MANAGEMENT DIRECTION

chapter 4
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 67

This chapter describes the direction of refuge

management over the 15 year life of the CCP. The focus

of both wildlife and habitat management and public use

management are summarized followed by a detailed

description of the objectives and strategies for achieving

each of the refuge goals. 

4.1. WILDLIFE AND HABITAT AND PUBLIC USE

MANAGEMENT DESCRIPTIONS

With many miles of trail, thousands of acres of

grassland habitat and a beautiful mountain backdrop,

the Refuge could become a popular destination for

wildlife enthusiasts, naturalists and students within the

Denver metropolitan area. The visitor experience at the

Refuge will be characterized by the Service’s

commitment to providing visitors with an understanding

and appreciation of the flora and fauna of the prairie

ecosystem. The Service’s efforts to connect visitors to

their natural resource heritage will build upon regional

efforts to promote an appreciation for the grassland

environments. 

Given the current cleanup of the Rocky Flats

Environmental Technology Site and the Service’s

commitment to habitat conservation and enhancement,

the Refuge will provide an excellent opportunity to

educate the public about the processes of grassland

restoration and to actively involve them in the

rehabilitation of the landscape. 

WILDLIFE AND HABITAT MANAGEMENT

Preble’s Habitat Management

Riparian and wetland communities at the Refuge support

habitat for a variety of wildlife species, including the

threatened Preble’s meadow jumping mouse. The Service

will protect and maintain Preble’s habitat throughout the

Refuge. While meeting the Service’s obligations under the

Endangered Species Act, the protection of Preble’s

habitat also will serve other species that depend on

riparian and wetland communities for survival. 

The Service will also strive to improve habitat for the

Preble’s meadow jumping mouse (and other riparian

species). Part of the riparian habitat enhancement efforts

will be the removal and revegetation of unused roads and

stream crossings. The Service will conduct surveys of

Preble’s habitat every 2 to 3 years to detect changes in

size and location of existing populations. Surveys will

include monitoring plant diversity in riparian areas. The

Service will seek funding and partnerships to assist in

monitoring the impacts of recreational use on Preble’s and

its habitat.

Xeric Tallgrass Management

The rare xeric tallgrass grassland community, which

dominates the pediment tops in the western portion of the

Refuge, is an important natural resource that needs

special consideration and management. The Service will

manage the xeric tallgrass to maintain the extent and

improve the native species composition of this community.

The Service will develop a vegetation management plan to

direct management efforts (including herbicide

application, biological controls, prescribed fire, grazing

and mowing) and will monitor species composition and

weed infestations every few years to ascertain the

effectiveness of management efforts. 

Mixed Grassland Prairie Management

Nearly half of the Refuge consists of mixed grassland

prairie communities. While these communities are

relatively common along the Colorado Front Range, they

play an important role in providing habitat for various

Chapter 4. Management Direction

Prairie coneflower in the mixed prairie grassland.

© Nelson, RFETS
Chapter 4: Management Direction 

68 Rocky Flats National Wildlife Refuge 

wildlife species. Management strategies for the mixed

grassland prairie include the use of prescribed fire and

the use of managed grazing. In the southeast corner of

the Refuge, a former agricultural field has been planted

with non-native grasses. The Service will revegetate this

and other disturbed areas with native grassland species

that will improve the extent and diversity of grassland

habitat. In all alternatives, additional management

strategies will be implemented in the mixed grassland

prairie communities according to the objectives and

strategies outlined under weed management, prairie dog

management, habitat restoration and species

reintroduction.

Road Restoration and Revegetation

Rocky Flats currently has over 70 miles of roads, of which

about 50 miles will be under Service jurisdiction. Roads

and stream crossings that will not be used for

maintenance access, fire control, trails, or other Refuge

purposes will be removed and revegetated. The

restoration effort will entail the removal and revegetation

of 26 miles of road and13 stream crossings

Weed Management

Noxious weeds present a tremendous challenge to the

health and diversity of native plants and wildlife habitat on

the Refuge. The Service will control the spread and

reduce the density of diffuse knapweed, Dalmatian

toadflax and Canada thistle during the 15-year timeframe

of the CCP. 

Weed management scenarios will employ a comprehensive

IPM approach, including the use of herbicides, biological

controls, mechanical removal, prescribed fire and

controlled grazing. Weed infestations will be mapped

annually. Additional methods will include informal surveys

along roads and trails and temporary fences to collect

tumbleweeds which disperse seeds with the wind.

