Rourke McDermott
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Valles Caldera Trust

Fiscal Year 2011 – Report to Congress

Table of Contents

Executive Summary......................................................................................................................... 2

Valles Caldera Trust Background .................................................................................................... 3

Overview ..................................................................................................................................... 3

Agency Goals............................................................................................................................... 4

Organizational Structure............................................................................................................. 4

Agency Challenges and Opportunities............................................................................................ 5

The Las Conchas Fire................................................................................................................... 5

Ecosystem Impacts...................................................................................................................... 7

Impacts to Cultural Resources.................................................................................................... 8

Impacts to Recreation and Activities.......................................................................................... 8

Public Access and Use Planning .................................................................................................. 9

Increased Visitation .................................................................................................................... 9

Budget and Finance .................................................................................................................. 10

Liability Insurance ..................................................................................................................... 12

Performance to Goals................................................................................................................... 13

Goal #1 - Protect and Preserve for Future Generations........................................................... 13

Goal #2 - Provide Opportunities for Public Recreation ............................................................ 16

Goal #3 - Provide Sustained Yield Management ...................................................................... 18

Goal #4 - Incorporate Elements of Public and Private Administration..................................... 20

Conclusion..................................................................................................................................... 23
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Executive Summary

The Valles Caldera National Preserve is an 89,000-acre federal property in northern New 

Mexico, which was established in 2000 and assigned to be administered by the Valles Caldera 

Trust under a new and experimental management regime set forth in the Valles Caldera 

Preservation Act (Act) of 2000 (Public Law 106-248). 

The mission of the Valles Caldera Trust (the Trust) is to create a successful model of public land 

management that protects and preserves the unique values of the Valles Caldera National 

Preserve (the preserve). We operate the preserve as a working ranch; strive to become 

financially self-sustaining; meet varied needs of visitors; strive to utilize and steward the 

multiple resources of the preserve; and work collaboratively with our neighbors.

Management of the preserve was transferred to the Trust in 2002; fiscal year 2011 (FY11) 

marked the ninth under Trust management. In this annual Report to Congress we are 

presenting information on the challenges and accomplishments of 2011, a discussion of the 

recent history under Trust management and a forward look at the strategic planning that will 

guide the Trust through the next few years.

All government agencies are required to complete or update existing strategic plans by 

February of 2012. The Trust’s existing strategic plan was prepared in 2007 and will be 

completely revised by the February due date. The State of the Preserve, a summary of the 

cumulative impacts of all past, present and reasonably foreseeable future actions affecting the 

preserve, is also due in 2012. We are also expecting to complete long-term, comprehensive 

plans for the restoration and management of our natural resources and the development of 

facilities in support of public access to the preserve. All-in all, 2012 will mark the transition 

from interim management marked by experimentation, inventory and planning to 

comprehensive management marked by implementation, monitoring and evaluation.

Key to the future is the development of a strategic plan with clear goals and measures of 

performance. In today’s government organizations, the environment is characterized by 

uncertainty, complexity, ambiguity, a diverse population, political shifts, and a rapidly changing 

workforce facing demands for better service. In order to set future direction, maintain focus, 

re-organize and commit resources, and retain the flexibility to make changes, we need to plan 

strategically. 

The Valles Caldera Trust is committed to developing a strategic plan that will clearly articulate 

to the Congress as well as the public our goals for the preserve through 2018. We believe the 

foundation laid to date will provide for the successful management of the preserve and 

continued service to the public under any management or budget scenario that may transpire 

during the planning period.
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In the future, annual reports to Congress will be directly tied to our strategic plan, allowing the 

Congress, as well as the public, to more clearly evaluate our progress and contribute to the 

management of the preserve.

Valles Caldera Trust Background

Overview

The Valles Caldera Trust is a wholly owned government corporation created by Congress to 

preserve, protect and enhance the unique landscape formerly known as the Baca Location No. 

1 which was operated as a privately owned ranch for more than a century prior to its 

acquisition by the federal government in July of 2000. The preserve is comprised of 88,900 

acres of National Forest System (NFS) land located in Sandoval and Rio Arriba counties in north 

central New Mexico. National Forest System land is typically managed by the United States 

Department of Agriculture, Forest Service. Delegating management of NFS land to a 

government corporation constitutes an experiment in public land management.

The Trust finances operations through direct appropriation, revenue generated from lodging, 

hunting, recreational activities, special use fees, grants and donations. The Act also established

an “experimental management regime” which incorporates “...elements of public and private 

administration in order to promote long term financial sustainability consistent with other 

purposes...” as enumerated in the Act. The Act further established a benchmark period for 

attaining financial self sufficiency – 15 fiscal years. 

If the trustees believe that management goals under section 108 (d) of the Act have been met, 

but the Trust has not achieved financial self-sufficiency as defined, they may submit to the 

Committees of Congress a recommendation to authorize appropriations through 2020.

However, legislation pending in congress could bring an abrupt end to the Trust and the 

experiment in public land management. Senate bill 564 (S-564) proposes the transfer of the 

preserve to the National Park Service (NPS). If S-564 is passed and signed into law the Trust will 

be dissolved and the NPS will fund and manage the property. 

