March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA i 

TABLE OF CONTENTS

Chapter Page 

1. RECORD OF DECISION................................................................................................... 1-1

1.1 Introduction ................................................................................................................................... 1-1

1.2 The Decision .................................................................................................................................. 1-1

1.2.1 Protest Resolution and Consistency Review .......................................................... 1-4

1.3 The Alternatives ............................................................................................................................ 1-6

1.3.1 Alternatives Considered but Not Analyzed ............................................................ 1-6

1.3.2 Alternatives Considered in Detail ............................................................................. 1-6

1.3.3 Environmentally Preferable Alternative .................................................................... 1-7

1.4 Management Considerations...................................................................................................... 1-8

1.5 Implementation of the Plan Amendment ................................................................................ 1-9

1.6 Public Involvement ........................................................................................................................ 1-9

1.6.1 Public Scoping ................................................................................................................. 1-9

1.6.2 Public Review of and Comment on the DRMP/EIS ............................................... 1-9

1.6.3 Public Review of and Protest on the PRMPA/FEIS .............................................. 1-10

1.6.4 Agency Consultations – US Fish and Wildlife Service, Tribal 

Consultation and State Historic Preservation Office .......................................... 1-10

1.7 Availability and Approval of the Plan...................................................................................... 1-12

2. REFERENCES.................................................................................................................. 2-1

FIGURES Page 

1-1 Approved RMPA .......................................................................................................................................... 1-3

APPENDIX

A Sonoran Desert National Monument Monitoring and Mitigation Protocol
ii Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018 

ACRONYMS AND ABBREVIATIONS Full Phrase

AGFD Arizona Game and Fish Department 

ARMPA Approved Resource Management Plan Amendment 

BLM United States, Department of the Interior, Bureau of Land Management 

BMP best management practice 

CEQ Council on Environmental Quality 

CFR Code of Federal Regulations 

DOI United States, Department of the Interior 

EIS environmental impact statement 

FLPMA Federal Land Policy and Management Act of 1976 

FR Federal Register 

IM Instruction Memorandum 

LAC Limits of Acceptable Change 

LSFO Lower Sonoran Field Office 

NAU Northern Arizona University 

NEPA National Environmental Policy Act of 1970 

NHT National Historic Trail 

NOA Notice of Availability 

NOI Notice of Intent 

RMP Resource Management Plan 

RMPA Resource Management Plan Amendment 

RMZ recreation management zone 

ROD Record of Decision 

ROW right-of-way 

SDNM Sonoran Desert National Monument 

SHPO State Historic Preservation Office 

US United States 

USC United States Code 
March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA 1-1

SECTION 1

RECORD OF DECISION

1.1 INTRODUCTION

This Record of Decision (ROD) approves the United States (US) Department of 

the Interior (DOI), Bureau of Land Management’s (BLM’s) resource management 

plan amendment (ARMPA) for recreational target shooting on public land within 

the Sonoran Desert National Monument (SDNM). The ROD and ARMPA provide 

the management decision on whether areas within the SDNM will be available for

recreational target shooting and a framework for monitoring and mitigation to 

avoid or minimize impacts on monument objects while increasing public safety.

The BLM prepared the ARMPA under the authority of the Federal Land Policy 

and Management Act (FLPMA; 43 United States Code [USC], Section 1701 et 

seq.), BLM planning regulations (43 Code of Federal Regulations [CFR] Part 

1600), and other applicable laws. The BLM prepared the environmental impact 

statement (EIS) in compliance with the National Environmental Policy Act 

(NEPA; 42 USC, Sections 4321-4347), as amended, and the Council on 

Environmental Quality (CEQ) and US DOI regulations for implementing the 

procedural provisions of NEPA (40 CFR 1500.1 et seq. and 43 CFR 46.01 et 

seq., respectively). The RMPA decision amends the existing 2012 SDNM 

Resource Management Plan (RMP) and adds a decision regarding recreational 

target shooting. Other decisions made in the 2012 SDNM RMP remain 

unchanged.

This ROD and ARMPA provide the decision made, an overview of the 

alternatives considered, a summary of protests received and how they were 

resolved, management considerations and rationale for the decision, and an 

overview of public involvement in the planning process.

1.2 THE DECISION

The decision is hereby made to approve the attached RMPA for recreational 

target shooting in the SDNM. This ROD and ARMPA amend the existing 2012 
1. Record of Decision 

1-2 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018 

Sonoran Desert National Monument Resource Management Plan covering 

approximately 486,400 acres of public land in Maricopa and Pinal Counties. The 

ARMPA is a modified version of Alternative C described in the Proposed RMPA 

and analyzed in the Final EIS (PRMPA/Final EIS) published in October 2017. 

Pursuant to the decision, approximately 435,700 acres of land in the SDNM 

(Figure 1-1) will remain available for recreational target shooting and will be 

subject to monitoring and mitigation as developed under the mitigation protocol 

(see Appendix A). 

In October of 2017, the Arizona Game and Fish Department (AGFD) requested 

that the BLM make the northern boundary of the SDNM within the Juan 

Bautista de Anza RMZ available for recreational target shooting. In response to 

this request, the BLM conducted an updated onsite assessment of the Juan 

Bautista de Anza Recreation Management Zone (RMZ) and noted that Road # 

8002G intersects with the adjacent mountain range and provides a natural 

boundary for use in the landscape. Northwest of Road # 8002G the area opens 

and provides easy access for recreational target shooting and does not meet the 

management objectives of the Juan Bautista de Anza RMZ. The area south of the 

road provides a large roadless area that creates a landscape barrier between 

recreational target shooting and the developed recreation sites located within 

the Juan Bautista de Anza RMZ. Upon further consideration, the BLM 

determined that Alternative C should be modified to include a small area near 

Road #8002G that is available for recreational target shooting. 

Historically, this small area of the Juan Bautista de Anza RMZ, consisting of 

approximately 2,600 acres, was a popular area for recreational target shooting 

(see Figure 1-1). It is on the outer perimeter of the Monument, provides easy 

public access, and provides ease of access to historical recreational target 

shooting areas. This modification would also minimize displacing shooters to 

other, less suitable areas of the SDNM. For these reasons, the BLM believes this 

area remains suitable for recreational target shooting and the modification is not 

a significant change (43 CFR 1610.5-1(b)). 

This small part of the Juan Bautista de Anza RMZ was analyzed in Alternative A 

as available for recreational target shooting, and the EIS shows that impacts to 

monument objects are negligible (see Chapter 4 in the Proposed RMPA/Final 

EIS, Alternative A). This area was temporarily closed in 2015 pursuant to a 

court order without site specific analysis. The area was temporarily closed 

because of high utilization of recreational use by recreational target shooters 

and other users. The BLM took a hard look at the previous suitability analysis 

and found that it utilized broad assumptions that were determined to be 

insufficient. The BLM determined this area is suitable for recreational target 

shooting and it can safely be available for such use with negligible impacts as 

demonstrated in the Final EIS. 
1. Record of Decision March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA 1-3
1. Record of Decision

1-4 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

The land use plan decision identified in the ARMPA is final and becomes 

effective when this ROD is signed. The decision does not impact or address 

hunting. The ARMPA does not include any implementation-level decisions; 

future implementation-level decisions may require additional steps before-onthe ground activities can begin. For implementation of the decision, the BLM 

would develop recreational target shooting supplemental rules which would 

undergo public notice and comment.

