REPORT TO CONGRESS 

FOR 

FISCAL YEAR 2007 
Valles Caldera Trust 

P.O. Box 359 

18161 State Highway 4 

Jemez Springs, NM 87025 

Phone: 505-661-3333 

Fax: 505-829-4614 

www.vallescaldera.gov 
Table of Contents 

page

Table of Contents.................................................................................................................. i 

Executive Summary .............................................................................................................. ii 

Distribution List .................................................................................................................... iv 

Introduction ......................................................................................................................... 1 

Trust Operations and Accomplishments ................................................................................. 1 

Administrative Operations ................................................................................................. 1 

Financial Management ...................................................................................................... 2 

Public Outreach and Education .......................................................................................... 5 

Benefits To Local Communities .......................................................................................... 6 

Preserve Operations and Accomplishments ............................................................................ 6 

Infrastructure ................................................................................................................... 6 

Resource Management ..................................................................................................... 9 

Public Programs ............................................................................................................. 11 

Inventory, Monitoring and Research Programs ................................................................. 14 

Natural and Cultural Resources........................................................................................ 16 

Trust Goals for FY 2008 ...................................................................................................... 18 

Develop Strategic Business Plan ...................................................................................... 18 

Complete Financial Audit ................................................................................................. 18 

Complete Forage Management Environmental Assessment................................................ 19 

Finalize Programmatic Agreement.................................................................................... 19 

Begin Long-term Planning for Public Access and Use ........................................................ 19 

Develop Procurement Policy ............................................................................................ 20 

Implement New Recreation Programs .............................................................................. 20 

 i 
Executive Summary 

The Valles Caldera Preservation Act of 2000 (Public Law 106-248) authorized the acquisition of 

the Baca Ranch in the Jemez Mountains of New Mexico. The Act designated the acquired lands 

as the Valles Caldera National Preserve (the Preserve) and created the Valles Caldera Trust (the 

Trust), a wholly owned government corporation, to manage the 88,900-acre tract. 

In 2007, Trust staff comprised nine full-time permanent positions, down from 10 full-time 

positions in 2006 and 15 full-time positions in 2005. In January, the terms of three of the nine 

members of the Board of Trustees expired; three new members were announced in May 2007. 

The Trust received $3.5 million in appropriations in fiscal year 2007 (FY 2007) and spent about 

$3.4 million. The Trust collected $750,000 in revenues; 73% came from recreation programs. 

The Preserve hosted 12,405 visitors in FY 2007. Revenues were up 10% and visitation was up 

25% from FY 2006. 

In the past two years, the Trust hosted 43 groups and over 1,200 people in educational 

activities on the Preserve. About 40% were students from local schools, colleges and 

universities. The Trust has also benefited local communities by hiring local residents and 

buying goods and services locally. 

The Trust completed an assessment of 18 structures on the Preserve, 10 of which are historic 

or contribute to the historic character of the ranch. The Trust did not receive federal highways 

money in 2007, but completed upgrading the VC02 road in the History Grove. Upgrade of the 

main entrance to the Preserve began in summer 2007 and most of the work was completed 

before winter. The project will be completed in 2008. 

As a result of many years of aggressive fire suppression and intensive logging, Preserve forests 

need extensive treatment to reduce fire hazards and restore them to more natural conditions. 

The Trust thinned 90 acres of forest in 2007. The slash was masticated and left on site as part 

of a research project to examine the effects of mastication and to determine whether this 

procedure should be used in future forest management operations. 

Range conditions on the Preserve are good; plant cover exceeds 98% in the valles. The Trust’s 

2007 grazing program was awarded through a competitive process. Over 500 yearlings were 

brought onto the Preserve, although there was adequate capacity for additional animals due to 

good winter and spring precipitation. The Trust received $5,800 in grazing fees. For the first 

time since federal acquisition, the Trust made a profit from livestock grazing. 

The Trust held four public meetings in July and August 2007 to gather information from the 

public about access and use of the Preserve for recreation, education and other personal and 

cultural activities. People said they valued the vastness, solitude, quiet and beauty, and made 

suggestions on activities they want the Trust to offer; 120 people attended the meetings. 

The Trust offered elk hunts and, for the first time, wild turkey hunts in 2007. The elk hunts had 

268 participants and the turkey hunts 16. Elk hunts generated about $330,000 and turkey 

hunts about $20,000. Volunteers donated over 1,000 to help the Trust manage the hunts. 

The Trust obtains data about Preserve resources through inventory, monitoring and research 

programs. Inventories included surveys for economically important insects and forest stand 

exams. The trust continued to monitor the condition of forage and watersheds. Research 

continues on hydrology, climate change and carbon cycles. In 2007, the Trust expended about 

$500,000 in appropriated funds on the inventory, monitoring and research program and 

 ii 
received the equivalent of about $1.8 million in extramurally funded inventory, monitoring and 

research projects. 

Range conditions on the Preserve are good; plant cover exceeds 98% in the valles. Range 

conditions improved dramatically in 2007 with record precipitation. Snow in winter 2006-2007 

provided extensive moisture. Rainfall in May and June transitioned directly into the summer 

monsoons, resulting in a new record precipitation for the year and record forage production. 

In 2007, the Trust surveyed 1,200 acres for cultural resources and found 67 new sites. The 

area surveyed since federal acquisition is now 7.5%; just over 430 historic and prehistoric sites 

have been documented. The inventory revealed a diversity of prehistoric site types that were 

unknown or poorly known, including pottery types from the prehistoric-historic interface. 

The Trust goals for FY 2008 are: 1) complete a business plan, 2) complete an independent 

financial audit for fiscal years 2004 through 2007, 3) complete an environmental assessment for 

forage management, 4) finalize the programmatic agreement between the Trust and the New 

Mexico State Historic Preservation Office, 5) begin long-term planning for public access and use, 

6) develop a procurement policy and 7) implement several new recreation programs. 

 iii 
 iv 

Distribution List 

The Honorable Mike Johanns The Honorable Robert C. Byrd 

Secretary of Agriculture Chairman 

1400 Independence Avenue, S.W. Committee on Appropriations 

Washington, D.C. 20250 US Senate 

The Capitol, S-131 

The Honorable Jeff Bingaman Washington, D.C. 20510 

Chairman 

Committee on Energy and Natural Resources The Honorable Thad Cochran 

US Senate Ranking Member 

304 Dirksen Senate Building US Senate 

Washington, D.C. 20510 Committee on Appropriations 

The Capitol, 113 Dirksen Office Bldg. 

The Honorable Pete V. Domenici Washington, D.C. 20510 

Ranking Member 

Committee on Energy and Natural Resources The Honorable David R. Obey 

US Senate Chairman 

304 Dirksen Senate Building Committee on Appropriations 

Washington, D.C. 20510 US House of Representatives 

H-218 US Capitol 

The Honorable Nick J. Rahall, II Washington, D.C. 20515 

Chairman 

Committee on Natural Resources The Honorable Jerry Lewis 

US House of Representatives Ranking Member 

1324 Longworth House Office Building Committee on Appropriations 

Washington, D.C. 20515 US House of Representatives 

H-218 US Capitol 

The Honorable Don Young Washington, D.C. 20515 

Ranking Member 

Committee on Natural Resources The Honorable Steve Pearce 

US House of Representatives US House of Representatives 

1329 Longworth House Office Building 1607 Longworth House Office Building 

Washington, D.C. 20515 Washington, D.C. 20515 

 

The Honorable Tom Udall The Honorable Heather Wilson 

US House of Representatives US House of Representatives 

1410 Longworth House Office Building 442 Cannon House Office Building 

Washington, D.C. 20515 Washington, D.C. 20515 
Introduction 

The Valles Caldera Preservation Act of 2000 (Public Law 106-248) authorized the acquisition of 

the Baca Ranch in the Jemez Mountains of New Mexico. The Act designated the acquired lands 

as the Valles Caldera National Preserve (the Preserve) and created the Valles Caldera Trust (the 

Trust), a wholly owned government corporation, to manage the 88,900-acre tract. 

During 2007, the Trust worked diligently to meet the following legislative mandates: 

• Manage the Preserve as a working ranch; 

• Protect and preserve for future generations the scientific, scenic, historic and natural 

values of the Baca ranch, including rivers and ecosystems and archaeological, geological 

and cultural resources; 

• Provide opportunities for public recreation; 

• Continue to make progress to become financially self-sustaining by 20151

; and 

• Provide for sustained yield management of Baca ranch for domestic livestock grazing and 

timber production insofar as is consistent with the other stated purposes. 