Deer and Elk Management

While the sizes and locations of deer and elk populations

at the Refuge are well known, the carrying capacity of the

habitat at the Refuge relative to population size has not

been determined. The Service and/or CDOW will

determine a target population for deer and elk on the

Refuge and will seek to manage those levels. Tools to

attain these population goals include culling by Service

and/or CDOW staff and a limited public hunting program.

Managing deer and elk within target population levels for

the Refuge will minimize the potential for overgrazing and

overbrowsing of sensitive riparian habitat. The Service

will monitor sensitive areas for such impacts. 

Prairie Dog Management

The short and mixed grassland communities in the

eastern portions of the Refuge provide up to 2,460 acres

of habitat for black-tailed prairie dog. About 113 acres of

prairie dog colonies were mapped at the Refuge in 2000.

Due to recent plague outbreaks, about 10 of those acres

are currently occupied. Prairie dog populations will be

allowed to expand naturally within their primary habitat

areas. Colonies will be limited to 750 acres. The Service,

however, will not accept unwanted prairie dogs that are

relocated from other jurisdictions.

Species Reintroduction

The task of restoring native species to the Refuge has

already begun. In 2003, two native fish species that have

been decreasing regionally were introduced into Rock

Creek. Additionally, the CDOW, the City of Boulder, and

Boulder County introduced a population of sharp-tailed

grouse onto their open space properties north of the

Refuge. The Service will continue to work with CDOW to

facilitate species reintroduction at the Refuge. The

Service will take active steps to evaluate the suitability of

additional species reintroductions and to complete a

management plan for sharp-tailed grouse reintroduction

on the Refuge.

PUBLIC USE MANAGEMENT

The Refuge will be open to the public for a variety of uses.

Three aspects of refuge management that will shape the

visitor’s Refuge experience are public outreach,

interpretation, and public use activities and facilities.

These components of refuge management are described to

illustrate how a visitor would experience the Refuge. 

The public outreach component describes methods used to

educate the potential visitor about the Refuge, pique their

interest, and recruit them to participate in public use

programs. The interpretation component identifies

critical stories to be told and the natural and cultural

resources that will become the basis for educational and

interpretive activities. How visitors access the site, what

activities they enjoy, where they travel and what facilities

they encounter are outlined in the public use activities and

facilities component. 

Public Outreach

Improving public perception of the Refuge by informing

visitors about the site’s natural resources and addressing

safety concerns is essential to the development of

successful public use programs. Past concerns about

contamination, radiation exposure and other

environmental risks have fostered apprehension about
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 69

Figure 17. Comprehensive Conservation Plan
Chapter 4: Management Direction 

70 Rocky Flats National Wildlife Refuge 

visiting the Refuge. The Rocky Flats site has been closed

to the general public for over 50 years and the lack of

access opportunities has also contributed to fearful

speculation about the site’s condition. 

In an effort to assuage public safety concerns, the Service

will develop public outreach programs and attempt to

build a stronger base of public understanding, support and

stewardship within the Denver metropolitan area through

a variety of outreach methods.

Communication

The “Open and Effective Communication” goal (described

in Chapter 1) is driven by the Service’s commitment to

provide the public with clear information about the safety

of the site, instill confidence in the Service’s ability to

provide safe visitor experiences and to develop community

support for the Service’s programs and management

policies. In response to the concerns raised during public

scoping regarding the site’s history and contamination,

the Service sees the value in developing a communication

goal to guide public outreach efforts. The goal clearly

emphasizes the importance of educating the public about

the Refuge, the Service and the NWRS.

The Service will develop of a variety of public outreach

methods to inform the public about environmental

stewardship, risk communication, CCP implementation,

and the mission of the Service and the NWRS. For

example, a visitor may learn about the Refuge and

opportunities to visit the site through media coverage,

newsletters and flyers, or by attending community events.

To reach a broad range of people, the Service will

coordinate with local partners to participate in community

events and provide input on local environmental issues.

The outreach efforts will be instituted during the first

year of the Refuge’s establishment and will be ongoing

throughout the life of the CCP.

