of a place that, when combined, provides a distinct set of recreation opportunities. The Forest 

Service uses recreation opportunity spectrum to define desired recreation settings and categorize them 

into six distinct classes: Primitive, Semi-primitive Non-motorized, Semi-primitive Motorized, Roaded 

Natural, Rural, and Urban (36 CFR 219.19). 

Redundancy. The presence of multiple occurrences of ecological conditions such that not all occurrences 

may be eliminated by a catastrophic event. 

Reference conditions. Environmental conditions that infer ecological sustainability. When available, 

reference conditions are represented by the characteristic natural range of variability (not the total range 

of variation), prior to European settlement and under the current climatic period. For many ecosystems, 

natural range of variability 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., changes in climate patterns). Reference conditions are most useful as an 

inference of sustainability when they have been quantified by amount, condition, spatial distribution, and 

temporal variation.

Regulated timber harvest. Tree harvest for the purposes of timber production, as opposed to tree harvest 

for other purposes, such as habitat and watershed improvement or fuelwood.

Representativeness. The presence of a full array of ecosystem types and successional states, based on the 

physical environment and characteristic disturbance processes. 

Resilience. The ability of an ecosystem and its component parts to absorb, or recover from the effects of 

disturbances through preservation, restoration, or improvement of its essential structures and functions 

and redundancy of ecological patterns across the landscape.

Responsible official. The official with the authority and responsibility to oversee the planning process 

and to approve a plan, plan amendment, and plan revision (36 CFR 219.62).

Restoration, ecological. The process of assisting the recovery of an ecosystem that has been degraded, 

damaged, or destroyed. Ecological restoration focuses on reestablishing the composition, structure, 

pattern, and ecological processes necessary to facilitate terrestrial and aquatic ecosystems sustainability, 

resilience, and health under current and future conditions (36 CFR 219.19). 
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Restore. To renew by the process of restoration. See restoration (36 CFR 219.19). 

Riparian areas. Three-dimensional ecotones [the transition zone between two adjoining communities] of 

interaction that include terrestrial and aquatic ecosystems that extend down into the groundwater, up 

above the canopy, outward across the floodplain, up the near-slopes that drain to the water, laterally into 

the terrestrial ecosystem, and along the water course at variable widths (36 CFR 219.19). 

Riparian management zone. Portion of a watershed around lakes, perennial and intermittent streams, 

and open water wetlands that has characteristic riparian vegetation and provides riparian function.

Risk. A combination of the likelihood that a negative outcome will occur and the severity of the 

subsequent negative consequences (36 CFR 219.19). 

Road. A motor vehicle route over 50 inches wide, unless identified and managed as a trail (36 CFR 

212.1).

Road closure. An administrative road designation that prohibits public motor vehicle use. Closures may 

be accompanied by road decommissioning or signage but can also be exclusively a regulatory 

determination (not included on a Motor Vehicle Use Map). Closed roads may be used administratively or 

by permit. 

Road decommissioning. Activities that result in the stabilization and restoration of unneeded roads to a 

more natural state (36 CFR 212.1). Decommissioning includes reestablishing vegetation and, if necessary, 

initiating restoration of ecological processes interrupted or adversely impacted by the unneeded road by 

applying various treatments, including one or more of the following: 

1. Reestablishing former drainage patterns, stabilizing slopes, and restoring vegetation; 

2. Blocking the entrance to a road or installing water bars; 

3. Removing culverts, reestablishing drainages, removing unstable fills, pulling back road shoulders, and 

scattering slash on the roadbed; 

4. Completely eliminating the roadbed by restoring natural contours and slopes; and 

5. Other methods designed to meet the specific conditions associated with the unneeded road. (FSH 

7734.1)
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Road maintenance levels: 

• Maintenance Level 1. Roads that are placed in storage between intermittent uses. The period of 

storage must exceed 1 year. These are given basic maintenance to prevent impacts to adjacent 

resources. Can be operated at any other maintenance level during periods of use.

• Maintenance Level 2. Roads that are open and maintained for use by high-clearance vehicles; 

surface smoothness is not a consideration. Most have native material surface (not paved and no 

aggregate surface).

• Maintenance Level 3. Roads that are open and maintained for use by standard passenger cars. Most 

have gravel surface.

• Maintenance Level 4. Roads that are open and maintained for use by standard passenger cars and to 

provide a moderate degree of user comfort and convenience at moderate travel speeds. Most are 

paved or have an aggregate surface.

• Maintenance Level 5. Roads that are open and maintained for use by standard passenger cars. 

Road naturalization. Reestablishing former drainage patterns, stabilizing slopes, and restoring 

vegetation.

Road obliteration. Completely eliminating the roadbed by restoring natural contours and slopes.

Routine maintenance. Work that is planned to be accomplished on a continuing basis, generally annually 

or more frequently (FSH 7709.58, 13.41).

Scenery management system. A classification system that recognizes scenery as the visible expression 

of dynamic ecosystems functioning within places, which have unique aesthetic and social values. It 

recognizes that in addition to naturally occurring features, positive scenery attributes associated with 

social, cultural, historical, and spiritual values, including human presence and the built environment, can 

also be valued elements of the scenery. The scenery management system also allows for seamless analysis 

and conservation beyond National Forest System lands into adjacent communities and other jurisdictions, 

through the application of varying scenery themes within a single analysis. It is structured to emphasize 

natural appearing scenery.

Scenic character. A combination of the physical, biological, and cultural images that gives an area its 

scenic identity and contributes to its sense of place. Scenic character provides a frame of reference from 

which to determine scenic attractiveness and to measure scenic integrity (36 CFR 219.19).

Scenic integrity objective. A desired level of excellence based on physical and sociological 

characteristics of an area. Refers to the degree of acceptable alterations to the valued attributes of the 

characteristic landscape. Objectives include very high, high, moderate, and low. 

Seral state. One of a series of transitional plant communities that develop during gradual successive 

change following disturbance.

Species of conservation concern (SCC). A species, other than federally recognized threatened, 

endangered, proposed, or candidate species, that is known to occur in the plan area and for which the 

Regional Forester has determined that the best available scientific information indicates substantial 

concern about the species' capability to persist over the long term in the plan area (36 CFR 219.9(c)). 
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Standard. A mandatory constraint on project and activity decision-making, established to help achieve or 

maintain the desired condition or conditions, to avoid or mitigate undesirable effects, or to meet 

applicable legal requirements (36 CFR 219.7 (e)(1)(iii)). 

Stressors. For the purposes of the land management planning regulation at 36 CFR part 219, factors that 

may directly or indirectly degrade or impair ecosystem composition, structure, or ecological process in a 

manner that may impair its ecological integrity, such as an invasive species, loss of connectivity, or the 

disruption of a natural disturbance regime (36 CFR 219.19). 

Sustainability. The capability to meet the needs of the present generation without compromising the 

ability of future generations to meet their needs. For the purposes of the land management planning 

regulation at 36 CFR part 219 and this Handbook ‘‘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 (36 CFR 219.19). 

Sustainable rangelands. Lands that provide forage for livestock grazing opportunities and contribute to 

agricultural businesses, local employment, as well as traditional and generational ties to the land.

Sustainable recreation. The set of recreation settings and opportunities on the National Forest System 

that is ecologically, economically, and socially sustainable for present and future generations (36 CFR 

219.19).

Subwatershed. A hydrologic unit code 12 (HUC 12), the smallest hydrologic unit, or subdivision of a 

watershed considered in this assessment.

System Road. See Forest Service System Road.

System Trail. See Forest Service System Trail.

Temporary road. A road authorized by contract, permit, lease, other written authorization or is necessary 

for emergency operations that is not a forest road and not part of the Forest Service transportation system 

and not necessary for long-term management (36 CFR 212.1).

Temporary trail. A trail necessary for emergency operations or authorized by contract, permit, lease, or 

other written authorization that is not a Forest Service trail and that is not included in a Forest 

transportation atlas.

Terrestrial ecosystem. All interacting organisms and elements of the abiotic environment in those 

vegetation and soil types, which are neither aquatic nor riparian.

Terrestrial ecosystem survey (TES). An inventory of soil types or terrestrial ecosystem units on the 

Carson. It contains predictions and limitations of soil and vegetation behavior for selected land uses. This 

survey also highlights hazards or capabilities inherent in the soil and the impact of selected uses on the 

environment. At the context scale, upland ecological response units are derived from the Carson

Terrestrial Ecosystem Survey (USDA FS Carson 1987).

Terrestrial ecosystem unit (TEU). The classification unit used in the terrestrial ecosystem survey (TES). 

A spatially explicit area with a similar combination of soils, land types, and vegetation c Threatened 
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species. Any species that the Secretary of the Interior or the Secretary of Commerce has determined is 

likely to become an endangered species within the foreseeable future throughout all or a significant 

portion of its range. Threatened species are listed at 50 CFR sections 17.11, 17.12, and 223.102.

Timber harvest. The removal of trees for wood fiber use and other multiple use purposes (36 CFR 

219.19). 

Timber production. 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 (36 CFR 219.19). 

Traditional community. A land-based rural community that has a long-standing history in and around the 

lands managed by the Forest Service.

Traditional cultural property (TCP). A property that is eligible for inclusion in the National Register of 

Historic Places based on its associations with the cultural practices, traditions, beliefs, lifeways, arts, 

crafts, or social institutions of a living community.

Tribal consultation. The timely, meaningful, and substantive dialogue between Forest Service officials 

who have delegated authority to consult, and the official leadership of federally recognized tribes, or their 

designated representatives, pertaining to USDA Forest Service policies that may have tribal implications.

Off-highway vehicle (OHV). A motor vehicle that is capable of driving on and off paved or gravel 

surface, including all-terrain vehicles (ATVs), utility task vehicles (UTVs), and motorcycles. 

Unauthorized road or trail. A road or trail that is not a forest road, trail, temporary road, or temporary 

trail (36 CFR 212.1). 

Unneeded road. Roads that have been determined to not be needed for the long-term management of 

National Forest resources, as determined by an appropriate planning document. Unneeded roads are 

closed to public, administrative, and permitted use. After it is determined that a road is no longer needed, 

vegetative cover should be reestablished on the road by either artificial or natural means per the Forest 

and Rangeland Renewable Resources Planning Act (16 U.S.C. 1608).

Ungulate. A hooved animal, which includes wildlife (e.g., pronghorn, deer, and elk) and domestic 

livestock (e. g., sheep, cattle, and horses).

Upland. May refer to areas, species, systems, or conditions that are characteristic of terrestrial 

ecosystems, as opposed to riparian or aquatic ecosystems.

Vegetation structure. Both vertical and horizontal arrangement of vegetation. Horizontal structure may 

refer tree size, tree density, and to patterns of trees or groups of trees and their adjoining openings. 