Trust Operations and Accomplishments 

Administrative Operations

The administration of the Trust is a key component to creating a successful land management 

model. The Trust is focused on the following goals: 

• Maintaining a small and competent staff; 

• Integrating management and resource planning; 

• Developing a financial model that supports management and planning; and 

• Fostering a culture that balances public land management, recreation, science, resource 

utilization and resource protection with the goal of financial self-sufficiency. 

Staffing 

In 2007, Trust staff comprised nine full-time permanent positions, down from 10 full-time 

positions in 2006 and 15 full-time positions in 2005. To control costs, the Trust employs five 

term employees and approximately 15 seasonal hires when the Preserve is open to the public 

and uses contractors to augment operations and implement short-term management decisions. 

Significant personnel changes in 2007 included filling the vacant accountant position with a 

procurement officer as part of the transition of budget and finance operations from the National 

Business Center to the Albuquerque Service Center of the U.S. Forest Service (USFS). 

Board of Trustees 

There was significant turnover among the Board of Trustees in 2007. In January, the terms of 

three of the nine board members expired. New board members were announced in May 2007; 

they are Edward Tinsley, Stephen Henry and James Range. The six month lag between 

trustees rotating off the Board and the appointment of new members affects the potential to 

 

1

 From Public Law 106-248 § 103(4): “The term ‘‘financially self-sustaining’’ means management and 

operating expenditures equal to or less than proceeds derived from fees and other receipts for resource 

use and development and interest on invested funds...” 

1 
have a quorum to take management actions at public meetings.2

 During 2007, Daniel Jiron 

was appointed Santa Fe National Forest Supervisor and Vito Spinale was named as the Act

Superintendent at Bandelier National Monument. 

ing 

In September 2007, the Board elected the following officers: William B. Keleher, Chairman; 

Edward Tinsley, Vice-Chairman; and Stephen Henry, Secretary. In 2007, the Board comprised: 

James Gosz

Board Position: Forest Management 

Term Expires: January 2009 

Stephen Henry

Board Position: Secretary, Wildlife and Fish Management 

Term Expires: January 2011 

Tracy Hephner

Board Position: Livestock Management 

Term Expires: January 2009 

Daniel Jiron

Board Position: Forest Supervisor, Santa Fe National Forest 

Term Expires: ex officio

William B. Keleher

Board Position: Chairman, Cultural and Natural History 

Term Expires: January 2009 

Raymond Loretto

Board Position: State and Local Government 

Term Expires: January 2009 

James Range

Board Position: Nonprofit Conservation Organization 

Term Expires: January 2011 

Vito Spinale

Board Position: Acting Superintendent, Bandelier National Monument 

Term Expires: ex officio

Edward Tinsley

Board Position: Vice-Chairman, Financial Management 

Term Expires: January 2011 

The Trustees participated in nine working meetings and four public meetings. Members 

volunteer a significant amount of their time to serve on the Board. Except for the chairman, no 

Board member is compensated. 

Financial Management

The finances of the Trust comprise federal appropriations, fees from recreational and resource 

use and private donations. From the time of federal acquisition until August 2002, the Preserve 

was managed by the U.S. Forest Service. Management control was transferred to the Board of 

Trustees on August 2, 2002. The USFS continued to administer Trust finances through fiscal 

 

2

 “A majority of trustees shall constitute a quorum of the Board for the conduct of business” [Valles 

Caldera Preservation Act 2000, § 107(d)] 

2 
year 2003 (FY 2003). The Trust assumed financial control at the beginning of FY 2004 and 

moved its accounts from the USFS to the National Business Center (NBC) in the Department of 

Interior.

The Trust receives appropriations through USFS Treasury symbols and therefore must reconcile 

account balances with the Forest Service. During FY 2007, the Trust spent several months 

preparing for and executing a conversion of accounting operations from NBC to the National 

Finance Center (NFC) of USFS. The Trust entered into an agreement with the Forest Service to 

receive accounting services through the Albuquerque Service Center (ASC). The ASC provides 

management reports to the Trust, but the Trust is responsible for preparing its own financial 

statements. The conversion from NBC to NFC resulted in a reduction of administrative costs of 

approximately $225,000 per year and significantly increased administrative efficiencies (the 

Trust will reconcile its accounts in one system instead of two). 

Status of Trust Financial Resources 

The majority of Trust funds in 2007 were Congressional appropriations; additional funds were 

collected from public recreation programs. The following table presents the financial position of 

the Trust for FY 2007. 

FY 2006 

Carryover 

FY 2007 

Appropriations 

FY 2007 

Expenditures 

FY 2007 

Ending Balance 

$148,152 $3,500,000 $3,378,865 $269,287 

 The following table presents the recent history of congressional appropriations to the Trust. 

FY 2004 FY 2005 FY 2006 FY 2007 

President's Budget Request 

(submitted by the USFS) $984,000 $992,000 $992,000 $990,000

Appropriations (National Forest 

System) 3,150,000 3,650,000 3,650,000 3,500,000

Special Appropriations 1,500,000 

Rescissions 38,814 50,708 75,769 0

Total Appropriated Funds $3,111,186 $3,599,292 $5,074,231 $3,500,000

Revenues collected by the Trust have increased in each of the past three years as shown in the 

following table presents the recent history of revenues collected by the Trust. 

FY 2004 FY 2005 FY 2006 FY 2007 

Elk Hunting $210,850 $285,625 $317,365 $330,276

Fishing 62,793 71,645 60,415 67,392

All Other Events 129,562 109,449 76,656 114,108

Concession Sales 13,256 9,558 48,496 42,513

Subtotal for Public Programs $416,461 $476,277 $502,932 $554,289

Commercial Rental 8,000 5,000 45,095 6,810

Grazing Revenues* 42,110 39,654 0 5,800

Miscellaneous Receipts‡ 50,890 131,288 246,817 183,058

Total Revenues Collected $517,461 $652,219 $794,844 $749,957

*The Trust did not have commercial grazing program in 2006 because of the drought. 

‡Miscellaneous revenues include donations, sales of livestock and grants received by the Trust for 

inventory, monitoring, research and restoration projects. 

3 
The public can make reservations for activities, enter lotteries for hunting and fishing, and book 

events through a Web site maintained by the Trust (www.vallescaldera.gov). Access fees 

consist of a base fee of $10.00 that is adjusted for added value (e.g., guided interpretive hikes) 

and age (i.e., reduced for children and seniors). Of the total revenues collected for public 

programs, 84% came through the Web site in 2005, 88% in 2006 and 81% in 2007. 

Public visitation to Valles Caldera National Preserve increased in each of the past three years. 

The number of visitors participating in Preserve programs increased steadily between 2003 and 

2007. The following table presents the recent history of visitor participation in Trust programs. 

FY 2003* FY 2004 FY 2005 FY 2006 FY 2007 

Special Events 351 1,674 3,401 5,196 3,984

Fishing 1,735 2,010 1,919 1,585 1,814

Hunting‡ 840 497 1,162 1,332 1,798

Sleigh/Wagon Rides 598 1,520 891 702 516

Hiking† 1,276 1,620 565 446 1,020

Skiing/Snowshoeing° 64 142 705 0 1,393

Tours 353 502 379 573 1,607

Equestrian NA 213 198 104 273

Total Visitors 5,217 8,178 9,220 9,938 12,405

*Data for all programs except elk hunting are for fiscal years (Oct. 1 through Sept. 30); 

data for elk hunting are calendar years because elk hunt access permits are sold in one 

fiscal year and the hunting occurs in the next fiscal year. 

‡Data for 2004 through 2006 are for elk hunting; data for 2007 are for elk and turkey 

hunting combined. 

†Includes estimates of hikers on free trails accessible from NM Highway 4 in 2003 (378) 

and 2004 (600); not included in subsequent years. 

°There were no winter recreation programs in 2006 because of the lack of snow. 

In 2007, recreation programs brought in 12,405 visitors and generated $554,289 in revenues. 

Visitation in 2007 was up 25% compared to 2006 and revenues were up 10%. The increase in 

visitation in 2007 was due largely to 1) an increase in winter visitors, 2) the addition of new, 

low cost programs for the casual visitor (no reservations required) and 3) efforts by the Trust to 

entice the driving public on NM Highway 4 to enter the Preserve and participate in the 

spontaneous activities where they would learn about other programs. 