1.2.1 Protest Resolution and Consistency Review

A notice announcing the availability of the PRMPA/Final EIS was published in the 

Federal Register on October 20, 2017, initiating a 30-day protest period. A 60-

day Governor’s Consistency Review was initiated with the submittal of the

PRMPA/Final EIS to the Governor’s office on October 20, 2017. No comments 

regarding potential inconsistencies with State and local plans, programs, and 

policies were received from the Governor’s Office. The BLM received five 

letters during the 30-day protest period. Protesting parties are listed below:

 Christopher Brennan

 The Wilderness Society, Sierra Club-Grand Canyon Chapter, 

Conservation Lands Foundation, National Trust for Historic 

Preservation, Archaeology Southwest, Friends of the Sonoran 

Desert, Friends of Ironwood Forest

 Kathleen Martyn Goforth, Environmental Protection Agency

 Mike Popejoy

 Roger McManus, Friends of the Sonoran Desert

Protest resolution is the responsibility of the BLM Washington Office, with 

input from the Lower Sonoran Field Office and the Arizona State Office. Protest 

letters were reviewed for valid protest issues. Valid protest issues are:

 Land use planning-level decisions. Implementation-level decisions are 

not protestable under the planning regulations.

 Information already raised in comment at some time during the 

planning process. No new issues can be brought up for protest.

 A concise statement explaining why the State Director’s decision is 

believed to be wrong. A difference of opinion or disagreement is 

not sufficient to constitute a protest issue.

Protest issues were parsed out of the letters and then combined into common 

issues. These issues were then summarized and responded to as issue groups.

While the protest process considered the whole letter sent by protesters, only 

those statements that constituted valid protest issues were responded to.

Responses were then published on the BLM’s website as the Director’s Protest

Resolution Report.
1. Record of Decision

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA 1-5

The BLM responded to the following protest issues raised by protesting parties:

Best Available Science: The SDNM PRMPA/Final EIS fails to consider the best 

available science by not using its own 2012 scientific analysis of recreational 

target shooting, or at the very least, building upon its existing suitability analysis.

Impacts Analysis – Cultural Resources: The SDNM PRMPA/Final EIS fails to:

 show how cultural resources in specific recorded sites will be 

protected from adverse effects from recreational target shooting; 

and

 assess the vulnerability of these sites regarding their potential use as 

target shooting sites.

Mitigation: The SDNM PRMPA/Final EIS fails to:

 address mitigation measures to stop and prevent impacts from 

recreational target shooting;

 address the requirement for the BLM to assess mitigation 

effectiveness; and

 include an approved monitoring or mitigation plan, and therefore 

relies on a vague “framework” that fails to include any meaningful 

commitments to monitor and mitigate damage to the Monument’s 

objects.

Wilderness and Lands with Wilderness Characteristics: The BLM fails to manage 

and protect designated wilderness and lands with wilderness characteristics 

because the SDNM PRMPA/Final EIS does not use the best available science 

regarding recreational target shooting; therefore, it conflicts with the 

Wilderness Act.

The BLM Director’s decisions on and responses to the protests are summarized 

in the “Director’s Protest Resolution Report, Sonoran Desert National Monument 

Resource Management Plan Amendment,” which is available on the BLM website at

https://www.blm.gov/programs/planning-and-nepa/public-participation/protestresolution-reports. The Director dismissed the protests from Kathleen Martyn 

Goforth and Roger McManus because they contained only comments and no valid 

protest issues. The Director dismissed protests from Christopher Brennan and 

Mike Popejoy because they had not participated in the planning process.

The Director denied the protest from the Wilderness Society, Sierra ClubGrand Canyon Chapter, Conservation Lands Foundation, National Trust for 

Historic Preservation, Archaeology Southwest, Friends of the Sonoran Desert, 

and Friends of Ironwood Forest and provided responses to their protests in the 

Director’s Protest Resolution Report. In summary, the Director concluded that 

the BLM Arizona State Director followed the applicable laws, regulations, and 
1. Record of Decision

1-6 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

policies and considered all relevant resource information and public input in 

developing the Proposed RMPA. Each protesting party was notified in writing of 

the Director’s findings and the disposition of their protests.

1.3 THE ALTERNATIVES

NEPA requires the development and consideration of a reasonable range of 

alternatives, including a No Action Alternative, to analyze impacts and guide 

decision makers in developing and selecting the ARMPA. Alternatives must meet 

established planning criteria and applicable federal and state laws, regulations, 

and BLM policies.

1.3.1 Alternatives Considered but Not Analyzed

Based on the comments received throughout the public comment process, BLM 

considered the following alternative and management option as a possible way

of resolving resource management issues and conflicts but was eliminated from 

detailed analysis; the rationale for the alternative’s elimination is provided 

below.

Designating Recreational Target Shooting Areas 

During public scoping, there was a recommendation to designate recreational 

target shooting areas. As discussed in the EIS, this alternative was eliminated 

from further study.

1.3.2 Alternatives Considered in Detail

The general scope and key highlights of each alternative considered in the 

PRMPA/FEIS for the SDNM are summarized below.

Alternative A: All Areas Available for Target Shooting

Under Alternative A, all BLM-administered lands within the Monument would 

be available for recreational target shooting (486,400 acres; see Figure 2-1 in 

the Proposed RMPA/ Final EIS, Alternative A). 

Alternative B: Temporarily Unavailable Areas for Target Shooting Remain 

in Effect

Under Alternative B, the area that is temporarily unavailable for target shooting 

under the 2015 US District Court order (approximately 10,100 acres of the 

decision area; see Figure 2-2 in the Proposed RMPA/Final EIS, Alternative B) 

would continue to be unavailable for recreational target shooting in the land use 

plan. The area unavailable for recreational target shooting is on the north side of 

the SDNM along the El Paso Natural Gas Pipeline right-of-way (ROW) that 

parallels BLM Road 8000. It also extends along both sides of BLM Road 8001, 

adjacent to the wilderness boundary, before terminating at BLM Road 8006.

Approximately 476,300 acres would be available for recreational target 

shooting.
1. Record of Decision

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA 1-7

Alternative C (Agency Proposed Alternative): Desert Back Country 

Recreation Management Zone Available for Target Shooting

Alternative C, the agency proposed alternative, protects Monument objects and 

public safety by making most of the Juan Bautista de Anza National Historic Trail 

(NHT) RMZ and Trail Management Corridor (53,300 acres) unavailable for 

recreational target shooting, while continuing to make available the areas where 

recreational target shooting is compatible with existing SDNM RMP recreation 

management and objectives. Under Alternative C, the Desert Back Country 

RMZ (approximately 433,100 acres, see Figure 2-3 in the Proposed RMPA/ 

Final EIS, Alternative C) is available for recreational target shooting. The Desert 

Back Country RMZ has been identified in the RMP to “provide recreation 

opportunities for visitors seeking a remote, undeveloped, back country 

experience with resource-dependent activities such as hunting, camping, hiking, 

sightseeing, and four-wheel-drive touring” (BLM 2012).

Alternative D: Designated Wilderness, Lands Managed to Protect 

Wilderness Characteristics, and the Juan Bautista de Anza NHT RMZ 

Unavailable for Recreational Target Shooting

Under Alternative D, the Juan Bautista de Anza NHT RMZ, three designated 

wilderness units, and lands managed to protect wilderness characteristics would 

be unavailable for recreational target shooting (approximately 319,900 acres; 

see Figure 2-4 in the Proposed RMPA/ Final EIS, Alternative D). Approximately 

166,500 acres would be available for recreational target shooting. 

Alternative E: All Areas Unavailable for Recreational Target Shooting

Under Alternative E, recreational target shooting would be unavailable in the 

entire decision area (approximately 486,400 acres; see Figure 2-5 in the 

Proposed RMPA/ Final EIS, Alternative E).

1.3.3 Environmentally Preferable Alternative

The Council on Environmental Quality regulations require an agency to identify 

the environmentally preferable alternative, or alternatives in the ROD. This 

means the alternative that best protects, preserves, and enhances historic, 

cultural, and natural resources. 

