Red Cliffs National Conservation Area

Record of Decision

and

Approved Resource Management Plan
Red Cliffs National Conservation Area

Record of Decision

and

Approved Resource Management Plan

Prepared by the

U. S. Department of the Interior

Bureau of Land Management 

St. George Field Office

December 2016

Edwin L. Roberson

Utah State Director

Bureau of Land Management
Red Cliffs National Conservation Area Introduction iii

DEAR READER LETTER

 United States Department of the Interior

 BUREAU OF LAND MANAGEMENT

 Utah State Office

 P.O. Box 45155

 Salt Lake City, UT 84145-0155 

 http://www.blm.gov

In reply to:

1610 (UTC03100)

DOI-BLM-UT-C030-2015-1-EIS

Dear Reader:

I am pleased to announce that after several years of hard work and collaborative efforts, the Red Cliffs National 

Conservation Area (NCA) Resource Management Plan (Approved RMP) is complete. This document will provide 

direction for the management of approximately 45,000 acres of BLM-managed public lands in Washington County, 

in southwestern Utah. The attached Record of Decision (ROD) and Approved RMP were prepared in accordance 

with the Federal Land Policy and Management Act, Omnibus Public Land Management Act of 2009, and the 

National Environmental Policy Act. 

The Approved RMP finalizes the management goals, objectives, and decisions that were presented in the Proposed 

RMP/Final Environmental Impact Statement (Final EIS), released on September 2, 2016 and subject to a 30-day 

protest period that ended on October 3, 2016. Twenty one protest letters were received from entities that had participated in the planning process and that had interests that might be adversely affected by approval of the RMP. The 

protests were reviewed by the BLM Director in Washington, D.C. After careful consideration of all points raised in 

these protests, the Director concluded that the BLM planning team and decision makers followed all applicable laws, 

regulations, policies, and pertinent resource considerations in developing the Proposed RMP/Final EIS. The protest 

review did not result in any changes being made in the Proposed RMP.

My approval of this ROD serves as the final decision by the Department of the Interior for all land use planning 

level decisions included in the attached Approved RMP. Certain decisions in the Approved RMP are implementation decisions and are appealable to the Interior Board of Land Appeals. These implementation level decisions are 

noted in the ROD (Recreation Management Decisions REC-19 through REC-60) and are appealable under the Code 

of Federal Regulations (CFR) at 43 CFR, part 4. Any party adversely affected by the implementation level decisions 

may appeal within 30 days of publication of the Approved RMP, in accordance with the provisions of 43 CFR, part 

4, subpart E. The appeal should state the specific numbered decision and the rationale for the appeal. Within 30 days 

of the posting of this decision (“date of service”), a Notice of Appeal must be filed in writing to: State Director-BLM 

Utah State Office 440 West 200 South, Suite 500 Salt Lake City, Utah 84101-1345. At the same time, a copy of the 

Notice of Appeal must also be sent to: Regional Solicitor- U.S. Department of the Interior, 6201 Federal Building, 

1235 South State Street, Salt Lake City, Utah 84138-1180. Please consult the appropriate regulations (43 CFR, part 

4, subpart E) for further appeal requirements.

The ROD/Approved RMP are available to the public online at http://bit.ly/2fhtN3P. Hard copies of the ROD and 

Approved RMP may be reviewed at:

Public Lands Information Center

345 East Riverside Drive

St. George, Utah 84790-6714
iv Introduction Red Cliffs National Conservation Area Red Cliffs National Conservation Area Introduction v

DEAR READER LETTER

Color Country District Office

176 East DL Sargent Drive

Cedar City, Utah 84721-9337

Public Room

BLM Utah State Office

440 West 200 South, Suite 500

Salt Lake City, Utah 84101-1345

We greatly appreciate all who contributed to the completion of this Approved RMP, including other Federal and 

State agencies, and representatives from the State of Utah, Washington County, Utah, and Mojave County, Arizona, 

the entities that were Cooperating Agencies on this planning effort. We also appreciate the involvement by individuals, groups, and organizations, as public input informed and improved the planning documents. We look forward to 

working with all of you as we implement the decisions in the Approved RMP.

 

Sincerely,

 Edwin L. Roberson

Utah State Director

Bureau of Land Management

TABLE OF CONTENTS

Table of Contents

Record of Decision

1.0 Introduction....................................................................................................................................................3

1.1 Purpose and Need...............................................................................................................................3

1.2 Description of the Planning Area.......................................................................................................3

2.0 Overview of the Alternatives ....................................................................................................................... 6

2.1 Alternative A (No Action)...................................................................................................................7

2.2 Alternative B (BLM's Preferred Alternative) ....................................................................................7

2.3 Alternative C (Environmentally Preferable) .....................................................................................7

2.4 Alternative D .................................................................................................................................... 8

2.5 Proposed RMP .................................................................................................................................. 8

3.0 Results of Protest Review ............................................................................................................................ 8

4.1 What the Decision/RMP Provides..................................................................................................... 9

4.2 What the Decision/RMP Does Not Provide ....................................................................................10

4.3 Implementation Decisions ..............................................................................................................10

4.4 Supplementary Rules ......................................................................................................................10

5.0 Management Considerations in Selecting the Approved RMP..................................................................11

5.1 Water Resources ...............................................................................................................................11

5.2 Geologic and Paleontological Resources.........................................................................................11

5.3 Soil Resources ...................................................................................................................................11

5.4 Native Vegetation Communities ......................................................................................................11

5.5 Special Status Species–including Threatened, Endangered, Candidate, and 

Species Proposed for Listing under Endangered Species Act....................................................11

5.6 Fish and Wildlife Habitat ..................................................................................................................11

5.7 Heritage Resources.......................................................................................................................... 12

5.8 Recreation and Visitor Services ...................................................................................................... 12

5.9 Comprehensive Travel and Transportation Management............................................................. 12

5.10 Lands and Realty Management..................................................................................................... 12

6.0 Consistency and Consultation Review........................................................................................................ 12

6.1 Governor’s Consistency ................................................................................................................... 12

6.2 Consultation under the National Historic Preservation Act.......................................................... 12

6.3 Consultations with American Indian Tribes.................................................................................... 13

6.4 Section 7 Consultation under the Endangered Species Act.......................................................... 13

7.0 Mitigation Measures.................................................................................................................................... 13

8.0 Approved RMP Monitoring and Evaluation ............................................................................................... 13

9.0 Public Involvement......................................................................................................................................14

10.0 Availability of the Plan................................................................................................................................14

1.0 Introduction..................................................................................................................................................19

2.0 Consideration of Other Plans ......................................................................................................................19

3.0 Plan Implementation ...................................................................................................................................19

3.1 Maintaining the Plan ........................................................................................................................19

3.2 Changing the Plan ...........................................................................................................................19

Approved Resource Management Plan

4.0 Plan Evaluation ............................................................................................................................................20

5.0 Adaptive Management................................................................................................................................20
vi Introduction Red Cliffs National Conservation Area Red Cliffs National Conservation Area Introduction vii

TABLE OF CONTENTS TABLE OF CONTENTS

6.0 Management Decisions............................................................................................................................... 21

6.1 Air Quality ......................................................................................................................................... 21

6.2 Water Resources..............................................................................................................................22

6.3 Geologic and Paleontological Resources .......................................................................................23

6.4 Cave and Karst Resources...............................................................................................................25

6.5 Soil Resources..................................................................................................................................25

6.6 Native Vegetation Communities.....................................................................................................26

6.7 Riparian Vegetation ........................................................................................................................27

6.8 Fire and Fuels Management ...........................................................................................................29

6.9 ES&R and Other Native Vegetation Community Restoration.......................................................30

6.10 Noxious Weeds and Invasive Species ...........................................................................................32

6.11 Vegetation Resource Uses: Livestock Grazing..............................................................................33

6.12 Vegetation Resource Uses: Plant Materials..................................................................................35

6.13 Special Status Species – Including Threatened, Endangered, Candidate, 

and Species Proposed for Listing under ESA..............................................................................35

6.14 Special Status Wildlife Species – Including Threatened, Endangered, 

Candidate, and Species Proposed for Listing under ESA...........................................................36

6.15 Special Status Bird Species: Southwestern Willow Flycatcher, Western 

Yellow-Billed Cuckoo, and Other Riparian-Dependent Special Status Species.........................38

6.16 Special Status Bird Species: California Condor.............................................................................38

6.17 Special Status Species: Mojave Desert Tortoise ...........................................................................39

6.18 Special Status Fish Species: Woundfin Minnow and Virgin River Chub....................................... 41

6.19 BLM Sensitive Species ................................................................................................................... 41

6.20 BLM Sensitive Native Fish Species................................................................................................42

6.21 BLM Sensitive Raptor Species .......................................................................................................43

6.22 Migratory Birds and Birds of Conservation Concern................................................................... 44

6.23 BLM Sensitive Mammal Species....................................................................................................45

6.24 Sensitive Reptile and Amphibian Species.................................................................................... 46

6.25 Other Fish and Wildlife Habitat.................................................................................................... 46

6.26 Heritage Resources .......................................................................................................................47

6.27 Wilderness (Red Mountain and Cottonwood Canyon)................................................................54

6.28 Areas of Critical Environmental Concern......................................................................................54

6.29 Visual Resource Management ......................................................................................................54

6.30 Natural Soundscapes.....................................................................................................................55

6.31 Recreation and Visitor Services .....................................................................................................55

6.32 Comprehensive Travel and Transportation Management...........................................................62

6.33 Lands and Realty........................................................................................................................... 64

References

Bibliography ....................................................................................................................................................... 71

Glossary & Abbreviations-Acronyms

Glossary ..............................................................................................................................................................75

Abbreviations-Acronyms .................................................................................................................................. 89

Appendices

Appendix A.........................................................................................................................................................93

Appendix B.......................................................................................................................................................109

Appendix C ........................................................................................................................................................ 111

Appendix D.......................................................................................................................................................267

Appendix F ....................................................................................................................................................... 291

Appendix G.......................................................................................................................................................295

Appendix H.......................................................................................................................................................303

List of Tables

Table 1 Surface Acre Administration in Red Cliffs National Conservation Area ................................................3

Table 2 Use Allocation Categories.....................................................................................................................23

Table 3 Vegetation Management Toolbox........................................................................................................28

Table 4 Red Cliffs NCA Recreation Management Zone Descriptions ..............................................................59

List of Maps

Map 1 Red Cliffs National Conservation Area .....................................................................................................4

Map 2 Livestock Grazing Management ............................................................................................................34

Map 3 Heritage Management Areas.................................................................................................................53

Map 4 Visual Resource Management .............................................................................................................. 56

Map 5 Special Recreation Management Area ..................................................................................................58

Map 6 Authorized Climbing Areas ....................................................................................................................63

Map 7 OHV Area Designations ......................................................................................................................... 65

Map 8 Linear ROW Exclusion & Avoidance Areas ............................................................................................67

Record of Decision
Red Cliffs National Conservation Area ROD 3

Record of Decision

1.0 INTRODUCTION

This Record of Decision (ROD) culminates a six-year 

public planning process and documents the Bureau of 

Land Management’s (BLM’s) decision for management 

of the Red Cliffs National Conservation Area (NCA), as 

presented in the approved Resource Management Plan 

(Approved RMP). This document provides background 

information on the planning process and a rationale for 

the selection of the management goals, objectives, and 

decisions in the Approved RMP.

1.1 Purpose and Need

The purpose of this planning process has been to satisfy specific mandates from the Omnibus Public Land 

Management Act of 2009 (16 U.S.C 7202, Public Law 

111-11), hereinafter referred to as OPLMA. Title I, 

Subtitle O of OPLMA concerns public lands managed 

by the BLM in Washington County, Utah (Appendix A). 

Congress established the Beaver Dam Wash NCA and the 

Red Cliffs NCA in Washington County when, on March 

30, 2009, President Barack Obama signed OPLMA into 

law. Sections 1974 and 1975 of Title I, Subtitle O designated the two NCAs and directed the Secretary of the 

Interior (Secretary), through BLM, to develop comprehensive plans for the long-term management of each 

NCA. This same legislation also directed the BLM to take 

actions and make land use allocations on public lands 

in Washington County that required the St. George Field 

Office Record of Decision and Resource Management Plan

(RMP approved in 1999, amended in 2001) (BLM 1999) 

be amended. The three planning efforts were initiated 

concurrently by the BLM in 2010, thereby facilitating the 

preparation of a single Environmental Impact Statement 

(EIS) to disclose the environmental consequences of 

implementing the new land use plans for the two NCAs 

and an amendment to the current St. George Field Office 

RMP. 

Section 1974 (d) (1) identifies the following 

Congressionally-defined purposes for the Red Cliffs 

NCA: 

To conserve, protect, and enhance for the benefit and 

enjoyment of present and future generations the ecological, scenic, wildlife, recreational, cultural, historical, natural, educational, and scientific resources of 

the National Conservation Area; and 

To protect each species that is located in the National 

Conservation Area; and listed as a threatened or endangered species on the list of threatened species or 

the list of endangered species published under... the 

Endangered Species Act of 1973. (OPLMA Section 

1974 (a))

Land use planning goals, objectives, and management 

decisions approved in the RMP for the Red Cliffs NCA 

must be consistent with the designation purposes, 

authorized uses, and other direction in OPLMA that 

relates to this NCA. Regarding authorized uses, OPLMA 

at Section 1974 (e) (2) specified that “the Secretary shall 

only allow uses of the National Conservation Areas that 

the Secretary determines would further the purpose” for 

which the NCA was designated. OPLMA at Section 1974 

(g) (1) specifically restricts allowable uses by withdrawing the public lands of this NCA, subject to valid existing 

rights, from: 

All forms of entry, appropriation, and disposal under 

the public land laws; 

Location, entry, and patenting under the mining 

laws; and 

Operation of the mineral leasing, mineral materials, 

and geothermal leasing laws.

1.2 Description of the Planning Area

The Red Cliffs NCA is comprised of approximately 

45,000 acres of BLM-administered surface acres in 

southcentral Washington County (Map 1). Within the 

boundaries of the NCA are state and private lands; acreage totals for all lands are shown in Table 1. Management 

goals, objectives, and actions approved in the RMP apply 

only to the BLM-administered public lands of the NCA. 

All acquired lands within the NCA would be managed consistent the direction in OPLMA, other relevant 

Federal laws, regulations, and agency policies and in 

conformance with the Approved RMP. 

The public lands of Red Cliffs NCA are within the annexation zones of Washington County’s five largest 

cities: Hurricane, Ivins, Santa Clara, St. George, and 

Washington. Residential and rural residential subdivisions, light industrial areas, commercial and retail 

INTRODUCTION

Agency or Entity Acre

BLM 24,870

BLM Wilderness Areas 19,989

Private 2,631

State of Utah 13,735

Total 61,225

Table 1 Surface Acre Administration in Red Cliffs National 

Conservation Area
Red Cliffs

National Conservation

Area

M o u n t a i n s R e d

Clara Bench

S o u t h H i l l s

White Hills

Boomer Hill

Canyon

Municipal Airport

Bloomington

RadioTower

Webb

Gag ni g Station

Hospital

College Dixie

Black Ridge

South Black Rocks

Nichols Peak

Wash ni g ot n Dome

Beacon

Warner

Black Rocks

North

L a v a R i d g e

B i g

G u l c h

S a n d Hol ol w

cuB ksk ni

C a n y o n

LAVA

S n o w

LAVA

Gravel

Pit

D i a m o n d

V a l l e y

POWERLINE

A l g e r G u l c h C e d a r

H o l l o w

B e n c h

A l g e r

o H ol l w

S p r ni g Twin Peaks

Yellow Knol sl

East Valley

al B kc

Harr si burg D mo e

Washington Hollow

Yant

Flat

Hollow Big

Harr si bu gr Bench

Sandstone Mountain

Sand Dunes

Sand Dunes

Sand Dunes

U H R R CI N A E

F r o g Hurricane

Airport

L C FI S F

Sullivan Knoll

1902

1085

935

1104

903

1227

1004

1038

1016

1002

M O U N T A I N

S A N D

Wash

Upper San at Ivins Reservoir

r D y

Lower Santa Clara hs a W Clara

Bench

Bench

Santa

Clar

C

a

anal

Canal

Cottonwood

Wash

Curly

Hollow

Box Canyon Stucki Spring

Wash

Wash

Cove

Santa Clara

St George

Canal

Pr ci e Bench Ditch

V ri g ni

Spring

West St George

Springs UQA UDE TC

Ci yt

Spring

Miller Spring

H l a wf ay

Santa Clara Reservoir

River

hs a W

er C ke

di M l d ot e n

Green Spring

a C

not gni hs a W nal

Ha dr er

Ditch

R vi er

egr oe Gt S

and

Snow Spring

Spring

Spring

AQUEDUCT

hs a W

Spring

Creek Mill

ss aP

hs a W Spring

ar G ep ni v e

Cot ot wn ood

Wash

Warner Valley

Spring

Cottonwood

Spring

C o t t o n w o o d

C r e e k C r e e k

H e a ht

h s a W

B i t t e r

C r e e k

R o c k

C r e e k

l at I n ai

G r a p e v i n e W a s h

C r e e k L e e d s

Q u a i l

Spring

Berry Springs

Sand Mountain

Spring

Bench Lake

Gould Reservoir

kr o W na m Wa

G o u l d hs

u H rr ci na e a C an l

Dixie Hot Springs

L a V e r k i n

Spring

C r e e k Sand

Hollow

Reservoir

Quail

Creek

Reservoir

Old Highway 91

Leeds

Ivins

La Verkin

Hurricane

Washington

St. George

Toquerville

Santa Clara

National Conservation Area BoundaryBLM Wilderness AreaBureau of Land ManagementIndian ReservationState

State Parks and RecreationState Wildlife Reserve/Management AreaUS Forest Service (USFS)USFS Wilderness Area

R

e

d

Cliffs

N

atio

n

al C

o

n

s

erv

atio

n

Are

a (N

C

A) Produced by BLM

St. George Field Office GIS

Location Map

0 1 2 0.5 Miles0 1 2 0.5 Kilometers

This product may not meet BLM standards

for accuracy and content. Different data

sources and input scales may cause

some misalignment of data layers.

No warranty is made by the BLM for use of

the data for purposes not intended by the BLM.

Note: Decisions in this document

only apply to BLM lands

4 ROD Red Cliffs National Conservation Area Red Cliffs National Conservation Area ROD 5

businesses, and Interstate Highway 15 (I-15) ring the 

southern, western and eastern boundaries of the NCA. 

More than 130 miles of designated hiking, mountain 

biking, and equestrian trails are available for public use 

in the Red Cliffs NCA. The Red Cliffs NCA also includes 

the Red Cliffs Recreation Area, a popular developed fee 

site recreation area that BLM has managed for camping 

and day use since the mid-1960s.

Two designated Wilderness areas are totally or partially 

within the boundaries of the Red Cliffs NCA. The 11,668 

acre Cottonwood Canyon Wilderness, included in the 

National Wilderness Preservation System (Wilderness 

System) in 2009 through OPLMA, is located entirely 

within the Red Cliffs NCA. It shares a common boundary with a portion of the Cottonwood Forest Wilderness, 

managed by the Pine Valley Ranger District of the Dixie 

National Forest, also added to the Wilderness System by 

OPLMA. Approximately 8,321 acres of the 18,689 acre 

Red Mountain Wilderness, included in the Wilderness 

System in 2009, are located within the Red Cliffs NCA. 

Hikers, backpackers, and equestrians enjoy outstanding primitive recreation, opportunities for solitude, and 

natural quiet within the Cottonwood Canyon and Red 

Mountain Wilderness areas, just minutes from the most 

urbanized areas of Washington County.

The public lands of the Red Cliffs NCA comprise approximately 70% of the land base of the approximately 62,000 

acre, multi-jurisdictional Red Cliffs Desert Reserve 

(Reserve). The Reserve was established by Washington 

County’s multi-species Habitat Conservation Plan (HCP), 

approved by the United States Fish and Wildlife Service 

(USFWS) in 1995. In 1996, BLM, USFWS, the State of 

Utah, Washington County, and the City of Ivins signed 

an HCP Implementation Agreement that specified the 

obligations and responsibilities of the governmental entities that manage lands within the Reserve.

The Reserve’s land base encompasses designated critical 

habitat for the federally-listed threatened Mojave desert 

tortoise within the Upper Virgin River Recovery Unit. 

This recovery unit was identified as the smallest and 

most at-risk recovery unit within the Mojave desert tortoise’s range by the Mojave Desert Tortoise Recovery Plan

(USFWS 1994, revised 2011). Since its establishment 

in 1995, the multi-agency management of the Reserve’s 

land base has emphasized the protection of habitat and 

tortoise populations, through restrictions on land uses 

and human activities. In 1996, Washington County was 

issued an Incidental Take Permit (ITP) authorizing the 

development or “take” of approximately 12,264 acres of 

non-federal lands in critical habitat and the loss of 1,169 

tortoises, based on the mitigation afforded by restrictive 

management of the Reserve and other commitments 

made through the HCP and Implementation Agreement.

1.3 Purpose, Significance, and Mission Statement 

for the NCA

Purpose, significance, and a mission statement were 

developed by the BLM for the Red Cliffs NCA, to clarify 

why these public lands were given special designation by 

Congress in 2009 and to guide the preparation of a new 

RMP.

Purpose: To conserve, protect, enhance, and restore the 

ecological, scenic, wildlife, recreational, cultural, historical, natural, educational, and scientific resources of the 

Red Cliffs NCA, for the benefit and enjoyment of present 

and future generations. As Congress did not specifically 

define the resource values that give significance to this 

NCA, BLM resource professionals identified a number of 

the natural and cultural resources within NCA that are 

unique and scientifically important. These are but a few 

of the resource values that make the public lands of the 

NCA worthy of inclusion in BLM’s system of National 

Conservation Lands and include the following:

▶ Massive exposures of the Jurassic age Kayenta 

Formation and Navajo Sandstone that preserve scientifically important dinosaur tracks and trackways, 

bone beds, plant fossils, and silicified wood;

▶ Rich ecological diversity resulting from the convergence of three major ecoregions: the Mojave Desert, 

Colorado Plateau and Great Basin;

▶ Critical habitats that sustain high densities of the 

threatened Mojave desert tortoise and other Mojave 

Desert species;

▶ Critical habitat for the endangered Shivwits 

milkvetch, a small native plant that grows only in 

Washington County on specific soil types;

▶ The Virgin River, Quail, and Leeds Creeks that provide aquatic habitat for the threatened and endangered native fish of the Virgin River system; riparian zones along these streams that support diverse 

native species and migratory birds;

▶ Scenic landscapes of the Red Mountain and 

Cottonwood Canyon Wilderness areas that provide 

outstanding opportunities for solitude, natural 

quiet, primitive and unconfined recreation, and 

high quality wilderness experiences;

MAP 1 RED CLIFFS NATIONAL CONSERVATION AREA INTRODUCTION
6 ROD Red Cliffs National Conservation Area Red Cliffs National Conservation Area ROD 7

▶ Archaeological sites that preserve evidence of 

Archaic, Ancestral Puebloan, and Southern Paiute 

occupations and land uses; and

▶ Mid-19th century and later historic period sites and 

features relating to the Euro-American settlement 

of southern Utah, including wagon roads, irrigation 

systems, farmsteads, mining sites, and the early 20th 

century Arrowhead Trails Highway.

Significance: The Red Cliffs NCA resources are significant from a regional and national perspective because 

they afford:

▶ Opportunities for scientific study of Early and 

Middle Jurassic age paleo-environments;

▶ Opportunities for conservation, protection, restoration, scientific study, public use and interpretation 

of an array of Jurassic-age paleontological resources, 

including scientifically important plant fossils, bone 

beds, and track sites;

▶ Opportunities for restoration of critical habitats for 

the threatened Mojave desert tortoise and other atrisk native species of this ecoregion.

▶ Opportunities for restoration and protection of 

crucial seasonal ranges and migration corridors for 

mule deer;

▶ Opportunities to reintroduce native Desert bighorn 

sheep to former habitats in the Red Mountain and 

Cottonwood Canyon Wilderness areas;

▶ Opportunities for scientific research in City Creek 

and Paradise Canyon, where research on the Mojave 

desert tortoise has been ongoing since the 1950s;

▶ Opportunities for solitude, natural quiet, dark 

night skies, primitive and unconfined recreation 

in the Red Mountain and Cottonwood Canyon 

Wilderness areas, just minutes from the largest cities in Washington County;

▶ Opportunities for conservation, protection, restoration, scientific study, public use and interpretation of an array of prehistoric and historic period 

archaeological sites, documenting the broad span of 

human history in southwestern Utah;

▶ Opportunities for sustainable outdoor recreation 

on public lands that enhance the quality of life for 

local residents and visitors and help to sustain the 

economic health of local communities;

▶ Opportunities for broad-based scientific, academic, 

and community partnerships, volunteer programs, 

youth and veteran training, and employment initiatives, developed to enhance public appreciation 

and citizen stewardship of the NCA resources and 

values.

Mission: The mission for BLM management of the Red 

Cliffs NCA is to conserve and protect the ecological, 

geological, cultural, and biological resources of the public 

lands; to assist the recovery and delisting of federal and 

state-listed species; to restore native species habitats and 

populations; to sustain functional ecosystems that support species’ resilience to climate change; and to enhance 

opportunities for scientific research, environmental education, sustainable recreational uses, and citizen stewardship of public lands.

2.0 OVERVIEW OF THE ALTERNATIVES

Four alternatives were presented in the Draft Red Cliffs 

NCA RMP and associated Draft EIS, released for public review on July 17, 2015. The four alternatives analyzed in the draft included: Alternative A (No Action), 

Alternative B (BLM’s Preferred Alternative), Alternative 

C, considered the environmentally preferable alternative, offering the most intensive and protective management of the resource values within the NCA and the 

most restrictions on authorized uses, and Alternative D. 

Summaries of each alternative are found below. These 

alternatives contained goals, objectives, and management 

decisions for the NCA that were designed to address the 

long-term management of public land resources and 

land uses, while fulfilling the conservation purpose of the 

NCA included in OPLMA.

Implementing regulations for NEPA require the formulation of a reasonable range of alternatives to address 

identified resource conflicts or concerns in the development of land use plans. Each alternative must meet the 

purpose and need for the plan, be viable and reasonable, 

be responsive to issues identified in scoping, and consistent with the established planning criteria. 

Public input received during the scoping process; input 

from Cooperating Agencies, and issues and concerns 

identified by BLM staff and management were considered in the development of the alternatives and their 

management options. A number of state agencies, including the Utah Division of Wildlife Resources (UDWR), 

provided data and input that assisted the development 

of alternatives. Other federal agencies, including the 

USFWS and the U.S. Forest Service (USFS) - Dixie 

National Forest participated in the planning process. The 

State of Utah; Washington County, Utah; and Mohave 

County, Arizona, as formal Cooperating Agencies to this 

planning process, and the Shivwits Band of the Paiute 

OVERVIEW OF THE ALTERNATIVES OVERVIEW OF THE ALTERNATIVES

Indian Tribe of Utah, were directly involved in the planning process and the development of alternatives. The 

Cooperating Agencies reviewed and provided comments 

on the preliminary drafts of the RMP/Draft EIS. 

2.1 Alternative A (No Action)

Alternative A (No Action) is required by NEPA and 

served as a baseline against which to compare the 

environmental consequences that could be associated 

with implementation of other alternatives. Under this 

alternative, management for the NCA would primarily 

be derived from management decisions in the existing 1999 St. George Field Office Record of Decision and 

Resource Management Plan, as amended. However, this 

alternative did reflect recent direction in OPLMA, such 

as the designation of the Cottonwood Canyon and Red 

Mountain Wilderness areas that are located within this 

NCA and the withdrawal of the public lands of this NCA, 

subject to valid existing rights, from the location, entry, 

and patenting under the mining laws and the operation 

of the mineral leasing, mineral materials, and geothermal 

leasing laws (OPLMA at Section 1974 (g) (1)).

Under Alternative A (No Action), the public lands of 

the NCA would continue to be managed to assist the 

recovery and de-listing of the threatened Mojave desert 

tortoise. A majority of the public lands would be unavailable for domestic livestock grazing and managed to 

restrict certain land uses, such as landfills, cross-country 

travel by motorized off-highway vehicles (OHVs) that 

result in the damage to or permanent loss of designated 

critical habitat for at-risk species. Outside of the two 

Wilderness areas, the public lands would be managed 

as an Avoidance area for new utility and transportation 

rights-of-way. However, new rights-of-way could be 

granted in the Avoidance area, when designated corridors or other feasible alternatives were not available.

While Alternative A (No Action) would provide considerable valid management direction for the NCA, in 

many instances, management decisions in the existing 

St. George Field Office RMP conflict with the direction 

in OPLMA or lacked the specificity needed for future 

management of the NCA

2.2 Alternative B (BLM's Preferred Alternative)

Alternative B attempted to balance resource protection and human uses of the public lands in the NCA. 

Management focused on protecting native vegetation 

communities, wildlife habitats, cultural resources, and 

the scenic qualities of the public lands from threats, 

particularly loss to or damage from wildland fires. The 

restoration of damaged lands was also emphasized under 

this alternative. Sustainable public recreation uses would 

be managed through zoning of the NCA, permitting, 

and the development of non-motorized trails, trailheads, 

interpretative signing, and other facilities that enhance 

visitor experiences. Emphasis was placed on environmental education, interpretation, and opportunities for 

citizen stewardship of NCA resources.

This alternative proposed to manage a majority of the 

NCA as an Exclusion area (41,023 acres) for new utility 

and transportation rights-of-way, but identified 3,652 

acres to be managed as Avoidance areas for new rightsof-way. Multiple criteria were included under this alternative to avoid or minimize impacts on NCA resource 

values that might result from the granting of new rightsof-way and the development of new utilities or transportation facilities in the Avoidance areas. This component 

of Alternative B complied with OPLMA, as the legislation includes the following provision with regard to new 

utility developments in the NCA:

(h) EFFECT.—Nothing in this section prohibits the 

authorization of the development of utilities within 

the National Conservation Area if the development 

is carried out in accordance with—(1) each utility development protocol described in the habitat 

conservation plan; and (2) any other applicable law 

(including regulations); (OPLMA Section 1974 (h)).

2.3 Alternative C (Environmentally Preferable)

This alternative represented an approach to the conservation and protection of resource values that emphasized higher levels of restrictions on certain land uses 

and activities, while continuing to allow for compatible 

public uses. Management of the NCA would also focus 

on protecting the ecological and scenic values of the 

NCA from damage or loss to natural and human-caused 

impacts. Restoration of damaged lands would emphasize 

the use of native vegetation species and the least invasive 

methods to accomplish goals and objectives. This alternative proposed three heritage areas where management 

would focus on the protection of prehistoric and history 

resources. Like Alternative B, this alternative emphasized 

environmental education outreach, interpretation, and 

scientific research.

Alternative C also proposed to manage 1,586 acres of the 

NCA identified as having wilderness characteristics to 

conserve, protect, and restore those values. BLM Manual 

6320 states that lands with wilderness characteristics 

must be considered during land use planning, using a 

recent and comprehensive inventory. Agency policy, as 
8 ROD Red Cliffs National Conservation Area Red Cliffs National Conservation Area ROD 9

outlined in BLM Manual 6320, gives the BLM broad discretion when choosing whether to manage for wilderness 

characteristics or to manage areas with wilderness characteristics for other uses, through its planning process.

Under Lands and Realty Management, Alternative C 

proposed to manage the entire NCA as an Exclusion area 

to new linear and site-type ROWs. The BLM believes this 

alternative is not consistent with the direction in OPLMA 

Section 1974 (h) cited above.

2.4 Alternative D 

Alternative D emphasized a broader array and higher 

levels of public use and access, while still meeting the 

NCA purposes of “conservation, protection, and enhancement” of diverse resource values and threatened 

and endangered species. Sustainable recreation uses 

of the NCA would be enhanced through the development of new, non-motorized trails and visitor facilities. 

Cultural and paleontological resources would be managed for conservation, scientific research, and public 

use. Like Alternatives B and C, this alternative identified 

environmental education outreach, interpretation, and 

scientific research as important components of BLM’s 

long-term management of this NCA. 

Since OPLMA provided for utility development within 

the Red Cliffs NCA under specific criteria, designated 

utility corridors along State Route 18 and Interstate I-15 

were proposed to be retained under Alternative D. The 

BLM proposed to designate a new 6,534 acre utility and 

transportation corridor through the NCA, in response 

to Washington County’s and other stakeholders’ requests. The corridor could accommodate new utilities, as 

directed by Section 1974 (h) of OPLMA, and any of the 

conceptual highway alignments proposed by the County 

for a “northern transportation route”, identified in 

OPLMA at Section 1977, under the Washington County 

Comprehensive Travel and Transportation Management 

Plan. At this section of the legislation, the Secretary of 

the Interior, through BLM, was directed to identify one 

more alternatives for a northern transportation route 

in the County, in consultation with appropriate Federal 

agencies, State, tribal, and local governmental entities 

(including the County and St. George City, Utah) and the 

public. The Comprehensive Travel and Transportation 

Management Plan will be development in the future, 

consistent with applicable laws, including appropriate 

public involvement.

The analysis of environmental impacts for Alternative 

D in the Draft EIS disclosed that the designation of this 

new 6,534 acre utility and transportation corridor would 

not satisfy the conservation purposes of the NCA for 

many resource values, including threatened and endangered species, cultural resources, scenic qualities, and 

recreation uses, as developments within the corridor 

would create significant impacts on these resources.

2.5 Proposed RMP

The BLM’s land use planning process (described in the 

Code of Federal Regulations at 43 CFR 1600) provides the 

discretion to develop the proposed plan by combining 

components of the four alternatives that were presented 

in the Draft RMP and associated Draft EIS. 

The Proposed Red Cliffs NCA RMP was based primarily 

on the management goals, objectives, and actions identified in the draft plan as BLM’s Preferred Alternative, 

Alternative B. However, in response to public comments 

and input from the Cooperating Agencies, other federal and state agencies, and local governmental entities, 

components of the other alternatives that were analyzed 

in the draft plans were also selected to comprise management decisions in the proposed plan. The resulting 

Proposed RMP represented a compilation of planning 

decisions that addressed the widest range of public and 

agency concerns over resource management and land 

uses, while fulfilling the conservation purposes of the 

Red Cliffs NCA.

3.0 RESULTS OF PROTEST REVIEW

The BLM received a total of 37 protest letters during the 

30 day protest period provided for the Proposed RMP 

for the Red Cliffs NCA/Final EIS, in accordance with 43 

CFR Part 1610.5.2. Of that total, 16 were determined not 

to have standing. The 21 protesting parties determined to 

have standing and valid protest issues were as follows:

▶ Mike and Lea Anderson

▶ Wendy Warren

▶ Thomas Brown

▶ Paul and Cheryl Sampson

▶ Glenn Bigham

▶ Terry and Betty Adamson

▶ Doug and Donna Irwin

▶ Allen Howland

▶ Toni Newcomb

▶ Dixie Metropolitan Planning Organization

▶ Washington County Water Conservancy District

▶ Washington County

▶ State of Utah

RESULTS OF PROTEST REVIEW THE DECISION

▶ Kirk Willey

▶ Slade Hughes

▶ Veyo Culinary Water Association

▶ City of Ivins

▶ City of St. George

▶ City of Washington

▶ Western Watersheds Project

▶ Wildland Defense

The BLM Director resolved all protests without making changes to the Proposed RMP/Final EIS. A 

copy of the Director's Protest Resolution Report 

can be found on the web at: https://www.blm.gov/

programs/planning-and-nepa/public-participation/

protest-resolution-reports

4.0 THE DECISION

After considering public comments, best available 

scientific and technical information, and the results of 

consultation and coordination with other federal and 

state agencies, state and local governments, and tribal 

governments, it is the BLM’s decision to approve the attached RMP for the long-term management of the Red 

Cliffs NCA. The Approved RMP was prepared under 

the authorities of OPLMA; the Federal Land Policy 

and Management Act (FLPMA) of 1976; in accordance 

with the Code of Federal Regulations at 43 CFR, Part 

1600, that address the BLM land use planning process; 

as well as all other applicable laws and agency policies. 

An Environmental Impact Statement (EIS) was prepared for this RMP, in compliance with the National 

Environmental Policy Act (NEPA) of 1969.

The Approved RMP is nearly identical to the Proposed 

RMP/Final EIS that was issued in September 2016. All 

decisions in the Approved RMP are either land use 

planning decisions that could be protested during the 

September 2, 2016 to October 3, 2016 protest period or 

are implementation decisions that are now appealable 

under the federal regulations discussed later in this ROD. 

The Approved RMP satisfies the legislative direction in 

Section 1974 (d) (1) of OPLMA that the Secretary of the 

Interior, through the BLM, develop a comprehensive 

(resource) management plan for the Red Cliffs NCA to 

achieve the following Congressionally-defined purposes: 

To conserve, protect, and enhance for the benefit and 

enjoyment of present and future generations the ecological, scenic, wildlife, recreational, cultural, historical, natural, educational, and scientific resources of 

the National Conservation Area; and 

To protect each species that is located in the National 

Conservation Area; and listed as a threatened or endangered species on the list of threatened species or 

the list of endangered species published under... the 

Endangered Species Act of 1973. (OPLMA Section 

1974 (a))

Land use planning goals, objectives, and management 

decisions approved in the RMP for the Red Cliffs NCA 

are consistent with the Congressionally-defined purposes 

of conservation, protection, enhancement, and restoration of public land values. They are also consistent with 

the mandate from Congress that “the Secretary shall 

only allow uses of the National Conservation Areas that 

the Secretary determines would further the purpose” 

for which the NCA was designated (OPLMA, at Section 

1974 (e) (2)). OPLMA at Section 1974 (g) (1) also specifically restricts allowable uses by withdrawing the public 

lands of this NCA, subject to valid existing rights, from:

All forms of entry, appropriation, and disposal under 

the public land laws; Location, entry, and patenting 

under the mining laws; and Operation of the mineral 

leasing, mineral materials, and geothermal leasing 

laws.

4.1 What the Decision/RMP Provides

Land use plan decisions include: 

▶ Goals 

▶ Objectives

▶ Land Use Allocations 

▶ Management Actions 

Goals are the broad statements of desired outcomes, 

and are usually not quantifiable. Objectives are specific 

desired conditions, usually quantifiable and measurable, 

and may have timeframes for achievement. Land use 

allocations specify locations within the planning area 

that are available or unavailable for certain uses. These 

include decisions such as what lands are available for 

livestock grazing, and what lands are open, closed, or 

limited to motorized travel (please note that all acreages 

presented in the Approved RMP are estimations even 

when presented to the nearest acre). Management actions 

include those provisions that help in meeting the established goals and objectives and include measures that will 

be applied to guide day-to-day activities on public lands, 

including but not limited to stipulations, guidelines, best 

management practices (BMPs), and design features. 
10 ROD Red Cliffs National Conservation Area Red Cliffs National Conservation Area ROD 11

The primary RMP management decisions in the 

Approved RMP are to: 

▶ Manage resources to protect and enhance water, 

geologic and paleontological, vegetation, wildlife, 

cultural, scenic resources, while providing for varied recreational opportunities. 

▶ Manage wildfire suppression activities to support 

the conservation and protection of NCA resource 

values and comply with legal, regulatory, and 

agency policy requirements.

▶ Ensure ecological integrity of the native vegetation 

communities is conserved, protected, and restored.

▶ Manage habitats for federally listed threatened or 

endangered species so that they are conserved, protected, and restored to support viable populations.

▶ Manage heritage resources so that they are conserved, protected, and enhanced for the benefit of 

present and future generations.

▶ Manage the Red Mountain and Cottonwood 

Canyon Wilderness in accordance with the 

Wilderness Act of 1964, OPLMA, and BLM Manual 

6340.

▶ Manage the open spaces, natural aesthetics, and scenic vistas of the NCA so that they are protected for 

social, economic, and environmental benefits.

▶ Designate the Red Cliffs Special Recreation 

Management Area (SRMA) and identify special 

recreational management zones within the SRMA. 

▶ Designate areas as Limited or Closed to motorized 

off-highway vehicle use:

• Designate 24,870 acres as Limited to 

Designated Routes

• Designate 19,989 acres, in the Cottonwood 

Canyon and Red Mountain Wilderness areas, as 

Closed. 

▶ Manage land tenure adjustments to assist the conservation, protection, and enhancement of NCA 

resource values.

▶ Manage land use authorizations that further the 

purposes of conservation, protection, and enhancement of resource values in the NCA.

This ROD serves as the agency’s final decision, establishing the land use plan decisions outlined in the Approved 

RMP, and is effective on the date that it is signed by the 

Utah-BLM State Director. These land use plan decisions 

are not subject to other administrative remedies.

4.2 What the Decision/RMP Does Not Provide

▶ The RMP decisions only apply to BLMadministered public lands in the Red Cliffs NCA.

▶ The RMP decisions are subject to valid existing 

rights.

In addition, many decisions are not appropriate at this 

level of planning and are not included in the ROD. 

Examples of these types of decisions include: 

▶ Statutory requirements. The decision will not change 

the BLM's responsibility to comply with applicable 

laws, rules, and regulations. 

▶ National policy. The decision will not change BLM's 

obligation to conform to current or future National 

policy. 

▶ Funding levels and budget allocations. These are 

determined annually by Congress and are outside of 

the control of the BLM.

4.3 Implementation Decisions

Unlike land use plan decisions, implementation decisions 

cannot be protested to the BLM Director, pursuant to the 

planning regulations at 43 CFR 1600. Instead, implementation decisions are subject to various administrative 

remedies, particularly appeals to the Interior Board of 

Land Appeals, under 43 CFR 4.410. Where implementation decisions are made as part of the land use planning 

process, they are still subject to the appeals process or 

other administrative review, as prescribed by the specific 

resource program regulations. Some of the recreation decisions in the Approved RMP, (REC-19 through REC-60) 

are implementation decisions which are appealable under 

the Department of Interior's appeal regulations (43 CFR 

Part 4). These procedures are summarized in the Dear 

Reader Letter that accompanies this ROD. 

These decisions are effective upon the signing of this 

ROD, unless a stay of the decision is granted. In accordance with 43 CFR Part 8342.3(b), public notice has 

been provided with publication of a Notice of Availability 

of the Proposed RMP/Final EIS in the Federal Register

on September 2, 2016, and with publication of the 

Federal Register Notice of Availability for this Record of 

Decision and Approved RMP for the Red Cliffs National 

Conservation Area. 

4.4 Supplementary Rules

In some instances, decisions from the Approved RMP 

could restrict or prohibit an activity on public lands. 

Often the restriction or prohibition is already standard on public land and there is no requirement for 

THE DECISION MANAGEMENT CONSIDERATIONS IN SELECTING THE APPROVED RMP

supplementary rule-making to enforce the decision from 

the approved RMP. However, to make some decisions 

enforceable, a public process is required, as outlined in 

43 CFR 8365.1-6. This process requires that specific steps 

be taken to ensure that interest groups and public land 

users are adequately informed of newly-proposed rules 

before they go into effect. The first step of the process is 

the publication of a proposed set of rules in the Federal 

Register, public notification through media releases, and 

a 60 day public review and comment period. Following 

the public review and comment period, a Notice of Final 

Supplementary Rules is published in the Federal Register 

that establishes the final supplementary rules and identifies the date when these rules go into effect.

5.0 MANAGEMENT CONSIDERATIONS IN 

SELECTING THE APPROVED RMP

The Proposed RMP was based primarily on the management goals, objectives, and actions identified in the 

draft plan as BLM’s Preferred Alternative, Alternative 

B. However, in response to public comments and input 

from the Cooperating Agencies, other federal and state 

agencies, and local governmental entities, components 

of the other alternatives that were analyzed in the draft 

plans were also selected to comprise management decisions in the proposed plan. The resulting Proposed NCA 

RMP represents a compilation of planning decisions that 

address the widest range of public and agency concerns 

over resource management and land uses, while fulfilling the purpose and direction for the Red Cliffs NCA 

in OPLMA. The Approved RMP will allow the BLM to 

manage the Red Cliffs NCA to conserve, protect, and enhance the diverse ecological, biological, scenic, cultural, 

recreational, scientific and educational values of the public lands over the long term, for the benefit of current and 

future generations. The following management decisions 

for resource values are included in the Approved RMP.

5.1 Water Resources

The Approved RMP will apply BMPs and other sitespecific mitigation measures to maintain soil stability, 

minimize wind and water erosion, and ensure that surface disturbances do not cause accelerated sedimentation 

in surface water sources. The Approved RMP commits to 

monitoring water quality in Leeds Creek and to manage 

water resources consistent with Utah State law.

5.2 Geologic and Paleontological Resources

The Approved RMP protects these resources by prohibiting the sale of petrified wood and collection of common invertebrate fossils. Paleontological surveys will be 

conducted in areas with high potential for scientifically 

important fossil localities to increase the knowledge of 

these resources consistent with the mandates of OPLMA 

and the legislative purposes for which the Red Cliffs 

NCA was Congressionally-designated.

5.3 Soil Resources

The Approved RMP will apply BMPs and other sitespecific mitigation measures to ensure that salinity 

and sediment contributions from public lands into the 

Colorado River system, via Quail Creek, Leeds Creek, 

and the Virgin River, are minimized through appropriate 

land use management. The Approved RMP also sets the 

framework for research that increases the understanding 

of ecosystem processes, cycles, and anthropogenic factors 

that affect soil and vegetation resources (e.g., fire return, 

nutrient cycles) and that may influence climate change.

5.4 Native Vegetation Communities

The Approved RMP incorporates resource management 

actions that help insure that the biodiversity, ecological integrity, and ecosystem resilience are conserved, 

protected, and restored in the unique native vegetation 

communities created by the convergence of the Mojave 

Desert, Great Basin, and Colorado Plateau ecoregions. 

These actions will also manage riparian areas to sustain 

productive and diverse ecosystems and properly functioning watersheds.

5.5 Special Status Species–including Threatened, 

Endangered, Candidate, and Species Proposed 

for Listing under Endangered Species Act

Management of Special Status Species in the Approved 

RMP has the following key goals: habitats for listed species are conserved, protected, and restored to support viable populations that no longer require listing protection 

under the Endangered Species Act (ESA) and habitats for 

species proposed for listing under the ESA are conserved, 

protected, and restored to support viable populations, 

precluding the need to list these species.

5.6 Fish and Wildlife Habitat

The Approved RMP will manage fish and wildlife habitat to provide high quality forage or a high quality prey 

base, as well as water, space, cover, and breeding areas, 

thereby sustaining viable populations and overall ecosystem biodiversity and resilience. Multi-species habitat 

connectivity, migration routes, and movement corridors 

are conserved and protected between ecological zones 

to facilitate species persistence, adaptation, and overall 

biodiversity under predicted climate change scenarios.
12 ROD Red Cliffs National Conservation Area Red Cliffs National Conservation Area ROD 13

APPROVED RMP MONITORING AND EVALUATION

6.3 Consultations with American Indian Tribes

Consultations with federally-recognized American 

Indian Tribes that claim cultural affiliation with the public lands of the Red Cliffs NCA have been ongoing since 

2010 related to the development of a new RMP for this 

NCA. The reader is referred to Chapter 3 of the Proposed 

RMP and Final EIS for more specific details on these 

consultations. No federally-recognized American Indian 

Tribes submitted formal comments on the Draft RMP 

and Draft EIS and no protests were filed by Tribes on the 

Proposed RMP and Final EIS for the Red Cliffs NCA.

6.4 Section 7 Consultation under the Endangered 

Species Act

Consultation under Section 7(a) of the ESA was conducted with the USFWS during the development of the RMP. 

A Biological Assessment (BA) was prepared to evaluate 

the potential impacts on populations and habitats of 

threatened and endangered species, as well as for species 

proposed for listing and populations managed as 10 (j) 

non-essential experimental populations, that could result 

from implementing the management goals, objectives, 

and decisions identified in the Proposed RMP for the 

Red Cliffs NCA and Final EIS. The BA was submitted to 

the USFWS on September 13, 2016. The USFWS prepared a Biological Opinion (BO) that was provided to the 

BLM on December 12, 2016 and is included in Appendix 

C. In the BO, the USFWS determined that implementation of the management decisions described in the 

Proposed RMP, with the recommended conservation 

measures provided by the USFWS in the BO, would not 

jeopardize the continued existence of any federally-listed 

species or result in the adverse modification of critical 

habitats.

7.0 MITIGATION MEASURES

No mitigation measures were included in the Approved 

RMP, as all management goals, objectives, and decisions 

were designed to conserve, protect, and enhance resource 

values, rather than result in environmental harm.

8.0 APPROVED RMP MONITORING AND 

EVALUATION

Monitoring is the repeated measurement of activities 

and conditions over time. Evaluation is a process in 

which the plan and monitoring data are reviewed to 

see if management goals and objectives are being met 

and if management direction is sound. Monitoring data 

gathered over time is examined and used to draw conclusions on whether management actions are meeting stated 

objectives, and if not, why. Conclusions are then used to 

make recommendations on whether to continue current 

management or what changes need to be made in management practices to meet objectives. The two types of 

monitoring that are tied to the planning process include 

implementation and effectiveness monitoring. Land use 

plan monitoring is the process of (1) tracking the implementation of land use planning decisions and (2) collecting and assessing data/information necessary to evaluate 

the effectiveness of land use planning decisions. The two 

types of monitoring are described below.

Implementation Monitoring: Implementation monitoring is the most basic type of monitoring and simply determines whether planned activities have been 

implemented in the manner prescribed by the plan. 

Some agencies call this compliance monitoring. This 

monitoring documents BLM’s progress toward full 

implementation of the land use plan decision. There 

are no specific thresholds or indicators required for 

this type of monitoring.

Effectiveness Monitoring: Effectiveness monitoring 

is aimed at determining if the implementation of 

activities has achieved the desired goals and objectives. Effectiveness monitoring asks the question: 

Was the specified activity successful in achieving the 

objective? This requires knowledge of the objectives 

established in the RMP as well as indicators that can 

be measured. Indicators are established by technical 

specialists in order to address specific questions, and 

thus avoid collection of unnecessary data. Success 

is measured against the benchmark of achieving 

desired future conditions established by the plan.

Progress in meeting the plan objectives and adherence 

to the management framework established by the plan 

is reviewed periodically. CEQ regulations implementing 

NEPA state that agencies may provide for monitoring 

to assure that their decisions are carried out and should 

do so in important cases (40 CFR 1505.2 (c)). To meet 

these requirements, the BLM will review the plan on a 

regular schedule in order to provide consistent tracking 

of accomplishments and provide information that can 

be used to develop annual budget requests to continue 

implementation.

Land use plan evaluations will be used by BLM to determine if the decisions in the RMP, supported by the 

accompanying NEPA analysis, are still valid. Evaluation 

of the RMP will generally be conducted every five years 

per BLM policy, unless unexpected actions, new information, or significant changes in other plans, legislation, 

or litigation triggers an evaluation. Land use plan evaluations determine if decisions are being implemented, 

5.7 Heritage Resources

The Approved RMP will manage heritage resources to 

ensure that they are conserved, protected, and enhanced 

for the benefit of present and future generations, consistent with the Congressional direction in OPLMA at 

Section 1974 and other federal heritage preservation laws 

and regulations, and agency policies.

5.8 Recreation and Visitor Services

The Approved RMP will provide high quality sustainable recreation opportunities and visitor services. Those 

opportunities support the quality of life of NCA visitors 

as well as local communities, regional economies and the 

resource values of the NCA. The Red Cliffs SRMA will 

be established with four management zones to assist in 

setting priorities for facilities development, maintenance, 

and law enforcement. The Approved RMP provides 

additional guidance and criteria for issuance of Special 

Recreation Permits (SRPs). These criteria will help reduce 

user conflicts, enhance recreation experiences, and protect resource values.

5.9 Comprehensive Travel and Transportation 

Management

In compliance with BLM regulations, policy, and guidelines, OHV area designations of the Approved RMP were 

developed to meet the needs and demands for motorized 

travel and recreation throughout the NCA while also 

complying with the direction in OPLMA.

5.10 Lands and Realty Management

The Approved RMP allows for the BLM to work with 

willing land owners or administrators to acquire inholdings and edge-holdings that are in the public interest 

through purchase, exchange of public lands targeted for 

disposal outside of the NCA boundaries, donation, or 

conservation easement. It also designates ROW exclusion and avoidances areas in order to meet the direction in OPLMA at Section 1974 (e) (2) which specifies 

that “The Secretary shall only allow uses of the National 

Conservation Areas that the Secretary determines would 

further the purpose” for which the NCA was designated.

6.0 CONSISTENCY AND CONSULTATION 

REVIEW

Consistency of the Approved RMP with other federal, 

state, tribal, and local government plans was also considered as a factor in selection of the Approved RMP. 

The Approved RMP is consistent with officially approved 

or adopted plans and policies of state and local governments to the extent that the guidance and local plans are 

also consistent with the purposes, policies, and programs 

of federal law and regulation applicable to public lands, 

including OPLMA. Chapter 3 of the Proposed RMP/

Final EIS provided a full discussion of consistency with 

all involved entities.

6.1 Governor’s Consistency

The 60-day Governor's Consistency Review of the 

Proposed Red Cliffs RMP and Final EIS was initiated 

on August 26, 2016 and concluded on October 25, 2016, 

in accordance with planning regulations at 43 CFR Part 

1610.3-2(e). In a letter dated October 25, 2016, Utah 

Governor Gary Herbert identified one management decision included in the Proposed RMP for the Red Cliffs 

NCA that the State of Utah asserted is inconsistent with 

state or local plans, policies, and programs.

For the Red Cliffs NCA, the State supported Alternative 

D for Lands and Reality Management in the Draft 

RMP, which would have designated a new utility and 

transportation corridor through the NCA that would 

have allowed the granting a future right-of-way for the 

“northern transportation route” highway requested by 

Washington County, the City of St. George, and the Dixie 

Metropolitan Planning Organization. The State expressed 

its position that the Proposed RMP for the Red Cliffs 

NCA should have included a new utility and transportation corridor, similar to that included in Alternative 

D for the Draft RMP, based on the legislative direction 

provided under Section 1977[b] [2]. This section concerns the preparation of the Washington County Travel 

and Transportation Management Plan and required the 

BLM to identify one or more alternatives for a “northern 

transportation route” in the County. The BLM provided a 

response to the Governor’s letter; however, no changes to 

the Approved RMP were made.