The Trust is considered an agency for the purpose of compliance with Federal environmental 

laws, including the National Environmental Policy Act (NEPA), but remains exempt from the 

Forest and Rangeland Renewable Resources Planning Act of 1974, as amended (16 U.S.C. 1600 

et seq.). The Trust is accountable to the Office of Management and Budget (OMB) and the 

Government Accountability Office (GAO). The Trust is required to submit annual reports to 

Congress, annual financial reports to OMB and the Department of Treasury, and to submit a 

State of the Preserve update every five years. The Trust is subject to the Government 

Corporation Control Act (GCCA) and to the Government Performance and Results Act of 1993 

(GPRA), updated in 2010.
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Agency Goals

In addition to authorizing acquisition of the preserve as a demonstration area for an 

experimental management regime, the Act identified purposes for the acquisition which are 

directly tied to the management of the preserve:

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

values...including rivers and ecosystems, and archaeological, geological, and cultural 

resources;

2. Provide opportunities for public recreation;

3. Provide sustained yield management of the Baca ranch for timber production and 

domestic livestock grazing insofar as is consistent with the other purposes stated herein.

4. Incorporate elements of public and private administration to promote long term 

financial sustainability consistent with other purposes of the law. 

In section 108, (d) the Act identified six goals for comprehensive management of the preserve:

1. Operation of the preserve as a working ranch, consistent with paragraphs (2) through 

(4); 

2. The protection and preservation of the scientific, scenic, geologic, watershed, fish, 

wildlife, historic, cultural and recreational values of the preserve;

3. Multiple use and sustained yield of renewable resources within the Preserve;

4. public use and access to the preserve for recreation;

5. Renewable resource utilization and management alternatives that, to the extent 

practicable –

a. benefit local communities and small businesses;

b. enhance coordination of management objectives with those on surrounding 

National Forest System land; and

c. provide cost savings to the Trust through the exchange of services, including but 

not limited to labor and maintenance of facilities, for resources provided by the 

Trust; and

6. Optimize the generation of income based on existing market conditions, to the extent 

that it does not unreasonably diminish the long-term scenic and natural values of the 

area, or the multiple use and sustained yield capability of the land.

Organizational Structure

The Trust is a wholly owned government corporation responsible for managing the preserve. 

The Trust is staffed by Federal employees and governed by a nine member Board of Trustees 

(Board). Seven trustees are appointed by the President. The two remaining seats are ex-officio 

positions held by the Superintendent of Bandelier National Monument and the Supervisor of 

the Santa Fe National Forest. The first board was empanelled on January 10, 2001 and officially 
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assumed management of the preserve in August of 2002. An executive director oversees an 

organization that includes directors of administration, enterprise, operations, natural resources, 

science services and other positions essential to operating this unique landscape.

Agency Challenges and Opportunities 

Photo 1 - View from Valle Grande looking at the western slopes of Cerro del Medio.

The Las Conchas Fire

On June 26, 2011, planned operations of the preserve suffered a major interruption when the 

largest wildfire in New Mexico history claimed more than 156,593 acres of the Jemez 

Mountains including more than a third (30,034 acres) of the preserve. The day the fire broke 

out preserve staff executed the evacuation of visitors to perfection and in the following days 

and weeks provided support to firefighting teams by helping set up the Redondo Meadows 

Base Camp, conducting cultural resource management and participating with communications 

teams and firefighters. The staff was in a word “spectacular”.

However, as the fire swept across the landscape it almost ground our 2011 plan of work to halt 

and significantly impacted efforts moving forward. While many recreational activities will 

resume it is unclear whether fishing and other programs will offer the same opportunities as 

Rourke McDermott
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before the fire. Visitation and revenue may see negative impacts if these programs do not 

return to their previous levels. Public Access and Use Planning to expand visitor opportunities 

on the preserve will now require adjustments in order to integrate the changes of our 

landscape into the final plan. Landscape restoration planning will now include recently burned 

acreage as well as the two-thirds of the preserve we need to restore to reduce the landscape’s 

vulnerability to future wildfire.

Photo 2 - Flash flood emerging from Indios Canyon and crossing the VC14 road in Valle Toledo, 

July 29th. Note ash and charred logs carried downstream by the floodwaters.
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Photo 3 (Above) – Dead brown trout on the banks of 

the Rio San Antonio following a large flash flood on 

July 25th. 

Photo 4 (Right) - Dr. Colleen Caldwell and graduate 

student Matt Zeigler conduct capture-release fish 

sampling with an electro-shocker in Indios Creek on 

August 19th. They found that some brown trout had 

recolonized the creek, but that densities were 95% lower than pre-fire populations.

Over a hundred photos of the fire, floods, damage, fire crews, and ongoing work can be found 

at www.facebook.com/vallescaldera.

Ecosystem Impacts

The Las Conchas fire inflicted a variety of ecosystem disturbances on the Valles Caldera 

National Preserve, and the legacy of this massive wildfire will influence the soils, watersheds, 

vegetation and wildlife for years to come. As part of the science-based adaptive management 

process of the preserve, the monitoring program for both natural and cultural resources shifted 

into high gear during and immediately after the fire. The objective was to assess the intensity 

and distribution of burned areas, and to establish a series of monitoring sites that would inform 

the preserve managers of patterns and rates of ecological recovery, particularly with respect to 

the preserve’s watershed functions, vegetation production, wildlife populations, and fisheries.

Enormous efforts will be needed to restore the remaining forests on the preserve and the 

western Jemez Mountains before the next ignition unleashes another uncontrollable fire. 

The newly-begun Southwest Jemez Collaborative Forest Landscape Restoration Project, funded 

through USDA from a Congressional Act sponsored by Senators Jeff Bingaman and Tom Udall, is 

now attempting to restore Valles Caldera and Jemez Ranger District forests in a strategic 
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manner, working first on selected areas that could impede the spread of wildfires. Working 

with many collaborating agencies, universities, and non-governmental organizations, land 

managers hope to “beat the clock” and restore sufficient areas of the Jemez landscape before 

the next giant fire explodes. The situation is further exacerbated by the long-term drought 

gripping New Mexico, and the prospect for a second-straight dry La Niña winter-spring for 

2011-2012. 