Vertical structure may refer to the layers, appearance, and composition of vegetation between the ground 

and the top of the vegetation canopy and includes any grasses, forbs, shrubs, and trees.

Watershed. A region or land area drained by a single stream, river, or drainage network; a drainage basin 

(36 CFR 219.19). Specifically, a HUC 10 hydrologic unit, larger than a subwatershed, and nested in a 

subbasin. 

Watershed condition. The state of a watershed based on physical and biogeochemical characteristics and 

processes (36 CFR 219.19). 
Glossary 

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Wetlands. A specific subtype within the Wetland Riparian group of vegetation communities. In wetlands 

saturation with water is the dominant factor determining the nature of soil development and plant and 

animal communities. “For regulatory purposes under the Clean Water Act, the term wetlands means 

‘those areas that are inundated or saturated by surface or groundwater at a frequency and duration 

sufficient to support, and that under normal circumstances do support, a prevalence of vegetation typically 

adapted for life in saturated soil conditions. Wetlands generally include swamps, marshes, bogs and 

similar areas.’ [taken from the Environmental Protection Agency regulations listed at 40 CFR 230.3(t)].” 

(USEPA 2015) The Wetland Riparian vegetation community as defined in this plan is slightly more 

inclusive and includes open water wetlands and cienegas that may not be considered wetlands for 

regulatory purposes. 

Wild and Scenic River. A river designated by Congress as part of the National Wild and Scenic Rivers 

System that was established in the Wild and Scenic Rivers Act of 1968 (16 U.S.C. 1271 (note), 1271–

1287) (36 CFR 219.19). 

Wilderness. 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) (36 CFR 219.19).

Wildland-urban interface (WUI). That area where human development adjoins public or private natural 

areas, or an intermix of rural and urban land uses. From a natural resource perspective the wildland-urban 

interface is an area where increased human influence and land use conversion are changing natural 

resource goods, services, and management techniques (Hermansen-Baez et al. 2009). 

Witches’ broom. A tree deformity created by a dense mass of shoots growing from a single point, often 

caused by pathogens such as dwarf mistletoe. The resulting structure resembles a broom or a bird's nest.

Woodland. Lands with over 10 percent tree canopy cover where the majority of the trees are non-timber 

species (e.g., piñon pine and juniper) not traditionally used for industrial wood products.
Glossary 

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References 

Adhikari, Dadhi and Thacher, Jennifer A. 2015. Economic impact analysis of the Carson National Forest. 

Albuquerque, NM: Department of Economics, University of New Mexico.

Beason, J., Hutton, K., Sparks, R., Blakesley, J., Panjabi, A., & Hanni, D. (2006). Monitoring the birds of 

the Carson National Forest: 2005 field season report. Rocky Mountain Bird Observatory

Beason, J., Hutton, K., Sparks, R., Blakesley, J., Panjabi, A., & Hanni, D. (2007). Monitoring the birds of 

Carson National Forest: 2006 field season report. Rocky Mountain Bird Observatory

Dellinger, R., Wood, P. B., & Keyser, P. D. (2007). Occurrence and nest survival of four thrush species on 

a managed central Appalachian forest. Forest Ecology and Management, 243, 248-258.

Dellinger, R., Wood, P. B., Jones, P. W., & Donovan, T. M. (2012). Hermit Thrush (Catharus guttatus), 

version 2.0. In The Birds of North America (A. F. Poole and F. B. Gill, Editors). Cornell Lab of 

Ornithology, Ithaca, NY, USA. Available at: https://doi.org/10.2173/bna.261. Accessed 17 July 

2018.

Finch, D. M., J. L. Ganey, W. Yong, R. T. Kimball, and R. Sallbanks. 1997. In: Songbird ecology in 

southwestern ponderosa pine forests: a literature review. Gen. Tech. Rep. RM-292. Fort Collins, 

CO: U.S. Department of Agriculture, Rocky Mountains Forest and Range Experiment Station; p 

103-136.

Fire Executive Council. 2009. Guidance for Implementation of the Federal Wildland Fire Policy. 

https://www.nifc.gov/policies/policies_documents/GIFWFMP.pdf

Hassell, M. J. 1968. The people of northern New Mexico and the national forests. [Unpublished report]. 

U.S. Department of Agriculture, Forest Service, Southwestern Region. May 13, 1968.

Hermansen-Baez, L.A.; Seitz, J.; Monroe, M.C. 2009. Wildland-Urban Interface: Varied definitions.

http://www.srs.fs.usda.gov/factsheet/pdf/wui-varieddef.pdf (5/14/15)

Hurst, William. 1972. Memorandum to forest supervisors and district rangers. Region 3 policy on 

managing national forest land in northern New Mexico. U.S. Department of Agriculture, Forest 

Service, Southwestern Region, Regional Forester. March 6, 1972.

Johnson, T. H. and R. H. Wauer. 1996. Avifaunal response to the 1977 La Mesa fire. In Fire effects in 

southwestern forests: proceedings of the second La Mesa Fire symposium; 1994 March 29-21; 

Los Alamos, New Mexico. Gen. Tech. Rep. RM-GTR-286. Fort Collins, CO: U.S. Department of 

Agriculture, Rocky Mountains Forest and Range Experiment Station. 216 p.

Kalies, E. L., C. L. Chambers, and W. W. Covington. 2010. Wildlife responses to thinning and burning 

treatments in southwestern conifer forests: a meta-analysis. Forest Ecology and Management 259: 

333-342.

King, D. I., & DeGraaf, R. M. (2000). Bird species diversity and nesting success in mature, clearcut and 

shelterwood forest in northern New Hampshire, USA. Forest Ecology and Management, 129, 

227-235.

New Mexico Department of Game and Fish (NMDGF). 2016. Population size estimation of breeding 

Red-faced and Grace’s Warblers in pine woodlands of New Mexico: 2016 Report. Albuquerque, 

NM, Ecological Services, Inc. 53 p.
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New Mexico Department of Game and Fish (NMDGF). 2017. Population size estimation of breeding 

Red-faced and Grace’s Warblers in pine woodlands of New Mexico: 2017 Report. Albuquerque, 

NM, Ecological Services, Inc. 53 p.

NMED (New Mexico Environment Department). 2015. Outstanding national resource waters.

https://www.env.nm.gov/surface-water-quality/onrws/ NMED (New Mexico Environment 

Department). 2018. 2016-2018 State of New Mexico 303 (d)/ 305 (b) Integrated List for assessed 

surface waters. Santa Fe, NM: New Mexico Environment Department. Retrieved from 

https://www.env.nm.gov/swqb/303d-305b/2016-2018/documents/PUBLICDRAFT2016-

2018IR_2.pdfRaish, C.; McSweeney, A.M. 2003. Economic, social, and cultural aspects of 

livestock ranching on the Espanola and Canjilon Ranger Districts of the Santa Fe and Carson 

National Forest: A pilot study. Ft. Collins, CO: USDA Forest Service.

Raish, C., & McSweeney, A. M. (2003). Economic, social, and cultural aspects of livestock ranching on 

the Espanola and Canjilon Ranger Districts of the Santa Fe and Carson National Forest: A pilot 

study. Ft. Collins, CO: USDA Forest Service.

Sauer, J. R., D. K. Niven, J. E. Hines, D. J. Ziolkowski Jr., K. L. Pardieck, J. E. Fallon, and W. A. Link. 

2017. The North American Breeding Bird Survey, Results and Analysis 1966 - 2015. Version 

2.07.2017 USGS Patuxent Wildlife Research Center, Laurel, MD.

Schwab, F., Neal P. P. Simon, Steven W. Stryde, & Forbes, G. (2006). Effects of Postfire Snag Removal 

on Breeding Birds of Western Labrador. The Journal of Wildlife Management, 70(5), 1464-1469. 

Retrieved from http://www.jstor.org/stable/4128068

Simon, N., Schwab, F. E., & Otto, R. D. (2002). Songbird abundance in clear-cut and burned stands: A 

comparison of natural disturbance and forest management. Canadian Journal of Forest Research, 

32, 1343-1350. doi:10.1139/x02-057

Stacier, C. A. and M. J. Guzy. 2002. Grace’s Warbler (Steophaga graciae), version 2.0. In The Birds of 

North America (A. F. Poole and F. B. Gill, Editors). Cornell Lab of Ornithology, Ithaca, NY, 

USA. Available at: https://doi.org/10.2173/bna.677. Accessed 16 July 2018.

USDA FS (United States Department of Agriculture, Forest Service). 2015. National scenic and historic 

trails. http://www.fs.fed.us/recreation/programs/trails/nat_trails.shtml

USDA FS (United States Department of Agriculture, Forest Service). 1982. Recreation Opportunity 

Spectrum (ROS) users guide. Washington DC: USDA Forest Service.

USDA FS (United States Department of Agriculture, Forest Service). 1995. Landscape aesthetics: a 

handbook for scenery management. Agricultural Handbook 701. Washington DC: USDA Forest 

Service.

USDA FS Carson (United States Department of Agriculture, Forest Service, Carson National Forest). 

1986. Carson National Forest Plan. Albuquerque, NM: USDA Forest Service Southwestern 

Region.

USDA FS Carson (United States Department of Agriculture, Forest Service, Carson National Forest). 

1987. Terrestrial ecosystems survey of the Carson National Forest. Albuquerque, NM: USDA 

Forest Service Southwestern Region. 

USDA FS Carson (United States Department of Agriculture, Forest Service, Carson National Forest). 

2015. Assessment Report of Ecological, Social, and Economic Conditions, Trends, and 
Draft Land Management Plan for the Carson National Forest

213

Sustainability. Taos, NM. Accessible online at: 

https://www.fs.usda.gov/Internet/FSE_DOCUMENTS/fseprd475212.pdf. 

USDI FWS (United States Department of Interior, Fish and Wildlife Service). 2019. Endangered Species 

Act species and migratory birds list for Taos, Rio Arriba, Colfax, and Mora Counties. 

Albuquerque, NM: USDI Fish and Wildlife Service.