6.2 Consultation under the National Historic 

Preservation Act

The BLM has conducted Section 106 consultation with 

the Utah State Historic Preservation Officer (SHPO) 

related to this planning process, pursuant to the requirements of the National Historic Preservation Act and 

its’ implementing federal regulations. In written correspondence dated September 20, 2016, the Deputy SHPO 

concurred with BLM’s finding that approval of an RMP 

that included the goals, objectives, and management decisions contained in the Proposed RMP and Final EIS for 

the Red Cliffs NCA, would not result in adverse effects to 

National Register of Historic Places-listed or eligible sites 

(also known as historic properties); (Appendix B).

CONSISTENCY AND CONSULTATION REVIEW
14 ROD Red Cliffs National Conservation Area Red Cliffs National Conservation Area ROD 15

PUBLIC INVOLVEMENT ROD SIGNATURE PAGE

whether mitigation measures are satisfactory, whether 

there are significant changes in the related plans of other 

entities, whether there is new data of significance to the 

plan, and if decisions should be changed through amendment or revision. Evaluations will follow the protocols 

established by the BLM Land Use Planning Handbook 

H-1601-1 in effect at the time the evaluation is initiated. 

Specific monitoring and evaluation needs are identified 

by resource/uses throughout the Approved RMP.

9.0 PUBLIC INVOLVEMENT

One of BLM’s primary objectives during development of 

the RMP for the Red Cliffs NCA was to seek input from 

the public, by providing opportunities for participation 

in the resource management planning process. These 

efforts are described included in the Scoping Report, 

the Draft RMP/EIS, and the Proposed RMP/Final EIS in 

Chapter 3, Consultation and Coordination. Below is a 

summary of these public involvement efforts. 

The planning process formally began with the publication of the Notice of Intent (NOI) to initiate a land use 

planning process in the Federal Register on May 10, 

2010. This NOI described the BLM’s intention to prepare 

new resource management plans for the Beaver Dam 

Wash NCA and the Red Cliffs NCA and to amend the 

approved St. George Field Office RMP (1999) to address specific mandates from OPLMA. A formal public 

scoping period was initiated with the publication of the 

NOI in May of 2010 and ended on July 19, 2010. Public 

scoping meetings were held in four locations with 269 

participants. A total of 724 written public scoping comments were received during the scoping period. 

Opportunities for public input in the planning process 

were provided in February 2011, when an Economic 

Strategies Workshop was hosted by the BLM in St. 

George, Utah (facilitated by a USDA TEAMS Enterprise 

Unit) to identify management opportunities involving 

public lands that would further the social and economic 

goals of area communities. Members of the public and 

representatives of local municipalities and county government attended the workshop. Participants explored 

the role of public lands in the socioeconomic sector of 

local communities and helped to identify those activities 

and uses on public lands that should be considered during the planning process.

On July 17, 2015, the BLM and EPA each published a 

Notice of Availability (NOA) in the Federal Register, announcing the availability of the Draft RMP for the Red 

Cliffs NCA and Draft EIS for a 90-day public review and 

comment period. The Utah BLM Acting State Director 

extended the comment period for an additional 30 days, 

based on written requests from Washington County, the 

State of Utah, and members of the public. The review and 

comment period closed on November 16, 2015, during 

which time the BLM held three public workshops (in 

St. George, Hurricane, and Salt Lake City, Utah, during 

September, 2016). An estimated 176 members of the 

public attended the three workshops.

During implementation of the Approved RMP, the BLM 

will continue to actively seek the views of the public, 

using techniques such as news releases and web-site information to ask for participation and inform the public 

of new and ongoing project proposals, site-specific planning, and opportunities and timeframes for comment. 

The BLM will also continue to provide opportunities for 

involvement to other federal and state agencies, Tribal 

governments, and local government entities and elected 

officials on the management of public lands.

10.0 AVAILABILITY OF THE PLAN

The ROD/Approved RMP are available to the public online at http://bit.ly/2fhtN3P. Hard copies of the ROD and 

Approved RMP may be reviewed at:

Public Lands Information Center

345 East Riverside Drive

St. George, Utah 84790-6714

Color Country District Office

176 East DL Sargent Drive

Cedar City, Utah 84721-9337

Public Room

BLM Utah State Office

440 West 200 South, Suite 500

Salt Lake City, Utah 84101-1345

In consideration of the foregoing, I approve the Record of Decision for the Red Cliffs National Conservation Area 

Resource Management Plan.

December 21, 2016

Edwin L. Roberson

Utah State Director
Approved Resource Management Plan
Red Cliffs National Conservation Area RMP 19

INTRODUCTION

1.0 INTRODUCTION

The Approved RMP is now the land use plan for public 

lands administered by the BLM within the Red Cliffs 

National Conservation Area. The Approved RMP adopts 

the management goals, objectives, and decisions presented in the Red Cliffs National Conservation Area 

Proposed RMP and analyzed in the Final EIS (BLM 

2016).

2.0 CONSIDERATION OF OTHER PLANS

At Section 202 (b) (9), FLPMA directs the BLM to involve state, tribal, and local government officials in the 

land use planning process and consider the provisions 

of approved or adopted state, tribal, and local plans that 

are relevant to BLM planning areas. The Cooperating 

Agencies (Washington County, Mohave County [AZ]

and the State of Utah) were provided opportunities to 

provide input throughout the planning process. The 

BLM attempts to resolve inconsistencies between federal 

and non-federal government plans, in the development 

of land use decisions for public lands, to the extent that 

those plans are consistent with the purposes, policies, 

and programs of federal laws and regulations applicable 

to public lands and the purposes of FLPMA. As part of 

this planning effort, the following approved plans were 

reviewed for consistency: Washington County Resource 

Management Plan (2009); Washington County General 

Management Plan (2010, amended 2012).

3.0 PLAN IMPLEMENTATION

Decisions in this plan will be implemented over a period 

of years, depending on budget and staff availability. 

After issuing the ROD/Approved RMP, BLM will prepare an Implementation Plan that establishes tentative 

timeframes for completion of actions identified in the 

Approved RMP. 

Some of these actions require additional analysis and site 

specific activity planning. This schedule does not include 

the decisions which are effective immediately upon approval of the plan (usually allocations), or the actions 

which describe the ongoing management that will be 

incorporated and applied as site-specific proposals are 

analyzed on an ongoing basis. This schedule will assist 

BLM managers and staff in preparing budget requests 

and in scheduling work. However, the proposed schedule must be considered tentative and will be affected by 

future funding, changing program priorities, non-discretionary workloads, and cooperation by partners and 

external publics. Periodic review of the plan will provide 

consistent tracking of accomplishments and provide 

information that can be used to develop annual budget 

requests to continue implementation.

3.1 Maintaining the Plan

Land use plan decisions and supporting information 

can be maintained to reflect minor changes in data, but 

maintenance is limited to refining, documenting, and/or 

clarifying previously approved decisions. Some examples 

of maintenance actions include: 

▶ Correcting minor data, typographical, mapping, or 

tabular data errors

▶ Refining baseline information as a result of new 

inventory data (e.g., changing the boundary of an 

archaeological district, refining the known habitat 

of special status species or big game crucial winter 

ranges, or adjusting the boundary of a fire management unit based on updated fire regime condition 

class inventory, fire occurrence, monitoring data, 

and/or demographic changes).

The BLM expects that new information gathered from 

field inventories and assessments, research, other agency 

studies, and other sources will update baseline data and/

or support new management techniques, best management practices (Appendix D), and scientific principles. Adaptive management strategies may be used 

when monitoring data is available as long as the goals 

and objectives of the plan are met (see the Adaptive 

Management section). Where monitoring shows land use 

plan actions or best management practices are not effective, modifications or adjustments may occur without 

amendment or revision of the plan as long as assumptions and impacts disclosed in the analysis remain valid 

and broad-scale goals and objectives are not changed. 

Plan maintenance will be documented in supporting 

records. Plan maintenance does not require formal public 

involvement, interagency coordination, or the NEPA 

analysis required for making new land use plan decisions. 

3.2 Changing the Plan 

The Approved RMP may be changed, should conditions 

warrant, through a plan amendment or plan revision 

process. A plan amendment may become necessary if 

major changes are needed or to consider a proposal or 

action that is not in conformance with the plan. The 

results of monitoring, evaluation of new data, or policy 

Approved Resource Management Plan
20 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 21

PLAN EVALUATION MANAGEMENT DECISIONS

changes and changing public needs might also provide 

the impetus for an amendment. Generally, an amendment is issue-specific. If several areas of the plan become 

outdated or otherwise obsolete, a plan revision may 

become necessary. Plan amendments and revisions are 

accomplished with public input and the appropriate level 

of environmental analysis.

4.0 PLAN EVALUATION

Evaluation is a process in which the plan and monitoring data are reviewed to see if management goals and 

objectives are being met and if management direction is 

sound. Land use plan evaluations determine if decisions 

are being implemented, whether mitigation measures 

are satisfactory, whether there are significant changes in 

the related plans of other entities, whether there is new 

data of significance to the plan, and if decisions should 

be changed through amendment or revision. Monitoring 

data gathered over time is examined and used to draw 

conclusions on whether management actions are meeting 

stated objectives, and if not, why. Conclusions are then 

used to make recommendations on whether to continue 

current management or to identify what changes need to 

be made in management practices to meet objectives. 

BLM will use land use plan evaluations to determine if 

the decisions in the RMP, supported by the accompanying NEPA analysis, are still valid in light of new information and monitoring data. Evaluation of the RMP will 

generally be conducted every five years, unless unexpected actions, new information, or significant changes in 

other plans, legislation, or litigation triggers an evaluation. The following estimated evaluation schedule will be 

followed for the Red Cliffs NCA RMP: 

▶ September 2021 

▶ September 2026 

▶ September 2031 

▶ September 2036

Evaluations will follow the protocols established by the 

BLM Land Use Planning Handbook (H-1601-1) or other 

appropriate guidance in effect at the time the evaluation 

is initiated. 

5.0 ADAPTIVE MANAGEMENT

Adaptive management Adaptive management is a formal, 

systematic, and rigorous approach to learning from the 

results of management actions, accommodating change, 

and improving management. It involves synthesizing existing knowledge, exploring alternative actions, and making explicit forecasts about their results. Management 

actions and monitoring programs are carefully designed 

to generate reliable feedback and clarify the reasons underlying results. Actions and objectives are then adjusted 

based on this feedback and improved understanding to 

continue to try to achieve the desired future conditions. 

In addition, decisions, actions, and results are carefully 

documented and communicated to others, so that knowledge gained through experience is passed on, rather than 

lost when individuals move or leave the organization.

Secretary of the Interior Order Number 3270 calls for 

BLM and other Department of the Interior bureaus 

to incorporate adaptive management principles into 

management plans and programs. The Department of 

the Interior Adaptive Management Policy (USDOI 2008) 

serves as a guide for implementing adaptive management programs. The Secretarial Order also directs that 

Adaptive Management: The U.S. Department of the 

Interior Technical Guide (Williams, Szaro, and Shapiro 

2009) serve as the technical basis for implementing adaptive management programs.

Adaptive management recognizes that ecosystems are 

very complex and understanding of their processes and 

responses to management actions is limited. Thus, the 

greatest hurdle to overcome in implementing effective 

restoration and other management actions is uncertainty 

regarding their effectiveness. Adaptive management 

acknowledges that there are incomplete data when dealing with natural resources and that through continued 

research and monitoring of management practices, new 

information will be collected. This new information is 

evaluated, and a determination is made whether to adjust 

the strategy accordingly to improve success in meeting 

plan objectives.

Adaptive management is only warranted when all of the 

following criteria can be met:

▶ There is a need to take action in the face of 

uncertainty;

▶ There is an opportunity to apply learning;

▶ The objectives of management are clear;

▶ The value of reducing uncertainty is high;

▶ Uncertainty can be expressed in a set of competing 

testable models;

▶ A monitoring program design can be put in 

place with a reasonable expectation of reducing 

uncertainty.

The ecosystems of the NCA meets all of the above-listed 

criteria, as they are complex and highly variable systems 

whose natural conditions have been altered by past land 

uses. Although some research has been conducted, and 

monitoring of resource values is ongoing, there is still 

a relatively high level of uncertainty about the effects of 

various management treatments for increasing native 

plant cover or restoring at risk species habitats, as examples. In the Approved RMP, the objectives or “desired 

future conditions” for various natural resource values 

are identified, as well as management actions intended 

to conserve, protect, enhance, and restore ecosystems 

to meet those objectives. Monitoring is an important 

component of RMP implementation and will be used to 

gauge the effectiveness of actions at achieving the objectives. The RMP also call for continued support of scientific research that furthers the understanding of natural 

processes and complex ecosystems. 

6.0 MANAGEMENT DECISIONS

This section of the Approved RMP presents the goals and 

objectives, land use allocations, and management actions 

established for the Red Cliffs NCA. These management 

decisions are presented by program area. 

Data used in development of the Approved RMP are 

dynamic. The data and maps used throughout the 

Approved RMP are for land use planning purposes and 

will be refined as site-specific planning and on-theground implementation occurs. Updating data is considered plan maintenance which will occur over time 

as the RMP is implemented (see the section on Plan 

Implementation). Please note that all acreages presented 

in the Approved RMP Plan are estimations, even when 

presented to the nearest acre.

This section is organized by program area with the following titles. For ease of identification into the future, 

each program area has an identified abbreviation (see 

below) and each decision in that program is numbered in 

coordination with the abbreviation: 

▶ Air Quality – AQ

▶ Water Resources – WAT

▶ Geologic and Paleontological Resources – GEO

▶ Cave and Karst Resources – CAV

▶ Soil Resources – SOL

▶ Native Vegetation Communities – VEG

▶ Riparian Vegetation – RIP

▶ Fire and Fuels Management – FIR

▶ ES&R and Other Vegetation Community 

Restoration – ESR

▶ Noxious Weeds and Invasive Species – WED

▶ Vegetation Resource Uses: Livestock Grazing – LIV

▶ Vegetation Resource Uses: Plant Materials – PLA

▶ Special Status Species – including Threatened, 

Endangered, Candidate, and Species Proposed for 

Listing under ESA – SSS

▶ Special Status Wildlife Species – Including 

Threatened, Endangered, Candidate, and Species 

Proposed for Listing under ESA – SSW

▶ Special Status Bird Species: Southwestern Willow 

Flycatcher, Western Yellow-Billed Cuckoo, and 

Other Riparian-Dependent Special Status Species 

– SSB

▶ Special Status Bird Species: California Condor 

– SSC

▶ Special Status Species: Mojave desert tortoise – SST

▶ Special Status Fish Species: Woundfin Minnow and 

Virgin River Chub – SSF

▶ BLM Sensitive Species – BSS

▶ BLM Sensitive Native Fish Species – BSF

▶ BLM Sensitive Raptor Species – BSR

▶ Migratory Birds and Birds of Conservation Concern 

– BCC

▶ BLM Sensitive Mammal Species – BSM

▶ Sensitive Reptile and Amphibian Species – SRA

▶ Other Fish and Wildlife Habitat – FWH

▶ Wildland Fire Ecology – FIRE

▶ Heritage Resources – HER

▶ Wilderness (Red Mountain and Cottonwood 

Canyon) – WIL

▶ Area of Critical Environmental Concern – ACE

▶ Visual Resource Management – VRM

▶ Natural Soundscapes – NAT

▶ Recreation – REC 

▶ Comprehensive Travel and Transportation 

Management – CTT

▶ Lands and Realty – LAR

6.1 Air Quality

Goal

Federal and state air quality standards are met in the 

NCA.

Objectives

Air quality is improved by reducing windblown dust levels from motorized vehicle travel on unpaved roads and 

from the loss of vegetative cover to wildfires.

Short-term air quality impacts (e.g., smoke, haze, windblown dust) that result from wildfires are minimized 
22 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 23

WATER RESOURCES GEOLOGIC AND PALEONTOLOGICAL RESOURCES

through appropriate fire suppression responses and 

through proactive management to minimize the potential for future wildfires.

Research that increases the understanding of ecosystem 

processes, cycles, and anthropogenic factors that affect 

air resources and climate change is supported.

Management Actions – General

AQ-1: Apply BMPs and other site-specific mitigation 

measures to maintain soil stability, protect physical and 

biological (cryptogamic) soil crusts, and minimize wind 

erosion of soils.

AQ-2: Reclaim closed routes that are not required for administrative purposes, non-motorized recreational uses, 

or as fire breaks. Use appropriate methods on reclaimed 

routes (e.g., soil binders, vertical mulching) to minimize 

windblown dust until vegetative cover has been restored.

AQ-3: Use aggregate, gravel base, or other environmentally-acceptable soil binders, as needed, at major trailheads, waysides, and high-use recreation sites, and on 

BLM-maintained roads to minimize windblown dust.

AQ-4: Coordinate with Washington County Public 

Works Department to post speed limits on unpaved 

roads, as needed, to lessen windblown dust created by 

motorized vehicle travel. 

AQ-5: Implement post-wildfire Emergency Stabilization 

and Rehabilitation (ES&R) actions that will stabilize soils 

and re-establish vegetative cover to minimize windblown 

dust levels.

Management Action – Public Education and 

Interpretation

AQ-6: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about appropriate public land use etiquette to minimize new surface disturbances that would 

contribute to increased soil erosion and windblown dust.

Management Action – Scientific Research

AQ-7: Pursue opportunities to install air quality monitoring equipment and collect data on ozone levels, visibility (haze) and other appropriate air quality indicators 

through federal and non-federal grants; partnerships 

with other federal agencies, state, tribal and local governmental entities, academic institutions, and private 

entities; and through cooperative agreements or other 

appropriate methods. 

Management Actions – Climate Change Monitoring

AQ-8: Pursue opportunities to install one or more solarpowered weather stations in the NCA to collect data on 

temperature, precipitation, wind speed, humidity, soil 

moisture, solar radiation, and other variables that could 

signal changing climatic conditions. 

AQ-9: Pursue opportunities for scientific studies to 

determine the carbon sequestration value of intact desert 

shrub-lands and the potential of degraded desert shrubland restoration to mitigate increasing atmospheric 

carbon dioxide levels that are contributing to global 

warming.

6.2 Water Resources

Goal

Water resources are conserved and protected to fulfill the 

purposes of the NCA and sustain ecosystem resiliency 

under changing climatic conditions.

Objectives

Surface water quality is suitable for appropriate beneficial 

uses, complies with approved federal and state standards, 

and meets or exceeds the applicable Utah Standards and 

Guides (Appendix E). 

Salinity and sediment loads in the Virgin River do not 

increase as a result of land uses and authorized activities 

on public lands in the NCA.

Research is supported that increases the understanding 

of ecosystem processes, cycles, and anthropogenic factors 

that affect water resources (e.g., fire cycles, vegetation 

succession) and that may influence climate change.

Management Actions – General

WAT-1: Apply BMPs and other site-specific mitigation 

measures to maintain soil stability, minimize wind and 

water erosion, and ensure that surface disturbances do 

not cause accelerated sedimentation in surface water 

sources.

WAT-2: Implement post-fire ES&R actions to restore 

riparian vegetation and minimize soil erosion that could 

impair water quality in springs, seeps, Leeds Creek, Quail 

Creek, and the Virgin River.

WAT-3: In planning re-vegetation projects for disturbed 

or fire-damaged riparian areas, identify specific resource 

and management objectives, desired plant communities, 

and methods that are ecologically sustainable, likely to 

achieve desired outcomes, and that minimize new surface disturbances and impacts on other resource values 

of the NCA.

WAT-4: Establish monitoring plots and use desired plant 

species frequency, density, and distribution data to evaluate the effectiveness of the treatments in meeting management objectives. Conduct monitoring, as determined 

by the project-specific monitoring plans, to evaluate 

effectiveness of re-vegetation and ES&R actions.

WAT-5: Monitor water quality in Leeds Creek to determine if the designation standard for beneficial uses established by the UDWQ is being met.

WAT-6: Monitor fecal coliform levels in natural water 

catchments along the Red Reef Trail during high visitor 

use periods.

WAT-7: Pursue acquisition of non-federal lands from 

willing sellers within the NCA that would benefit the 

conservation and protection of surface and groundwater 

resources.

WAT-8: Pursue acquisition of surface and/or groundwater rights from willing sellers for use in campgrounds, 

visitor facilities, and for other administrative uses where, 

consistent with Utah State law.

Management Action – Public Education and 

Interpretation

WAT-9: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about appropriate public land use etiquette to protect water quality in streams, springs, seeps, 

and associated riparian areas.

Management Action – Scientific Research

WAT-10: Inventory the NCA to locate all springs and 

seeps, map the areal extent of associated riparian vegetation, evaluate water quality and flow rates, and document 

all spring developments.

Management Actions – Climate Change Monitoring

WAT-11: Pursue opportunities to develop a conceptual 

groundwater model of quantity recharge of springs, 

seeps, and surface flows within and adjacent to the NCA.

WAT-12: Pursue opportunities to collect data and 

monitor changes in precipitation patterns (e.g., timing, 

frequency, intensity of events) that are predicted to alter 

surface and ground water quantity and availability.

6.3 Geologic and Paleontological Resources

Goal

Paleontological resources, unique geologic features, 

and examples of geologic processes are conserved and 

protected for the benefit and enjoyment of present and 

future generations, consistent with the mandates of 

OPLMA and the legislative purposes for which the Red 

Cliffs NCA was Congressionally-designated.

Objectives

Scientifically important paleontological and geological 

resources are identified, managed, and allocated to appropriate uses that increase knowledge about geological 

processes and the history of life on Earth.

Designate paleontological resources currently documented or projected to occur in the NCA to Use 

Allocations (as defined by BLM Manual Section 8110.42 

and Land Use Planning Handbook H-1601-1). Focus on 

the Use Allocations that are consistent with the legislative mandate from OPLMA for the NCA: Scientific Use, 

Conservation for Future Use, and Public Use. Do not 

allocate resources of scientific interest to Traditional Use, 

Experimental Use, or Discharged from Management, as 

these would not be consistent. See Table 2 for descriptions of each Use Allocation category.

Management Actions - General

GEO-1: Regular monitoring patrols and condition assessments are conducted at fossil localities in the NCA by 

BLM staff and trained volunteer Site Stewards.

GEO-2: No commercial sale or use of petrified wood is 

permitted in the NCA.

Use Allocation Categories Management Action Desired Management Outcome

Scientific Use Permit appropriate research Resource preserved until research potential or 

data recovery potential realized

Conservation for Future Use Protective measures; special administrative 

designations

Resource preserved until conditions for use 

are met

Public Use Determine appropriate public uses Resource preserved long term, with on-site 

interpretation

Traditional Use Determine limitations on uses, in consultation with culturally affiliated American Indian 

Tribes

Resource preserved long term

Table 2 Use Allocation Categories
24 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 25

GEOLOGIC AND PALEONTOLOGICAL RESOURCES SOIL RESOURCES

GEO-3: Conduct paleontological surveys in areas with 

high potential for scientifically important fossil localities 

(Potential Fossil Yield Classifications 3, 4, and 5).

GEO-4: Allocate and manage 100% of trackways, vertebrate, and paleo-botanical fossil localities for Scientific 

Use, Conservation for Future Use, or Public Use.

GEO-5: Allocate and manage 100% of invertebrate fossil 

localities for Scientific Use, Conservation for Future Use, 

or Public Use.

GEO-6: Authorize the use of hand tools by researchers holding valid NCA Scientific Research Permits and 

BLM Paleontological Resource Use Permits to conduct 

site-specific paleontological field studies and specimen 

collections at localities allocated to Scientific Use and 

Conservation for Future Use. 

GEO-7: Authorize the use of mechanized equipment on 

a case-by-case basis by researchers holding valid NCA 

Scientific Research Permits or BLM Paleontological 

Resources Excavation Permits to conduct site-specific 

paleontological field studies and specimen collections at 

localities allocated to Scientific Use and Conservation for 

Future Use.

GEO-8: Prohibit the collection of common invertebrate 

fossils for commercial or personal use.

GEO-9: Prohibit the collection of petrified wood for 

personal use (as defined by federal regulations in 43 CFR 

3622).

GEO-10: Monitor high significance (scientific or interpretive) sites with fossil resources that are not feasible or 

desirable to excavate or collect to document their condition. The frequency of monitoring action for identified 

sites would be determined by the physical nature of the 

resource and potential threats. When monitoring indicates the need, management actions would be taken to 

conserve and protect these resources through physical 

measures and land use restrictions.

GEO-11: Authorize surface collection and excavation 

of unique and scientifically important fossil specimens 

by researchers holding valid NCA Scientific Research 

Permits and BLM Paleontological Resource Use Permits.

GEO-12: Only authorize surface collection of unique and 

scientifically important fossil specimens by researchers 

holding valid NCA Scientific Research Permits and BLM 

Paleontological Resource Use Permits if specimens are at 

risk of theft, vandalism, or loss to natural erosion and if 

feasible methods for in-situ protection are not available.

GEO-13: Monitor localities allocated to Conservation for 

Future Use on a regular basis, with monitoring frequency 

to be determined by the nature of the resource and potential threats.

GEO-14: Prior to developing a locality for public use 

ensure the paleontological resources at the site and in the 

surrounding area have been fully documented. 

GEO-15: Install informational signing and kiosks on site 

etiquette and PRPA at Public Use sites (e.g., trails, trailheads) where appropriate.

Management Actions – Public Education and 

Interpretation

GEO-16: Develop on and off-site interpretation for significant paleontological sites and specimens, and geological features to foster an appreciation for the unique 

nature of these resources.

GEO-17: Develop on and off-site interpretation for areas 

within the NCA where the geologic history of southwestern Utah can be observed and appreciated.

GEO-18: Support education outreach programs, activities, and volunteer opportunities that focus on paleontological resources and the geologic history of Earth.

GEO-19: Promote opportunities for volunteer involvement in Site Stewardship that increase public awareness of the need to conserve and protect at-risk fossil 

resources.

GEO-20: Promote opportunities for volunteer involvement in inventory and data recovery projects that 

enhance public understanding of the geologic and paleoenvironmental history of the NCA.

Management Actions – Scientific Research 

GEO-21: Pursue opportunities to conduct field inventories and increase the fossil locality database for the NCA 

in partnership with the Utah Geological Survey, natural 

history museums, academic institutions, avocational 

groups, and trained volunteers. 

GEO-22: Recruit and train youth and veteran groups, 

citizen stewards, and other volunteers to participate in 

inventory and data recovery projects that enhance public 

understanding of the earth history of the NCA.

Management Action – Climate Change Monitoring

GEO-23: Pursue opportunities for scientific research 

studies at sites allocated to Scientific Use that collect 

paleo-environmental data that could serve as a baseline 

for comparison with modern climate trends.

6.4 Cave and Karst Resources

Goal

Cave and karst resources are conserved and protected for 

the benefit of present and future generations.

Objective

Caves and karst resources are evaluated for significance, 

pursuant to the Federal Cave Resources Protection Act, 

and managed for appropriate uses such as conservation, 

scientific, recreational, and educational uses.

Management Actions – General

CAV-1: As needed, implement National White Nose 

Syndrome Decontamination Protocol and BLM IM 2010-

18 in the management of cave resources that support bat 

populations.

CAV-2: Initiate systematic inventories in areas of the 

NCA with high potential for cave and karst resources.

CAV-3: Evaluate newly identified cave and karst resources for significance under the criteria defined in 

the Federal Cave Resources Protection Act and 43 CFR 

Part 37. Propose significant caves and karst resources for 

inclusion in the National Cave System.

CAV-4: Manage cave and karst resources evaluated as 

significant for Conservation for Future Use, Scientific 

Use, and Public Use.

CAV-5: Develop implementation-level Cave 

Management Plans for significant cave and karst resources that are identified for Public Use, to identify appropriate management objectives and actions needed to protect 

resource values.

Management Action – Public Education and 

Interpretation

CAV-6: Develop on-site interpretation for significant 

cave and karst resources that are managed for Public Use.

Management Action – Scientific Research

CAV-7: Authorize scientific research in cave and karst 

resources that do not contain cultural or paleontological resources through NCA Scientific Research Permits. 

Where cultural or paleontological resources are present, 

authorize scientific research through permits issued under the legal authorities of PRPA and ARPA.

Management Action – Climate Change Monitoring

CAV-8: Pursue opportunities for scientific research studies to collect data on cave biota and geologic processes 

that could serve as a baseline for comparison with modern climate trends.

6.5 Soil Resources

Goal

Soil resources function to sustain the ecological health, 

species biodiversity, and resilience of native vegetation 

communities and watersheds.

Objectives

Native vegetation communities provide sufficient plant 

cover and litter accumulation to protect soils from wind 

and water erosion.

Soils exhibit infiltration and permeability rates that are 

appropriate to specific soil types, land forms, and climatic 

variables.

Soil crusts are conserved, protected, and restored to 

perform vital functions such as enhancing infiltration, 

maintaining soil stability, and facilitating plant growth or 

re-establishment.

Salinity and sediment contributions from public lands 

into the Colorado River system, via Quail Creek, Leeds 

Creek, and the Virgin River, are minimized through appropriate land use management.

Research is supported that increases the understanding 

of ecosystem processes, cycles, and anthropogenic factors 

that affect soil and vegetation resources (e.g., fire return, 

nutrient cycles) and that may influence climate change.

Management Actions - General

SOL-1: Apply BMPs and other site-specific mitigation 

measures to maintain soil stability, minimize wind and 

water erosion, and ensure that surface disturbances do 

not cause accelerated wind or water erosion.

SOL-2: Implement post-fire ES&R actions designed to 

minimize soil erosion and facilitate re-vegetation of desired native plant communities.

SOL-3: Minimize damage to or loss of top soil and soil 

crusts through project design, permit stipulations, and 

public education.

SOL-4: Locate new trails, trailheads, or other facilities on 

soils suitable for development, such as areas less prone to 

wind and water erosion and previously disturbed areas.

Management Action – Public Education and 

Interpretation

SOL-5: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about appropriate public land use etiquette to protect soils and soil crusts.
26 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 27

RIPARIAN VEGETATION

VEG-9: Authorize the use of biological controls, targeted 

grazing, flaming, hand removal, herbicides, mechanical 

methods, or a combination of methods to develop fuel 

breaks and hazard fuel reduction projects (see Table 3 for 

descriptions of each method).

Management Action – Public Education and 

Interpretation

VEG-10: Provide educational materials through various media and venues (e.g., trailhead kiosks, websites) 

that inform visitors about appropriate public land use 

etiquette to protect native vegetation communities and 

prevent wildfires.

Management Actions – Scientific Research

VEG-11: Pursue opportunities to scientifically assess (i.e., 

through rigorous and statistically valid study design) the 

short and long-term effectiveness of seed/seedlings/cuttings by source in areas to be re-vegetated. Incorporate 

local ecotypes (locally collected and increased seed) into 

vegetation studies where plant materials are used for 

vegetation restoration.

VEG-12: Pursue opportunities to collaborate with researchers and other federal and non-federal partners to 

assess the variability in the genetic diversity of plant species to assist in the development of species’ Seed Transfer 

Zones and inform the development of plant materials 

and seed purchase for large scale restoration and re-vegetation projects.

VEG-13: Pursue opportunities for scientific studies 

that evaluate the long term effectiveness of herbicidal 

treatments for exotic invasive annual grasses in arid 

ecosystems.

VEG-14: Pursue opportunities for scientific studies 

to develop ecologically sustainable and cost-effective 

biological treatments to control and eradicate noxious 

weeds and non-native invasive annual grasses in arid 

ecosystems.

Management Actions – Climate Change Monitoring

VEG-15: Monitor the timing, frequency, and intensity of 

fall precipitation events in the NCA, as these events can 

be used to predict high invasive annual grass production 

in the following spring that will fuel catastrophic wildfires during the summer months.

VEG-16: Resample vegetation study plots and monitoring transects established in the 1970s to determine if 

native plant species are shifting their elevational distribution in response to climate change.

6.7 Riparian Vegetation 

Goal

Riparian areas sustain productive and diverse ecosystems 

and properly functioning watersheds.

Objectives

Healthy riparian areas are conserved and protected 

through land use restrictions, protective measures, and 

other management actions.

Healthy riparian areas exhibit appropriate species 

composition and structural diversity to provide suitable 

forage, nesting or breeding habitats, and cover for diverse 

terrestrial and aquatic wildlife.

Degraded riparian areas are restored to proper functioning condition or better, ensuring that stream channel 

morphology and functions are appropriate to the local 

soil type, climate, and landform.

Employ the best available science relating to natural recovery patterns of riparian communities in arid lands.

Research is supported that increases the understanding 

of ecosystem processes (e.g., vegetation succession), cycles (e.g., fire return, nutrient cycles), and anthropogenic 

factors (e.g., livestock grazing, recreation) that affect 

riparian vegetation communities and that may influence 

climate change.

Manage land uses and authorized activities to ensure that 

riparian areas meet or exceed management objectives 

identified in the Utah Standards and Guides 

(Appendix E).

Management Actions - General

RIP-1: Employ appropriate wildfire suppression tactics 

to minimize impacts on riparian areas, while protecting 

firefighter and public safety and private property as first 

priorities.

RIP-2: Apply BMPs and other management techniques 

designed to minimize impacts on riparian areas that may 

result from land uses and authorized activities.

RIP-3: Inventory riparian areas to establish baseline data 

on functioning conditions, trends in native plant composition, and infestations of noxious weeds and invasive 

species.

RIP-4: Pursue acquisition of non-federal lands within the 

NCA that would benefit the conservation, protection, 

and restoration of riparian areas.

RIP-5: Implement a program to strategically collect, 

store, and increase native seeds, cuttings, biological soil 

Management Actions – Scientific Research

SOL-6: Pursue opportunities to complete detailed soil 

surveys and ecological site inventories in the NCA.

SOL-7: Pursue opportunities for scientific studies relating 

to soil crust function and regeneration in disturbed and 

fire-altered desert ecosystems.

SOL-8: Pursue opportunities for scientific studies that 

focus on developing cost-effective methods to restore 

biological (cryptogamic) soil crusts in disturbed and firealtered desert ecosystems.

Management Action – Climate Change Monitoring

SOL-9: Pursue opportunities to collect data and monitor 

changes in the timing, frequency, and intensity of storms, 

flood events, and droughts and the effects of these climatic changes on soil crust function and regeneration.

6.6 Native Vegetation Communities

Goal

Biodiversity, ecological integrity, and ecosystem resilience are conserved, protected, and restored in the 

unique native vegetation communities created by the 

convergence of the Mojave Desert, Great Basin, and 

Colorado Plateau ecoregions.

Objectives

Native perennial and annual communities exhibit species 

diversity, suitable canopy cover, plant density, and age 

class diversification appropriate to each specific ecological site type.

Desired plant communities provide sufficient plant cover 

and litter accumulation to protect soils from wind and 

water erosion and to enhance nutrient cycling.

Loss of late-successional desert shrublands (e.g., creosote-bursage, blackbrush communities), perennial 

understory vegetation, and soil crusts to wildfires is 

minimized through management actions to prevent and 

suppress wildfires, and control or eradicate non-native 

invasive annual grass species (Bromus spp.).

Resilience of native plant communities to climate change 

is maintained by re-introducing native species that have 

been lost or by introducing other appropriate native 

species.

Connectivity of native plant communities is maintained 

by restoring closed roads and other linear features that 

interrupt species dispersal.

Genetic integrity of native communities is protected by 

using source-identified seed and other plant materials for 

restoration and re-vegetation projects.

Research is supported that increases the understanding 

of ecosystem processes (e.g., vegetation succession), cycles (e.g., fire return, nutrient cycles), and anthropogenic 

factors (e.g., recreation) that affect vegetation communities and that may influence climate change.

Manage land uses and authorized activities to ensure 

that ecological systems meet or exceed management 

objectives identified in the Utah Standards and Guides 

(Appendix E).

Management Actions – General

VEG-1: Apply BMPs and other management techniques 

designed to minimize impacts on native vegetation communities for all land uses and authorized activities.

VEG-2: Implement a program to strategically collect, 

store, and increase native seeds, cuttings, biological soil 

crust communities and species for conservation and for 

use in future restoration projects. Seed collection will follow the Seeds of Success Protocol, in partnership with the 

Great Basin and Mojave Desert Native Plant Programs. 

Collection of cuttings and biological soil crust communities will follow the best available protocols.

VEG-3: Develop partnerships with appropriate BLM 

Seed Warehouses for storage and management of seed 

collections and with other federal and non-federal entities for propagation of seedlings and cuttings.

VEG-4: Implement landscape-level fuel breaks and hazard fuel reduction projects in partnership with adjacent 

federal and state land managing agencies.

VEG-5: Design fuel breaks and hazard fuel reduction 

projects to conserve and protect unburned native vegetation communities, evaluating factors such as vegetation 

types, seasonal wind direction, and expected fire behavior in project planning.

VEG-6: Design fuel breaks to incorporate topographic 

features, water courses, major ephemeral drainages, road 

networks, and utility corridors, to minimize new surface 

disturbances and the loss of native vegetation. 

VEG-7: Design fuel breaks and hazard fuel reduction 

projects to utilize those methods that are environmentally sensitive and minimize new surface disturbances. 

VEG-8: Employ appropriate wildfire suppression tactics 

to minimize loss of unburned and once-burned native 

vegetation communities, particularly late-successional 

desert shrublands.

NATIVE VEGETATION COMMUNITIES
28 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 29

TABLE 3 FIRE AND FUELS MANAGEMENT

crust communities and species for conservation and for 

use in future restoration projects. Seed collection will follow the Seeds of Success Protocol, in partnership with the 

Great Basin and Mojave Desert Native Plant Programs. 

Collection of cuttings and biological soil crust communities will follow the best available protocols.

RIP-6: Develop partnerships with appropriate BLM Seed 

Warehouses for storage and management of seed collections and with other federal and non-federal entities for 

propagation of seedlings and cuttings.

RIP-7: Develop and implement re-vegetation plans for 

damaged riparian areas to minimize soil erosion and 

re-establish desired plant communities. Plans will specify 

seed/plant sources, seed/plant mixes, and soil preparation. Utilize salvage vegetation from the project area to 

the extent possible.

RIP-8: Establish monitoring plots and use desired plant 

species frequency, density, and distribution data to evaluate the effectiveness of the treatments in meeting management objectives.

RIP-9: Conduct monitoring, as determined by projectspecific monitoring plan, to evaluate effectiveness of 

restoration and ES&R treatments. 

RIP-10: Treat non-native woody species (e.g., tamarisk, 

Russian olive) in a phased approach using biological 

controls, flaming, hand removal, herbicides, mechanical methods, or a combination of methods, depending 

on target species, infestation level, site characteristics, 

and project size (see Table 3 for descriptions of each 

method).

RIP-11: Allow adequate time between treatments for 

native woody species to establish in a treated area before 

treating adjacent patches.

RIP-12: Prohibit new surface disturbing projects or 

activities within 100 meters (330 feet) of the edge of the 

riparian zone, except when the project would improve 

riparian resource conditions.

Management Actions – Public Education and 

Interpretation

RIP-13: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about the ecological values of riparian 

areas and appropriate public land use etiquette to protect 

these areas.

RIP-14: Involve volunteers, schools, youth groups, 

veterans, and partner organizations in riparian resource monitoring and restoration projects to increase 

public awareness and foster citizen stewardship of NCA 

resources.

Management Actions – Scientific Research

RIP-15: Pursue opportunities to scientifically assess (i.e., 

through rigorous and statistically valid study design) the 

short and long-term effectiveness of seed/seedlings/cuttings by source in areas to be re-vegetated. Incorporate 

local ecotypes (locally collected and increased seed) into 

vegetation studies where plant materials are used for 

vegetation restoration.

RIP-16: Pursue opportunities to collaborate with researchers and other federal and non-federal partners to 

assess the variability in the genetic diversity of plant species to assist in the development of species’ Seed Transfer 

Zones and inform the development of plant materials 

and seed purchase for large scale restoration and re-vegetation projects.

RIP-17: Collect and maintain baseline data on riparian 

vegetation species composition, noxious weeds, and nonnative species infestations.

RIP-18: Pursue opportunities to develop and maintain 

baseline data on the terrestrial, avian, and aquatic wildlife 

that utilize these areas.

RIP-19: Pursue opportunities to develop baseline data on 

taxa found in the riparian areas that are not well studied, 

such as amphibians, insects, other invertebrates, fungi, 

and lichens.

Management Actions – Climate Change Monitoring

RIP-20: Pursue opportunities to monitor the areal extent 

and species composition of riparian vegetation communities as a possible predictor of decreased precipitation 

and changes in seasonal precipitation patterns in the 

Mojave Desert.

RIP-241 Pursue opportunities to identify key riparian 

features within and adjacent to the NCA that must be 

protected to allow multi-species habitat connectivity 

and wildlife migration corridors under changing climate 

conditions.

6.8 Fire and Fuels Management

Goal

Wildfire suppression activities support the conservation 

and protection of NCA resource values and comply with 

legal, regulatory, and agency policy requirements.

Objectives

Suppression activities prioritize firefighter and public 

safety, protect private property, conserve and protect 

Tool Methodology/Rationale Possible Uses

Hand Removal Hand pulling, hoeing, and digging out targeted individuals or groups of plants.Hand treatment to eliminate small weed populations, to control specific weed species, and to 

promote restoration.

Mechanical Mowing, weed-whipping, cutting (chainsaw), and 

brush removal. Good for small to medium-scale targets, possible negative impacts to habitat by equipment 

(such as soil compaction, creation of disturbed soils, 

burrow collapse).

Treatment of hazard fuels for fire control. 

Removal of invasive species as pretreatment 

before restoration seeding. Cutting to remove 

exotic tree species. 

Flaming Use of small, hand-held torches or flame-emitting devices to burn individual noxious weed plants or small 

weed infestations. 

Flaming specific weed targets, as a general 

weed treatment.

Targeted Grazing Use of contracted grazing animals in specific settings, 

such as along roadways, at trailheads, to reduce hazardous fuels and weed infestations. Variables include 

type of livestock, timing and duration of treatment, 

stocking rates, and frequency.

Applicable for small to medium target areas, can be 

targeted on specific weed species, and is relatively costeffective. Possible negative impacts to native species, 

biological soil crusts, and to habitat (such as soil compaction, creation of disturbed soils, burrow collapse).

Contracted domestic sheep and goats herds would not 

be used for targeted grazing projects where appropriate 

separation distances from desert bighorn herds could 

not be maintained. Domestic sheep and goat herds 

would be contained within the target area, through 

temporary fencing, herding, etc., and removed immediately upon completion of the contracted work.

[Targeted grazing in critical habitat for the Mojave desert tortoise would be experimental and require consultations with the USFWS under Section 7 of the ESA.]

As a hazard fuel reduction method, specific 

weed treatments, and pretreatment for restoration seeding. 

Herbicides Spraying individual plants or populations, sometimes 

in conjunction with stump-cutting. Spraying specific 

project areas.

Good for small to large scale projects, cost-effective 

weed control, essential for eradication of some problematical species. Negative impacts related to potential 

human and ecological exposures to chemicals.

Target spraying to eradicate or control exotic 

annuals for hazard fuel reduction or as a means 

to prepare areas for restoration seeding and/or 

outplantings with native species.

Seeding/

Outplanting

Hand-seeding, seeding by aerial applications and 

small seed drills, hand planting of plugs or individual 

plants, inoculation with cryptogamic crust species or 

mycorrhizae.

Good for small to large-scale projects.

Hand-seeding and outplantings for small 

restoration projects or to introduce seed source 

islands within partially restored native habitat. Aerial seed applications and seeding with 

small drills for larger scale projects. Inoculation 

to restore cryptogamic crusts or help plant 

establishment. 

Watering Supplemental water, artificial water. Supply water to increase success of restoration efforts, to enhance seed production and 

outplanting survival.

Biological Control Release of specific organisms on target populations. 

Good for large-scale targets.

Possible impacts if organism shifts to new host.

Release of biological control organisms to 

control widespread and relatively common 

non-native species. 

Table 3 Vegetation Management Toolbox
30 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 31

ES&R AND OTHER NATIVE VEGETATION COMMUNITY RESTORATION ES&R AND OTHER NATIVE VEGETATION COMMUNITY RESTORATION

NCA resource values, and minimize overall suppression 

costs through planning and efficient management of 

tactical and human resources.

Suppression efforts are coordinated to the extent possible 

with other federal, Tribal, and state agencies, and local 

governmental entities.

Research is supported that increases the understanding 

of ecosystem processes, natural cycles, and anthropogenic factors that affect the fire return intervals that influence climate change.

Management Actions – General

FIR-1: Employ rapid and appropriate suppression responses to minimize fire size and duration in the NCA.

FIR-2: Conserve and protect unburned areas through 

appropriate fire suppression responses, while prioritizing 

firefighter and public safety and the protection of private 

property.

FIR-3: Utilize Resource Advisors to guide suppression 

actions for all fires to help ensure that ecological systems 

and resource values are conserved and protected to the 

maximum extent possible.

FIR-4: Evaluate the use of “backfiring” as a fire suppression tactic in late successional shrublands, including 

Joshua tree woodlands and blackbrush communities, on 

a case-by-case basis. Require NCA Manager approval 

prior to employing this tactic.

FIR-5: Naturally ignited wildfires are not authorized to 

accomplish a resource objective in the NCA as there are 

no fire-adapted vegetative communities present in which 

fire has historically played an important role in ecosystem function.

FIR-6: Do not authorize the use of management-ignited 

(prescriptive) fire in any of the ecological systems of the 

NCA for hazard fuel reduction or vegetation type conversions, as these are not fire-adapted communities in which 

fire has historically played an important role in ecosystem function.

FIR-7: Prescriptive fire could be authorized as part of 

scientific studies, as described below under Scientific 

Research.

Management Actions – Public Education and 

Interpretation

FIR-8: Provide educational materials through various media and venues (e.g., trailhead kiosks, websites) 

that inform visitors about fire prevention and reporting 

wildfires.

FIR-9: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about native vegetation communities and 

why fire did not historically play an important role in 

ecosystem function for these communities.

Management Actions – Scientific Research

FIR-10: Pursue opportunities for scientific studies that 

will develop reliable methods to forecast catastrophic 

wildfire seasons using the timing of fall and winter precipitation events.

FIR-11: Only authorize the use of prescriptive fire for 

research purposes as part of scientific studies authorized 

under an NCA Research Permit and other required 

permits.

FIR-12: Do not authorize prescriptive fires for research 

purposes within designated critical habitat for the 

Mojave desert tortoise or other federally-listed species.

FIR-13: Do not authorize prescriptive fires for research 

purposes in unburned late successional shrublands, including mesic and thermic blackbrush communities and 

Joshua tree woodlands.

FIR-14: Limit the size of prescriptive fires for research 

purposes to no more than one acre for all studies proposed under an NCA Research Permit.

Management Action – Climate Change Monitoring

FIR-15: Pursue opportunities to install one or more 

solar-powered weather stations in the NCA to collect 

data on temperature, precipitation, wind speed, humidity, soil moisture, solar radiation, and other variables that 

could signal changing climatic conditions that influence 

wildfire frequency and severity.

6.9 ES&R and Other Native Vegetation 

Community Restoration

Goal

Biodiversity, ecological integrity, and ecosystem resilience are restored in disturbed and fire-damaged native 

vegetation communities.

Objectives

Species richness and landscape heterogeneity are reestablished in disturbed and fire-damaged vegetation communities through restoration projects and post-fire ES&R 

actions.

Progress is made toward restoration of late successional 

shrublands.

Genetic integrity of native communities is protected by 

using source-identified seeds and other plant materials 

for restoration and re-vegetation projects.

Restoration methods employ the best available science 

relating to natural recovery patterns of native vegetation 

communities.

Research is supported that increases the understanding 

of ecosystem processes (e.g., role of soil crusts, gramnivores, herbivores), cycles (e.g., fire return, nutrient 

cycles), and anthropogenic factors (e.g., recreation) that 

affect the re-establishment of native vegetation communities and that may influence climate change.

Management Actions – General

ESR-1: Apply BMPs and other management techniques 

designed to minimize loss of top soil and soil crusts during restoration projects and ES&R actions.

ESR-2: In planning re-vegetation projects for disturbed 

and fire-damaged areas, identify desired plant communities and use ecologically sustainable methods that 

minimize new surface disturbances and impacts on other 

resource values of the NCA.

ESR-3: Establish monitoring plots and use desired plant 

species frequency, density, and distribution data to evaluate the effectiveness of the treatments.

ESR-4: Conduct monitoring to evaluate effectiveness of 

re-vegetation and ES&R actions, as determined by the 

project-specific monitoring plans.

ESR-5: Implement a program to strategically collect, 

store, and increase native seeds, cuttings, biological soil 

crust communities and species for conservation and for 

use in future restoration projects. Seed collection will follow the Seeds of Success Protocol, in partnership with the 

Great Basin and Mojave Desert Native Plant Programs. 

Collection of cuttings and biological soil crust communities will follow the best available protocols.

ESR-6: Develop partnerships with appropriate BLM Seed 

Warehouses for storage and management of seed collections and with other federal and non-federal entities for 

propagation of seedlings and cuttings.

ESR-7: Maximize the use of microsites of fertile soils 

(“fertile islands”) and areas where biological soil crusts 

are regenerating.

ESR-8: Authorize the use of artificial water, carbon sequestration soil treatments, or other methods that have 

been shown to increase success of restoration efforts in 

desert ecosystems.

ESR-9: Authorize the inoculation of cryptogamic soil 

crust species or mycorrhizae to restore biological soil 

crusts and assist plant establishment.

ESR-10: Authorize use of native seeds, plant materials, 

and native plant cultivars for re-vegetation efforts, in the 

following order of preference:

1. Locally derived sources;

2. Regionally derived sources.

Only authorize use of non-native plant species when 

all the following criteria are met:

a) Desired native species are not available; 

b) The natural biological diversity of the treatment 

area would not be diminished;

c) Exotic and naturalized species can be confined 

within the treatment area;

d) Restoration of native vegetation species would 

be facilitated by use of the non-native species;

e) Use of non-native species would benefit threatened and endangered species, including the Mojave desert tortoise.

ESR-11: Include a high proportion of early colonizing 

(early successional) native annual and perennial species in seed mixes or plantings to quickly re-establish 

soil cover, minimize invasive species establishment, and 

facilitate the re-establishment of late successional species.

ESR-12: Include species in seed mixes or plantings that 

will function as “nurse” plants to facilitate the re-establishment of species (e.g., Joshua trees) that require shade 

during initial growth stages.

ESR-13: To implement seeding restoration, authorize 

the use of non-invasive (e.g., aerial applications, hand 

scattering, surface distribution of encapsulated seeds, 

mulching) and minimally invasive seeding (e.g., small 

seed drills, hand raking) methods, as well as plug plants, 

containerized plants, and other plant materials.

ESR-14: To protect seeds from rodents, birds, and other 

gramnivores, authorize the use of non-invasive (e.g., seed 

encapsulation, mulching) and minimally invasive (e.g., 

small seed drills, hand raking) seed protection methods.

ESR-15: Evaluate the use of invasive seed protection 

methods (e.g., harrowing, chaining) outside of designated critical habitats on a case-by-case basis.

ESR-16: Authorize the use of such methods only when 

scientific research demonstrates that the benefits would 

clearly outweigh the negative effects on listed species, 

habitats, and other resource values.
32 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 33

NOXIOUS WEEDS AND INVASIVE SPECIES VEGETATION RESOURCE USES: LIVESTOCK GRAZING

ESR-17: Authorize hand planting of plugs, other plant 

materials, and containerized plants for vegetation restoration and ES&R treatments.

Management Actions – Public Education and 

Interpretation

ESR-18: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, exhibits, demonstration treatment areas, websites) that inform visitors 

about vegetation/habitat restoration projects and ES&R 

actions.

ESR-19: Involve volunteers, school, youth and veterans 

groups, academic institutions, and partner organizations 

in restoration projects whenever feasible to increase public awareness and foster increased citizen stewardship of 

NCA lands and resources.

Management Actions – Scientific Research

ESR-20: Pursue opportunities to scientifically assess (i.e., 

through rigorous and statistically valid study design) the 

short and long-term effectiveness of seed/seedlings/cuttings by source in areas to be re-vegetated. Incorporate 

local ecotypes (locally collected and increased seed) into 

vegetation studies where plant materials are used for 

vegetation restoration.

ESR-21: Pursue opportunities to collaborate with researchers and other federal and non-federal partners to 

assess the variability in the genetic diversity of plant species to assist in the development of species’ Seed Transfer 

Zones and inform the development of plant materials 

and seed purchase for large scale restoration and re-vegetation projects.

ESR-22: Pursue opportunities for scientific studies of the 

insect and avian pollinators that occur in the NCA and 

their role in the persistence and/or recovery of native 

species.

ESR-23: Pursue opportunities for scientific studies designed to better understand the role of gramnivores (e.g., 

ants, birds, rodents, other small mammals) and herbivores in the persistence and/or recovery of native species.

ESR-24: Pursue opportunities for scientific studies designed to improve the success of re-vegetation techniques 

for late successional species in disturbed and fire-damaged vegetation communities.

ESR-25: Pursue opportunities for scientific studies to 

develop native plant materials and native plant cultivars 

that can quickly re-establish in fire-damaged arid lands 

and prevent infestations of noxious weeds and non-native invasive species.

ESR-26: Pursue opportunities for scientific studies to develop cost effective and ecologically sustainable biological methods to control or eradicate noxious weeds and 

invasive species. 

Management Actions – Climate Change Monitoring

ESR-27: Monitor the timing, frequency, and intensity of 

fall precipitation events in the NCA, as these events can 

be used to predict high invasive annual grass production 

in the following spring that will fuel catastrophic wildfires during the summer months.

ESR-28: Pursue opportunities for scientific studies to 

determine the carbon sequestration value of intact desert 

shrublands and the potential for restoration of degraded 

desert shrublands to be used to mitigate increasing atmospheric carbon dioxide levels.

6.10 Noxious Weeds and Invasive Species

Goal

Ecological integrity of the native vegetation communities 

is conserved, protected, and restored.

Objectives

Infestations of noxious weeds and exotic invasive species 

are controlled and ultimately eradicated using Integrated 

Weed Management (IWM), in cooperation with other 

federal and state agencies, local governmental entities, 

and adjacent private landowners.