Impacts to Cultural Resources

Archaeologists were involved in the fire efforts from the initial planning, throughout 

suppression efforts, during the Burned Area Emergency Response (BAER), and continue with 

on-going post-fire condition assessments and monitoring. The goals of involvement were to 

identify what cultural resources might be affected by the fire, by suppression and rehabilitation 

activities and choices, and by post-fire secondary processes such as erosion. During the active 

fire, up to five archaeologists were embedded with bulldozer and suppression crews to identify 

significant archaeological and historic sites and prevent further damage. 

In addition to direct involvement with fire and post-fire activities, the VCNP cultural resources 

(CR) program also was affected by preserve closures due to drought and to post-fire danger. 

Our ability to conduct surveys, especially in advance of project planning for forest restoration 

was severely curtailed. However, once access was reestablished, the CR Program returned to 

the field with an increased determination to regain lost survey time. As a result, despite the 

lost time and diversified goals of this complex season, the total survey acreage this year 

exceeded all prior years. Next season, our plan of work will again be affected as we conduct 

post-fire survey and condition assessments in the spring and early summer. Also, if the forecast 

of continued drought through 2012 is accurate, additional preserve closures will affect the work 

plan.

The fire will have some long term positive consequences for the VCNP CR program. One is that 

we will work to insure that the Trust has fire-qualified (“red-carded”) archaeologists available 

for on-the-ground assistance during and immediately after any future fires; this step will have 

some costs for training, certification, and equipment, but will pay off in streamlining and 

improving fire support and resource advisement and allowing a return to fieldwork post-fire. A 

second is that we will proactively seek input and dialogue from area pueblos/tribes to better 

understand their concerns regarding potential impacts of suppression, and priorities for 

protection of traditional cultural properties and cultural landscapes. 

Impacts to Recreation and Activities

The Las Conchas fire virtually shut down all activities and recreation almost all of July. Fisheries 

suffered a major setback when monsoon rains flooded burn areas and choked rivers with ash 

and debris that eliminated 95% of the brown trout fish population in San Antonio creek. Van 
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tours, guided hikes and other revenue generating activities were cancelled and reservation 

dollars refunded. It is unclear how soon the fisheries will repopulate or when burn areas will be 

suitable for recreation. The autumn elk hunts remained on schedule and were restricted to 

areas not consumed by the fire. Hunt staff faced additional challenges when post fire flooding 

made primary roads impassable creating safety and logistical difficulties. Despite the 

restrictions the 2011 hunts were 100% safe with no reportable accidents with 90% of hunter 

surveys rating their overall experience as ‘excellent. 

Advertising and marketing activities were severely impacted both through de-obligation of 

funded advertising and the lack of programs to promote. A total of 252 events were cancelled 

and it is still unclear how long it will take to restore the programs to guarantee a quality 

experience. Uncertainty around product offerings will impact not only marketing/advertising 

strategies but also the budget to support them. Finally, the lingering after affects of the fire

created an atmosphere of visitor uncertainty with regard to the safety of visiting the Jemez 

Mountains so soon after the fire.

Public Access and Use Planning

The Las Conchas wildfire changed the existing condition on over 30,000 acres of the preserve 

requiring us to revise our assessment of the existing condition of the preserve and alternatives 

being analyzed for restoration and management. Although the Las Conchas Fire burned through 

one of the sites being considered for the development of a visitor center, it did not impact the 

suitability of the site or substantially impact the planning effort beyond diverting staff time and 

incorporating new information into the reports prepared prior to the fire.

Another development that will immediately impact public access planning is the dramatic 

statistical increase in the preserve visitor count. A more accurate methodology and technology 

was employed in 2011 and revealed actual visitation is four times greater than previously 

recorded.

Increased Visitation

Tracking visitor numbers is a critical tool in both planning and managing a public resource such 

as the VCNP. Prior to 2011, visitor totals on the preserve were calculated by counting actual 

visitors who participated in an activity or visited one of our two staging areas. It was long 

suspected that visitation was greater than the earlier counts and public access planning 

required a more accurate assessment. In order to secure a more accurate account the Trust 

purchased traffic counters and infrared trail counters and deployed them during the 2011 fiscal 

year. 

The Trust consulted with the National Park Service statistician to define protocols and ensure a 

visitor counting system that was consistent with those of other public land agencies. As a result 
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the system now used provides a reasonable comparison of visitor counts with other public 

lands and will ultimately allow a better analysis of visitation patterns. The Trust collected data 

from advanced counters at ten locations and cross checked them with random vehicle surveys. 

The raw data were analyzed and adjusted to account for Las Conchas Fire personnel, employee 

activity and double counting. The results were startling. 

The number of visitors at the VCNP during 2011 is reasonably estimated to be 97,552 which is 

almost 4x the official visitor count from FY 2010 which was tallied using the former method.

The numbers do not include the estimated 160,611 visitors at the two NM Hwy 4 pullouts.

Incorporating those visitor numbers and the 1.2 million people who annually travel the NM 

Hwy 4 Byway, into a visitor’s center plan will be critical to attracting more visitors and ensuring 

a quality experience.

The Trust’s Director of Operations, Dr. Tim Haarmann, managed the project and continues to 

monitor and collect data. Haarmann says some adjustments will be made to refine the 

collection process and include areas missed last year. Another year of data to compare with 

2011 will provide an even clearer picture of visitation and trends moving forward.