Recreation revenue per visitor ($45) was down 12% in 2007 compared to 2006 ($51), largely 

due to the Trust’s efforts to attract casual visitors to participate in low cost activities. In the 

past four years, recreation revenue per visitor ranged from $45 in 2007 to $52 in 2005. 

Liability Insurance 

The Trust is does not have access to the permanent judgment appropriation provided under 

section 1304 of title 31, U.S.C. (The Judgment Fund), for a claim, judgment or settlement. As a 

result, the Trust must carry liability insurance. In FY 2007, the Trust purchased insurance to 

cover liability ($25,296), vehicles ($14,582) and volunteers ($1,000) for a total cost of $40,878. 

As the number of visitors and public programs increase, the cost of insurance will consume a 

larger part of the Trust’s budget. Until the Trust becomes financially self-sufficient, judgments 

against the Trust will be paid to some extent out of appropriated funds. To date, there have 

been no financial claims filed against the Trust. 

4 
Contracts 

To control administrative costs, the Trust uses contractors to provide services that support 

operations. In FY 2007, the Trust awarded $344,000 in contracts through a competitive bid 

process; 98% of the dollar value of the contracts went to contractors located in New Mexico. 

Public Outreach and Education

In 2006 and 2007, 43 groups and 1,226 people participated in educational activities on the 

Preserve. Six groups and 281 K-12 students and teachers participated. Sixteen groups and 198 

university students and teachers participated. Seven community groups and 235 people and 

three non-governmental organizations and 41 people participated. Agencies, museums, 

universities, non-government organizations and private sector groups increasingly use the 

Preserve for workshops and seminars. Five agencies and 137 people and six professional 

societies and 334 people participated in workshops and seminars. 

• The Parajito Environmental Education Center (PEEC) brought public school students on 

field trips to the Preserve to learn about the environment in collaboration with the Trust 

and Los Alamos National Laboratory (LANL). A summer field camp entitled “Nature 

Odyssey” operated by PEEC provided environmental education to public school students, 

teaching them about plants, invertebrates, wildlife, riparian environments and water 

quality. Two LANL science camps provided instruction to students from the Pueblos of 

Jemez, Santa Clara, San Ildefonso and Cochiti. 

• Trust archaeologists hosted school trips from Santa Fe Indian School (120 students) and 

an Albuquerque grade school (20 students) that came to learn about cultural resources 

on the Preserve. 

• GIS students from Central New Mexico Community College volunteered to relocate 52 

archaeological sites. Locations throughout the Preserve were remapped using GPS and 

site markers were replaced to diminish hazards for horses on the Preserve. 

• Trust staff presented invited lectures and field trips on the cultural resources of the 

Preserve for the School of Advanced Research, Crow Canyon Cultural Explorations, 

UNM-Los Alamos, Santa Fe National Forest Site Stewards, University of New Mexico and 

University of California-Berkeley archaeology field schools and San Juan Basin 

Archaeological Society. 

• Trust staff in collaboration with the University of New Mexico initiated the “Jemez 

Mountains Obsidian Database project” to compile all known occurrences of obsidian 

artifacts found in archaeological assemblages across North America that have been 

proven through geochemical analyses to be made of obsidian collected in and around 

the caldera. Results were presented in a symposium at the Society for American 

Archaeology. When completed, the database will be available to professional 

archaeologists as a spatially enabled, Web-based user interface to enhance national 

obsidian sourcing and trade research. 

• The Preserve hosted 185 geologists during the New Mexico Geological Society 58th

Annual Field Conference. Trust staff co-authored an overview article of Preserve natural 

and cultural history for the resulting edited volume. 

• The Trust provided a free flintknapping event in the Valle Grande as part of NM Heritage 

Preservation Month. Several local knappers demonstrated obsidian tool making and 

participated with public attendees in throwing of spears using atlatls.

5 
Benefits To Local Communities

• Trust employs 12-15 local residents, including members of local pueblos, on a seasonal 

basis in public recreation programs and maintenance programs for the working ranch. 

• The Trust collaborated with 28 local and regional groups on scientific studies. 

Extramural funding totaled about $1.8 million in scientific projects. Since the Trust was 

formed, outside grants and scientific activities have contributed millions of dollars to the 

economy of New Mexico. 

• Jack Hagelstein of Dexter, New Mexico was awarded a contract to manage a livestock 

program on the Preserve during summer 2007. The Quivira Coalition was a partner in 

the contract contributing their expertise in ecology, monitoring and the application of 

planned grazing to achieve ecological benefits. About 530 head of cattle were grazed 

during the 4-month season. 

• The Trust is working with Jemez Pueblo on forest thinning projects and with Santa Clara 

Pueblo on watershed restoration and reintroduction of beavers. Jemez Pueblo manages 

a wood yard and sawmill called the Walatowa Woodlands Initiative (WWI), which has 

implemented small thinning projects on the Preserve. Recently, they partnered with a 

small wood product industry to expand their market and product line. This growth could 

lead to more opportunities for the Trust to remove and use small wood products. 

• The Trust granted free access to the Preserve to members of the Pueblo of Jemez for 

cultural practices, including a traditional run from Jemez Pueblo to Redondo Peak. 

• In May, 142 students, teachers and chaperones from the Santa Fe Indian School 

participated in teaching activities related to cultural resources, geology, wildlife, history 

of the Preserve and navigation using GPS on the Preserve. 

• The Trust and Los Alamos National Laboratory hosted middle and high school students 

from Santa Clara and San Ildefonso pueblos for a 2007 Accord Pueblo Summer 

Environmental Science Workshop on the Preserve. The students participated in 

activities focusing on riparian habitats, insects, coyote telemetry and the water cycle. 

This is the fourth year for this collaborative science camp. 

• The Trust worked cooperatively with the National Park Service and the U.S. Forest 

Service on monitoring rangelands to determine forage use. The program on the 

Preserve was expanded to Bandelier National Monument and the Santa Fe National 

Forest. As a result, compatible forage use data is being collected throughout the Jemez 

Mountains incorporating the winter elk range and winter livestock grazing allotments. 

Preserve Operations and Accomplishments 

Infrastructure

The condition of infrastructure (roads, trails, facilities and structures) varies across the 

Preserve. Repair, maintenance, construction or reconstruction of infrastructure requires 

considerable investment to bring it up to current standards and make it useable for staff and 

the public. Investment in infrastructure will probably be the greatest expenditure by the Trust 

over the next decade. 

Facilities 

Documentation of the historic structures in the Ranch Headquarters and throughout the 

Preserve is complete. A team of historical architects, historians and architectural preservation 

specialists from SWCA, Inc. evaluated 18 structures on the Preserve. The four-volume study 

6 
includes an assessment of the historical significance of individual structures and provides 

detailed recommendations and specifications to insure that necessary repairs can occur while 

maintaining the historic character of the early 20th century cabins and allowing greater use of 

the structures for administrative, ranching and public functions. 

The deferred maintenance on the 18 structures was estimated at over $830,000 in FY 2006 

(Valles Caldera Trust, Report to Congress for FY 2006). Ten of these structures are considered 

historic,3

 or contribute to the historic character of the Ranch Headquarters,4 and their deferred 

maintenance is estimated at $630,000 (based on FY 2006 estimates). Of the 10 structures, the 

Casa de Baca Lodge is the only structure that the Trust regularly uses for overnight public 

activities. The Trust has limited ability to generate additional income from these facilities until 

the capital investment is made to address deferred maintenance problems. 

Public Roads 

The condition and location of roads and trails on the Preserve contributes to the experience of 

visitor activities and affects the cost and efficiency of all management activities. The staff has 

inventoried 645 miles of Preserve roads that are classified as passable – 261 miles in 2004, 114 

miles in 2005, 80 miles in 2006 and 190 miles in 2007. About 20-25% of the Preserve remains 

to be inventoried. There are about 12 linear miles of road per square mile of land on the 

Preserve compared to the Forest Service objective of 2.5 linear miles per square mile of land. 

Most of the network of roads on the Preserve was constructed to facilitate logging. Cultural 

resources surveys are now complete for all of the main roads on the Preserve. 

The Trust will use the road inventory to develop a transportation plan that identifies roads that 

will be used for public access and administrative use, sections of roads that are causing 

resource damage (e.g., erosion that contributes sediments to streams), and roads that should 

be obliterated and reclaimed. 