New infestations of noxious weeds and exotic invasive 

species are prevented through management actions and 

project design.

Ecologically sustainable and cost effective methods are 

employed for all IWM treatments.

Research is supported that increases the understanding 

of ecosystem processes, natural cycles (e.g., seasonal precipitation), and anthropogenic factors (e.g., recreation) 

that affect the establishment and proliferation of noxious 

weeds and invasive species, and alter the historic fire 

regime.

Management Actions – General

WED-1: Employ weed prevention BMPs (Appendix 

D) as appropriate for surface-disturbing projects and 

activities.

WED-2: Require the use of certified weed-free hay or 

other feed for recreational pack stock.

WED-3: Require the use of certified weed-free mulch 

and seed for reclamation, restoration, and re-vegetation 

projects.

WED-4: Complete a systematic inventory of noxious 

weeds on public lands in the NCA.

WED-5: Develop and maintain a Geographic 

Information System (GIS) database of all noxious weed 

and invasive species treatment projects conducted in the 

NCA.

WED-6: Authorize the use of biological controls, flaming, targeted grazing, hand removal, herbicide, mechanical methods, or a combination of methods for weed 

treatments, depending on target species, infestation level, 

site characteristics, and project scale (see Table 3 for 

descriptions of each method).

WED-7: Conduct monitoring and treat all weed infestations for a minimum of five years or until target species is 

eradicated.

Management Actions – Public Education and 

Interpretation

WED-7: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about appropriate public land use etiquette to prevent the introduction and spread of noxious 

weeds and non-native invasive species.

WED-8: Involve volunteers, youth and veterans groups, 

and diverse partner organizations in the identification 

and mapping of noxious weed and exotic invasive species 

infestations and in weed treatment projects that employ 

hand removal and hand tool methods.

Management Actions – Scientific Research

WED-9: Pursue opportunities for scientific studies to develop ecologically sustainable and cost-effective biological controls for noxious weeds and non-native invasive 

species.

WED-10: Pursue opportunities for scientific studies to 

test the effectiveness of herbicides approved for use on 

public lands in the reduction of exotic invasive annual 

grasses in Mojave Desert and transitional communities.

Management Actions – Climate Change Monitoring

WED-11: Pursue opportunities for scientific studies that 

evaluate the effects of changing precipitation patterns 

and increased atmospheric carbon dioxide levels on the 

spread and dominance of non-native invasive annual 

grasses in Mojave Desert and transitional communities.

6.11 Vegetation Resource Uses: Livestock Grazing

Goal

Livestock grazing is managed in conformance with 

the mandates of OPLMA Section 1975 (e) (4) and in a 

manner that conserves, protects, and enhances the ecological, scenic, wildlife, recreational, cultural, historical, 

natural, educational, and scientific resources of the NCA.

Objectives

Manage livestock grazing to ensure the long-term sustainability of Mojave Desert and Great Basin ecosystems 

and to promote the resilience and survival of native 

vegetation communities under predicted climate change 

scenarios.

Manage livestock grazing to achieve Utah Standards and 

Guides (Appendix E) for upland and riparian vegetation communities, by adjusting use levels, timing and 

intensity of grazing, and by developing improvement and 

restoration projects.

Management Actions – General

LIV-1: Conversions of types of livestock from cattle to 

sheep or other kind of livestock will not be authorized.

LIV-2: Continue to make public lands within the following allotments unavailable to livestock grazing over the 

life of the RMP:

a) Alger Hollow; 

b) Red Cliffs;

c) Yellow Knolls;

d) Washington;

e) Leeds;

f) Sandstone Mountain;

g) Sand Hill.

LIV-3: Public lands within the Diamond Valley allotment 

are unavailable to livestock grazing over the life of the 

RMP (1,780 acres and 80 AUMs).

LIV-4: Public lands within the Sand Wash and Veyo 

allotments are available for grazing over the life of the 

RMP. (Map 2)

Management Action – Public Education and 

Interpretation

LIV-5: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites, educational programs, school curriculum) focused on increasing public understanding of the history of livestock 

grazing in the NCA.

Management Action – Scientific Research

LIV-6: Pursue opportunities for scientific studies to 

determine changes in species composition and vigor 

of native vegetation communities in areas of the NCA 

where domestic livestock grazing was discontinued in the 
M o u n t a i n s R e d

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S o u t h H i l l s

White Hills

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Municipal

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Sand Dunes

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1902

1085

935

1104

903

1227

1004

1038

1016

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M O U N T A I N

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Upper San at Ivins Reservoir

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Lower Santa Clara hs a W Clara

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Santa

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Wash

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Santa Clara

St George

Canal

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Spring

West St George

Springs UQA UDE TC

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Miller Spring

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Santa Clara Reservoir

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C r e e k L e e d s

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Spring

Berry Springs

Sand Mountain Spring

Bench Lake

Gould Reservoir

kr o W na m Wa

G o u l d hs

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Dixie Hot Springs

L a V e r k i n

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C r e e k Sand

Hollow

Reservoir

Quail

Creek

Reservoir

Washington

Allotment

Yellow Knolls

Allotment

Alger Hollow

Allotment

Red Cliffs

Allotment

Red

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Location Map

0 1 2 0.5 Miles

0 1 2 0.5 Kilometers

This product may not meet BLM

standards for accuracy and content.

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may cause some misalignment of data layers.

No warranty is made by the BLM for use of

the data for purposes not intended by the BLM.

Note: Decisions in this document

only apply to BLM lands

FenceGrazing Allotment BoundaryGrazing Pasture BoundaryNational Conservation Area Boundary

Unavailable for GrazingAvailable for Grazing

34 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 35

SPECIAL STATUS SPECIES – INCLUDING THREATENED, ENDANGERED, 

CANDIDATE, AND SPECIES PROPOSED FOR LISTING UNDER ESA

1990s, when compared to historically collected baseline 

data.

6.12 Vegetation Resource Uses: Plant Materials

Goal

A biologically diverse landscape is conserved, protected, 

and restored to support a variety of habitats and native 

plant and animal species.

Objective

Manage harvesting and use of woodland products, native 

plants, and plant materials to conserve biological diversity and further restoration goals for native vegetation 

communities and species habitats.

Management Actions – General

PLA-1: Fees or permits would not be required for the 

collection of small quantities of pinyon pine seeds (pine 

nuts) for non-commercial personal use.

PLA-2: Do not authorize commercial and non-commercial fuelwood or post harvesting in the NCA.

PLA-3: Do not authorize commercial or non-commercial 

Christmas tree harvesting in the NCA.

PLA-4: Do not allow on-site use of dead and down materials for campfires.

PLA-5: Require that visitors provide fuelwood for use in 

campfires.

PLA-6: The collection of dead and down materials for 

campfires is not authorized in the Red Cliffs Recreation 

Area; visitors must provide firewood for use in campfires 

in the campground and day use area.

PLA-7: Do not authorize native seed harvesting for commercial or non-commercial purposes in the NCA.

PLA-8: Do not authorize the commercial or non-commercial harvesting, removal, salvage, and/or sale of native desert vegetation (e.g., cacti, succulents, other native 

species) in the NCA.

PLA-9: Authorize the individual collection of native plant 

materials (excluding all federally-listed native plant species) by Native Americans for religious, ceremonial, and 

traditional purposes.

PLA-10: Authorize collection of native seeds, seedlings, 

plants, cuttings, biological soil crusts and species for 

scientific research through an NCA Scientific Research 

Permit and Utah BLM Specimen Collection Permit, 

where required.

PLA-11: Authorize the collection of native seeds, seedlings, cuttings, biological soil crust communities and 

species for conservation and future use in restoration 

projects. Seed collection will follow the Seeds for Success 

Protocol, in partnership with the Great Basin and Mojave 

Desert Native Plant Programs. Collection of cuttings and 

biological soil crust communities will follow the best 

available protocols.

PLA-12: Develop partnerships with appropriate BLM 

Seed Warehouses for storage and management of seed 

collections and with other federal and non-federal entities for propagation of seedlings and cuttings.

PLA-13: Authorize hand method seed collection for 

scientific research and for restoration projects on public lands within the NCA and adjacent areas within the 

northeast Mojave Desert of southwestern Utah, Arizona, 

and Nevada.

PLA-14: Authorize the collection of native seedlings, 

plants, cuttings, and biological soil crust restoration projects on public lands within the NCA and adjacent areas 

within the northeast Mojave Desert of southwestern 

Utah, Arizona, and Nevada.

Management Action – Public Education and 

Interpretation

PLA-15: Provide educational materials through various media and venues (e.g., trailhead kiosks, websites, 

educational programs, school curriculum) that focus on 

increasing public understanding of research related to the 

development of improved plant materials and restoration 

techniques for arid lands.

Management Actions – Scientific Research

PLA-16: Pursue opportunities for scientific studies designed to improve the success of re-vegetation techniques 

for late successional species in disturbed and fire damaged vegetation communities.

PLA-17: Pursue opportunities for scientific studies to 

develop native plant materials and native plant cultivars 

that can quickly re-establish in fire-damaged arid lands 

and prevent infestations of noxious weeds and non-native invasive species.

6.13 Special Status Species – Including 

Threatened, Endangered, Candidate, and Species 

Proposed for Listing under ESA

Goals

Shivwits milkvetch (Astragalus ampullarioides) populations in the NCA are stable or increasing, helping 

to assist the recovery and delisting of this endemic 

Washington County native plant species.

MAP 2 LIVESTOCK GRAZING MANAGEMENT 
36 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 37

SPECIAL STATUS WILDLIFE SPECIES – INCLUDING THREATENED, 

ENDANGERED, CANDIDATE, AND SPECIES PROPOSED FOR LISTING UNDER 

ESA

SPECIAL STATUS WILDLIFE SPECIES – INCLUDING THREATENED, 

ENDANGERED, CANDIDATE, AND SPECIES PROPOSED FOR LISTING UNDER 

ESA

Critical habitat and suitable habitat are conserved, protected, and restored to support species expansion and 

persistence that will sustain viable populations.

Objectives

Implement management actions to conserve, protect, and 

restore habitat for the Shivwits milkvetch.

Protect, and restore habitats for Shivwits milkvetch, to 

control detrimental non-native species, and to re-establish extirpated populations or augment declining populations, as necessary, to sustain viable populations in the 

NCA.

Management Actions - General

SSS-1: Implement the goals, objectives, and management 

recommendations identified in the approved Recovery 

Plan for Astragalus holmgreniorum (Holmgren milk-vetch) 

and Astragalus ampullarioides (Shivwits milk-vetch);

(USFWS 2006). 

SSS-2: Monitor identified populations of Shivwits 

milkvetch populations within the NCA in coordination 

with USFWS.

SSS-3: Evaluate the effectiveness of management actions 

through monitoring and scientific research studies.

SSS-4: Conduct botanical inventories of areas within the 

NCA where appropriate soil types are present that comprise suitable Shivwits milkvetch habitat.

SSS-5: Use protective measures such as natural barriers, 

fencing, signing, and trail designation to protect populations of and habitat for Shivwits milkvetch.

Management Actions – Public Education and 

Interpretation

SSS-6: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, brochures, 

websites) that inform visitors about the endemic and atrisk native plants that grow in the NCA and appropriate 

public land etiquette to protect these species.

Management Action – Scientific Research

SSS-7: Pursue opportunities to complete detailed soil 

surveys in the NCA to assist in the identification of areas 

that could support populations of Shivwits milkvetch.

SSS-8: Pursue opportunities to collect data on the timing, 

frequency, and duration of precipitation events and how 

these influence persistence and expansion of Shivwits 

milkvetch populations.

SSS-9: Pursue opportunities for scientific research 

that focuses on the species of native bees or other 

pollinators that help to ensure reproduction within 

Shivwits milkvetch populations and gene flow between 

populations.

SSS-10: Research is supported that increases the knowledge of this species and the understanding of ecosystem 

processes, natural cycles, and anthropogenic factors that 

may influence population trends and predicted climate 

change scenarios.

6.14 Special Status Wildlife Species – Including 

Threatened, Endangered, Candidate, and Species 

Proposed for Listing under ESA

Goals

Habitats for listed species are conserved, protected, and 

restored to support viable populations that no longer 

require listing protection under the ESA.

Habitats for species proposed for listing under the ESA 

are conserved, protected, and restored to support viable 

populations, precluding the need to list species that are 

candidates or proposed for listing under the protection of 

the ESA.

Objectives

Upland vegetation communities provide high quality 

forage or a high quality prey base, as well as cover, shade, 

and breeding areas that will sustain viable populations of 

biologically diverse terrestrial and aquatic species.

Riparian areas and natural water sources provide high 

quality habitat, thereby sustaining viable populations of 

biologically diverse terrestrial and aquatic species.

Habitat connectivity, migration routes, and movement 

corridors are conserved, protected, and restored to support species persistence, adaptation, and overall biodiversity under changing climate conditions.

Management of discretionary activities does not contribute to the need to list candidate or proposed species 

under the ESA.

Public awareness of special status species is enhanced 

through education, interpretation, and volunteer opportunities that further species conservation and habitat 

restoration.

Research is supported that increases the knowledge of 

threatened and endangered species that inhabit the NCA 

and the understanding of ecosystem processes, natural 

cycles, and anthropogenic factors that may influence 

predicted climate change scenarios.

Management Actions - General

SSW-1: Implement the goals, objectives, and management recommendations that apply to public lands 

from USFWS approved Recovery Plans and Biological 

Opinions issued under Section 7 of the ESA. Evaluate the 

effectiveness of management actions through monitoring 

and scientific research studies.

SSW-2: Continue active management programs to inventory, monitor, protect, and restore habitats for special 

status species, to control detrimental non-native species, 

and to re-establish extirpated populations, as necessary, 

to maintain the unique ecosystem biodiversity of the 

NCA.

SSW-3: Apply BMPs and other management techniques 

designed to minimize impacts on critical habitats and 

listed species populations that may result from land uses 

and authorized activities.

SSW-4: Allow the reintroduction, translocation, and 

population augmentation of special status species 

populations into current or historic habitats in the NCA, 

in coordination with USFWS, and UDWR, and local governments, subject to guidance provided by BLM’s 6840 

policy and by existing or future MOU, to assist recovery 

and delisting of threatened or endangered species and 

preclude the need to list other at-risk species.

SSW-5: Monitor the long term success of population 

management actions and use Adaptive Management 

Strategies to improve desired outcomes. 

SSW-6: Collaborate with USFWS, UDWR, and appropriate USDA agencies on predator control, if other management actions have not been successful in reducing 

documented predation levels that have been shown to 

be measurably impacting the recovery of viable populations of listed species. Require the development of target 

species-specific predator control plans supported by 

NEPA analyses that identify the purpose of and need for 

action, designate specific goals to be met, and evaluate 

the least invasive and most ecologically sensitive methods to accomplish those goals.

SSW-7: Suppress wildfires in special status species' 

habitats using tactics that minimize fire size and impacts 

on species' populations, native vegetation communities, 

and other ecosystem components, while ensuring that 

firefighter safety and private property are given highest 

priority.

SSW-8: Prioritize habitat restoration projects and postfire ES&R treatments as follows:

1. Designated critical habitats for federally-listed 

threatened and endangered species;

2. Habitats for candidate and proposed species for 

listing under ESA.

SSW-9: Do not authorize recreational activities or uses in 

areas where special status species habitats may be degraded by these authorizations.

SSW-10: Only authorize new land uses in special status 

species habitats if reasonable alternative locations outside 

of these habitats do not exist and impacts to habitats can 

be avoided or appropriately mitigated.

SSW-11: Maintain habitat connectivity, migration routes, 

and movement corridors through project placement, 

design, and permit stipulations to support special status 

species persistence, adaptation, and overall biodiversity 

under changing climate conditions.

Management Actions – Public Education and 

Interpretation

SSW-12: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about appropriate land use etiquette and 

the need to protect populations and habitats for terrestrial and aquatic species that are listed or proposed for 

listing under the protection of the ESA.

SSW-13: Provide educational materials through various media and venues (e.g., trailhead kiosks, websites) 

that educate visitors about terrestrial and aquatic special 

status species, their evolutionary adaptations to an arid 

landscape where surface water is limited, and the factors 

that have contributed to the need to list these species 

under the ESA.

SSW-14: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

educate visitors about the rich biodiversity created by 

the convergence of the Mojave Desert, Great Basin, and 

Colorado Plateau ecosystems that can be experienced in 

the NCA. 

Management Action – Scientific Research

SSW-15: Pursue opportunities for scientific studies to 

determine the habitat value of native vegetation communities of different successional stages for diverse wildlife 

species to improve habitat protection and restoration 

project planning for special status species.
38 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 39

SPECIAL STATUS BIRD SPECIES: SOUTHWESTERN WILLOW FLYCATCHER, 

WESTERN YELLOW-BILLED CUCKOO, AND OTHER RIPARIAN-DEPENDENT 

SPECIAL STATUS SPECIES

SPECIAL STATUS SPECIES: DESERT TORTOISE

6.15 Special Status Bird Species: Southwestern 

Willow Flycatcher, Western Yellow-Billed 

Cuckoo, and Other Riparian-Dependent Special 

Status Species

Goal

Southwestern willow flycatcher (Empidonax traillii extimus), western yellow-billed cuckoo (Coccyzus americanus occidentalis), and other riparian dependent special 

status bird species populations that utilize habitats in 

the NCA would be stable or increasing, helping to meet 

recovery and delisting goals for each species.

Objectives

Riparian habitats along Leeds Creek, the Virgin River, 

and elsewhere in the NCA would include the vegetative species diversity, density, and canopy cover required 

to provide suitable habitat for southwestern willow 

flycatchers.

Potentially suitable habitat in the NCA would be improved to provide suitable habitat for western yellowbilled cuckoos.

Riparian areas would be in proper functioning condition 

and provide adequate foraging, roosting, and nesting 

sites for riparian-obligate special status avian species.

Research is supported that increases baseline data related 

to riparian-obligate avian species that utilize the NCA.

Research is supported that increases the understanding 

of ecosystem processes, natural cycles, and anthropogenic factors that may influence predicted climate change 

scenarios.

Management Actions - General

SSB-1: Management of riparian habitat would be consistent with the Final Recovery Plan: Southwestern Willow 

Flycatcher (Empidonax traillii extimus); (USFWS 2002) 

and future final recovery plans for the western yellowbilled cuckoos.

SSB-2: Maintain a database of observations of southwestern willow flycatchers and western yellow-billed cuckoos.

SSB-3: Develop maps of potential habitats for southwestern willow flycatcher and western yellow-billed cuckoo 

that include location, size, shape, spacing, and condition 

of habitat areas.

SSB-4: Manage potential habitat for southwestern willow 

flycatcher and western yellow-billed cuckoos to allow 

natural regeneration into suitable habitat as rapidly as 

natural conditions allow.

SSB-5: Manage suitable habitat for southwestern willow 

flycatcher and western yellow-billed cuckoos to conserve and protect its suitability for nesting, foraging, and 

occupancy.

SSB-6: Monitor changes in the relative abundance, 

health, reproductive success, and distribution of populations, in partnership with USFWS and UDWR.

SSB-7: Allow the reintroduction, translocation, and 

population augmentation of southwestern willow flycatcher and western yellow-billed cuckoos into current 

or historic habitats in the NCA, in coordination with 

USFWS, UDWR, and local governments, subject to guidance provided by BLM’s 6840 policy and by existing or 

future memoranda of understanding.

SSB-8: Suitable habitat for western yellow-billed cuckoo 

will be identified according to Guidelines for the identification of suitable habitat for western yellow-billed cuckoo 

in Utah (USFWS 2015a).

SSB-9: Surveys for western yellow-billed cuckoo will 

be conducted according to A Natural History Summary 

and Survey Protocol for the Western Distinct Population 

Segment of the Yellow-billed Cuckoo: U.S. Fish and 

Wildlife Techniques and Methods (Halterman et al. 2015).

Management Action – Public Education and 

Interpretation

SSB-10: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about the riparian areas and the diverse 

avian species that depend upon this habitat.

Management Action – Scientific Research

SSB-11: Develop new volunteer opportunities for partners, youth groups, and citizen scientists to assist with 

collecting observations of southwestern willow flycatcher, 

western yellow-billed cuckoo, and other riparian-obligate 

avian species in the NCA along Quail Creek, Leeds 

Creeks, and the Virgin River. 

6.16 Special Status Bird Species: California 

Condor

Goal

Designated nonessential experimental populations of 

California condor (Gymnogyps californianus) that may 

utilize habitats in the NCA would be stable or increasing, helping to meet recovery and delisting goals for this 

species.

Objectives

Environmental hazards that may affect California condors are reduced or eliminated.

Management Actions - General

SSC-1: Management of habitat would be consistent with 

the Recovery Plan for the California Condor (USFWS 

1996) and Biological Opinions issued by USFWS.

SSC-2: Allow the reintroduction, translocation, and 

population augmentation of California condors into current or historic habitats in the NCA, in coordination with 

USFWS, UDWR, Southwest Condor Working Group, 

American Indian Tribes and local governments, subject 

to guidance provided by BLM’s 6840 policy and current 

Memorandum of Understanding among the USFWS 

(Regions 2, 6, 8) and Cooperators (USFWS 2015b) or 

future MOUs.

SSC-3: Maintain a database of observations of California 

condors and their prey, should they be observed using 

the NCA.

SSC-4: Coordinate with partners (e.g., UDWR, National 

Audubon Society, National Wildlife Federation, The 

Peregrine Fund) to promote the use of non-lead ammunition in the NCA.

Management Actions – Public Education and 

Interpretation

SSC-5: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

educate visitors about California condors and the captive 

breeding and release programs ongoing on public lands 

on the Arizona Strip.

SSC-6: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform hunters about the need to use non-lead ammunition to minimize impacts on California condors and 

other predators and scavengers.

SSC-7: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about the need to pack out food wastes 

and litter that may cause choking and death when consumed by condors.

Management Action – Scientific Research

SSC-8: Develop new volunteer opportunities for partners, youth groups, and citizen scientists to assist with 

collecting observations of California condors in the 

NCA.

Management Action – Climate Change Monitoring

SSC-9: Pursue opportunities for research that increases 

the understanding of ecosystem processes, natural 

cycles, and anthropogenic factors that may influence the 

prey base of condors under predicted climate change 

scenarios.

6.17 Special Status Species: Mojave Desert 

Tortoise

Goal

Mojave desert tortoise (Gopherus agassizii) populations 

in the NCA have made measurable progress toward 

meeting the recovery goals, objectives, and identified 

criteria for viable populations established by Recovery 

Plan for the Mojave Desert Tortoise (USFWS 1994) and 

the Revised Recovery Plan for the Mojave Desert Tortoise

(USFWS 2011).

Objectives

Land uses and authorized activities are managed to 

conserve, protect, and restore habitats to meet the nutritional, metabolic (shade/cover), reproductive, and home 

range requirements of viable Mojave desert tortoise 

populations.

Ecologically intact core areas of designated critical habitat are conserved and protected from fragmentation and 

loss of native vegetation communities, through appropriate land use allocations and management actions across 

BLM programs.

Ecological integrity of damage native vegetation communities is restored through appropriate re-vegetation 

methods and the control and eradication of noxious 

weeds and non-native invasive species.

Land uses and authorized activities are managed so that 

habitats provide ecological diversity and connectivity to 

create genetic resilience for Mojave desert tortoise populations under changing climatic conditions.

Research is supported that increases the knowledge of 

Mojave desert tortoise life histories and population dynamics in the NCA.

Research is supported that increases the understanding 

of ecosystem processes, natural cycles, and anthropogenic factors that may influence predicted climate change 

scenarios.

BLM will work collaboratively with local, state, and federal partners to accomplish the goals and the objectives 

of the Washington County HCP and its implementation 

agreement.
40 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 41

SPECIAL STATUS SPECIES: DESERT TORTOISE BLM SENSITIVE SPECIES

Management Actions – General

SST-1: Implement the goals, objectives, and management 

recommendations identified in the Revised Recovery 

Plan for the Mojave Desert Tortoise (USFWS 2011) or 

future revisions, as well as the terms and conditions from 

relevant Biological Opinions issued by USFWS to assist 

recovery and delisting of the Mojave desert tortoise in 

the Upper Virgin River Recovery Unit. Evaluate the effectiveness of management actions through monitoring 

and scientific research studies.

SST-2: Install tortoise barrier fencing along heavily 

traveled public use roadways in the NCA to minimize 

tortoise injuries and mortalities caused by motorized 

vehicles. 

SST-3: Coordinate with Washington County Public 

Works Department to post speed limits on heavily 

traveled public use roads where tortoise barrier fencing 

has not been installed to minimize tortoise injuries and 

mortalities caused by motorized vehicles.

SST-4: Allow the reintroduction, translocation, and 

population augmentation of Mojave desert tortoises into 

current or historic habitats in the NCA, in coordination 

with USFWS, UDWR, and local governments, subject to 

guidance provided by BLM’s 6840 policy and by existing 

or future MOU.

SST-5: Monitor changes in the relative abundance, health, 

reproductive success, and distribution of tortoise populations, in partnership with USFWS and UDWR.

SST-6: Collaborate with USFWS, UDWR, and appropriate USDA agencies on predator control, if other management actions have not been successful in reducing 

documented predation levels that have been shown to 

be measurably impacting the recovery of viable Mojave 

desert tortoise populations. Require the development of 

target species-specific predator control plans supported 

by NEPA analyses that identify the purpose of and need 

for action, designate specific goals to be met, and evaluate the least invasive and most ecologically sensitive 

methods to accomplish those goals. 

SST-7: Prioritize the acquisition of non-federal lands 

or interests in critical tortoise habitat within the NCA 

boundaries from willing land owners through purchase, 

exchange of public lands identified for disposal outside of the NCA boundaries, donation, or conservation 

easement.

SST-8: Whenever possible, acquire both surface and subsurface rights to avoid the creation of split estates.

SST-9: Acquire conservation easements when such interest would further the goals of recovery and delisting of 

the Mojave desert tortoise or other at-risk species.

SST-10: Prioritize conservation and protection of critical 

habitat through firebreaks, appropriate wildfire suppression responses, and control or eradication of noxious 

weeds and invasive species.

SST-11: Establish monitoring plots and conduct longterm monitoring using desired plant species frequency, 

density, and distribution data to evaluate the effectiveness 

of the vegetation restoration projects

Management Actions – Public Education and 

Interpretation

SST-12: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

educate visitors about Mojave Desert species, their evolutionary adaptations to an arid landscape where surface 

water is limited, and the factors that have contributed to 

the need to list these species under the ESA.

SST-13: Provide educational materials through various media and venues (e.g., trailhead kiosks, websites) 

that inform visitors about appropriate land use etiquette 

and the need to protect populations and habitats for 

Mojave desert tortoises and other Mojave Desert wildlife. 

Encourage public land users to pack out food scraps and 

litter that will attract predators that prey on tortoises, 

particularly juveniles.

SST-14: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

educate visitors about the rich biodiversity of the NCA 

created by the convergence of the Mojave Desert, Great 

Basin, and Colorado Plateau ecosystems.

Management Actions – Scientific Research

SST-15: Pursue opportunities for scientific studies to 

determine the level and effects of predation on Mojave 

desert tortoise populations in the NCA.

SST-16: Pursue opportunities for scientific studies to determine the effects of intensive non-motorized recreation 

on Mojave desert tortoise populations in the NCA.

SST-17: Pursue opportunities for scientific studies to determine the relative abundance of Mojave desert tortoise 

populations in the NCA.

SST-18: Pursue opportunities for scientific studies to 

determine age classes, gender ratios, and the health of 

Mojave desert tortoise populations in the NCA.

SST-19: Pursue opportunities for scientific studies to 

determine changes in species composition and vigor 

of native vegetation communities in areas of the NCA 

where domestic livestock grazing was discontinued in the 

1990s, when compared to historically collected baseline 

data.

Management Action – Climate Change Monitoring

SST-20: Pursue opportunities for scientific studies to 

determine the effects of predicted higher winter temperatures on Mojave desert tortoise hibernation patterns, using observed changes as an indicator to monitor climate 

change.

6.18 Special Status Fish Species: Woundfin 

Minnow and Virgin River Chub

Goal

Woundfin minnow (Plagopterus argentissimus) and 

Virgin River chub (Gila seminuda) populations that utilize the Virgin River through the NCA would be stable or 

increasing, helping to assist the recovery and delisting of 

these species across their range.

Objectives

Suitable aquatic habitats for woundfin minnow and 

Virgin River chub in the NCA would be managed to support viable populations.

Research is supported that increases baseline data related 

to Virgin River native fish in the NCA.

Research is encouraged that informs the management 

of aquatic habitats for at-risk species under predicted 

climate change scenarios.

Management Actions – General

SSF-1: Management actions will be guided by the Virgin 

River Fishes Recovery Plan (USFWS 1995), Virgin River 

Resource Management Plan and Recovery Program

(USFWS 2000), and Fish and Wildlife 2000: Special Status 

Fish Habitat Management (BLM 1991).

SSF-2: Assist with monitoring efforts for woundfin minnow and Virgin River chub in cooperation with USFWS, 

UDWR, and the partners of the Virgin River Program.

SSF-3: Allow the reintroduction, translocation, and 

population augmentation of woundfin minnow and 

Virgin River chub into current or historic habitats in the 

NCA, in coordination with USFWS and UDWR, subject 

to guidance provided by BLM’s 6840 policy and by existing or future MOUs.

SSF-4: Monitor land uses and authorized activities that 

have the potential to degrade water quality, damage 

riparian vegetation, and collapse stream banks that provide shade and cover for aquatic species.

SSF-5: Restrict, modify, or eliminate land uses and authorized activities that are shown to degrade aquatic habitats 

that support native Virgin River fish species.

SSF-6: Prioritize the acquisition of non-federal inholdings within the NCA that would benefit the conservation, 

protection, and restoration of the Virgin River and its 

tributaries.

Management Actions – Public Education and 

Interpretation

SSF-7: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about the Virgin River, its tributaries, and 

the unique native fish and aquatic species that evolved in 

this system.

SSF-8: Involve partners and volunteers in clean-up and 

restoration projects that improve aquatic habitat conditions along the Virgin River through the NCA.

Management Action – Scientific Research

SSF-9: Pursue opportunities to increase baseline data and 

the general understanding of population dynamics and 

habitat needs of native Virgin River fish through scientific research.

6.19 BLM Sensitive Species

Goal

Habitats for aquatic and terrestrial BLM sensitive species 

support viable, self-sustaining populations that do not 

require listing under the ESA.

Objectives

Land uses and authorized activities on public lands are 

managed to conserve, protect, and restore habitats to 

meet the nutritional, metabolic (shade/cover), reproductive, and home range requirements of sensitive species 

populations in the NCA.

Ecologically intact core areas of sensitive species habitats 

are conserved and protected from fragmentation and loss 

of native vegetation communities, through appropriate 

management actions across all BLM programs.

Ecological integrity of damaged native vegetation communities is restored, through appropriate re-vegetation 

methods and control and eradication of noxious weeds 

and invasive non-native species.

Land uses and authorized activities on public lands are 

managed so that habitats provide ecological diversity 
42 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 43

BLM SENSITIVE NATIVE FISH SPECIES BLM SENSITIVE RAPTOR SPECIES

and connectivity to create resiliency for sensitive species 

populations under changing climate conditions.

Research is supported that increases the amount of baseline data related to sensitive species that occupy and/or 

utilize the NCA.

Research is encouraged that informs the management 

of habitats for at-risk species under predicted climate 

change scenarios.

Management Actions - General

BSS-1: Implement the goals, objectives, and management recommendations that apply to public lands 

from Executive Orders, Conservation Agreements and 

Strategies, and BLM policies. Evaluate the effectiveness of 

management actions through monitoring and scientific 

research studies.

BSS-2: Continue active management programs to inventory, monitor, protect, and restore habitats for sensitive 

species, control detrimental non-native species, and reestablish extirpated populations, as necessary, to maintain biodiversity.

BSS-3: Apply BMPs and other management techniques 

designed to minimize impacts on critical habitats as 

a result of land uses, authorized activities, and habitat 

restoration actions.

BSS-4: Allow the reintroduction, translocation, and 

population augmentation of native sensitive species 

into historical and current habitats, in consultation with 

UDWR, to restore populations and enhance or maintain 

current populations, distributions, and genetic diversity.

BSS-5: Monitor the long term success of the population 

actions and use Adaptive Management Strategies to improve desired outcomes.

BSS-6: Monitor changes in relative abundance and distribution of sensitive species populations in the NCA, in 

partnership with UDWR.

BSS-7: Collaborate with UDWR and appropriate USDA 

agencies on predator control, if other management actions have not been successful in reducing documented 

predation levels that have been shown to be measurably 

impacting the recovery of viable populations of sensitive species. Require the development of target speciesspecific predator control plans, supported by NEPA 

analyses that identify the purpose of and need for action, 

designate specific goals to be met, and evaluate the least 

invasive and most ecologically sensitive methods to accomplish those goals.

BSS-8: Only authorize new land uses in sensitive species' habitats if reasonable alternative locations outside of 

these habitats do not exist and impacts to species populations and habitats can be mitigated.

BSS-9: Maintain habitat connectivity, migration routes, 

and movement corridors through project placement, design, and permit stipulations to support sensitive species 

persistence, adaptation, and overall biodiversity under 

changing climate conditions.

Management Action – Public Education and 

Interpretation

BSS-10: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

educate visitors about sensitive species, their evolutionary adaptations, and the factors that have contributed to 

declining populations.

Management Actions – Scientific Research

BSS-11: Pursue opportunities for scientific studies to 

determine the relative abundance of sensitive species 

populations in the NCA.

BSS-12: Pursue opportunities for scientific studies to 

determine age classes, gender ratios, and the health of 

sensitive species populations in the NCA.

BSS-13: Pursue opportunities for scientific studies to 

determine the level and effects of predation on sensitive 

species populations in the NCA.

Management Action – Climate Change Monitoring

BSS-14: Pursue opportunities to establish a long-term 

monitoring program to detect changes in seasonal migration patterns (arrival and departure dates) of selected 

migratory bird species as potential indicators of climate 

change.

6.20 BLM Sensitive Native Fish Species

Goal

Aquatic habitats in Leeds Creek and the Virgin River 

support stable or increasing populations of BLM sensitive 

fish species including Virgin spinedace (Lepidomeda mollispinis), desert sucker (Catostomus clarki), and flannelmouth sucker (Catostomus latipinnis), helping to ensure 

that none of these species requires listing under the ESA.

Objectives

Aquatic habitat in the Virgin River on public lands provides interspersed pools, runs, and riffles of clear, cool 

water of sufficient quality and quantity to support viable 

populations of Virgin spinedace, desert sucker, and flannelmouth sucker.

Non-native invasive fish species are eradicated in the 

reach of the Virgin River through the NCA.

Research is supported that increases baseline data related 

to Virgin River native fish in the NCA.

Research is encouraged that informs the management 

of aquatic habitats for at-risk species under predicted 

climate change scenarios.

Management Actions - General

BSF-1: Management actions will be guided by the Virgin 

RiverFishes Recovery Plan (USFWS 1995), Virgin River 

Resource Management Plan and Recovery Program 

(USFWS 2000) and Fish and Wildlife 2000: Special 

Status Fish Habitat Management (BLM 1991), the 1995 

Virgin River Fishes Recovery Plan, and the 1995 Virgin 

Spinedace Conservation Agreement and Strategy.

BSF-2: BLM will provide appropriate support to active 

partners in the Virgin River Fishes Recovery Team.

BSF-3: Assist with monitoring efforts for Virgin spinedace, desert sucker, and flannelmouth sucker populations in cooperation with UDWR and the partners of the 

Virgin River Recovery Program.

BSF-4: Allow the reintroduction, translocation, and 

population augmentation of Virgin spinedace, desert 

sucker, and flannelmouth sucker into suitable habitats in 

the NCA.

BSF-5: Assist with eradication of non-native invasive fish 

species in cooperation with UDWR and the partners of 

the Virgin River Recovery Program.

BSF-6: Pursue acquisition of non-federal lands within 

the NCA that would benefit the conservation, protection, 

and restoration of aquatic habitats.

BSF-7: Monitor land uses and authorized activities along 

the Virgin River in the NCA that have the potential to 

degrade water quality, damage riparian vegetation, and 

collapse stream banks that provide shade and cover for 

aquatic species.

BSF-8: Restrict, modify, or eliminate any land uses and 

authorized activities in the NCA that are shown to degrade aquatic habitat in the Virgin River or its tributaries, 

Quail and Leeds Creeks.

Management Action – Public Education and 

Interpretation

BSF-9: Provide educational materials through various 

media and venues both off-site and along Leeds Creek 

and the Virgin River within the NCA (e.g., trailhead 

kiosks) that educate visitors about Virgin spinedace, 

desert sucker, and flannelmouth sucker, their evolutionary adaptations, and the factors that are contributing to 

declining populations.

Management Action – Scientific Research

BSF-10: Pursue opportunities to increase the amount 

of baseline data and scientific knowledge related to the 

specific habitat requirements of native fish of the Virgin 

River system.

Management Action – Climate Change Monitoring

BSF-11: Pursue opportunities to collect data on changing precipitation patterns in the Virgin River watershed 

that have the potential to impact aquatic habitats under 

predicted climate change scenarios.

6.21 BLM Sensitive Raptor Species

Goal

Diverse raptor populations that utilize the NCA are viable or increasing and do not require listing under the 

ESA. BLM sensitive raptor species present in the NCA 

include: bald eagle (Haliaeetus leucocephalus), burrowing owl (Athene cunicularia), ferruginous hawk (Buteo 

regalis), northern goshawk (Accipiter gentilis), and short 

eared owl (Asio flammeus).

Objectives

Land uses and authorized activities on public lands are 

managed to conserve, protect, and restore habitats to 

meet the nutritional, metabolic (shade/cover/perching), 

reproductive, and home range requirements of diverse 

species of raptors.

Habitats for raptors provide high quality roosting and 

nesting sites and diverse prey base, thereby sustaining 

viable populations of these species.

Environmental hazards that could impact raptors are 

minimized.

Research is supported that increases the amount of baseline data related to all species of raptors and the prey base 

that they utilize in the NCA.

Management Actions - General

BSR-1: Allow the reintroduction, transplantation, and 

population augmentation of bald eagles, ferruginous 

hawks, northern goshawks, and short eared owls where 

doing so would not be detrimental to the viability of 

other native species.

BSR-2: Actions that may adversely impact breeding, 

nesting, and roosting raptors will be subject to seasonal 

restrictions and spatial buffers, based on guidance found 
44 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 45

MIGRATORY BIRDS AND BIRDS OF CONSERVATION CONCERN

in Utah Field Office Guidance for Raptor Protection 

from Human and Land Use Disturbances (Romin and 

Muck 2002).

BSR-3: Allow the population augmentation of burrowing 

owls and the installation of artificial nest burrows where 

doing so would not be detrimental to the viability of 

other native species.

BSR-4: Maintain a geospatially linked database of observations of diverse raptors and their prey.

BSR-5: Coordinate with partners (e.g., UDWR, National 

Audubon Society, National Wildlife Federation) to promote the use of non-lead ammunition in the NCA.

Management Actions – Public Education and 

Interpretation

BSR-6: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

educate the public about raptors and their role in the ecosystems of the NCA. 

BSR-7: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform hunters about the need to use non-lead ammunition to minimize impacts on raptors.

Management Actions – Scientific Research

BSR-8: Pursue opportunities to collect baseline observational data on raptor species that occur in the NCA and 

develop location maps of nesting and roosting sites, as 

well as information on the prey base for each species.

BSR-9: Pursue opportunities for scientific studies related 

to the diversity, abundance, and distribution of small 

mammals that comprise the prey base for raptors, carnivores, and other predatory species, including rodents, 

desert cottontails (Sylvilagus audubonii), and black-tailed 

jackrabbits (Lepus californicus).

BSR-10: Develop new volunteer opportunities for partners, special interest groups, birding enthusiasts, and 

citizen scientists to assist with observational data collection and habitat mapping for eagles, hawks, falcons, and 

owls that utilize the NCA.

Management Action – Climate Change Monitoring

BSR-11: Pursue opportunities for monitoring and 

research that increases the understanding of ecosystem 

processes, natural cycles, and anthropogenic factors that 

may influence the prey base of raptors under predicted 

climate change scenarios.

6.22 Migratory Birds and Birds of Conservation 

Concern

Goal

Migratory bird species and Birds of Conservation 

Concern that utilize the NCA do not require listing under the protection of the ESA (see Appendix F for species 

list).

Objectives

Biologically diverse habitats that provide essential breeding, nesting and roosting sites, space, cover, and food 

for migratory birds would be conserved, protected, and 

restored.

Research is supported that increases the amount of 

baseline data related to all species of migratory birds and 

their diverse habitat requirements.

Research is encouraged that identifies changes in migration patterns as a potential indicator of climate change.

Management Actions – General

BCC-1: Only authorize actions that would not adversely 

impact nesting migratory birds.

BCC-2: Minimize disturbances or adverse effects on 

breeding bird populations that might result from authorized activities through seasonal restrictions, special 

permit stipulations, or other appropriate mitigation 

measures.

Management Actions – Public Education and 

Interpretation

BCC-3: Provide educational materials through various media and at on-site venues along Quail and Leeds 

Creeks and the Virgin River that educate the public about 

migratory bird species, the causes for declining populations, and the need to protect riparian habitats and 

seasonal migration routes.

BCC-4: Promote opportunities for viewing and photographing diverse species of migratory birds through 

interpretive materials, recreation trails, and special outreach activities such as guided birding hikes along Quail 

and Leeds Creeks and the Virgin River.

BCC-5: In partnership with the National Audubon 

Society and others, recruit and train youth groups, 

citizen stewards, and other volunteers to participate in 

annual migratory bird counts in Quail and Leeds Creeks, 

the Virgin River, and elsewhere in the NCA.

Management Actions – Scientific Research

BCC-6: Pursue opportunities to conduct field inventories of riparian areas along Quail and Leeds Creeks and 

the Virgin River to identify avian species that utilize the 

NCA.

BCC-7: Pursue opportunities to collect baseline observational data on migratory birds and other avian species 

and develop location maps of occupied habitats and nesting sites.

BCC-8: Pursue opportunities to conduct systematic 

inventories of migratory birds that utilize the NCA and 

evaluate the condition of the preferred habitats for each 

species.

BCC-9: Develop new volunteer opportunities for partners, special interest groups, birding enthusiasts, and 

citizen scientists to assist with observational data collection and habitat mapping for migratory birds, Birds of 

Conservation Concern and Partners in Flight species.

Management Action – Climate Change Monitoring

BCC-10: Pursue research opportunities that focus on 

changes in the seasonal migration patterns of selected 

migratory bird species as potential indicators of climate 

change.

6.23 BLM Sensitive Mammal Species

Goal

Habitats for BLM Sensitive mammal species support 

viable populations that do not require listing under the 

ESA. Sensitive mammals present in the NCA include: kit 

fox (Vulpes macrotis), Allen’s big-eared bat (Idionycteris 

phyllotis), big free-tailed bat (Nyctinomops macrotis), 

fringed myotis (Myotis thysanodes), spotted bat (Euderma 

maculatum), Townsend’s big-eared bat (Corynorhinus 

townsendii), and western red bat (Lasiurus blossevillii).

Objectives

Habitats for the kit fox provide for a diverse and healthy 

prey base, as well as sufficient reproductive and home 

range requirements.

Habitats for sensitive bat species provide high quality 

maternity and roosting sites, winter hibernacula, and a 

diverse prey base, thereby sustaining viable populations 

of these species.

Caves, karst resources, and abandoned mines allow for 

unimpeded ingress and egress by diverse bat species.

Research is supported that increases the baseline data 

related to sensitive mammal species and the habitats that 

they utilize in the NCA.

Management Actions – General

BSM-1: As needed, implement National White Nose 

Syndrome Decontamination Protocol and BLM IM 2010-

18 in the management of habitats that support sensitive 

species bat populations.

BSM-2: Allow the reintroduction, transplantation, and 

population augmentation of sensitive mammal species 

where doing so would not be detrimental to the viability 

of other native species.

BSM-3: Do not authorize the use of herbicides, pesticides, or poisons that are injurious or toxic to sensitive 

mammal species, will damage native vegetation communities, or will reduce the quality and quantity of species 

that comprise their prey base.

BSM-4: Manage caves, karst resources, and abandoned 

mines to protect bat habitat (e.g., foraging, roosting, 

maternity sites, winter hibernacula) and reduce the potential spread of contagious diseases, such as White Nose 

syndrome, in bat populations.

BSM-5: Require the installation of bat-friendly gates in 

caves and karst features that require access restrictions or 

closure.

BSM-6: Where appropriate, limit abandoned mine 

closure methods to the installation of bat-friendly gates 

for those abandoned mines that provide habitat (e.g., 

foraging, roosting, maternity sites, winter hibernacula) 

for bats.

BSM-7: Install bat friendly escape ramps in troughs or 

other artificial water sources.

BSM-8: Do not authorize activities that have the potential to disturb bats within a 0.25 mile radius of maternity 

roost sites and winter hibernacula, including all entrances to caves, karst features, and abandoned mines as 

recommended by the USFWS (USFWS 2015c).

Management Action – Public Education and 

Interpretation

BSM-9: Provide educational materials through various 

media and venues both off-site and on to inform visitors 

about the many sensitive mammal species found in the 

NCA, as well as their diverse habitats and prey.

Management Actions – Scientific Research

BSM-10: Pursue opportunities for scientific studies to 

collect population and life history data on the kit fox in 

the NCA.

BLM SENSITIVE MAMMAL SPECIES
46 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 47

SENSITIVE REPTILE AND AMPHIBIAN SPECIES

BSM-11: Pursue opportunities for scientific studies related to the diversity, abundance, and distribution of small 

mammals that comprise the prey base for the kit fox.

BSM-12: Pursue opportunities to conduct field inventories of caves, abandoned mines, cliffs, and other suitable 

habitats to identify all of the bat species that utilize the 

NCA.

BSM-13: Pursue opportunities to collect baseline observational data on bat species and develop location maps of 

occupied habitats, hibernacula, and maternity roost sites.

BSM-14: Develop new volunteer opportunities for partners, special interest groups, cave enthusiasts, and citizen 

scientists to assist with observational data collection and 

habitat mapping for sensitive mammal species.

6.24 Sensitive Reptile and Amphibian Species

Goal

Reptiles and amphibians identified as BLM sensitive 

species do not require listing under the ESA. Sensitive 

reptiles and amphibians present in the NCA include the 

common chuckwalla (Sauromalus ater), Gila monster 

(Heloderma suspectum), sidewinder (Crotalus cerastes), 

western banded gecko (Coleonyx variegatus), western thread-snake (Leptotyphlops humilis), zebra-tailed 

lizard (Callisaurus draconoides), and Arizona toad (Bufo 

microscaphus).

Objectives

Introduced populations would increase to the point of 

being viable, self-sustaining populations of native endemic reptile and amphibian species.

Biologically suitable habitats would be conserved and 

protected.

Research is supported that increases the baseline data 

related to reptiles and amphibians in the NCA.

Research is encouraged that informs the management of 

reptile and amphibian habitats under predicted climate 

change scenarios.

Management Actions – General

SRA-1: Allow the reintroduction, transplantation, and 

population augmentation of Arizona toad, northern 

leopard frog (Rana pipiens), lowland leopard frogs (Rana 

yavapaiensis), and relict leopard frogs (Rana onca) to 

suitable habitat locations, where doing so would not be 

detrimental to the viability of other native species.

SRA-2: Allow the reintroduction, transplantation, and 

population augmentation of sensitive reptile species, 

where doing so would not be detrimental to the viability 

of other native species.

SRA-3: Do not authorize the use of herbicides, pesticides, 

or poisons that are injurious or toxic to sensitive reptile 

or amphibian species, will damage native vegetation 

communities, or will reduce the quality and quantity of 

species that comprise their prey base.

Management Actions- Public Education and 

Interpretation

SRA-4: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

educate the public about reptiles and amphibians in the 

ecosystems of the NCA.

SRA-5: Provide educational materials through various 

media and venues both off-site and along Leeds Creek 

and the Virgin River to inform visitors about the diverse 

species that occupy these habitats.

Management Actions – Scientific Research

SRA-6: Pursue opportunities to conduct field inventories to identify amphibians and reptiles that are found in 

springs/ seeps, and along Quail and Leeds Creeks and the 

Virgin River through the NCA.

SRA-7: Pursue opportunities to increase the amount of 

baseline data and scientific knowledge related to the life 

histories, population trends, habitat requirements, and 

threats to amphibians and reptiles in the NCA to inform 

the management of aquatic habitats.

6.25 Other Fish and Wildlife Habitat

Goal

Aquatic and terrestrial habitats support viable populations of diverse native wildlife species and provide for 

biological diversity, ecological resilience, and species 

persistence under predicted climate change scenarios.

Objectives

Crucial and substantial habitats for diverse native wildlife 

species on public lands provide high quality forage or a 

high quality prey base, as well as water, space, cover, and 

breeding areas, thereby sustaining viable populations and 

overall ecosystem biodiversity and resilience.

Multi-species habitat connectivity, migration routes, 

and movement corridors are conserved and protected 

between ecological zones to facilitate species persistence, 

adaptation, and overall biodiversity under predicted 

climate change scenarios.

Research is supported that increases the amount of baseline data related to all species of wildlife and their diverse 

habitat requirements. 

Research is encouraged that increases general understanding of ecosystem processes and anthropogenic 

influences on changing climatic conditions.

Management Actions - General

FWH-1: Develop new wildlife waters in collaboration 

with UDWR in areas where field studies reveal the need 

for such to maintain healthy, viable populations of mule 

deer or other game and nongame species. Such waters 

will be developed in accordance with the objectives and 

guidelines of applicable game, nongame, and habitat 

management plans.

FWH-2: Ensure that all existing and proposed artificial 

wildlife waters include escape ladders or are designed to 

allow safe access by wildlife.

FWH-3: Ensure that all new or replacement range-type 

fencing conforms to BLM specifications that allow safe 

passage for game and nongame wildlife species.

FWH-4: Allow the reintroduction, transplantation, and 

augmentation of priority native wildlife species populations (as defined in BLM Manual 1745 or subsequent 

guidance) into current or historic habitats in the NCA, 

in coordination with UDWR in order to: (a) maintain 

current population numbers, distributions, and genetic 

diversity, and (b) restore or enhance native species 

populations.

FWH-5: Manage mule deer habitat to assist UDWR 

in achieving long-term herd population goals and 

objectives.

FWH-6: Restrict dispersed camping to designated sites 

that do not impede wildlife access to water sources.

FWH-7: Remove unnecessary range-type fencing within 

the NCA to lessen potential for injuries and entanglement by mule deer, particularly fawns.

FWH-8: Include native vegetation species that benefit mule deer in upland habitat restoration and ES&R 

projects.

FWH-9: Include native vegetation species that provide forage, cover, and nesting opportunities for quail 

and other game birds in habitat restoration and ES&R 

projects.

Management Actions – Public Education and 

Interpretation

FWH-10: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

educate visitors about the diverse fish and wildlife species 

of the NCA.

FWH-11: Enhance opportunities for public viewing and 

photographing of mule deer, game birds, and other wildlife through special outreach activities such as guided 

wildlife photography hikes.

FWH-12: Authorize documentary and educational 

filming of wildlife through film permits, consistent with 

the Congressionally-defined purposes of conservation, 

protection, and restoration of resource values on public 

lands in the NCA.

Management Actions – Scientific Research

FWH-13: Pursue opportunities for scientific studies to 

collect population and life history data on carnivore species, such as mountain lion and bobcat, in the NCA.

FWH-14: Pursue opportunities for scientific studies 

related to the diversity, abundance, and distribution of 

small mammals that comprise the prey base for raptors, carnivores, and other predatory species, including 

rodents, desert cottontails, and black-tailed jackrabbits.

Management Actions – Climate Change Monitoring

FWH-15: Pursue opportunities to identify key riparian 

connectivity zones within and outside the NCA that will 

facilitate wildlife movement under predicted changes in 

seasonal precipitation patterns and increased ambient 

temperatures.

6.26 Heritage Resources

Goal

Heritage resources are conserved, protected, and enhanced for the benefit of present and future generations, consistent with the Congressional mandates from 

OPLMA Section 1974.

Objectives

Heritage resources currently documented or that may be 

documented in the NCA are allocated and managed to 

the Use Allocations (as defined by BLM Manual Section 

8110.42 and Land Use Planning Handbook H-1601-1) 

that are consistent with the legislative mandates from 

OPLMA for the NCA: Scientific Use, Conservation for 

Future Use, Public Use, and Traditional Use.

Heritage resources of scientific interest currently documented or that may be documented in the future within 

HERITAGE RESOURCES
48 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 49

HERITAGE RESOURCES

the NCA are not allocated to Experimental Use or 

Discharged from Management, as these would not be 

consistent with the Congressionally-designated purposes for the NCA, as they relate to cultural and historical resources. See Table 2 for descriptions of each Use 

Allocation category.

Public awareness and appreciation of heritage resources 

is enhanced through education and volunteer stewardship opportunities.

Appropriate heritage resource sites or groups of sites 

are nominated for inclusion in the National Register of 

Historic Places (NRHP), whenever warranted.

The integrity of setting is conserved, protected, and 

restored in areas where natural and cultural resources 

combine to form an important heritage landscape.

Management Actions – General

HER-1: As required by federal historic preservation laws, 

continue consultations among the BLM, the Advisory 

Council on Historic Preservation, the Utah SHPO, 

American Indian Tribes, applicants for federal assistance, 

permits, licenses or other approvals, representatives of 

local governments, and other interested parties to inform 

management decisions related to heritage resources. 

Manage properties recommended as “potentially eligible” 

for inclusion in the NRHP as “eligible properties” until 

evaluative testing determines the status of that resource.

HER-2: Complete implementation-level Cultural 

Resource Project Plans whenever warranted, in consultation with Utah SHPO, American Indian Tribes, and other 

interested parties.

HER-3: Conduct regular site monitoring and site condition assessments utilizing BLM staff and trained volunteer Site Stewards.

6.26.1 Prehistoric Habitation Sites, Campsites, or 

Specialized Activity Area

HER-4: Allocate and manage 100% of these NRHPeligible site types for Scientific Use, Conservation for 

Future Use, Public Use, or Traditional Use.