U.S. EPA (United States Environmental Protection Agency). 2015. Wetlands definitions

http://water.epa.gov/lawsregs/guidance/wetlands/definitions.cfm (5/14/15)

Vanderwel, M. C., Malcolm, J. R., & Mills, S. C. (2007). A Meta-Analysis of Bird Responses to Uniform 

Partial Harvesting across North America. Conservation Biology, 21(5), 1230-1240.
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List of Preparers 

Interdisciplinary Team

Kevin Naranjo, Forest Planner, Interdisciplinary Team Leader

Peter Rich, Forest Planner, Assistant Forest Planner, Ecological Lead, Geographic Information 

Systems

Alyssa Radcliff, Biological Lead, Range

Audrey Kuykendall, Information, Collaboration, and Community Outreach Staff Officer, NEPA

Leeann Murphy, Information, Collaboration, and Community Outreach Staff Officer

Greg Miller, Watershed Program Manager, Soil Scientist

Price Heiner, Forest Archeologist

Amy Simms, Recreation Program Manager, Lands, Special Uses

Jim Arciniega, Fuels Silviculturist

Review and Expert Support

John Littlefield, Hydrologist

Francisco Cortez, Wildlife Program Manager

Michael Gatlin, Forest Fisheries Biologist

Jay Gatlin, District Wildlife Biologist

Cheron Ferland, District Wildlife Biologist

JJ Miller, District Minerals Specialist

Rachel Miller, District Archeologist

Matt Turner, Regional Planner

Cat Luna, Assistant Regional Planner

Bjorn Fredrickson, Regional Wilderness, Wild & Scenic Rivers, and Cave Program Manager

Jack Triepke, Regional Ecologist and Air Program Coordinator
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Appendix A. Maps 

This appendix includes maps referenced in sections of Chapter 3. Designated Areas and 

Management Areas Plan Components. 

List of Maps 

Figure A-1. Desired recreation opportunity spectrum for the Carson National Forest ............... 216

Figure A-2. Scenery management system scenic class for the Carson National Forest.............. 217

Figure A-3. Transmission utility corridors and communication sites on the Carson National Forest

............................................................................................................................................. 218

Figure A-4. Vallecitos Federal Sustained Yield Unit, El Rito Ranger District........................... 219

Figure A-5. Designated wilderness and designated wild and scenic rivers on the Carson National 

Forest................................................................................................................................... 220

Figure A-6. Inventoried roadless areas on the Carson National Forest....................................... 221

Figure A-7. National scenic, historic, and recreation trails and national scenic byways on the 

Carson National Forest........................................................................................................ 222

Figure A-8. Designated wild horse territories, zoological, and botanical areas on the Carson 

National Forest .................................................................................................................... 223

Figure A-9. Recommended wilderness management areas on the Carson National Forest........ 224

Figure A-10. Eligible wild and scenic rivers on the Carson National Forest.............................. 225

Figure A-11. Developed winter and summer resort management areas on the Carson National 

Forest................................................................................................................................... 226

Figure A-12. Jicarilla natural gas management area ................................................................... 227

Figure A-13. Grassland maintenance management areas on the Carson National Forest........... 228

Figure A-14. Valle Vidal management area on the Carson National Forest............................... 229

Figure A-15. San Antonio management area on the Carson National Forest ............................. 230
Appendix A. Forest Plan Maps

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Figure A-1. Desired recreation opportunity spectrum for the Carson National Forest
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Figure A-2. Scenery management system scenic class for the Carson National Forest
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Figure A-3. Transmission utility corridors and communication sites on the Carson National Forest
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Figure A-4. Vallecitos Federal Sustained Yield Unit, El Rito Ranger District
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Figure A-5. Designated wilderness and designated wild and scenic rivers on the Carson National Forest
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Figure A-6. Inventoried roadless areas on the Carson National Forest
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Figure A-7. National scenic, historic, and recreation trails and national scenic byways on the Carson National Forest
Appendix A. Forest Plan Maps

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Figure A-8. Designated wild horse territories, zoological, and botanical areas on the Carson National Forest
Appendix A. Forest Plan Maps

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Figure A-9. Recommended wilderness management areas on the Carson National Forest
Appendix A. Forest Plan Maps

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Figure A-10. Eligible wild and scenic rivers on the Carson National Forest

Note: See Table 7 for more information about each eligible river. Ranger districts are abbreviated as follows: Camino Real (Cr), Canjilon (Ca), El Rito (Er), Jicarilla (Ji), Tres Piedras (Tp), and 

Questa (Qu). 
Appendix A. Forest Plan Maps

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Figure A-11. Developed winter and summer resort management areas on the Carson National Forest
Appendix A. Forest Plan Maps

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Figure A-12. Jicarilla natural gas management area on the Carson National Forest
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Figure A-13. Grassland maintenance management areas on the Carson National Forest
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Figure A-14. Valle Vidal management area on the Carson National Forest
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Figure A-15. San Antonio management area on the Carson National Forest
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Appendix B. Proposed and Possible Actions

Introduction

This appendix describes the proposed and possible actions that may occur within the plan area during the 

life of the plan, including the methods of forest vegetation management 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 the 

National Environmental Policy Act (40 CFR 1508.23, 42 U.S.C. 4322(2)(C)), rather it includes program 

strategies and ongoing work with partners and cooperating agencies anticipated during the next 10 to 15 

years.

A plan amendment is not required to change or modify any of the proposed or possible actions. This list 

of actions can be updated at any time through an administrative correction of the plan.

Forestwide Management

All Vegetation

• In areas of high vulnerability to changing climate patterns, employ alternative management 

approaches to facilitate natural adaptation to changing conditions. Manage tree basal area to the low 

end of the range of desired conditions to mitigate water stress.

• Use mechanical, chemical, and prescribed fire treatments to maintain existing grassland and 

meadow openings, expand openings by removing woody species from the perimeter, and create 

new openings.

• Use methods, such as fencing, aerating soil (decompacting soils), improving livestock grazing 

strategies, or strategically locating constructed waters or roads to protect and enhance grassland 

composition, structure, and productivity and soil function.

• Work closely with the U.S. Fish and Wildlife Service (USFWS) to provide for federally listed 

species’ habitats, through minimizing disturbance, providing recovery strategies, and managing for 

desired levels of key structural elements (e.g., large old trees and snags, downed woody debris, 

denser vegetation structure, and soil structure) important for nesting, rearing, breeding, foraging, 

and dispersal.

• Work collaboratively with federally recognized tribes, New Mexico Department of Game and Fish, 

local governments, and other partners to plan and accomplish projects that will make progress 

toward desired conditions.

• Foster partnerships with universities and other science organizations to develop concepts and tools 

applicable to vegetation management, as well as to identify research opportunities related to 

management activities aimed at ecosystem restoration.

• Plan in cooperation with landowners, when proposed vegetation treatments are adjacent to private 

land.

• Work with volunteer groups on projects that improve vegetation condition and ecosystem function.
Appendix B. Proposed and Possible Actions

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• Use computer models or other tools as they are developed to understand management impacts on 

carbon stocks and fluxes (changes over time).

Bristlecone Pine

• Create a mosaic of mixed age classes and regeneration opportunities across the landscape to retain a 

range of bristlecone attributes in the area while white pine blister resistant selection occurs rapidly 

in younger stands and slowly in older stands.

Aspen

• Stimulate aspen growth and manage for pure aspen stands in high elevation forested wildland-urban 

interface forests to help mitigate fire hazard.

• Use small patch clearcuts (< 5 acres), conifer removal, and wildland fire to stimulate aspen 

sprouting in areas that currently have or previously supported aspen.

• Employ other strategies to promote aspen regeneration, such as jackstrawing, planting, public 

education, temporary exclosure fencing, and improving the forage and browse in the surrounding 

area to diffuse browse pressure.

• Selectively remove fire-sensitive species (i.e., white fir) and small diameter trees. Retain large 

ponderosa pine and Douglas-fir.

• Quantify the size and distribution of aspen patches required to overcome existing levels of browse 

pressure.

Mixed Conifer with Frequent Fire

• Mechanically treat at least 5,500 - 10,000 acres, during each 10-year period following plan 

approval. 

• During each 10-year period following plan approval, treat at least 20,000 - 40,000 acres using a 

combination of prescribed fire and naturally ignited wildfire to make progress toward or to maintain 

desired conditions.

Ponderosa Pine Forest

• Mechanically treat at least 22,000 - 50,000 acres, during each 10-year period following plan 

approval.

• During the 10 years following plan approval, treat at least 80,000 - 125,000 acres using a 

combination of prescribed fire and naturally ignited wildfire to make progress toward or maintain 

desired conditions.

Sagebrush 

• Employ vegetation management techniques in the sagebrush vegetation community (e.g., chemical 

application, mowing, disking, and burning), to enhance shrubland diversity, distribution, and 

productivity to support wildlife.

Watersheds

• Improve or maintain watershed function on at least 5,000 -10,000 acres annually. Align treatments 

with priority watersheds.
Appendix B. Proposed and Possible Actions

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• Complete watershed restoration action plans or similar processes for priority watersheds, including 

quantitative analyses of pollutant sources and pollutant load reductions when feasible.

Riparian

• Restore structure and function of at least 200 - 300 acres of nonfunctioning and functioning-at-risk 

riparian areas annually. Align treatments with priority watersheds.

• Reintroduce beaver, where habitat exists and where they historically occurred but cannot repopulate 

naturally.

Water

• Restore or enhance at least 100 - 150 miles of stream habitat, during each 10-year period following 

plan approval.

• Repair at least 2 road/stream crossings every 5 years at locations where chronic sedimentation 

causes are found. For example, up-size culverts, reduce sediment delivery to waterways from roads, 

or realign stream constraining road segments. Give precedence to road crossings that are causing 

unacceptable road damage.

• Improve or maintain function of at least 10 - 20 individual springs, during each 10-year period 

following plan approval.

Wildlife, Fish, and Plants

• Restore or enhance at least 50,000 - 150,000 acres of terrestrial wildlife habitat during each 10-year 

period following plan approval.

• Reconstruct or maintain 20 - 30 existing water developments for wildlife during each 10 year 

period following plan approval. Improve seep and spring function, when needed and consistent with 

the purpose of the development.

• Reduce nonnative fish within native fish populations in 4–6 stream reaches during each 10-year 

period following plan approval.

• Improve wildlife or aquatic habitat connectivity by removing unneeded structures (e.g., fences, 

roads, cattleguards, culverts, and spring developments) or completing improvement projects (e.g., 

removing barriers and connecting fragmented habitat) in at least 10-20 locations during each 10-

year period following plan approval.

• Complete at least 5 projects to improve habitat connectivity for aquatic and riparian species (e.g., 

remove barriers, restore dewatered stream segments, connect fragmented habitat, wildlife passage 

friendly fences, etc.) during the 10 years following plan approval.

• Complete at least 30 - 40 products or activities that educate the public, particularly youth, about 

wildlife, fish, and plant resources, during each 10-year period following plan approval. Examples of 

products include educational signs and brochures, website pages, species checklists, presentations, 

and field trips.

• Develop a response plan for white nose syndrome through continued collaboration with the U.S. 

Fish and Wildlife Service (USFWS), Bat Conservation International, New Mexico Department of 

Game and Fish, the National Speleological Society, and others with interests in conservation 

management for bat species. 
Appendix B. Proposed and Possible Actions

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• Conduct additional surveys, targeted monitoring, and research on life history and habitat needs, to 

fill information gaps on the rare and narrow endemic species that use cliffs and rocky features. 