Since 2002, the Trust has used Federal Highway Administration funds to upgrade segments of 

Preserve roads (VC01 and VC02) that are used for public programs. The Trust has upgraded 

14.5 miles of ranch roads from the main entrance at NM Highway 4 to the backcountry of the 

San Antonio Creek to an all-weather road that complies with the Highway Safety Act. Three 

miles of the VC02 road were upgraded in 2006. Less than 0.25 miles of the VC02 road were 

upgraded in 2007 because the Trust did not receive any monies from the Federal Lands 

Highway program. The portion of the VC02 that was upgraded in 2007 was within a well 

known, old growth stand of ponderosa pines referred to as the “History Grove.” 

The VC02 is one of the main roads in the Valles Caldera and it bisects several sensitive riparian 

areas in the History Grove. Before the Trust upgraded the road, the road alignment redirected 

the outflow of an important spring from its natural course approximately 120 meters to a pipe 

crossing the roadbed. Redirection of springs, seeps and creeks along Preserve roads has 

contributed to a major loss of wetlands. Concentrating water flow to a restricted area caused 

not only erosion and sedimentation, but also reduced the natural flow that recharged Preserve 

wetlands. 

The alignment of the VC02 road in the History Grove was redesigned in 2007. The outflow of 

the spring was routed back into its natural course and the landscape was sculpted so that 

surface water from rain and snow melt was directed onto areas adjacent to the road where it 

 

3

Bond Cabin, Cowboy Cabin, Otero Cabin, San Antonio Cabin, Casa de Baca Lodge (Kiva), Commissary, 

Salt Barn and San Antonio Cabin Barn 

4

Office Cabin and Foreman’s Cabin 

7 
could nourish vegetation. Porous fills (“French drain”) and culverts were place in the roadbed 

and the road was raised to the proper elevation for best drainage. The French drain uses rock 

or other permeable fill material sandwiched between layers of geotextile fabric. This design 

promotes dispersed flow of water through the embankment thus maintaining the natural 

condition of downstream wetlands. The Trust has installed several French drains in the process 

of upgrading Preserve roads, but the 2007 project was the largest. Porous fills reestablish low 

velocity, sheet flow of water to broad areas resulting in the restoration of wetland vegetation in 

soils that have slowly become drier. 

The improved roads on the Preserve are engineer-designed, single lane with turnouts. The 

road prism is reconstructed to a minimum 14 foot running surface. The roads are designed for 

the best surface drainage with installation of culverts and the best wetland mitigation by 

constructing permeable fills. This allows springs and seeps to establish historic flow patterns 

and begin the restoration of hundreds of acres of wetland each year. 

Upgrading ranch roads to the present design (i.e., one-lane, all-weather road with turnouts to 

accommodate passenger cars) can cost up to $100,000 per mile. This does not include the cost 

of cultural resources surveys and mitigation measures (some roads pass through archaeological 

sites). The costs to comply with Section 106 of the National Historic Preservation Act range 

from $1,000 to $3,000 per mile for cultural resource surveys for road maintenance to $10,000 

to $20,000 per mile to mitigate adverse effects from road upgrades. 

Main Entrance 

New Mexico Highway 4 bisects the southern part of the Preserve along the tree line on the 

south side of Valle Grande and serves about 1,200 vehicles per day. It is the primary route 

used to access the Preserve. When it was a private ranch, less than 200 vehicles per year used 

the entrance; currently, about 10,000 people visit the Preserve each year. The Preserve has 

designated parking for about 200 vehicles and some events use all those spaces. 

Road conditions at the entrance do not meet Mexico Department of Transportation (NMDOT) 

standards. Using Federal Highways Administration funds, the Trust awarded a $1.26 million 

contract to design and construct a safe and ascetically pleasing entrance to the Preserve. The 

Trust worked with the USFS, New Mexico Department of Transportation and private contractors 

to design the new entrance. The project footprint is just under 12-acres; eight acres are on the 

Preserve and four acres are in the NM Highway 4 easement under the jurisdiction of NMDOT. 

The primary improvements are: 1) widening NM Highway 4 to add turning and bypass lanes, 2) 

earthwork to improve sight distances and increase safety and 3) redesigning and relocating the 

main gate. Construction began in summer 2007 and most of the work was completed before 

winter. The remaining work, which includes asphalt mill and overlay, road striping and 

relocating the main gate, will be completed in 2008. 

Communications System 

The Trust has implementing a new digital communication system on the Preserve that includes 

radio and telephone antennae, receivers, transmitters and two repeaters (one on Cerro Abrigo 

on the Preserve and one on Cerro Pelado on the Santa Fe National Forest south of the 

Preserve). The wireless network provides voice communication via radio and/or cellular 

telephone from most areas thereby increasing the safety of staff and visitors. The new 

equipment complies with federal regulations for digital radios. The network was designed and 

the equipment was purchased in 2006; the equipment was installed in 2007. Funds for the 

project ($220,000) came from the 2006 special appropriation. 

8 
Resource Management

Since assuming management of the Preserve, the Trust has assessed the structure, composition 

and function of the forest and grassland ecosystems to support comprehensive management. 

In the spring of 2005, the Natural Heritage Program of the University of New Mexico completed 

a map that defines the plant associations on the Preserve. This map is used to establish 

“reference conditions” for the Preserve, where the reference condition is defined as “... the 

composition of landscape vegetation and disturbance attributes that, to the best of our 

collective expert knowledge, can sustain current native ecological systems and reduce future 

hazard to native diversity” (U.S. Forest Service Rocky Mountain Research Station 2005). 

Using aerial photography, the vegetation map, and data from nearly 300 field samples, the 

Trust identified forest and grassland polygons that are structurally similar, where a polygon is 

defined as a stand. Each stand is associated with over 30 attributes including species 

composition, tree size, age, structure and density, as well as elevation, aspect and slope. By 

comparing existing condition to the reference condition, the degree of departure can be 

estimated for all forest types on the Preserve. 

Forest Management 

As a result of many years of aggressive fire suppression and intensive logging, Preserve forests 

need extensive treatment to reduce fire hazards and restore them to more natural conditions. 

The southwest corner of the Preserve is a high-risk area for catastrophic canopy fire because of 

the high density of young trees (“dog hair thickets”), the prevailing southwesterly winds and the 

high incidence of human caused fires along NM Highway 4. A forest fire originating in this area 

(either on or off the Preserve) could burn toward the center of the Preserve and destroy much 

of the forests around Redondo Peak. 

The Trust thinned 90 acres of forest in an area of the Preserve at high risk to wildfire and as a 

strategic fire-break in the event of a forest fire originating southwest of the Preserve. The Trust 

received a $66,870 grant for the project; the average cost per acre was $743. The work was 

done in collaboration with the Nature Conservancy and the USFS Rocky Mountain Research 

Station Fire Laboratory. The slash was masticated and left on site. The Fire Laboratory 

established research plots to support a Joint Fire Science Project to investigate forest 

mastication (sampling methods, fire behavior, fuel models and fire effects). 

Managing the large amounts of biomass produced through the reduction of hazardous fuels and 

forest restoration is a dilemma across the West. While use of the material is preferred, removal 

and use is not always practical or even possible. Mastication in place is a low cost, low risk, 

efficient slash treatment method. The Trust participated in this collaborative research effort so 

land managers could use the results to improve the use of this tool where appropriate, and to 

identify, avoid or mitigate adverse effects. 

In 2006, a request for proposals was prepared for fieldwork using Common Stand Exam 

protocols employed by the USFS. The contract was awarded and 110 forest plots were 

sampled; 550 additional plots will be sampled in the spring of 2008. The field data will be 

linked to the stand data in FSVEG, a module of the USFS corporate database Natural Resource 

Inventory System (NRIS). 

Once in NRIS, the field data can be exported into standard natural resource model applications, 

including Forest Vegetation Simulator and Fire and Fuels Extension, which models forest 

dynamics through time under a variety of treatment options, including timber growth and yield 

and fire behavior. Other applications include FARSITE Fire Growth Simulator, which predicts 

the spread and intensity of wildland fire over heterogeneous landscapes. By merging Preserve 

9 
data into the USFS corporate database, the data will be compatible with new forest resource 

and fire models as they are developed. 

Fire Management 

Wildland Fire is an inevitable occurrence, a natural process and an important management tool 

on the Preserve. The safe, beneficial and cost effective management of wildland fire requires a 

risk management plan based on the best available science. The Trust’s Fire Management Plan 

is integrated with the Santa Fe Zone Fire Action Plan. The Santa Fe Zone is an interagency fire 

operation center with responsibility for wildland fire response on federal, state and private land 

within its area. The Trust is a member of the Zone Board. Crews dispatched from the Santa Fe 

Zone contained all lightning-caused fires on the Preserve during initial attack. There were no 

human caused fires on the Preserve in 2007. 