Management Actions – General

HER-5: Protect sites from impacts related to authorized uses and unauthorized activities (e.g., vandalism) 

through installations of physical barriers (e.g., fencing, 

plantings) or other management actions.

HER-6: Stabilize sites where erosion and/or vandalism 

threaten loss of site integrity and data.

HER-7: Install informational signing on site etiquette and 

ARPA where evidence of public use exists.

HER-8: Evaluate risks at fire-susceptible sites and remove 

hazardous fuels where threat of site damage or loss to 

wildfire exists.

HER-9: Prohibit geocaching in all Prehistoric Habitation 

Sites, Campsites, and Specialized Activity Areas.

Scientific Use

HER-10: Authorize data recovery excavations under 

appropriate research designs that emphasize conservation of site resources for future use, as well as Native 

American and public involvement in the research.

Conservation for Future Use

HER-11: Do not authorize activities or research studies 

that will directly impact the integrity and information 

potential of sites.

Public Use

HER-12: Complete implementation-level plans (e.g., 

Cultural Resource Project Plans, Recreation Management 

Plans, Interpretation Plans) to direct management of 

Public Use sites that may contain one or more of actions 

listed below:

a) Develop on and off-site interpretation for intensively visited Public Use sites;

b) Install visitor registers at intensively visited Public 

Use sites;

c) Install on-site informational signing on site etiquette and ARPA;

d) Perform surface collection of artifacts on all sites 

allocated to Public Use;

e) Prioritize Class III inventory in areas adjacent to 

Public Use sites.

Traditional Use

HER-13: Complete implementation-level Cultural 

Resource Project Plans, in consultation with culturallyaffiliated American Indian Tribes to direct management 

of Traditional Use sites.

6.26.2 Rock Shelters, Alcoves, and Caves with Cultural 

Material

HER-14: Allocate and manage 100% of NRHP-eligible 

sites for Scientific Use, Conservation for Future Use, or 

Traditional Use.

HER-15: Allocate and manage rock shelters, alcoves, 

and caves identified as Sacred Sites for Conservation for 

Future Use or Traditional Use.

HER-16: Allocate and manage identified Traditional 

Cultural Properties for Traditional Use.

Management Actions – General

HER-17: Prioritize Class III inventory in areas with high 

potential for this site type to occur.

HER-18: Conduct regular site monitoring, utilizing BLM 

staff and trained volunteer Site Stewards.

HER-19: Protect sites from impacts related to authorized uses and unauthorized activities (e.g., vandalism) 

through installations of physical barriers (e.g., fencing, 

plantings) or other management actions.

HER-20: Stabilize sites where erosion and/or vandalism 

threaten loss of site integrity and data.

HER-21: Install informational signing on site etiquette 

and ARPA where evidence of public use exists.

HER-22: Prohibit geocaching in all Rock Shelters, 

Alcoves, and Caves with Cultural Materials.

Scientific Use

HER-23: Authorize data recovery excavation with appropriate research design which maximizes conservation of 

the site resources for future use and Native American and 

public involvement in the research.

HER-24: Complete NRHP nominations for Scientific Use 

sites on a priority basis as identified in Cultural Resource 

Project Plans.

Conservation for Future Use

HER-25: Do not authorize activities or research studies 

that will directly impact the integrity and information 

potential of sites.

Traditional Use

HER-26: Complete implementation-level Cultural 

Resource Project Plans, in consultation with culturallyaffiliated American Indian Tribes.

6.26.3 Toolstone Sources or Quarries

HER-27: Allocate and manage 100% of NRHP-eligible 

sites for Scientific Use, Conservation for Future Use, or 

Public Use.

Management Actions - General

HER-28: Install informational signing on site etiquette 

and ARPA where evidence of public use exists. 

HER-29: Prioritize Class III inventory in areas with high 

potential for this type of site to occur.

HER-30: Develop Cultural Resource Project Plans that 

include management direction related to the collection 

of non-artifact geologic materials from source/quarry 

locations.

Scientific Use

HER-31: Authorize data recovery excavations under 

appropriate research designs that emphasize conservation of site resources for future use, as well as Native 

American and public involvement in the research.

Conservation for Future Use

HER-32: Do not authorize activities or research studies 

that will directly impact the integrity and information 

potential of sites.

Public Use

HER-33: Complete implementation-level plans (e.g., 

Cultural Resource Project Plans, Recreation Management 

Plans, Interpretation Plans) to direct management of 

Public Use sites that may contain one or more of actions 

listed below:

a) Develop on and off-site interpretation for intensively visited Public Use sites;

b) Install visitor registers at intensively visited Public 

Use sites;

c) Install on-site informational signing on site etiquette and ARPA;

d) Perform surface collection of artifacts on all sites 

allocated to Public Use;

e) Prioritize Class III inventory in areas adjacent to 

Public Use sites.

6.26.4 Rock Art Sites

HER-34: Allocate and manage 100% of NRHP-eligible 

sites for Scientific Use, Conservation for Future Use, 

Public Use, or Traditional Use.

HER-35: Allocate and manage rock art sites with evidence of public visitation for Scientific Use, Public Use, 

or Traditional Use.

HER-36: Allocate and manage rock art sites with no 

evidence of public visitation for Conservation for Future 

Use or Traditional Use.

HER-37: Allocate and manage rock art sites identified as Sacred Sites for Conservation for Future Use or 

Traditional Use.

Management Actions – General

HER-38: Prioritize Class III inventory in areas with high 

potential for this site type to occur.

HER-39: Conduct regular site monitoring, utilizing BLM 

staff and trained volunteer Site Stewards.

HERITAGE RESOURCES
50 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 51

HERITAGE RESOURCES

HER-40: Professionally document all rock art sites 

by photographing, mapping, and developing detailed 

measured drawings of all elements and cultural materials 

using the best available technology.

HER-41: Manage all rock art sites as “eligible properties” 

for inclusion in the NRHP.

HER-42: Protect sites from impacts related to authorized uses and unauthorized activities (e.g., vandalism) 

through installations of physical barriers (e.g., fencing, 

plantings) or other management actions.

HER-43: Stabilize sites where erosion and/or vandalism 

threaten loss of site integrity and data.

HER-44: Install informational signing on site etiquette 

and ARPA where evidence of public use exists.

HER-45: Evaluate risks at fire-susceptible sites and remove hazardous fuels where threat of site damage or loss 

to wildfire exists.

HER-46: Prohibit geocaching in all Rock Art Sites.

Scientific Use

HER-47: Authorize surface collection of artifacts under 

the authority of ARPA if warranted by threats of loss or 

destruction.

Conservation for Future Use

HER-48: Do not authorize activities or research studies 

that will directly impact the integrity and information 

potential of sites.

Public Use

HER-49: Complete implementation-level plans (e.g., 

Cultural Resource Project Plans, Recreation Management 

Plans, Interpretation Plans) to direct management of 

Public Use sites that may contain one or more of actions 

listed below:

a) Develop on and off-site interpretation for intensively visited Public Use sites;

b) Install visitor registers at intensively visited Public 

Use sites;

c) Install on-site informational signing on site etiquette and ARPA;

d) Perform surface collection of artifacts on all sites 

allocated to Public Use;

e) Prioritize Class III inventory in areas adjacent to 

Public Use sites;

f) Develop trails, viewing platforms, passive barriers, 

or other facilities to manage visitor uses and protect 

resource values at intensively visited Public Use sites.

Traditional Use

HER-50: Complete implementation-level Cultural 

Resource Project Plans, in consultation with culturallyaffiliated American Indian Tribes.

6.26.5 Ethno-historic Sites, Sacred Sites, Traditional 

Cultural Properties, Traditional Use Areas

HER-51: Allocate and manage 100% of these NRHPeligible ethno-historic sites for Scientific Use, 

Conservation for Future Use or Traditional Use.

HER-52: Allocate and manage Traditional Cultural 

Properties and Traditional Use Areas identified by the 

Agency Official for Traditional Use.

HER-53: Allocate and manage sites identified as Sacred 

Sites for Conservation for Future Use and/or Traditional 

Use.

Management Actions – General

HER-54: Develop detailed site records of all identified 

ethno-historic sites, Sacred Sites, Traditional Cultural 

Properties, and Traditional Use Areas.

HER-55: Protect sites from impacts related to authorized uses and unauthorized activities (e.g., vandalism) 

through installations of physical barriers (e.g., fencing, 

plantings) or other management actions.

HER-56: Conduct regular monitoring patrols, utilizing 

BLM staff and trained volunteer Site Stewards.

HER-57: Stabilize sites where erosion and/or vandalism 

threaten loss of site integrity and data.

HER-58: Install informational signing on site etiquette 

and ARPA where evidence of public use exists.

HER-59: Evaluate risks at fire-susceptible sites and remove hazardous fuels where threat of site damage or loss 

to wildfire exists.

HER-60: Prohibit geocaching at all Ethno-historic 

sites, Sacred Sites, Traditional Cultural Properties, and 

Traditional Use Areas.

Scientific Use

HER-61: Authorize data recovery excavations under 

appropriate research designs that emphasize conservation of site resources for future use, as well as Native 

American and public involvement in the research.

HER-62: Authorize surface collection of artifacts under 

the authority of ARPA, if warranted by threats of loss or 

destruction.

Conservation for Future Use

HER-63: Do not authorize activities or research studies that will directly impact the integrity and traditional 

heritage values of sites.

Traditional Use

HER-64: Complete implementation-level Cultural 

Resource Project Plans, in consultation with culturallyaffiliated American Indian Tribes.

6.26.6 Historic Roads, Trails, Highways, and 

Associated Travel-related Sites and Features

HER-65: Allocate and manage 100% of NRHP-eligible 

properties for Scientific Use, Conservation for Future 

Use, or Public Use.

Management Actions – General

HER-66: Complete Class III level inventory of the travel 

corridor for each site to establish baseline data on linear 

heritage resources and associated travel-related sites and 

features.

HER-67: Protect sites from impacts related to authorized uses and unauthorized activities (e.g., vandalism) 

through installations of physical barriers (e.g., fencing, 

plantings) or other management actions.

HER-68: Conduct regular monitoring patrols, utilizing 

BLM staff and trained volunteer Site Stewards.

HER-69: Stabilize sites where erosion and/or vandalism 

threaten loss of site integrity and data.

HER-70: Prohibit geocaching at all associated travelrelated sites and features.

Scientific Use

HER-71: Authorize surface collection of artifacts under 

the authority of ARPA if warranted by threats of loss or 

destruction.

HER-72: Prepare an historic context for each resource as 

prioritized by Cultural Resource Project Plans.

Conservation for Future Use

HER-73: Do not authorize activities or research studies 

that will directly impact the integrity and information 

potential of sites.

HER-74: Emphasize conservation of setting in management actions identified in Cultural Resource Project 

Plans.

Public Use

HER-75: Complete implementation-level plans (e.g., 

Cultural Resource Project Plans, Recreation Management 

Plans, Interpretation Plans) to direct management of 

Public Use sites that may contain one or more of actions 

listed below:

a) Develop on and off-site interpretation for intensively visited Public Use sites;

b) Install visitor registers at intensively visited Public 

Use sites;

c) Install on-site informational signing on site etiquette and ARPA;

d) Install roadside markers and directional signing;

e) Prepare visitor use maps and driving, biking, and 

hiking guides;

f) Construct pullouts and wayside exhibits with visitor amenities (e.g., restrooms, information kiosks), 

where appropriate.

6.26.7 Historic Mining, Ranching/Farming/Livestock 

Grazing Sites, Buildings, Standing Structures, and 

Landscapes

HER-76: Allocate and manage 100% of NRHP-eligible 

sites for Scientific Use, Conservation for Future Use, or 

Public Use.

Management Actions – General

HER-77: Complete appropriate scale Class III level 

inventory to identify all associated sites, features, and 

structures.

HER-78: Protect sites from impacts related to authorized uses and unauthorized activities (e.g., vandalism) 

through installations of physical barriers (e.g., fencing, 

plantings) or other management actions.

HER-79: Conduct regular monitoring patrols, utilizing 

BLM staff and trained volunteer Site Stewards.

HER-80: Stabilize sites where erosion and/or vandalism 

threaten loss of site integrity and data.

HER-81: Conduct regular site monitoring, utilizing BLM 

staff and trained volunteer Trail Stewards.

HER-82: Evaluate risks at fire-susceptible sites and remove hazardous fuels where threat of site damage or loss 

to wildfire exists.

Scientific Use

HER-83: Authorize surface collection of artifacts under 

the authority of ARPA if warranted by threats of loss or 

destruction.

As prioritized by Cultural Resource Project Plans:

a) Complete an intensive archaeological inventory of 

the resources to collect baseline data;

b) Collect oral histories;

c) Prepare an historic context for each site;

HERITAGE RESOURCES
M o u n t a i n s R e d

Clara Bench

S o u t h H i l l s

White Hills

Boomer Hill

Canyon

Municipal Airport

Bloomington

RadioTower

Webb

Gag ni g Station

Hospital

College Dixie

Black Ridge

South Black Rocks

Nichols Peak

Wash ni g ot n Dome

Beacon

Warner

Black Rocks

North

L a v a R i d g e

B i g

G u l c h

S a n d Hol ol w

cuB ksk ni

C a n y o n

LAVA

S n o w

LAVA

Gravel

Pit

D i a m o n d

V a l l e y

POWERLINE

A l g e r G u l c h C e d a r

H o l l o w

B e n c h

A l g e r

o H ol l w

S p r ni g Twin Peaks

Yellow Knol sl

East Valley

al B kc

Harr si burg D mo e

Washington Hollow

Yant

Flat

Hollow Big

Harr si bu gr Bench

Sandstone Mountain

Sand Dunes

Sand Dunes

Sand Dunes

U H R R CI N A E

F r o g Hurricane

Airport

L C FI S F

Sullivan Knoll

1902

1085

935

1104

903

1227

1004

1038

1016

1002

M O U N T A I N

S A N D

Wash

Upper San at Ivins Reservoir

r D y

Lower Santa Clara hs a W Clara

Bench

Bench

Santa

Clar

C

a

anal

Canal

Cottonwood

Wash

Curly

Hollow

Box Canyon Stucki Spring

Wash

Wash

Cove

Santa Clara

St George

Canal

Pr ci e Bench Ditch

V ri g ni

Spring

West St George

Springs UQA UDE TC

Ci yt

Spring

Miller Spring

H l a wf ay

Santa Clara Reservoir

River

hs a W

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di M l d ot e n

Green Spring

a C

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Ha dr er

Ditch

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and

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Spring

Spring

AQUEDUCT

hs a W

Spring

Creek Mill

ss aP

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Cot ot wn ood

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Warner Valley

Spring

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Spring

C o t t o n w o o d

C r e e k C r e e k

H e a ht

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B i t t e r

C r e e k

R o c k

C r e e k

l at I n ai

G r a p e v i n e W a s h

C r e e k L e e d s

Q u a i l

Spring

Berry Springs

Sand Mountain

Spring

Bench Lake

Gould Reservoir

kr o W na m Wa

G o u l d hs

u H rr ci na e a C an l

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L a V e r k i n

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N

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Produced by BLM

St. George Field Office GIS

Location Map

0 1 2 0.5 Miles

0 1 2 0.5 Kilometers

This product may not meet BLM standards

for accuracy and content. Different data

sources and input scales may cause

some misalignment of data layers.

No warranty is made by the BLM for use of

the data for purposes not intended by the BLM.

Note: Decisions in this document

only apply to BLM lands

BLM Wilderness Area

Bureau of Land Management

Yellow Knolls Heritage Area

Babylon Heritage Corridor

National Conservation Area Boundary

White Reef Heritage Area

52 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 53

HERITAGE RESOURCES

d) Develop photo documentation of historic buildings, structures, features, and landscapes;

e) Complete Level 1 Historic American Building 

Survey (HABS) documentation, including elevations, 

plans, measured drawings, photos;

f) Complete appropriate level Historic American 

Landscape Survey (HALS) documentation, where 

warranted.

Conservation for Future Use

HER-84: Emphasize conservation of setting in management actions identified in Cultural Resource Project 

Plans.

Public Use

HER-85: Complete implementation-level plans (e.g., 

Cultural Resource Project Plans, Recreation Management 

Plans, Interpretation Plans) to direct management of 

Public Use sites that may contain one or more of actions 

listed below:

a) Develop on and off-site interpretation for intensively visited Public Use sites to increase public 

awareness and appreciation of historic period mining, ranching and agricultural activities in the NCA;

b) Install visitor registers at intensively visited Public 

Use sites;

c) Install on-site informational signing on site etiquette and ARPA;

d) Perform surface collection of artifacts on all sites 

allocated to Public Use;

e) Prioritize Class III inventory in areas adjacent to 

Public Use sites.

Yellow Knolls Heritage Area

HER-86: Manage approximately 1,196 acres of public 

land as the Yellow Knolls Heritage Area to maintain and 

protect the integrity of setting with a focus on prehistoric 

rock art, subsistence strategies, and resource procurement (Map 3).

HER-87: Develop off-site interpretation at wayside exhibits along the non-motorized Yellow Knolls Trail system. 

HER-88: Manage for non-motorized recreation (hiking, 

mountain biking, equestrian use) on designated trails.

HER-89: Manage for day use only.

HER-90: Prohibit geocaching in all archaeological sites in 

the Yellow Knolls Heritage Area

White Reef Heritage Area

HER-91: Manage approximately 787 acres of public land 

as the White Reef Heritage Area to maintain and protect 

the integrity of setting with a focus on the historic roads, 

structures, and features related to mid-19th Mormon 

settlement at Harrisburg and silver mining in the 

Harrisburg/Silver Reef District (Map 3).

HER-92: Develop on and off-site interpretation at wayside exhibits along the non-motorized White Reef trail 

system.

HER-93: Manage Heritage Area as VRM Class II.

HER-94: Manage for non-motorized recreation (hiking, 

mountain biking, equestrian use) on designated trails.

HER-95: Manage for day use only.

HER-96: Prohibit geocaching in all archaeological sites 

and historic period sites in the White Reef Heritage Area.

Babylon Heritage Corridor

HER-97: Manage approximately 1,028 acres of public 

land as the Babylon Heritage Corridor to maintain and 

protect the integrity of setting with a focus on significant 

vertebrate and plant fossil resources, prehistoric rock art, 

historic roads, structures, and features related to late 19th 

century silver mining and milling in the Harrisburg/

Silver Reef District (Map 3).

HER-98: Develop on and off-site interpretation at wayside exhibits along the Babylon Road.

HER-99: Manage Heritage Corridor as VRM Class II.

HER-100: OHV area designation is Limited to 

Designated Routes with individual routes designated 

through the TMP.

HER-101: Manage for day use only.

HER-102: Prohibit geocaching in all fossil localities, archaeological sites and historic period sites in the Babylon 

Heritage Area.

Management Actions - Public Education and 

Interpretation

HER-103: Develop heritage tourism sites focusing on 

appropriate types of sites that have been identified for 

Public Use.

HER-104: Sponsor educational programs for school 

groups, civic organizations, elected officials, and public 

land user groups that increase public appreciation for the 

unique and irreplaceable heritage resources of the NCA.

HER-105: Sponsor trainings and information dissemination to youth and scout groups, recreational user groups, 

and the general public about programs like “Tread 

MAP 3 HERITAGE MANAGEMENT AREAS
54 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 55

management activities may dominate the view and 

be the major focus of viewer attention. However, every attempt should be made to minimize the impact 

of these activities through careful location, minimal 

disturbance, and repeating the basic elements found 

in the predominant natural features of the characteristic landscape.

Management Actions - General

VRM-1: Use architectural design standards that create 

a unique and recognizable identity for the NCA. The 

standards would include, but are not limited to: fencing 

design, signage requirements, vegetative screening, siting 

requirements, and the height, shape, and color of proposed structures.

VRM-2: Incorporate visual and architectural design considerations during the project design phase for all new 

surface disturbing projects or activities, regardless of size 

or potential impact.

VRM-3: Conduct ecosystem restoration projects that 

meet VRM objectives for the NCA over the long-term 

(over the anticipated life of the restoration project). In 

the short term (5 years or less) or the mid-term (5-10 

years), VRM objectives for restoration projects in the 

NCA would not have to be met.

VRM-4: Use the best available technology to minimize 

light emissions from all authorized facilities.

VRM-5: Retroactively prioritize and apply architectural 

design standards to existing structures and facilities.

VRM-6: Reduce or prevent impacts to night skies 

through the application of specific mitigation measures. 

These measures could include, but are not limited to: directing all light emissions downward, using shielded light 

sources, using only the minimum illumination necessary, 

using light sources less prone to atmospheric scattering, 

and using circuit timers or motion sensors.

VRM-7: Manage the NCA as follows:

VRM Class I: 19,989 acres

VRM Class II: 18,525 acres

VRM Class III: 6,160 acres

VRM Class IV: 183 acres

(Map 4)

6.30 Natural Soundscapes

Goal

Public land users can experience natural soundscapes in 

the NCA. 

Objective

Land uses and authorized activities are managed to conserve and protect natural soundscapes.

Management Action - General

NAT-1: Identify and provide opportunities for visitors to 

enjoy the atmosphere of peace and tranquility afforded 

by the natural soundscapes of the NCA.

Management Action - Public Education and 

Interpretation

NAT-2: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites, educational programs, school curriculum) focused on increasing public awareness of natural quiet and the benefits of 

protecting natural soundscapes where they are present in 

the NCA.

Management Actions - Scientific Research

NAT-3: Identify appropriate acoustic monitoring locations in the NCA using established protocols.

NAT-4: Install sound level meters and supporting 

hardware to collect, analyze, and determine the levels 

and types of natural sounds in the NCA and to identify 

potential anthropogenic sources of soundscape impacts.

6.31 Recreation and Visitor Services

Goal

High quality sustainable recreation opportunities and 

visitor services are provided. Those opportunities support the quality of life of NCA visitors as well as local 

communities, regional economies and the resource 

values of the NCA.

Objectives

Protect NCA resource and recreation values using the 

following:

a) Trail and facility design;

b) Directional, informational, regulatory, traffic control, boundary, and trail signs;

c) Maps and associated digital technology;

d) Appropriate law enforcement;

e) Interpretive materials and educational programs;

f) Citizen stewardship.

Management Actions – Recreation Management Areas

REC-1: Remove those portions of the identified Red 

Mountain/Santa Clara SRMA and the SGFO Extensive 

Recreation Management Zone administrative designations that overlap the NCA.

WILDERNESS (RED MOUNTAIN AND COTTONWOOD CANYON) RECREATION AND VISITOR SERVICES

Lightly” and “Leave No Trace” that help to protect heritage resources.

HER-106: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites, educational programs, school curriculum) focused on heritage 

resources and appropriate site etiquette when visiting 

Public Use sites.

HER-107: Promote opportunities for volunteer involvement in Site Stewardship and Docent programs that 

increase public awareness of the need to conserve and 

protect heritage resources.

HER-108: Recruit and train youth and veteran groups, 

citizen stewards, and other volunteers to participate in 

site clean-up and restoration, as well as archaeological 

inventory and data recovery projects that enhance public 

understanding of regional cultural history and the heritage values of the NCA.

Management Actions - Scientific Research

HER-109: Scientific research is encouraged that increases 

the cultural resource inventory database and serves to 

improve baseline knowledge and general understanding 

of cultural and historical resources of the NCA.

HER-110: Research will be authorized at sites allocated 

to Scientific Use, as described above by the specific type 

of site.

Management Action - Climate Change Monitoring

HER-111: Pursue opportunities for research studies to 

utilize data recovered from archaeological contexts in 

the NCA to identify changes in native vegetation communities, faunal assemblages, and aboriginal subsistence 

strategies that could provide data for comparison with 

modern climate trends.

6.27 Wilderness (Red Mountain and Cottonwood 

Canyon)

Goal

Preserve wilderness character in accordance with the 

Wilderness Act of 1964 and OPLMA.

Objective

Manage the Red Mountain and Cottonwood Canyon 

Wilderness in accordance with the Wilderness Act of 

1964, OPLMA, and BLM Manual 6340.

Management Action – General

WIL-1: Manage wilderness areas in the NCA in conformance with implementation-level decisions from the 

Wilderness Management Plan for the Red Mountain and 

Cottonwood Canyon Wilderness, when completed.

6.28 Areas of Critical Environmental Concern

Management Action – General

ACE-1: Revoke the administrative designation of the 

4,854-acre Red Mountain ACEC, as described in the 

SGFO RMP (BLM 1999: Decision AC-09, page 2.68; Map 

2.17, page 2-90). The ACEC is entirely located within the 

Red Mountain Wilderness, designated through OPLMA 

in 2009, and partially contained within the NCA. Manage 

these public lands in conformance with implementation-level decisions from the Wilderness Management 

Plan for the Red Mountain and Cottonwood Canyon 

Wilderness Areas, when completed.

6.29 Visual Resource Management

Goal

The open spaces, natural aesthetics, and scenic vistas of 

the NCA are protected for social, economic, and environmental benefits.

Objective

Visual quality and integrity are maintained in accordance 

with established Visual Resource Management (VRM) 

Class criteria:

Class I Objective: The existing character of the 

landscape is preserved. This class provides for natural 

ecological changes; however, it does not preclude 

very limited management activity. The level of 

change to the characteristic landscape should be very 

low and must not attract attention.

Class II Objective: The existing character of the 

landscape is retained. The level of change to the characteristic landscape should be low. Changes can be 

seen but should not attract the attention of the casual 

viewer. Any changes must repeat the basic elements 

of form, line, color, and texture found in the predominant natural features of the characteristic landscape.

Class III Objective: The existing character of the 

landscape is partially retained. The level of change 

to the characteristic landscape should be moderate. Management activities may attract attention but 

should not dominate the view of the casual observer. 

Changes should repeat the basic elements found in 

the predominant natural features of the characteristic 

landscape.

Class IV Objective: To provide for management 

activities that require major modification of the existing character of the landscape. The level of change 

to the characteristic landscape can be high. These 
M o u n t a i n s R e d

Clara Bench

S o u t h H i l l s

White Hills

Boomer Hill

Canyon

Municipal Airport

Bloomington

Radio Tower

Webb

Gag ni g Station

Hospital

College Dixie

Black Ridge

South Black Rocks

Nichols Peak

Wash ni g ot n Dome

Beacon

Warner

Black Rocks

North

L a v a R i d g e

B i g

G u l c h

S a n d Hol ol w

cuB ksk ni

C a n y o n

LAVA

S n o w

LAVA

Gravel

Pit

D i a m o n d

V a l l e y

POWERLINE

A l g e r G u l c h C e d a r

H o l l o w

B e n c h

A l g e r

o H ol l w

S p r ni g Twin Peaks

Yellow Knol sl

East Valley

al B kc

Harr si burg D mo e

Washington Hollow

Yant

Flat

Hollow Big

Harr si bu gr Bench

Sandstone Mountain

Sand Dunes

Sand Dunes

Sand Dunes

U H R R CI N A E

F r o g Hurricane Airport

L C FI S F

Sullivan Knoll

1902

1085

935

1104

903

1227

1004

1038

1016

1002

M O U N T A I N

S A N D

Wash

Upper San at Ivins Reservoir

r D y

Lower Santa Clara hs a W Clara

Bench

Bench

Santa

Clar

C

a

anal

Canal

Cottonwood

Wash

Curly

Hollow

Box Canyon Stucki Spring

Wash

Wash

Cove

Santa Clara

St George

Canal

Pr ci e Bench Ditch

V ri g ni

Spring

West St George

Springs UQA UDE TC

Ci yt

Spring

Miller Spring

H l a wf ay

Santa Clara Reservoir

River

hs a W

er C ke

di M l d ot e n

Green Spring

a C

not gni hs a W nal

Ha dr er

Ditch

R vi er

egr oe Gt S

and

Snow Spring

Spring

Spring

AQUEDUCT

hs a W

Spring

Creek Mill

ss aP

hs a W Spring

ar G ep ni v e

Cot ot wn ood

Wash

Warner Valley

Spring

Cottonwood

Spring

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C r e e k

R o c k

C r e e k

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C r e e k L e e d s

Q u a i l

Spring

Berry Springs

Sand Mountain Spring

Bench Lake

Gould Reservoir

kr o W na m Wa

G o u l d hs

u H rr ci na e a C an l

Dixie Hot Springs

L a V e r k i n

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Produced by BLM

St. George Field Office GIS

Location Map

0 1 2 0.5 Miles0 1 2 0.5 Kilometers

This product may not meet BLM standards

for accuracy and content. Different data

sources and input scales may cause

some misalignment of data layers.

No warranty is made by the BLM for use of

the data for purposes not intended by the BLM.

Note: Decisions in this document

only apply to BLM lands

V

R

M

Class

National Conservation Area Boundary

Class III

Class IVClass IIClass I

56 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 57

MAP 4 VISUAL RESOURCE MANAGEMENT RECREATION AND VISITOR SERVICES

REC-2: Do not carry forward the Upland and Lowland 

Zones from the Public Use Plan (PUP).

REC-3: Establish the Red Cliffs SRMA, as shown 

on Map 5.

REC-4: Red Cliffs NCA SRMA, Recreation and Visitor 

Services Objectives:

Foster a sense of awareness and stewardship in recreational participants and local community partners to 

maintain recreation values in the NCA.

Provide opportunities for public land users to develop an understanding and appreciation of the NCA 

through on and off-site educational and interpretive 

materials.

Develop a nationally recognized non-motorized trail 

system that provides high quality opportunities for a 

wide range of recreational activities

Develop trailheads and waysides that share a signature design emblematic of the NCA

Establish four Recreation Management Zones 

(RMZs) within the Red Cliffs SRMA as management 

tools to assist in setting priorities for facilities development, maintenance, and law enforcement.

Each zone would have consistent management objectives across Alternative but would vary in size. See 

Table 4 for information about each zone and Appendix G for detailed RMZ descriptions and objectives.

REC-5: Manage the RMZs as follows:

Rural Zone: 1,224 acres

Frontcountry Zone: 14,937 acres

Backcountry Zone: 8,709 acres

Primitive Zone: 19,989 acres

(Map 5)

REC-6: Allowable uses for other resources and programs 

within the SRMA are defined by the NCA legislation. 

Allowable recreation uses have been defined by RMZ and 

can be found in Table 4 and Appendix G.

REC-7: Coordinate management of recreational activities 

and uses with adjacent federal agencies, tribal governments, and state, county, and municipal governments.

REC-8: Develop an implementation-level Recreation 

Area Management Plan (RAMP) to identify specific 

management actions for recreational activities and visitor 

services within the SRMA. On BLM-administered lands, 

the RAMP would replace the implementation-level PUP 

for the Red Cliffs Desert Reserve (Washingon County 

HCP 2001). The RAMP would include, but is not limited 

to:

a) Non-motorized trail system development and 

management;

b) Motorized route system management;

c) Rock climbing management;

d) Campground development and management;

e) Dispersed camping management;

f) Architectural design standards;

g) Recreational impact monitoring standards and 

procedures.

h) Commercial, competitive, and group use management.

REC-9: Develop commercial leases for recreation-related 

businesses, if necessary, to protect resource values, as well 

as provide for appropriate and sustainable recreation opportunities and visitor services.

REC-10: Manage any non-federal lands that may be 

acquired within the NCA in conformance with RMZ 

decisions for adjacent public lands.

REC-11: Do not authorize SRPs for competitive equestrian events in the NCA.

REC-12: Do not authorize SRPs for competitive motorized events in the NCA.

REC-13: Limit SRPs for motorized commercial and organized group recreation activities to roads and primitive 

roads authorized for use by the public.

REC-14: The discharge of firearms in the NCA is prohibited except in the act of hunting big game and upland 

game species by licensed hunters in accordance with 

current city and county ordinances, and state laws during 

prescribed seasons.

REC-15: Allow hunting dogs to be off-leash in the NCA 

when accompanied by a licensed hunter in the act of 

hunting during official seasons. Off-leash hunting dogs 

must be under the control of their owner at all times.

REC-16: Prohibit paintball activities of any kind.

Management Actions - Public Education and 

Interpretation

REC-17: Develop an implementation-level Interpretive 

Master Plan that creates a long-range vision to guide 

interpretive services that emphasize the values and significance of the NCA and addresses a long-term strategy 

for name recognition and branding. The plan will include 

the following:

a) Interpretive goals, objectives, and associated management actions necessary for interpreting themes to 

key user groups/audiences;

b) Identification of a full range of interpretive servic-
M o u n t a i n s R e d

Clara Bench

S o u t h H i l l s

White Hills

Boomer Hill

Canyon

Municipal Airport

Bloomington

RadioTower

Webb

Gag ni g Station

Hospital

College Dixie

Black Ridge

South Black Rocks

Nichols Peak

Wash ni g ot n Dome

Beacon

Warner

Black Rocks

North

L a v a R i d g e

B i g

G u l c h

S a n d Hol ol w

cuB ksk ni

C a n y o n

LAVA

S n o w

LAVA

Gravel

Pit

D i a m o n d

V a l l e y

POWERLINE

A l g e r G u l c h C e d a r

H o l l o w

B e n c h

A l g e r

o H ol l w

S p r ni g Twin Peaks

Yellow Knol sl

East Valley

al B kc

Harr si burg D mo e

Washington Hollow

Yant

Flat

Hollow Big

Harr si bu gr Bench

Sandstone Mountain

Sand Dunes

Sand Dunes

Sand Dunes

U H R R CI N A E

F r o g Hurricane

Airport

L C FI S F

Sullivan Knoll

1902

1085

935

1104

903

1227

1004

1038

1016

1002

M O U N T A I N

S A N D

Wash

Upper San at Ivins Reservoir

r D y

Lower Santa Clara hs a W Clara

Bench

Bench

Santa

Clar

C

a

anal

Canal

Cottonwood

Wash

Curly

Hollow

Box Canyon Stucki Spring

Wash

Wash

Cove

Santa Clara

St George

Canal

Pr ci e Bench Ditch

V ri g ni

Spring

West St George

Springs UQA UDE TC

Ci yt

Spring

Miller Spring

H l a wf ay

Santa Clara Reservoir

River

hs a W

er C ke

di M l d ot e n

Green Spring

a C

not gni hs a W nal

Ha dr er

Ditch

R vi er

egr oe Gt S

and

Snow Spring

Spring

Spring

AQUEDUCT

hs a W

Spring

Creek Mill

ss aP

hs a W Spring

ar G ep ni v e

Cot ot wn ood

Wash

Warner Valley

Spring

Cottonwood

Spring

C o t t o n w o o d

C r e e k C r e e k

H e a ht

h s a W

B i t t e r

C r e e k

R o c k

C r e e k

l at I n ai

G r a p e v i n e W a s h

C r e e k L e e d s

Q u a i l

Spring

Berry Springs

Sand Mountain

Spring

Bench Lake

Gould Reservoir

kr o W na m Wa

G o u l d hs

u H rr ci na e a C an l

Dixie Hot Springs

L a V e r k i n

Spring

C r e e k

!"`$

Sand

Hollow

Reservoir

Quail

Creek

Reservoir

?¤

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?¤

Old Highway 91

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La Verkin

Hurricane

Washington

St. George

Toquerville

Santa Clara

S 040 T S 140 T S 240 T S 340 T

R 013 W R 014 W R 016 W R 017 W R 015 W

t

S

p

e

cial R

e

cre

atio

n

M

a

n

a

g

e

m

e

nt Are

a - R

e

d

Cliffs

N

C

A

Produced by BLM

St. George Field Office GIS

Location Map

0 1 2 0.5 Miles

0 1 2 0.5 Kilometers

This product may not meet BLM standards

for accuracy and content. Different data

sources and input scales may cause

some misalignment of data layers.

No warranty is made by the BLM for use of

the data for purposes not intended by the BLM.

Note: Decisions in this document

only apply to BLM lands

Special Recreation Management Area - Recreation Management Zone

Red Cliffs SRMA, Backcountry RMZ

Red Cliffs SRMA, Frontcountry RMZ Red Cliffs SRMA, Primitive RMZRed Cliffs SRMA, Rural RMZ

National Conservation Area & SRMA Boundary

58 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 59

MAP 5 SPECIAL RECREATION MANAGEMENT AREA TABLE 4

Recreation Management Zone Descriptions

FRONTCOUNTRY ZONE

• Accessed from Old Highway 91 and County roads.

• Accommodates a large number of visitors.

• Large number of management controls consisting primarily of directional, educational, and regulatory signs.

• BLM staff presence is consistent.

• Law enforcement patrols are irregular and often based on incident or emergency response. 

• Significant amount of infrastructure; includes all roads, parking, and future trailheads.

• Motorized use is restricted to designated roads and trails.

• Mechanized use is restricted to designated roads and trails.

• Majority of zone is within critical tortoise habitat.

• Outside of Congressionally designated road areas.

BACKCOUNTRY ZONE

• Accessed from the Rural Zone trailheads or Frontcountry Zone trails.

• Less recreational use than the Frontcountry Zone, but still accommodates a significant number of visitors.

• Fewer management controls consisting primarily of directional and regulatory signs.

• BLM staff presence is infrequent and generally based on project-specific need.

• Law enforcement patrols generally limited to incident and emergency response.

• Motorized use is restricted to administrative purposes and emergency response.

• Mechanized use is restricted to designated trails.

• Portions of zone are within critical desert tortoise habitat.

• Corresponds with Congressionally designated road areas.

PRIMITIVE ZONE

• Accessed from the Frontcountry or Backcountry Zones. 

• Accommodates the fewest number of visitors.

• Limited management controls consisting primarily of directional and regulatory signs.

• BLM staff presence is very low.

• Law enforcement presence limited to emergency response.

• Motorized use prohibited except for emergency response.

• Cross-country travel is allowed. All visitors must be on foot or horseback. 

• No constructed or maintained trails.

• Portions of zone are within critical tortoise habitat.

• Corresponds with Congressionally designated road areas.

Table 4 Red Cliffs NCA Recreation Management Zone Descriptions
60 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 61

RECREATION AND VISITOR SERVICES

es including facilities, programs, activities, exhibits, 

publications/printed materials, electronic media, and 

audiovisuals to enhance knowledge and appreciation 

of natural and cultural resources, and to promote 

stewardship;

c) Identification of opportunities for outreach programs with user groups, local schools, universities, 

and special interest groups;

d) Identification of opportunities to enrich interpretation through partnerships with municipal, county, 

state, and national parks, educational institutions, 

and other organizations;

e) Identification of desired visitor experiences consistent with the RAMP and RMZs;

f) Identification of themes and sub-themes to communicate the story of place (e.g., those narratives that 

express the unique and compelling character of the 

NCA);

g) Consistency with NCA architectural design standards (e.g., color, shape, themes) that will apply to all 

site improvements, recreational facilities, site fixtures, 

structures, and associated spaces;

h) Integration of graphic elements such as logos, logo 

placements, color schemes, quality, and voice across 

all media to ensure effective recognition and branding for the NCA;

i) Training goals and objectives for staff and volunteers to ensure consistency in interpretive themes 

and professionalism.

Management Actions - Scientific Research

REC-18: Pursue opportunities for scientific studies that 

evaluate the effects of diverse recreation activities on the 

desert environment.

Implementation Decisions

REC-19: Develop uniform architectural design standards 

for all site improvements, recreational facilities, site fixtures, structures, and associated spaces developed in the 

NCA. These standards include construction materials, 

styles, colors, textures, and interpretive themes.

REC-20: Construct site improvements, recreational 

facilities, site fixtures, structures, and associated spaces in 

the Rural, Frontcountry, or Backcountry Zones to protect 

resource values, respond to recreational use demand, and 

enhance visitor experiences. Developments could include 

standard and/or expanded amenity fee sites.

REC-21: Issue Recreation Use Permits (RUPs) through 

the collection of standard or expanded amenity fees for 

the short-term recreational use of specialized sites or 

facilities (such as campgrounds and day use sites) which 

meet fee collection guidelines as provided for in the 

Federal Lands Recreation Enhancement Act of 2004 or 

subsequent similar authority.

REC-22: Continue to manage the Red Cliffs Recreation 

Area as an Expanded and Standard Amenity Fee Site for 

camping and day use in accordance with the approved 

Red Cliffs Recreation Area Business Plan.

REC-23: Maintain, improve, and enlarge facilities for 

camping, sanitation, or day use (e.g., increased parking, additional vault toilets, campsites) at the Red Cliffs 

Recreation Area, as needed, to achieve management objectives for public safety, resource protection, and quality 

recreational experiences.

REC-24: Continue to manage camping in the Sand Cove 

Primitive Camping Area under a permit system.

REC-25: Develop camping facilities at the Sand Cove 

Primitive Camping Area. Development would include:

a) A visible marker that clearly delineates the location as a designated campsite; 

b) A metal campfire container;

c) A vault toilet;

d) Vehicle access improvements;

e) A kiosk for displaying interpretive and regulatory 

information.

REC-26: Limit camping at the Sand Cove Primitive 

Camping Area to one permit per day with a maximum 

group size of 20. All groups would be required to camp in 

designated sites and haul out all trash and human waste.

REC-27: Prohibit dispersed camping in the Rural and 

Frontcountry Zones (Map 5).

REC-28: Develop a limited number of designated undeveloped dispersed campsites in the Backcountry Zone 

and limit camping to these sites. Each campsite would 

include, but is not limited to:

a) A visible marker that clearly delineates the location as a designated campsite;

b) A metal campfire container.

REC-29: Allow dispersed camping in the Primitive Zone, 

except within 1 mile of the Red Cliffs Recreation Area 

developed campground and within 300 feet of water 

sources.

REC-30: Provide public education on minimum impact 

camping through a variety of on- and off-site media.

REC-31: Allow campfires within the provided metal 

campfire container at designated campsites and/or 

RECREATION AND VISITOR SERVICES

developed campgrounds in the Rural, Frontcountry, and 

Backcountry Zones.

REC-32: Allow dispersed campfires outside of a metal 

campfire container in the Primitive Zone.

REC-33: Design and construct the non-motorized 

trail system to the professional standards outlined in 

Appendix I to ensure that trail design:

a) Addresses the needs of equestrians, hikers, climbers, and mountain bikers;

b) Protects diverse NCA resource values from direct 

or indirect recreation impacts by promoting compliance with regulatory requirements and visitor use 

restrictions;

c) Results in sustainable systems;

d) Provides high quality experiences;

e) Serves the abilities of non-motorized recreational 

users;

f) Offers opportunities for looping, varying distances, linking between geographic areas and trailheads, 

and connecting to heritage and other educational 

resources; 

g) Minimizes user conflicts by separating user groups 

whenever feasible;

h) Limits the desire to venture off-trail.

REC-35: Where new trail development would result in a 

modification of the primary constituent elements of designated critical habitat for Mojave desert tortoise, restore 

an equivalent acreage of damaged habitat in the NCA 

through reclamation and revegetation (with approved 

species) of user-created trails, closed roads, fire-damaged 

lands, or other disturbed areas, in consultation with 

USFWS and UDWR.

REC-36: Limit commercial SRPs for recreation activities 

to 10% of overall visitation (overall visitation is defined 

as the total number of all visits: commercial and noncommercial, motorized and non-motorized).

REC-37: Limit commercial SRPs for motorized recreation activities (e.g., Motor Coach tours, OHV tours, 

motorcycle tours, ATV Jamborees) to roads and primitive roads authorized for use by the public.

REC-38: Set group size limits for commercial SRPs on 

a case-by-case basis. Factors for the determination of 

limits would include, but are not limited to: type of activity, type of transportation, length of stay, potential for 

resource impacts, potential for impacts to other visitors, 

and compatibility with RMZs.

REC-39: SRPs for competitive running and bicycling 

events could be authorized on roads in the NCA if they 

meet the following criteria:

a) Event staging takes place outside the NCA or takes 

place on designated roads and/or at trailheads inside 

the NCA;

b) The event causes no new surface disturbance;

c) Event scheduling complies with seasonal restrictions to protect wildlife and habitats, (e.g., restrictions on events during Mojave desert tortoise active 

season, generally between March 15 and October 

15).

d) The event highlights NCA resource values and 

promotes their protection.

REC-40: Group size limits for competitive non-motorized events would be set on a case-by-case basis. Factors 

for the determination of limits could include, but are 

not limited to: type of event, length of event, number of 

participants, potential for resource impacts, potential for 

impacts to other visitors, and compatibility with RMZs.

REC-41: SRPs for competitive equestrian events would 

not be authorized in the NCA.

REC-42: SRPs for competitive motorized events would 

not be authorized in the NCA.

REC-43: Authorize SRPs for organized groups (e.g., 

scouting events, church events, school classes, historical 

reenactments) on a case-by-case basis, if the proposed 

event conforms to an implementation-level Interpretive 

Master Plan, when developed (see Public Education and 

Interpretation below).

REC-44: Group size for organized groups would be set 

on a case-by-case basis. Factors for the determination of 

limits could include, but are not limited to: type of activity, type of transportation, number of participants, length 

of stay, potential for resource impacts, potential for impacts to other visitors, and compatibility with RMZs.

REC-45: Handcarts, buggies, wagons, or other animaldrawn vehicles would be limited to travel on roads and 

routes designated through the approved TMP in the 

Rural, Frontcountry, and Backcountry Zones. All proposed activities (e.g., historical reenactments) would 

require an SRP or a letter of agreement from the NCA 

Manager.

REC-46: Continue to manage the existing climbing area 

within the NCA.

REC-47: Allow climbing anywhere in the Primitive 

Management Zone.
Red Cliffs

National Conservation

Area

M o u n t a i n s R e d

Clara Bench

S o u t h H i l l s

White Hills

Boomer Hill

Canyon

Municipal Airport

Bloomington

RadioTower

Webb

Gag ni g Station

Hospital

College Dixie

Black Ridge

South Black Rocks

Nichols Peak

Wash ni g ot n D mo e

Beacon

Warner

Black Rocks

North

L a v a R i d g e

B i g

G u l c h

S a n d Hol ol w

cuB ksk ni

C a n y o n

LAVA

S n o w

LAVA

Gravel

Pit

D i a m o n d

V a l l e y

POWERLINE

A l g e r G u l c h C e d a r

H o l l o w

B e n c h

A gl e r

o H ol l w

S p r ni g Twin Peaks

Yellow Knolls

East Valley

al B kc

Harr si burg D mo e

Washington Hollow

Yant

Flat

Hollow Big

Harr si bu gr Bench

Sandstone Mountain

Sand Dunes

Sand Dunes

Sand Dunes

U H R R CI N A E

F r o g Hurricane

Airport

L C FI S F

Sullivan Knoll

1902

1085

935

1104

903

1227

1004

1038

1016

1002

M O U N T A I N

S A N D

Wash

Upper San at Ivins Reservoir

r D y

Lower Santa Clara hs a W Clara

Bench

Bench

Santa

Clar

C

a

anal

Canal

Cottonwood

Wash

Curly

Hollow

Box Canyon Stucki Spring

Wash

Wash

Cove

Santa Clara

St George

Canal

Pr ci e Bench Ditch

V ri g ni

Spring

West St George

Springs UQA UDE TC

Ci yt

Spring

Miller Spring

a H l wf ya

Santa Clara Reservoir

River

hs a W

er C ke

di M l d ot e n

Green Spring

a C

not gni hs a W nal

Ha dr er

Ditch

R vi er

egr oe Gt S

and

Snow Spring

Spring

Spring

AQUEDUCT

hs a W

Spring

Creek Mill

ss aP

hs a W Spring

ar G ep ni v e

Cot ot wn ood

Wash

Warner Valley

Spring

Cottonwood

Spring

C o t t o n w o o d

C r e e k C r e e k

H e a ht

h s a W

B i t t e r

C r e e k

R o c k

C r e e k

l at I n ai

G r a p e v i n e W a s h

C r e e k L e e d s

Q u a i l

Spring

Berry Springs

Sand Mountain

Spring

Bench Lake

Gould Reservoir

kr o W na m Wa

G o u l d hs

u H rr ci na e a C an l

Dixie Hot Springs

L a V e r k i n

Spring

C r e e k

!"`$

Sand

Hollow

Reservoir

Quail

Creek

Reservoir

?¤

!"`$

?x

? ̧

?¤

Old Highway 91

!"`$

?Ñ

Sz

?y

?£

t Authorized Climbing Areas

National Conservation Area BoundaryBLM Wilderness AreaBureau of Land Management

StateState Parks and RecreationState Wildlife Reserve / Management Area

A

uth

oriz

e

d

Clim

bin

g

Are

a

s - R

e

d

Cliffs

N

atio

n

al C

o

n

s

erv

atio

n

Are

a (N

C

A) Produced by BLM

St. George Field Office GIS

Location Map

0 1 2 0.5 Miles0 1 2 0.5 Kilometers

This product may not meet BLM standardsfor accuracy and content. Different datasources and input scales may cause

some misalignment of data layers.

No warranty is made by the BLM for use of

the data for purposes not intended by the BLM.

Note: Decisions in this document

only apply to BLM lands

62 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 63

COMPREHENSIVE TRAVEL AND TRANSPORTATION MANAGEMENT

REC-48: Authorized one new climbing area, Sandstone 

Mountain (Map 6).

REC-49: Develop a Climbing Management Plan as part 

of the RAMP. The plan would:

a) Identify areas where climbing would be authorized;

b) Identify potential climbing restrictions such as 

group size limits or seasonal closures;

c) Establish monitoring protocols to identify resource impacts;

d) Establish procedures for authorizing new climbing 

areas.

REC-50: All authorized climbing areas would remain 

open until the Climbing Management Plan is complete.

REC-51: Prohibit physical geocaches in the Frontcountry 

and Primitive Zones.

REC-52: Allow physical geocaches in the Rural and 

Backcountry Zones.

REC-53: Allow virtual geocaches in all RMZs provided 

they are compliant with other zone restrictions.

REC-54: Written approval from the NCA Manager would 

be required prior to any physical geocache placement.

REC-55: Written approval from the NCA Manager would 

be required prior to the public posting of any virtual 

geocache placement.

REC-56: Prohibit the take-off and landing of powered 

parachutes in the NCA.

REC-57: Prohibit the take-off and landing of remotecontrolled aircraft in the NCA.

REC-58: Casual rock collection, including the gathering 

of mineral specimens and rock hounding, would be allowed under the following criteria:

a) Collect using hand tools;

b) Only collect specimens for personal use.

REC-59: Prohibit all recreational metal detecting 

activities.

REC-60: Develop a comprehensive program for monitoring recreational impacts in the NCA as part of the 

RAMP. The program would focus primarily on the identification of illegal trails and would include a progression 

of appropriate management actions.

6.32 Comprehensive Travel and Transportation 

Management

Goals

Compatible traditional, current, and future use of the 

land is sustained by establishing a transportation system 

that contributes to protection of sensitive resources, promotes dispersed recreation, and minimizes user conflicts.

A high quality, sustainable transportation system that 

provides appropriate public and administrative access 

is developed and maintained to conserve, protect, and 

enhance the resource values of the NCA.

Objectives

Provide a well-maintained and functional motorized 

transportation system that provides public access to 

recreational opportunities and is consistent with goals, 

objectives, and recommendations of the Revised Recovery 

Plan for the Mojave Desert Tortoise (USFWS 2011).

Provide a functional motorized administrative transportation system that is consistent with goals, objectives, 

and recommendations of Revised Recovery Plan for the 

Mojave Desert Tortoise (USFWS 2011) and provides the 

minimum access necessary to authorized infrastructure 

and valid ROWs.

Provide a nationally recognized, professionally designed, 

non-motorized trail system that provides access to a 

wide range of recreational opportunities and is consistent with the goals, objectives, and recommendations of 

the Revised Recovery Plan for the Mojave Desert Tortoise 

(USFWS 2011).

The BLM shall comply with OPLMA Sec. 1977 (b)(2) 

which states the following: (2) SCOPE; CONTENTS.—In 

developing the travel management plan, the Secretary 

shall— (A) in consultation with appropriate Federal 

agencies, State, tribal, and local governmental entities 

(including the County and St. George City, Utah), and 

the public, identify 1 or more alternatives for a northern 

transportation route in the County; (B) ensure that the 

travel management plan contains a map that depicts the 

trail; and (C) designate a system of areas, roads, and trails 

for mechanical and motorized use.

Management Actions - General

CTT-1: The BLM would coordinate transportation management with adjacent federal agencies, American Indian 

Tribes, state and local governments, and authorized 

users.

CTT-2: All motorized routes identified in the PUP, 

subsequent implementation-level plans, and subsequent 

MAP 6 AUTHORIZED CLIMBING AREAS
M o u n t a i n s R e d

Clara Bench

S o u t h H i l l s

White Hills

Boomer Hill

Canyon

Municipal Airport

Bloomington

RadioTower

Webb

Gag ni g Station

Hospital

College Dixie

Black Ridge

South Black Rocks

Nichols Peak

Wash ni g ot n Dome

Beacon

Warner

Black Rocks

North

L a v a R i d g e

B i g

G u l c h

S a n d Hol ol w

cuB ksk ni

C a n y o n

LAVA

S n o w

LAVA

Gravel

Pit

D i a m o n d

V a l l e y

POWERLINE

A l g e r G u l c h C e d a r

H o l l o w

B e n c h

A l g e r

o H ol l w

S p r ni g Twin Peaks

Yellow Knol sl

East Valley

al B kc

Harr si burg D mo e

Washington Hollow

Yant

Flat

Hollow Big

Harr si bu gr Bench

Sandstone Mountain

Sand Dunes

Sand Dunes

Sand Dunes

U H R R CI N A E

F r o g Hurricane

Airport

L C FI S F

Sullivan Knoll

1902

1085

935

1104

903

1227

1004

1038

1016

1002

M O U N T A I N

S A N D

Wash

Upper San at Ivins Reservoir

r D y

Lower Santa Clara hs a W Clara

Bench

Bench

Santa

Clar

C

a

anal

Canal

Cottonwood

Wash

Curly

Hollow

Box Canyon Stucki Spring

Wash

Wash

Cove

Santa Clara

St George

Canal

Pr ci e Bench Ditch

V ri g ni

Spring

West St George

Springs UQA UDE TC

Ci yt

Spring

Miller Spring

H l a wf ay

Santa Clara Reservoir

River

hs a W

er C ke

di M l d ot e n

Green Spring

a C

not gni hs a W nal

Ha dr er

Ditch

R vi er

egr oe Gt S

and

Snow Spring

Spring

Spring

AQUEDUCT

hs a W

Spring

Creek Mill

ss aP

hs a W Spring

ar G ep ni v e

Cot ot wn ood

Wash

Warner Valley

Spring

Cottonwood

Spring

C o t t o n w o o d

C r e e k C r e e k

H e a ht

h s a W

B i t t e r

C r e e k

R o c k

C r e e k

l at I n ai

G r a p e v i n e W a s h

C r e e k L e e d s

Q u a i l

Spring

Berry Springs

Sand Mountain

Spring

Bench Lake

Gould Reservoir

kr o W na m Wa

G o u l d hs

u H rr ci na e a C an l

Dixie Hot Springs

L a V e r k i n

Spring

C r e e k

!"`$

Sand

Hollow

Reservoir

Quail

Creek

Reservoir

?¤

!"`$

?x

? ̧

?¤

Old Highway 91

!"`$

?Ñ

Sz

SNOW

CANYON

STATE

PARK

?y

?£ Leeds

Ivins

La Verkin

Hurricane

Washington

St. George

Toquerville

Santa Clara

S 040 T S 140 T S 240 T S 340 T

R 013 W R 014 W R 016 W R 017 W R 015 W

t

Off Hig

h

w

a

y

V

e

hicle

Are

a

D

e

sig

n

atio

n

s - R

e

d

Cliffs

N

C

A

Produced by BLM

St. George Field Office GIS

Location Map

0 1 2 0.5 Miles0 1 2 0.5 Kilometers

This product may not meet BLM standards

for accuracy and content. Different data

sources and input scales may cause

some misalignment of data layers.