Under that definition, Alternative E, as presented in the PRMPA/Final EIS is the 

most environmentally preferable because this Alternative makes the entire 

Monument unavailable for recreational target shooting. However, Section 101 of 

NEPA expresses a continuing policy of the Federal Government to “use all 

practicable means and measures...to foster and promote the general welfare, to 

create and maintain conditions under which man and nature can exist in 

productive harmony, and fulfill the social, economic, and other requirements of 

present and future generations of Americans.” Alternative E limited recreation 

opportunities that were analyzed and determined compatible in some areas of 

the SDNM.
1. Record of Decision

1-8 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

1.4 MANAGEMENT CONSIDERATIONS 

In developing the ARMPA, the BLM had the discretion to select an alternative in 

its entirety or to combine aspects of the various alternatives that were 

presented in the Draft RMP/EIS (DRMP/EIS) or the PRMPA/Final EIS. This 

included considering management approaches that were presented during the 

comment period that do not result in significant changes from what the 

DRMP/EIS considered. The NEPA Handbook (H-1790-1) states that “various 

parts of separate alternatives that are analyzed in the draft can also be ‘mixed 

and matched’ to develop a complete alternative in the final” (see also 43 CFR 

1503.4[a]).

The PRMPA/Final EIS described and analyzed five alternatives, including 

Alternatives A, B, C (the Proposed Alternative), D, and E, each of which 

represented varying acreage of areas where target shooting would be available 

in the SDNM. In making a decision, the BLM has the discretion to select an 

alternative in its entirety, to combine aspects of the various alternatives that 

were analyzed in the PRMPA/Final EIS, or to consider management approaches 

resulting from protest resolution. In this ROD, Alternative C in the 

PRMPA/Final EIS, with the modification of increased acres available for 

recreational target shooting suggested by the AGFD, has been identified as the 

ARMPA. 

Alternative C was chosen because it resolves the issues identified during scoping 

while providing for multiple uses of public lands in a sustainable fashion. It 

provides the best balance of resource protection and use within legal 

constraints. The ARMPA will do the following:

 Satisfy statutory requirements (true for all alternatives)

 Reflect what the BLM believes to be the best combination of actions 

to achieve the stated goals

 Responds to the purpose and need, as described in Chapter 1, 

Purpose and Need for the RMPA

 Provide an approach to address the key resource and planning 

issues

 Include input from cooperating agencies, collaborating partners, 

stakeholders, the public, and BLM specialists

Alternative C, as modified, achieves the purpose and need for amending the 

2012 SDNM RMP, considers social and economic aspects, and best represents 

what was supported by the cooperating agencies. The management decision in 

Alternative C, as modified, represents an attempt to balance resource 

protection and human use and influence. Compared to the other alternatives 

analyzed, the Alternative C, as modified, best meets management goals of the 

SDNM, wherein the areas that are compatible with existing SDNM RMP 
1. Record of Decision

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA 1-9

recreation management and objectives remain available for recreational target 

shooting.

Under Alternative C, as modified, anyone engaging in recreational target 

shooting activities in areas available for such use must comply with all standard 

operating procedures and the general mitigation measures and administrative 

actions as described in the ARMPA. Moreover, as described in the ARMPA, the 

BLM will work with the public, organizations, and law enforcement to continue 

to promote safe shooting practices that limit user conflicts and damage to 

natural and cultural resources in the monument. The management actions and 

monitoring program established in the ARMPA will generate reliable feedback 

and clarify the reasons for changed resource conditions that are identified. The 

BLM has a range of management options to address impacts and provide 

additional protection to resources in the monument, if determined necessary. 

The ARMPA represents the BLM’s final decision; the decision becomes final 

when the ROD/ARMPA is signed.

1.5 IMPLEMENTATION OF THE PLAN AMENDMENT 

The planning decision of the ARMPA will be effective when the ROD is signed. 

Any future implementation-level activities related to this plan amendment would 

be tied, in part, to the BLM’s budgeting process.

1.6 PUBLIC INVOLVEMENT

Public input was sought throughout the planning and decision-making process.

Public participation efforts are described in detail in Chapter 6 of the 

PRMPA/Final EIS. Highlights of the process are discussed below.

1.6.1 Public Scoping

The Notice of Intent (NOI) for the SDNM RMPA was published in the Federal 

Register on January 21, 2016 (81 Federal Register 3463); the BLM also posted the 

NOI on the project website (http://1.usa.gov/1ZPyFSA). The opportunity to 

comment was also publicized through news releases, mail notification, flyers, and 

other methods. Eleven public scoping meetings were held, and the public was 

invited to submit written comments. Overall, 376 comments were received on 

the SDNM RMPA during the scoping period. Following scoping, the BLM held 

additional public workshops throughout the Lower Sonoran Field Office to 

collaborate on planning criteria, RMPA goals and objectives, the range of 

alternatives, and preliminary alternatives.

1.6.2 Public Review of and Comment on the DRMP/EIS

The EPA published a Notice of Availability (NOA) of the DRMP/EIS on 

December 16, 2016. The NOA initiated the 90-day public comment period 

required for planning actions.
1. Record of Decision

1-10 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

The DRMPA/EIS was made available for viewing, downloading, and commenting 

in a variety of ways: as a PDF, on CD, through paper copies, and on the BLM’s 

ePlanning system. 

Following publication of the NOA for the SDNM DRMPA/EIS, the BLM hosted 

three open houses in Phoenix, Gila Bend, and Goodyear, Arizona, to solicit 

public comments. The BLM received 437 submissions, including form letters, 

during the DRMPA/EIS public comment period. Of these, 121 comments were 

considered substantive. The comments were organized into issues and 

considered and responded to as described in Section 1.5.2, Planning Issues of 

the PRMPA/Final EIS. The BLM considered all comments received or 

postmarked during the public comment period in preparing the PRMPA/Final 

EIS.

1.6.3 Public Review of and Protest on the PRMPA/FEIS

A 30-day protest period was provided on the PRMPA/Final EIS, in accordance 

with 43 CFR, Part 1610.5-2. The BLM received five letters during the protest 

period that were subsequently resolved by the BLM Director, whose decision is 

the final decision of the Department of the Interior. The issues raised in the 

protest letters covered a range of topics on how the protesting party felt the 

BLM had erred in consideration of which areas should be available for 

recreational target shooting, as described in Section 1.2.1, Protest Resolution 

and Consistency Review. All protests were dismissed or denied.

1.6.4 Agency Consultations – US Fish and Wildlife Service, Tribal 

Consultation and State Historic Preservation Office

Federal laws require the BLM to consult with certain federal and state agencies 

and entities and Native American tribes during the NEPA decision-making 

process (40 CFR, Subpart 1502.25). The BLM is also directed to integrate NEPA 

requirements with other environmental review and consultation requirements 

to reduce paperwork and delays (40 CFR, Subparts 1500.4-5).

The BLM implemented an extensive collaborative outreach and public 

involvement process that has included coordinating with tribes and cooperating 

agencies and is working closely with the BLM Arizona Resource Advisory 

Council. 

Section 7(a)(2) of the Endangered Species Act requires Federal agencies to 

consult with the Services to ensure that they are not undertaking, funding, 

permitting, or authorizing actions likely to jeopardize the continued existence of 

listed species or destroy or adversely modify designated critical habitat. 

Pursuant to the ESA, the BLM submitted a biological assessment on January 24, 

2017. On February 14, 2017 the BLM received concurrence from USFWS on 

this RMPA concurring with the BLM’s analysis that the Proposed RMPA “may

affect, but is not likely to adversely affect” the acuña cactus and its critical 

habitat or the lesser long-nosed bat.
1. Record of Decision

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA 1-11

The BLM has been working with the five tribes to make sure that governmentto-government consultation, coordination, and cooperation have been ongoing. 

Government-to-government consultation began in March 2016, when the BLM 

sent initial consultation letters and cooperating agency invitations to five tribes: 

the Ak-Chin Indian Community, Hopi Tribe, Salt River Indian Community, Gila 

River Indian Community, and Tohono O’odham Nation. The Ak-Chin Indian 

Community signed a Memorandum of Understanding and is a cooperating 

agency in this planning process. 