The Forest Service provides fire suppression on the Preserve at no cost to the Trust. The 2000 

Act says that “...the Secretary may provide fire presuppression, fire suppression, and 

rehabilitation services: Provided, That the Trust shall reimburse the Secretary for salaries and 

expenses of fire management personnel, commensurate with services provided that the Trust 

reimburse the FS for fire suppression and other services.” The 2005 amendment to the 2000 

Act changed part of this; as a result, the Trust does not pay for suppression services. Here is 

the language from the 2005 Act: 

“Subsection (b) amends section 108(g) of the Valles Caldera Preservation Act (16 

U.S.C. 698v-6(g)) to direct the Secretary, in consultation with the Trust, to develop a 

fire preparedness, suppression, and emergency rehabilitation services plan for the 

Preserve that is consistent with the management plan developed by the Trust and to 

provide those services on a non-reimbursable basis. The Secretary may also provide 

presuppression and nonemergency rehabilitation and restoration services on a 

reimbursable basis.” 

The Trust would have to bear the costs if it decided to use prescribed fire or wildland use 

fire to reduce fuel loadings or for resource benefits. The two largest fires on the Preserve 

were the Cajete Fire (May 2003), which was 40 acres and cost $140,788 to suppress, and 

the Valle Fire (May 2005), which was 82 acres and cost $111,481 to suppress. 

Rangeland Management 

Range readiness is assessed each year and reports were prepared and presented to the public 

in 2006 and 2007. A multi-disciplinary team of resource managers (Trust biologists, BLM range 

specialists, USDA ARS range scientists, university scientists, private consultants and the public) 

assess rangeland conditions each spring, prior to livestock entering the Preserve. The 

assessments include current and forecasted climate conditions (especially precipitation and 

temperature), soil moisture, hydrologic data from stream gauges on the Jemez River, standing 

crop biomass (available forage) and stubble height of various grass species (an indication of 

recent/current grazing pressure from elk). Livestock carrying capacity is calculated in animal 

units (AUs) and animal unit months (AUMs) based on the assessment data. Range conditions 

on the Preserve are good; plant cover exceeds 98% in the valles. 

Cattle stocking rates on the Preserve are adjusted upward or downward depending on resource 

conditions. For example, the 2007 range readiness report found excellent range conditions that 

would support the maximum allowable numbers of steers (2,000) under the existing 

environmental assessment. In contrast, the drought of 2005-2006 resulted in a very poor 

range conditions in the spring of 2006, which resulted in the decision to suspend livestock 

grazing for the summer of 2006. The process of formal, multi-disciplinary range readiness 

10 
assessments each spring provide a science-based adaptive management tool for the livestock 

operations program. 

Trust grazing programs from 2002 through 2006 cost more to operate than the Trust realized in 

revenues. In 2007, the Trust awarded grazing through a competitive process. A request for 

proposals was issued and ranchers and organizations submitted proposals for an “ecological and 

economically sustainable” program. The winning proposal was a collaborative effort between a 

producer from southern New Mexico, The Quivira Coalition, a local non-governmental 

organization, and the Valles Caldera Coalition, an environmental group. The proposal included 

educational opportunities in range riding and management techniques proven to reduce the 

ecological impacts while improving the performance of the cattle. 

About 530 yearlings were brought onto the Preserve although there was adequate capacity for 

additional livestock due to good winter and spring precipitation. The producer was offered the 

option to bring additional animals, but due to his lack of familiarity with the land, the complexity 

of the collaboration and experiments with new management techniques, the producer opted not 

to increase herd size. The leader of the range-riding program was thrown from a horse in midJuly and suffered serious injuries. As a consequence, the education components were not 

implemented. 

From 2003 through 2005, annual revenues from livestock operations averaged $37,000 while 

operating costs averaged $137,000, resulting in an average annual loss of $100,000. In 2006, 

the Board of Trustees entered into a contract with New Mexico State University to graze 200 

head of cattle in a research project and that cost about $51,000 with no revenue to the Trust. 

In 2007, the Trust received $5,800 in grazing fees ($2.74/AUM) while expending no money 

towards operations. For the first time since federal acquisition, the Trust made a profit from 

livestock grazing. 

The 2007 program, while meeting the Trust’s ecological and economical objectives, did not 

benefit local producers. Small producers in the communities that surround the Preserve were 

disappointed at not having an opportunity to graze their cattle on the Preserve. These 

producers were eligible to submit proposals and one proposal was received from a local 

rancher. The USDA Extension Service and the Trust are evaluating opportunities to create a 

livestock association that would provide an avenue for local producers to participate in 

progressive grazing programs on the Preserve.

Public Programs

Public Meetings on Access and Use 

The Trust held four public meetings in July and August 2007 to gather information about access 

and use of the Preserve for recreation, education and other personal and cultural activities. The 

meetings were held in Jemez Springs, Los Alamos, Pojoaque and Rio Rancho. The Trust asked 

the public about visitor capacity; recreation and education programs; and the types of facilities 

and infrastructure (e.g., roads, trails, utilities, etc.) needed to support public visitation and 

visitor programs. Each meeting consisted of orientation to the Preserve and Trust, an open 

house with Trust staff and two professionally facilitated workshops. In the workshops, people 

identified what they value about the Preserve, what activities they want the Trust to offer and 

participated in an exercise to balance activities with the goals of the Trust. 

One hundred and twenty people attended the four meetings. Six state and federal agencies 

and one tribe were represented. Six individuals were associated with a university or 

educational institution. Twenty-eight people representing 18 groups and organizations 

11 
attended. Two businesses were represented by individuals seeking to do business with the 

Trust. Fifty-nine members of the public participated as interested individuals. 

When asked what they valued about the Preserve, their comments were similar to the 

comments in public meetings in 2001 and 2004 – they valued the vastness, solitude, quiet and 

beauty most commonly. When asked what they would like to do on the Preserve, their 

comments offered more specific recommendations than in previous meetings. People described 

activities such as hiking, fishing and horseback riding, and they wanted these activities available 

all the time, for spontaneous access, to an unlimited number of people with little support from 

staff and little need for infrastructure. 

The Trust asked people to identify potential conflicts among various uses; they readily identified 

conflicts between grazing livestock and fishing, hunting and hiking and grazing and resource 

protection. They generally did not think that recreation activities conflict with resource 

protection, perceiving human activities as benign. A number of people that identified 

educational activities as important valued the Preserve as a place of learning. The conflict 

between “...solitude, quiet and beauty...” and “...activities available all the time, for spontaneous 

access, to an unlimited number of people...” is obvious and typifies the challenge facing the 

Trust. 

This was the first step in a multi-phase process to develop a comprehensive program for public 

access and use of the Preserve for recreational activities as well as education, research, 

commercial and other public purposes. 

Elk and Turkey Hunting 

The Valles Caldera National Preserve is widely known for its excellent elk hunting. Hunters on 

the Preserve had a high level of success in the fall of 2007. The New Mexico Department of 

Game and Fish issued 77 bull tags for the Preserve; 76 hunters harvested 54 mature bulls for a 

71% success rate. All bull hunters had an opportunity to take a mature bull elk. The state also 

issued 190 antlerless elk tags; 174 hunters harvested 81 antlerless elk for a 47% success rate. 

Overall, there were 268 hunters on the Preserve during 12 hunt weekends. 

In 2007, the Trust offered its first wild turkey hunt since the property became public land. The 

much sought after Merriam’s turkey was offered to the public on a fair chase basis and under 

low hunting pressure using a bow or shotgun. The Trust provided two programs in 2007. The 

first program was designed as a fund raising effort. Eight hunting packages were sold for 

$1,800 each and included three days of hunting, one day of scouting, four nights lodging and 

meals at the Casa de Baca Lodge. The hunters provided their own transportation. Two access 

authorizations were donated to the National Wild Turkey Federation; one authorization was 

auctioned at their national convention and the local chapter raffled the second one. 

The second program allowed the public to enter a lottery draw system for eight access 

authorizations. The lottery cost $20 per chance and included one day of scouting and three 

days of hunting on the Preserve. The hunters selected through the lottery were allowed day 

access only and were allowed one guest at no cost. 