No warranty is made by the BLM for use of

the data for purposes not intended by the BLM.

Note: Decisions in this document

only apply to BLM lands

Limited to Designated RoutesClosed to Motorized Vehicles National Conservation Area Boundary

64 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 65

LANDS AND REALTY

project-specific NEPA documents are carried forward 

into the TMP.

OHV Area Designations

CTT-3: Open to Cross-Country OHV use: 0 acres

Limited to Designated Routes: 24,870 acres

Closed to OHV use: 19,989 acres

(Map 7)

A map of the existing transportation system can be found 

at the BLM ePlanning website http://bit.ly/2av3Q1i. 

Non-Motorized Trails

CTT-4: Design and construct the non-motorized trail 

system to professional standards to ensure that trail 

design:

a) Addresses the needs of equestrians, hikers, climbers, and mountain bikers;

b) Protects diverse NCA resource values from direct 

or indirect recreation impacts by promoting compliance with regulatory requirements and visitor use 

restrictions;

c) Results in sustainable systems;

d) Provides high quality experiences;

e) Serves the abilities of non-motorized recreational 

users;

f) Offers opportunities for looping, varying distances, linking between geographic areas and trailheads, 

and connecting to heritage and other educational 

resources;

g) Minimizes user conflicts by separating user groups 

whenever feasible;

h) Limits the desire to venture off-trail. 

CTT-5: Where new trail development would result in a 

modification of the primary constituent elements of designated critical habitat for Mojave desert tortoise, restore 

an equivalent acreage of damaged habitat in the NCA 

through reclamation and revegetation (with approved 

species) of user-created trails, closed roads, fire-damaged 

lands, or other disturbed areas, in consultation with 

USFWS and UDWR.

Management Actions - Public Education and 

Interpretation

CTT-6: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

inform visitors about appropriate public lands etiquette, 

including OHV etiquette.

CTT-7: Provide educational materials through various 

media and venues (e.g., trailhead kiosks, websites) that 

encourage motorized users to use existing disturbed 

areas for parking and camping.

6.33 Lands and Realty

Goals

Land tenure adjustments are made to assist the conservation, protection, and enhancement of NCA resource 

values, facilitate management, and reduce administrative 

costs.

Land use authorizations further the purposes of conservation, protection, and enhancement of resource values 

in the NCA.

Objectives

Non-federal lands are acquired from willing land owners 

through purchase, exchange of public lands identified for 

disposal outside the boundaries of the NCA, donation, or 

conservation easement.

Surface and subsurface rights would be acquired whenever possible to avoid creating split estates.

Conservation easements may be acquired where such 

interest would further the management objectives of the 

NCA.

Land tenure adjustments would be prioritized based on 

manageability, the feasibility of successful acquisition, 

and the ecological, cultural, recreational, and scenic values of the tract to be acquired.

Ensure that long and short term land use authorizations 

are consistent with the NCA purposes of resource conservation, protection, and enhancement.

BLM will work collaboratively with local, state, and federal partners to accomplish the goals and the objectives 

of the Washington County HCP and its implementation 

agreement.

Management Actions - General

LAR-1: “Any land or interest in land that is located in 

the National Conservation Area that is acquired by the 

United States shall—(1) become part of the National 

Conservation Area; and (2) be managed in accordance 

with—(A) the Federal Land Policy and Management Act 

of 1976 (U.S.C. 1701 et seq.); (B) this section; and (C) any 

other applicable law (including regulations)” (OPLMA 

Section 1974 (f)).

LAR-2: “(1) In General.—Subject to valid existing rights, 

all Federal land located in the National Conservation 

Area is withdrawn from—(A) all forms of entry, appropriation, and disposal under the public land laws; (B) 

location, entry, and patenting under the mining laws; (C) 

MAP 7 OHV AREA DESIGNATIONS
M o u n t a i n s R e d

Clara Bench

S o u t h H i l l s

White Hills

Boomer Hill

Canyon

Municipal

Airport

Bloomington

RadioTower

Webb

Gag ni g Station

Hospital

College Dixie

Black Ridge

South Black Rocks

Nichols Peak

Wash ni g ot n Dome

Beacon

Warner

Black Rocks

North

L a v a R i d g e

B i g

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S a n d Hol ol w

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C a n y o n

LAVA

S n o w

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V a l l e y

POWERLINE

A l g e r G u l c h C e d a r

H o l l o w

B e n c h

A l g e r

o H ol l w

S p r ni g Twin Peaks

Yellow Knol sl

East Valley

al B kc

Harr si bu gr D mo e

Washington Hollow

Yant

Flat

Hollow Big

Harr si bu gr Bench

Sandstone Mountain

Sand Dunes

Sand Dunes

Sand Dunes

U H

R R CI N A E

F r o g Hurricane

Airport

Sullivan Knoll

1902

1085

935

1104

903

1227

1004

1038

1016

1002

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S A N D

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Upper San at Ivins Reservoir

r D y

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Bench

Bench

Santa

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Cottonwood

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Wash

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Santa Clara

St George

Canal

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West St George

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Miller Spring

Ha wfl ya

Santa Clara Reservoir

River

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Q u a i l

Spring

Berry Springs

Sand Mountain Spring

Bench Lake

Gould Reservoir

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A Produced by BLM

St. George Field Office GIS

Location Map

0 1 2 0.5 Miles0 1 2 0.5 Kilometers

This product may not meet BLM standards

for accuracy and content. Different data

sources and input scales may cause

some misalignment of data layers.

No warranty is made by the BLM for use of

the data for purposes not intended by the BLM.

Note: Decisions in this document

only apply to BLM lands

ROW Designation

ROW CorridorNational Conservation Area Boundary

RCNCA Powerlines

MajorMinor Avoidance

Exclusion

66 RMP Red Cliffs National Conservation Area Red Cliffs National Conservation Area RMP 67

LANDS AND REALTY

operation of the mineral leasing, mineral materials, and 

geothermal leasing laws. (2) Additional Land.—If the 

Secretary acquires additional land that is located in the 

National Conservation Area after the date of enactment 

of this Act, the land is withdrawn from operation of the 

laws referred to in paragraph (1) on the date of acquisition of the land" (OPLMA Section 1974 (g)).

LAR-3: “(h) EFFECT.—Nothing in this section prohibits 

the authorization of the development of utilities within 

the National Conservation Area if the development is 

carried out in accordance with—(1) each utility development protocol described in the habitat conservation plan; 

and (2) any other applicable law (including regulations)” 

(OPLMA Section 1974 (h)).

LAR-4: Manage public lands in accordance with applicable city and county zoning restrictions and municipal 

ordinances (to the extent that such restrictions and ordinances are consistent with the purposes for which the 

NCA was Congressionally-designated), as well as other 

federal laws, regulations, and policies, and with goals, 

objectives, and management decisions from the approved 

RMP for the NCA.

LAR-5: Do not authorize commercial renewable energy 

(e.g., wind, solar) leases or ROWs in the NCA.

LAR-6: Any new proposed actions must be consistent 

with the established purpose of the NCA as identified in 

OPLMA, and must be consistent with all other federal 

law, regulation and policy.

LAR-7: Consider allowing realty authorizations, such 

as ROWs and permits, outside of ROW exclusion areas, 

only when required for local, essential community 

services and when no siting alternatives exist outside the 

NCA.

LAR-8: Existing ROWs will be maintained in accordance with the respective ROW grant or other applicable 

authorization through the end of the defined term. While 

processing ROW renewals, in accordance with applicable 

law and policy, BLM will work with holders of existing 

ROWs to consider new, additional, or modified terms 

and conditions to minimize impacts to NCA resource 

values. Consideration will also be given to relocating 

ROWs and any related infrastructure to areas outside the 

NCA.

LAR-9: Evaluate realty authorization requests using 

evaluation criteria designed to protect conservation area 

resources and values.

Land Tenure Adjustments

LAR-10: Work with willing land owners or administrators to acquire in-holdings and edge-holdings that are in 

the public interest through purchase, exchange of public 

lands targeted for disposal outside of the NCA boundaries, donation, or conservation easement.

LAR-11: Acquire both surface and subsurface rights 

whenever possible to avoid the creation of split estates. 

Prioritize acquisition of non-federal inholdings and 

parcels that adjoin the NCA boundaries that meet one or 

more of the following criteria:

a) Further the purposes of the NCA relating to the 

conservation, protection, and enhancement of its 

ecological, scenic, wildlife, cultural, historical, recreational, natural, educational, and scientific resources;

b) Enhance public recreation experiences and benefits;

c) Provide additional access to other public lands.

LAR-12: Manage acquired lands in conformance with 

RMP decisions for linear ROWs, utility and transportation corridor designations, site-type leases or ROWs, 

commercial renewable energy leases or ROWs, and other 

land use authorizations.

Linear ROWs

LAR-13: Designate ROW Avoidance and Exclusion areas 

and retain an existing ROW corridor as follows (Map 8):

Exclusion areas: (areas that are not available for location of ROWs under any conditions, including all 

designated wilderness within the NCA): 38,472 acres

Avoidance areas: 6,367 acres

While considering a new proposed ROW application

the BLM will:

a) consider options for routing or siting the ROW 

outside of the NCA;

b) ensure consistency of the ROW with the 

established purpose of the NCA, as identified in 

OPLMA;

c) ensure that new ROWs share, parallel, or adjoin 

existing ROWs;

d) apply special stipulations and mitigation measures within avoidance areas consistent with VRM 

objectives and the purpose of the NCA;

e) authorize new ROWs only when the projectspecific NEPA analysis indicates that the construction and operation of the facility would not result 

in the take of federally-listed species; the adverse 

modification of designated critical habitats; or adverse effects to NRHP-listed or eligible properties, 

and the following criteria are met:

MAP 8 LINEAR ROW EXCLUSION & AVOIDANCE AREAS
68 RMP Red Cliffs National Conservation Area

LANDS AND REALTY

1) construction could be accomplished through 

methods that minimize new surface disturbances and resource impacts;

2) new ROW access roads would not be required for construction, operation, and maintenance;

3) existing ROW access roads would not be 

permanently widened or upgraded for construction, operation, and maintenance; temporary enlargements or modifications to existing 

access routes needed during construction 

would be rehabilitated immediately after construction is completed; and

4) construction, operations, and maintenance 

would not require off-road travel by motorized 

vehicles.

Designated ROW Corridor: 20 acres

Retain the existing corridor along SR-18 through the 

NCA (150 feet either side of centerline of highway) 

to minimize adverse environmental impacts and the 

proliferation of separate right-of-ways.

Site-type Leases and ROWs

LAR-14: Exclude new site-type leases and ROWs (e.g., 

cell towers).

Other Land Use Authorizations

LAR-15: Do not authorize leases under the authority of 

the Recreation and Public Purposes Act within the NCA.

LAR-16: Only authorize commercial film permits if they 

further public understanding and appreciation of the 

NCA and its purposes. Permits may be subject to surface 

use and seasonal restrictions and will only be granted 

after applicable environmental compliance legal requirements have been satisfied, including site-specific NEPA 

analyses.
References
Red Cliffs National Conservation Area References 71

References

A - Z

BIBLIOGRAPHY

Bureau of Land Management. 1991. Fish and Wildlife 2000: Special Status Fish Habitat Management.

Bureau of Land Management St. George Field Office. 1999. St. George Field Office Record of Decision and Resource 

Management Plan. St. George, UT: Author.

Bureau of Land Management St. George Field Office. 2016. Proposed Resource Management Plans Beaver Dam Wash 

National Conservation Area Red Cliffs National Conservation Area Proposed Amendment to the St. George Field Office 

Resource Management Plan and Final Environmental Impact Statement. St. George, UT: Author

Halterman, M., M.J. Johnson, J. A. Holmes, and S.A. Laymon. 2015. A Natural History Summary and Survey Portocol 

for the Western Distinct Population Segment of the Yellow-billed Cuckoo: U.S. Fish and Wildlife Techniques and 

Methods.

Romin, L.A., and J.A. Muck. 2002. Utah field office guidelines for raptor protection from human and land use disturbances. US Fish and Wildlife Service, Utah Field Office, Salt Lake City, UT.

U.S. Department of Interior. 2008. “Departmental Manual 522: Adaptive Management Policy”.

U.S. Fish and Wildlife Service. 1994. Desert Tortoise Recovery Plan. Sacramento: CA: U.S.Fish and Wildlife Service.

U.S. Fish and Wildlife Service. 1995. Virgin River Fishes Recovery Plan. Denver: Author.

U.S. Fish and Wildlife Service. 1996. “Intra-Service Section 7 Consultation for Issuance of Endangered Species Act 

Section 10(a)(1)(B) Permit for Incidental Take of Desert Tortoise in Washington County, Utah, Biological Opinion 

and Incidental Take Statement.” Lakewood, CO: Author.

U.S. Fish and Wildlife Service. 2000. “Endangered and Threatened Wildlife and Plants; Designation of Critical Habitat 

for the Woundfin and Virgin River Chub.” Federal Register, January 26, 2000: 4140-4146.

U.S. Fish and Wildlife Service. 2002. Final Recovery Plan for Southwestern Willow Flycatcher. Albuquerque, NM: 

Author.

U.S. Fish and Wildlife Service. 2006. Astralagus holmgreniorum (Holmgren Milk-Vetch) and Astralagus ampullariodes 

(Shivwits Milk-Vetch) Recovery Plan. Denver: U.S. Fish and Wildlife Service.

U.S. Fish and Wildlife Service. 2011. Revised Recovery Plan for the Mojave Population of the Desert Tortoise (Gopherus 

agassizii). Sacramento, CA: Author.

U.S. Fish and Wildlife Service. 2015a. “Guidelines for the Identification of suitable habitat for western yellow-billed 

cuckoo in Utah.” Salt Lake City: Utah Ecological Services Field Office.

U.S. Fish and Wildlife Service. 2015b. “Memorandum of Understanding among U.S. Fish and Wildlife Service, 

(Regions 2, 6, 8); Bureau of Land Management, Arizona and Utah State Offices; U.S. Forest Service, Kaibab National 

Forest; National Park Service, Grand Canyon and Zion National Parks and Glen Canyon National Recreation Area; 

Kaibab Band of Paiute Indians; Navajo Nation Department of Fish and Game; Arizona Game and Fish Department; 

Utah Division of Natural Resources; The Peregrine Fund; and the Arizona Center for Nature Conservation/Phoenix 

Zoo To Promote Recovery of the California Condor in the Southwest.” Sacramento, CA: Author.

U.S. Fish and Wildlife Service. 2015c. “Threatened Species Status for the Northern Long-Eared Bat With 4(d) Rule; 

Final Rule and Interim Rule.” Federal Register 80(63):17974–18033.

Washington County Habitat Conservation Plan Administration. 2000. Red Cliffs Desert Reserve Public Use Plan. St. 

George: Author.

Williams, B. K., R. C. Szaro, and C. D. Shapiro. 2009. Adaptive Management: the U.S. Department of the Interior 

Technical Guide. Adaptive Management Working Group, U.S. Department of the Interior,Washington, DC.

Glossary & Abbreviations-Acronyms
Red Cliffs National Conservation Area Glossary 75

Glossary & Abbreviations-Acronyms

A - B

GLOSSARY

A

Acquisition: Acquisition of lands can be pursued to facilitate various resource management objectives. Acquisitions, 

including easements, can be completed through exchange, Land and Water Conservation Fund purchases, or 

donations. 

Actual use: The number of animal unit months consumed by livestock, based on the numbers of livestock and grazing dates submitted by the livestock operator and confirmed by periodic field checks by the BLM. 

Adaptive Management: A type of natural resource management in which decisions are made as part of an ongoing 

science-based process. Adaptive management involves testing, monitoring, and evaluating applied strategies, and 

incorporating new knowledge into management approaches that are based on scientific findings and the needs of 

society. Results are used to modify management policy, strategies, and practices. 

Administrative use/access: Administrative use/access pertains to motorized travel on routes that are limited to 

authorized users. Such authorized users could be livestock grazing permittees, Federal or state employees, or ROW 

holders. These are existing routes that lead to developments that have an administrative purpose (e.g. right-of-ways, 

livestock grazing developments), or where the BLM or a permitted user must have access for regular maintenance or 

operation. 

Allotment: An area of land in which one or more livestock operators graze their livestock. Allotments generally 

consist of BLM lands but may also include other federally managed, state owned, and private lands. An allotment may 

include one or more separate pastures. Livestock numbers and periods of use are specified for each allotment. 

Allotment Management Plan (AMP): A written program of livestock grazing management, including supportive 

measures, if required, designed to attain specific management goals in a grazing allotment. An AMP is prepared in 

consultation with the permittees, lessees, and other affected interests. Livestock grazing is considered in relation to 

other uses of the range and to renewable resources, such as watershed, vegetation, and wildlife. An AMP establishes 

seasons of use, the number of livestock to be permitted, the range improvements needed, and the grazing system. 

Allowable uses: As defined by the Omnibus Act of 2009, allowable uses in the Beaver Dam Wash and Red Cliffs 

National Conservation Areas are those uses that further the purposes for which the NCAs was established. The 

Omnibus Act explicitly excludes operation under the mining, mineral leasing, mineral materials, and geothermal 

leasing laws, as well as entry, appropriation, or disposal under the public land laws. Within the Red Mountain and 

Cottonwood Wilderness, the Wilderness Act defines allowable uses.

Animal unit month (AUM): The amount of forage necessary for the sustenance of one cow, five sheep, or five goats for 

a period of one month (approximately 800 pounds of air-dried material per AUM). 

Area of Critical Environmental Concern (ACEC): Special Area designation established through the BLM’s land use 

planning process (43 CFR 1610.7-2) where special management attention is required (when such areas are developed or used or where no development is required) to protect and prevent irreparable damage to important historic, 

cultural, or scenic values, fish and wildlife resources, or other natural systems or processes, or to protect life and safety 

from natural hazards. The level of allowable use within an ACEC is established through the collaborative planning 

process. Designation of an ACEC allows for resource use limitations in order to protect identified resources or values. 

B

Big game: Indigenous ungulate wildlife species that are hunted, such as elk, deer, bison, bighorn sheep, and pronghorn antelope. 

Biodiversity (biological diversity): The variety of life and its processes, and the interrelationships within and among 

various levels of ecological organization. Conservation, protection, and restoration of biological species and genetic 

diversity are needed to sustain the health of existing biological systems. Federal resource management agencies must 

examine the implications of management actions and development decisions on regional and local biodiversity.
76 Glossary Red Cliffs National Conservation Area Red Cliffs National Conservation Area Glossary 77

B - C C - D

Crucial winter range: That part of the overall big game range where 90 percent of the individuals are located during 

the average five winters out of 10 from the first heavy snowfall to spring green-up, or during a site-specific period of 

winter as defined for each Utah Division of Wildlife Resources Data Analysis Unit. 

Cultural resource: Locations of human activity, occupation, or use. Cultural resources include archaeological, historic, or architectural sites, structures, or places with important public and scientific uses, and locations of traditional 

cultural or religious importance to specified social or cultural groups. 

Cultural resources inventory: A procedure to assess the potential presence of cultural resources. There are three 

classes of surveys:

▶ Class I. A literature review of prior cultural resource data collection in a study area to (1) provide a narrative 

overview of cultural resources by using existing information, and (2) compile existing cultural resources site 

record data on which to base the development of the BLM’s site record system. 

▶ Class II. A sampling field inventory designed to locate, from surface and exposed profile indications, all cultural 

resource sites within a portion of an area so that an estimate can be made of the cultural resources for the entire 

area. 

▶ Class III. An intensive field inventory designed to locate, from surface and exposed profile indications, all cultural resource sites in an area. 

Cultural site use allocations: BLM Manual 8110 direct that each cultural resource within the planning area should be 

assigned to at least one of the following: 

▶ Scientific Use-applies to a cultural property determined to be available for scientific or historical study using 

currently available research techniques or to be preserved until the research potential is realized. 

▶ Conservation for Future Use-reserved for unique cultural properties, those that are unusually scarce, have significant data that cannot be removed with current technology, have singular historic or other importance, and 

can be “banked” for future scientific or historic study. 

▶ Traditional Use-is applied to a cultural resource known to be perceived by a specified social and/or cultural 

group as important in maintaining their cultural identity, heritage, or well-being. 

▶ Public Use-is applied to a cultural property that has qualities useful for on-site interpretation or for other related 

educational and recreational uses by the general public. 

▶ Experimental Use-is applied to a cultural property determined to be suitable for controlled experimental study 

to improve management techniques. 

▶ Discharged from Management-is assigned to a cultural property with no remaining identifiable use. No cultural 

resources may be removed from management before documentation, but many kinds of sites may be removed 

following the appropriate level of documentation and/or study. 

D

Designated routes: Specific roads and trails identified by the BLM where some type of use is appropriate and 

allowed. 

Desired future condition: For rangeland vegetation, the condition of rangeland resources on a landscape scale that 

meet management objectives. It is based on ecological, social, and economic considerations during the land planning process. It is usually expressed as ecological status or management status of vegetation (species composition, 

habitat diversity, and age and size class of species) and desired soil qualities (soil cover, erosion, and compaction). In a 

general context, desired future condition is a portrayal of the land or resource conditions that are expected to result if 

goals and objectives are fully achieved.

Dispersed camping: Camping anywhere outside of a developed campground. Dispersed camp sites do not have amenities such as toilets, picnic tables, or fire grates. Dispersed camp sites may be designated by the BLM. 

Disposal: Transfer of public land out of Federal ownership to another party through sale, exchange, Recreation and 

Public Purposes Act, Desert Land Entry or other land law statutes.

Biological control: the use of living organisms (e.g. insects, pathogens, nematodes, mites) to achieve management 

objectives, such as noxious weed control. 

Biological soil crust (BSC): A complex association between soil particles and cyanobacteria, algae, microfungi, 

lichens, and bryophytes that live within or atop the uppermost millimeters of soil. Also referred to as cryptobiotic soil 

and cryptogamic soil.

C

Candidate species: Plants and animals for which the U.S. Fish and Wildlife Service has sufficient information on 

their biological status and threats to propose them as endangered or threatened under the Endangered Species Act 

(ESA) but for which development of a proposed listing regulation is precluded by other higher priority listing activities. Separate lists for plants, vertebrate animals, and invertebrate animals are published periodically in the Federal 

Register (BLM Manual 6840, Special Status Species Manual). 

Casual use (Mining): Activities involving practices that do not ordinarily cause appreciable disturbance or damage 

to the public lands, resources or improvements and, therefore, do not require a right-of-way grant or temporary use 

permit (43 CFR 2800). Casual use generally includes the collecting of geochemical, rock, soil, or mineral specimens 

using hand tools, hand panning, and non-motorized sluicing. It also generally includes use of metal detectors, gold 

spears, and other battery-operated devices for sensing the presence of minerals, and hand battery-operated dry washers. Casual use does not include use of mechanized earth-moving equipment, truck-mounted drilling equipment, 

suction dredges, motorized vehicles in areas designated as closed to off-road vehicles, chemicals, or explosives. It also 

does not include occupancy or operations where the cumulative effects of the activities result in more than negligible 

disturbance. 

Climate change: Any significant change in measures of climate (such as temperature, precipitation, or wind) lasting 

for an extended period (decades or longer). Climate change may result from: 

▶ natural factors, such as changes in the sun's intensity or slow changes in the Earth's orbit around the sun; 

▶ natural processes within the climate system (e.g. changes in ocean circulation); and 

▶ human activities that change the atmosphere's composition (e.g. through burning fossil fuels) and the land surface (e.g. deforestation, reforestation, urbanization, desertification, etc.). 

Closed: Generally denotes that an area is not available for a particular use or uses; refer to specific definitions found 

in law, regulations, or policy guidance for application to individual programs. For example, 43 CFR 8340.0-5 sets 

forth the specific meaning of “closed” as it relates to off-highway vehicle use, and 43 CFR 8364 defines “closed” as it 

relates to closure and restriction orders (BLM 2005). 

Collaboration: A cooperative process in which interested parties, often with widely varied interests, work together to 

seek solutions with broad support for managing public and other lands. This may or may not involve an agency as a 

cooperating agency. 

Comprehensive travel and transportation management: The proactive interdisciplinary planning, on-the-ground 

management, and administration of travel networks (both motorized and non-motorized) to ensure public access, 

natural resources, and regulatory needs are considered. It consists of inventory, planning, designation, implementation, education, enforcement, monitoring, easement acquisition, mapping and signing, and other measures necessary 

to provide access to public lands for a wide variety of uses (including uses for recreational, traditional, casual, agricultural, commercial, educational, and other purposes). 

Corridor: A strip of land that aids in the movement of species between disconnected core areas of their natural 

habitat. 

Critical habitat: An area occupied by a threatened or endangered species on which are found physical and biological 

features that are (1) essential to the conservation of the species, and (2) may require special management considerations or protection. 
78 Glossary Red Cliffs National Conservation Area Red Cliffs National Conservation Area Glossary 79

E - G G - L

Grazing system: Scheduled grazing use and non-use of an allotment to reach identified goals or objectives by improving the quality and quantity of vegetation. 

Groundwater: Water held underground in soil or permeable rock, often feeding springs and wells. 

H

Habitat: An environment that meets a specific set of physical, biological, temporal or spatial characteristics that satisfy the requirements of a plant or animal species or group of species for part or all of their life cycle. 

Hand tools: Refers to non-mechanical, non-motorized tools (e.g. brushes, trowels, shovels, hammers, and plum 

lines). 

Heritage areas: Places where natural, cultural, and historic resources combine to form a cohesive, important landscape. Characterized by distinctive natural, cultural, historic, and scenic resources that, when linked together, tell a 

unique story. 

Heritage tourism: Tourism that emphasizes experiencing the places, artifacts and activities that authentically represent the stories and people of the past and present. 

Hibernacula: hibernation site, overwintering site, refugia or den for bats and snakes.

I

Indicator: Measure of the health of a species or vegetative/habitat type, which are often quantifiable. 

Infiltration and permeability rate: Rate at which water penetrates the surface of the soil at any given moment, usually 

expressed in inches per hour. Permeability is the relative ease (or lack thereof) with which water moves downward 

through soil. Permeability is measured in inches per hour. Land Health Standard I is designed to ensure soils exhibit 

infiltration and permeability rates that are appropriate to soil type, climate, land form, and geologic processes. 

Implementation decisions: Decisions that take action to implement land use planning; generally appealable to 

Interior Board of Land Appeals under 43 CFR 4.410. These decisions are generally more site-specific than land-use 

plan decisions.

Implementation plan: An area or site-specific plan written to implement decisions made in a land use plan. 

Implementation plans include both activity plans and project plans. Examples of implementation plans include interdisciplinary management plans, habitat management plans, and allotment management plans. 

Integrated weed management (IWM): A balanced approach to weed management that includes the following 

processes: 

▶ managing the resource to prevent weeds from invading 

▶ proper identification and knowledge of invasive weed species 

▶ inventory, mapping out and monitoring of weed populations and damage 

▶ making control decisions based on knowledge of potential damage, cost of control method and environmental 

impact of the weed and control decision 

▶ using control strategies that may include a combination of methods to reduce the weed population to an acceptable level 

▶ evaluating the effectiveness and effects of management decisions.

Interpretive site: Site or facility for the interpretation of cultural, historical, paleontological, geological and/or 

biological information. Includes Internet sites, printed brochures, information kiosks and on-site presentations of 

information.

Invertebrate: An animal lacking a backbone or spinal column.

L

Land tenure adjustments: Ownership or jurisdictional changes are referred as "Land Tenure Adjustments". To 

improve the manageability of the BLM lands and improve their usefulness to the public, the BLM has numerous authorities for "repositioning" lands into a more consolidated pattern, disposing of lands, and entering into cooperative 

E

Easement: A right afforded a person or agency to make limited use of another’s real property for other purposes.

Emergency stabilization and rehabilitation (ES&R): Actions taken immediately following a wildfire incident and 

that are completed within one year. They are intended to stabilize and prevent unacceptable degradation to natural 

and cultural resources, to minimize threats to life or property resulting from the effects of a fire, and to repair/replace/

construct physical improvements necessary to prevent degradation to critical biological or cultural resources. 

Endangered species: Any species that is in danger of extinction throughout all or a significant portion of its range 

and so designated by the Secretary of the Interior in accordance with the 1973 Endangered Species Act. 

Environmental Impact Statement (EIS): A detailed statement prepared by the responsible official in which a major 

Federal action that significantly affects the quality of the human environment is described, alternatives to the proposed action provided, and effects analyzed. 

Erosion: Detachment and movement of soil from the land by wind, water, or gravity. 

Exchange: A transaction whereby the Federal Government receives land or interests in land in exchange for other 

land or interests in land. 

Exclosure: In a grazing context, a limited area from which livestock (and sometimes wildlife) are excluded by fencing. 

Existing routes: The roads, trails, or ways that are used by motorized vehicles (jeeps, all-terrain vehicles, motorized 

dirt bikes, etc.), mechanized uses (mountain bikes, wheelbarrows, game carts), pedestrians (hikers), and/or equestrians (horseback riders) and were, to the best of the BLM’s knowledge, in existence at the time that the BLM finalized 

its route inventory.

Extensive Recreation Management Area (ERMA): Administrative units that require specific management consideration in order to address recreation use, demand, or Recreation and Visitor Services program investments. 

F

Federal Land Policy and Management Act of 1976 (FLPMA): Public Law 94-579, October 21, 1976, often referred to 

as the BLM’s “Organic Act,” which provides the majority of the BLM’s legislated authority, direction policy and basic 

management guidance.

Film Permit: Special permits to use the public lands for commercial film production are issued by the BLM under 

Section 302(b) of the Federal Land Policy and Management Act. Regulations governing filming on public lands are 

covered in 43 Code of Federal Regulations (CFR) part 2920, Leases Permits, and Easements.

Firearm: A weapon, especially a portable gun or pistol, from which a projectile can be discharged by an explosion 

caused by igniting gunpowder. 

Fire suppression: All work activities connected with fire extinguishing operations, beginning with discovery of a fire 

and continuing until the fire is completely out. 

Forage: All browse and herbaceous foods that are available to grazing animals. 

Forb: A herbaceous plant that is not a grass, sedge, or rush. 

G

Goal: A broad statement of a desired outcome; usually not quantifiable and may not have established time frames for 

achievement. For the NCAs, goals are generally derived from the Omnibus Act of 2009 and BLM policy guidance. 

Grazing allotment: An area where one or more livestock operators graze their livestock. An allotment generally consists of Federal land but may include parcels of private or state-owned land. 

Grazing permit/license/lease: Official written permission to graze a specific number, kind, and class of livestock for a 

specified time period on a defined rangeland. 

Grazing preference: A superior or priority position against others for the purpose of receiving a grazing permit or 

lease. This priority is attached to base property owned or controlled by a permittee or lessee.
80 Glossary Red Cliffs National Conservation Area Red Cliffs National Conservation Area Glossary 81

L - M M - N

Monitoring (plan monitoring): The process of tracking the implementation of land use plan decisions and collecting 

and assessing data necessary to evaluate the effectiveness of land use planning decisions. 

Motorized vehicles or uses: Any vehicle that is self-propelled, including but not limited to jeeps, all-terrain vehicles 

(such as four-wheelers and three-wheelers), snow machines or snowmobiles, and trail motorcycles or dirt bikes. 

Multiple use: The management of the public lands and their various resource values so that they are utilized in the 

combination that will best meet the present and future needs of the American people; making the most judicious 

use of the land for some or all of these resources or related services over areas large enough to provide sufficient 

latitude for periodic adjustments in use to changing needs and conditions; the use of some land for less than all of 

the resources; a combination of balanced and diverse resource uses that takes into account the long-term needs of 

future generations for renewable and nonrenewable resources, including, but not limited to, recreation, range, timber, minerals, watershed, wildlife and fish, and natural scenic, scientific and historical values; and harmonious and 

coordinated management of the various resources without permanent impairment of the productivity of the land and 

the quality of the environment with consideration being given to the relative values of the resources and not necessarily to the combination of uses that will give the greatest economic return or the greatest unit output (FLPMA) (from 

M6840, Special Status Species Manual). 

N

National Environmental Policy Act (NEPA) of 1969: A law that established a national policy to maintain conditions 

under which humans and nature can exist in productive harmony and fulfill the social, economic, and other requirements of present and future generations of Americans. It established the Council on Environmental Quality for coordinating environmental matters at the Federal level and to serve as the advisor to the President on such matters. The 

law made all Federal actions and proposals that could have significant impact on the environment subject to review 

by Federal, state, and local environmental authorities. 

National Historic Preservation Act as amended: 1966 legislation establishing the National Register of Historic 

Places and extending the national historic preservation programs to properties of State and local significance. 

National Historic Trail: A Congressionally-designated trail that is an extended, long-distance trail, not necessarily 

managed as continuous, that follows as closely as possible and practicable the original trails or routes of travel of national historic significance. The purpose of a National Historic Trail is the identification and protection of the historic 

route and the historic remnants and artifacts for public use and enjoyment. A National Historic Trail is managed in a 

manner to protect the nationally significant resources, qualities, values, and associated settings of the areas through 

which such trails may pass, including the primary use or uses of the trail. The Old Spanish National Historic Trail is a 

National Historic Trail. 

National Register of Historic Places (NRHP): Official inventory of districts, sites, buildings, structures, and objects 

significant in American history, architecture, archeology, engineering and culture. 

Native vegetation: Plant species that were found here prior to European settlement, and consequently are in balance 

with these ecosystems because they have well developed parasites, predators, and pollinators. 

Naturalness: Refers to an area that “generally appears to have been affected primarily by the forces of nature, with the 

imprint of man’s work substantially unnoticeable” (Section 2[c] of the Wilderness Act of 1964).

Natural processes: Natural, unplanned wildland fire, drought, insect and disease outbreaks, flooding, and other 

events that existed prior to European settlement, and shaped vegetation composition and structure. 

Natural regeneration: The growth of trees (or other plants) from seeds, roots or bulbs without cultivation by 

humans. 

Nature and purposes (as it relates to National Historic Trails): The term used to describe the character, characteristics, and congressional intent for a designated National Trail, including the resources, qualities, values, and associated 

settings of the areas through which such trails may pass; the primary use or uses of a National Trail; and activities 

promoting the preservation of, public access to, travel within, and enjoyment and appreciation of National Trails. 

management agreements. These land pattern improvements are completed primarily through the use of land exchanges, but also through land sales, jurisdictional transfers to other agencies, and through the use of cooperative 

management agreements and leases. 

Land use allocation: The identification in a land use plan of the activities and foreseeable development that are allowed, restricted, or excluded for all or part of the planning area, based on desired future conditions (BLM 2005). 

Land use plan: A set of decisions that establish management direction for land within an administrative area, as prescribed under the planning provisions of FLPMA; an assimilation of land-use-plan level decisions developed through 

the planning process outlined in 43 CFR 1600, regardless of the scale at which the decisions were developed. The term 

includes both RMPs and MFPs (BLM 2005). 

Land use plan decision: Establishes desired outcomes and actions needed to achieve them. Decisions are reached 

using the planning process in 43 CFR 1600. When they are presented to the public as proposed decisions, they can be 

protested to the BLM Director. They are not appealable to Interior Board of Land Appeals. 

Lease: Section 302 of FLPMA provides the BLM with authority to issue leases for the use, occupancy, and development of public lands. Leases are issued for purposes such as a commercial filming, advertising displays, commercial 

or noncommercial croplands, apiaries, livestock holding or feeding areas not related to grazing permits and leases, 

harvesting of native or introduced species, temporary or permanent facilities for commercial purposes (does not 

include mining claims), residential occupancy, ski resorts, construction equipment storage sites, assembly yards, oil 

rig stacking sites, mining claim occupancy if the residential structures are not incidental to the mining operation, and 

water pipelines and well pumps related to irrigation and non-irrigation facilities. The regulations establishing procedures for the processing of these leases and permits are found in 43 CFR 2920. 

Limited area: Designated areas and trails where the use of off-road vehicles is subject to restrictions, such as limiting 

the number or types or vehicles allowed, dates and times of use (seasonal restrictions), limiting use to existing routes, 

or limiting use to designated routes. Under the limited to designated routes designation, use would be allowed only 

on roads and trails that are signed for use. Combinations of restrictions are possible, such as limiting use to certain 

types of vehicles during certain times of the year (from BLM National Management Strategy for OHV Use on Public 

Lands). 

Long-term effect: The effect could occur for an extended period after implementation of the alternative. The effect 

could last several years or more. 

M

Management decision: A decision made by the BLM to manage public lands. Management decisions include both 

land use plan decisions and implementation decisions. 

Maternity roost sites: Location where female bats bear and raise their young. 

Mechanized equipment: Used outside wilderness areas on archeological and paleontological digs, includes pneumatic air scribe, diamond saw, large construction drills and delicate dental drills. 

Mechanical transport: Any vehicle, device, or contrivance for moving people or material in or over land, water, snow, 

or air that has moving parts. 

Mechanical vegetation treatment: Includes mowing, chaining, chopping, drill seeding, and cutting vegetation to 

meet resource objective. Mechanical treatments generally occur in areas where fuel loads or invasive species need to 

be reduced prior to prescribed fire application; when fire risk to resources is too great to use naturally started wildland fires or prescribed fires; or where opportunities exist for biomass utilization or timber harvest. 

Mitigation: in general, a combination of measures to lessen the impacts of a project or activity on an element of 

the natural environment or various other cultural or historic values; more specifically, as defined by the Council on 

Environmental Quality in its regulations for implementing NEPA, mitigation includes: (a) avoiding the impact, (b) 

minimizing the impact, (c) rectifying (i.e., repairing, rehabilitating, or restoring) the impact (d) reducing or eliminating the impact through operations during the life of the project, or (e) compensating by replacing or substituting 

resources (40 CFR Section 1508.20). 
82 Glossary Red Cliffs National Conservation Area Red Cliffs National Conservation Area Glossary 83

N - P P - R

Plant materials: Materials derived from plants or vegetation, including firewood (fuelwood), posts & poles, wildings 

and boughs. 

Potential fossil yield classification: system that aids in assessing the potential for discovery of significant paleontological resources or the impact of surface disturbing activities to these resources. Classification system was originally 

developed by the Forest Service’s Paleontology Center of Excellence and the Region 2 (FS) Paleontology Initiative in 

1996. 

Prehistoric resources: Any material remains, structures, and items used or modified by people before Euroamericans 

established a presence in the region. 

Prescribed fire treatments: A wildland fire originating from a planned ignition to meet specific objectives identified 

in a written, approved, prescribed fire plan for which NEPA requirements (where applicable) have been met prior to 

ignition. 

Primitive road: A linear route managed for use by four-wheel drive or high-clearance vehicles. Primitive roads do not 

normally meet any BLM road design standards. 

Proper functioning condition: (1) An element of the Fundamental of Rangeland Health for watersheds, and therefore a required element of State or regional standards and guidelines under 43 CFR § 4180.2(b). (2) Condition in 

which vegetation and ground cover maintain soil conditions that can sustain natural biotic communities. For riparian 

areas, the process of determining function is described in the BLM Technical Reference TR 1737-9. (3) Riparianwetland areas are functioning properly when adequate vegetation, landform, or large woody debris is present to 

dissipate stream energy associated with high water flows, thereby reducing erosion and improving water quality; filter 

sediment, capture bedload, and aid floodplain development; improve floodwater retention and groundwater recharge; 

develop root masses that stabilize stream banks against cutting action; develop diverse ponding and channel characteristics to provide the habitat and the water depth, duration, and temperature necessary for fish production, waterfowl breeding, and other uses; and support greater biodiversity. The functioning condition of riparian-wetland areas 

is influenced by geomorphic features, soil, water, and vegetation. (4) Uplands function properly when the existing 

vegetation and ground cover maintain soil conditions capable of sustaining natural biotic communities. The functioning condition of uplands is influenced by geomorphic features, soil, water, and vegetation. 

Public land: Land or interest in land owned by the United States and administered by the Secretary of the Interior 

through the BLM without regard to how the United States acquired ownership, except lands located on the Outer 

Continental Shelf, and lands held for the benefit of Indians, Aleuts, and Eskimos. 

R

Raptor: Bird of prey with sharp talons and strongly curved beaks, e.g. hawks, owls, vultures, eagles. 

Reclamation: Returning disturbed lands to a form and productivity that will be ecologically balanced and in conformity with a predetermined land management plan. 

Recreation experiences: Psychological outcomes realized either by recreation-tourism participants as a direct result 

of their on-site leisure engagements and recreation-tourism activity participation or by nonparticipating community 

residents as a result of their interaction with visitors and guests within their community or interaction with the BLM 

and other public and private recreation-tourism providers and their actions. 

Recreation opportunities: Favorable circumstances enabling visitors’ engagement in a leisure activity to realize immediate psychological experiences and attain more lasting, value-added beneficial outcomes. 

Recreation setting character conditions: The distinguishing recreational qualities of any landscape, objectively defined along a continuum, ranging from primitive to urban landscapes, expressed in terms of the nature of the component parts of its physical, social, and administrative attributes. These recreational qualities can be both classified and 

mapped. This classification and mapping process should be based on variation that either exists (for example, setting 

descriptions) or is desired (for example, setting prescriptions) among component parts of the various physical, social, 

and administrative attributes of any landscape. The recreation opportunity spectrum is one of the tools for doing this. 

Noxious weeds: A plant species designated by Federal or State law as generally possessing one or more of the following characteristics: aggressive and difficult to manage; parasitic; a carrier or host of serious insects or disease; or 

non-native, new, or not common to the US. 

O

Objective: A description of a desired condition for a resource. Objectives can be quantified and measured and, where 

possible, have established time frames for achievement. 

Occurrence: A known location of an individual or population of individuals of a plant or animal species. 

Off-highway vehicle (OHV): Any motorized vehicle capable of, or designed for, travel on or immediately over land, 

water, or other natural terrain, excluding: (1) any non-amphibious registered motorboat: (2) any military, fire, emergency, or law enforcement vehicle while being used for emergency purposes; (3) any vehicle whose use is expressly 

authorized by the authorized officer, or otherwise officially approved; (4) vehicles in official use; and (5) any combat 

or combat support vehicle when used for national defense (BLM 2005). 

Off-highway vehicle area designations: BLM-administered lands in the St. George Field Office are designated as 

Open, Limited, or Closed for OHV use. 

▶ Open. Designated areas where all types of motorized vehicles (jeeps, all-terrain vehicles, motorized dirt bikes, 

etc.) are permitted at all times, anywhere in the area, on roads or cross country, subject to the operating regulations and vehicle standards set forth in 43 CFR subparts 8341 and 8342. 

▶ Limited. Designated areas where motorized vehicles are restricted to designated routes. Off-road, cross-country 

travel is prohibited in Limited areas, unless an area is specifically identified as an area where cross-country oversnow travel is allowed. Some existing routes may be closed in Limited areas. 

▶ Closed. Designated areas where off-road motorized vehicle travel is prohibited yearlong. Emergency use of 

vehicles is allowed yearlong. 

Off-site education and interpretation: May include website, social media, printed brochures and maps. 

On-site education and interpretation: May include kiosks and information plates. 

Open: Designated areas and trails where off-road vehicles may be operated, subject to operating regulations and 

vehicle standards set forth in BLM Manuals 8341 and 8343, or an area where all types of vehicle use is permitted at all 

times, subject to the standards in BLM Manuals 8341 and 8343. 

P

Paleontological resources: Any fossilized remains, traces, or imprints of organisms, preserved in or on the 

earth's crust, that are of paleontological interest and that provide information about the history of life on earth. 

Paleontological resources do not include any materials associated with an archaeological resource or any cultural item 

(16 U.S.C. 470aaa(4)). 

Perennial stream: Perennial streams carry flowing water continuously throughout the year, regardless of weather 

conditions. It exhibits well-defined geomorphologic characteristics and in the absence of pollution, thermal modifications, or other man-made disturbances has the ability to support aquatic life. 

Permitted use: In a livestock grazing context, the forage allocated by, or under the guidance of, an applicable land use 

plan for livestock grazing in an allotment under a permit or lease, and expressed in Animal Unit Months. 

Permittee: In a livestock grazing context, a person or company permitted to graze livestock on public land. 

Planning area: A geographic area for which land use and resource management plans are developed and maintained. 

Planning criteria: The standards, rules, and other factors developed by managers and interdisciplinary teams for their 

use in forming judgments about decision making, analysis, and data collection during planning. Planning criteria 

streamlines and simplifies the resource management planning actions. 

Planning issues: Concerns, conflicts, and problems with the existing management of public lands. Frequently, issues 

are based on how land uses affect resources. Some issues are concerned with how land uses can affect other land uses, 

or how the protection of resources affects land uses. 
84 Glossary Red Cliffs National Conservation Area Red Cliffs National Conservation Area Glossary 85

R - S S

Seeps and Springs: Naturally occurring springs usually emerge from a single point, while seeps emerge over a larger 

area, having no well-defined origin. Unique vegetative communities often form around the discharges of seeps and 

springs. 

Sensitive Species: Species designated as sensitive by the BLM State Director, including species that are under status 

review, have small or declining populations, live in unique habitats, or require special management. BLM Manual 

6840 provides policy and guidance for managing special status species. 

Setting Character: The condition of any recreation system, objectively defined along a continuum, ranging from 

primitive to urban in terms of variation of its component physical, social, and administrative attributes. 

Short-term Effect: The effect occurs only during or immediately after implementation of the action or alternative. 

Solitude: The state of being alone or remote from habitations; isolation. A lonely or secluded place. Factors contributing to opportunities for solitude may include size, natural screening, topographic relief, vistas, physiographic variety, 

and the ability of the user to find a secluded spot. 

Special Recreation Management Area (SRMA): An administrative unit where the existing or proposed recreational 

opportunities and recreational setting characteristics are recognized for their unique value, importance or distinctiveness; especially compared to other areas used for recreation. 

Special Recreation Permit (SRP): Authorizations that allow for recreational uses of public lands and related waters. 

Issued as a means to control visitor use, protect recreational and natural resources, and provide for the health and 

safety of visitors. Commercial Special Recreation Permits also are issued as a mechanism to provide a fair return for 

the commercial use of public lands. 

Special status species: Species that are proposed for listing, officially listed as threatened or endangered, or are candidates for listing as threatened or endangered under the provisions of the Endangered Species Act (ESA); those listed 

by a State in a category such as threatened or endangered implying potential endangerment or extinction; and those 

designated by each State Director as sensitive. 

Split estate: Lands on which the mineral estate is owned by someone other than the surface estate owner. For example, the surface is in private ownership and the mineral resources are publicly held and managed by the Federal 

Government. 

State Historic Preservation Office: Office in State or territorial government that administers the preservation programs under the National Historic Preservation Act. 

Stipulation: A term or condition in an agreement or contract.

Succession: Succession is the process by which an ecological community undergoes changes over time following 

disturbances (either natural or human-caused disturbances). 

Surface-disturbing activities: Human-caused disturbance resulting in direct and pronounced alteration, damage, 

removal, displacement, or mortality of vegetation, soil, or substrates; usually entail motorized or mechanized vehicles 

or tools; typically can also be described as disruptive activities (see following definition). Examples of typical surface 

disturbing activities include: 

▶ Earth-moving and drilling; 

▶ Geophysical exploration; 

▶ Off-route motorized and mechanized travel; 

▶ Vegetation treatments including woodland thinning with chainsaws; 

▶ Pyrotechnics and explosives; and 

▶ Construction of powerlines, pipelines, oil and gas wells, recreation sites, livestock improvement facilities, wildlife waters, or new roads. 

Examples of casual use and other activities that would not normally be considered surface disturbing activities 

include: 

▶ Equestrian use; 

Recreation settings: The collective distinguishing attributes of landscapes that influence and sometimes actually 

determine what kinds of recreation opportunities are produced. Recreation settings are classified both in terms of 

existing conditions (inventory) and desired future conditions (planned). 

Recreation use permit (RUP): Authorizations for use of developed facilities that meet the fee criteria established by 

the Federal Lands Recreation Enhancement Act of 2004 or a subsequent authority. Recreation Use Permits are issued 

to ensure that United States residents receive a fair and equitable return for the use of those facilities to help recover 

the cost of construction, operation, maintenance, and management of the permits. 

Resource Management Plan (RMP): A land use plan as prescribed by the Federal Land Policy and Management Act 

that establishes, for a given area of land, land-use allocations, coordination guidelines for multiple-use, objectives, and 

actions to be achieved. 

Restoration: The process by which areas are brought back to a former, original or specific desired condition or 

appearance. 

Revegetation: The process of putting vegetation back in an area where vegetation previously existed, which may or 

may not simulate natural conditions. 

Right-of-way (ROW): An easement or permit that authorizes public land to be used for a specified purpose that is in 

the public interest and that requires right-of-ways over, upon, under, or through such lands (e.g. roads, power-lines, 

pipelines). 

Right-of-way Avoidance area: An area identified through resource management planning to be avoided but may be 

available for ROW location with special stipulations. 

Right-of-way Exclusion area: An area identified through resource management planning that is not available for 

ROW location under any conditions. 

Riparian area: A form of wetland transition between permanently saturated wetlands and upland areas. Riparian 

areas exhibit vegetation or physical characteristics that reflect the influence of permanent surface or subsurface water. 

Typical riparian areas include lands along, adjacent to, or contiguous with perennially and intermittently flowing rivers and streams, glacial potholes, and the shores of lakes and reservoirs with stable water levels. Excluded are ephemeral streams or washes that lack vegetation and depend on free water in the soil. 

Riparian zone: An area one-quarter mile wide encompassing riparian and adjacent vegetation. 

Road: A linear route declared a road by the owner, managed for use by low-clearance vehicles having four or more 

wheels, and maintained for regular and continuous use. 

Rock Art: Petroglyphs (carvings) or pictographs (paintings) created on natural rock surfaces by native people and 

depicting their history and culture. 

Routes: Multiple roads, trails and primitive roads; a group or set of roads, trails, and primitive roads that represents 

less than 100 percent of the BLM transportation system. Generically, components of the transportation system are 

described as “routes.” 

S

Salinity: The presence of elevated levels of soluble salts in soils or waters. 

Season of use: In a grazing context, the time during which livestock grazing is permitted on a given range area, as 

specified in the grazing lease. 

Seeding: Seeding is a vegetation treatment that includes the application of grass, forb, or shrub seed, either aerially 

or from the ground. In areas of gentle terrain, ground applications of seed are often accomplished with a rangeland 

drill. Seeding allows the establishment of native species or placeholder species and restoration of disturbed areas to a 

perennial-dominated cover type, thereby decreasing the risk of subsequent invasion by exotic plant species. Seeding 

would be used primarily as a follow-up treatment in areas where disturbance or the previously described treatments 

have removed exotic plant species and their residue. 
86 Glossary Red Cliffs National Conservation Area Red Cliffs National Conservation Area Glossary 87

S - V V - W

▶ Class II areas are those areas where changes in any of the basic elements (form, line, color, or texture) caused by 

management activity should not be evident in the characteristic landscape. 

▶ Class III includes areas where changes in the basic elements (form, line, color, or texture) caused by a management activity may be evident in the characteristic landscape. However, the changes should remain subordinate 

to the visual strength of the existing character. 

▶ Class IV applies to areas where changes may subordinate the original composition and character; however, they 

should reflect what could be a natural occurrence within the characteristic landscape. 

Visual resources: The visible physical features on a landscape, (topography, water, vegetation, animals, structures, and 

other features) that comprise die scenery of the area. 

W

Watershed: Topographical region or area delineated by water draining to a particular watercourse or body of water. 

Wetland: Permanently wet or intermittently water-covered areas, such as swamps, marshes, bogs, potholes, swales, 

and glades. 

White nose syndrome: A high mortality disease affecting hibernating bats. Named for the white fungus that appears 

on the muzzle and other body parts of hibernating bats. 

Wilderness: A congressionally designated area of undeveloped Federal land retaining its primeval character and 

influence, without permanent improvements or human habitation, that is protected and managed to preserve its 

natural conditions and that (1) generally appears to have been affected mainly by the forces of nature, with human 

imprints substantially unnoticeable; (2) has outstanding opportunities for solitude or a primitive and unconfined type 

of recreation; (3) has at least 5,000 acres or is large enough to make practical its preservation and use in an unimpaired condition; and (4) may also contain ecological, geological, or other features of scientific, educational, scenic, or 

historic value. 

Wilderness characteristics: Wilderness characteristics include size, the appearance of naturalness, outstanding opportunities for solitude or a primitive and unconfined type of recreation. They may also include ecological, geological, or other features of scientific, educational, scenic, or historical value. However Section 2(c) of the Wilderness 

Act of 1964 has been updated by IM-2003-195, dated June 20, 2003. Indicators of an area’s naturalness include the 

extent of landscape modifications; the presence of native vegetation communities; and the connectivity of habitats. 

Outstanding opportunities for solitude or primitive and unconfined types of recreation may be experienced when the 

sights, sounds, and evidence of other people are rare or infrequent, in locations where visitors can be isolated, alone 

or secluded from others, where the use of the area is through non-motorized, non-mechanical means, and where no 

or minimal developed recreation facilities are encountered. 