In accordance with the requirements of Section 106 of the National Historic 

Preservation Act, the BLM has consulted with and obtained comments from the 

Arizona State Historic Preservation Officer (SHPO) concerning the content of 

this RMPA. These comments have been considered by the BLM in development 

of this ARMPA, and SHPO concurrence with the eligibility and finding of no 

adverse effect for this project was received by the BLM on January 16, 2018.
I. Record of Decision 

1.7 	 AVAILABILITY AND APPROVAL OF THE PLAN 

Copies of the ROD and the Sonoran Desert National Monument Target 

Shooting Approved Resource Management Plan Amendment may be obtained 

by viewing or downloading the document from the BLM website at 

https://~o.usa.~ovlxnEUw or by obtaining a CD at the BLM Phoenix District 

Office, Lower Sonoran Field Office, at 21605 N. 7th Avenue, Phoenix, Arizona 

85027. Copies will also be available at local community libraries. 

Field Manager Recommendation 

Having considered a full range of alternatives, associated impacts, and public, 

tribal and agency input, I recommend the adoption and implementation of the 

Sonoran Desert National Monument Target Shooting Approved Resource 

Management Plan Amendment. 

1e anager 

Date •

Lower Sonoran Field Office 

District Manager Concurrence 

I concur with the adoption and implementation of the Sonoran Desert National 

Monument Target Shootin Approved Resource Management Plan Amendment. 

t.. •~'f-)

\~fo _ Leon Thomas Date District Manager 

Phoenix District Office 

State Director Approval 

In consideration of the foregoing, I approve the Sonoran Desert National 

Monument Target Shooting Approved Resource Management Plan Amendment. 

Arizona State Director 

1-12 Sonoran Desert National Monument Target ShootJng Record o(Dedsion/Approved RMPA March 2018 
March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA 2-1

SECTION 2

REFERENCES

Bureau of Land Management (BLM), US Department of the Interior (USDI). 1988. Lower Gila South 

(LGS) Resource Management Plan. Phoenix District, Arizona

_____. 2008. BLM IM 2008-074, Methods for Authorizing Shooting Range Areas on Public Lands. 

Internet website: https://www.ntc.blm.gov/krc/uploads/192/IM%20No.%202008-074%20

Authorizing%20Shooting%20Sports.doc.

_____. 2012. Lower Sonoran-Sonoran Desert NM Proposed RMP/Final EIS. Internet website: 

https://eplanning.blm.gov/epl-front-office/eplanning/planAndProjectSite.do?methodName=

dispatchToPatternPage¤tPageId=21457 .

Foti, P., and N. Chambers. 2005. Sonoran Desert National Monument Recreation Impact Inventory: 

Final Report. Prepared for BLM-Phoenix District. Phoenix, Arizona.

Manning, Robert E. 2011. Studies in Outdoor Recreation Search and Research for Satisfaction. Oregon 

State University Press. Corvallis, Oregon. 
2. References

2-2 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

This page intentionally left blank.
Appendix A

Sonoran Desert National Monument Monitoring 

and Mitigation Protocol
This page intentionally left blank.
March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-1

APPENDIX A

SONORAN DESERT NATIONAL MONUMENT 

MONITORING AND MITIGATION PROTOCOL 

INTRODUCTION

During preparation of the Sonoran Desert National Monument (SDNM) Record 

of Decision (ROD) and Approved Resource Management Plan (2012), the BLM 

attempted to forecast the suitability of recreational target shooting with respect 

to impacts on Monument objects across the SDNM. The approach used in the 

ROD included inherent assumptions that disregarded site-specific levels of 

impacts and did not consider potential impacts on all objects identified in 

Presidential Proclamation 7397. For these reasons, the BLM has developed the 

following monitoring and mitigation protocol to assess and respond to impacts 

from recreation activities on Monument objects and to determine if such 

impacts conflict with the BLM’s mandate to protect the objects of the SDNM.

Within the BLM’s land use planning process, monitoring and mitigation plans 

typically occur at the “implementation level” and would not be included at the 

broader, landscape-scale “resource management plan” level represented by the 

SDNM Target Shooting RMPA/EIS (BLM Handbook H-1610-1). For this reason, 

the monitoring and mitigation protocol developed below is not a complete plan 

but is presented as an initial framework – with specific examples – to illustrate 

how the subsequent, completed protocol would function in the protection of 

the SDNM’s objects.

The goal of the SDNM Monitoring and Mitigation Protocol is to avoid and 

minimize recreation impacts on Monument objects consistent with Presidential 

Proclamation 7397 and the management objectives for each SDNM Recreation 

Management Zone (RMZ) as prescribed by the ROD. The management 

objectives for the two RMZ’s within SDNM are as follows:

1. Juan Bautista de Anza National Historic Trail RMZ (Anza RMZ): 

Established to provide recreation and educational opportunities 

directed at visitors seeking to discover, tour, and learn about the 
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-2 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

Juan Bautista de Anza National Historic Trail, Arizona history, and 

natural history of the Sonoran Desert.

2. Desert Back Country RMZ: Established to provide recreation 

opportunities for visitors seeking a remote, undeveloped, back 

country experience with resource-dependent activities such as 

hunting, camping, hiking, sightseeing, and four-wheel-drive touring.

Physical, social, and administrative settings were described for each RMZ to 

establish standards for the management of recreation impacts on objects of the 

SDNM, and a Limits of Acceptable Change (LAC) method of monitoring and 

responding to such impacts was prescribed in the 2012 ROD (BLM, 2012). 

Thus, this monitoring and mitigation protocol would assess, prevent, and 

respond to impacts resulting from all recreational activities occurring on the 

SDNM, including recreational target shooting.

Impacts on some Monument objects can be remediated through revegetation, 

cleanup efforts, or other methods. Impacts on other Monument objects, such as 

cultural resources, are considered non-remediable; thus, this protocol seeks to 

avoid and prevent impacts on these objects.

LIMITS OF ACCEPTABLE CHANGE

Effective recreation planning and management is adaptive in nature and includes 

a careful blend of scientific data, visitor values, and management objectives 

(“carrying capacity framework”) that is implemented through field monitoring 

and defined responses. Recreational opportunities are defined as specifically and 

quantitatively as possible through management objectives and their associated 

indicators, including standards of quality. Indicator variables are monitored in 

the field to determine if existing conditions meet defined standards of quality 

and management action is taken when and where monitoring suggests that 

standards of quality have been violated or are in danger of being violated

(Manning, 2011). This process is known as “Limits of Acceptable Change” 

(Figure A-1).

Figure A-1. Establishing a Limit of Acceptable Change (LAC).
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-3

SDNM BASELINE STANDARD

Between 2003 and 2005 the BLM, in partnership with Northern Arizona 

University (NAU), inventoried all known sites on the SDNM used for 

recreational purposes (Foti and Chambers, 2005). The entire vehicle travel 

network was driven and at each location where evidence of recreation use was 

detected, a variety of variables were measured and recorded. Variables included 

the presence of rock fire rings, “barren core” areas, damage to trees, and 

damage to cactus. The survey documented 410 sites, and of these, 360 sites 

were located on BLM-administered land within the SDNM boundary. Due to the 

nearness of this inventory to the time of SDNM designation in 2001, this 

recreation site inventory is the best available data on the condition of the 

SDNM at time of designation. This inventory serves as the BLM’s baseline for 

the number and locations of recreational sites that existed at the time of SDNM 

designation (Figure A-2).