• Coordinate with the NMDGF, USFWS, adjacent Federal and State land managers, and federally 

recognized tribes regarding listed and native species; reintroductions, introductions, or transplants 

and habitat improvements of listed or native species; control or eradication of nonnative species; 

and the management of sport and native fishes, including the identification of refugia for native 

fish.

• Work collaboratively with others to: identify wildlife migration routes and important habitat and 

improve or maintain connectivity for terrestrial species; 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; internally and externally increase the awareness and valuation of cliffs and 

rocky features, especially for threatened, endangered, and species of conservation concern (e.g., 

small-headed goldenweed and peregrine falcon); internally and externally increase awareness of 

white nose syndrome at local and regional levels; identify linkages and barriers to wildlife 

movements and mitigate impacts during project design; and minimize conflicting wildlife resource 

issues related to hunted, fished, and trapped species. 

• Coordinate with Federal and State land managers, federally recognized tribes, adjacent landowners, 

and other Federal and State agencies, when proposing management that may impact habitat 

connectivity and to discuss what mitigation may be needed.

• Convert permitted domestic sheep allotments that are within Rocky Mountain bighorn sheep 

occupied habitat52 to permitted cattle allotments.

• In coordination with NMDGF, “dust” prairie dog colonies with flea-controlling powder to reduce 

the spread of sylvatic plague. When possible identify and avoid burrows occupied with burrowing 

owls.

• To increase carrying capacity for put-and-take and wild trout fisheries, install stream improvement 

structures and allowing beaver to build and maintain beaver dams.

• Take into consideration the amounts, arrangements, and condition of natural communities and 

habitats that benefit wildlife during planning by multiple resource areas including range, fire, and 

timber. 

Nonnative Invasive Species

• Contain, control, or eradicate at least 300 - 500 acres of invasive species (e.g., musk thistle and 

spotted knapweed) annually.

• Prioritize treatments based on State status, refer to the New Mexico Department of Agriculture 

website for the “Introduced, Invasive, and Noxious Plant List”.

• Prioritize inventories in areas of unique and rare habitats first and then areas of high use and 

disturbance second (e.g., material pits, trailheads, campgrounds, corrals, roads, boat ramps, and 

bridges).

 

52 As defined by New Mexico Department of Game and Fish or best available science.
Appendix B. Proposed and Possible Actions

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• Prioritize control of invasive species in areas (e.g., wilderness, research natural areas, botanical 

areas, wild and scenic river areas, and riparian areas) to maintain the integrity of native species and 

ecosystems. 

• Coordinate with stakeholders and educate the public to reduce, minimize, or eliminate the potential 

introduction, establishment, spread, and impact of nonnative invasive species.

Air Resources

• Provide advanced notification of potential smoke from fire management activities through the 

media to promote public awareness and protection of human health and safety, and place smoke 

warning signs along roads when visibility may be reduced. 

• Employ design features, best management practices, or mitigation measures to reduce fugitive dust 

where needed.

Federally Recognized Tribes

• Coordinate with federally recognized tribes to develop collaborative proposals and accomplish 

projects of mutual benefit across shared boundaries, and use available Federally-authorized or 

advocated programs (e.g., Tribal Forest Protection Act of 2004 (Public Law 108-278), 

Collaborative Forest Restoration Program).

• Develop and maintain memoranda of understanding or other agreements, to better understand 

community needs and build respectful, collaborative relationships with federally recognized tribes.

• Coordinate with federally recognized tribes to gain tribal perspectives, needs, and concerns, as well 

as traditional knowledge, and incorporate this information into project design and decisions.

• Develop management tools (e.g., programmatic agreements, management plans, and memoranda of 

understanding), to manage traditional cultural properties collaboratively with associated 

communities.

• In collaboration with federally recognized tribes, develop interpretive and educational exhibits or 

other media that focus on the history of the lands managed by the Carson, to provide the public and 

Forest Service employees with a greater understanding and appreciation of shared history, culture, 

and traditions. 

• Work with the public to create awareness around the importance of traditional cultural properties 

and issues related to their management, while protecting confidential or sensitive information 

regarding traditional cultural properties. 

• Use federally authorized or advocated programs (e.g., Tribal Forest Protection Act and Community 

Forest Restoration Program) to develop collaborative proposals and partnerships with federally 

recognized tribes to accomplish projects of mutual benefit and economic development.

• Work with federally recognized tribes to understand community needs and build respectful, 

collaborative relationships, to move toward desired conditions. 

• Provide training opportunities for Forest Service employees to gain a broader understanding of the 

unique legal relationship between the Federal Government and federally recognized tribes and 

pueblos, American Indian Law, customs, traditions, and values.

• Incorporate native languages (e.g., Tiwa, Tewa, Athabaskan, and Keres) into interpretive materials, 

to highlight the American Indian culture as part of the forest landscape and its surrounding areas.
Appendix B. Proposed and Possible Actions

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Rural Historic Communities

• In collaboration with northern New Mexico communities, develop interpretive and educational 

exhibits or other media that focus on the history of the lands administered by the Carson, to provide 

the public and Forest Service employees with a greater understanding and appreciation of shared 

history, culture, and traditions.

• Work with traditional communities, such as land grant-merced and acequia governing bodies, to 

identify partnership, education, and interpretation opportunities that can help sustain the traditional 

communities’ heritage, language, culture, traditions, and environment in northern New Mexico. 

• Coordinate with traditional communities, such as land grant-merced and acequia governing bodies, 

to gain local perspectives, needs, and concerns, as well as traditional knowledge, and incorporate 

this information into project design and decisions.

• Educate northern New Mexico youth in local culture, history, and land stewardship, and explore 

ways of exchanging information between community elders and youth.

• Provide training opportunities for Forest Service employees to gain a deeper understanding of the 

unique traditional communities, customs, traditions, and values of northern New Mexico. 

• Offer Carson offices as welcoming places for local community members to engage with Forest 

Service employees and one another, disseminate and receive information, and attend meetings, 

seminars, and exhibits that promote community knowledge and collaboration.

• Hold annual meetings with land grant and acequia governing bodies, to improve communication 

and relationships.

• Incorporate Spanish language into interpretive materials to highlight the Hispanic culture, as part of 

the landscape of the Carson and its surrounding areas.

• Make fuelwood permits available locally in the field where the fuelwood opportunity is available or 

allow rural communities to get a fuelwood permit at the Forest Service district office closest to 

them or another government office, rather than only at the district office administering the permitted 

area.

• Work with land grant and acequia governing bodies, rural communities, and other community 

leaders to continually improve relationships and discuss shared opportunities to design projects that 

contribute to the cultural integrity of the many forest-dependent traditional communities.

• Work collaboratively with land grant and acequia governing bodies, rural communities and other 

community leaders to maintain shared infrastructure (e.g., fencing, roads, and cattleguards). 

Cultural Resources

• Synthesize cultural resource findings and interpret and share them with the scientific community, 

and public through prehistoric and historic contexts, formal presentations, publications, and 

educational venues.

• Develop a database of fire sensitive cultural sites, structures, and other resources and make it 

available for fire management purposes to facilitate resource protection.

• Prioritize non-project related surveys (i.e., Section 110 of the National Historic Preservation Act) as 

follows:; (1) areas indicated to have high cultural value or high density of cultural resources; (2) 

areas of importance to traditional communities; (3) areas where additional surveys will contribute to 
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a greater regional understanding of a specific management unit; and (4) areas where eligible 

cultural resources are threatened or on-going impacts are unknown and need to be assessed.

• Provide orientation and learning opportunities for Forest Service personnel, permit holders, and 

contractors that instill buy-in around the Section 106 process of the National Historic Preservation 

Act. Find teaching opportunities to educate personnel on the identification, management and 

protection of significant cultural resources.

• Develop opportunities for heritage tourism in concert with local communities.

• Through interpretive sites, historic standing structures and other materials, provide opportunities for 

an appreciation of the region’s history and an awareness of preservation efforts. Use historic routes 

(e.g., railroad grades) for recreation trails with interpretation of their history and historic features.

Sustainable Rangelands and Livestock Grazing

• Annually improve or maintain at least 6 - 10 existing range improvement structures for livestock 

grazing, following plan approval.

• Forest managers cooperate, collaborate, and coordinate with permit holders to respond to changing 

resource conditions. Cooperation, collaboration and coordination among Carson and permit holders 

is key to improving rangeland and forest conditions for multiple uses, moving towards desired 

conditions, and contributing to the socioeconomic wellbeing of local communities. In addition, 

collaboration among stakeholders is important, including local communities; permit holders; 

Federal, State, county and local government entities.

• Acknowledge the importance of livestock grazing as a traditional and cultural practice that helps 

support the socioeconomic well-being of individual families within local communities, now and 

into the future.

• Employ large-scale landscape management for restoring rangelands and the heterogeneity of native 

plant species, with an emphasis on grass, forb, and shrub communities, to promote livestock 

grazing capacity, and encourage movement towards desired conditions of NFS lands.

• Manage rangelands using an adaptive management approach and in a manner that promotes 

socioeconomic wellbeing and stability of local communities, ecosystem resilience, sustainability, 

and species diversity, based on scientifically quantified changes to rangelands. An adaptive 

management approach is designed to provide more flexibility to grazing management, while 

improving or maintaining the health of rangelands.

• Invite association members and individual permit holders on range inspections, and conducting 

these inspections on days when most permit holders can attend.

• Actual levels of livestock use may vary due to annual fluctuations of individual livestock operations 

or ecological conditions, including nonuse for resource protection or personal convenience. Base 

permit numbers on capacity not on actual use, including nonuse. 

• Facilitate a dialogue between the New Mexico Department of Game and Fish and permit holders 

about ungulates (e.g., elk, deer, and livestock) and the cumulative impacts on forest resources.

Sustainable Forestry and Forest Products

• During the planning of forest restoration projects, encourage discussions with federally recognized 

tribes and land grants-mercedes that collect plants for traditional, cultural, and ceremonial purposes, 

to promote the plants’ persistence. 
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• Design small timber contracts to accommodate small operations based in northern New Mexico

communities.

• When planning and implementing projects, work collaboratively with Federal, State, local 

governments, federally recognized tribes, and private landowners to promote integrated ecological 

and social-economic goals of harvesting forest products through the use of mechanisms such as 

Collaborative Forest Restoration Projects (CFRPs), Tribal Forest Protection Act (TFPA), youth 

programs, and stewardship contracting authorities to support a sustainable and appropriately-scaled 

industry.

• Utilize woody material that results from management activities, instead of on-site burning and 

chipping.

• Make fuelwood more available through public access within a project area, providing some decked 

wood material along roads, or allowing collection within utility or road corridors that are being 

thinned or cleared.

• Maintain and expand the partnership block program on the Carson. 

• Inform the public of the effects of illegal wood cutting, to ensure the sustainability of quality habitat 

over the long term. Illegal woodcutting reduces the quantity and quality of woodland habitat, 

especially piñon pine and juniper.