Wildland fire: Any fire, regardless of ignition source, that is burning outside of a prescribed fire and any fire burning 

on public lands or threatening public land resources, where no fire prescription standards have been prepared (from 

H-1742-1, BLM Emergency Fire Rehabilitation Handbook). 

Withdrawal: An action used to preserve sensitive environmental values, protect major Federal investments in facilities, support national security, and provide for public health and safety. Withdrawal segregates a portion of public 

lands and suspends certain operations of the public land laws, such as mining claims. Certain stock driveways are 

also withdrawn. Federal policy now restricts all withdrawals to the minimum time and acreage required to serve the 

public interest, maximize the use of withdrawn lands consistent with their primary purpose, and eliminate all withdrawals that are no longer needed.

▶ Proper livestock grazing; 

▶ Cross-country hiking; 

▶ Hand-spraying weeds; 

▶ Minimal trimming of vegetation to maintain ROWs; 

▶ Motorized and mechanized travel on designated routes; and 

▶ Maintenance of permitted areas under valid existing rights. 

T

Threatened species: Any species that is likely to become an endangered species within the foreseeable future 

throughout all or a significant portion of its range, and as further defined by the Endangered Species Act of 1973. 

Traditional uses: Longstanding, socially conveyed, customary patterns of thought, cultural expression, and behavior, such as religious beliefs and practices, social customs, and land or resource uses. Traditions are shared generally 

within a social and/or cultural group and span generations. Usually traditional uses are reserved rights resulting from 

treaty and/or agreements with Native American groups. 

Trail: A linear route managed for human-powered, stock or OHV travel/transportation, or for historical or heritage 

values; not generally managed for use by 4WD or high-clearance vehicles. 

Transportation system: The sum of the BLM’s recognized inventory of linear features (roads, primitive roads, and 

trails) formally recognized, designated, and approved as part of the BLM’s transportation system. 

Travel management areas: Polygons or delineated areas where areas have been classified as open, closed or limited, 

and have identified and/or designated a network of roads, trails, ways, and other routes that provide for public access 

and travel across the planning area. All designated travel routes within travel management areas should have a clearly 

identified need and purpose as well as clearly defined activity types, modes of travel, and seasons or time-frames for 

allowable access or other limitations (BLM 2005). 

U

Understory: That portion of a plant community growing underneath the taller plants on the site. 

V

Valid existing rights: Any valid right that is immune from denial or extinguishment by the exercise of Secretarial 

discretion and was in existence within the boundaries of the Beaver Dam Wash and Red Cliffs NCAs when the NCAs 

were established on March 30, 2009. 

Vegetation treatments: Planned alteration of vegetation communities to achieve desired resources objectives 

through use of mechanical and chemical treatments, seeding, release of biological controls, manual labor, timber 

harvest, targeted grazing, and/or prescribed fire. 

Vertebrate: An animal having a backbone or spinal column. 

Visitor use: Visitor use of a resource for inspiration, stimulation, solitude, relaxation, education, pleasure, or 

satisfaction. 

Visual Resource Management (VRM): The inventory and planning actions taken to identify visual resource values and to establish objectives for managing those values, and the management actions taken to achieve the visual 

resource management objectives. 

Visual Resource Management Classes: Visual resource management classes define the degree of acceptable visual 

change within a characteristic landscape. A class is based on the physical and sociological characteristics of any given 

homogeneous area and serves as a management objective. Categories assigned to public lands on the basis of scenic 

quality, sensitivity level, and distance zones. Each class has an objective that prescribes the amount of change allowed 

in the characteristic landscape (BLM 2005). The four classes are described below: 

▶ Class I provides for natural ecological changes only. This class includes primitive areas, some natural areas, some 

wild and scenic rivers, and other similar areas where landscape modification activities should be restricted. 
Red Cliffs National Conservation Area Abbreviations-Acronyms 89

A - N

ABBREVIATIONS-ACRONYMS

ACECs Areas of Critical Environmental Concern

APP Avian Protection Plan

Approved RMP Approved Resource Management Plan

ARPA Archaeological Resource Protection Act

AUM Animal Unit Month

BA Biological Assessment

BLM Bureau of Land Management

BMPs Best Management Practices

BO Biological Opinion

CEQ Council on Environmental Quality

CFR Code of Federal Regulations

Draft EIS Draft Environmental Impact Statement

EIS Environmental Impact Statement

ERMA Extensive Recreation Management Area

ESA Endangered Species Act

ES&R Emergency Stabilization and Restoration

Final EIS Final Environmental Impact Statement

FLPMA Federal Land Policy and Management Act

GIS Geographic Information System

HABS Historic American Building Survey

HALS Historic American Landscape Survey

HCP Habitat Conservation Plan

I-15 Interstate Highway 15

ITP Incidental Take Permit

IWM Integrated Weed Management

MOU Memorandum of Understanding

NCA National Conservation Area

NEPA National Environmental Policy Act

NNL National Natural Landmark

NOA Notice of Availability

NOI Notice of Intent

NPS National Park Service

NRHP National Register of Historic Places

OHV Off-Highway Vehicle

OST Old Spanish Trail

OPLMA Omnibus Public Land Management Act

P. L. Public Law

Proposed RMP Proposed Resource Management Plan

PRPA Paleontological Resource Preservation Act

PUP Public Use Plan

RAMP Recreation Area Management Plan

Reserve Red Cliffs Desert Reserve
90 Abbreviations-Acronyms Red Cliffs National Conservation Area

N - W

RMP Resource Management Plan

RMZs Recreation Management Zones

ROD Record of Decision

ROW Right-of-way

RUP Recreation Use Permit

Secretary Secretary of the Interior

SHPO State Historic Preservation Officer

SOP Standard Operating Procedure

spp. Species

SRMA Special Recreation Management Area

SRP Special Recreation Permit

TMP Comprehensive Travel and Transportation Management Plan

UDWR Utah Division of Wildlife Resources

UDWQ Utah Division of Water Quality

U.S.C. United States Code

USDA United States Department of Agriculture

USDOI United States Department of Interior

USFWS United States Fish and Wildlife Service

USFS United States Forest Service

VRM Visual Resource Management
Appendices
Red Cliffs National Conservation Area Appendices 93

Appendices

APPENDIX A

APPENDIX A

Omnibus Public Lands Management Act of 2009

This appendix contains the portions of the Omnibus Public Lands Management Act of 2009 (Public Law 111-11, Title 

I, Subtitle O - Washington County, Utah) that created the Beaver Dam Wash and Red Cliffs National Conservation 

Areas.

Subtitle O—Washington County, Utah

SEC. 1971. DEFINITIONS.

In this subtitle:

(1) BEAVER DAM WASH NATIONAL CONSERVATION AREA MAP.—The term ‘‘Beaver Dam Wash National 

Conservation Area Map’’ means the map entitled ‘‘Beaver Dam Wash National Conservation Area’’ and dated 

December 18, 2008.

(2) CANAAN MOUNTAIN WILDERNESS MAP.—The term ‘‘Canaan Mountain Wilderness Map’’ means the map 

entitled ‘‘Canaan Mountain Wilderness’’ and dated June 21, 2008.

(3) COUNTY.—The term ‘‘County’’ means Washington County, Utah.

(4) NORTHEASTERN WASHINGTON COUNTY WILDERNESS MAP.— The term ‘‘Northeastern Washington 

County Wilderness Map’’ means the map entitled ‘‘Northeastern Washington County Wilderness’’ and dated 

November 12, 2008.

(5) NORTHWESTERN WASHINGTON COUNTY WILDERNESS MAP.—The term ‘‘Northwestern Washington 

County Wilderness Map’’ means the map entitled ‘‘Northwestern Washington County Wilderness’’ and dated June 21, 

2008.

(6) RED CLIFFS NATIONAL CONSERVATION AREA MAP.—The term ‘‘Red Cliffs National Conservation Area 

Map’’ means the map entitled ‘‘Red Cliffs National Conservation Area’’ and dated November 12, 2008.

(7) SECRETARY.—The term ‘‘Secretary’’ means—

(A) with respect to land under the jurisdiction of the Secretary of Agriculture, the Secretary of Agriculture; and

(B) with respect to land under the jurisdiction of the Secretary of the Interior, the Secretary of the Interior.

(8) STATE.—The term ‘‘State’’ means the State of Utah. 

(9) WASHINGTON COUNTY GROWTH AND CONSERVATION ACT MAP.—The term ‘‘Washington County 

Growth and Conservation Act Map’’ means the map entitled ‘‘Washington County Growth and Conservation Act 

Map’’ and dated November 13, 2008.

SEC. 1972. WILDERNESS AREAS.

(a) ADDITIONS TO NATIONAL WILDERNESS PRESERVATION SYSTEM.—

(1) ADDITIONS.—Subject to valid existing rights, the following land in the State is designated as wilderness and 

as components of the National Wilderness Preservation System:

(A) BEARTRAP CANYON.—Certain Federal land managed by the Bureau of Land Management, comprising 

approximately 40 acres, as generally depicted on the Northeastern Washington County Wilderness Map, which 

shall be known as the ‘‘Beartrap Canyon Wilderness.’’

(B) BLACKRIDGE.—Certain Federal land managed by the Bureau of Land Management, comprising approximately 13,015 acres, as generally depicted on the Northeastern Washington County Wilderness Map, which 

shall be known as the ‘‘Blackridge Wilderness.’’

(C) CANAAN MOUNTAIN.—Certain Federal land in the County managed by the Bureau of Land 

Management, comprising approximately 44,531 acres, as generally depicted on the Canaan Mountain Wilderness 

Map, which shall be known as the ‘‘Canaan Mountain Wilderness.”
94 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 95

APPENDIX A APPENDIX A

(1) MANAGEMENT.—Subject to valid existing rights, each area designated as wilderness by subsection (a)(1) 

shall be administered by the Secretary in accordance with the Wilderness Act (16 U.S.C. 1131 et seq.), except 

that— 

(A) any reference in the Wilderness Act to the effective date of that Act shall be considered to be a reference 

to the date of enactment of this Act; and

(B) any reference in the Wilderness Act to the Secretary of Agriculture shall be considered to be a reference 

to the Secretary that has jurisdiction over the land.

(2) LIVESTOCK.—The grazing of livestock in each area designated as wilderness by subsection (a)(1), where 

established before the date of enactment of this Act, shall be permitted to continue—

(A) subject to such reasonable regulations, policies, and practices that the Secretary considers necessary; and

(B) in accordance with— 

 (i) section 4(d)(4) of the Wilderness Act (16 U.S.C. 1133(d)(4)); and 

 (ii) the guidelines set forth in Appendix A of the report of the Committee on Interior and Insular 

Affairs of the House of Representatives accompanying H.R. 2570 of the 101st Congress (H.Rep. 101–405) and 

H.R. 5487 of the 96th Congress (H. Rept. 96–617).

(3) WILDFIRE, INSECT, AND DISEASE MANAGEMENT.—In accordance with section 4(d)(1) of the 

Wilderness Act (16 U.S.C.1133(d)(1)), the Secretary may take such measures in each area designated as wilderness by subsection (a)(1) as the Secretary determines to be necessary for the control of fire, insects, and diseases 

(including, as the Secretary determines to be appropriate, the coordination of those activities with a State or local 

agency).

(4) BUFFER ZONES.—

(A) IN GENERAL.—Nothing in this section creates a protective perimeter or buffer zone around any area 

designated as wilderness by subsection (a)(1).

(B) ACTIVITIES OUTSIDE WILDERNESS.—The fact that an activity or use on land outside any area designated as wilderness by subsection (a)(1) can be seen or heard within the wilderness shall not preclude the activity 

or use outside the boundary of the wilderness.

(5) MILITARY OVERFLIGHTS.—Nothing in this section restricts or precludes— 

(A) low-level overflights of military aircraft over any area designated as wilderness by subsection (a)(1), including military overflights that can be seen or heard within any wilderness area;

(B) flight testing and evaluation; or 

(C) the designation or creation of new units of special use airspace, or the establishment of military flight 

training routes over any wilderness area.

(6) ACQUISITION AND INCORPORATION OF LAND AND INTERESTS IN LAND.—

(A) ACQUISITION AUTHORITY.—In accordance with applicable laws (including regulations), the 

Secretary may acquire any land or interest in land within the boundaries of the wilderness areas designated by 

subsection (a)(1) by purchase from willing sellers, donation, or exchange.

(B) INCORPORATION.—Any land or interest in land acquired by the Secretary under subparagraph (A) 

shall be incorporated into, and administered as a part of, the wilderness area in which the land or interest in land 

is located.

(7) NATIVE AMERICAN CULTURAL AND RELIGIOUS USES.— Nothing in this section diminishes—

(A) the rights of any Indian tribe; or

(B) any tribal rights regarding access to Federal land for tribal activities, including spiritual, cultural, and 

traditional food-gathering activities.

(8) CLIMATOLOGICAL DATA COLLECTION.—In accordance with the Wilderness Act (16 U.S.C. 1131 et 

seq.) and subject to such terms and conditions as the Secretary may prescribe, the Secretary may authorize the 

installation and maintenance of hydrologic, meteorologic, or climatological collection devices in the wilderness 

areas designated by subsection (a)(1) if the Secretary determines that the facilities and access to the facilities are 

essential to flood warning, flood control, or water reservoir operation activities.

(9) WATER RIGHTS.—

(A) STATUTORY CONSTRUCTION.—Nothing in this section— 

(D) COTTONWOOD CANYON.—Certain Federal land managed by the Bureau of Land Management, 

comprising approximately 11,712 acres, as generally depicted on the Red Cliffs National Conservation Area Map, 

which shall be known as the ‘‘Cottonwood Canyon Wilderness.”

(E) COTTONWOOD FOREST.—Certain Federal land managed by the Forest Service, comprising approximately 2,643 acres, as generally depicted on the Red Cliffs National Conservation Area Map, which shall be 

known as the ‘‘Cottonwood Forest Wilderness.”

(F) COUGAR CANYON.—Certain Federal land managed by the Bureau of Land Management, comprising 

approximately 10,409 acres, as generally depicted on the Northwestern Washington County Wilderness Map, 

which shall be known as the “Cougar Canyon Wilderness.”

(G) DEEP CREEK.—Certain Federal land managed by the Bureau of Land Management, comprising approximately 3,284 acres, as generally depicted on the Northeastern Washington County Wilderness Map, which shall 

be known as the ‘‘Deep Creek Wilderness.’’

(H) DEEP CREEK NORTH.—Certain Federal land managed by the Bureau of Land Management, comprising approximately 4,262 acres, as generally depicted on the Northeastern Washington County Wilderness Map, 

which shall be known as the ‘‘Deep Creek North Wilderness.’’

(I) DOC’S PASS.—Certain Federal land managed by the Bureau of Land Management, comprising approximately 17,294 acres, as generally depicted on the Northwestern

Washington County Wilderness Map, which shall be known as the “Doc’s Pass Wilderness.”

(J) GOOSE CREEK.—Certain Federal land managed by the Bureau of Land Management, comprising approximately 98 acres, as generally depicted on the Northeastern Washington County Wilderness Map, which shall 

be known as the ‘‘Goose Creek Wilderness.’’

(K) LAVERKIN CREEK.—Certain Federal land managed by the Bureau of Land Management, comprising 

approximately 445 acres, as generally depicted on the Northeastern Washington County Wilderness Map, which 

shall be known as the ‘‘LaVerkin Creek Wilderness.’’

(L) RED BUTTE.—Certain Federal land managed by the Bureau of Land Management, comprising approximately 1,537 acres, as generally depicted on the Northeastern Washington County Wilderness Map, which shall 

be known as the ‘‘Red Butte Wilderness.”

(M) RED MOUNTAIN.—Certain Federal land managed by the Bureau of Land Management, comprising 

approximately 18,729 acres, as generally depicted on the Red

Cliffs National Conservation Area Map, which shall be known as the ‘‘Red Mountain Wilderness.”

(N) SLAUGHTER CREEK.—Certain Federal land managed by the Bureau of Land Management, comprising 

approximately 3,901 acres, as generally depicted on the

Northwestern Washington County Wilderness Map, which shall be known as the ‘‘Slaughter Creek Wilderness.”

(O) TAYLOR CREEK.—Certain Federal land managed by the Bureau of Land Management, comprising approximately 32 acres, as generally depicted on the Northeastern Washington County Wilderness Map, which shall 

be known as the ‘‘Taylor Creek Wilderness.”

(2) MAPS AND LEGAL DESCRIPTIONS.—

(A) IN GENERAL.—As soon as practicable after the date of enactment of this Act, the Secretary shall submit 

to the Committee on Energy and Natural Resources of the Senate and the Committee on Natural Resources of the 

House of Representatives a map and legal description of each wilderness area designated by paragraph (1).

(B) FORCE AND EFFECT.—Each map and legal description submitted under subparagraph (A) shall have 

the same force and effect as if included in this subtitle, except that the Secretary may correct any clerical or typographical errors in the map or legal description.

(C) AVAILABILITY.—Each map and legal description submitted under subparagraph (A) shall be available 

in the appropriate offices of—

 (i) the Bureau of Land Management; and

 (ii) the Forest Service.

(b) ADMINISTRATION OF WILDERNESS AREAS.—
96 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 97

APPENDIX A APPENDIX A

SEC. 1973. ZION NATIONAL PARK WILDERNESS.

(a) DEFINITIONS.—In this section:

(1) FEDERAL LAND.—The term ‘‘Federal land’’ means certain Federal land—

(A) that is—

 (i) located in the County and Iron County, Utah; and

 (ii) managed by the National Park Service; 

(B) consisting of approximately 124,406 acres; and

(C) as generally depicted on the Zion National Park Wilderness Map and the area added to the park under 

section 1972(d).

(2) WILDERNESS AREA.—The term ‘‘Wilderness Area’’ means the Zion Wilderness designated by subsection 

(b)(1).

(3) ZION NATIONAL PARK WILDERNESS MAP.—The term ‘‘Zion National Park Wilderness Map’’ means the 

map entitled ‘‘Zion National Park Wilderness’’ and dated April 2008.

(b) ZION NATIONAL PARK WILDERNESS.—

(1) DESIGNATION.—Subject to valid existing rights, the Federal land is designated as wilderness and as a component of the National Wilderness Preservation System, to be known as the ‘‘Zion Wilderness.”

(2) INCORPORATION OF ACQUIRED LAND.—Any land located in the Zion National Park that is acquired 

by the Secretary through a voluntary sale, exchange, or donation may, on the recommendation of the Secretary, 

become part of the Wilderness Area, in accordance with the Wilderness Act (16 U.S.C. 1131 et seq.).

(3) MAP AND LEGAL DESCRIPTION.—

(A) IN GENERAL.—As soon as practicable after the date of enactment of this Act, the Secretary shall submit 

to the Committee on Energy and Natural Resources of the Senate and the Committee on Natural Resources of the 

House of Representatives a map and legal description of the Wilderness Area.

(B) FORCE AND EFFECT.—The map and legal description submitted under subparagraph (A) shall have the 

same force and effect as if included in this Act, except that the Secretary may correct any clerical or typographical 

errors in the map or legal description.

(C) AVAILABILITY.—The map and legal description submitted under subparagraph (A) shall be available in 

the appropriate offices of the National Park Service.

SEC. 1974. RED CLIFFS NATIONAL CONSERVATION AREA.

(a) PURPOSES.—The purposes of this section are—

(1) to conserve, protect, and enhance for the benefit and enjoyment of present and future generations the ecological, scenic, wildlife, recreational, cultural, historical, natural, educational, and scientific resources of the National 

Conservation Area; and

(2) to protect each species that is—

(A) located in the National Conservation Area; and

(B) listed as a threatened or endangered species on the list of threatened species or the list of endangered species published under section 4(c)(1) of the Endangered Species Act of 1973 (16 U.S.C. 1533(c)(1)).

(b) DEFINITIONS.—In this section:

(1) HABITAT CONSERVATION PLAN.—The term ‘‘habitat conservation plan’’ means the conservation plan 

entitled ‘‘Washington County Habitat Conservation Plan’’ and dated February 23, 1996.

(2) MANAGEMENT PLAN.—The term ‘‘management plan’’ means the management plan for the National 

Conservation Area developed by the Secretary under subsection (d)(1).

(3) NATIONAL CONSERVATION AREA.—The term ‘‘National Conservation Area’’ means the Red Cliffs 

National Conservation Area that—

(A) consists of approximately 44,725 acres of public land in the County, as generally depicted on the Red 

Cliffs National Conservation Area Map; and 

(B) is established by subsection (c).

 (i) shall constitute or be construed to constitute either an express or implied reservation by the 

United States of any water or water rights with respect to the land designated as wilderness by subsection (a)

(1);

 (ii) shall affect any water rights in the State existing on the date of enactment of this Act, including 

any water rights held by the United States;

 (iii) shall be construed as establishing a precedent with regard to any future wilderness designations; 

 (iv) shall affect the interpretation of, or any designation made pursuant to, any other Act; or

 (v) shall be construed as limiting, altering, modifying, or amending any of the interstate compacts or 

equitable apportionment decrees that apportion water among and between the State and other States.

(B) STATE WATER LAW.—The Secretary shall follow the procedural and substantive requirements of the law of 

the State in order to obtain and hold any water rights not in existence on the date of enactment of this Act with 

respect to the wilderness areas designated by subsection (a)(1).

(10) FISH AND WILDLIFE.—

(A) JURISDICTION OF STATE.—Nothing in this section affects the jurisdiction of the State with respect to 

fish and wildlife on public land located in the State.

(B) AUTHORITY OF SECRETARY.—In furtherance of the purposes and principles of the Wilderness Act 

(16 U.S.C. 1131 et seq.), the Secretary may carry out management activities to maintain or restore fish and wildlife populations (including activities to maintain and restore fish and wildlife habitats to support the populations) 

in any wilderness area designated by subsection (a)(1) if the activities are—

 (i) consistent with applicable wilderness management plans; and

 (ii) carried out in accordance with— 

 (I) the Wilderness Act (16 U.S.C. 1131 et seq.); and

 (II) applicable guidelines and policies, including applicable policies described in Appendix B 

 of House Report 101–405.

(11) WILDLIFE WATER DEVELOPMENT PROJECTS.—Subject to paragraph (12), the Secretary may authorize structures and facilities, including existing structures and facilities, for wildlife water development projects, 

including guzzlers, in the wilderness areas designated by subsection (a)(1) if—

(A) the structures and facilities will, as determined by the Secretary, enhance wilderness values by promoting 

healthy, viable, and more naturally distributed wildlife populations; and

(B) the visual impacts of the structures and facilities on the wilderness areas can reasonably be minimized.

(12) COOPERATIVE AGREEMENT.—Not later than 1 year after the date of enactment of this Act, the Secretary 

shall enter into a cooperative agreement with the State that specifies the terms and conditions under which wildlife management activities in the wilderness areas designated by subsection (a)(1) may be carried out.

(c) RELEASE OF WILDERNESS STUDY AREAS.—

(1) FINDING.—Congress finds that, for the purposes of section 603 of the Federal Land Policy and Management 

Act of 1976 (43 U.S.C. 1782), the public land in the County administered by the Bureau of Land Management has 

been adequately studied for wilderness designation.

(2) RELEASE.—Any public land described in paragraph (1) that is not designated as wilderness by subsection (a)

(1)—

(A) is no longer subject to section 603(c) of the Federal Land Policy and Management Act of 1976 (43 U.S.C. 

1782(c)); and

(B) shall be managed in accordance with applicable law and the land management plans adopted under section 202 of that Act (43 U.S.C. 1712).

(d) TRANSFER OF ADMINISTRATIVE JURISDICTION TO NATIONAL PARK SERVICE.—Administrative jurisdiction over the land identified as the Watchman Wilderness on the Northeastern Washington County Wilderness 

Map is hereby transferred to the National Park Service, to be included in, and administered as part of Zion National 

Park.
98 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 99

APPENDIX A APPENDIX A

(g) WITHDRAWAL.—

(1) IN GENERAL.—Subject to valid existing rights, all Federal land located in the National Conservation Area 

are withdrawn from—

(A) all forms of entry, appropriation, and disposal under the public land laws;

(B) location, entry, and patenting under the mining laws; and

(C) operation of the mineral leasing, mineral materials, and geothermal leasing laws.

(2) ADDITIONAL LAND.—If the Secretary acquires additional land that is located in the National Conservation 

Area after the date of enactment of this Act, the land is withdrawn from operation of the laws referred to in paragraph (1) on the date of acquisition of the land.

(h) EFFECT.—Nothing in this section prohibits the authorization of the development of utilities within the National 

Conservation Area if the development is carried out in accordance with—

(1) each utility development protocol described in the habitat conservation plan; and

(2) any other applicable law (including regulations).

SEC. 1975. BEAVER DAM WASH NATIONAL CONSERVATION AREA.

(a) PURPOSE.—The purpose of this section is to conserve, protect, and enhance for the benefit and enjoyment of 

present and future generations the ecological, scenic, wildlife, recreational, cultural, historical, natural, educational, 

and scientific resources of the Beaver Dam Wash National Conservation Area.

(b) DEFINITIONS.—In this section:

(1) MANAGEMENT PLAN.—The term ‘‘management plan’’ means the management plan for the National 

Conservation Area developed by the Secretary under subsection (d)(1).

(2) NATIONAL CONSERVATION AREA.—The term ‘‘National Conservation Area’’ means the Beaver Dam 

Wash National Conservation Area that—

(A) consists of approximately 68,083 acres of public land in the County, as generally depicted on the Beaver Dam 

Wash National Conservation Area Map; and 

(B) is established by subsection (c).

(c) ESTABLISHMENT.—Subject to valid existing rights, there is established in the State the Beaver Dam Wash 

National Conservation Area.

(d) MANAGEMENT PLAN.—

(1) IN GENERAL.—Not later than 3 years after the date of enactment of this Act and in accordance with paragraph (2), the Secretary shall develop a comprehensive plan for the long-term management of the National 

Conservation Area.

(2) CONSULTATION.—In developing the management plan required under paragraph (1), the Secretary shall 

consult with—

(A) appropriate State, tribal, and local governmental entities; and

(B) members of the public.

(3) MOTORIZED VEHICLES.—In developing the management plan required under paragraph (1), the Secretary 

shall incorporate the restrictions on motorized vehicles described in subsection (e)(3).

(e) MANAGEMENT.—

(1) IN GENERAL.—The Secretary shall manage the National Conservation Area—

(A) in a manner that conserves, protects, and enhances the resources of the National Conservation Area; and

(B) in accordance with—

 (i) the Federal Land Policy and Management Act of 1976 (43 U.S.C. 1701 et seq.);

 (ii) this section; and

 (iii) any other applicable law (including regulations).

(2) USES.—The Secretary shall only allow uses of the National Conservation Area that the Secretary determines 

would further the purpose described in subsection (a).

(3) MOTORIZED VEHICLES.—

(4) PUBLIC USE PLAN.—The term ‘‘public use plan’’ means the use plan entitled ‘‘Red Cliffs Desert Reserve 

Public Use Plan’’ and dated June 12, 2000, as amended.

(5) RESOURCE MANAGEMENT PLAN.—The term ‘‘resource management plan’’ means the management plan 

entitled ‘‘St. George Field Office Resource Management Plan’’ and dated March 15, 1999, as amended.

(c) ESTABLISHMENT.—Subject to valid existing rights, there is established in the State the Red Cliffs National 

Conservation Area.

(d) MANAGEMENT PLAN.—

(1) IN GENERAL.—Not later than 3 years after the date of enactment of this Act and in accordance with paragraph (2), the Secretary shall develop a comprehensive plan for the long-term management of the National 

Conservation Area.

(2) CONSULTATION.—In developing the management plan required under paragraph (1), the Secretary shall 

consult with—

(A) appropriate State, tribal, and local governmental entities; and

(B) members of the public.

(3) INCORPORATION OF PLANS.—In developing the management plan required under paragraph (1), to the 

extent consistent with this section, the Secretary may incorporate any provision of—

(A) the habitat conservation plan;

(B) the resource management plan; and

(C) the public use plan.

(e) MANAGEMENT.—

(1) IN GENERAL.—The Secretary shall manage the National Conservation Area—

(A) in a manner that conserves, protects, and enhances the resources of the National Conservation Area; and

(B) in accordance with— 

 (i) the Federal Land Policy and Management Act of 1976 (43 U.S.C. 1701 et seq.);

 (ii) this section; and

 (iii) any other applicable law (including regulations).

(2) USES.—The Secretary shall only allow uses of the National Conservation Area that the Secretary determines 

would further a purpose described in subsection (a).

(3) MOTORIZED VEHICLES.—Except in cases in which motorized vehicles are needed for administrative purposes, or to respond to an emergency, the use of motorized vehicles in the National Conservation Area shall be 

permitted only on roads designated by the management plan for the use of motorized vehicles.

(4) GRAZING.—The grazing of livestock in the National Conservation Area, where established before the date of 

enactment of this Act, shall be permitted to continue—

(A) subject to—

 (i) such reasonable regulations, policies, and practices as the Secretary considers necessary; and

 (ii) applicable law; and

(B) in a manner consistent with the purposes described in subsection (a).

(5) WILDLAND FIRE OPERATIONS.—Nothing in this section prohibits the Secretary, in cooperation with 

other Federal, State, and local agencies, as appropriate, from conducting wildland fire operations in the National 

Conservation Area, consistent with the purposes of this section.

(f) INCORPORATION OF ACQUIRED LAND AND INTERESTS.—Any land or interest in land that is located in 

the National Conservation Area that is acquired by the United States shall—

(1) become part of the National Conservation Area; and

(2) be managed in accordance with—

(A) the Federal Land Policy and Management Act of 1976 (43 U.S.C. 1701 et seq.);

(B) this section; and

(C) any other applicable law (including regulations).
100 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 101

APPENDIX A APPENDIX A

‘‘(E) TIMBER CREEK AND TRIBUTARIES.—The 3.1-mile segment from the head of Timber Creek and 

tributaries of Timber Creek to the junction with LaVerkin Creek and adjacent land rim-to-rim, as a wild river.

‘‘(F) LAVERKIN CREEK.—The 16.1-mile segment beginning in T. 38 S., R. 11 W., sec. 21, on Bureau of Land 

Management land, southwest through Zion National Park, and ending at the south end of T. 40 S., R. 12 W., sec. 

7, and adjacent land 1⁄2-mile wide, as a wild river.

‘‘(G) WILLIS CREEK.—The 1.9-mile segment beginning on Bureau of Land Management land in the SWSW 

sec. 27, T. 38 S., R. 11 W., to the junction with LaVerkin Creek in Zion National Park and adjacent land rim-torim, as a wild river.

‘‘(H) BEARTRAP CANYON.—The 2.3-mile segment beginning on Bureau of Management land in the 

SWNW sec. 3, T. 39 S., R. 11 W., to the junction with LaVerkin Creek and the segment from the headwaters north 

of Long Point to the junction with LaVerkin Creek and adjacent land rim-to-rim, as a wild river.

‘‘(I) HOP VALLEY CREEK.—The 3.3-mile segment beginning at the southern boundary of T. 39 S., R. 11 W., 

sec. 20, to the junction with LaVerkin Creek and adjacent land 1⁄2-mile wide, as a wild river.

‘‘(J) CURRENT CREEK.—The 1.4-mile segment from the head of Current Creek to the junction with 

LaVerkin Creek and adjacent land rim-to-rim, as a wild river.

‘‘(K) CANE CREEK.—The 0.6-mile segment from the head of Smith Creek to the junction with LaVerkin 

Creek and adjacent land 1⁄2-mile wide, as a wild river.

‘‘(L) SMITH CREEK.—The 1.3-mile segment from the head of Smith Creek to the junction with LaVerkin 

Creek and adjacent land 1⁄2-mile wide, as a wild river.

‘‘(M) NORTH CREEK LEFT AND RIGHT FORKS.—The segment of the Left Fork from the junction with 

Wildcat Canyon to the junction with Right Fork, from the head of Right Fork to the junction with Left Fork, and 

from the junction of the Left and Right Forks southwest to Zion National Park boundary and adjacent land rimto-rim, as a wild river.

‘‘(N) WILDCAT CANYON (BLUE CREEK).—The segment of Blue Creek from the Zion National Park 

boundary to the junction with the Right Fork of North Creek and adjacent land rim-to-rim, as a wild river.

‘‘(O) LITTLE CREEK.—The segment beginning at the head of Little Creek to the junction with the Left Fork 

of North Creek and adjacent land 1⁄2-mile wide, as a wildriver.

‘‘(P) RUSSELL GULCH.—The segment from the head of Russell Gulch to the junction with the Left Fork of 

North Creek and adjacent land rim-to-rim, as a wild river.

‘‘(Q) GRAPEVINE WASH.—The 2.6-mile segment from the Lower Kolob Plateau to the junction with the 

Left Fork of North Creek and adjacent land rim-to-rim, as a scenic river.

‘‘(R) PINE SPRING WASH.—The 4.6-mile segment to the junction with the left fork of North Creek and 

adjacent land 1⁄2-mile, as a scenic river.

‘‘(S) WOLF SPRINGS WASH.—The 1.4-mile segment from the head of Wolf Springs Wash to the junction 

with Pine Spring Wash and adjacent land 1⁄2-mile wide, as a scenic river.

‘‘(T) KOLOB CREEK.—The 5.9-mile segment of Kolob Creek beginning in T. 39 S., R. 10 W., sec. 30, through 

Bureau of Land Management land and Zion National Park land to the junction with the North Fork of the Virgin 

River and adjacent land rim-to-rim, as a wild river.

‘‘(U) OAK CREEK.—The 1-mile stretch of Oak Creek beginning in T. 39 S., R. 10 W., sec. 19, to the junction 

with Kolob Creek and adjacent land rim-to-rim, as a wild river.

‘‘(V) GOOSE CREEK.—The 4.6-mile segment of Goose Creek from the head of Goose Creek to the junction 

with the North Fork of the Virgin River and adjacent land rim-to-rim, as a wild river.

‘‘(W) DEEP CREEK.—The 5.3-mile segment of Deep Creek beginning on Bureau of Land Management land 

at the northern boundary of T. 39 S., R. 10 W., sec. 23, south to the junction of the North Fork of the Virgin River 

and adjacent land rim-to-rim, as a wild river.

‘‘(X) NORTH FORK OF THE VIRGIN RIVER.—The 10.8-mile segment of the North Fork of the Virgin 

River beginning on Bureau of Land Management land at the eastern border of T. 39 S., R. 10 W., sec. 35, to 

Temple of Sinawava and adjacent land rim-to-rim, as a wild river.

(A) IN GENERAL.—Except in cases in which motorized vehicles are needed for administrative purposes, or 

to respond to an emergency, the use of motorized vehicles in the National Conservation Area shall be permitted 

only on roads designated by the management plan for the use of motorized vehicles.

(B) ADDITIONAL REQUIREMENT RELATING TO CERTAIN AREAS LOCATED IN THE NATIONAL 

CONSERVATION AREA.— In addition to the requirement described in subparagraph (A), with respect to the 

areas designated on the Beaver Dam Wash National Conservation Area Map as ‘‘Designated Road Areas’’, motorized vehicles shall be permitted only on the roads identified on such map.

(4) GRAZING.—The grazing of livestock in the National Conservation Area, where established before the date of 

enactment of this Act, shall be permitted to continue—

(A) subject to—

 (i) such reasonable regulations, policies, and practices as the Secretary considers necessary; and

 (ii) applicable law (including regulations); and

(B) in a manner consistent with the purpose described in subsection (a).

(5) WILDLAND FIRE OPERATIONS.—Nothing in this section prohibits the Secretary, in cooperation with 

other Federal, State, and local agencies, as appropriate, from conducting wildland fire operations in the National 

Conservation Area, consistent with the purposes of this section.

(f) INCORPORATION OF ACQUIRED LAND AND INTERESTS.—Any land or interest in land that is located in 

the National Conservation Area that is acquired by the United States shall—

(1) become part of the National Conservation Area; and

(2) be managed in accordance with—

(A) the Federal Land Policy and Management Act of 1976 (43 U.S.C. 1701 et seq.);

(B) this section; and

(C) any other applicable law (including regulations).

(g) WITHDRAWAL.—

(1) IN GENERAL.—Subject to valid existing rights, all Federal land located in the National Conservation Area is 

withdrawn from—

(A) all forms of entry, appropriation, and disposal under the public land laws;

(B) location, entry, and patenting under the mining laws; and

(C) operation of the mineral leasing, mineral materials, and geothermal leasing laws.

(2) ADDITIONAL LAND.—If the Secretary acquires additional land that is located in the National Conservation 

Area after the date of enactment of this Act, the land is withdrawn from operation of the laws referred to in paragraph (1) on the date of acquisition of the land.

SEC. 1976. ZION NATIONAL PARK WILD AND SCENIC RIVER DESIGNATION.

(a) DESIGNATION.—Section 3(a) of the Wild and Scenic Rivers Act (16 U.S.C. 1274(a)) (as amended by section 

1852) is amended by adding at the end the following:

‘‘(204) ZION NATIONAL PARK, UTAH.—The approximately 165.5 miles of segments of the Virgin River and tributaries of the Virgin River across Federal land within and adjacent to Zion National Park, as generally depicted on the 

map entitled ‘Wild and Scenic River Segments Zion National Park and Bureau of Land Management’ and dated April 

2008, to be administered by the Secretary of the Interior in the following classifications:

‘‘(A) TAYLOR CREEK.—The 4.5-mile segment from the junction of the north, middle, and south forks of 

Taylor Creek, west to the park boundary and adjacent land rim-to-rim, as a scenic river.

‘‘(B) NORTH FORK OF TAYLOR CREEK.—The segment from the head of North Fork to the junction with 

Taylor Creek and adjacent land rim-to-rim, as a wild river.

‘‘(C) MIDDLE FORK OF TAYLOR CREEK.—The segment from the head of Middle Fork on Bureau of Land 

Management land to the junction with Taylor Creek and adjacent land rim-to-rim, as a wild river.

‘‘(D) SOUTH FORK OF TAYLOR CREEK.—The segment from the head of South Fork to the junction with 

Taylor Creek and adjacent land rim-to-rim, as a wild river.
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APPENDIX A APPENDIX A

(3) TRAIL.—The term ‘‘trail’’ means the High Desert Off- Highway Vehicle Trail designated under subsection 

(c)(1)(A).

(4) TRAVEL MANAGEMENT PLAN.—The term ‘‘travel management plan’’ means the comprehensive travel and 

transportation management plan developed under subsection (b)(1).

(b) COMPREHENSIVE TRAVEL AND TRANSPORTATION MANAGEMENT PLAN.—

(1) IN GENERAL.—Not later than 3 years after the date of enactment of this Act, in accordance with the Federal 

Land Policy and Management Act of 1976 (43 U.S.C. 1701 et seq.) and other applicable laws (including regulations), the Secretary, in consultation with appropriate Federal agencies and State, tribal, and local governmental 

entities, and after an opportunity for public comment, shall develop a comprehensive travel management plan for 

the land managed by the Bureau of Land Management in the County—

(A) to provide to the public a clearly marked network of roads and trails with signs and maps to promote—

 (i) public safety and awareness; and

 (ii) enhanced recreation and general access opportunities;

(B) to help reduce in the County growing conflicts arising from interactions between—

 (i) motorized recreation; and

 (ii) the important resource values of public land;

(C) to promote citizen-based opportunities for—

 (i) the monitoring and stewardship of the trail; and

 (ii) trail system management; and

(D) to support law enforcement officials in promoting—

 (i) compliance with off-highway vehicle laws (including regulations); and

 (ii) effective deterrents of abuses of public land.

(2) SCOPE; CONTENTS.—In developing the travel management plan, the Secretary shall—

(A) in consultation with appropriate Federal agencies, State, tribal, and local governmental entities (including 

the County and St. George City, Utah), and the public, identify 1 or more alternatives for a northern transportation route in the County;

(B) ensure that the travel management plan contains a map that depicts the trail; and

(C) designate a system of areas, roads, and trails for mechanical and motorized use.

(c) DESIGNATION OF TRAIL.—

(1) DESIGNATION.—

(A) IN GENERAL.—As a component of the travel management plan, and in accordance with subparagraph 

(B), the Secretary, in coordination with the Secretary of Agriculture, and after an opportunity for public comment, shall designate a trail (which may include a system of trails)—

 (i) for use by off-highway vehicles; and

 (ii) to be known as the ‘‘High Desert Off-Highway Vehicle Trail’’.

(B) REQUIREMENTS.—In designating the trail, the Secretary shall only include trails that are—

 (i) as of the date of enactment of this Act, authorized for use by off-highway vehicles; and

 (ii) located on land that is managed by the Bureau of Land Management in the County.

(C) NATIONAL FOREST LAND.—The Secretary of Agriculture, in coordination with the Secretary and in 

accordance with applicable law, may designate a portion of the trail on National Forest System land within the 

County.

(D) MAP.—A map that depicts the trail shall be on file and available for public inspection in the appropriate 

offices of—

 (i) the Bureau of Land Management; and

 (ii) the Forest Service.

(2) MANAGEMENT.—

(A) IN GENERAL.—The Secretary concerned shall manage the trail—

 (i) in accordance with applicable laws (including regulations);

‘‘(Y) NORTH FORK OF THE VIRGIN RIVER.—The 8-mile segment of the North Fork of the Virgin River 

from Temple of Sinawava south to the Zion National Park boundary and adjacent land 1⁄2-mile wide, as a recreational river.

‘‘(Z) IMLAY CANYON.—The segment from the head of Imlay Creek to the junction with the North Fork of 

the Virgin River and adjacent land rim-to-rim, as a wild river.

‘‘(AA) ORDERVILLE CANYON.—The segment from the eastern boundary of Zion National Park to the 

junction with the North Fork of the Virgin River and adjacent land rim-to-rim, as a wild river.

‘‘(BB) MYSTERY CANYON.—The segment from the head of Mystery Canyon to the junction with the North 

Fork of the Virgin River and adjacent land rim-to-rim, as a wild river.

‘‘(CC) ECHO CANYON.—The segment from the eastern boundary of Zion National Park to the junction 

with the North Fork of the Virgin River and adjacent land rim-to-rim, as a wild river.

‘‘(DD) BEHUNIN CANYON.—The segment from the head of Behunin Canyon to the junction with the 

North Fork of the Virgin River and adjacent land rim-to-rim, as a wild river.

‘‘(EE) HEAPS CANYON.—The segment from the head of Heaps Canyon to the junction with the North Fork 

of the Virgin River and adjacent land rim-to-rim, as a wild river.

‘‘(FF) BIRCH CREEK.—The segment from the head of Birch Creek to the junction with the North Fork of 

the Virgin River and adjacent land 1⁄2-mile wide, as a wild river.

‘‘(GG) OAK CREEK.—The segment of Oak Creek from the head of Oak Creek to where the forks join and 

adjacent land 1⁄2-mile wide, as a wild river.

‘‘(HH) OAK CREEK.—The 1-mile segment of Oak Creek from the point at which the 2 forks of Oak Creek 

join to the junction with the North Fork of the Virgin River and adjacent land 1⁄2-mile wide, as a recreational 

river.

‘‘(II) CLEAR CREEK.—The 6.4-mile segment of Clear Creek from the eastern boundary of Zion National 

Park to the junction with Pine Creek and adjacent land rim-to-rim, as a recreational river.

‘‘(JJ) PINE CREEK .—The 2-mile segment of Pine Creek from the head of Pine Creek to the junction with 

Clear Creek and adjacent land rim-to-rim, as a wild river.

‘‘(KK) PINE CREEK.—The 3-mile segment of Pine Creek from the junction with Clear Creek to the junction 

with the North Fork of the Virgin River and adjacent land rim-to-rim, as a recreational river.

‘‘(LL) EAST FORK OF THE VIRGIN RIVER.—The 8-mile segment of the East Fork of the Virgin River 

from the eastern boundary of Zion National Park through Parunuweap Canyon to the western boundary of Zion 

National Park and adjacent land 1⁄2-mile wide, as a wild river.

‘‘(MM) SHUNES CREEK.—The 3-mile segment of Shunes Creek from the dry waterfall on land administered by the Bureau of Land Management through Zion National Park to the western boundary of Zion National 

Park and adjacent land 1⁄2-mile wide as a wild river.’’.

(b) INCORPORATION OF ACQUIRED NON-FEDERAL LAND.—If the United States acquires any non-Federal 

land within or adjacent to Zion National Park that includes a river segment that is contiguous to a river segment of 

the Virgin River designated as a wild, scenic, or recreational river by paragraph (204) of section 3(a) of the Wild and 

Scenic Rivers Act (16 U.S.C. 1274(a)) (as added by subsection (a)), the acquired river segment shall be incorporated 

in, and be administered as part of, the applicable wild, scenic, or recreational river.

(c) SAVINGS CLAUSE.—The amendment made by subsection (a) does not affect the agreement among the United 

States, the State, the Washington County Water Conservancy District, and the Kane County Water Conservancy 

District entitled ‘‘Zion National Park Water Rights Settlement Agreement’’ and dated December 4, 1996.

SEC. 1977. WASHINGTON COUNTY COMPREHENSIVE TRAVEL AND TRANSPORTATION 

MANAGEMENT PLAN.

(a) DEFINITIONS.—In this section:

(1) SECRETARY.—The term ‘‘Secretary’’ means the Secretary of the Interior.

(2) SECRETARY CONCERNED.—The term ‘‘Secretary concerned’’ means—

(A) with respect to land managed by the Bureau of Land Management, the Secretary; and

(B) with respect to land managed by the Forest Service, the Secretary of Agriculture.
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APPENDIX A APPENDIX A

(A) IN GENERAL.—Amounts in the account shall be available to the Secretary, without further appropriation, to purchase from willing sellers lands or interests in land within the wilderness areas and National 

Conservation Areas established by this subtitle.

(B) APPLICABILITY.—Any purchase of land or interest in land under subparagraph (A) shall be in accordance with applicable law.

SEC. 1979. MANAGEMENT OF PRIORITY BIOLOGICAL AREAS.

(a) IN GENERAL.—In accordance with applicable Federal laws (including regulations), the Secretary of the Interior 

shall—

(1) identify areas located in the County where biological conservation is a priority; and

(2) undertake activities to conserve and restore plant and animal species and natural communities within such 

areas.

(b) GRANTS; COOPERATIVE AGREEMENTS.—In carrying out subsection (a), the Secretary of the Interior may 

make grants to, or enter into cooperative agreements with, State, tribal, and local governmental entities and private 

entities to conduct research, develop scientific analyses, and carry out any other initiative relating to the restoration or 

conservation of the areas.

SEC. 1980. PUBLIC PURPOSE CONVEYANCES.

(a) IN GENERAL.—Notwithstanding the land use planning requirements of sections 202 and 203 of the Federal Land 

Policy and Management Act of 1976 (43 U.S.C. 1712, 1713), upon the request of the appropriate local governmental 

entity, as described below, the Secretary shall convey the following parcels of public land without consideration, subject to the provisions of this section:

(1) TEMPLE QUARRY.—The approximately 122-acre parcel known as ‘‘Temple Quarry’’ as generally depicted 

on the Washington County Growth and Conservation Act Map as ‘‘Parcel B’’, to the City of St. George, Utah, for 

open space and public recreation purposes.

(2) HURRICANE CITY SPORTS PARK.—The approximately 41-acre parcel as generally depicted on the 

Washington County Growth and Conservation Act Map as ‘‘Parcel C’’, to the City of Hurricane, Utah, for public 

recreation purposes and public administrative offices.

(3) WASHINGTON COUNTY SCHOOL DISTRICT.—The approximately 70-acre parcel as generally depicted 

on the Washington County Growth and Conservation Act Map as ‘‘Parcel D’’, to the Washington County Public 

School District for use for public school and related educational and administrative purposes.

(4) WASHINGTON COUNTY JAIL.—The approximately 80-acre parcel as generally depicted on the Washington 

County Growth and Conservation Act Map as ‘‘Parcel E’’, to Washington County, Utah, for expansion of the 

Purgatory Correctional Facility.

(5) HURRICANE EQUESTRIAN PARK.—The approximately 40-acre parcel as generally depicted on the 

Washington County Growth and Conservation Act Map as ‘‘Parcel F’’, to the City of Hurricane, Utah, for use as a 

public equestrian park.

(b) MAP AND LEGAL DESCRIPTIONS.—As soon as practicable after the date of enactment of this Act, the 

Secretary shall finalize legal descriptions of the parcels to be conveyed under this section. The Secretary may correct any minor errors in the map referenced in subsection (a) or in the applicable legal descriptions. The map and 

legal descriptions shall be on file and available for public inspection in the appropriate offices of the Bureau of Land 

Management.

(c) REVERSION.—

(1) IN GENERAL.—If any parcel conveyed under this section ceases to be used for the public purpose for which 

the parcel was conveyed, as described in subsection (a), the land shall, at the discretion of the Secretary based on 

his determination of the best interests of the United States, revert to the United States.

(2) RESPONSIBILITY OF LOCAL GOVERNMENTAL ENTITY.—If the Secretary determines pursuant to paragraph (1) that the land should revert to the United States, and if the Secretary determines that the land is contaminated with hazardous waste, the local governmental entity to which the land was conveyed shall be responsible 

for remediation of the contamination.

 (ii) to ensure the safety of citizens who use the trail; and

 (iii) in a manner by which to minimize any damage to sensitive habitat or cultural resources.

(B) MONITORING; EVALUATION.—To minimize the impacts of the use of the trail on environmental and 

cultural resources, the Secretary concerned shall—

 (i) annually assess the effects of the use of off-highway vehicles on—

 (I) the trail; and

 (II) land located in proximity to the trail; and

 (ii) in consultation with the Utah Department of Natural Resources, annually assess the effects of the 

use of the trail on wildlife and wildlife habitat.

(C) CLOSURE.—The Secretary concerned, in consultation with the State and the County, and subject to 

subparagraph (D), may temporarily close or permanently reroute a portion of the trail if the Secretary concerned 

determines that—

 (i) the trail is having an adverse impact on—

 (I) wildlife habitats;

 (II) natural resources;

 (III) cultural resources; or

 (IV) traditional uses;

 (ii) the trail threatens public safety; or

 (iii) closure of the trail is necessary—

 (I) to repair damage to the trail; or

 (II) to repair resource damage.

(D) REROUTING.—Any portion of the trail that is temporarily closed by the Secretary concerned under 

subparagraph (C) may be permanently rerouted along any road or trail—

 (i) that is—

 (I) in existence as of the date of the closure of the portion of the trail;

 (II) located on public land; and

 (III) open to motorized use; and

 (ii) if the Secretary concerned determines that rerouting the portion of the trail would not signifi 

cantly increase or decrease the length of the trail.

(E) NOTICE OF AVAILABLE ROUTES.—The Secretary, in coordination with the Secretary of Agriculture, 

shall ensure that visitors to the trail have access to adequate notice relating to the availability of trail routes 

through—

 (i) the placement of appropriate signage along the trail; and

 (ii) the distribution of maps, safety education materials, and other information that the Secretary 

concerned determines to be appropriate.

(3) EFFECT.—Nothing in this section affects the ownership, management, or other rights relating to any nonFederal land (including any interest in any non-Federal land).

SEC. 1978. LAND DISPOSAL AND ACQUISITION.

(a) IN GENERAL.—Consistent with applicable law, the Secretary of the Interior may sell public land located within 

Washington County, Utah, that, as of July 25, 2000, has been identified for disposal in appropriate resource management plans.

(b) USE OF PROCEEDS.—

(1) IN GENERAL.—Notwithstanding any other provision of law (other than a law that specifically provides for 

a portion of the proceeds of a land sale to be distributed to any trust fund of the State), proceeds from the sale 

of public land under subsection (a) shall be deposited in a separate account in the Treasury to be known as the 

‘‘Washington County, Utah Land Acquisition Account’’.

(2) AVAILABILITY.—
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APPENDIX A APPENDIX A

(B) LEGAL DESCRIPTION OF PARCEL A.—

 (i) IN GENERAL.—Upon the completion of the survey under subparagraph (A), the Secretary shall 

publish in the Federal Register a legal description of—

 (I) the boundary line of Parcel A; and

 (II) Parcel A.

 (ii) TECHNICAL CORRECTIONS.—Before the date of publication of the legal descriptions un 

der clause (i), the Secretary may make minor corrections to correct technical and clerical errors in the legal 

descriptions.

 (iii) EFFECT.—Effective beginning on the date of publication of the legal descriptions under clause 

(i), the legal descriptions shall be considered to be the official legal descriptions of Parcel A.

(3) EFFECT.—Nothing in this section—

(A) affects any valid right in existence on the date of enactment of this Act;

(B) enlarges, impairs, or otherwise affects any right or claim of the Tribe to any land or interest in land other 

than to Parcel A that is—

 (i) based on an aboriginal or Indian title; and

 (ii) in existence as of the date of enactment of this Act; or

(C) constitutes an express or implied reservation of water or a water right with respect to Parcel A.

(4) LAND TO BE MADE A PART OF THE RESERVATION.—Land taken into trust pursuant to this section 

shall be considered to be part of the reservation of the Tribe.

SEC. 1983. AUTHORIZATION OF APPROPRIATIONS.

There are authorized to be appropriated such sums as are necessary to carry out this subtitle.

SEC. 1981. CONVEYANCE OF DIXIE NATIONAL FOREST LAND.

(a) DEFINITIONS.—In this section:

(1) COVERED FEDERAL LAND.—The term ‘‘covered Federal land’’ means the approximately 66.07 acres of land 

in the Dixie National Forest in the State, as depicted on the map.

(2) LANDOWNER.—The term ‘‘landowner’’ means Kirk R. Harrison, who owns land in Pinto Valley, Utah.

(3) MAP.—The term ‘‘map’’ means the map entitled ‘‘Conveyance of Dixie National Forest Land’’ and dated 

December 18, 2008.

(4) SECRETARY.—The term ‘‘Secretary’’ means the Secretary of Agriculture.

(b) CONVEYANCE.—

(1) IN GENERAL.—The Secretary may convey to the landowner all right, title, and interest of the United States 

in and to any of the covered Federal land (including any improvements or appurtenances to the covered Federal 

land) by sale or exchange.

(2) LEGAL DESCRIPTION.—The exact acreage and legal description of the covered Federal land to be conveyed 

under paragraph (1) shall be determined by surveys satisfactory to the Secretary.