Budget and Finance

The annual budget of the Trust is comprised of current FY appropriations (Treasury Account 

1106), and revenue generated from operations (Treasury Account 5363). In addition to 

traditional expenditures such as salaries and benefits the Trust is responsible for non-traditional 

agency operational costs e.g. the purchase of liability insurance. Post fire costs including the reestablishment of the fisheries, rehabilitation and restoration of the burn areas and any 

unforeseen impacts will affect future budgets. Since 2003, the Trust has never had a claim filed 

against it, nor against the insurance company; as such, the premium has increased solely in 

response to increased visitation by the public. Should the Trust’s liability insurance actually 

sustain a valid claim, it is very likely that private liability insurance would thereafter be either 

unobtainable or unaffordable.

In 2009 the Board of Trustees recognized that additional, non-revenue producing costs and a 

reduced appropriation ($500,000 decrease from 2009 to 2010) made the goal of financial self 

sufficiency impossible. The Trust recommended modification of the self sufficiency requirement 

to a more realistic maximum “cost recovery” mandate to the congressional delegation. The 

challenging economic environment is expected to impact visitation revenue, and the Trust’s 

overall budget. The following table represents appropriations, revenues, and expenditures from 

2007-2011.
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Table 1 Fiscal Year Budget summaries for 2007 – 2011 

FISCAL YEAR ANNUAL ACTUAL ACTUAL PROGRAM

APPROPRIATION EXPENDITURES EXPENDITURES REVENUES

ACCOUNT CODE 1106 1106 5363 5363

2007 $3,500,000 $3,378,865 0 $749,957

2008 $3,691,500 $3,631,398 $59,366 $691,570

2009 $4,000,000 $4,322,704* $585,302 $609,219

2010 $3,500,000 $3,451,981 $2,198,139* $709,227

2011 $3,433,000 $3,356,073 $1,391,363* $795,110

*It must be noted where expenditures exceed appropriations and revenues, funds 

unused from previous years (including those prior to FY 2007) dollars are carried over 

and placed in the treasury account during ensuing fiscal years. Such is the case in FY 

2009 account 1106 expenditures and in account 5363 expenditures 2010 and 2011. It 

was FY 2010 when the Trust approved use of revenue funds to lease, furnish and staff

the Science and Education Center.
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The following table represents the FY 2010 expenditure and revenue summary for the Trust. 

The annual appropriation for FY 2011 was $3,433,000.

Table 2-Fiscal Year 2011 Budget Summary

FY2011 ACTUAL ACTUAL PROGRAM

EXPENDITURES EXPENDITURES REVENUES

PROGRAM 1106 5363 5363

ADMINISTRATION $1,399,629 $114,961 $26,317

COMMUNITY SERVICES $16,400 $0 $0

FISHING PROGRAM $0 $55,001 $60,281

FACILITY RENTALS $0 $29,90172,501 $28,585

HUNTING PROGRAMS $0 $117,547 $324,200

INVENTORY/MONITORING $419,636 $0 $0

INFRASTRUCTURE $0 $3,793 $0

PLANNING $181879 $0 $0

OPERATIONS $750,823 $0 $23,817

SUMMER RECREATION $0 $300,172 $43,795

STORE SALES, ADM $0 $254,878 $136,351

SPECIAL USES $0 $4,902 $9,577

WINTER RECREATION $0 $93,571 $22,706

STEWARDSHIP COMPLIANCE $123,946 $0 $0

SPECIAL EVENTS $0 $93,804 $42,742

SCIENCE/EDUCATION

CFLRP Match

$

$463,750

$322,833 $97,497

ALL PROGRAMS $3,356,073 $1,391,363 $795,110

Liability Insurance

The Trust does not have access to the permanent Judgment Fund (section 1304 of title 31, 

U.S.C.) for a claim, judgment or settlement. Consequently, the Trust must purchase its own 

insurance for liability, vehicles, and volunteers. As the number of visitors and public programs 

increase the cost of insurance will continue to consume a larger portion of the Trust’s 

appropriated budget. In 2007 the cost was $40,878 and more than doubled to $83,800 in 2008.

Premium costs continued to rise to a high of $88,334 in FY 2011. Since 2003, the Trust has 

never had a claim filed against it, nor against the insurance company; as such, the premium has 

increased solely in response to increased visitation by the public. Should the Trust’s liability 

insurance actually sustain a valid claim, it is very likely that private liability insurance would 

thereafter be either unobtainable or unaffordable.
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Performance to Goals 

The history of the Trust and its accomplishments is best illustrated by the annual performance 

to the goals and purposes of the act. In the following pages we have captured some of the 

major accomplishments during the last five years and attempted to show the progress the Trust 

has made in those key areas. In effect the following pages provide a history of how the Trust 

built the current foundation from which it will transition to a new strategic plan and direction. 

Goal #1 - Protect and preserve for future generations the scientific, scenic, 

historic, and natural values...including rivers and ecosystems, and 

archaeological, geological, and cultural resources.

Soon after the federal government assumed ownership of the p, the Trust learned that the 

existing infrastructure—such as roads, buildings, fences, and water treatment facilities—was 

seriously degraded and in need of rehabilitation. Since then, the Trust has upgraded many of 

the roads to all-weather gravel standards to provide open public access and support the Trust’s 

land management activities. To enhance safety and public viewing of the preserve, the Trust 

also installed kiosks, scenic turnouts, and reconfigured the entry and exit at New Mexico 

Highway 4, the main access road to the preserve. 