Both hunts had a bag limit of one turkey with a visible beard per hunter as stated in the New 

Mexico Big Game and Furbearer Rules and Information for Game Management Unit 6B. 

All elk and turkey hunters received a welcome letter, orientation packet and access agreement. 

Each hunter was required to attend an orientation session to learn the hunting rules and safety 

requirements. Volunteers from the Rocky Mountain Elk Foundation, National Wild Turkey 

Federation and other volunteers donated 1,012 hours to help hunters on the youth, mobility 

12 
impaired and antlerless elk hunts and 450 hours on the turkey hunts. At $15 per hour, 

volunteer hours offset about $22,000 in Trust labor costs. 

Hunters reported that the elk and turkey hunts were high quality and that they would like to 

return to hunt again. The Trust received letters of appreciation for the attention hunters 

received from staff, which added to their perception of the value of hunting on the Preserve. 

Elk hunts generated $330,276 in revenues and cost approximately $135,000 to market and 

conduct. Turkey hunts generated $20,280 in revenues and cost approximately $19,000 to 

market and conduct. Over one-half of the costs associated with the turkey hunts were nonrecurring, startup costs.

History of Elk Hunting 

 Management of the elk population in the Jemez Mountains is one of the more complex 

challenges facing the New Mexico Department of Game and Fish (NMDGF), which bears the 

responsibility for managing game animals in the state, including on the Preserve (Game 

Management Unit 6B). 

After federal acquisition, the Trust conducted the first public elk hunt on the Preserve in 2002. 

Successful elk hunts have been conducted every year since then. The Preserve offers some of 

the best elk hunting in New Mexico and hunter satisfaction is consistently high. Statistics for 

the Trust’s elk hunting program are summarized below. 

Year 

Trust 

Lottery 

Mature 

Bull/Either 

Sex 

Trust 

Auctioned 

Tags 

State 

Lottery 

Mature 

Bull/Either 

Sex 

Antlerless 

Tags Hunts

VCT 

Lottery 

Tickets 

Sold 

Total 

Revenue

2002 85 5 0 150 (NMDGF) 11 13,464 $404,250 

2003 48 5 12 215 (NMDGF) 10 10,297 $335,325 

2004 0 0 72 170 11 8,040 $210,850 

2005 74 0 0 204 14 13,045 $285,625 

2006 73 0 0 204 14 13,837 $317,365 

2007 77 0 0 150 16 14,229 $330,276 

2002. The Trust, in cooperation with the New Mexico Game Commission, distributed 90 bull 

permits through a combination of a national lottery (85) conducted by the Trust and special 

auctions (5). Antlerless permits were distributed through the New Mexico Department of Game 

and Fish state lottery. Five access permits were auctioned for $10,000-15,000 each.5

 Lottery 

coupons could be purchased for $25 with no limit placed on the number of coupons an 

individual could purchase. A $150 access fee ($75 for the youth hunt) was charged for 

antlerless tags distributed by NMDGF. 

2003. The Trust distributed 53 bull permits through a combination of a national lottery (48 

permits) conducted by the Trust, a booking agent and a special auction. Four access permits 

were sold through a booking agent for $12,500 each and one permit was auctioned permit for 

$17,500.6

 Twelve bull/either sex permits and all of the antlerless permits were distributed 

through the New Mexico Department of Game and Fish state lottery. An unlimited number of 

 

5

 Auctions were conducted by Safari Club International (2 permits) and the Rocky Mountain Elk 

Foundation (2); one permit was advertised on e-Bay. Gross revenue was $61,000; net revenue to the 

Trust was $48,650. 

6

 Cabela’s was the booking agent for four permits; the Rocky Mountain Elk Foundation auctioned one 

permit. Gross revenue was $67,500; net revenue to the Trust was $45,500. 

13 
lottery coupons could be purchased for $25.00 each. A $150 access fee ($75 for the youth 

hunt) was charged for antlerless tags distributed by NMDGF. 

2003 Attorney General’s Opinion. The New Mexico Attorney General declared that the method 

used by the Trust to distribute bull elk permits was inconsistent with state law and that all bull 

elk permits must be awarded through a lottery with 78% going to residents and 22% going to 

non-residents. As a result of the attorney general’s opinion, bull elk permits cannot be sold 

through an agent or by auction. 

2004. The national lottery conducted by the Trust was discontinued. The NMDFG required the 

Trust to sell access coupons to hunters who wanted to hunt on VCNP. The hunter submitted 

the 2004 Big Game Application to NMDGF, who conducted the drawing. The state applied the 

quota system for residents (78% of permits) and non-residents (22%). Mature bull/either sex 

access coupons were sold for $25 each. Revenues in 2004 were 49% of revenues in 2002 

because the application process, which changed dramatically from 2003, was confusing to the 

public and the new rule limited non-residents to 22% of the available permits per hunt code. 

2005. The Trust, in cooperation with NMDGF, conducted the lottery and issued an access 

authorization to the winners. NMDGF issued a permit to the winners with access authorizations. 

The state quota continued was applied to the lottery. Access authorization fees were $25 per 

chance for a bull and either sex hunt and $10 per chance for antlerless hunts. The number of 

coupons purchased by one individual was limited to 20 per hunt code. Hunters entering the 

Trust lottery were eligible to be drawn for other state game management units if they were not 

drawn for VCNP. The number of hunts was increased from 11 to 14 and revenues increased by 

37% over 2004, but were 29% below 2002. 

2006. The structure of the 2006 hunt was the same as the 2005 hunt except that the number 

of hunt codes increased from 14 to 16. Fees for antlerless hunts were increased from $10 per 

chance to $15. Revenues increased by 53% over 2004, but were 21% below 2002. 

2007. The structure of the 2007 hunt was the same as the 2006 hunt. Revenues increased by 

57% over 2004, but were 19% below 2002. The NMDGF issued 40 ‘over the counter’ antlerless 

tags for the first two weeks of December because the cow elk harvest objective was not met. 

All 40 chances were sold within one week. The Preserve charged a $300 access fee per hunter, 

which has the potential to increase revenues by $12,000. 

The Trust is working cooperatively with the state to find innovative ways to enhance the 

revenue opportunities from elk hunting, primarily through the distribution of bull elk tags. 

However, a change in the law may be required to give the Trust authority to distribute a portion 

of the bull elk tags it receives through auctions, brokers or other venues. Over the past three 

years, the number of non-residents entering the lottery has declined by 10% and non-resident 

revenues have declined by 12%. Ultimately, the Trust has to increase the revenues from elk 

hunting several times in the drive to become financially self-sufficient. The Trust is not 

advocating that the state relinquish its authority over regulating hunting on the Preserve. The 

restriction on the Trust’s ability to offer greater national access for elk hunting will result in a 

greater proportional burden for maintaining the Preserve on New Mexico residents and a lower 

probability that the Trust will meet its financial self-sufficiency mandate. 

Inventory, Monitoring and Research Programs

The success of adaptive management depends on the availability of high quality data to address 

management questions. The Trust obtains data about Preserve resources through inventory, 

monitoring and research programs. Inventories are basic assessments of natural and cultural 

14 
resources (presence and distribution). Monitoring studies measure temporal changes and 

impacts to these resources as a result of Trust operations (e.g., recreation, hunting, fishing, fire 

management, forest thinning). Research projects are conducted largely by outside scientists 

with external funding. In 2007, the Trust expended about $500,000 in appropriated funds on 

the inventory, monitoring and research program. The total extramural funding committed to 

the Trust for inventory, monitoring and research was over $1.8 million. 

Inventory 

• Fieldwork for a high-resolution Preserve soils map was completed in the summer of 

2007; data analyses and GIS layers will be finished in 2008. 

• The USDA Systematic Entomology Laboratory and the Smithsonian Institution began a 

survey for economically important insects (pests and pollinators) in 2007. Target groups 

include forest pest beetles and moths, rangeland grasshoppers, aphids and leafhoppers, 

and beneficial predators (parasitoid wasps) and pollinators (flies, butterflies and moths). 

• The ground-truth fieldwork for the forest stand assessments began in 2007 and will be 

completed in 2008. The forest stand map (GIS layer) was completed in 2007. Once the 

stand data are collected and analyzed, the Trust will develop a forest and fire 

management plan. 

• The Trust realized economic efficiencies by quantifying resources Preserve-wide. For 

example, USFS Common Stand Exam protocols recommend a minimum of 20 plots per 

stand for a statistically valid inventory. By stratifying Preserve forests with stand data, 

the Trust can produce a statistically valid inventory by sampling 10% of the forests. 