• Employ uneven- or even-aged timber harvest methods that reflect the scale of natural disturbances 

and are designed to move toward desired conditions (e.g., size class distribution, species 

composition, patch size, fuel reduction, insect and disease).

• Use even-aged management prescriptions as a strategy for achieving the desired uneven-aged 

conditions over the long term or at the landscape scale. Even-aged 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 move 

toward desired conditions has been significantly impaired.

• Prepare pest control plans with forest health specialists that contain appropriate mitigation measures 

(e.g., planting resistant tree species, maintaining species diversity, removing damaged trees, and 

using pesticides) and monitoring procedures. Monitoring may include:

♦ Measuring effectiveness of treated areas

♦ Determining effects on non-target organisms

♦ Determining effects on water quality

♦ Determining effects of pesticide that enters the soil or air.

• Apply treatments within infrequent-fire vegetation communities (e.g., spruce-fir forest, mixed 

conifer with aspen, and piñon-juniper woodland) for ecological and socioeconomic benefits.

• Designate and manage stands of mature and over-mature piñon for the gathering of piñon nuts and 

potentially restrict the harvest of firewood in these stands.

• Prioritize the utilization of woody material that results from management activities over on-site 

burning and chipping.
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Timber Program

The expected timber product outputs by decade during the planning period were modeled using the 

Vegetation Dynamics Development Tool and are based on Forest Service Southwestern Region volume 

outputs and objectives for mechanical treatment in the plan. Possible actions included in this section of 

the appendix are related to the possible timber sale program, timber-harvesting levels, and the proportion 

of probable methods of forest vegetation management practices expected to be used over the life of the 

plan. However, speculation about the specific amount or type of treatments, frequency, location, 

magnitude, or numbers of actions during the plan period is not included and should not be inferred. These 

details related to management actions would be determined at the project level based on site-specific 

conditions.

Management practices applied and the volume of timber products expected are based on desired 

vegetation conditions, budget and resource constraints, and expected vegetation change pathways. 

Production of sawtimber and other wood products is expected through commercial timber harvest 

activities, which includes even-aged regeneration harvests (e.g. clearcut, seedtree, and shelterwood) and 

other non-regeneration harvests (for modeling purposes, these are mostly commercial thinning, with 

lesser amounts of group selection harvests); refer to Table 4, Table 5, and Table 18. The appropriate or 

optimum methods of harvest would be based upon site-specific determinations, as evaluated and 

determined during project planning and documented in a silvicultural prescription.

Table 18. Possible annual number of acres of mechanical treatment by treatment type

Type of Harvest Acres

Thin from below to target basal area 747

Group selection with matrix thin to target basal area 3,753

Shelterwood seed cut to target basal area 88

Clearcut with non-regeneration objective legacy trees 589

Tree planting 292

Recreation

• Develop and accomplish at least 1 strategy that raises awareness of discouraged practices (e.g., 

illegal dumping, shooting practices, and driving on closed roads) to promote visitor safety, during 

the 10-year period following plan approval.

• Develop at least 2 additional methods for providing visitor information and education, during the 

10-year period following plan approval.

• Develop at least 1 collaborative partnership for the recreation program to expand public awareness, 

understanding, and promote responsible behavior, during the 10-year period following plan 

approval.

• Modify or accomplish 2 actions within the Carson’s Sustainable Recreation Strategy to maintain 

relevancy, every 5 years following plan approval. 

• Rehabilitate 5 to 7 areas where dispersed camping is causing unacceptable erosion, during each 10-

year period of the plan.

• Develop a sustainable recreation strategy that is economically feasible and adaptable, to include 

closing or decommissioning underutilized sites and infrastructure; developing new sites or trails; 

and upgrading existing infrastructure to meet user needs and desires.
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• Provide educational, safety, and other information that enhances the visitor experience at district 

offices, local visitor information centers, campgrounds, and other developed recreation sites.

• Partner with local communities, skilled stewardship organizations, volunteers, other government 

agencies, cooperators, and permit holders to help co-manage a sustainable recreation program, 

including planning, design, implementation, operations, conservation education, and maintenance. 

Recognize partners for their roles in providing recreational opportunities.

• Involve local communities in partnerships and foster long-term relationships with stakeholders, to 

facilitate and participate in the management of sustainable recreation on the Carson National Forest. 

• Work with partners and volunteers in the coordination, development, and delivery of educational 

and community outreach programs. Actively engage urban populations, youth, and underserved 

communities in programs.

• Coordinate with partners early in project development using a clear and concise process to elicit 

collaborative input on sustainable recreation opportunities, needs, and potential conflicts. 

• Develop motorized and non-motorized nested loop trail systems, improve connectivity of existing 

routes and communities, and provide opportunities for long distance travel. 

• Use a sign coordinator to build partnerships with other organizations and user groups, to design, 

develop, and install new interpretive, trail, and developed recreation signage.

• Partner with volunteers, rock climbing organizations, other government agencies, cooperators, and 

permit holders to help co-manage sustainable rock climbing opportunities, including planning, 

design, implementation, operations, and maintenance of rock climbing areas.

Transportation and Forest Access

• Obliterate or naturalize at least 20 miles of unneeded roads within the 10-year period following plan 

approval.

• Grade surfaces and clean culverts and ditches on at least 500 miles of open National Forest System 

roads annually.

• Maintain at least 100 - 300 miles of trails (including motorized) annually.

• Maintain at least 10 - 20 percent recreation signage, during each 5-year period of the plan.

• Good relationships and communications with internal and external customers as well as partners are 

important. Notify counties and other potentially affected users (including permit holders) of 

changes in road status or significant deviations in traffic pattern of a month or greater in duration.

• Actively encourage collaborative relationships with adjacent stakeholders and public land managers 

to develop contiguous road and trail systems across multiple ownerships. Where possible seek 

opportunities for acquiring access through private lands to promote trail connectivity and 

manageability.

• Prioritize road system maintenance to provide safe travel on all roads, as well as to prevent or 

mitigate resource damage. The Carson continues with current maintenance agreements and seeks to 

enter into new agreements with other entities including Federal, State, and local government 

agencies, as well as private organizations and individuals.

• While developing the proposed action for environmental analysis, incorporate decommissioning of 

roads that are redundant, adversely impact flow regimes, or cause resource damage.
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• Consider predicted future runoff, when reconstructing existing or building new roads. 

• Maintain a spatial database of existing routes, including roads needed for public access, future 

project use, administrative use, and access to private land.

Scenery

• Use the scenery management system to incorporate scenery management principles into the 

planning, design, and implementation of projects and management activities. 

• Display interpretive or informational signs at sites with impacts to scenery to inform the public 

about the nature and consequences of such projects or events. 

• Cooperate with other entities, such as the New Mexico Department of Transportation, Tribal and 

local governments, and commercial and private entities to protect scenic integrity on, and adjacent 

to, the Carson, including along scenic byways.

Management Approaches for Special Uses

• Base authorization of special use permits for recreation events and outfitting and guiding services 

on any current and future capacity studies and administrative capabilities.

• Use tools that assist in efficiencies to the special uses program or that expand administrative 

capacity (e.g., Environmental Assessment and Decision Making, special use modernization efforts, 

regional billing team, proposed statewide outfitter/guide permits).

• Include in the operations and maintenance plan of recreation residence special uses authorizations 

to use the most recent edition of “A Guide to Maintaining the Historic Character of Your Forest 

Service Recreation Residence” for guidance on any improvements or maintenance to eligible 

historic or unevaluated recreation residences.

Lands

• Encourage collaborative relationships with adjacent stakeholders and public land managers, to 

develop contiguous habitat connectivity across multiple ownerships.

• Encourage collaborative relationships with rural historic communities that are dependent on the 

Carson, to ensure traditional and cultural uses are incorporated into the management of any newly 

acquired lands.

• Work with private land owner easement grantors to avoid compromising continued access.

Fire Management

• Manage naturally ignited fires to meet multiple resource objectives concurrently (e.g. protection 

and resource enhancement), which can change as the fire spreads across the landscape. Objectives 

are based on interdisciplinary assessment of site-specific values used to develop incident objectives 

and courses of action to enhance or protect those values.

• In areas that are moderately to highly departed from desired conditions accept higher fires 

intensities and associated fire effects at the fine scale. Multiple small areas of high mortality may be 

preferable to a single large, high-severity event.

• Promote public safety and reduce the risk of wildfire on lands of other ownership by supporting the 

development and implementation of community wildfire protection plans.
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• Work with fire and project managers to develop practices and protocols to reduce non-prescribed 

human ignitions through information, education, and interpretive programs. Educate the public on 

their responsibility to help reduce human-caused wildfires by providing information in the form of 

signage, public contacts, and fire restrictions.

• Plan and accomplish fuels projects, planned ignitions, and all hazard response by working 

collaboratively with Federal, State, and local governments, and private landowners.

• Prioritize treatments based on their benefit to ecological integrity or the ability to manage future 

fires to protect values at risk.

• Assign a Wilderness Resource Advisor to all fires in wilderness that are not suppressed during 

initial attack.

Minerals and Mining

• Consider the potential to use sites for mineral collection areas during the development of a 

reclamation plan.

Designated and Management Areas

Wilderness

• Clearly identify wilderness boundaries through signage at official entry points and needed locations 

(e.g., informal access points) that is consistent with trail maps, and boundary markers.

• Work with local partners to maintain wilderness, including trail maintenance and construction.

• Partner with other Federal agencies to ensure management is as consistent as possible for 

contiguous wildernesses. 

• Consider helicopter use in wilderness to manage fish or wildlife populations when deemed 

appropriate by minimum requirements analysis. Approval of helicopter use is made by the Regional 

Forester, after appropriate environmental analysis.

• Use the most recent version of a wilderness’s respective management plan, if it exists.

National Scenic, Historic, and Recreation Trails

• To protect the Continental Divide National Scenic Trail’s scenic values, consider special-use 

authorizations for new communication sites, utility corridors, and renewable energy sites that would 

not be visually apparent within visible foreground (up to 0.5 mile) and middle ground viewshed (up 

to four miles).

• Coordinate trail management and activities across unit and jurisdictional boundaries, specifically 

with the Santa Fe and Rio Grande national forests and the Bureau of Land Management.

Wild Horse Territories

• Coordinate management of the Carson’s wild horse program with the BLM, to benefit both 

agencies. 

• Partner and coordinate with wild horse advocates, federally recognized tribes, adjacent landowners, 

and grazing permit holders to maintain the desired appropriate management level of wild horses 

through actions, such as capture and removal and fertility control treatments.
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Jicarilla Natural Gas Management Area

• Consider alternative drilling technology and various site locations, prior to developing new well 

sites, roads, or pipelines within an area of resource concern, to minimize the impacts to surface 

resources.