SDNM RECREATION MANAGEMENT OBJECTIVES

The two recreation management zones within SDNM: Anza RMZ, and the 

Desert Back Country RMZ were established with differing management goals to 

recognize and manage for distinct visitor opportunities. Each RMZ is comprised 

of three recreation settings – front country, passage, and back country – in 

varying area extents that further define and assist in the management of visitor 

opportunities afforded (Figure A-3). These settings establish the desired 

conditions for recreation resources for each RMZ. Management actions and 

allowable uses can only be allowed if they remain within the criteria identified 

within the setting prescriptions. These settings were established in the 2012 

SDNM ROD and approved RMP. As described in this appendix, monitoring 

would be done within each setting area.

Anza RMZ

The Anza RMZ is managed to provide recreational and educational 

opportunities directed at visitors seeking to discover, tour, and learn about the 

Juan Bautista de Anza National Historic Trail (NHT), Arizona history, and the 

natural history of the Sonoran Desert (BLM, 2012). The Anza RMZ consists of 

approximately 52,800 acres, of which 55 percent is a backcountry recreation 

setting, 45 percent is a front country recreation setting, and less than 1 percent 

is a passage recreation setting (Figure A-4). Foti and Chambers identified 177 

recreation impact sites in this RMZ.

Desert Back Country RMZ

The Desert Back Country RMZ is managed to provide recreational 

opportunities for visitors seeking a remote, undeveloped, backcountry 

experience with resource-dependent activities such as hunting, camping, hiking, 

sightseeing, and four-wheel drive touring. The Desert Back Country RMZ 

consists of approximately 433,600 acres, of which 88 percent will be managed 

for a backcountry recreation setting, 12 percent for a front country recreation 

setting, and less than 1 percent for a passage recreation setting (Figure A-4). 

Foti and Chambers identified 183 recreation impact sites in this RMZ.
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol A-4 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol 

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-5 

Figure A-3. Recreation setting conditions from the 2012 SDNM ROD. 

Front Country Setting: Front Country offers intensive, resource-dependent recreational uses and facilities. 

The lands are generally natural in appearance and may see minor to moderate alterations over the life of the RMP 

due to land use authorizations and BLM management actions. Motorized and mechanized vehicles must remain on 

designated routes.

Physical Conditions 

 Remoteness = Moderately remote, within a one- to two-hour drive from urban and rural communities.

 Naturalness = Mostly natural environment with low to high evidence of human changes at specific attractions.

 Facilities = The extent of developed user facilities will be low to high.

Social Conditions 

 Contacts = Moderate to high level of interaction (average 25-75 individuals singly or in groups per day).

 Group Size = Generally the maximum group size would be up to 75 individuals, but groups of up to 200 may 

be encountered under permit.

 Evidence of Use = In local areas (1 acre or less), minor impacts on soil and vegetation persist from year to year.

Administrative Conditions 

 Mechanized Use = Motorized and mechanized use on designated routes only.

 Management Controls = Moderate to high management presence.

 Visitor Services = Visitor information levels are moderate to high.

Passage Setting: Passage offers motorized travel corridors traversing the Back Country setting. In the SDNM, 

corridors are centered on a motorized travel route designated for public use, are 200 feet wide (100 feet each side), 

and are available for management infrastructure in response to resource concerns and visitor demand. The lands are 

generally natural in appearance and may see minor to moderate alterations over the life of the land use plan due to 

land use authorizations and BLM management actions.

Physical Conditions 

 Remoteness = Remote setting, within a several-hour drive from communities to access areas.

 Naturalness = This zone is mostly natural with low to moderate evidence of human-induced change.

 Facilities = The degree of developed user facilities will be low to moderate.

Social Conditions

 Contacts = Generally the level of interaction among visitors is low (up to 25 individuals per day) but 

occasionally up to 150 individuals singly or in groups per day.

 Group Size = Generally up to 25-50 individuals with the occasional group size reaching 200 individuals.

 Evidence of Use = In local areas (1 acre or less), minor impacts on soil and vegetation persist from year to year.

Administrative Conditions

 Mechanized Use = Motorized and mechanized on designated routes.

 Management Controls = Low to moderate management presence.

 Visitor Services = Visitor information levels are low to moderate.

Back Country Setting: Back Country offers offering undeveloped, primitive, and self-directed visitor 

experiences that do not include provisions for motorized or mechanized access, except for identified routes.

Physical Conditions

 Remoteness = Area is remote and primitive.

 Naturalness = Predominantly natural environment of moderate to large size. Human modifications are 

occasionally evident, but not intrusive.

 Facilities = The degree of developed user facilities will be low to none.

Social Conditions 

 Contacts = The level of interaction among visitors is low. Visitors encounter up to 25 individuals singly or 

in groups per day on designated trails or near community interface, front country, or passage settings and 

10 or fewer individuals singly or in groups per day in more remote off-trail settings.

 Group Size = Generally, a maximum group size up to 50 individuals.

 Evidence of Use = Impacts on soil and vegetation recover yearly or are negligible in extent (0.1 acres or 

less).

Administrative Conditions 

 Mechanized Use = Motorized use is not allowed. Mechanized use is allowed on designated trails.

 Management Controls = Low management presence.

 Visitor Services = Visitor information levels are low.
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol A-6 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-7

Juan Bautista de Anza NHT Trail Management Corridor

The Juan Bautista de Anza NHT Trail Management Corridor (approximately 500 

acres) overlaps the Desert Back Country and the Juan Bautista de Anza NHT 

RMZs, along the Juan Bautista de Anza NHT (see Figure A-4). The trail 

corridor is managed through specific objectives and actions in the 2012 SDNM 

RMP (BLM 2012) to protect the nature and purposes of the Juan Bautista de 

Anza Trail. 

The following actions are examples:

 NT-1 Manage the Juan Bautista de Anza NHT corridor through the 

SDNM through focused management strategies.

 NT-1.1 Manage the historic trail corridor on the SDNM to enhance 

the experience of visitors and to maintain the integrity of the 

historic trail and associated trail sites and the visual setting 

throughout the life of the plan.

 NT-1.1.9 Recreation opportunities will be provided, consistent with 

the Anza NHT objectives. Facilities will be developed and placed 

outside the trail corridor to protect resource values, to provide for 

visitor safety, and to support selected use opportunities. Facilities 

will be developed in the trail corridor only when needed to protect 

trail integrity and resources or to establish an Anza NHT recreation 

retracement route.

 NT-1.1.12: The historic landscape and visual values of the Anza 

NHT corridor and the Anza NHT Management Area will be 

protected to provide the visitor with an opportunity to appreciate 

the historic character of the area.

SDNM LIMITS OF ACCEPTABLE CHANGE

The baseline condition for the SDNM described above, combined with the 

standards of quality represented by the recreation settings established in the 

SDNM ROD, allow for development of a LAC method of managing the SDNM 

to protect Monument objects. The associated field monitoring protocol and 

management responses (mitigation measures) will assess and respond to field 

conditions on the SDNM related to the physical, social, and administrative 

parameters of the recreation settings (Figure A-5).

The baseline inventory of recreation sites present on the SDNM during 2003-

2005, combined with the maximum allowable evidence of use per site provided 

by the SDNM ROD, suggest an appropriate maximum evidence of use observed 

in the field. For the Front Country Setting of the Anza RMZ, that total is 164 

acres. Including acres for both the Passage and Back Country Settings, the total 

maximum recreation evidence of use across the entire SDNM is 325.8 acres 

(Table A-1).
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-8 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

Figure A-5. Formula for SDNM Limits of Acceptable Change.

Table A-1

Maximum Allowable Evidence of Use (acres) by SDNM Recreation Management Zone and 

Setting

Management Zone and

Setting Total Sites

Maximum Allowable 

Evidence of Use per 

Site (acres)

Maximum Allowable 

Evidence of Use 

(acres)

Juan Bautista de Anza NHT RMZ

Front Country 164 1.0 164.0

Passage 7 1.0 7.0

Back Country 6 0.1 0.6

Subtotal: 177 171.6

Desert Back Country RMZ

Front Country 88 1.0 88.0

Passage 63 1.0 63.0

Back Country 32 0.1 3.2

Subtotal: 183 154.2

Total: 360 325.8

Physical Impact Monitoring 

The standard of quality from the SDNM ROD prescribes that an individual site 

located in the Front Country or Passage Settings may not have an evidence of 

use perimeter exceeding one acre in extent, and in the Back Country Setting 

may not have an evidence of use perimeter exceeding one-tenth acre in extent. 