Rather than 20 plots per stand,7

 the Preserve will install 20-30 plots per stratum. The 

vegetation map, stand delineation and the field data support comprehensive planning 

and management at a cost of about $250,000 plus staff support. The Trust’s resource 

data are unparalleled on multiple use public lands, and were obtained at a fraction of 

the cost typically incurred when data are collected on a project-by-project basis.

Monitoring 

• The condition of Preserve watersheds continues to improve, with lowering of stream 

water temperatures and increases in riparian vegetation. However, stream water 

quality is still impaired (based on New Mexico Environment Department standards). 

• The winter of 2006-2007 was average in terms of snowpack, and produced good soil 

moisture in the spring that led to excellent spring forage production in the valles. May 

and June, usually a dry period, were characterized by steady rainfall and transitioned 

directly into the summer monsoon season. The Preserve produced a record amount of 

summer forage in 2007 (highest since 2002, when measurements began). 

• Forage utilization by livestock and elk during 2007 averaged 22%, well below the 

maximum target of 40% utilization. This was due to the record high amount of plant 

production from the extensive rains. 

• Fish populations in San Antonio Creek and the East Ford of the Jemez River remain 

stable. The current fishing program on the Preserve, the second largest revenue 

generating recreation program, is sustainable. 

 

7

 The Preserve has 1,394 stands that, according to protocol, would require 27,880 plots at $45 per plot. 

15 
• Elk population estimates for 2007 were comparable to previous years. The calf:cow 

ratio (a measure of reproductive success) increased during 2007 to 41:100 over 

relatively low levels in 2005 (18:100) and 2006 (24:100).

Research 

• The University of Arizona and Los Alamos National Laboratory continued research on 

hydrology, climate change and carbon cycles using instrument towers in grasslands, 

Ponderosa pine and spruce forests. They measure water budgets (inputs from rain and 

snow; losses from evaporation, sublimation, plant transpiration, runoff and soil 

infiltration) and carbon/energy budgets. Researchers also installed stream gauges on 

seven Preserve watersheds to determine water production. The results suggest that 

thinning treatments could be developed to maximize snow-water retention and spring 

runoff production in the Jemez River basin. 

• Studies of wildlife infectious diseases on the Preserve confirmed hypotheses that high 

elevation forests are “refugia” for Hantavirus and plague. Mountain habitats are refugia 

for pathogens and rodents that can survive under a wide range of environmental 

conditions (e.g., droughts). Under favorable conditions (e.g., wet El Niño periods), 

rodent and pathogen populations increase and expand to lower elevations, eventually 

spreading into areas occupied by humans, which leads to increased risk of disease 

transmission. This work funded by the National Science Foundation will lead to more 

accurate disease forecasting models. 

• Studies on Chronic Wasting Disease in elk by the New Mexico Department of Game and 

Fish found no incidence of the disease on the Preserve. 

• A team from U.S. Geological Survey, University of Arizona and Trust staff finished the 

first field season of a project to work out the fire history in the grasslands of the 

Preserve. Fire scar data from trees, including stumps from trees cut during logging 

operations in the 20th century, are being analyzed at the University of Arizona. 

• Several new projects were funded from grants in 2007: 

o A radio-telemetry study on the ecology of wild turkeys began in response to the 

Trust’s decision to begin turkey hunts. The project will provide management 

information on turkey movements, habitat selection, survivorship, nesting, roosting 

and winter migrations to lower elevations. 

o Additional funding was obtained to study the impacts of coyotes on elk calves on the 

Preserve. The funds will allow an increase in the number of coyotes fitted with GPS 

tracking radio collars. 

o The Earth Data Analysis Center at the University of New Mexico is developing remote 

sensing capabilities to estimate forage production for livestock and elk.

Natural and Cultural Resources

Natural Resources 

The natural resources of the Preserve include large tracts of second growth forests, expansive 

valleys of grasslands and wetland meadows, and nearly 75 miles of clear mountain streams. 

Wildlife, particularly large mammals (elk, bears, coyotes, etc.) are abundant on the Preserve. 

The magnificent scenery and ecological diversity are outstanding attractions for outdoor 

enthusiasts. Extensive grasslands provide excellent forage for livestock and wildlife that 

contribute significantly to the region’s communities and economy. 

16 
Rangeland Health and Productivity. In 2007, range conditions improved dramatically with record 

high precipitation. The monsoons in 2006 produced the most summer rainfall recorded on the 

Preserve since 2004, and productivity of forage increased significantly. The snows during the 

winter of 2006-2007 provided extensive moisture in the spring and, coupled with a wet May, 

allowed continued growth of spring grasses. Rainfall continued through June and transitioned 

directly into the summer monsoons, resulting in a new record precipitation for the year and 

record forage production. This wet period has greatly enhanced the condition of the range 

pastures, as well as helped to improve riparian zones on the Preserve. 

Overall, range conditions on the Preserve are good; plant cover exceeds 98% in the valles. 

Summer forage production, while higher than most rangelands in New Mexico, is extremely 

variable depending on rainfall. Between 2002 and 2007, net summer forage production ranged 

from 814 to 2,246 pounds per acre. The nutritional value of different forage species is fair to 

good during the summer, but very poor in the winter. 

Wildlife Health and Productivity. Along with the abundant rains of 2006-2007 and subsequent 

increases in forage availability, the elk herd appears to be thriving. Body condition indices 

showed the elk were in excellent condition in 2006; a preliminary assessment of the 2007 

samples indicates a similar result. Elk reproduction appears to have increased over 2005-2006 

– calf:cow ratios increased from 18:100 in 2005, to 21:100 in 2006, to 42:100 in 2007. 

Fisheries on the Preserve also appear to be in good condition. Fisherman satisfaction remains 

high, indicating that Preserve fisheries are producing high quantities of catchable trout. 

Cultural Resources 

The cultural resources program identifies, evaluates and interprets prehistoric and historic 

archaeological sites, historic places and events, architectural values and traditional cultural 

properties on the Preserve. This work is accomplished in consultation with the New Mexico 

State Historic Preservation Office as well as Native American pueblos and tribes. A significant 

accomplishment was completion of the project to document the historic structures in the Ranch 

Headquarters and throughout the Preserve. 

In 2007, the Trust completed cultural resources surveys on 1,200 acres of the Preserve. Sixtyseven new sites were recorded and 36 additional sites were revisited to monitor site condition 

and evaluate significance. The total area surveyed for cultural resources since federal 

acquisition is now 7.5%; just over 430 historic and prehistoric sites have been documented. 

Survey and evaluation projects included: 

• 11 miles of roads; CR survey of all open roads on the Preserve is now complete, 

• Proposed public use areas at Cerro Abrigo, Cerro la Jara, near Cerro Piñon, Redondo 

Meadows, and in Alamo Canyon, 

• Completion of post-burn site assessment for the Valle Toledo prescribed grassland burn, 

• 130 acres of non-project Section 110 survey on Rabbit Mountain. 

The 2007 inventory revealed a diversity of prehistoric site types that were previously unknown 

or poorly known on the Preserve. Several small rockshelters were documented; some included 

ceramic artifacts that are found in only a few sites on the Preserve. At least three sites with 

ceramic artifacts in buried soils were discovered. One of these sites, on the south side of the 

Valle Grande, includes pottery types from the prehistoric-historic interface (AD 1500-1700), with 

at least one ceramic sherd associated with the Spanish Colonial era. Another unusual find is a 

multi-component site in the Valle San Antonio containing artifacts from the full range of known 

human use of the Preserve – Late Paleoindian, Archaic, Puebloan and Historic periods. 

17 
The University of New Mexico Office of Contract Archeology, working in collaboration with Trust 

staff and Los Alamos National Laboratory geomorphologists, completed a multi-year data 

recovery excavation at a large prehistoric site on the north side of Cerro del Medio. The 

excavations were part of the effort to upgrade the VC02 road in the Valle Jaramillo. Results of 

this project will provide information on the characteristics of buried soil deposits and natural site 

transformation processes operating throughout the Preserve. 

Trust Goals for FY 2008 

Develop Strategic Business Plan to Guide Trust to Financial Self-Sufficiency

The Trust intends to hire a consultant in 2008 to create a business plan that identifies options 

to generate revenues from programs, activities and commercial uses that equal or exceed 

operational expenses. The goal is to generate approximately $5,000,000 per year in 2007 

dollars for the Trust to become financially self-sufficient by 2015. The request for proposals to 

develop the business plan closes on January 22, 2008 and is available on the Trust’s Web site. 