• Continue with the partnership between the Forest Service and natural gas lease and pipeline 

operators (Jicarilla Roads Committee) to provide services, equipment, and money in maintaining 

roads on the Jicarilla Ranger District. 

• Consider offsite mitigation based on the scope and complexity of the project or adverse impacts to 

resources due to development.

Valle Vidal Management Area

• Work with groups and individuals interested in the management of Valle Vidal to provide guidance 

during planning, implementation, and monitoring of environmental restoration projects.

• Coordinate with the New Mexico Department of Game and Fish, so that management activities are 

consistent with the agency’s fisheries management plans.

• Identify and work with partners to restore Shuree Lodge (in keeping with the National Historic 

Preservation Act and in consultation with the State Historic Preservation Officer), to use for 

nonprofit activities open to the public, such as an interpretive center, volunteer lodging during 

educational and cultural events, or as an administrative facility. Other historic structures may also 

be restored and adaptively reused. Potential uses include renting cabin(s) to the public as part of the 

Forest Service cabin rental program, administrative needs, or other appropriate uses. Do not allow 

private for-profit commercial facilities.

San Antonio Management Area

• Improve wildlife or aquatic habitat connectivity within the San Antonio Management Area by 

removing unneeded structures (e.g., fences, roads, cattleguards, and culverts) or completing 

improvement projects (e.g., removing barriers and connecting fragmented habitat).

• Implement projects in the San Antonio Management Area that improve habitat connectivity for 

aquatic and riparian species (e.g., remove barriers, restore dewatered stream segments, connect 

fragmented habitat, wildlife passage friendly fences, etc.).

• Work with groups and individuals interested in the management of the greater San Antonio 

landscape, to provide guidance during planning, implementation, and monitoring of environmental 

restoration projects.

• Coordinate with adjacent landowners, Federal and State land managers, and State agencies when 

ground disturbing activities are proposed in the San Antonio Management Area. Consider the 

cumulative impacts of ground-disturbing projects that are occurring or will occur on adjacent lands 

and whether the spatial, temporal, or other design features can mitigate impacts to connectivity.

• Consider the amounts, arrangements, and condition of natural communities and habitats that benefit 

wildlife, during planning by multiple resource areas including range, fire, and timber.

• Coordinate with the New Mexico Department of Game and Fish, USFWS, adjacent Federal land 

managers, sportsman’s groups, the scientific community, and other stakeholders regarding 

information, education, and knowledge gaps as they relate to promoting and improving wildlife, 

fish, and plant resources and management. 
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• Identify linkages and barriers to wildlife movements and mitigate impacts during project design, by 

working with New Mexico Department of Game and Fish, New Mexico Department of 

Transportation, federally recognized tribes, Federal, State, and local agencies, Federal and State 

land managers, private landowners, and other organizations.
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Appendix C. Relevant Laws, Forest Service 

Regulations, Polices, Directives, and Other Sources of 

Information

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 that provide 

management direction but are not restated in this plan. The Carson National Forest develops projects and 

activities 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 list 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.

Anderson-Mansfield Reforestation and Revegetation Act of October 11, 1949 

Provides for the reforestation and revegetation of National Forest System lands and other lands under the 

administration or control of the Forest Service.

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 
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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.

Archaeological and Historic Preservation Act of 1974 (AHPA) (16 U.S.C. 469) 

This act is also known as the Archaeological Recovery Act. This Act 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. This Act 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.

Clean Water Act

(see Federal Water Pollution Control Act)
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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 common variety mineral materials (including but not limited to 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 non-Federal 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 Carson, some with recovery plans and some with designated critical habitat. Those with a recovery 

plan and/or a critical habitat designation are listed below:

• Mexican Spotted Owl Recovery Plan

• Endangered and Threatened Wildlife and Plants; Final Designation of Critical Habitat for the 

Mexican Spotted Owl; Final Rule

• Final Recovery Plan Southwestern Willow Flycatcher

• Endangered and Threatened Wildlife and Plants; Designation of Critical Habitat for Southwestern 

Willow Flycatcher; Final Rule

• Black Footed Ferret Recovery Plan
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Energy Independence and Security Act of December 19, 2007 

Reinforces the energy reduction goals for Federal agencies put forth in Executive Order 13423, as well as 

introduces more aggressive requirements. The three key provisions enacted are the Corporate Average 

Fuel Economy Standards, the Renewable Fuel Standard, and the appliance/lighting efficiency standards.

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 Insecticide, Rodenticide, and Fungicide Act of October 21, 1972 

Requires the administrator of the Environmental Protection Agency to prescribe standards for the 

certification of individuals authorized to use or supervise the use of any pesticide that is classified for 

restricted use; regulates the sale of restricted use pesticides; and provides penalties for the unauthorized 

use or sale of restricted use pesticides.

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; 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.
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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.

Federal Water Project Recreation Act of July 9, 1965

Requires that recreation and fish and wildlife enhancement opportunities be considered in the planning 

and development of Federal water development.

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.

Fish and Wildlife Coordination Act of March 10, 1934 

Authorizes the Secretaries of Agriculture and Commerce to provide assistance to and cooperate with other 

Federal and State agencies to protect, rear, stock, and increase the supply of game and fur-bearing 

animals, as well as to study the effects of domestic sewage, trade wastes, and other polluting substances 

on wildlife. The Act also authorizes the preparation of plans to protect wildlife resources, the completion 

of wildlife surveys on public lands, and the acceptance by Federal agencies of funds or lands for related 

purposes provided that land donations receive the consent of the State in which they are located.

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 
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of Forest Service programs and resources to Indian tribes in support of the policy of the United States to 

promote tribal 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 Highways Act of August 27, 1958 

Requires that funds available for forest development roads and trails be used by the Secretary of 

Agriculture to pay for the costs of construction and maintenance thereof, including roads. Relevant Laws, 

Regulations, and Policies, and Other Sources of Information trails on experimental and other areas under 

Forest Service administration, or for adjacent vehicular parking areas and sanitary, water, and fire control 

facilities. Authorizes the Secretary of Agriculture to enter into contracts with a state or civil subdivision 

thereof, and issue such regulations, as he deems desirable. See also Highways (23 USC Chapter 205 

Forest development roads and trails).

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. 

Intergovernmental Cooperation Act of October 16, 1968 (31 USC 6505) 

The act permits Federal agencies to provide specialized or technical services to State and local units of 

government.
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Land Acquisition Act of March 3, 1925 

Authorizes the Secretary of Agriculture to purchase land for national forest headquarters, ranger stations, 

dwellings, or other sites required for the effective performance of the authorized activities of the Forest 

Service.

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.

Migratory Bird Treaty Act of 1918 

Makes it unlawful to “take” migratory birds, their eggs, feathers, or nests. A migratory bird is any species 

or family of birds that live, reproduce, or migrate within or across international borders at some point 

during their annual life cycle. Presidential executive order number 13186 additionally directs Federal

agencies to integrate bird conservation into agency activities and to design migratory bird habitat and 

conservation principles and practices into agency environmental planning.

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.

Mining Claims Rights Restoration Act of August 11, 1955 

States that all public lands belonging to the United States which have been withdrawn or reserved for 

power development or power sites shall be open to entry for location and patent of mining claims and 

mineral development, subject to certain conditions.

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.
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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, sustainedyield 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 Forest Roads and Trails Act of October 13, 1964 

Authorizes the Secretary of Agriculture to provide for the acquisition, construction, and maintenance of 

forest development roads within and near the national forests through the use of appropriated funds, 

deposits from timber sale purchasers, cooperative financing with other public agencies, or a combination 

of these methods. The act also authorizes the secretary to grant rights-of-way and easements over 

National Forest System lands.

National Historic Preservation Act of 1966 as amended (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, 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 provide outdoor recreation and the conservation and enjoyment of 

significant scenic, historic, natural, or cultural qualities; National Historic Trails follow travel routes of 

national historic significance; National Recreation Trails are in, or reasonably accessible to, urban areas 
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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on Federal, State, or private lands; and connecting or side trails provide access to or among the other 

classes of trails.

Native American Graves Protection and Repatriation Act of 1990 (NAGPRA) (25 USC 3001) 

Provides a process for Federal agencies to return Native American human remains, funerary objects, and 

sacred objects to the ancestors and appropriate Native American tribe. Includes provisions for the 

intentional excavation and unanticipated discovery of Native American cultural items on Federal and 

tribal lands, and penalties for noncompliance and illegal trafficking. The act requires agencies to identify 

holdings of such remains and objects and to work with appropriate Native American groups toward their 

repatriation.

Oil and Gas Leasing Reform Act of 1987 

Amended the Mineral Lands Leasing Act of 1920 regarding competitive leasing of oil and gas for onshore 

Federal lands. Sets forth guidelines for the promulgation of regulations regarding lease sales, and 

prohibits the issuance of oil or gas leases upon certain lands allocated or designated as wilderness. 

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 water flows, 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. 

Pipelines Act of February 25, 1920 

Authorizes the Secretary of the Interior or appropriate agency head to grant rights-of-way through any 

Federal lands for pipeline purposes for the transportation of oil, natural gas, synthetic liquid or gaseous 

fuels, or any refined product produced therefrom to any applicant possessing the qualifications provided 

in the act.

Public Buildings Cooperative Use Act of 1976 

Authorizes the Federal government to acquire and utilize space in suitable buildings of historic, 

architectural, or cultural significance, unless use of such space would not prove feasible and prudent 

compared with available alternatives; to encourage the location of commercial, cultural, educational, and 

recreational facilities and activities within public buildings; to provide and maintain space, facilities, and 

activities, to the extent practicable, which encourages public access to and stimulates public pedestrian 

traffic around, into, and through public buildings, permitting cooperative improvements to and uses of the 

area between the building and the street, so that such activities complement and supplement commercial, 

cultural, educational, and recreational resources in the neighborhood of public buildings; and to 

encourage the public use of public buildings for cultural, educational, and recreational activities.

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 
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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.

Rehabilitation Act of 1973, as amended 

States that it is national policy that the Federal government plays a leadership role in promoting the 

employment of individuals with disabilities, and in assisting states and providers of services in fulfilling 

the aspirations of such individuals with disabilities for meaningful and gainful employment and 

independent living.

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. 

Rescission Act of 1995 

Directs the Forest Service to establish and adhere to a schedule for analysis and decisions on all grazing 

allotments where National Environmental Policy Act of 1969 compliance is required. Notwithstanding 

any other law, term grazing permits which expire or are waived before the National Environmental Policy 

Act analysis and decision pursuant to the schedule developed by individual Forest Service System units, 

shall be issued on the same terms and conditions and for the full term of the expired or waived permit. 

Upon completion of the scheduled National Environmental Policy Act analysis and decision for the 

allotment, the terms and conditions of existing grazing permits may be modified, if necessary to conform 

to such National Environmental Policy Act analysis and subsequent decision.

Secure Rural Schools and Community Self-Determination 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. 
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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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. 