Initially the Trust conducted minor maintenance on the ranch buildings used to house 

employees and documented the condition of structures of historic value throughout the 

preserve. In addition, the Trust repaired the preserve’s 54 miles of boundary fences—including 

adjusting their height to allow for elk movement—and installed signs restricting access to the 

preserve. The Trust rehabilitated interior fences, livestock corrals and added a new temporary 

contact center building in 2009. However, rehabilitation of the deteriorating infrastructure is 

expensive and time consuming. Deferred maintenance costs for existing buildings alone are 

more than a million dollars. In addition, unexpected road, forestry and stream rehabilitation 

necessitated by the Las Conchas Fire demand immediate attention and funding which places 

other planned projects on “hold”. 
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Table 3 – Summary of accomplishments toward the goal of protecting and preserving the 

natural and cultural resources of the Valles Caldera National Preserve during 2007-2011

Protect and 

Preserve

2007 2008 2009 2010 2011

Cultural 

Resources 

Inventory 

Monitoring

Documentation

/evaluation of 

18 historic 

structures 

completed

67 new cultural 

sites recorded 

and 36 

revisited.

Cultural surveys 

completed on 

960 acres and 

initiated 

dendroglyph 

volunteer 

program. 

Documentation

/ evaluation of 

53 new 

prehistoric and 

historic sites 

122 sites visited 

and 69 revisited 

Cultural surveys 

completed on 

1260 acres 13% 

of preserve now 

surveyed.

27 new sites 

were 

documented 35 

revisited

Cultural surveys 

completed on 

900 acres.

65 new sites 

were 

documented 

and 39 revisited

Cultural surveys 

completed on a 

record 1485 

acres. 

21 new sites 

were 

documented 

and 137 

revisited

Roads and 

Restoration

190 miles of 

passable roads 

inventoried

Construction on 

NM Hwy 4 

entrance begun

NM Hwy 4 

entrance 

construction 

completed

Planning in 

compliance with 

NEPA 

completed for 

restoration 

activities in San 

Antonio 

Watershed.

23 miles of road 

maintenance 

completed and 

ADA upgrades 

to facilities 

completed

64 miles of 

road 

maintenance 

completed 

Inventory and 

Monitoring

Trust invested 

$500k in 

inventory, 

monitoring and 

research 

Trust invested 

$673k in 

inventory, 

monitoring and 

research 

Trust invested 

$660k in 

inventory, 

monitoring and 

research

Trust invested 

$738,764 in 

inventory, 

monitoring and

research

Trust invested 

$419,636 in 

inventory, 

monitoring and 

research

Comprehensive PlanningCompleted a 

preserve-wide 

forest inventory

Completed a 

comprehensive, 

quantified 

assessment of 

the existing 

condition and 

ecological 

departure of 

the preserve’s

natural systems 

Collaborated 

with partners to 

develop a 10-

year strategy 

for forest 

restoration.

Initiated 

planning and 

decision-making 

on the 

proposed 

Landscape 

Restoration and 

Management 

Plan. 

Continued 

forest 

restoration 

planning and 

analysis 

incorporating 

changing 

condition 

brought about 

by the Las 

Conchas Fire.

Completed a 

preserve-wide 

forest inventory

Forest Thinning Completed 90 

acres forest 

Initiated 

planning on 500 

Signed a 

decision to 

Completed 

planning on two 

Awarded a 380 

acre forest 
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thinning. acres forest 

thinning 

conduct 

prescribed 

burning in 

collaboration 

with Bandelier 

National 

Monument 730 

acre on 

Bandelier and 

230 acres on 

the 

Preserve)Compl

eted planning 

on 500 acres of 

forest thinning

thinning 

projects: 185 

acres and 380 

acres. Expanded 

previous 

thinning project 

by 185 acres

Completed 890 

acres forest 

thinning. 

thinning 

contract and 

387 acre slash 

disposal 

contract. 

Science and 

Education

Trust received 

equivalent of 

~$1.8 million 

extramural 

funding for 

inventory, 

monitoring and 

research. 28 

research 

projects were 

conducted on 

the preserve

The Trust 

received 1.6 

million of 

extramural 

funding for 

inventory, 

monitoring and 

research.

32 research 

projects were 

conducted on 

the preserve

The Trust 

received $3.5 

million of 

extramural 

funding for 

inventory, 

monitoring and 

research.

39 research 

projects were 

conducted on 

the preserve

Trust acquires 

new SEC to host 

and expand on 

education 

programs,

The Trust 

received $3.9

million of 

extramural 

funding for 

inventory, 

monitoring and 

research

44 research 

projects were 

conducted on 

the preserve

SEC renovation

completed and 

hosted 

education 

programs which 

generated 

$62,000+ 

revenue.

The Trust 

received $4.1

million of 

extramural 

funding for 

inventory, 

monitoring and 

research

44 research 

projects were 

conducted on 

the preserve

SEC hosted 

education 

programs which 

generated 

$97.5K in 

revenue.

Because of its flexible structure the Trust is able to quickly reallocate personnel, funds, and 

resources to unexpected needs. A major factor the quick response capability is Trust’s 

commitment to using science based adaptive management. Adaptive management monitors 

the natural systems of the preserve, the human activities that affect them and uses the 

monitoring information to revise management goals and activities. Therefore, under its 

science-based adaptive management approach, the Trust makes land management decisions 

on the basis of scientific research and monitoring, taking into account the public’s views and 

federal environmental requirements.
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In August 2009, the Trust leased facilities and created a state of the art new science and 

education center (SEC) adjacent to the Trust’s headquarters in Jemez Springs. The facility 

includes a teaching laboratory, classrooms, offices, a dining hall, and lodging for visitors 

participating in the center’s formal and informal science education programs for all age groups. 