(3) CONSIDERATION.—

(A) IN GENERAL.—As consideration for any conveyance by sale under paragraph (1), the landowner shall 

pay to the Secretary an amount equal to the fair market value of any Federal land conveyed, as determined under 

subparagraph (B).

(B) APPRAISAL.—The fair market value of any Federal land that is conveyed under paragraph (1) shall be 

determined by an appraisal acceptable to the Secretary that is performed in accordance with—

 (i) the Uniform Appraisal Standards for Federal Land Acquisitions;

 (ii) the Uniform Standards of Professional Appraisal Practice; and (iii) any other applicable law (in 

cluding regulations).

(4) DISPOSITION AND USE OF PROCEEDS.—

(A) DISPOSITION OF PROCEEDS.—The Secretary shall deposit the proceeds of any sale of land under 

paragraph (1) in the fund established under Public Law 90–171 (commonly known as the ‘‘Sisk Act’’) (16 U.S.C. 

484a).

(B) USE OF PROCEEDS.—Amounts deposited under subparagraph (A) shall be available to the Secretary, 

without further appropriation and until expended, for the acquisition of real property or interests in real property 

for inclusion in the Dixie National Forest in the State.

(5) ADDITIONAL TERMS AND CONDITIONS.—The Secretary may require any additional terms and conditions for any conveyance under paragraph (1) that the Secretary determines to be appropriate to protect the 

interests of the United States.

SEC. 1982. TRANSFER OF LAND INTO TRUST FOR SHIVWITS BAND OF PAIUTE INDIANS.

(a) DEFINITIONS.—In this section:

(1) PARCEL A.—The term ‘‘Parcel A’’ means the parcel that consists of approximately 640 acres of land that is—

(A) managed by the Bureau of Land Management;

(B) located in Washington County, Utah; and

(C) depicted on the map entitled ‘‘Washington County Growth and Conservation Act Map’’.

(2) SECRETARY.—The term ‘‘Secretary’’ means the Secretary of the Interior.

(3) TRIBE.—The term ‘‘Tribe’’ means the Shivwits Band of Paiute Indians of the State of Utah.

(b) PARCEL TO BE HELD IN TRUST.—

(1) IN GENERAL.—At the request of the Tribe, the Secretary shall take into trust for the benefit of the Tribe all 

right, title, and interest of the United States in and to Parcel A.

(2) SURVEY; LEGAL DESCRIPTION.—

(A) SURVEY.—Not later than 180 days after the date of enactment of this Act, the Secretary, acting through 

the Director of the Bureau of Land Management, shall complete a survey of Parcel A to establish the boundary of 

Parcel A.
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APPENDIX B

APPENDIX B

SHPO Consultation
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APPENDIX C

APPENDIX C

Section 7 Consultation and Biological Opinion
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APPENDIX D

APPENDIX D

Best Management Practices for Management Actions

This appendix provides a list of common best management practices, standard operating procedures, and condi-

tions of approval that are routinely applied to projects and management activities on public lands. Best management 

practices are mitigation measures applied on a site-specific basis to avoid, minimize, reduce, rectify, or compensate 

for adverse environmental or social impacts. They are applied to management actions to aid in achieving desired out-

comes for safe, environmentally responsible resource development, by preventing, minimizing, or mitigating adverse 

impacts and reducing conflicts. Best management practices can also be proposed by project applicants for activities 

on public lands (e.g., trail construction). Best management practices not incorporated into the permit application by 

the applicant but may be considered and evaluated through the environmental review process and incorporated into 

the use authorization as conditions of approval or right-of-way stipulations. 

Standard operating procedures (SOPs) are examples of established guidelines that are followed by the BLM in carry-

ing out management activities on public lands. Examples of Conditions of Approval are also included here, as stipula-

tions such as these are often incorporated into use authorization or rights-of-way grants. Additional best management 

practices, SOPs and conditions of approval could be developed to meet resource objectives on the basis of local condi-

tions and resource specific concerns.

1.0 Soils 

1.1 Best Management Practices ▶ Loosen compacted subsoil if needed by ripping to appropriate depth depending on site specific conditions. ▶ Consider hydrologic setting and existing hydrologic features in project design and layout ▶ Minimize soil exposure to erosional forces of wind and water by waiting until just before beginning construction 

to clear vegetation and to disturb the soil. 

▶ Minimize the area of bare soil within the approved work zone as much as possible. ▶ Where applicable, cover entrances of construction sites with gravel to prevent trucks from tracking sediment 

from the construction site onto roads. This sediment will eventually end up clogging roadway drainage systems 

or settling into wetlands. 

▶ Protect and maximize existing native vegetation and natural forest/rangeland floor, thereby reducing impervious 

areas on the site. 

▶ Disperse stormwater to areas of undisturbed forest/rangeland floor wherever possible, rather than concentrating 

it into channels. 

▶ Determine the volume of available topsoil existing on the site. Topsoil shall be spread at a minimum compacted 

depth of 4 inches (or as appropriate determined by soil type). 

▶ Stockpile topsoil so that it meets specifications and does not interfere with work on the site. ▶ Allow sufficient time in scheduling for topsoil to be spread and bonded with the subsoil prior to seeding, sod

-

ding, or planting. 

1.2 Conditions of Approval ▶ When saturated soil conditions exist on or along the right-of-way, construction shall be halted until soil material 

dries out sufficiently for construction to proceed without undue damage and erosion to the right-of-way. 

▶ All construction and travel on the road and right-of-way shall stop until soils dry if ruts greater than three 

inches are formed by vehicles and equipment. 

▶ The grant holder shall provide satisfactory reclamation of all sites disturbed by their activity. This may include 

installation of additional erosion control devices and seeding at the discretion of the BLM Authorized Officer. 

Storm water - BMPs identified in the Storm Water Management Plan shall be in place prior to any earth-dis-

turbing activity. Additional BMPs will be installed as determined necessary by the BLM Authorized Officer. All 

temporary BMPs shall be removed once site stabilization and reclamation efforts have been deemed successful by 

the BLM Authorized Officer. ▶ Topsoil shall be conserved during excavation and reused as cover on disturbed areas to facilitate regrowth of veg

-

etation. Topsoil shall only be used for reclamation and shall not be used to bed or pad the pipe during backfilling. 

APPENDIX C
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deposition of sediment, and prevent sediment from leaving the site. In addition, straining or filtration mechanisms may also contribute to sediment removal from runoff. 

▶ Avoid grading sections of road that do not need maintenance, as this elevates sediment production from the 

newly disturbed surface. Raise the blade where grading is not needed. 

▶ Remove berms from the outside edge or roads where runoff is channeled. 

▶ Leave abandoned roads in a condition that provides adequate drainage without further maintenance. Close 

these roads to traffic, reseed and/or scarify, and, if necessary, re-contour and provide cross ditches or drain dips. 

▶ Cross stream channels at right angles if at all possible. 

▶ Concentrate right-of-way actions adjacent to stream courses as far landward as safety allows. 

▶ Remove all temporary stream crossings immediately after use and cross-ditch the ends of skid trails/two tracks/

right-of-ways to mitigate erosion from disturbed areas. 

▶ Place all excess material removed by maintenance operations in safe disposal sites and stabilize these sites to 

prevent erosion. Avoid locations where erosion will carry materials into a stream. 

▶ Evaluate potential effects of stream crossings/channel work on existing structures such as culverts, bridges, 

buried cables, pipelines, and irrigation flumes prior to construction activities to identify and mitigate foreseen 

impacts. 

▶ When designing protective/mitigation measures, consider the changes that may occur in the watershed hydrology and sedimentation over the design life of the measure. Moreover, design and construct roads that are 

self-maintaining and consider using road surfacing, such as gravel. Design and construct stream crossings that 

handle the 100-year flood, and consider culvert and bridge designs that facilitate aquatic life passage. 

▶ Exclude livestock and vehicles from spring sources and riparian areas in which on site evaluation and/or monitoring data indicate degrading conditions. 

▶ Exclude livestock, wildlife, and vehicles from developed spring sources. 

▶ Stabilize and maintain grades in natural or artificial channels to prevent the formation and advancement of gullies. 

▶ Utilize erosion control structures including but not limited to head-cut lay-backs, zuni-bowls, check dams, and 

sediment basins to retain soils in highly erodible areas and protect water quality. 

▶ Use vegetation or structures to stabilize and protect banks of streams, lakes, or excavated channels against scour 

and erosion. 

▶ Manage and manipulate invasive stands of brush and weeds on forest, range, pasture land by mechanical, chemical, or biological means or by prescribed burning to improve watershed function and condition. 

▶ Reduce soil erosion and sediment delivery to surface waters by protecting, maintaining, and reestablishing desirable vegetative communities in areas of highly erodible or critically eroding soils. 

▶ Utilize mechanical treatment methods to roughen and aerate soils in degraded sites identified for reclamation. 

▶ Avoid alteration of natural hydrologic function and condition in source areas for springs, seeps, and fens. 

Relocate surface-disturbing activities away from these sensitive areas as site conditions warrant. 

▶ Restore modified or damaged streams as close as practicable to natural conditions using bioengineering techniques to protect banks, and to reestablish riparian vegetation. 

▶ Maintain to the greatest extent practicable natural flow rates and chemical and physical properties of surface and 

groundwater during work within stream channels, floodplains, and/or riparian areas. 

▶ Low water crossings will be constructed at original streambed elevation in a manner that prevents any blockage 

or restriction of the existing channel. Material removed will be stockpiled for use in reclamation of the crossings. 

▶ The operator shall institute measures such as surfacing, watering, and use of non-saline dust suppressants on all 

roads authorized in this project to minimize impacts from fugitive dust emissions. The use of chemical dust suppressants on public surface will require prior approval from the BLM Authorized Officer. 

▶ Livestock management practices, such as animal health, feeding, and salting, shall be done in a manner to protect water quality. 

▶ Minimize crossing of streams (intermittent and perennial) and wetlands with vehicles and heavy machinery. 

▶ Maintain appropriate vegetative/riparian buffers around water bodies to slow runoff and trap sediments and 

protect water quality. 

APPENDIX D

▶ The operator shall provide timely year-round road maintenance and cleanup on roads. A regular schedule for 

maintenance shall include, but not be limited to, crown or slope reconstruction, blading, ditch, culvert and 

catchment cleaning, road surface replacement, and dust abatement. When rutting within the traveled way 

becomes greater than three inches, blading, and/or gravelling shall be conducted as approved by the BLM 

Authorized Officer.

▶ The grantee shall construct water bars, kicker dikes, ditch breaks, pocking, or other erosion control techniques, 

on all of the right-of-way, as directed by the BLM Authorized Officer. The water bars or dikes shall be constructed across the full width of the disturbed area.

▶ Disturbed portions of the right-of-way surface shall be left rough and not smoothed to facilitate seed germination and seedling survival.

▶ Topsoil segregation will not occur when soils are saturated or frozen unless special authorization is granted by 

the BLM Authorized Officer.

▶ Soil or loam that is stored or stockpiled during construction shall be handled in a way to preserve soil quantity 

and natural soil properties and productivity.

▶ The face of cut/fill slopes will be stabilized and the face of all graded slopes shall be protected from surface runoff until they are stabilized.

▶ The face of the slope shall not be subject to any concentrated flows of surface water such as from natural drainage ways, graded swales, and downspouts.

▶ Subsurface drainage shall be provided where necessary to intercept seepage that would otherwise adversely affect slope stability or create excessively wet site conditions.

▶ Slopes shall not be created so close to property lines as to endanger adjoining properties without adequate protection against sedimentation, erosion, slippage, settlement, subsidence or other related damages.

▶ All disturbed areas shall be stabilized structurally or with vegetation in compliance with the appropriate BMPs. 

▶ All graded or disturbed areas including slopes shall be protected during clearing and construction in accordance 

with the approved erosion and sediment control plan until they are adequately stabilized.

▶ All erosion and sediment control practices and measures shall be constructed, applied, and maintained in accordance with the approved erosion and sediment control plan.

▶ Frozen material or soft, mucky, or highly compressible materials shall not be incorporated into fill slopes or 

structural fills.

▶ Any sign of rill or gully erosion shall be immediately investigated and repaired as needed or requested by the 

authorizing officer.

▶ Fall and winter erosion control measures must be upgraded and refined to protect the site from spring runoff 

and snowmelt.

▶ Topsoil stripping shall be confined to the immediate construction areas. A 4 to 6-inch stripping depth is common, but depth may vary depending on the particular soil. All perimeter dikes, basins, and other sediment 

controls shall be in place prior to stripping.

▶ After the areas to be topsoiled have been brought to grade, and immediately prior to spreading the topsoil, the 

subgrade shall be loosened by disking or scarifying to a depth of at least two inches (or as site specific analysis 

determines appropriate for soil type) to ensure bonding with subsoil.

▶ Topsoil shall not be placed while in a frozen or muddy condition, when the subgrade is excessively wet, or in a 

condition that may otherwise be detrimental to proper grading or proposed sodding or seeding.

2.0 Water Resources 

2.1 Best Management Practices 

▶ Avoid using roads during wet periods if such use will likely damage the road drainage features. 

▶ Grade road surfaces only as often as necessary to maintain a stable running surface and to retain the original 

surface drainage. 

▶ Avoid cutting the toe of cut slopes when grading roads or pulling ditches. 

▶ Provide for erosion-resistant surface drainage by adding necessary drainage facilities and armoring prior to 

fall rain or snow. When erosion is anticipated, sediment barriers shall be constructed to slow runoff, allow 

APPENDIX D
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APPENDIX D APPENDIX D

▶ Close and rehabilitate roads quickly once they are no longer needed. 

▶ Close selected routes to protect special status species and significant plant communities 

▶ Build roads to the appropriate standard, no higher than necessary for use and safety, and utilize primitive or 

two-track roads rather than newly constructed roads where feasible. 

▶ Pipelines (and electrical powerlines when possible) shall be placed within road corridors to minimize disturbance. 

▶ Minimize disturbance to soil and native vegetation as much as possible. 

▶ Stockpile topsoil for use in final reclamation. Topsoil shall be stored separately from other fill materials. 

▶ When timely natural regeneration of the native plant community is not likely to occur, carefully select species 

that will not compete with or exclude botanical resources for re-vegetation efforts. Bare sites shall be seeded as 

soon as appropriate to prevent establishment of undesirable plant species. 

▶ Ensure that seed used for re-vegetation as well as straw and hay bales used for erosion control are certified free 

of noxious weeds. 

▶ Monitor re-vegetation sites to ensure successful establishment of desired species. 

▶ Monitor the long-term success of re-vegetation efforts to ensure successful establishment of desired species and 

detect any noxious weed infestations. If re-vegetation is unsuccessful, continue efforts to establish desired species in disturbed sites. 

▶ In desert shrub/saltbush communities with biological soil crusts, require reclamation that includes but is not 

limited to: broadcasting bacterial inoculants, planting native grass, forbs, and shrubs seedlings, and 

exclosure fences. 

3.3 References

BLM (US Department of the Interior, Bureau of Land Management). 2007. Final Vegetation Treatment Using 

Herbicides on Bureau of Land Management Lands in 17 Western States, Programmatic Environmental Impact 

Statement. BLM, Nevada State Office, Reno, NV. June 2007. 

4.0 Vegetation: Riparian Habitat and Wetlands 

4.1 Standard Operating Procedures 

▶ Utilize the techniques and methods for vegetation treatments identified in the Record of Decision for Vegetation 

Treatments Using Herbicides on BLM Lands in 17 Western States (BLM 2007). 

4.2 Best Management Practices 

▶ Minimize crossing of streams (intermittent and perennial) and wetlands with vehicles and heavy machinery. 

▶ Locate residue piles (e.g., sawdust, field chipping residue) away from drainages where runoff may wash residue 

into water bodies or wetlands. 

▶ Maintain appropriate vegetative/riparian buffers around water bodies to protect water quality. 

▶ Manage riparian areas to provide adequate shade, sediment control, bank stability, and recruitment of wood into 

stream channels. 

▶ Locate project staging areas for refueling, maintenance equipment, materials, and operating supplies in areas not 

designated as riparian and/or stream bank management zones. 

▶ Determine the best locations and design for roads, the slope of roads, and the approach to stream crossings 

through proper planning. On perennial streams roads, which will be used for longer than one year, the crossings 

will be engineered and approved by the BLM Authorized Officer. 

▶ Do not locate roads or trails parallel to streams. Where roads must cross streams, cross perpendicularly and immediately exit the buffer zone. 

▶ Appropriate improvements, such as culverts, must be placed at stream crossings to keep vehicles/equipment out 

of the stream flow and to prevent direct sedimentation of streams. 

▶ Roads and trails (off-highway vehicle, horse, bicycle, hiking) will avoid wetlands and if avoidance is not possible 

will be designed and constructed in Technical Reference 2E22A68-NPS, Off-highway Vehicle Management. 

▶ Install and maintain cottonwood protection on existing and planted trees where beaver loss threatens survival. 

Work with volunteer groups and user groups to help with the maintenance of installed structures. 

5.0 Noxious and Invasive Weed Prevention 

▶ Time work in wetlands and watercourses to occur during low flow season when conditions are driest. High 

flows occur during late summer early fall as a result of high intensity convective thunderstorm events. 

▶ Temporary BMPs used to filter sediments from water, thereby preventing sedimentation, shall be installed (per 

manufacturers recommendations) before any construction begins and shall subsequently be removed when the 

project is completed. 

▶ Consider rehabilitating closed routes to reduce erosion and restore landscapes. 

2.2 Conditions of Approval 

▶ The holder shall adhere to all requirements under the Clean Water Act. 

▶ Storm water BMPs identified in the applicant's State approved Storm Water Pollution Prevention Plan shall be in 

place prior to any earth-disturbing activity. 

▶ Additional BMPs will be implemented as determined necessary by the BLM Authorized Officer. 

▶ All temporary BMPs shall be removed once site stabilization and reclamation efforts have been deemed successful by the BLM Authorized Officer. 

▶ Culverts and water-bars shall be installed according to 9113 standards and sized for the 10-year storm event 

with no static head and to pass a 25-year event without failing. 

▶ Culverts shall be located on stable and straight stream reaches and along the stream grade. In steeper streams, it 

may be necessary to install natural channel design techniques downstream to minimize erosion. A hydrologist 

shall be consulted. 

▶ Erosion control features shall be maintained through periodic inspection and maintenance, including cleaning dips 

and cross-drains, repairing ditches, marking culvert inlets to aid in location, and clearing debris from culverts. 

▶ If requested by the BLM Authorized Officer, the holder shall furnish and install culverts of the gauge, materials, 

diameter(s), and length(s) as indicated and approved. 

▶ Culverts shall be free of corrosion, dents, or other deleterious conditions. 

▶ Spoil material from clearing, grubbing, and channel excavation shall be disposed of in a manner that will not interfere with the function of the channel and in accordance with all local, state, and Federal laws and regulations. 

▶ To protect water quality, anti-backflow devices shall be utilized while drafting fresh water from streams, springs, 

and wells. 

▶ Actions shall not result in adverse effects on the function of streams or stream corridors. 

▶ Actions shall not impair floodplain function. 

▶ New stream crossings shall be designed to accommodate a 100-year flood. 

▶ Provide for erosion-resistant surface drainage by adding necessary drainage facilities and armoring prior to fall 

rain or snow. When erosion is anticipated, sediment barriers shall be constructed to slow runoff, allow deposition of sediment, and prevent it from leaving the site. In addition, straining or filtration mechanisms may also 

contribute to sediment removal from runoff. 

▶ No operations using chemical processes (except for vegetation management) or other pollutants in their activities will be allowed to occur within 200 feet of any water bodies. 

▶ All stream crossings affecting perennial streams or streams supporting riparian habitat shall be professionally 

engineered (design, construction, and maintenance). 

▶ Water developments (springs, reservoirs, catchments; wells, pipeline and water troughs) will conform to BLM 

Manual H 1741-2. 

▶ Actual work in spring and stream beds will be done by hand where possible. 

▶ The source of all spring developments shall be fenced. 

3. 0 Vegetation: Rangeland 

Guidance may come from various sources. See individual resources. 

3.1 Standard Operating Procedures 

Utilize the techniques and methods for vegetation treatments identified in the Record of Decision for Vegetation 

Treatments Using Herbicides on BLM Lands in 17 Western States (BLM 2007). 

3.2 Best Management Practices 
272 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 273

APPENDIX D

▶ Remove mud, dirt, and plant parts from project equipment before moving it into a project area. Seeds and plant 

parts shall be collected and incinerated when practical, or washed off in an approved containment area. 

▶ Avoid acquiring water for road dust abatement where access to water is through weed-infested sites. 

▶ Treat weeds on travel right-of-ways before seed formation so construction equipment doesn’t spread weed seed. 

▶ Schedule and coordinate blading or pulling of noxious weed-infested roadsides or ditches in consultation with 

the local weed specialist. When it is necessary to blade weed-infested roadsides or ditches, schedule the activity 

when disseminules are least likely to be viable. 

6.2 Project Implementation 

▶ Retain shade to suppress weeds by minimizing the removal of trees and other roadside vegetation during construction, reconstruction, and maintenance; particularly on south aspects. 

▶ Do not blade or pull roadsides and ditches infested with noxious weeds unless doing so is required for public 

safety or protection of the roadway. If the ditch must be pulled, ensure weeds remain on-site. Blade from least 

infested to most infested areas. 

6.3 Post-project 

▶ Clean all equipment (power or high-pressure cleaning) of all mud, dirt, and plant parts before leaving the project site if operating in areas infested with weeds. Seeds and plant parts shall be collected and incinerated 

when possible. 

▶ When seeding has been specified for construction and maintenance activities, seed all disturbed soil (except 

travel route) soon after work is completed. 

▶ Use a certified weed-free seed mix suitable for local environmental conditions that includes fast, early growing 

(preferably native) species to provide quick revegetation. Consider applying weed-free mulch with seeding. 

▶ Periodically inspect roads and right-of-ways for noxious weeds. Train staff to recognize weeds and report locations to the local weed specialist. Follow-up with treatment when needed. 

▶ When reclaiming roads, treat weeds before roads are made impassable. Inspect and follow up on the basis of 

initial inspection and documentation. 

▶ To avoid weed infestations, create and maintain healthy plant communities whenever possible, including utility 

right-of-ways, roadsides, scenic overlooks, trailheads, and campgrounds. 

7.0 Recreation Activities 

▶ Inspect and clean mechanized trail vehicles of weeds and weed seeds. 

▶ Wash boots and socks before hiking into a new area. Inspect and clean packs, equipment, and bike tires. 

▶ Avoid hiking through weed infestations whenever possible. 

▶ Keep dogs and other pets free of weed seeds. 

▶ Avoid picking unidentified "wildflowers" and discarding them along trails or roadways. 

▶ Maintain trailheads, campgrounds, visitor centers, picnic areas, roads leading to trailheads, and other areas of 

concentrated public use in a weed-free condition. Consider high-use recreation areas as high priority sites for 

weed eradication. 

▶ Sign trailheads and access points to educate visitors on noxious and invasive weeds and the consequences of 

their activities. 

▶ Inspect and document travel corridors for weeds and treat as necessary. 

▶ Encourage use of pelletized feed for backcountry horsemen and hunters. Pelletized feed is unlikely to contain 

weed seed. 

8.0 Watershed Management 

▶ Frequently and systematically inspect and document riparian areas and wetlands for noxious weed establishment and spread. Eradicate new infestations immediately since effective tools for riparian-area weed management are limited. 

▶ Promote dense growth of desirable vegetation in riparian areas (where appropriate) to minimize the availability 

of germination sites for weed seeds or propagules transported from upstream or upslope areas. 

▶ Address the risk of invasion by noxious weeds and other invasive species in watershed restoration projects and 

water quality management plans. 

APPENDIX D

This list incorporates many suggested practices under various land uses, and is designed to allow managers to pick 

and choose those practices that are most applicable and feasible for each situation. 

5.1 Site-Disturbing Projects 

5.1.1 Pre-project Planning 

▶ Environmental analyses for projects and maintenance programs shall assess weed risks, analyze high-risk sites 

for potential weed establishment and spread, and identify prevention practices. 

▶ Determine site-specific restoration and monitoring needs and objectives at the onset of project planning. 

▶ Learn to recognize noxious and invasive weeds. 

▶ Inventory all proposed projects for weeds prior to ground-disturbing activities. If weeds are found, they will be 

treated (if the timing is appropriate) or removed (if seeds are present) to limit weed seed production and dispersal. 

▶ Be cognizant of moving equipment and machinery from weed-contaminated areas to non-contaminated areas. 

▶ Locate and use weed-free project staging areas. Avoid or minimize travel through weed infested areas, or restrict 

travel to periods when spread of disseminules is least likely. 

▶ Identify sites where equipment can be cleaned. Remove mud, dirt, and plant parts from project equipment before moving it into a project area. Seeds and plant parts shall be collected and incinerated when possible. 

▶ If certified weed-free gravel pits become available, the use of certified weed-free gravel will be required wherever 

gravel is applied to public lands (e.g., roads). 

▶ Maintain stockpiled, non-infested material in a weed-free condition. Topsoil stockpiles shall be promptly revegetated to maintain soil microbial health and reduce the potential for weeds. 

▶ Use competitive seed mixes when practical. A certified seed laboratory shall test each lot according to the 

Association of Official Seed Analysts standards (which include an all-state noxious weed list) and provide documentation of the seed inspection test. The seed shall contain no noxious, prohibited, or restricted weed seeds 

and shall contain no more than 0.5 percent by weight of other weed seeds. Seed may contain up to 2.0 percent 

of “other crop” seed by weight, including the seed of other agronomic crops and native plants; however, a lower 

percentage of other crop seed is recommended. 

5.1.2 Project Implementation 

▶ Minimize soil disturbance. To the extent practicable, native vegetation shall be retained in and around project 

activity areas, and soil disturbance kept to a minimum. 

▶ If a disturbed area must be left bare for a considerable length of time, cover the area with weed barrier until revegetation is possible. 

5.1.3 Post-project 

▶ Clean all equipment before leaving the project site when operating in weed infested areas. 

▶ Inspect, remove, and properly dispose of weed seed and plant parts found on clothing and equipment. Proper 

disposal means bagging and incinerating seeds and plant parts or washing equipment in an approved containment area. 

▶ Re-vegetate disturbed soil where appropriate to optimize plant establishment for that specific site. Define revegetation objectives for each site. Re-vegetation may include topsoil replacement, planting, seeding, fertilization, and certified weed-free mulching as necessary. Use native material where appropriate and feasible. 

▶ Monitor sites where seed, hay, straw, or mulch has been applied. Eradicate weeds before they form seed. In contracted projects, contract specifications could require that the contractor control weeds for a specified length 

of time. 

▶ Inspect and document all ground-disturbing activities in noxious weed infested areas for at least three growing 

seasons following completion of the project. For ongoing projects, continue to monitor until reasonably certain 

that no weeds are present. Plan for follow-up treatments on the basis of inspection results. 

6.0 Roads and Utilities 

6.1 Pre-project Planning 

▶ Communicate with contractors, local weed districts or weed management areas about projects and best management practices for prevention. 
274 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 275

APPENDIX D APPENDIX D

12.0 Fire 

12.1 Incident Planning 

▶ Increase weed awareness and weed prevention by providing training to new and/or seasonal fire staff on invasive 

weed identification and prevention. 

▶ Ensure that a weed specialist is included on a Fire Incident Management Team when wildfire or prescribed 

operations occur in or near a weed-infested area. Include a discussion of weed prevention operational practices 

in all fire briefings. 

▶ Use operational practices to reduce weed spread (e.g., avoid weed infestations when locating fire lines). 

▶ Identify and periodically inspect potential helispots, staging areas, incident command posts, and base camps and 

maintain a weed-free condition. Encourage network airports and helibases to do the same. 

▶ Develop a burned-area integrated weed management plan, including a monitoring component to detect and 

eradicate new weeds early. 

12.2 Fire-fighting 

▶ Ensure that all equipment (including borrowed or rental equipment) is free of weed seed and propagules before 

entering incident location. 

▶ When possible, use fire suppression tactics that reduce disturbances to soil and vegetation, especially when creating fire lines. 

▶ Use wet or scratch-lines where possible instead of fire breaks made with heavy equipment. 

▶ Given the choice of strategies, avoid ignition and burning in areas at high risk for weed establishment or spread. 

▶ Hose off vehicles on site if they have traveled through infested areas. 

▶ Inspect clothing for weed seeds if foot travel occurred in infested areas. 

▶ When possible, establish incident bases, fire operations staging areas, and aircraft landing zones in areas that 

have been inspected and are verified to be free of invasive weeds. 

▶ Cover weed infested cargo areas and net-loading areas with tarps if weeds exist and can't be removed or avoided. 

▶ Flag off high-risk weed infestations in areas of concentrated activity and show weeds on facility maps. 

▶ If fire operations involve travel or work in weed infested areas, a power wash station shall be staged at or near 

the incident base and helibase. Wash all vehicles and equipment upon arrival from and departure to each incident. This includes fuel trucks and aircraft service vehicles. 

▶ Identify the need for possible fire rehab to prevent or mitigate weed invasion during fire incident and apply for 

funding during the incident. 

12.3 Post-fire Rehabilitation 

▶ Have a weed specialist review burned area rehabilitation reports to ensure proper and effective weed prevention 

and management is addressed. 

▶ Thoroughly clean the undercarriage and tires of vehicles and heavy equipment before entering a burned area. 

▶ Treat weeds in burned areas. Weeds can recover as quickly as 2 weeks following a fire. 

▶ Schedule inventories 1 month and 1 year post-fire to identify and treat infestations. Eradicate or contain newly 

emerging infestations. 

▶ Restrict travel to established roads to avoid compacting soil that could hinder the recovery of desired plants. 

▶ Determine soon after a fire whether re-vegetation is necessary to speed recovery of a native plant community, 

or whether desirable plants in the burned area will recover naturally. Consider the severity of the burn and the 

proportion of weeds to desirable plants on the land before it burned. In general, more severe burns and higher 

pre-burn weed populations increase the necessity of re-vegetation. Use a certified weed-free seed mix. 

▶ Inspect and document weed infestations on fire access roads, equipment cleaning sites, and staging areas. 

Control infestations to prevent spread within burned areas. 

▶ Seed and straw mulch to be used for burn rehabilitation (e.g., for wattles, straw bales, dams) shall be certified 

weed-free. 

▶ Replace soil and vegetation right side up when rehabbing fire line. 

13.0 Fish and Wildlife Management and Special Status Species 

9.0 Grazing Management 

▶ Consider prevention practices and cooperative management of weeds in grazing allotments. Prevention practices may include: 

• Altering season of use 

• Minimizing ground disturbance 

• Exclusion 

• Preventing weed seed transportation 

• Maintaining healthy vegetation 

• Re-vegetation 

• Inspection 

• Education 

• Reporting 

▶ Provide certified weed-free supplemental feed in a designated area so new weed infestations can be detected and 

treated immediately. Pelletized feed is unlikely to contain viable weed seed. 

▶ If livestock may contribute to seed spread in a weed-infested area, schedule livestock use prior to seed-set or 

after seed has fallen. 

▶ If livestock were transported from a weed-infested area, annually inspect and treat entry units for new 

weed infestations. 

▶ Consider closing infested pastures to livestock grazing when grazing will either continue to exacerbate the condition or contribute to weed seed spread. Designate those pastures as unsuitable range until weed infestations 

are controlled. 

▶ Manage the timing, intensity (utilization), duration, and frequency of livestock activities to maintain the competitive ability of desirable plants and retain litter cover. The objective is to prevent grazers from selectively 

removing desirable plant species and leaving undesirable species. 

▶ Exclude livestock grazing on newly seeded areas with fencing to ensure that desired vegetation is well established, until objectives for seeding have been met. 

▶ Reduce ground disturbance, including damage to biological soil crusts. Consider changes in the timing, intensity, duration, or frequency of livestock use; location and changes in salt grounds; restoration or protection of 

watering sites and other areas of concentrated livestock use. 

▶ Inspect areas of concentrated livestock use for weed invasion, especially watering locations and other sensitive 

areas that may be particularly susceptible to invasion. Inventory and manage new infestations. 

▶ Livestock are to be excluded from burned areas until monitoring results show emergency stabilization and rehabilitation objectives have been met. 

10.0 Outfitting/Recreation Pack and Saddle Stock Use 

▶ Allow only certified weed-free hay/feed on BLM lands. 

▶ Inspect, brush, and clean animals (especially hooves and legs) before entering public land. Inspect and clean tack 

and equipment. 

▶ Regularly inspect trailheads and other staging areas for backcountry travel. Bedding in trailers and hay fed to 

pack and saddle animals may contain weed seed or propagules. 

▶ Tie or contain stock in ways that minimize soil disturbance and prevent loss of desirable native species. 

▶ Authorized trail sites for tying pack animals shall be monitored several times per growing season to quickly 

identify and eradicate new weeds. Trampling and permanent damage to desired plants are likely. Tie-ups shall be 

located away from water and in shaded areas where the low light helps suppress weed growth. 

▶ Educate outfitters to look for and report new weed infestations. 

11.0 Wildlife 

▶ Periodically inspect and document areas where wildlife concentrate in the winter and spring and cause excess 

soil disturbance. 

▶ Use weed-free materials for all wildlife management activities. 

▶ Incorporate weed prevention into all wildlife habitat improvement project designs. 
276 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 277

APPENDIX D APPENDIX D

plan. Mitigating measures may include, but are not limited to, timing restrictions, relocation of development activities and fencing operations or habitat. If special status species are encountered during operation, operations 

will cease immediately, and the BLM Authorized Officer will be notified. 

▶ To protect key wildlife species, special status species, and their habitats, surveys may be required prior to surface 

disturbance, habitat treatments, or similar activities. Develop and implement standard survey protocol for key 

species on the basis of the latest science, conservation assessments, CDOW recommendations, and similar 

information. Special design and construction measures may also be required in order to minimize impacts to 

special status species.

13.2 Best Management Practices

▶ Raptors: 

• Protect nest sites from human disturbances by implementing CPW recommended buffers around known 

nest sites. 

• Provide perching and nesting structures as mitigation where disturbances are impacting raptors. 

• Apply guidance from Suggested Practices for Raptor Protection on Power Lines: the State of the Art in 2006 

(Avian Power Line Interaction Committee 2006) and Avian Protection Plan (APP) Guidelines (Avian Power 

Line Interaction Committee and US Fish and Wildlife Service 2005) or most current guidance for new 

power line construction (including upgrades and reconstruction) to prevent electrocution of raptors. 

▶ Control noxious weeds using integrated techniques. Limit chemical control in areas with rare plant species to 

avoid damage to non-target species. Mechanical or chemical control in and near rare plant habitat shall only be 

implemented by personnel familiar with the rare plants. 

▶ Prohibit collection of rare plants or plant parts, except as permitted by the BLM Authorized Officer for scientific 

research. 

▶ The use of deicers and dust suppressants within 100 meters (328 feet) of road-side occurrences of special status 

plant species will require prior approval from the BLM. 

▶ Herbicide application shall be kept at least 200 meters from known plant populations, except in instances where 

weed populations threaten habitat integrity or plant populations. Great care shall be used to avoid pesticide drift 

in those cases. 

▶ Retain existing snags for wildlife use in places where they will not create a human hazard 

▶ Where linear disturbance is proposed edges of vegetation shall be feathered to avoid long linear edges of habitat 

and allow for greater habitat complexity for wildlife. 

▶ Protect existing temporary pools to providing breeding and hibernating habitat for amphibians. 

▶ Avoid fragmentation of wildlife habitat especially in wildlife migration and movement corridors.

▶ Where water is taken directly from areas containing special status fish a meshed screen will be placed on the 

intake hose of an appropriate size to minimize potential intake of specials status fishes.

13.3 References 

Avian Power Line Interaction Committee. 2006. Suggested Practices for Raptor Protection on Power Lines: the 

State of the Art in 1996. Edison Electric Institute, Avian Power Line Interaction Committee, and the California 

Energy Commission. Washington, DC, and Sacramento, CA. 

Avian Power Line Interaction Committee and US Fish and Wildlife Service. 2005. Avian Protection Plan (APP) 

Guidelines, April 2005. Washington, DC. 

BLM (United States Department of the Interior, Bureau of Land Management). 1989. Handbook H-1741-1: 

Fencing. Release 1-1572. BLM, Washington, DC. December 6, 1989. 58pp.

_____. 2007. Final Vegetation Treatment Using Herbicides on Bureau of Land Management Lands in 17 Western 

States, Programmatic Environmental Impact Statement. BLM, Nevada State Office, Reno, NV. June 2007.

14.0 Wildlife Damage Management 

14.1 Standard Operating Procedures 

▶ Control activities conducted by the US Department of Agriculture, Animal and Plant Health Inspection Service, 

Wildlife Services will be coordinated with the BLM on an annual basis, including review of authorized control 

areas and annual submittal of control activities on NCA lands. 

13.1 Standard Operating Procedures 

▶ Fences constructed will comply with applicable wildlife fence standards, such as those described in BLM 

Handbook H-1741-1, Fencing (BLM 1989). Current standards for fencing cattle out in deer and elk range is a 

four strand fence, 40 inches high with a spacing of wires from ground to top of 60” (smooth bottom wire), 6” 

(second wire barbed), 6” (third wire barbed), 12” (top wire preferably smooth but may need to be barbed in 

areas of intense cattle use). 

▶ The BLM will consult agency species management plans and other conservation plans as appropriate to guide 

management and devise mitigation measures when needed. 

▶ Lessees will be notified that a lease parcel contains potential habitat for threatened (T), endangered (E), proposed (P), candidate (C) and BLM sensitive (S) plants, fish and wildlife. 

▶ Existing plant location records will be consulted and site inventories will be conducted to identify suitable 

habitat for these plants. Surveys for occupied suitable habitat will be conducted prior to any ground disturbance. 

Surveys will take place when the plants can be positively identified, during the appropriate flowering periods. 

Surveys will be conducted by qualified field botanists/biologists who will provide documentation of their qualifications, experience and knowledge of the species prior to starting work. 

▶ For BLM sensitive species surface-disturbing activities will be avoided within 100 meters of occupied plant 

habitat wherever possible and where geography and other resource concerns allow. Fragmentation of existing 

populations and identified areas of suitable habitat will be avoided wherever possible. 

▶ Where development is allowed within 100 meters of occupied habitat for T, E, P and C species or BLM sensitive 

species, unauthorized disturbance of plant habitat will be avoided by on-site guidance from a biologist, and by 

fencing the perimeter of the disturbed area, or such other method as agreed to by the Fish and Wildlife Service. 

In such instances, a monitoring plan approved by the Service will be implemented for the duration of the project 

to assess impacts to the plant population or seed bank. If detrimental effects are detected through monitoring, 

corrective action will be taken through adaptive management. 

▶ Surface disturbance closer than 20 meters to a listed plant will be considered an adverse effect. Mitigating 

measures within this narrow buffer are very important and helpful to individual plants, but we do not expect 

that all adverse effects can be fully mitigated within this distance. Some adverse effects due to dust, dust suppression, loss of pollinator habitat, and toxic spills will likely remain. There are two possible exceptions to this 

rule of thumb: 1) The new disturbance is no closer to a listed plant than preexisting disturbance and no new or 

increased impacts to the listed plant are expected; or 2) the listed plant is screened from the proposed disturbance (e.g., tall, thick vegetation or a berm acts as a screen or effective barrier to fugitive dust and other potential impacts). 

▶ Transplantation of potentially affected plants will not be used as a rationale to defend a “not likely to adversely 

affect” or a “no effect” determination for listed plant species. 

▶ Documentation will include individual plant locations and suitable habitat distributions. Prior to conducting 

plant surveys, the operator will provide maps (as hard copy and GIS files) of all proposed areas of disturbance 

to the BLM. Maps will include existing and proposed roads, pipelines, well pads, pits, parking lots, and all other 

work areas. Post-construction or as-built maps will also be submitted to account for any deviations from preproject maps. Specific polygons where rare plant surveys have been conducted will be included, along with the 

results of those surveys (positive or negative). The locations of any monitoring plots established to measure the 

status of rare plants and habitat in the vicinity of project activities will also be provided. 

▶ Protect pollinator species for endangered or threatened species by incorporating the standard operating procedures found in the Final Programmatic Environmental Impact Statement for Vegetation Treatments Using 

Herbicides on BLM Lands in 17 Western States (BLM 2007). 

▶ Biological inventories must be completed prior to approval of operations in areas of known or suspected habitat 

of special status species, or habitat of other species of interest such as, but not limited to, raptor nests, , or rare 

plant communities. Surveys shall be conducted by qualified biologist(s) using protocols established for potentially affected species during the appropriate time period(s) for the species. Survey reports, data, and determinations shall be submitted to the BLM for review and confirmation according to BLM protocols. Operators, the 

BLM, and the BLM Authorized Officer will use the information gathered to develop an appropriate mitigation 
278 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 279

APPENDIX D APPENDIX D

BLM (United States Department of the Interior, Bureau of Land Management). 2004a. Manual 8100: The 

Foundations for Managing Cultural Resources. Release 8-72. BLM, Washington, DC. December 3, 2004.

_____. 2004b. Manual 8110: Identifying and Evaluating Cultural Resources. 8-73. BLM, Washington, DC. 

December 3, 2004.

_____. 2004c. Manual 8120: Tribal Consultation Under Cultural Resources. 8-74. BLM, Washington, DC. 

December 3, 2004.

_____. 2004d. Manual 8120-1: General Procedural Guidance for Native American Consultation. 8-75. BLM, 

Washington, DC. December 3, 2004.

_____. 2004e. Manual 8130: Planning for Uses of Cultural Resources. 8-76. BLM, Washington, DC. December 3, 

2004.

_____. 2004f. Manual 8140: Protecting Cultural Resources. 8-77. BLM, Washington, DC. December 3, 2004.

_____. 2004g. Manual 8150: Permitting Uses of Cultural Resources. 8-78. BLM, Washington, DC. December 3, 

2004.

_____. 2004h. Manual 8170: Interpreting Cultural Resources for the Public. 8-79. BLM, Washington, DC. 

December 3, 2004.

16.0 Tribal Consultation

16.1 Standard Operating Procedures

▶ The BLM has a responsibility to develop a government-to-government relationship with the tribes: the formal 

relationship that exists between the Federal Government and tribal governments under federal laws. Tribal governments are considered dependent domestic sovereignties with primary and independent jurisdiction (in most 

cases) over tribal lands. Concerning proposed BLM plans and actions, at least the level of consideration and 

consistency review provided to State governments must be afforded to tribal governments. 

▶ The BLM is responsible for consultation under General Authorities defined as “laws, executive orders, and regulations that are not considered ‘cultural resource authorities’.” The regulations implementing both Federal Land 

Policy and Management Act and NEPA require Native American consultation. The American Indian Religious 

Freedom Act and the Indian Sacred sites order (Executive Order 13007) pertain to the free exercise clause of the 

First Amendment (BLM H-8120-1 Guidelines for Conducting Tribal Consultation [BLM 2004], Federal Land 

Policy and Management Act Title II, NEPA Section 102, 40 CFR 1501.2 and 1501.7) 

▶ Tribes must be consulted whenever other governmental entities or the public are formally involved in the BLM’s 

environmental review process in any NEPA documentation that entails public involvement or initial discussions 

with local or state governments (BLM Handbook H-1790-1, National Environmental Policy Act [BLM 2008a]). 

▶ NHPA Section 106 consultations for cultural resources significant to Indian tribes. Consultation with an Indian 

tribe must recognize the government-to-government relationship between the Federal Government and Indian 

tribes. The agency official shall consult with representatives designated or identified by the tribal government. 

Consultation shall be conducted in a manner sensitive to the concerns and needs of the Indian tribe. (36 CFR 

800.2(c)(2)(ii)(C). 

16.2 Best Management Practices 

▶ Notification is conducted by simple one-way written means. Consultation is generally construed to mean direct, 

two-way communication. 

▶ When publishing notices or open letters to the public indicating that the BLM is contemplating an action and 

that comments are welcome, managers shall send individual letters, certified mail or delivery confirmed to tribes 

requesting their input on actions being considered. If this is an opening dialogue, prior to having developed a 

strong working relationship with the tribe, if a timely response is not received the manager shall follow up with 

personal telephone calls. 

▶ For the benefit of both parties, managers are encouraged to strive for the most efficient and effective method of 

consultation. Whatever method is chosen, all consultation activities shall be carefully documented in the official 

record. 

▶ US Department of Agriculture, Animal and Plant Health Inspection Service, Wildlife Services will notify the 

BLM’s Authorized Officer before any damage control activity is implemented within the restricted area(s), and 

exceptions will be approved on a case-by-case basis. 

▶ All US Environmental Protection Agency use restrictions and requirements for toxicants are to be followed where 

control devices are used on public lands. BLM’s Authorized Officer must be notified before any toxicants are deployed and a map of the treatment area must be provided. Adequate signage must be provided and maintained. 

15.0 Cultural Resources 

15.1 Standard Operating Procedures 

▶ The holder of a BLM authorization to carry out land use activities on Federal lands, including all leases and permits, must notify the BLM, by telephone and written confirmation, immediately upon the discovery of human 

remains, funerary items, sacred objects, or objects of cultural patrimony (43 Code of Federal Regulations [CFR] 

10.4(g)). Activities must stop in the immediate vicinity of the discovery. The discovery must be protected from 

the authorized activity for a period of 30 days or unless otherwise notified by the (43 CFR 10.4(c) and (d)). 

▶ If newly discovered historic or archaeological materials or other cultural resources are identified during project 

implementation, work in that area must stop and the BLM Authorized Officer must be notified immediately. 

Within five working days the BLM Authorized Officer will inform the proponent as to: 

• Whether the materials appear eligible for the National Register of Historic Places; 

• The mitigation measures the proponent will likely have to undertake before the site could be used (assuming 

in situ preservation is not practicable), (36 CFR 800.13); and 

• A time frame for the BLM Authorized Officer to complete an expedited review under 36 CFR 800.11 to confirm, through the State Historic Preservation Office, that the BLM Authorized Officer’s findings were correct 

and mitigation was appropriate. 

▶ A standard Education/Discovery stipulation for cultural resource protection shall be attached to the land use 

authorization. The operator or its contractor is responsible for informing all persons who are associated with 

the project operations that Federal laws protect cultural resources and they will be subject to prosecution for 

disturbing or destroying any historic or archaeological sites, or collecting any cultural objects, prehistoric or 

historic from Federal lands. 

▶ Strict adherence to the confidentiality of information concerning the nature and location of archeological resources will be required of any company issued a land use authorization and all of their subcontractors 

(Archaeological Resource Protection Act, 16 US Code 470hh). 

15.2 Best Management Practices 

▶ Evaluation of all BLM activities and BLM authorized activities shall be made in compliance with BLM Manual 

8100, The Foundations for Managing Cultural Resources (BLM 2004a), and subsequent 8100 series (BLM 

2004b, 2004c, 2004d, 2004e, 2004f, 2004g, and 2004h); Handbook of Guidelines and Procedures for Inventory, 

Evaluation, and Mitigation of Cultural Resources (BLM 1998, rev. 2007); and the current State Protocol 

Agreement between BLM and the Utah State Historic Preservation Office. 

▶ When possible, locate projects in areas that are previously disturbed. To comply with the National Historic 

Preservation Act, the BLM must identify properties that are listed to or eligible for listing to the National 

Register of Historic Places, evaluate the effects of agency undertakings on historic properties, and avoid or treat 

adverse effects to properties within the Area of Potential Effect.

▶ When a NEPA document specifically stipulates the need for an archaeological monitor during construction or 

a project is located in areas that require an archaeological monitor to be present it is the applicant’s responsibility to contract an archaeological consultant holding a current Utah BLM permit and authorized to work in the 

NCA. Fieldwork authorizations are required prior to any construction monitoring. 

▶ Where proposed projects or development will adversely affect a cultural resource, testing, data recovery or full 

excavation to recover scientific information may be required as mitigation. The applicant or operator bears the 

full cost of mitigation and is encouraged to consider avoiding adverse effects through project relocation or redesign rather than mitigating adverse effects.

15.3 References
280 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 281

APPENDIX D APPENDIX D

▶ Conduct final reclamation re-contouring of all disturbed areas, including access roads, to the original contour or 

a contour that blends with the surrounding topography. 

▶ To the extent opportunities are practicable, extreme visual contrast created by past management practices or 

human activities will be minimized. Examples include right-of-way amendments, mineral material sites, abandoned mines, and areas impacted by unauthorized off-road driving. 

▶ All new roads will be designed and constructed to a safe and appropriate standard, “no higher than necessary” 

to accommodate intended vehicular use. Roads will follow the contour of the land where practical. 

19.0 Wildland Fire Ecology and Management 

19.1 Standard Operating Procedures/Best Management Practices: Fuels Management

▶ Construct fuel breaks or green strips to protect wildland-urban interface communities and important wildlife 

habitat and provide for firefighter safety by using mechanical, chemical, and biological fire treatment methods.

▶ Construct fuel breaks and green strips in areas containing a good understory of native perennials in order to 

successfully compete with and deter the establishment and spread of annual species. 

▶ Seed green strips in areas that do not have a good understory of desirable native perennials that can successfully 

compete with annual species. 

▶ Where practicable, use large-scale landscape planning to connect fuel breaks and avoid small piecemeal projects. 

▶ Maintain fuel breaks and green strips to ensure effectiveness. 

▶ Prevent seeded species from being grazed during the first two growing seasons (>18 months) following seeding, 

or until site-specific analysis and/or monitoring data indicate that vegetation cover, species composition and 

litter accumulation are adequate to support and protect watershed values, meet vegetation objectives and sustain 

grazing use. 

▶ Provide fire prevention and mitigation outreach information and education to communities surrounding the NCA. 

19.2 Standard Operating Procedures 

Fire Suppression 

▶ Resource Advisors and other applicable specialists shall be utilized to advise the Incident Commander and suppression resources on the natural resource values during the suppression effort. 

▶ Avoid applying fire retardant in or near drinking water sources. 

▶ Avoid the application of retardant or foam within 300 feet of a waterway or stream channel. Deviations from this 

procedure are acceptable if life or property is threatened. 

▶ Fire lines will not be constructed by heavy equipment within riparian stream zones. If construction is necessary 

due to threats to life or property, control lines shall terminate at the edge of the riparian zone at a location determined appropriate to meet fire suppression objectives on the basis of fire behavior, vegetation/fuel types, and fire 

fighter safety. 

▶ Lands will be temporarily closed to other uses in areas where fire suppression is being implemented. 

▶ If it is determined that use of retardant or surfactant foam within 300 feet of a waterway or stream channel is appropriate due to threats to life or property; alternative line construction tactics are not feasible because of terrain 

constraints, congested areas, or lack of ground personnel; or potential damage to natural resources outweighs 

possible loss of aquatic life, the unit administrator shall determine whether there have been any adverse effects 

to federally listed species. If the action agency determines that adverse effects were incurred by federally listed 

species or their habitats, then the action agency must consult with the Service, as required by 50 CFR 402.05, as 

soon as practicable. 

▶ Minimize/mitigate impacts to cultural resources and pristine vegetative communities. 

▶ Vehicle and equipment shall be washed before being assigned to fires to minimize the spread of noxious weeds. 

Especially out of area equipment. Larger fires with incident management teams assigned may need to have a 

weed wash station. 

Emergency Stabilization and Rehabilitation 

▶ Stabilize areas that have low potential to naturally re-vegetate and that have high wind and soil erosion potential. 

Treatments include the following: 

▶ Consultation roles can be facilitated but may not be transferred to others. Cultural resource consulting firms 

working for land use applicants cannot negotiate, make commitments, or otherwise give the appearance of exercising the BLM’s authority in consultations. 

▶ Owing to their status as self-governing entities, tribes may be notified and invited to participate at least as soon 

as (if not earlier than) the Governor, state agencies, local governments, and other Federal agencies. 

▶ Tribal consultation means dialogue between a BLM manager and an American Indian Tribe. The BLM managers 

are encouraged to visit tribal councils and appropriate tribal leaders on a recurring basis. This face-to-face meeting 

helps to develop relationships that can reduce the time and effort spent in later consultation or individual projects. 

This government-to-government consultation shall be treated with appropriate respect and dignity of position. 

16.3 References 

BLM (United States Department of the Interior, Bureau of Land Management). 2004. Manual 8120: Tribal 

Consultation Under Cultural Resources. 8-74. BLM, Washington, DC. December 3, 2004. 

_____. 2004. Manual 8120-1: General Procedural Guidance for Native American Consultation. 8-75. BLM, 

Washington, DC. December 3, 2004. 

_____. 2008. Handbook H-1790-1: National Environmental Policy Act. Washington, DC. January 2008. 

17.0 Geological and Paleontological Resources 

17.1 Standard Operating Procedures 

▶ Attach lease notices, stipulations, and other requirements to permitted activities to prevent damage to paleontological resources.

18.0 Visual Resources 

18.1 Best Management Practices 

▶ Impacts to dark night skies will be prevented or reduced through the application of specific mitigation measures 

identified in activity level planning and NEPA level review. These measures may include directing all light downward, using shielded lights, using only the minimum illumination necessary, using lamp types such as sodium 

lamps (less prone to atmospheric scattering), using circuit timers, and using motion sensors. 

▶ Any facilities authorized will use the best technology available to minimize light emissions 

▶ Any new permits/authorizations, including renewals, will be stipulated to use the best technology available to 

minimize light emissions as compatible with public health and safety. 

▶ All new surface-disturbing projects or activities, regardless of size or potential impact, will incorporate visual 

design considerations during project design as a reasonable attempt to meet the Visual Resource Management 

(VRM) class objectives for the area and minimize the visual impacts of the proposal. Visual design considerations will be incorporated by: 

▶ Using the VRM contrast rating process (required for proposed projects in highly sensitive areas, high impact 

projects, or for other projects where it appears to be the most effective design or assessment tool), or by 

▶ Providing a brief narrative visual assessment for all other projects that require an environmental assessment or 

environmental impact statement. 

▶ Measures to mitigate potential visual impacts could include the use of natural materials, screening, painting, project design, location, or restoration (See Appendix H; BLM Handbook H-8431-1, Visual Resource Contrast Rating; 

or online at http://www.blm.gov/nstc/VRM/8431.html, for information about the contrast rating process).