Other standards that may be developed for monitoring and response to physical 

impacts could include: 1) the risk that a specific site may reach these maximum 

standards in the future, 2) the occurrence of new sites, 3) the total number of 

sites present on the SDNM, 4) the density of sites in a particular area, or 5) the 

aggregate size of all sites relative to the maximum allowable as prescribed by the 

setting standards.

Impacts observed within and around the barren core of a recreation impact site 

represent the site’s “evidence of use.” The presence of a site would be cross 
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-9

referenced with the 2003-2005 baseline recreation impact survey or recorded 

as a new site as applicable. Beginning at one end of the site, the evaluator(s) 

sweep the entire area to the logical end of most recreational activity. When 

walking across the entire area, the evaluator(s) look for signs of visitor use or 

impacts, such as the presence and size of a barren core, fire pits, social trails, 

damage to vegetation, solid waste, and other impacts. At the presence of each 

of these variables, the field evaluator(s) would:

1. Place one color pin flag on or near the edge of the impacted area to 

delineate the perimeter of the site (evidence of use)

2. Place a different color pin flag near the edge of the barren core area 

as they walk around

3. Place a different color pin flag on or near each of the impacts that 

are observed on the site. This would help keep a tally of the number 

of each of the critical impact variables that are encountered (Figure 

A-6). 

When the evaluator(s) have concluded their sweep of the site, the evaluator(s) 

uses a GPS unit or tablet to complete the following:

1. Take a photo or video of the site, including all of the impacts

2. Create a polygon for the entire perimeter of the site

3. Create a polygon for the perimeter of the barren core of the site

4. Utilize a standard data schema to record the remaining physical 

impacts of the site

5. Calculate the area of the site

In addition to measuring the site perimeter/evidence of use, it is also important 

to measure the risk that a particular site may be in that would lead to the 

maximum allowed standard. This would allow the BLM to take action(s) to 

manage a site prior to becoming a more pressing management problem. A site 

may pose a risk of growing in size based upon the presence of impact indicators 

normally measured in the field and described above. For example, increased or 

heavy use of a site may cause noticeable impacts such as a larger barren core, 

presence of damage to vegetation, presence of multiple fire pits and social trails, 

and increased litter. These variables, assessed by levels of presence, provide 

clues as to the future direction of a site toward increased evidence of use. 

Figure A-7 presents a matrix of indicators and risk criteria that has been 

developed by the BLM to assess such risk at recreation sites on the SDNM.
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-10 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

Figure A-6. Representation of field method to record impact site impact variables.
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol 

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-11

Figure A-7. Criteria for assessing the risk that a specific recreation impact site may increase in 

evidence of use. 

If thresholds for these indicators are reached or are at risk of being reached, 

responses might include: 1) increased custodial efforts such as increased patrol 

by BLM law enforcement staff, signage, and education efforts, 2) more frequent 

monitoring, 3) rehabilitation and/or revegetation to bring sites below standards, 

4) removal action, or 5) temporary or long-term closure if problems persist. 

Long-term closures would likely require a plan amendment and appropriate sitespecific NEPA analysis; in many cases, BLM may publish a temporary closure 

order consistent with 43 CFR 8364.1 and with appropriate NEPA compliance. 

Social Impact Monitoring 

Social impacts would be assessed to determine whether the BLM is achieving 

the objectives of each RMZ (BLM, 2012). To assess social impacts, visitor 

expectations and perceptions would be assessed, including safety, management 

effectiveness, and expectations of experience opportunities. Such information 

would be derived from:

 Responses from visitor satisfaction surveys 

 Complaints from visitors 

 Law enforcement incident reports

 Visitation numbers that directly correlate to user interactions (to 

ensure management to the levels identified in the ROD)

Management responses to mitigate social impacts would be similar to those 

described above for physical impacts and could include increased law 

enforcement patrols, signage, educational efforts, and partnership agreements 

Indicators I II III

Barren Core (sq. ft.) <200 201-500 >500

Campfires (#) 1 2 >3

Damaged Cactus (#) 0 1 >2

Damaged Shrubs (#) 0 1 >2

Damaged Trees (#) 0 1 >2

Human Waste (#) 0 1 >2

Solid waste (volume) <1 gal 1-5 gal >5 gal

Damaged Outcrops (#) 0 1 >2

Social Trails (#) 0 1 >2

 A site is considered at LOW risk of an increasing “evidence of use” perimeter of use” if two or fewer 

indicators are present from levels I or II, and none from level III.

 A site is at MODERATE risk of an increasing “evidence of use” perimeter if three or fewer indicators 

are present, only one of which can be from level III.

 A site is at HIGH risk of an increasing “evidence of use” perimeter if three or more indicators from 

levels II or III are present.

Level
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-12 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

with user groups. Management responses would be the responsibility of the 

BLM and subject to agency resources, but the BLM would prioritize 

partnerships to leverage agency resources and to ensure effectiveness of 

monitoring and mitigation. The threshold for social impacts would be to 

maintain the visitor experience described in each RMZ’s objective as discussed 

in the ROD. 

Administrative Impact Monitoring

Administrative impacts would be assessed to determine whether the BLM is 

achieving the objectives of each RMZ (BLM, 2012). To address administrative 

impacts that near or exceed standards, the cost and frequency of management 

responses, such as site remediation, would be assessed from:

 Cost of remediation (site)

 Frequency of remediation (same site)

 Time taken to remediate (site) 

 Effectiveness of management actions over time to ensure that the 

limits of acceptable change strategy is maintained

Management responses to mitigate administrative impacts would be similar to 

those described above for social and physical impacts and could include 

increased law enforcement patrols, signage, educational efforts, and partnership 

agreements with user groups. The threshold for administrative impacts would 

be to maintain the visitor experience described in the each RMZ’s objective as 

discussed in the ROD.

Mitigation Responses

Management responses to mitigate physical, social, and administrative impacts 

may be taken at any time by BLM staff or volunteers, but generally would be 

prioritized by recreation site size and risk level with the overall goal of 

maintaining the area of recreation-related surface disturbance in the SDNM at 

or below baseline conditions (Figure A-8). Such mitigation efforts would be 

expected to be effective within 12 to 24 months; if not, the site would be 

advanced to the next higher risk level for increased mitigation response. 

Additionally, mitigation may be enacted to consider the cumulative combination 

of physical, social, and administrative impacts present across the SDNM, or in 

the presence of non-remediable impacts (such as cultural resources and tribally 

important places and resources). Such non-remediable impacts would lead to 

immediate closure of a site to any recreation activities. The BLM would seek to 

avoid these types of non-remediable impacts via increased monitoring and 

avoidance measures for sites in close proximity to known cultural resources. If 

tribal consultation results in identification of species and locations of plants 

collected for seasonal tribal food sources, the BLM would implement avoidance 

and mitigation measures, possibly including temporary or long-term closures, to 

protect these resources.
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-13

Site Rating Standard Operating Procedures or Mitigation 

Measures

Measure of 

Effectiveness

Within 

Standards, Low 

Risk

Goal: Maintain 

the site

 Annual monitoring (standard operating procedure)

 Quarterly BLM staff maintenance/custodial tasks 

(standard operating procedure)

 Quarterly BLM law enforcement patrols (standard 

operating procedure)

 Annual preventative education and outreach 

measures (standard operating procedure)

Maintain a low-risk site 

rating in subsequent 

rounds of monitoring.