Surface Mining Control and Reclamation Act of August 3, 1977 

Authorizes the Secretary of Agriculture to enter into agreements with landowners, providing for land 

stabilization, erosion, and sediment control, and reclamation through conservation treatment, including 

measures for the conservation and development of soil, water, woodland, wildlife, and recreation 

resources, and agricultural productivity of such lands.

Timber Exportation Act of April 12, 1926

Authorizes the exportation of lawfully cut timber from the State or territory where grown if the supply of 

timber for local use will not be endangered, and authorizes the Secretary to issue rules and regulations to 

carry out the provisions of the act.

Transfer Act of February 1, 1905 

Transferred the management and control of the Forest Reserves from the General Land Office (GLO) in 

the Department of the Interior to the Bureau of Forestry in the Department of Agriculture.

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.
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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 “wildernesses” 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 “wildernesses” except as provided for in the act or by a 

subsequent act.

Carson wildernesses are designated under the following authorities: 

• Columbine-Hondo Wilderness Act of 2014 (Public Law 113-291) designates Columbine-Hondo 

Wilderness, adjusts the boundary of Wheeler Peak Wilderness. 

• New Mexico Wilderness Act of 1980 (Public Law 96-550) designates Latir Peak and Cruces Basin 

Wildernesses, adds 14,700 acres to Wheeler Peak Wilderness. 

• Endangered American Wilderness Act of 1978 (Public law 95-237) designates the Chama River 

Canyon Wilderness. 

• The Wilderness Act of 1964 (Public law 88-577) designates Wheeler Peak and Pecos Wildernesses. 

Youth Conservation Corps Act of August 13, 1970 

Establishes a Youth Conservation Corps whom the Secretaries of the Interior or Agriculture may employ 

without regard to the civil service or classification laws, rules, or regulations for the purpose of 

developing, preserving, or maintaining the lands and waters of the United States.

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 11593 Protection and Enhancement of the Cultural Environment, 1973 

States that the Federal government shall provide leadership in preserving, restoring, and maintaining the 

historic and cultural environment of the Nation, and that Federal agencies shall administer the cultural 

properties under their control in a spirit of stewardship and trusteeship for future generations; initiate 

measures necessary to direct their policies, plans, and programs in such a way that federally-owned sites, 

structures, and objects of historical, architectural, or archaeological significance are preserved, restored, 

and maintained for the inspiration and benefit of the people; and, in consultation with the Advisory 

Council on Historic Preservation, institute procedures to assure that Federal plans and programs 
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contribute to the preservation and enhancement of non-federally owned sites, structures, and objects of 

historical, architectural, or archaeological significance.

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.

Executive Order 12862 Setting Customer Service Standards, 1993 

Requires all executive departments and agencies that provide significant services directly to the public to 

provide those services in a manner that seeks to meet the customer service standard established in the 

order, and requires agencies to identify customers, survey customers and front-line employees to 

determine the kind and quality of services needed and barriers to those services, benchmark customer 

service performance against the best in the business, make information, services, and complaint systems 

easily accessible, and provide a means to address customer complaints.

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.” 
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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 the National Environmental Policy Act evaluate 

effect on migratory birds, and promote research, education, and training related to conservation of 

migratory birds.

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 13287 Preserve America, 2003

Advances the protection, enhancement, and contemporary use of the historic properties owned by the 

Federal government, and promotes intergovernmental cooperation and partnerships for the preservation 

and use of historic properties. Directs Federal agencies to increase their knowledge of historic resources 

in their care and to enhance the management of these assets. Encourages agencies to seek partnerships 

with State, tribal, and local governments and the private sector to make more efficient and informed use 

of their resources for economic development and other recognized public benefits. Better combines 

historic preservation and nature tourism by directing agencies to assist in the development of local and 

regional nature tourism programs using the historic resources that are a significant feature of many State 

and local economies.

Executive Order 13352 Facilitation of Cooperative Conservation, 2004 

Ensures that the Departments of the Interior, Agriculture, Commerce, and Defense and the Environmental 

Protection Agency implement laws relating to the environment and natural resources in a manner that 

promotes cooperative conservation, with an emphasis on appropriate inclusion of local participation in 

Federal decision-making, in accordance with their respective agency missions, policies, and regulations.

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.
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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.

Executive Order 13514 Federal Leadership in Environmental, Energy, and Economic 

Performance, 2009 

Expands on the energy reduction and environmental performance requirements for Federal agencies 

identified in EO 13423. The goal is to establish an integrated strategy towards sustainability in the Federal 

Government and to make reduction of greenhouse gas emissions (GHG) a priority for Federal agencies. 

Lays out numerical targets for agencies, sets non-numerical targets that agencies must reach, and calls for 

specific management strategies to improve sustainability.

Executive Order 13604 

(Improving Performance of Federal Permitting and Review of Infrastructure Projects)

An initiative to modernize decision-making processes throughout the Federal government through 

improved efficiency and transparency. On May 17, 2013, in following up on the Executive Order, 

President Obama issued a Presidential Memorandum—“Modernizing Federal Infrastructure Review and 

Permitting Regulations, Policies, and Procedures” (The White House, 2013). The memorandum 

highlighted the need for improved mitigation policies that provide project developers with greater 

predictability, facilitate landscape-scale mitigation and interagency mitigation plans (where appropriate), 

and enhance accountability, transparency, and effectiveness. The administration has charged the Forest 

Service with participating in this modernization effort.

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
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• FSM 1400 Controls

• FSM 1410 Management Reviews

FSM 1500 External Relations 

• FSM 1560 State, Tribal, County, and Local Agencies, Public and Private Organizations

♦ FSM 1563 American Indian and Alaskan Native Relations

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 2020 Ecological Restoration and Resilience

• FSM 2030 Large Scale Event Recovery

• 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 

• FSH 2309.18 Trails Management Handbook

• FSH 2309.24 Cultural Resources Handbook, Southwestern Region Supplement, Chapter 10 – 

Survey Standards 

• FSH 2309.24 Cultural Resources Handbook, Southwestern Region Supplement, Chapter 40 – 

Damage Assessment

• 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

• FSM 2360 Heritage Program Management
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♦ FSM 2360 Special Interest Areas, Southwestern Region Supplement 2300-99-3 

• FSM 2380 Landscape 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

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 3400 Forest Health Protection and Southwestern Region Supplement 3400-91-1 
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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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

♦ FSH 7709.59 Road Operations

• FSM 7720 Development (Policy on Transportation)

• FSM 7730 Operation and Maintenance

Forest Service 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.
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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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.

36 CFR 212 Forest Development Transportation System 

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.
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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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.

36 CFR 261 Prohibitions 

Sets forth the general prohibitions relating to the use and occupancy of National Forest System lands.

• 36 CFR 261.7 Unauthorized livestock

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 inventoried roadless areas, providing lasting protection for 

landscapes within the National Forest system under multi-use management.

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 Parts 212, 251, 261, 295 Travel Management, Designated Routes and Areas for Motor 

Vehicle Use; Final Rule

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.
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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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).

40 CFR Parts 121-135 Water Programs

Sets forth the provisions for the administration of water programs including State certification of activities 

requiring a Federal license or permit, Environmental Protection Agency administered permit programs, 

State program requirements, procedures for decision making, criteria and standards for the National 

Pollutant Discharge Elimination System, toxic pollutant effluent standards, water quality planning and 

management, water quality standards, water quality guidance for the Great Lakes System, secondary 

treatment regulation, and, prior notice of citizen suits. See Title 40 (Protection of Environment), Chapter 1 

(Environmental Protection Agency), subchapter D (Water Programs).

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.

State Regulations

• New Mexico Administrative Code, Title 20, Chapter 2, Part 3. Ambient Air Quality Standards
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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• New Mexico Administrative Code, Title 20, Chapter 2, Part 65. Smoke Management

• New Mexico Administrative Code, Title 20, Chapter 6, Part 2. Ground and Surface Water 

Protection

• New Mexico Administrative Code, Title 20, Chapter 6, Part 4. Standards for Interstate and 

Intrastate Surface Waters

Programmatic Agreements

• Memorandum of Understanding between the Jicarilla Apache Tribe and the USDA Forest Service, 

Carson National Forest (anticipated during the life of the plan). 

• Memorandum of Understanding between the Ohkay Owingeh Pueblo and the USDA Forest 

Service, Carson National Forest (2017). 

• Memorandum of Understanding between the Picuris Pueblo and the USDA Forest Service, Carson 

National Forest (2017). 

• Memorandum of Understanding between the Southern Ute Tribe and the USDA Forest Service, 

Carson National Forest (coming soon). 

• Memorandum of Understanding between the Taos Pueblo and the USDA Forest Service, Carson 

National Forest (2017). 

• Memorandum of Understanding between the National Speleological Society and the USDA Forest 

Service (2011). 

• Memorandum of Understanding among the U.S. Department of Agriculture, U.S. Department of 

Commerce, U.S. Department of Defense, U.S. Department of Energy, Environmental Protection 

Agency, The Council on Environmental Quality, The Federal Energy Regulatory Commission, The 

Advisory Council on Historic Preservation, and U.S. Department of the Interior, regarding 

cooperation in Federal agency review of electric transmission facilities on Federal land.

• Memorandum of Understanding between the State of New Mexico Environment Department and 

the U.S. Forest Service Southwestern Region (2012).

• 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.

• Memorandum of Understanding between the Forest Service and the Fish and Wildlife Service to 

Promote the Conservation of Migratory Birds.

• Memorandum of Understanding between Animal and Plant Health Inspection Service – Wildlife 

Services and the Forest Service National Forest System (concerning wildlife damage management 

on National Forest System lands).