The following enterprise activities will be analyzed in the business plan: 

• Lodging and Hospitality. The range of lodging/restaurant options, including an RV 

campground, which could be located on the Preserve to serve the visiting public. 

Identify concession opportunities and strategies. 

• Education and Research. Partnerships with colleges and universities for education and 

research facilities on the Preserve. 

• Domestic Livestock Grazing. Programs and partnerships that provide for sustainable use 

of the forage resources and that consider the priorities of neighboring communities. 

• Hunting. Programs for big game (elk, deer, etc.) and other wildlife (turkey, etc.) are 

sustainable. 

• Fishing. Programs use existing streams and consider construction of small lakes. 

• Public Programs. Standard programs (e.g., hiking, interpretive tours) and special events 

(e.g., mountain bike and foot races, workshops) offer the public a range of recreation 

and education opportunities. 

• Commercial Film and Photography. Identify opportunities for commercial industry to use 

the Preserve for film and photo shoots. 

• Timber. Harvest of merchantable timber is limited due to prior logging, but potential 

exists for other operations (e.g., poles, vigas, mulch, wood pellets). 

• Merchandise. Sale of clothing, maps, books and other items specific to the Preserve. 

• Donations. Identify fund raising strategies and opportunities for the Trust, a 501(c)(1) 

organization, and Los Amigos de Valles Caldera, a recently established 501(c)(3) friends 

group. 

• Other. Identify additional innovative and/or creative revenue-generating programs and 

activities (e.g., corporate sponsorships, renewable natural resources, green burial, etc.). 

Complete Financial Audit for Fiscal Years 2004 Through 2007

The Trust sought proposals to audit the Trusts financial records for 2004 through 2007. One 

accounting firm was selected and a contract to audit the Trust’s financial records was awarded 

in September 2007. The audit began in December 2007 and will be completed in February 

2008. The auditor will perform an independent fiscal and compliance audit and issue an opinion 

18 
on the financial statements of the Valles Caldera Trust for the fiscal years of 2004, 2005, 2006 

and 2007. The audit will be performed in accordance with auditing standards generally 

accepted in the United States, the standards applicable to financial audits contained in 

Government Auditing Standards issued by the Comptroller General of the United States, and 

Office of Management and Budget Audit Requirements for Federal Financial Statements. 

Complete Forage Management Environmental Assessment

The Trust is developing an environmental assessment to allocate forage to support elk and 

other herbivores, to preserve and protect ecosystem processes and wildlife habitats, for 

domestic livestock grazing and other commercial uses and for scientific (research), education, 

or other public uses. Other commercial uses of forage include harvesting of native and nonnative seeds and plants. Allocation decisions will be based on the best available science and 

accepted standards for estimating the quality and quantity of forage. 

The Trust will operate programs that contribute to long-term financial self sufficiency and will 

consider programs that benefit local producers and enhance the management objectives on 

surrounding National Forest System lands. To support the long-term sustainability of the 

Preserve as a working ranch, the Trust will manage the existing ranch infrastructure, including 

establishing the minimum amount of permanent fencing necessary to support operations and to 

repair, maintain or obliterate existing earthen tanks to prevent resource damage and to improve 

the distribution of elk and cattle. 

The Trust held public meetings in Jemez Springs and Española during the summer of 2007. 

The key issues raised were forage use and behavior of cattle and elk, water quality and aquatic 

habitats, and local and regional socio-cultural and socio-economic issues. The new 

Environmental Assessment (EA) will be completed by summer 2008 and implemented for the 

2009 grazing season. 

The commercial grazing program in 2008 will be managed under the existing EA. The request 

for proposals for the summer 2008 grazing program closes on January 31, 2008 and is available 

on the Trust’s Web site. 

Finalize Programmatic Agreement with New Mexico State Historic 

Preservation Office and Advisory Council on Historic Preservation

The Trust hopes to complete a Programmatic Agreement (PA) that establishes the guidelines 

and procedures for the preservation of cultural resources on the Preserve. As a federal land 

management agency, the Trust is responsible under the National Historic Preservation Act for 

protecting the historic, archaeological, architectural and ethnographic resources, and 

landscapes; building knowledge about this historic heritage; and consulting with Indian tribes 

and pueblos that attach religious and cultural significance to the resources and landscapes of 

the Preserve. A draft of the PA is currently under review by the State Historic Preservation 

Office (SHPO). When the SHPO review is complete, the Trust will send the PA to the tribes and 

pueblos and invite them to become signatories, and to the public for their comments. 

Begin Long-term Planning for Public Access and Use

The Trust currently manages an interim program for public access and use of the Preserve. 

The interim program was developed in response to the Valles Caldera Preservation Act (Public 

Law 106-248), which mandates that reasonable access to the Preserve for recreation would be 

provided within two years of federal acquisition. The Trust provides a variety of outdoor 

activities such as fishing, hiking, hunting, wildlife and scenic tours, wagon rides, horseback 

riding and winter recreation activities, such as cross-country skiing, snowshoeing and sleigh 

19 
20 

rides. The Trust also offers opportunities for the public to enjoy and learn about the Preserve 

through special events, including night sky adventures, youth and adult outdoor education 

seminars, photography workshops, mountain biking and running events and more recently, 

overnight opportunities such as weddings and workshops, which use the existing facilities on 

the Preserve. Universities, K-12 schools, and various educational and research entities have 

also had access to the Preserve on a case-by-case basis. Infrastructure development has been 

limited to road maintenance and improvements necessary to provide safe access while 

protecting and preserving natural and cultural resources. Temporary facilities, such as portable 

buildings and toilets, facilitate public use and access to the Preserve. 

Under the interim public recreation programs, visitation has increased from about 200-300 

people per year prior to federal acquisition to over 12,000 visitors in 2007. Existing programs 

use temporary facilities that are inadequate for some activities (e.g., winter recreation) and limit 

the ability of the Trust to generate significant revenues (e.g., overnight facilities). The Trust 

completed the first phase, which consisted of collecting data and information in a series of four 

public meetings in the summer of 2007. The second phase, which consists of developing a 

long-term plan for public access and use of the Preserve, will begin in 2008. The long-term 

plan will address visitor capacity; visitor programs and activities; and the facilities and 

infrastructure to support increased levels of visitation that are necessary to generate revenues 

for the Trust to become finically self-sufficient. The long-term plan will engage and respond to 

the public through the NEPA process.

Develop Procurement Policy

As authorized by section 108(c)(4)(B) of the Valles Caldera Preservation Act of 2000, laws and 

regulations governing procurement by federal agencies shall not apply to the Trust and 

therefore, the Trust recognizes the need to develop a procurement policy. In consultation with 

the Administrator of Federal Procurement Policy, Office of Management and Budget, as required 

by the 2000 Act, the Trust will develop and adopt procedures applicable to the Trust's 

procurement of goods and services, including the award of contracts on the basis of contractor 

qualifications, price, commercially reasonable buying practices and reasonable competition. 

Implement New Recreation Programs

Fishing. The Preserve has two streams with reproducing populations of brown and, to a lesser 

extent, rainbow trout. Since 2003, the Trust has offered fishing on 10 beats of San Antonio 

Creek where each angler has 1.0-1.5 miles of stream (one beat) to fish alone or with up to 

three guests for the day. Over 1,800 fishermen participated in the program via lottery in 2007, 

which generated nearly $70,000 in revenues. 

In 2008, the Trust is expanding the fishing program to offer a comparable fishing opportunity 

on nine miles of the East Fork of the Jemez River. The program will offer 10 anglers access to 

the East Fork for a day and be available through a reservation system. Four of the ten slots will 

be reserved for registered fishing guides. Guides would pay a higher rod fee for their clients. If 

this program is well received, estimated revenues from fishing could increase by 50-100%. 

Overnight Camping. The Trust will develop an environmental assessment for limited overnight 

camping to enhance recreation and administrative activities. The Trust will collect information 

from these activities for future decision-making and planning efforts for public use and access. 

The Trust currently does not have developed or backcountry campgrounds. Camping will be 

limited to the footprint of existing facilities and other disturbed areas (abandoned geothermal 

well pads, gravel pits, road prisms, etc.). Recreational camping will be used to enhance core 

activities and special events, such as the equestrian and hunting programs.