▶ Screening facilities from view and avoiding placement of production facilities on steep slopes, hilltops, 

and ridgelines. 

▶ Paint all facilities a color that best allows the facility to blend with the background (Operator-committed BMP). 

▶ Gravel color of road shall be similar to adjacent dominant soil colors. 

▶ Bury distribution powerlines and flow lines in or adjacent to access roads. 

▶ Repeat form, line, color, and texture elements to blend facilities with the surrounding landscape 

▶ All above ground facilities including power boxes, building doors, roofs, and any visible equipment will be painted a color selected from the latest national color charts that best allows the facility to blend into the background. 
282 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 283

APPENDIX D APPENDIX D

▶ Adjust intensity, timing and/or duration of grazing during periods of forage drought. 

▶ Manage livestock grazing, including dormant season use, to insure adequate residual grass when soil moisture 

and wildlife habitat are concerns. 

▶ Avoid use most years in areas of valuable woody plants during times when they are selected. 

▶ Avoid the following grazing management practices: 

• Long seasonal use with no recovery time 

• Heavy use -stresses plants, 

• Little or no regrowth before winter -little stubble for root crown protection 

• Use at the same time every year -repeating the stress 

• No rest or growing season recovery -little recovery with long seasons of use 

• Little or ineffective herding 

• Salt placed in the same locations year after year 

• Livestock left behind after pasture moves 

• Grazing during the critical growth period year after year 

▶ When using livestock to control noxious or invasive weeds, match animal dietary preference or tolerance to the 

target species. 

▶ Use the target weed’s biology when developing a grazing strategy. 

▶ Manage heavy grazing on target weed species to account for any intermixed desirable species. 

20.3 Best Management Practices (Vegetation/Riparian Zone Management Guidelines) 

▶ To reduce negative impacts to grazing, determine the critical period(s) of a riparian site, and then limit grazing 

during the critical period(s) to no more often than once every three or four years. Critical periods and impacts 

are likely to be either in late spring-early summer, when stream banks are more easily broken down by trampling; or late summer-early fall, when excessive browsing may damage vegetation. Each site has its own critical 

period that shall be individually determined. Important critical period variables are soil moisture, plant species 

composition, animal behavior patterns. Site may be grazed every year if use does not occur during the critical period(s). Extended periods of rest or deferment from grazing may be needed to enable recovery of badly 

degraded sites.

▶ To maintain stream bank stability, limit cattle access to surface water when adjacent stream banks and shorelines are overly wet and susceptible to trampling and sloughing. Stream bank trampling can often be reduced by 

capitalizing on the natural foraging behavior of cattle. Cattle generally avoid grazing excessively wet sites or in 

cold-air pockets. Cattle seek out wind-swept ridges, and they graze on upland forage when it is more palatable 

than forage in riparian areas. Avoid hot season grazing of riparian areas. 

▶ To graze a site more than once per growing season, moisture and temperature conditions shall be conducive 

to plant growth. For such sites, allow a recovery period of at least 30 to 60 days, depending on vegetation type, 

before re-grazing within the same growing season. Grazing more often and for shorter periods-that is, 3 weeks 

or less at a time-is preferable to fewer and longer grazing periods. 

▶ To control the timing, frequency, and intensity of cattle grazing, managers shall consider creating smaller riparian pastures with similar, or homogenous, features. Adjusting timing, frequency, and intensity of grazing in 

individual pasture units is more important than adopting a formalized grazing season. 

▶ To protect stream banks, prevent cattle from congregation near surface waters. Fencing, supplemental feeding, 

and herding work best. Provide remote watering systems for cattle. Manage the riparian area as a separate and 

unique pasture. Inappropriate cattle grazing will usually first be evidenced by excessive physical disturbance to 

stream banks and shorelines. (Mosley et al. 1997) 

▶ On riparian areas that are determined to be non-functioning or functioning at risk as a result of livestock grazing impacts, limits of bank disturbance will be determined and included within the Terms and Conditions of the 

Grazing Permit. Monitoring of bank disturbance will use the Multiple Indicator Method. 

▶ Winter grazing minimizes soil compaction and potential stream bank deterioration and allows maximum 

growth of vegetation and plant vigor. Livestock use shall not exceed 70% and stubble height shall be at least four 

to six inches after the grazing period.

▶ Installing water bars and other drainage diversions, culverts along fire roads, dozer lines, and other cleared areas; 

▶ Seeding and planting to provide vegetative cover; 

▶ Spreading mulch to protect bare soil and discourage runoff; 

▶ Repairing damaged roads and drainage facilities; 

▶ Clearing stream channels of structures or debris that is deposited by suppression activities; 

▶ Installation of erosion control structures; 

▶ Installation of channel stabilization structures; 

▶ Fence or restrict areas to livestock and wild horse and burro grazing to promote success of natural re-vegetation 

or establishment of seeded species; 

▶ Lands may be temporarily closed to other uses during emergency stabilization and rehabilitation practices if 

activities inhibit treatment; 

▶ Repair or replace range improvements and facilities; and 

▶ Monitor emergency stabilization and rehabilitation treatments. 

20.0 Livestock Grazing 

20.1 Standard Operating Procedures 

▶ Exclude livestock grazing on newly seeded areas to ensure that desired vegetation is well established, until objectives for seeding have been met. 

▶ Development of springs and seeps or other projects affecting water and associated resources shall be designed to 

maintain the associate riparian area and assure attainment of standards. 

▶ Disturbance to established rangeland study sites shall be avoided to provide for the continuation of monitoring 

efforts, which involves comparisons of data to previous records of that site.

▶ Exclosures shall be established in areas where the vegetative potential of the area is questionable or to compare 

the effectiveness of grazing management. 

▶ New fences shall be constructed to BLM standards allowing for the appropriate wildlife passage. 

▶ Bird ramps shall be installed in all troughs. 

▶ Access routes to functioning range improvements shall be retained to allow for periodic maintenance and prevent cross country travel. 

▶ Maintain range developments to maintain or improve distribution. 

▶ Rangeland and vegetation monitoring will be conducted to detect changes in grazing use, trend, and range 

conditions. These data will be used to support and direct grazing management decisions consistent with national 

policy. These efforts will help ensure that livestock grazing meets objectives for rangeland health and resolves 

conflicts with wildlife habitats or may provide a benefit to wildlife habitats. 

▶ Grazing management decisions will be based on monitoring data, both short-term and long-term, which will be 

jointly developed by grazing permittees and the appropriate Federal land management agency. 

▶ Surface-disturbing activities will be coordinated with livestock grazing permittees to minimize the effects of the 

surface disturbance on other approved operations. To the maximum extent practicable, this effort will include 

consulting on scheduling of operations to mutually minimize effects. 

▶ Any damage to the function of range improvements (e.g., fence damage, cattle guard cleaning, livestock loss) 

from other approved operations will be repaired immediately or remedied by the operator causing the damage. 

20.2 Best Management Practices 

▶ Follow the Grazing Guidelines established along with the Utah Standards for Rangeland Health. 

▶ Use grazing systems that contain rotation, deferment, and rest to produce a mosaic of habitat patches and increases the density, height and distribution of native plants. 

▶ Avoid re-grazing the same plants in one growing season. 

▶ Adjust grazing seasons to benefit both warm and cool season grass species by providing periodic rest from grazing for each type. 

▶ Allow for adequate litter cover following grazing use to protect soil surface and enhance soil moisture retention. 

▶ Allow for rest/recovery periods before or after grazing during critical growth periods. Recovery shall include the 

production of seed to allow for the regeneration of desirable plant species. 
284 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 285

APPENDIX D APPENDIX D

damage to an existing right-of-way or authorized facility will occur. The agreement(s) shall be obtained prior to 

any use of the right-of-way or existing facility. 

▶ The Holder shall participate in the formation of a Road User’s Association for the road if new right-of-ways are 

granted for use of the existing road. All new users will be required to join the association. 

22.4 References 

BLM (US Department of the Interior, Bureau of Land Management). 1985. BLM Manual 9113: Roads. Release 

9-247. BLM, Washington, DC. June 7, 1985. 83 pp. 

23.0 Transportation and Access 

23.1 Standard Operating Procedures 

▶ Continue coordination with counties and other agency road entities to promote utilization of best management 

practices for road maintenance they conduct within NCA boundaries. 

▶ Maintain an inventory of existing road and trail systems. 

▶ BLM Manual 9113, Roads (BLM 1985a) and BLM Handbook 9113-2, Roads – Inventory and Maintenance 

(BLM 1985b) will be used to guide all maintenance and road construction designs and requirements. Include 

definitions for functional road classification and maintenance levels for BLM roads. 

▶ All highway right-of-ways and other road authorizations will contain noxious and invasive weed stipulations 

that include prevention, inventory, treatment, and re-vegetation or rehabilitation. Road abandonment will include at least three years of post-abandonment monitoring and treatment. 

23.2 Best Management Practices

NEPA Requirements – No new NEPA analysis will be required for road maintenance activities within the defined 

maintenance disturbance/easement footprint, which is defined as previously disturbed or maintained. Disturbance 

outside of the defined maintenance disturbance/easement footprint or road realignment will be subject to additional 

NEPA compliance. 

23.4 References 

BLM (United States Department of the Interior, Bureau of Land Management). 1985a. BLM Manual 9113: Roads. 

Release 9-247. BLM, Washington DC. June 7, 1985. 83 pp. 

_____. 1985b. BLM Handbook 9113-2, Roads – Inventory and Maintenance. Release 9-250. BLM, Washington 

DC. December 19, 1985. 18 pp.

▶ To protect stream banks, discourage trailing up and down the channel by placing logs across trails, perpendicular to the stream channel. 

▶ Adjust intensity, timing and/or duration of grazing during periods of forage drought. 

21.0 Recreation 

▶ Special Recreation Permits will contain noxious weed management stipulations (e.g., pre-event inventories 

to avoid infested areas, event management to avoid or isolate activities that could cause weed introduction or 

spread, monitoring and treatment of infestations exacerbated by the activity, and other appropriate noxious 

weed management stipulations). 

▶ Lands may be temporarily closed to other uses during recreation events that are conducted under special recreation permits (e.g., equestrian endurance rides or motorcycle events). 

22.0 Lands and Realty 

22.1 Standard Operating Procedures 

▶ Power lines shall be constructed in accordance to standards outlined in Suggested Practices for Raptor 

Protection on Power Lines: The State of the Art in 1996 (Avian Power Line Interaction Committee 2006). Rightof-way applicants shall assume the burden and expense of proving that proposed pole designs not shown in 

the above publication are “raptor safe.” Such proof shall be provided by a raptor expert approved by the BLM 

Authorized Officer.

▶ Right-of-ways and other lands and realty authorizations, including power lines, pipelines and transmission 

corridors will contain noxious and invasive plant management terms or stipulations for all ground-disturbing 

actions. These will include conducting a pre-disturbance noxious weed inventory, designing to avoid or minimize vegetation removal and weed introduction or spread, managing weeds during the life of the right-of-way 

or authorization to prevent or minimize weed introduction or spread, abandoning the right-of-way or authorization to establish competitive vegetation on bare ground areas, and monitoring re-vegetation success and weed 

prevention and control for a reasonable number of years.

▶ Right-of-ways will be constructed to avoid physical damage to range improvements and rangeland study areas. 

22.2 Standard Design Practices 

▶ All construction activities shall be confined to the minimum area necessary. The exterior boundaries of the construction area shall be clearly flagged prior to any surface-disturbing activities. 

▶ Existing roads will be used wherever possible. Additional roads shall be kept to the minimum. Route locations 

must be approved by the BLM prior to construction. 

▶ Roads will be constructed and maintained to BLM road standards (BLM Manual 9113 [BLM 1985]). All vehicle 

travel will be within the approved driving surface.

22.3 Stipulations 

▶ The Holder shall notify the BLM Authorized Officer at least 48 hours prior to the commencement construction, 

reclamation, maintenance, or any surface-disturbing activities under this grant. 

▶ Copies of the right-of-way grant with the stipulations shall be kept on site during construction and maintenance 

activities. All construction personnel shall review the grant and stipulations before working on the right-of-way 

or permitted area. 

▶ All facilities shall be labeled with the authorization number, operator, and contact information. 

▶ No signs or advertising devices shall be placed on the premises or on adjacent public lands, except those posted 

by or at the direction of the BLM Authorized Officer. 

▶ The Holder shall promptly remove and dispose of all waste caused by its activities. The term “waste” as used 

herein means all discarded matter including, but not limited to, human waste, trash, garbage, refuse, petroleum 

products, ashes, and equipment. No burning of trash, trees, brush, or any other material shall be allowed. 

▶ The Holder shall notify all existing right-of-way holders in the project area prior to beginning any surface-disturbance or construction activities. The Holder shall obtain an agreement with any existing right-of-way holders or other parties with authorized facilities that cross or are adjacent to those of the holder to assure that no 
Red Cliffs National Conservation Area Appendices 287

APPENDIX E

APPENDIX E

Utah Standards for Rangeland Health and Guidelines for Grazing Administration

The BLM has developed the following Fundamentals of Rangeland Health and their companion rules-Standards 

for Rangeland Health and Guidelines for Grazing Management for BLM in Utah ([BLM-UT-GI-97-001-4000] U.S. 

Department of Interior, Bureau of Land Management, Utah State Office 1997).

FUNDAMENTALS OF RANGELAND HEALTH

As provided by regulations, developed by the Secretary of the Interior on February 22, 1995, the following conditions 

must exist on BLM lands:

1. Watersheds are in, or making significant progress toward, properly functioning physical condition, including their upland, riparian –wetland, and aquatic components; soil and plant conditions support infiltration, 

soil moisture storage, and the release of water that are in balance with climate and landform and maintain or 

improve water quality, and timing and duration of flow.

2. Ecological processes, including the hydrologic cycle nutrient cycle, and energy flow, are maintained, or there is 

significant progress toward their attainment, in order to support healthy biotic populations and communities.

3. Water quality complies with State water quality standards and achieves, or is making significant progress towards achieving established BLM management objectives such as meeting wildlife needs.

4. Habitats; are, or are making significant progress toward being, restored or maintained for Federal threatened and endangered Species, Federal proposed, Category 1 and 2 Federal candidate and other special status 

Species.

In 1997, the BLM in Utah developed rules to carry out the Fundamentals of Rangeland health. These are called 

Standards for Rangeland health and Guidelines for grazing management.

Standards spell out conditions to be achieved on BLM Lands in Utah, and Guidelines describe practices that will be 

applied in order to achieve the Standards.

STANDARDS FOR RANGELAND HEALTH

Standard 1. Upland soils exhibit permeability and infiltration rates that sustain or improve site productivity, considering the soil type, climate, and landform.

As indicated by:

1. Sufficient cover and litter to protect the soil surface from excessive water and wind erosion; to promote infiltration; detain surface flow; and retard soil moisture loss by evaporation;

2. The absence of indicators of excessive erosion such as rills, soil pedestals, and actively eroding gullies;

3. The appropriate amount, type, and distribution of vegetation reflecting the presence of (1) the desired plant 

community IDPCI, where identified in a land-use plan, or (2) where the PVC is not identified, a community 

that equally sustains the desired level of productivity and properly functioning ecological conditions.

Standard 2. Riparian and wetland areas are in properly functioning condition. Stream channel morphology and functions are appropriate to soil type, climate, and landform.

As indicated by:

1. Stream bank vegetation consisting of or showing a trend toward species with root masses capable of withstanding high stream flow events. Vegetative cover adequate to protect stream banks and dissipate stream flow 

energy associated with high-water flows. Protect against accelerated erosion, capture sediment, and provide 

for groundwater recharge.

2. Vegetation reflecting: Desired Plant Community. Maintenance of riparian and wetland soil moisture characteristics, diverse age structure and composition, high vigor, large woody debris when site potential allows, and 

providing food, cover, and other habitat needs for dependent animal species.

3. Revegetating point bars: Lateral stream movement associated with natural sinuosity: channel width, depth, 

pool frequency, and roughness appropriate to landscape position.

4. Active floodplain.
288 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 289

APPENDIX E APPENDIX E

Standard 3. Desired species, including native, threatened.

As indicated by:

1. Frequency, diversity, density, age classes, and productivity of desired native species necessary to ensure reproductive capability and survival.

2. Habitats connected at a level to enhance species survival.

3. Native species reoccupy habitat niches and voids caused by disturbances unless management objectives call for 

introduction or maintenance of nonnative species.

4. Appropriate amount, type, and distribution of vegetation reflecting the presence of (1) the Desired Plant 

Community DPC, where identified in a land use plan conforming to these Standards, or (2) where the DPC 

is identified a community that equally sustains the desired level of productivity and properly functioning ecologic processes.

Standard 4. BLM will apply and comply with water quality standards established by the State of Utah (R.317-2) and 

the federal Clean Water and Safe Drinking Water Acts. Activities on BLM lands will fully support the designated beneficial uses described in the Utah Water Quality Standards (R.317-2) for surface and groundwater.

As indicated by:

1. Measurement of nutrient loads, total dissolved solids, chemical constituents, fecal coliform, water temperature 

and other water quality parameters.

2. Macro-invertebrate communities that indicate water quality meets aquatic objectives.

3. Because BLM Lands provide forage for grazing of wildlife and domestic livestock, the following rules have 

been developed to assure that such grazing is consistent with the Standards listed here.

4. BLM will continue to coordinate monitoring water quality activities with other Federal, State and technical 

agencies.

GUIDELINES FOR GRAZING MANAGEMENT

Grazing management practices will be implemented that:

1. Maintain sufficient residual vegetation and litter on both upland and riparian sites to protect the soil from 

wind and water erosion and support ecological functions;

2. Promote attainment or maintenance of proper functioning condition riparian/wetland areas, appropriate 

stream channel morphology, desired soil permeability and permeability and infiltration, and appropriate soil 

conditions and kinds and amounts of plants and animals to support the hydrologic cycle, nutrient cycle, and 

energy flow.

3. Meet the physiological requirements of desired plants and facilitate reproduction and maintenance of desired 

plants to the extent natural conditions allow;

4. Maintain viable and diverse populations of plants and animals appropriate for the site,

5. Provide or improve within the limits of site potentials, habitat for Threatened or Endangered Species;

6. Avoid grazing management conflicts with other species that have the potential of becoming protected or special status species;

7. Encourage innovation, experimentation and the ultimate development of alternatives to improve rangeland 

management practices;

8. Give priority to rangeland improvement projects and land treatments that offer the best opportunity for 

achieving the Standards.

Any spring or seep developments will he designed and constructed to protect ecological process and functions and 

improve livestock, wild horse, and wildlife distribution.

New rangeland projects for grazing will be constructed in a manner consistent with the standards. Considering economic circumstances and site limitations, existing rangeland projects and facilities that conflict with the achievement 

or maintenance of the standards will be relocated and/or modified.

Livestock salt blocks and other nutritional supplements will be located away from riparian/wetland areas or other 

permanently located, or other natural water sources. It is recommended that the locations of these supplements be 

moved every year.

The use and perpetuation of native species will be emphasized. However, when restoring or rehabilitating disturbed 

or degraded rangelands nonintrusive, nonnative plant species are appropriate for use where native species (a) are not 

available, (b) are not economically feasible, (c) can not achieve ecological objectives as well as nonnative species, and/

or (d) cannot compete with already established native species.

When rangeland manipulations are necessary, the best management practices, including biological processes, fire, and 

intensive grazing, will be utilized prior to the use of chemical or mechanical manipulations.

When establishing grazing practices and rangeland improvements, the quality of the outdoor recreation experience 

is to be considered. Aesthetic and scenic values, water, campsites, and opportunities for solitude are among those 

considerations.

Feeding of hay and other harvested forage (which does not refer to miscellaneous salt, protein, and other supplements) for the purpose of substituting for inadequate natural forage will not be conducted on BLM lands other 

than in (a) emergency situations where no other resource exists and animal survival is in jeopardy, or (b) situations 

where an authorized officer determines such a practice will assist in meeting a standard or attaining a management 

objective.

In order to eliminate, minimize, or limit the spread of noxious weeds, (a) only hay cubes, hay pellets, or certified 

weed-free hay will be fed on BLM lands, and (b) reasonable adjustments in grazing methods, methods of transport, 

and animal husbandry practices will be applied.

To avoid contamination of water sources and in advertent damage to non-target species, aerial application of pesticides will not be allowed within 100 feet of a riparian wetland area unless the product is registered for such use by the 

EPA.

On rangelands where a standard is not being met, and conditions are moving toward meeting the standard, grazing 

may be allowed to continue. On lands where a standard is not being met, conditions are not improving toward meeting the standard or other management objectives, and livestock grazing is deemed responsible, administrative action 

with regard to livestock will be taken by the authorized officer pursuant to CUR 4180.2(c).

Where it can he determined that more than one kind of grazing animal is responsible for failure to achieve a standard, 

and adjustments in management are required. Those adjustments will be made to each kind of animal, based on interagency cooperation as needed in proportion to their degree of responsibility.

Rangelands that have been burned, reseeded, or otherwise treated to alter vegetative composition will be closed to 

livestock grazing as follows: (1) burned rangelands, whether by wildfire or prescribed burning, will be ungrazed for a 

minimum of one complete growing season following the burn; and (2) rangelands that have been reseeded or otherwise chemically or mechanically treated will be ungrazed for a minimum of two complete growing seasons

Conversions in kind of livestock (such as from sheep to cattle) will be analyzed in light of rangeland health standards. 

Where such conversions are not adverse to achieving a standard, or they are not in conflict with BLM land-use plans, 

the conversion will be allowed.
Red Cliffs National Conservation Area Appendices 291

APPENDIX F

APPENDIX F

Migratory Birds and Birds of Conservation Concern

RCNCA Migratory Birds And Birds Of Conservation Concern 

Common Name Scientific Name Occurrence Count 1962-2010

American Avocet Recurvirostra americana Verified 1

American Bittern Botaurus lentiginosus Verified 2

American Coot Fulica americana Verified 32251

American Goldfinch Carduelis tristis Verified 2178

American Kestrel Falco sparverius Verified 1480

American Pipit Anthus rubescens Verified 10113

American Robin Turdus migratorius Verified 8448

American White Pelican Pelecanus erythrorhynchos Verified 7

American Wigeon Anas americana Verified 13772

Anna’s Hummingbird Calypte anna Verified 12

Ash-throated Flycatcher Myiarchus cinerascens Verified 1

Barn Swallow Hirundo rustica 0

Belted Kingfisher Megaceryle alcyon Verified 206

Black-and-white Warbler Mniotilta varia Verified 1

Black-chinned Hummingbird Archilochus alexandri Verified 1

Black-chinned Sparrow Spizella atrogularis Verified 1

Black-crowned Night-Heron Nycticorax nycticorax Verified 68

Black-headed Grosbeak Pheucticus melanocephalus Verified 1

Black-throated Sparrow Amphispiza bilineata Verified 5

Blue-gray Gnatcatcher Polioptila caerulea Verified 30

Blue-winged Teal Anas discors Verified 14

Bonaparte’s Gull Chroicocephalus philadelphia Verified 1

Brewer’s Blackbird Euphagus cyanocephalus Verified 39591

Brewer’s Sparrow Spizella breweri Verified 70

Brown-headed Cowbird Molothrus ater Verified 912

Bufflehead Bucephala albeola Verified 1207

Burrowing Owl Athene cunicularia Verified 18

California Gull Larus californicus Verified 138

Canada Goose Branta canadensis Verified 5431

Canvasback Aythya valisineria Verified 925

Cassin’s Finch Carpodacus cassinii Verified 210

Cattle Egret Bubulcus ibis Verified 7

Cedar Waxwing Bombycilla cedrorum Verified 1983

Chipping Sparrow Spizella passerina Verified 17

Cinnamon Teal Anas cyanoptera Verified 15

Clark’s Grebe Aechmophorus clarkii Verified 10

Common Goldeneye Bucephala clangula Verified 574

Common Loon Gavia immer Verified 9

Common Merganser Mergus merganser Verified 1657

Table F-1 RCNCA Migratory Birds And Birds Of Conservation Concern
292 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 293

APPENDIX F APPENDIX F

RCNCA Migratory Birds And Birds Of Conservation Concern 

Common Name Scientific Name Occurrence Count 1962-2010

Common Moorhen Gallinula chloropus Verified 70

Common Yellowthroat Geothlypis trichas Verified 23

Cooper’s Hawk Accipiter cooperii Verified 369

Costa’s Hummingbird Calypte costae Verified 5

Dark-eyed Junco Junco hyemalis Verified 15434

Double-crested Cormorant Phalacrocorax auritus Verified 108

Dunlin Calidris alpina Verified 2

Eared Grebe Podiceps nigricollis Verified 292

Ferruginous Hawk Buteo regalis Verified 274

Fox Sparrow Passerella iliaca Verified 14

Gadwall Anas strepera Verified 516

Golden Eagle Aquila chrysaetos Verified 145

Golden-crowned Kinglet Regulus satrapa Verified 15

Golden-crowned Sparrow Zonotrichia atricapilla Verified 14

Great Blue Heron Ardea herodias Verified 340

Great Egret Ardea alba Verified 14

Greater White-fronted Goose Anser albifrons Verified 20

Green Heron Butorides virescens Verified 10

Green-tailed Towhee Pipilo chlorurus Verified 3

Green-winged Teal Anas crecca Verified 910

Hermit Thrush Catharus guttatus Verified 35

Herring Gull Larus argentatus Verified 3

House Wren Troglodytes aedon Verified 11

Killdeer Charadrius vociferus Verified 1762

Lark Sparrow Chondestes grammacus Verified 11

Least Sandpiper Calidris minutilla Verified 29

Lesser Goldfinch Spinus psaltria Verified 4054

Lesser Scaup Aythya affinis Verified 1010

Lincoln’s Sparrow Melospiza lincolnii Verified 122

Loggerhead Shrike Lanius ludovicianus Verified 590

Long-billed Dowitcher Limnodromus scolopaceus Verified 1

Long-eared Owl Asio otus Verified 21

Mallard Anas platyrhynchos Verified 9549

Marsh Wren Cistothorus palustris Verified 702

Merlin Falco columbarius Verified 133

Mountain Bluebird Sialia currucoides Verified 1131

Mourning Dove Zenaida macroura Verified 10072

Northern Flicker Colaptes auratus Verified 1578

Northern Harrier Circus cyaneus Verified 831

Northern Pintail Anas acuta Verified 479

Northern Shoveler Anas clypeata Verified 4315

Orange-crowned Warbler Oreothlypis celata Verified 178

RCNCA Migratory Birds And Birds Of Conservation Concern 

Common Name Scientific Name Occurrence Count 1962-2010

Peregrine Falcon Falco peregrinus Verified 20

Phainopepla Phainopepla nitens Verified 2

Pied-billed Grebe Podilymbus podiceps Verified 793

Pine Siskin Spinus pinus Verified 1004

Plumbeous Vireo Vireo plumbeus Verified 1

Prairie Falcon Falco mexicanus Verified 137

Red-breasted Merganser Mergus serrator Verified 4

Redhead Aythya americana Verified 1062

Red-naped Sapsucker Sphyrapicus nuchalis Verified 155

Red-shouldered Hawk Buteo lineatus Verified 3

Red-tailed Hawk Buteo jamaicensis Verified 1761

Red-winged Blackbird Agelaius phoeniceus Verified 112112

Ring-billed Gull Larus delawarensis Verified 7102

Ring-necked Duck Aythya collaris Verified 16405

Ross’s Goose Chen rossii Verified 34

Ruby-crowned Kinglet Regulus calendula Verified 2063

Ruddy Duck Oxyura jamaicensis Verified 9415

Sage Sparrow Amphispiza belli Verified 619

Sage Thrasher Oreoscoptes montanus Verified 8

Sandhill Crane Grus canadensis Verified 2

Savannah Sparrow Passerculus sandwichensis Verified 2243

Say’s Phoebe Sayornis saya Verified 1498

Sharp-shinned Hawk Accipiter striatus Verified 347

Short-eared Owl Asio flammeus Verified 1

Snow Goose Chen caerulescens Verified 41

Snowy Egret Egretta thula Verified 3

Song Sparrow Melospiza melodia Verified 3261

Sora Porzana carolina Verified 45

Spotted Sandpiper Actitis macularius Verified 4

Spotted Towhee Pipilo maculatus Verified 771

Swainson’s Hawk Buteo swainsoni Verified 2

Swainson’s Thrush Catharus ustulatus Verified 1

Swamp Sparrow Melospiza georgiana Verified 9

Townsend’s Solitaire Myadestes townsendi Verified 66

Turkey Vulture Cathartes aura Verified 5

Vermilion Flycatcher Pyrocephalus rubinus Verified 31

Vesper Sparrow Pooecetes gramineus Verified 98

Virginia Rail Rallus limicola Verified 155

Western Bluebird Sialia mexicana Verified 297

Western Kingbird Tyrannus verticalis Verified 1

Western Meadowlark Sturnella neglecta Verified 12643

Western Sandpiper Calidris mauri Verified 1
294 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 295

APPENDIX F

APPENDIX G

Special Recreation Management Area

Red Cliffs Special Recreation Management Area

Recreation Setting Characteristics Matrix

APPENDIX G

RCNCA Migratory Birds And Birds Of Conservation Concern 

Common Name Scientific Name Occurrence Count 1962-2010

White-crowned Sparrow Zonotrichia leucophrys Verified 131551

White-winged Dove Zenaida asiatica Verified 108

Williamson’s Sapsucker Sphyrapicus thyroideus Verified 1

Wilson’s Snipe Gallinago delicata Verified 29

Wilson’s Warbler Cardellina pusilla Verified 2

Wood Duck Aix sponsa Verified 293

Yellow Warbler Setophaga petechia Verified 1

Yellow-bellied Sapsucker Sphyrapicus varius Verified 19

Yellow-headed Blackbird Xanthocephalus xanthocephalus Verified 25

Yellow-rumped Warbler Setophaga coronata Verified 1659

SOCIAL COMPONENTS 

Qualities Associated with Use

Social Component Primitive Backcountry Frontcountry Rural

Contacts (average 

for other groups)

0 to 3 encounters per 

day on primitive routes.

1 to 6 encounters per 

day and designated 

trails.

2 to 12 encounters per 

day on designated trails.

5 to 40 encounters per 

day in campgrounds and 

at developed trailheads.

Group Size (average for other 

groups)

1 to 3 people per group. 1 to 6 people per group. 2 to10 people per group. 2 to 15 people per group.

Evidence of Use

Alteration of the natural 

terrain consists of user 

created trails. 

Sounds of other visitors 

rare.

Alteration of the natural 

terrain limited to designated trails with some 

widening of the tread. 

Sounds of other visitors 

infrequent.

Alteration of the natural 

terrain limited to designated trails. Trail braiding is common. 

Sounds of people frequently heard.

Large areas of alteration prevalent. Paved 

surfaces common. 

Sounds of people constantly heard. 

PHYSICAL COMPONENTS 

Qualities of the Landscape

Physical 

Component

Primitive Backcountry Frontcountry Rural

Remoteness

Within 1⁄2 mile of 

paved municipal roads, 

highways, and unpaved 

County roads.

Primitive routes are 

present.

Within 1⁄4 mile of 

paved municipal roads, 

highways, and unpaved 

County roads. 

Mechanized routes with 

natural surfacing are 

present.

Adjacent to paved municipal roads, highways, 

and unpaved County 

roads

Unpaved utility roads 

and mechanized routes 

with natural surfacing 

are present.

Paved municipal roads, 

highways, and unpaved County roads are 

present.

Naturalness

Undisturbed, natural appearing landscape.

Boundary corresponds with designated 

wilderness. 

Mostly natural landscape with some 

modifications. 

Transmission lines and 

water utility structures 

visible in some locations.

Landscape partially 

modified with development dominating the 

natural landscape in a 

few areas.

Paved and unpaved 

roads and utility developments are typically 

visible.

Natural landscape considerably modified. 

Utility development, 

paved highways, municipal subdivisions, and 

campgrounds dominate 

the landscape.

Facilities

Trails are unmaintained 

primitive routes, typically in washes. 

No structures present.

Mix of maintained and 

unmaintained trails. 

Trail structures consist 

of infrequent directional 

and regulatory signs. 

Maintained and marked 

trails.

Trail structures consist 

of frequent directional, 

regulatory, and interpretive signs. 

Facilities consist of 

paved roads, campgrounds, restrooms, 

day-use areas, fenced 

parking, and interpretive 

kiosks.

Existing Setting Prescribed Setting
296 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 297

Recreation Setting Characteristics Matrix (continued) Red Cliffs Special Recreation Management Area

RMZ Supporting Information

Introduction

The enabling legislation for the Red Cliffs NCA is Public Law 111-11 of 2009 (OPLMA). It stated that the purpose of 

the Red Cliffs National Conservation area was: “to conserve, protect, and enhance for the benefit and enjoyment of 

present and future generations the ecological, scenic, wildlife, recreational, cultural, historical, natural, educational, 

and scientific resources of the National Conservation Area.”

The enabling legislation clearly recognized recreation as one of the values of the NCA.

Even though it lacked an official BLM Special Recreation Management Area (SRMA) designation, the NCA has been 

effectively managed as an SRMA since the adoption of the Public Use Plan (PUP) for the Red Cliffs Desert Reserve 

in June 2000. This document was tiered to the Washington County Habitat Conservation Plan and it recognized the 

value of this open space for dispersed, non-motorized recreation opportunities. It also recognized that recreational 

use needs to be intensively managed in order to protect the critical desert tortoise habitat that was the driving force 

behind the Reserve. Because of the overlap of critical habitat, urban interface, and existing recreation management, 

SRMA status is proposed in all action alternatives. 

SMRA Objectives

Objective Statement—Red Cliffs NCA

The Red Cliffs SRMA offers high quality sustainable recreation opportunities and visitor services, while conserving 

and protecting other resource values of the NCA.

RMZ Objectives: Rural

The Rural RMZ offers high quality, sustainable, family-friendly activities and educational opportunities, while conserving and protecting other resource values of the NCA.

Activities

▶ Car camping at the Red Cliffs Recreation Area

▶ Day-use activities like picnicking and visiting interpretive displays

▶ Exploring interpreted archaeological and paleontological sites

Experiences

▶ Participating in self-education activities

▶ Enjoying family and friends

Benefits

▶ Stronger ties with family and friends

▶ Greater respect for cultural heritage

▶ Temporary freedom from urban life

RMZ Objectives: Frontcountry

The Frontcountry RMZ offers high quality sustainable non-motorized recreation opportunities, while conserving and 

protecting other resource values of the NCA.

Activities

▶ Hiking, biking, and horseback riding on easily accessible trails

▶ Rock climbing just minutes from the urban interface

Experiences

▶ Enjoying a wide variety of recreational opportunities

▶ Having the ability to participate in outdoor activities so close to town 

▶ Getting much needed exercise

Benefits

▶ Improving outdoor skills and abilities

APPENDIX G APPENDIX G

OPERATIONAL COMPONENTS 

Conditions Created by Management and Controls over Recreation Use

Operational 

Component

Primitive Backcountry Frontcountry Rural

Access (types of 

travel allowed)

Foot and horse travel 

only. 

Off trail travel allowed

Four-wheel drive vehicles on administrative 

roads.

 Mountain bike, foot, 

and horse travel on designated trails. 

No off-trail travel 

allowed.

Two-wheel drive vehicles on administrative 

roads.

Mountain bike, foot, and 

horse travel on designated trails. 

No off-trail travel 

allowed.

Ordinary highway auto 

and truck traffic on 

paved and unpaved, 

graded roads. 

Off trail travel allowed 

by non-motorized users.

Visitor Services 

and Interpretation

Detailed maps and brochures available off-site. 

Staff is not present. 

Detailed maps and brochures available off-site. 

Staff is rarely present. 

Detailed maps and brochures available off-site. 

Directional, regulatory, 

and interpretive signs 

are common.

Staff is occasionally 

present. 

Detailed maps and 

brochures available on 

and off-site. Directional, 

regulatory, and interpretive kiosks at all entry 

points.

Staff is consistently 

present.

Managment 

Controls (signing)

No posting or signing 

of rules, regulations, or 

ethical standards. 

Directional signing is 

minimum required for 

public safety.

Basic regulations clearly 

posted at heavy traffic 

locations. 

Directional signs posted 

at critical trail junctions.

Detailed rules, regulations, and ethical standards clearly posted at 

multiple locations. 

Directional signs evident 

at critical locations and 

along trail routes.

Comprehensive rules, 

regulations, and ethical 

standards clearly posted 

at all access points. 

Directional signing 

evident on roads and at 

trailheads.

Managment 

Controls 

(camping)

Dispersed camping allowed. Limited 

to backpacking and 

horsepacking.

Dispersed camping allowed at designated sites 

only.

Dispersed camping not 

allowed.

Camping allowed in the 

Red Cliffs Campground 

and Sand Cove Primitive 

Campground only. 

Dispersed camping not 

allowed. 

Management 

Controls (law 

enforcement)

Law enforcement and 

non-LEO Park Rangers 

rarely patrol. 

Respond to incidents 

and rescues only.

Law enforcement and 

non-LEO Park Rangers 

patrol infrequently. 

Respond to incidents 

and rescues.

Law enforcement and 

non-LEO Park Rangers 

patrol occasionally. 

Respond to incidents 

and rescues.

Law enforcement and 

non-LEO Park Rangers 

patrol on a regular basis. 

Respond to incidents 

and rescues.

Management 

Controls 

(monitoing)

Annual wilderness 

impact monitoring 

conducted.

Monitoring conducted 

annually to determine 

maintenance needs and 

collect information on 

the extent of visitor 

impacts.

Monitoring conducted 

monthly to bi-annually 

depending on location 

to determine maintenance needs and collect 

information on the 

extent of visitor impacts.

Monitoring conducted 

daily to weekly in high 

use areas to determine 

maintenance needs and 

collect information on 

the visitor impacts.

Existing Setting Prescribed Setting
298 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 299

▶ Gaining greater self-confidence

▶ Escaping everyday responsibilities

RMZ Objectives: Backcountry

The Backcountry RMZ offers challenging, and sustainable backcountry, non-motorized opportunities, while conserving and protecting other resource values of the NCA.

Activities 

▶ Hiking, biking, and horseback riding on long, challenging trails

Experiences

▶ Testing endurance

▶ Sharing challenging outdoor adventure with friends

▶ Experiencing a wide variety of outdoor environments

Benefits

▶ Stronger ties with family and friends

▶ Temporary freedom from urban life

▶ Increased adaptability to outdoor challenges 

RMZ Objectives: Primitive

The Primitive RMZ offers remote, adventurous, and sustainable non-motorized opportunities, while conserving and 

protecting other resource values of the NCA.

Activities 

▶ Hiking and horseback riding on rugged, challenging, and remote terrain

▶ Traditional rock climbing on remote crags

 Experiences 

▶ Enjoying strenuous physical exercise

▶ Enjoying risk-taking activities

▶ Developing self-sufficiency

 Benefits

▶ Stronger ties with friends through shared experiences

▶ Greater environmental awareness

▶ Increased adaptability to outdoor challenges

Recreation Setting Characteristic Descriptions: Rural

Physical Components

This RMZ contains all roads, trailheads and access points for the NCA, including paved municipal roads, highways, 

and unpaved County roads. It includes highly developed areas like the Red Cliffs Recreation Area. Power lines, 

water facilities, paved highways, and municipal subdivisions are immediately adjacent and dominate the landscape. 

Facilities in this RMZ consist of paved roads, campgrounds, restrooms, day-use areas, fenced parking, and interpretive kiosks. 

Social Components

Visitors to this RMZ can expect people to be everywhere, even during the week. 5-40 encounters per day in campgrounds and at developed trailheads is common. Group sizes range from 2-15 people per group with the larger 

groups primarily in developed day-use areas. Large areas of alteration prevalent and paved surfaces are common. 

Sounds of other visitors are everywhere. Comprehensive signage that contains rules, regulations, and ethical standards are clearly posted at all access points. 

Operational Components 

Visitors to this RMZ can expect a steady stream of highway auto and truck traffic on paved and unpaved, graded 

roads. This RMZ has the highest number of operational controls. Detailed maps and brochures available both on 

and off-site. Directional, regulatory, and interpretive kiosks can be found at all trailheads and entry points. Staff is 

consistently present and Law enforcement and non-LEO Park Rangers patrol on a regular basis. Directional signing 

is evident on roads and at trailheads. Camping is allowed in the Red Cliffs Campground and Sand Cove Primitive 

Campground only. Dispersed camping is not allowed. Monitoring is conducted daily to weekly in high use areas to 

determine maintenance needs and collect information on the visitor impacts.

Recreation Setting Characteristic Descriptions: Frontcountry

Physical Components

This RMZ is accessed from the roads and trailheads in the Rural Zone. It is adjacent to paved municipal roads, highways, and unpaved County roads. It contains unpaved utility roads that are used for administrative access to electrical 

and water utilities. The landscape is partially modified with development dominating the natural landscape in a few 

areas. Paved and unpaved roads and utility developments are visible from many areas within the zone. Mechanized 

routes with natural surfacing that are maintained and marked are the primary recreational component. Trail structures consist of frequent directional, regulatory, and interpretive signs. 

Social Components 

Visitors to this RMZ can expect between 2-12 encounters per day on designated trails, with group sizes ranging from 

2-10 people per group. Larger groups are often part of commercial hiking, biking, and climbing permit holders and 

are accompanied by guides. Alteration of the natural terrain limited to designated trails. Because use is typically 

heavy, trail braiding is common, particularly where equestrian use is common. Sounds of people frequently heard but 

considerably less than the Rural Zone.

Operational Components

Two-wheel drive vehicles that service water and power utilities are common on administrative roads. Mountain bike, 

foot, and horse travel is allowed on designated trails only. Because this zone is primarily within critical desert tortoise 

habitat, no off-trail travel or dispersed camping is allowed. Detailed maps and brochures are available off-site and 

directional, regulatory, and interpretive signs are common. Detailed rules, regulations, and ethical standards clearly 

posted at multiple locations. Directional signs evident at critical locations and along trail routes. Law enforcement 

and non-LEO Park Rangers patrol this zone occasionally, but primarily respond to incidents and rescues. Monitoring 

is conducted monthly to biannually depending on location to determine maintenance needs and collect information 

on the extent of off-trail impacts.

Recreation Setting Characteristic Descriptions: Backcountry

Physical Components

This RMZ is accessed primarily from the Frontcountry Zone and in some locations, directly from the Rural Zone. It 

is within 1⁄4 mile of paved municipal roads, highways, and unpaved County roads. It contains a few unpaved utility 

roads that are used for administrative access to electrical and water utilities. The landscape is mostly natural with 

some modifications. Transmission lines and water utility structures are visible in some locations. A mix of maintained 

and unmaintained, natural surface mechanized routes are the primary recreation component. Trail structures consist 

of infrequent directional and regulatory signs. 

Social Components

Visitors to this RMZ can expect between 1-6 encounters per day on designated trails, with group sizes ranging from 

1–6 people per group. Larger groups are rare in this zone. Alteration of the natural terrain limited to designated trails 

with some widening of the tread. Sounds of other people are infrequent. Solitude can be found in this zone.

Operational Components

Four-wheel drive vehicles that service water and power utilities are occasionally seen on administrative roads. 

Mountain bike, foot, and horse travel is allowed on designated trails only. Because this zone is partially within critical desert tortoise habitat, no off-trail travel is allowed. Dispersed camping may be allowed in designated sites only. 

Detailed maps and brochures available off-site and basic regulations are posted at heavy traffic locations. Directional 

signs are the minimum required for public safety. Law enforcement and non-LEO Park Rangers patrol infrequently 

APPENDIX G APPENDIX G
300 Appendices Red Cliffs National Conservation Area Red Cliffs National Conservation Area Appendices 301

and their main interaction with this zone is response to incidents and rescues. Monitoring is conducted annually 

depending on location to determine maintenance needs and collect information on the extent of off-trail impacts.

Recreation Setting Characteristic Descriptions: Primitive

Physical Components

This RMZ corresponds with designated wilderness. It is accessed primarily from the Frontcountry and Backcountry 

Zones and in one location, directly from the Rural Zone. It is within 1⁄2 mile of paved municipal roads, highways, and 

unpaved County roads. The landscape is undisturbed and natural appearing. Primitive, unmaintained routes are present, and are primarily in washes or across slickrock. No structures are present. 

Social Components

Visitors to this RMZ can expect between 0-3 encounters per day on primitive routes, with group size ranging from 1 

to 3 people per group. Alteration of the natural terrain consists of user created trails. Sounds of other visitors are rare. 

Solitude can be found throughout this zone.

Operational Components

Travel is limited to foot and horse traffic only, and off trail travel allowed. Dispersed camping is allowed but limited 

to backpacking and horsepacking. Detailed maps and brochures are available off-site. Rules, regulations, and ethical 

standards are posted outside the wilderness boundary. Law enforcement and non-LEO Park Rangers rarely patrol and 

their main interaction with this zone is response to incidents and rescues. Annual wilderness character monitoring 

conducted.

Management Actions and Allowable Use Decisions

Recreation and Visitor Services Program 

The key component of SRMA management used to protect setting characteristics will be the development of a 

Recreation Master Plan. The RAMP will identify specific management actions for recreational activities and visitor 

services within the SRMA and would include, but is not limited to:

▶ Non-motorized trail standards;

▶ Motorized routes;

▶ Rock climbing;

▶ Developed camping;

▶ Dispersed camping;

▶ Architectural design standards ;

▶ Recreational impact monitoring standards and procedures.

Other Programs 

Section 1974 (a) of OPLMA mandates the Secretary, to develop a comprehensive management plan for the Red Cliffs 

NCA to achieve the following Congressionally-defined purposes:

To conserve, protect, and enhance for the benefit and enjoyment of present and future generations the ecological, 

scenic, wildlife, recreational, cultural, historical, natural, educational, and scientific resources of the NCA

OPLMA specifically restricts allowable uses by withdrawing the public lands of this NCA, subject to valid existing 

rights, from:

▶ all forms of entry, appropriation, and disposal under the public land laws; 

▶ location, entry, and patenting under the mining laws; and

▶ operation of the mineral leasing, mineral materials, and geothermal leasing laws.

These Congressional actions, combined with the existing Washington County Habitat Conservation Plan provide 

overarching protection for recreation settings in the Red Cliffs SRMA. It restricts all recreation activities outside the 

Rural Zone to non-motorized modes of travel.

Implementation Decisions

The primary implementation decision required for the long term success of the Red Cliffs SRMA is completion of the 

St. George field Office Travel Management Plan. The travel planning effort is on a separate, but parallel track to this 

land use planning effort and its release will follow closely behind this plan.

There is an implementation decision in Chapter 2 that states “Construct new trails in the Rural, Frontcountry, or 

Backcountry Zones, as shown in the Travel Management Plan for Alternative (B, C, D).” This is an implementation 

decision and it was included because the travel plan is certainly the most anticipated part of the current SGFO planning efforts. In the NCA, the travel plan is considered crucial because it proposes a complete overhaul of the existing 

non-motorized trail network. 

The travel plan for the NCA mirrors the aspirational goals of the individual alternatives in this plan. But it also recognizes the reality that the NCA is the urban interface for the greater St. George metropolitan area and recreational 

visits will continue to grow. The travel plan is based on the assumption that in order to eliminate illegal trail use and 

protect critical habitat, the trail system must provide the experience that visitors are seeking. To do this, some new 

trail construction has to occur.

APPENDIX G APPENDIX G
Red Cliffs National Conservation Area Appendices 303

APPENDIX H

APPENDIX H

Criteria for the Placement of Natural Surface Trails

The following criteria are used to determine suitable locations for new trails and trail reroutes within the Beaver 

Dam Wash and Red Cliffs NCAs. This document utilizes terminology from the Recommended Standardized Trail 

Terminology for Use in Colorado (COTI 2005).

These criteria are to be followed as guidelines. Not all of the criteria can be met on every segment of every trail. Their 

purpose is to help create sustainable, low maintenance trails that provide quality recreation experiences on the basis 

of predetermined trail management objectives (TMOs). Specialty trails requiring higher maintenance may be allowed 

in appropriate locations.

1. Know and understand trail management objectives. TMO’s provide the framework for what the trail will look 

like, who will be using the trail, and how the trail will be managed. Different TMO’s may allow different applications of the criteria below.

2. Create loops and avoid dead end trails. All trails should begin and end at a trailhead or another trail. A wellplanned stacked loop trail system offers a variety of trail options. Easier, shorter loops are arranged close 

to the trailhead, with longer, more challenging loops extending further beyond the trailhead. Occasionally, 

destination trails to a point of interest will require an out-and-back trail, but only if they cannot be reasonably 

incorporated into a loop.

3. Identify control points and use them to guide trail design and layout. Control points are specific places or 

features that influence where the trail goes. Basic control points include the beginning and end of the trail, 

property boundaries, intersections, drainage crossings, locations for turns, and other trails.

4. Positive control points are places where you want users to visit, including scenic overlooks, historic sites, 

waterfalls, rock outcroppings, lakes, rivers and other natural features or points of interest. If the trail does not 

incorporate these features, users will likely create unsustainable social trails to get to them.

5. Negative control points are places you want users to avoid, such as low-lying wet areas, flat ground, extremely 

steep cross slopes or cliffs, unstable soils, environmentally sensitive areas, sensitive archaeological sites, safety 

hazards, and private property.

6. Knowing these control points provides a design framework. Try to connect the positive control points while 

avoiding the negative control points

7. Use cross slope and avoid flat ground whenever possible. The trail tread should generally run perpendicular to 

the cross slope and should utilize frequent grade reversals. This is the best way to keep water off the trail. Use 

curvilinear design principles to create a trail that follows the natural contours of the topography, sheds water, 

blends with the surrounding terrain, and provides fun recreation opportunities.

8. The following grade guidelines will help determine appropriate tread locations.

9. The Half Rule: “A trail’s grade shouldn’t exceed half the grade of the hillside or sideslope (cross slope) that the 

trail traverses. If the grade does exceed half the sideslope, it’s considered a fall-line trail. Water will flow down 

a fall-line trail rather than run across it. For example, if you’re building across a hillside with a (cross slope) of 

20 percent, the trail-tread grade should not exceed 10 percent” (IMBA 2004). Steeper cross slopes allow more 

flexibility for sustainable tread grades while flat or low angle cross slopes can be problematic. There is an upper 

limit to this rule. Sustaining a 24 percent tread grade, even on a 50 percent cross slope is unlikely. Additionally, 

trail segments may break this rule on durable tread surfaces such as solid rock.

10.The Ten Percent Average Guideline: The average trail grade over the length of the trail should be 10 percent or 

less for greatest sustainability. Short sections of the trail may exceed this, but the overall grade should remain 

at 10 percent or less.

11. Maximum Sustainable Grade: This is the upper grade limit for those short trail segments that push the limits 

of the previous two guidelines. It is determined by a site-specific analysis that is based on TMO’s, environmental conditions, and observations of existing trails – what’s working, and what’s not?
304 Appendices Red Cliffs National Conservation Area

12. Grade Reversals: Frequent changes in the direction of tread grade (gentle up and down undulations) will ensure that water is forced off the trail at frequent intervals.

13. Locate trails in stable soils. Avoid clays, deep loam and soils that do not drain rapidly. Consider season of use 

and type of use. The capabilities of motorized vehicles to function in wet/muddy conditions make it imperative to avoid unstable or poorly drained soils. Trails that are less likely to be used when wet may be located in 

less-desirable soils if necessary. In western Colorado’s arid environment, the best soil conditions for trails are 

those with high rock content.

14. Drainage crossings are key control points and should be selected carefully. Consider both the trail’s impact on 

the drainage (erosion and sedimentation), and the drainage’s impact on the trail (changing tread surface, water 

channeling onto trail). The trail should descend into and climb out of the drainage to prevent water from flowing down the trail. Avoid long or steep entries into drainages. Design grade reversals into the trail on each side 

of the approach to minimize water and sediment entering from the trail. Look for drainage crossings on rock.

15. Dry washes can be excellent travel ways. They are well defined, contain noise, and are periodically resurfaced 

by flowing water. As long as the wash does not support riparian vegetation and has no major safety problems, 

like water falls, they are well suited to be part of a recreational trail system.

16. Avoid switchbacks. Switchbacks are difficult, time-consuming, and expensive to construct, and require regular 

maintenance. Users often cut them, causing avoidable impacts. Utilizing curvilinear design principles eliminates the need for most switchbacks. Climbing turns are easier to construct and maintain and utilize natural 

terrain features (benches, knolls, rock outcrops) to change the direction of a trail.

17. Avoid ridge tops. Ridge tops are often primary transportation corridors for wildlife, and were often used by 

Native Americans as travel routes. Noise from ridge top trails is broadcast over a wide area. Locate trails on 

side hills, off ridge tops, using ridges and watersheds as natural sound barriers to isolate noise.

18. Use vegetation and other natural features to conceal the trail and absorb noise. This can be difficult in a desert 

environment. Try to minimize the visual impact of the trail by following natural transitions in vegetation or 

soil type. A trail near the base of a sideslope or on rimrock is usually less visible than a mid-slope trail. Denser 

vegetation will hide a trail, lessen noise transmission, and can dissipate the energy of falling raindrops on the 

bare soil of the trail tread.

19. Carefully design intersections to avoid safety problems. When locating a bicycle or motorized vehicle trail be 

aware of sighting distance and sight lines. Collisions can be avoided if riders can see each other. Avoid four 

way intersections. Offsetting the cross traffic helps reduce speeds and reduces the risk of collisions.

References

Off Highway Motorcycle and ATV Trails: Wernex, 2nd edition, American Motorcycle Assoc. 1994

Off Highway Vehicle Trail and Road Grading Equipment, Vachowski, Maier, USDA Forest Service Missoula 9 

Technology and development Center 1998 Doc# 7E72A49

Mountain Bike Trails: Techniques for design, construction and Maintenance, McCoy Stoner, USDA Forest 

Service, Missoula Technology and Development Center

Recommended Standardized Trail Terminology for Use in Colorado, Colorado Outdoor Training Initiative 

(COTI). 2005

Trail Construction and Maintenance Handbook, Hesselbarth, Vachowski, USDA Forest Service (4E42A25-Trail 

Notebook) 2004

Trail Solutions, IMBA’s Guide to Building Sweet Singletrack, International Mountain Bicycling Association 

(IMBA) 2004.

USDA Forest Service Travel Management Handbook, FS 2309.18

APPENDIX H