Within 

Standards, 

Moderate Risk

Goal: Maintain 

the site or 

reduce to a site 

rating of Low

 Semi-annual site monitoring

 Monthly BLM staff maintenance/custodial tasks

 Monthly BLM law enforcement patrols

 Institute site specific preventative education and 

outreach measures through signs at the site and 

semi-annual on-site education trailer presentations

 Sponsor site maintenance projects – BLM staff 

and volunteers:

o Revegetating brush and cactus at the site, 

as needed 

o Raking out trails on-site, as needed

o Scattering rock fire rings on-site, as 

needed

o Removing evidence of use from rock 

outcrops on-site, as needed

o Placing natural rock barriers at the site, as 

needed to prevent site expansion

A reduction of site 

rating to low risk during 

the next scheduled site 

monitoring would 

display effectiveness.

Within 

Standards, 

High Risk

Goal: Reduce 

site rating to 

Moderate or 

below

 Quarterly site monitoring

 Biweekly BLM staff maintenance/custodial tasks

 Biweekly BLM law enforcement patrols

 Institute quarterly site-specific preventative 

education and outreach measures

 Sponsor site maintenance projects – BLM staff 

and volunteers:

o Revegetating brush and cactus at the site, 

as needed 

o Raking out trails on-site, as needed

o Scattering rock fire rings on-site, as 

needed

o Removing evidence of use from rock 

outcrops on-site, as needed

o Placing natural rock barriers at the site, as 

needed, to prevent site expansion

 Implement temporary site closure until 

remediation completed and site rating is reduced 

to low risk 

o Sign the site notifying the public of 

temporary closure

o Place cement barriers or natural barriers 

to prevent access while closure is in place.

A reduction of site

rating to moderate or 

low risk during the next 

scheduled site 

monitoring would 

display effectiveness.
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-14 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

Site Rating Standard Operating Procedures or Mitigation 

Measures

Measure of 

Effectiveness

Exceeds 

Standards

Goal: Remediate 

to below 

maximum 

standard or close 

to use

 Implement temporary site closure until 

remediation is completed and site rating is 

reduced to low risk

 Through the administrative monitoring process, 

such as cost and frequency, the BLM would 

determine the potential need for long-term site 

closure/analysis through NEPA process

A reduction of site 

rating to moderate or 

low risk during the next 

scheduled site 

monitoring would 

display effectiveness.

Figure A-8. Example of mitigation responses by LAC standards and risk levels.

Example of Monitoring and Evaluation of Site Specific Physical Impacts

The following example (Figure A-9) describes a recreation site that is within a 

Front Country setting and illustrates the application of the monitoring and risk 

assessment protocols described above. The site has a total evidence of use of 

0.33 acres and is within the maximum allowable standard; however, the 

combination of impact variables recorded in the field indicates that the site is at 

high risk of increasing in size. This situation calls for a management response to 

educate the visiting public about the possibility that the site may not continue to 

be available in the future if the trend toward increased evidence of use is not 

reversed. Such responses may include increased patrols, remediation of a fire 

ring and the social trail, and signing advising of the importance of not damaging 

native vegetation.

PREVENTION AND AVOIDANCE: EDUCATION AND OUTREACH

In an effort to educate the public and promote responsible recreation through 

ethics, education, and stewardship programs, Tread Lightly! has been engaged by 

BLM-Arizona since 2012 to develop the “Respected Access is Open Access” 

education campaign into a full-fledged, systematic and persuasive stewardship 

initiative to motivate positive behavioral changes in the public in order to 

develop a stronger sense of ownership and appreciation of shared and 

respected access to America’s public lands.

Objective: To expand the existing “Respected Access is Open Access” 

education campaign into an education, outreach, and engagement initiative that 

promotes responsible recreational target shooting on the public lands across 

Arizona , informs visitors about public lands and the importance of outdoor 

ethics to foster good environmental stewardship as well as promote the value of 

responsible outdoor recreation and volunteer opportunities; engages the 

recreational target shooting community in adopting the Tread Lightly! ethic of 

responsible use and through minimum impact principles; supports law 

enforcement programs and services to educate visitors about rules, regulations, 

and responsible recreation behaviors, and enforces laws and ordinances when 

necessary; and evaluates efforts required to provide safe and responsible 

recreational target shooting practices and long-term sustainability through site 

monitoring, follow-up reports, and comprehensive monitoring.
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-15

Figure A-9. Example recreation site monitoring and risk assessment.
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-16 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

Technical Approach

Goal 1: Promote stakeholder collaboration and ownership to support shared 

and respected access to public lands within the Sonoran Landscape.

Goal 2: Manage an education campaign to inform visitors about public lands and 

the importance of outdoor ethics to foster good environmental stewardship as 

well as promote the value of outdoor recreation and volunteer opportunities.

Audience: Recreational target shooting groups, un-affiliated target shooters, 

special events, nongovernment organizations (NGOs), conservation 

organizations, and off-highway vehicle groups.

Strategies:

1. Tread Lightly! would continue to expand the education, 

communication and stewardship efforts under the “Respected 

Access is Open Access in Arizona” campaign.

2. Tread Lightly! would dedicate partnership coordinator(s) to ensure 

the efficient and effective implementation of education, 

communication, and engagement strategies. Partnership 

coordinators would provide regular updates and work directly with 

the AZ Work Group to accomplish the strategies outlined 

throughout the plan, with guidance and oversight from Assistant 

Director and Executive Director of Tread Lightly!.

3. Tread Lightly! would promote the “Respected Access is Open 

Access in Arizona” message to the recreational target shooting 

community.

a. Attend a minimum of one event quarterly.

b. Distribute ethics education materials to community outlets, 

particularly, shooting sports retailers, indoor shooting ranges, 

sporting goods stores, and visitor centers.

c. Materials for distribution would include:

i. Graphic representation of Tips for Responsible 

Recreational Shooting from Tread Lightly!, in digital and 

print format.

ii. Respected Access in Arizona Public Service 

Announcement Posters.

iii. Responsible Use Hangtags.

iv. Where to Shoot in Arizona Brochure.

v. Counter Top display – which provides messaging and a 

presentation format.

vi. Outdoor signs/Kiosks (as needed and where appropriate).
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-17

Marketing and Communications

1. Tread Lightly! would promote the “Respected Access is Open 

Access in Arizona” message through key messaging directed toward 

the following target behaviors:

a. Issue: Litter left behind from recreational target shooting 

including targets, clay pigeon fragments, shell casings, improper 

targets, shattered glass and electronics, etc.

b. Issue: Reduce natural resource and property damage to trees, 

shrubs, cacti, cultural sites and artifacts, signs, trash cans, and 

structures.

c. Issue: Reduce the amount of illegal dumping of household waste 

(furniture/appliances and garbage) at or near recreational target 

shooting areas that subsequently become targets for shooting.

d. Focus on “Trigger Trash” messaging throughout key messages 

and campaign materials.

2. Internal/Inter-agency communication and marketing strategies would 

include:

a. Provide campaign collateral materials (i.e. Public Service 

announcements (PSA)s, talking points, etc.) to the Arizona 

Workgroup partners for integration into agency communication 

materials.

b. Work directly with agency Public Information Officers (PIO)s 

on quarterly updates and coordinated communication and 

media outreach.

c. Provide a communications calendar that would include social 

media efforts/messages, as well as scheduled media efforts in 

support of campaign education, outreach and stewardship 

strategies.

d. Quarterly Arizona Work Group updates via conference call, 

meeting, or email update.

3. External Communications and Marketing strategies would include:

a. Engage recreational shooters in the ACT pledge: Be 

Accountable, Clean up after yourself, Tread Lightly! on Public 

Land.

b. Content Creation

i. Website – OpenAccessArizona.org or 

respectedaccessarizona.org

ii. Press Releases/Community Communications – quarterly 

press releases with an ethics tip to keep campaign on 

public’s radar
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-18 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

iii. Editorial Coverage – Highlight campaign efforts through 

interviews with local and regional media sources, outdoor 

shows, and industry supporters.

iv. Public Service Announcement Placement – Examples of 

these publications are: Arizona Wildlife Views, wildlife 

guidebooks, BLM and Forest Service agency maps and laws 

and rules highlights, Arizona Travel Council publications, 

Forest Service publications, gun and shooting magazines, 

High Country News, New Times.