• Memorandum of Understanding among the Arizona Game and Fish Department, New Mexico 

Department of Game and Fish, Animal and Plant Health Inspection Service Wildlife Services, 

Forest Service, Fish and Wildlife Service, White Mountain Apache Tribe, and various counties in 

Arizona and New Mexico for the conservation, management, and wild persistence of the Mexican 

wolf in its recovery area.
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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Other Sources of Information

Cultural Resources

• Forest Service, Southwestern Region, Cultural Affiliations: Prehistoric Cultural Affiliations of 

Southwestern Indian Tribes 

• National Register Bulletin 38, Guidelines for Evaluating and Documenting Traditional Cultural 

Properties 

• Secretary of Interior National Register Bulletins 

• Secretary of Interior Guidelines for Rehabilitation of Historic Buildings 

• Archeology and Historic Preservation: Secretary of the Interior Standards and Guidelines, as 

amended and annotated 

• Advisory Council on Historic Preservation, Consultation with Indian Tribes in the Section 106 

Review Process: A Handbook 

• Advisory Council on Historic Preservation, Guidance of Coordinating the National Environmental

Policy Act and Section 106

• Region 3 Policy on Providing Forest Products to Federally-Recognized Tribes for Traditional and 

Cultural Purposes (in development) 

• USC Title 25 Indians, Chapter 32 – A Cultural and Heritage Cooperation Authority, (Section: 3051-

3057) 

• 36 CFR § 261 Prohibitions in Areas Designated by Order; Closure of National Forest System Lands 

to Protect Privacy of Tribal Activities 

• National Register Bulletin 38, Guidelines for Evaluating and Documenting Traditional Cultural 

Properties 

• U.S. Department of Agriculture, Departmental Regulation Number 1350-002: Tribal Consultation, 

Coordination, and Collaboration 

• U.S. Department of Agriculture, Report to the Secretary of Agriculture: USDA Policy and 

Procedures Review and Recommendations Indian Sacred Sites 

• Memorandum of Understanding Regarding Interagency Coordination for Protection of Indian 

Sacred Sites 

• Memorandum of Understanding Among the U.S. Department of Defense, U.S. Department of the 

Interior, U.S. Department of Agriculture, U.S. Department of Energy, and the Advisory Council on 

Historic Preservation Regarding Interagency Coordination and Collaboration for the Protection of 

Indian Sacred Sites

• U.S. Department of Agriculture, American Indians and Alaska Native: A Guide to USDA Programs 

• Advisory Council on Historic Preservation, Consultation with Indian Tribes in the Section 106 

Review Process: A Handbook 

Eligible and Suitable Wild and Scenic Rivers

• FSH 1909.12 Land Management Planning Handbook, Chapter 80 – Wild and Scenic River 

Evaluation (Section: Interim Management of Eligible or Suitable Rivers) 
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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• IWSRCC (Interagency Wild and Scenic Rivers Coordinating Council), An Introduction to Wild and 

Scenic Rivers (Technical Report) www.rivers.gov/documents/wsr-primer.pdf

• IWSRCC (Interagency Wild and Scenic Rivers Coordinating Council), A Compendium of 

Questions & Answers Relating to Wild & Scenic Rivers (Technical Report)

Energy Corridors

• Record of Decision: USDA Forest Service Designation of Section 368 Energy Corridors on 

National Forest System Land in 10 Western States, January 14, 2009: Appendix A: Forest Service

Land Use Plan Amendments

Lands

• Taos County Comprehensive Plan

• Rio Arriba County Comprehensive Plan

• Colfax County Comprehensive Plan

Minerals and Geology

• Memorandum of Understanding between the National Speleological Society and the Forest Service 

Cave and Karst Management 

• 36 CFR § 228, Subpart A – Locatable Minerals 

• 36 CFR Part 290 Cave Resources Management

Mining and Minerals

• 36 CFR § 228, Subpart A – Locatable Minerals 

National Scenic, Historic, and Recreation Trails

• USDI, Old Spanish National Historic Trail, Final Comprehensive Administrative Strategy

• 1985 Continental Divide National Scenic Trail Comprehensive Plan 

Nonnative Invasive Species

• Forest Service Southwestern Region Guidance for Invasive Species Management

• Forest Service, Guide to Noxious Weed Prevention Practices

• Forest Service, Operational Guidelines for Aquatic Invasive Species Prevention and Equipment 

Cleaning

• Preventing Spread of Aquatic Invasive Organisms Common to the Southwestern Region Technical 

Guidelines for Fire Operations, Interagency Guidance Rev. August 2009

Rangelands and Livestock Grazing

• Interagency Ecological Site Descriptions: Handbook for Rangelands (January 2013)

• Forest Service, Southwestern Region, Rangeland Analysis and Management Training Guide (2013)

• Bureau of Land Management, Measuring and Monitoring Plant Populations (Technical Reference 

1730-1, 1998)

• Interagency Ecological Site Descriptions: Handbook for Rangelands (January 2013) 
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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• FSH 2209.13 Grazing Permit Administration Handbook, Southwestern Region Supplement

Recreation

• Forest Service, Outdoor Recreation Accessibility Guidelines (FSORAG) (Section: Technical 

Provisions). 

• Forest Service, Trails Accessibility Guidelines (FSTAG) (Section: Technical Provisions)

• Forest Service, Connecting People with America’s Great Outdoors: A Framework for Sustainable 

Recreation (2010)

Riparian Areas

• Bureau of Land Management, Riparian area management: A user guide to assessing proper 

functioning condition and the supporting science for lotic areas. Tech. Ref. 1737-15

• Bureau of Land Management, Riparian area management: A user guide to assessing proper 

functioning condition and the supporting science for lentic areas. Tech. Ref. 1737-16

• Forest Service, Technical Guide to Managing Groundwater Resources Part 2 (Section: Overview of 

National Groundwater Policy) (FS-881)

• Forest Service, National Best Management Practices for Water Quality Management on National 

Forest System Lands, Volume 1 (FS-990a)

• Forest Service, Groundwater-Dependent Ecosystems: Level II Inventory Field Guide (General 

Technical Report WO-86b)

Scenery

• Forest Service, Landscape Aesthetics: A Handbook for Scenery Management (Agriculture 

Handbook 701) 

Soil Resources

• FSM 2550 Soil Management, Southwestern Region Supplement, Soil Management 

• USDA Forest Service, (2013). Technical Guidance for Soil Quality Monitoring in the Southwestern 

Region, (Letter dated January 16, 2013)

• Forest Service, National Best Management Practices for Water Quality Management on National 

Forest System Lands, Volume 1 (FS-990a)

Vegetation

• Interagency Ecological Site Descriptions: Handbook for Rangelands (January 2013)

Watersheds and Water

• Forest Service, National Best Management Practices for Water Quality Management on National 

Forest System Lands, Volume 1 (FS-990a) 

• Forest Service, Watershed Condition Framework: A Framework for Assessing and Tracking 

Changes to Watershed Conditions (FS-977)

• Forest Service, Watershed Condition Classification and Technical Guide (FS-978)

• New Mexico Administrative Code, Title 20 – Environmental Protection, Chapter 6 (Water Quality)
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

Draft Land Management Plan for the Carson National Forest

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• Memorandum of Understanding between Forest Service Southwestern Region and the State of New 

Mexico Environment Department

• Forest Service, Technical Guide to Managing Groundwater Resources Part 2 (Section: Overview of 

National Groundwater Policy) (FS-881)

• Forest Service, Groundwater-Dependent Ecosystems: Level II Inventory Field Guide (General 

Technical Report WO-86b)

Wildland Fire Management

• Forest Service, Southwestern Region, Minimum Impact Suppression Tactics

• Interagency Prescribed Fire Planning and Implementation Procedures Guide (Section: Prescribed 

Fire Planning Process)

• Interagency Standards for Fire and Aviation Operations (Red Book), Forest Service Wildland Fire 

and Aviation Program Organization and Responsibilities

• Interagency Standards for Fire and Aviation Operations (Red Book), Forest Service Wildland Fire 

and Aviation Program Organization and Responsibilities (Section: Fuels Management)

• Interagency Guidance for Implementation of Federal Wildland Fire Management Policy (February 

13, 2009)

• Annual Interagency Guidance for Preventing Spread of Aquatic Invasive Organisms Common to 

the Southwestern Region (Section: Technical Guidelines for Fire Operations) 

• National Wildfire Coordinating Group Memorandum Number 024-2010, Terminology Updates 

Resulting from Release of the Guidance for Implementation of Federal Wildland Fire Management 

Policy (2009)

• Preventing Spread of Aquatic Invasive Organisms Common to the Southwestern Region Technical 

Guidelines for Fire Operations, Interagency Guidance Rev. August 2009

• Forest Service, Carson National Forest Fire Management Plan

• Cimarron Watershed Alliance Community Wildfire Protection Plan (2008)Colfax County 

Community Wildfire Protection Plan (2008)

• Enchanted Circle Regional Fire Protection Association Community Wildfire Protection Plan (2006)

• Mora County Community Wildfire Protection Plan (2005)

• Rio Arriba County Community Wildfire Protection Plan (2008)

• Taos County Community Wildfire Protection Plan (2009)

• Taos Pines Association Community Wildfire Protection Plan (2006)

• Taos Pueblo Community Wildfire Protection Plan (2009)

• Upper Rio Chama Community Wildfire Protection Plan (2008)

• Village of Questa Community Wildfire Protection Plan (2008)

Wilderness

• Forest Service, Southwestern Region, Minimum Impact Suppression Tactics 

• Forest Service, Minimum Requirements Decision Guide http://www.wilderness.net/MRA 
Appendix C. Relevant Laws, Forest Service Regulations, Polices, Directives, and Other Sources of Information

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• Wilderness.net toolboxes http://wilderness.net/index.cfm?fuse=toolboxes 

• Forest Service, Keeping it Wild: An Interagency Strategy to Monitor Trends in Wilderness 

Character Across the National Wilderness Preservation System (RMRS-GTR-212)

Wildlife, Fish, and Plants

• Federal Register legal notices for 50 CFR § 217 Endangered Species Act listings, proposed listings, 

designated critical habitat, proposed critical habitat, five-year reviews, and other species or habitat 

status changes

• Species recovery plans

• Protection of Bald and Golden Eagles-Definition of “Disturb” (Federal Register, Volume 72, 

Number 107, June 5, 2007); Authorizations Under the Bald and Golden Eagle Protection Act for 

Take of Eagles (Federal Register, Volume 73, Number 98, May 20, 2008); and Forest Service 

Southwestern Region direction regarding Permitting Regulations for Take of Eagles (November 18, 

2009)

• National and State bald eagle management guidelines (recommendations for avoiding disturbance, 

activity specific guidelines, and additional recommendations) 

• Forest Service, Management Recommendations for the Northern Goshawk in the Southwestern 

United States (General Technical Report RM-217)

• Terrestrial species current biological opinions

• Conservation assessments/strategies and agreements with the Fish and Wildlife Service and other 

agencies

• Forest Service and the Western Hummingbird Monitoring Network, Western Hummingbird 

Partnership Action Plan (Section V: Conservation Actions)

• Western Association of Fish and Wildlife Agencies, Wild Sheep Working Group, Recommendations 

for Domestic Sheep and Goat Management in Wild Sheep Habitat (Management 

Recommendations)

• Rio Grande Cutthroat Trout Wildfire Risk Assessment

• Conservation Agreement for Rio Grande Cutthroat Trout in the States of Colorado and New Mexico
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Appendix D. Other Supporting Plan 

Documentation

• Carson National Forest Assessment Report

• Ecological Response Unit Document

• Region 3 Climate Change Guidance

• Species of Conservation Concern Report

• Terrestrial Ecosystem Unit Inventory (on file at the Carson National Forest Supervisor’s 

Office)

• Timber Suitability and Calculation of Harvest Levels (EIS Appendix)

• Wild and Scenic River Report

• Wilderness Recommendation Inventory and Evaluation Report