The SEC was outfitted and funded with revenue funds from Trust- activities and not with 

appropriated tax dollars. It has attracted major universities, public and private school 

students/teachers, volunteer groups and retreat programs from private, corporate, NGO or 

government organizations. The SEC increased 2011 revenue to $97,497.00 in FY 2011 from the 

$62,298.00 earned during its first full year of operation in FY 2010. This does not include the 

more than $4.0 million in annual grant project funding associated with the science projects 

hosted at the preserve in 2011. The graphs below illustrate the annual growth in the number of 

science projects and the funding thereof at the VCT since 2001.

Figure 1 - Graphic summaries of extramural funding (left) and number of permitted scientific 

studies (right) on the Valles Caldera National Preserve, 2001-2011. Funding data based on 

information provided by project Principal Investigators

Goal #2 - Provide opportunities for public recreation

Beginning in 2002, the Trust granted the public limited access to the preserve for recreational 

activities; in most cases, it has charged a fee for access to these activities. In the beginning, 

public recreation was confined to guided hikes or van tours. During the last 9 years the Trust 

increased the number of activities, expanded to year round operations (open seven days a 

week) and instituted a robust marketing and advertising program that included radio, print, 

face to face and social media. Activities include:

 Hunting. The Trust works with the New Mexico’s Department of Game and Fish to award 

elk-hunting licenses. The program is the largest revenue producer. In 2008, the Trust added 

a turkey hunt. Both elk and turkey habitats were affected by the Las Conchas Fire. However, 
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hunt managers were able to make adjustments to maintain the integrity and quality 

experience of the fall 2011 elk hunt. The same is expected of the spring 2012 turkey hunt.

 Fishing. Originally a lottery based program fishing access is granted through reservation and 

on a first-come, first-served basis for unreserved reaches. In 2009 the Trust began allowing 

anglers to drive their own vehicles to assigned stream reaches and in 2010 extended hours 

of operation. The Las Conchas Fire severely impacted the program which virtually ended for 

FY2011 when the fire began on June 26th. At publication time it remained unclear whether 

the fishing program will return in its entirety in FY 2012.

 Hiking. Visitors have been allowed to hike at the preserve since 2002, first in guided hikes, 

then on their own. The Trust has increased the number of hiking trails to 14 and now has 

more than 54 miles of trails. The Las Conchas fire impacted several trails in 2011 but all are 

expected to be operational in 2012.

 Other Recreational Activities. The Trust also offers horse-drawn wagon rides, sleigh rides, 

van tours, snowshoeing, cross-country skiing, stargazing lectures, horseback riding, 

mountain biking, group tours and seminars, workshops, and special events including a 

marathon run and the Jemez Mountains Elk Festival.

Table 4 – Summary of accomplishments during 2007-2011 toward the goal of providing 

opportunities for public recreation.

Recreation 2007 2008 2009 2010 2011

Increase 

Activities and

Attendance

Add new low

cost programs 

w/o 

reservations to 

increase 

visitation.

Summer 

recreation 

expanded to 

seven days a 

week

Hosted an open 

house to market 

facility rental 

opportunities

Fishing fees 

reduced to $35 

from $50 on the 

East Fork. 

Anglers 

permitted to 

drive their own 

vehicles to the 

San Antonio 

reaches.

Initiated Jemez 

Mountains Elk 

Festival

Marathon 

registration 

almost doubles 

to 535

Elk Festival 

partnerships 

generate ~ 2k 

visitors.

Marathon 

registration 

reaches 760 

which is a 42% 

increase over 

2010

Elk festival 

expanded to 

nine days 

marketing 

attracts 2k+ 

visitors

Increase Public 

Access and 

Revenue

Visitation 

increases 25% 

to a record 

12,405 with a 

10% increase in 

revenue

Visitation 

increases 23% 

to a record 

15,238 with a 

5% increase in 

revenue

Visitation 

increases by 2% 

but revenue 

decreases 11% 

Visitation 

increases by 

59% with a 15% 

increase in 

revenue

Merchandise 

sales increase 

by 89% to 

~$104k

Despite fire 

visitation 

increases by 

13% with an 8% 

increase in 

revenue

Merchandise 

sales increase 

by 15% to 

~$120K
Page 18 of 23

Improve Visitor 

Experience

Revenue per 

visitor reduced 

by 12% to $45.

Upgrades to 

Casa de Baca 

Lodge and the 

Bunkhouse 

contributed to 

increase in 

lodging

A new 900 sq ft 

information 

center was 

purchase and 

installed at the 

Valle Grande 

Staging Area in 

Sept 2009

Total miles of 

hiking trails 

doubled to 54+

More accurate 

visitor counting 

program 

discovers 

97,552 visitors 

which is almost 

4X the ~25k 

visitors logged 

under the 

former counting 

method. 

Revenue per 

visitor drops to 

$6.34 per visitor 

with the new 

visitor count

Public Access 

and Use 

Planning 

Hosted four 

public meetings 

to support 

public access 

and use 

planning

Initiated and 

assessment of 

market and 

revenue 

potential 

associated with 

public access 

and use of the 

preserve.

Initiated public 

access and use 

plan including 

additional 

public meetings

Published NOI 

in Federal 

register to 

initiate PAUP 

scoping process

Developed 

alternatives for 

public access 

and use –

alternative sites 

for 

development, 

scales of 

development 

and 

transportation 

methods, 

sought public 

comment.