Interpretation

The goal of the interpretive programs at the Refuge is to

inform the public about the Rocky Flats site, educate

about resident wildlife and their habitats, and cultivate a

stewardship ethic. Committed to fostering an appreciation

of the Refuge’s natural resources, the Service developed

interpretive themes that focus on wildlife, wildlife habitat

and the site’s history. Providing the public with

interpretive information and programs will enhance the

public’s understanding of their surrounding natural

environment and increase support for the Service’s

habitat conservation efforts. 

Interpretive Themes 

Interpretive themes will provide a basis for the

development of public use activities. The themes capture

the essence and importance of ideas, concepts and

features that emerged from the Service’s review of the

Refuge’s natural and cultural resources. 

The four themes represent the central messages that the

Service wants to convey to visitors. The themes provide

the foundation for all interpretive programming and

facility development. Each theme is summarized by a

simple statement and supported by several subthemes.

Linked specifically to certain resources, the subthemes

further define the stories about Refuge resources and the

Service’s role in transforming the site (Table 7). 

Interpretive panels at overlooks will provide information about the Refuge’s natural and cultural resources, such as

Rock Creek and the Lindsay Ranch.

© Shapins Associates
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 71

Interpretive Facilities

A variety of facilities will be developed to help the visitor

better understand the interpretive themes. The primary

interpretive facilities will be signage, displays and a

Refuge website. 

Signage/Displays: Signs and displays varying in design

will help illustrate the historical and natural stories of the

Refuge. Listed below are the types of signage a visitor will

find upon entering and exploring the Refuge: 

• Roadside and Boundary Signs: Signage is

needed to notify people of the Refuge’s

location and direct visitors to the Refuge. A

refuge entrance sign will be placed outside the

main entrance along Highway 93, and the

exterior boundary will be posted with

standard NWR boundary signs. 

• Interpretive Signs: Located at all trailheads

and in selected spots along trails, small signs

will display a map and/or interpretive facts

about a specific location or topic. Trailhead

signs will include information about the site’s

history, clean up and access restrictions.

• Interpretive Sign Panels: Larger signs at

the Rock Creek overlook, the contact station,

and Lindsay Ranch will display interpretive

information about the Refuge’s resources

and/or visitor orientation information.

• Directional Signs: Located at select trail

intersections, signs will provide visitors

direction and announce trail rules 

and regulations.

• Visitor Kiosk: Located outside the contact

station, the kiosk will consist of three panels

fastened to a wooden structure. The kiosk will

provide orientation, regulatory and

interpretative information for visitors entering

the Refuge. 

• Interpretive Displays: Permanent and changing

displays that highlight the Refuge’s natural

resources will be showcased in the contact station.

Theme: Habitat Restoration: “Diverse wildlife populations require healthy plant communities.”

Theme: Wildlife: “Wildlife take refuge at Rocky Flats.”

Theme: Wildlife and People: “Wildlife comes first.”

Theme: History: “Native Americans, settlers and the DOE all used Rocky Flats. Today, it is protected for wildlife.”

Plants for Wildlife: Riparian and prairie plant communities including the rare xeric

tallgrass and tall upland shrublands provide shelter and food for wildlife.

Battling Invasive Weeds: Invasive weeds crowd native plants and degrade habitat at the

Refuge and throughout the West.

Restoring the Prairie: Restoring and maintaining the native prairie requires a variety

of tools and techniques. 

Subthemes: Explore the various types of

habitat at the Refuge and promote visitors’

awareness, understanding and appreciation

of both the prairie ecosystem and the

Service’s restoration efforts.

Home to Wildlife: Refuge wildlife forage and nest in the grasslands, occupy the riparian

areas and migrate to and from adjacent open space lands.

Threatened and Endangered Species: Preble’s meadow jumping mouse, a threatened

species, resides in the riparian habitat found at the Refuge.

Returning to the Prairie: Reintroducing prairie species to the Refuge boosts

biodiversity and creates unique viewing opportunities.

Subthemes: Explore the relationships

between habitat types and the kinds of

wildlife they support.

Watchable Wildlife: Viewing wildlife in a natural setting.

Respecting Wildlife: While an enjoyable activity, wildlife observation requires respect

and consideration for wildlife. 

Subthemes: Explore how wildlife and people

co-exist and how both will benefit from

habitat restoration and conservation.

Prehistoric Prairie Settlement: Native American activity on the plains – describing

settlements, hunting and day-to-day survival on the prairie.

Settling the Frontier: Homesteading on the Great Plains and the establishment of the

Lindsay Ranch.