1. Distribute the PSA’s in poster format to local 

retailers where guns and ammunition are sold.

v. Outdoor Billboards

1. Priority locations include:

a. Near retail outlets in the Phoenix area including 

Cabela’s, Bass Pro, Walmart, Sportsman’s 

Warehouse.

b. Access points to heavily used recreational 

target shooting areas including the Sonoran 

Desert National Monument and outlets along I17, I-8, and other priority areas as funding 

allows.

vi. Brand Awareness – Decals, t-shirts, hats, pins and bumper 

stickers to further boost visibility of the campaign.

vii. Promotional Video - Series publicized on YouTube, Social 

Media outlets, and via retail outlets

viii. Social Media – Create and Maintain social media platforms 

for the campaign

1. Focus on building grassroots support and utilize 

support network to distribute educational 

messages, recruit volunteers and share land 

management alerts (i.e. fire restrictions, seasonal 

restrictions, etc.)

2. Share and Tag posts with community/stakeholder 

groups

ix. Online Marketing - Placement (paid and/or pro bono) of 

campaign messaging via online portals, including:

1. Enthusiast forums

2. Agency Partner sites

a. Recreational Shooting, maps and information
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-19

c. Communications Tactical Plan

i. Create communication calendar (6 month time span) to 

include social media messages, press releases, and 

campaign promotion timeline in support of campaign 

strategies

d. Community Communications

i. Continue to build the campaign email database via the 

campaign website and sign up lists from outreach events

ii. Send Monthly updates to email database to provide 

engagement opportunities and keep the recreation 

community apprised of campaign efforts

iii. Cultivate relationships with local groups and provide 

quarterly updates for send out to 

membership/followers/members

Stakeholder and Community Engagement

1. Tread Lightly! would continue engagement with key 

community/stakeholder groups in the education, outreach, and 

stewardship strategies

a. Build list of stakeholder contacts

i. Enthusiast/User Groups

ii. Environmental/Resource Protection Groups

iii. Non-profit/community orgs

b. Coordinate an annual meeting to discuss accomplishments, 

provide resources, and discuss issues and strategies regarding 

natural resource protection and community engagement.

i. Coordinate annual meeting with Stakeholders.

1. Provide campaign updates

2. Address any additional issues and target locations 

for strategies

3. Engage partners in implementation strategies

c. Provide campaign collateral material for integration into 

stakeholder groups existing efforts.

2. Engage a minimum of 500 volunteers in stewardship activities 

annually, focused on recreational target shooting locations on public 

lands that have been adversely affected by irresponsible recreational 

target shooting practices.

a. Adopt a Desert – Provide stewardship project guidelines, 

marketing support, volunteer recruitment, and financial support 

to encourage stewardship of public lands areas popular to 
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-20 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

recreational shooters through sponsorships. Local groups are a 

strong stakeholder critical in ensuring stewardship of favorite 

recreational spots.

b. $500-$2000 sponsorships for supplies

3. Collaboration with existing community enthusiast groups regarding 

ethical recreation use to fully immerse the Respected Access 

messaging throughout the recreation community.

a. Arizona Off-Highway Vehicle Ambassador Program

b. Rio Salado Sportsmen’s Club

c. Wildlife for Tomorrow

d. Priority stakeholders would include:

i. Groups that work with recreational shooters

ii. Sportsman Groups

iii. Groups that engage youth in outdoor recreation

iv. Groups with a Stewardship focus

4. Tread Lightly! would work to leverage agency partner funding with 

private partner funding to expand education, marketing and 

stewardship efforts while establishing a model public/private 

partnership model.

Enforcement

1. Coordinate with agency partners to implement routine patrols to 

educate users about the impacts of resource damage and promote 

responsible recreational target shooting at identified “concentrated 

use” areas.

2. Engage LEO’s in tracking/monitoring dispersed recreational target 

shooting locations on public lands

a. AZGFD would coordinate with BLM and Forest Service

b. Analyze reporting data and citation data semi-annually

i. Identify areas in need of education, outreach, signage

ii. Track changes in citations and reports over time

Evaluation

1. Tread Lightly! would provide the BLM support in user monitoring, 

evaluation of education and outreach efforts and natural resource 

monitoring as needed.

a. Work with the BLM to implement resource monitoring of 

dispersed recreational target shooting sites on the Sonoran 

Desert National Monument
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

March 2018 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA A-21

b. Establish evaluation of attitudes and behaviors associated with 

the Respected Access is Open Access in Arizona campaign to 

assess public awareness of the campaign messages and issues the 

campaign is designed to address.

i. Identify success indicators

ii. Track success indicators

iii. Communicate results and adjust

Measures

 Develop messaging such as posters, public service announcement, 

purchase of key internet search words etc. to bring awareness to 

the campaign and address the issues related to responsible 

recreational target shooting on public lands

 The number of public service announcements, brochures, videos, 

and other marketing materials that were cooperatively developed to 

promote the campaign’s key messages

 The number of social media posts the campaign partners promote 

on their various platforms, and the resulting number of shares, likes, 

etc.

 The number of stewardship volunteer projects, educational efforts, 

and other public outreach events held that integrate the campaign’s 

key messages and the number of individuals, including youth, who 

participated in each event

 The number of free and paid advertisements of campaign materials 

placed in local, regional, national, and international online and print 

media outlets

 The total number of visitors to the Respected Access Arizona 

website

 The number of trailheads, visitor centers, interpretive exhibits, and 

other recreational facilities where campaign materials were 

promoted

 The estimated number of individuals who saw campaign materials 

through all efforts

GLOSSARY OF TERMS

Back Country Setting: Areas offering undeveloped, primitive, and self-directed 

visitor experiences that do not include provisions for motorized or mechanized 

access, except for identified routes.

Barren Core: A hardened area with compacted soil and void of vegetation.

Front Country Setting: Areas offering locations for intensive, resource-dependent 

recreation uses and facilities. Motorized and mechanized vehicles must remain 
A. Sonoran Desert National Monument Monitoring and Mitigation Protocol

A-22 Sonoran Desert National Monument Target Shooting Record of Decision/Approved RMPA March 2018

on existing or designated routes. The lands are generally natural in appearance 

and may see minor to moderate alterations over the life of the land use plan 

due to land use authorizations and BLM management actions.

Monitoring: The periodic observation and orderly collection of information to 

determine: 1) the effects of resource management actions and allowable uses by 

tracking changing resource trends, needs, and conditions; and 2) the 

effectiveness of actions in meeting management objectives.

Passage Setting: Areas offering motorized travel corridors traversing the Back 

Country setting. In the SDNM, corridors are centered on a motorized travel 

route designated for public use, are 200 feet wide (100 feet each side), and are 

available for management infrastructure in response to resource concerns and 

visitor demand. The lands are generally natural in appearance and may see 

minor to moderate alterations over the life of the land use plan due to land use 

authorizations and BLM management actions.

Recreation Experiences: Psychological outcomes realized either by recreationtourism participants as a direct result of their onsite leisure engagements and 

recreation-tourism activity participation or by non-participating community 

residents as a result of their interaction with visitors and guests within their 

community and/or interaction with the BLM and other public and private 

recreation-tourism providers and their actions.

Recreation Management Zones (RMZs): Sub-units within a Special Recreation 

Management Area or Extensive Recreation Area managed for distinctly different 

recreation products. Recreation products are comprised of recreation 

opportunities, the natural resource and community settings within which they 

occur, and the administrative and service environment created by affection 

recreation-tourism providers, within which recreation participation occurs.