Continued with 

environmental 

analysis of 

public access 

and use plan. 

The preserve 

was selected as 

a site for a 

national design 

competition 

sponsored by 

the National 

Park Service and 

Van Alen 

Institute.

More accurate 

visitor count 

aids Public 

Access and Use 

Planning

Goal #3 - Provide sustained yield management of the Baca Ranch for timber 

production and domestic livestock grazing insofar as is consistent with the 

other purposes stated herein.

The preserve’s lands encompass just under 60,000 acres of conifer forest and, at the time the 

Trust was established, these lands were envisioned as a possible source of revenue toward the 

Preservation Act’s goal of making the land a model for multiple-use sustained-yield 

management. But the Trust’s forest inventories have revealed a lack of marketable timber,
Page 19 of 23

significant ecological departure and the potential high severity fire. While the ecological 

departure has been brought about by a variety of factors including logging, grazing and the 

exclusion of fire, the dearth of large and old trees is the direct result of past logging practices. 

Intensive logging since the 1930’s removed the largest and healthiest trees, often through 

clear-cutting with little to no thought to sustainability. Therefore, the Trust’s forest 

management efforts to date and into the foreseeable future will focus on restoring forest 

health, reducing the risk of large fires, and protecting watersheds. These efforts have also 

included identifying the most effective means of reducing hazardous fuels and a potential 

market for the sale of wood products (poles, mulch, pellets), sometimes in collaboration with 

local businesses. 

Given that the Act requires keeping the preserve as a working ranch, grazing has been a central 

activity since the Trust began. Over the years, the grazing program’s objectives, scope, and size 

have changed repeatedly, in response to annual scientific assessments of forage availability, as 

well as shifting directives from the Board. In addition, because the preserve is now federal land, 

continued grazing required completion of a NEPA environmental assessment. The Trust’s 

ultimate goal is to create a long-term grazing program that is ecologically as well as 

economically sustainable.

To date, the Trust has piloted a number of grazing programs, beginning in 2002 with a small 

drought-relief program, which allowed just over 700 cow-calf pairs belonging to local ranchers 

to graze on preserve pastures for 5 weeks. The Trust also hosted a “conservation stewardship” 

program for local ranchers, allowing about 200 cattle in each of 2 years to graze on preserve 

lands for about 4 months while the ranchers implemented conservation measures on their own 

lands. In addition, the Trust has conducted a breeding program for 3 years to benefit local 

ranchers and has tested varied cattle management tools in an attempt to net financial gain for 

all participants. In 2006, the Trust switched to a research-oriented grazing program, which 

assessed the effects on cattle forage of controlled burning of the grasslands; initial findings 

suggested that such burning improved forage quality. Then in 2008, the Trust attempted to 

make a profit from grazing, allowing nearly 2,000 head of cattle to graze at the preserve over a 

4-month period resulting in $58,000 in gross revenues. Because the cattle were brought in from 

Mexico and were sold in Texas, this effort prompted local criticism. Moreover, the sheer 

number of cattle created conflicts with fishing and other recreational activities. 

In 2009, grazing once again took on a research emphasis and was intended to benefit local 

communities. A joint proposal presented by New Mexico State University, Jemez Pueblo and 

The New Mexico Beef Cattle Performance Association (NMBCPA) was selected because it 

included community, educational, economic and scientific elements that extend benefits 

beyond the borders of the preserve. The plan focused on the development of a high altitude 

performance testing facility for virgin bulls and replacement heifers. The program also 

developed a grazing plan to benefit both the natural resources and performance of grazing 

cattle and included local cattle growers from the Jemez Pueblo Livestock Association. In 

addition to raising its cattle on the lush pastures of the Valles Caldera the Jemez Pueblo and its 

Livestock Association benefitted through a summer rest period of its pastures which enhanced 
Page 20 of 23

the condition of its grazing lands. The result was a healthier, stronger, and more profitable herd 

as well as a more resilient home rangeland.

The joint program ran for three consecutive grazing seasons through the summer of 2011. The 

Las Conchas Fire impacted a small percentage of the grazing lands and forced the removal of 

some cattle from the preserve for safety reasons. However, all indications are the pastures will 

return for a 2012 grazing season provided the forage and range readiness report support such 

an endeavor.

Table 5 - Summary of accomplishments during 2007-2011 toward the goal of providing 

sustained yield management for timber and livestock grazing.

Ranching 2007 2008 2009 2010 2011

Livestock 

Program

Trust made a 

profit from 

grazing after 

instituting an 

RFP process 

Trust ran its 

largest cattle 

operation ever 

w/ 1960 

yearlings and a 

profit of 

$58,172.

High altitude 

bull evaluation 

program 

included in 

grazing program 

High altitude 

bull evaluation 

program 

included Jemez 

Pueblo and 

Navajo nation 

cattle growers. 

High altitude 

bull program 

run for third 

consecutive 

year.

220 locally 

owned cattle 

participate

Cattle grazing 

field day for 

local cattle 

growers 

provides 

education on 

bovine diseases

60 day field trial 

conducted to 

determine 

effectiveness of 

feed 

supplement.

MUSY 

Management

Trust completed 

an 

Environmental 

Assessment (EA) 

with a FONSI

Public comment 

completed on 

EA and decision 

implemented

National Youth 

Ranch Camp 

hosted by 

NMSU and VCT

Goal #4 - Incorporate elements of public and private administration to 

promote long term financial sustainability consistent with other purposes of 

the law.
Page 21 of 23

The Preservation Act envisioned the timber, grazing, and recreational resources of Valles 

Caldera as potential generators of revenue that would put the Trust on the path toward 

financially self-sustaining land management. Over its existence, the Trust discovered it had no 

marketable timber, but has experimented with a number of grazing options and expanded 

recreational opportunities. Collectively, from 2007 through 2011, the Trust’s grazing, 

recreation, and other activities generated an annual average of about $711,000 in gross 

revenues. Since its inception in 2000 through 2011, the Trust received almost $38 million in 

federal funding for an annual average of about $3.45 million during the period. 

Table 6 - Summary of accomplishments during 2007-2011 toward the goal of using public and

private administration practices to promote long term financial sustainability.

Promote 

Financial 

Sustainability 

2007 2008 2009 2010 2011

Employ Best 

Business 

Practices

Converted 

accounting from 

NBC to NFC 

which reduced 

annual 

administrative 

costs by ~225k 

Signed 

agreement with 

USFS ASC to 

provide 

management 

reports

Digital 

communications 

system installed 

and operational 

on preserve

Trust employed 

12-15 local 

residents

Trust contracted 

with Entrix to 

develop a 

business plan to 

maximize 

revenues

Entrix report 

completed and 

published

IT extended to 

new facilities 

including SEC 

and Bridge 

House

Began 

conversion from 

Pay band to GG 

pay system and 

classification.

Conducted 

review of key 

administrative 

policies

Local Internet 

service and 

bandwidth 

improved 

through 

upgrades to 

MPLS and EIA 

lines an 

installation of 

PBSX VLS system

Conduct 

Financial Audits

Contract to 

conduct 

financial audits 

2004-07 

awarded and 

begun in Sept.

Financial audits 

for year 2004-

2008 completed. 

The audit 

reported 25 

findings of which 

15 were material 

found in the 

initial audit for 

2004.

Financial audit 

for FY 2009 was 

completed with 

six findings of 

which one was 

material, and 

unqualified 

results.

Financial audit 

for FY 2010 

completed. The 

audit reports six 

findings and 

unqualified 

results. It was 

the first audit 

w/o a material 

finding. 
Page 22 of 23

Marketing and 

Communications

Attended 

multiple trade 

show marketing 

events to 

promote 

fishing,, elk 

hunting and 

turkey hunting

Attended 

multiple trade 

show marketing 

events to 

promote 

fishing,, elk 

hunting and 

turkey hunting

Marketing and 

communication 

manager hired 

and advertising 

budget assigned 

Initial 

marketing/adver

tising effort 

generated 2 

million 

impressions

Attended 

multiple trade 

show marketing 

events to 

promote 

fishing,, elk 

hunting and 

turkey hunting

Marketing/adver

tising expands to 

social media, 

regional /local 

print and radio.

Combination of 

all media 

generates ~ 9 

million 

impressions 

increases 

attendance by 

59% and 

revenue by 15%

Redesign and 

distribution of 

brochures 

features Super 

Volcano

Marketing and 

advertising 

expands to 

multiple radio 

outlets and 

local media and 

a more 

Despite fire and 

media deobligations 

impressions 

exceed 10 

million

Attended 

multiple trade 

show marketing 

events to 

promote 

fishing,, elk 

hunting and 

turkey hunting

Income From 

Timber 

Operations

Small diameter 

trees chipped on 

site and 

removed for 

landscaping 

material, 

eliminating slash 

disposal costs.

Federal Grant 

(ARRA) funded 

forest thinning 

activities. 

Trust and SFNF 

awarded 35 

million to fund 

forest 

restoration 

activities over 

10-years.
Page 23 of 23

Conclusion

Fiscal year 2011 was a year of wildfire, uncertainty and transition. When the Las Conchas fire 

scorched 30,000 acres of the preserve, it had a profound impact on both the geographical and 

business future of the Valles Caldera Trust. The current pending legislation, which calls for the 

transfer of the management of the preserve to National Park Service, created uncertainty 

among employees as well as potential business partners. These factors, combined with the 

uncertain economic future of the Trust, a change in leadership, and the resizing of the 

organization, marked the beginning of a transition from the interim management of the 

preserve to a more comprehensive management. This comprehensive approach will be the 

roadmap for the management strategy for the next seven years. 

A key element in the transition from interim to comprehensive management was the creation 

and implementation of a Strategic Plan (SP). The SP will take into account the recent changes in 

the current political, economic and ecological landscapes. The SP will describe the future 

direction of the agency and will include a set of broad goals for the management of the 

preserve. It will focus on the stewardship of the preserve while improving public access and 

use. 

We plan to submit the SP to the Office of Management and Budget (OMB) for review in 

February 2012. Once the SP is approved by OMB and Congress, the Trust will develop an Annual 

Performance Plan (APP). The APP will define, among other things, annual work plans, budgets 

and individual performance goals that align directly with goals and objectives articulated in the 

SP. In addition, the APP will include specific and measurable milestones for the achievement of 

the performance goals. The Trust expects to submit the APP within 60 days of the approved SP. 

The Trust will also prepare an annual Report to Congress (RTC) which will detail the planned 

goals and accomplishments of FY 2012. The annual report will be submitted no later than 

January 15, 2013.

As we have progressed with the management of the preserve, the experimental nature of the 

Trust has allowed many successes. Specifically, in the areas of science-based adaptive resource 

management programs, integration of research and education, unique outdoor recreation 

programs, collaborative partnerships with primary stakeholders, and an unprecedented 

recovery of direct costs associated with the management of a unit of National Forest System 

land. In conclusion, the accomplishments of the Trust and the staff are admirable when one 

considers the natural and political challenges that faced the agency during Fiscal Year 2011.