Plutonium Trigger Production: DOE’s development and management of a nuclear

weapons production site and the cold war history. The Service will work in collaboration

with the Cold War Museum to tell the story of the site as a nuclear production site.

A Renewed Purpose: DOE’s cleanup and closure of the production site and the

Service’s ongoing efforts to restore and conserve the prairie in order to provide habitat

for wildlife and wildlife-dependent public uses.

Subthemes: Interpret the historical periods

that have shaped the site and how

generations have managed to survive in the

harsh climactic conditions of the prairie

landscape.

Table 7. Interpretive Themes
Chapter 4: Management Direction 

72 Rocky Flats National Wildlife Refuge 

Website: A Refuge website will provide a reference

resource for students and the general public to learn from

their classroom and/or home computer fun facts about the

Refuge as well as scientific data related to the grassland

ecosystem and its wildlife. The website will serve several

education levels.

Interpretive and Environmental Education Programs

Outlined below are general descriptions of the types of

interactive and field-based interpretation and

educational activities proposed for the Refuge. Directly

tied to the interpretive themes, the programs will

bolster environmental awareness and appreciation by

highlighting the natural features and history of the

Refuge. Refuge staff will develop and run the programs

with the assistance of volunteers. Programs will be

tailored to attract a diversity of visitors and the types of

programs and their topics will change seasonally. 

• Guided Tours: Refuge staff or a volunteer

will lead interpretive walks that focus on

wildlife, habitat needs, or the site’s other

natural and cultural resources. Tours will

highlight unique characteristics of the site

and identify the interrelationship between

prairie plant communities and wildlife

populations. 

• Nature Programs/Presentations:

Conducted either in the field, in

surrounding communities, or in the contact

station, presentations will offer an in-depth

explanation of a specific topic. To the extent

possible, Refuge volunteers and/or partners

will lead these programs/presentations.

• Hands-On Work: Programs developed to

recruit volunteer participation in prairie

restoration may include seed collection,

weed removal, or seeding. The work

activities will include information sessions

on restoration techniques and the benefits of

restoring prairie habitat. Volunteers also

may be involved with Refuge enhancement

projects such as trail construction and

general maintenance.

• Teacher Resource Guides and

Workshops: Refuge staff will develop

teacher resource guides that present the

necessary information for teachers to

conduct their own environmental education

programs at the Refuge. The guides will

meet Colorado’s model content standards

and will likely include pre-visit activities,

on-site activities, post-visit activities and

assessment activities. Additionally, the Service

will sponsor teacher training workshops to

familiarize local educators with the Refuge’s

resources. 

Public Use Activities and Facilities

Although guided by a “Wildlife First” mission that promotes

the “conservation, management and where appropriate,

restoration of the fish, wildlife and plant resources and their

habitats,” the Refuge System is also committed to investing

in public use facilities and programs that foster an

appreciation of the Refuge’s natural resources. By raising

public awareness and understanding of the prairie habitat

and wildlife, the Service hopes to cultivate a land

stewardship ethic among visitors.

Access

Access to the site will be obtained via a two-lane road off of

Highway 93. The access road will direct visitors to

orientation information, trailheads and parking areas. 

To tie into surrounding existing and proposed trail systems,

additional trailheads will be built on the north, east and

south boundaries of the Refuge. Strategically located to

provide links to proposed trail networks, the secondary

access points along the Refuge boundary will permit visitors

to enter the site on foot, bike and in some cases by horse.

The Refuge will remain open from sunrise to sunset.

Since visitors will be able to enter the site from a number of

access points, each entry will serve as a “use portal” where

signage will inform users about the distinction between where

they came from (e.g., municipal open space) and where they

are going (a National Wildlife Refuge). In addition to

clarifying access opportunities and restrictions and

information on the site’s history and cleanup, the signage will

inform visitors to the conservation practices and priorities

that may differ from surrounding open space areas. 

Wildlife-Dependent Public Uses

The Refuge will provide a spectrum of wildlife recreation

opportunities ranging from guided tours, to hiking, to

interactive interpretation programs. Visitors will explore

and learn about the site independently with the aid of

interpretive facilities including signage, kiosks and printed

materials. Through the careful siting of trails and the design

of visitor use facilities, it will be possible to shape the Refuge

environment so that it invites exploration and reveals

natural processes while minimizing impact to sensitive

areas. Interpretive and educational programs will promote

appreciation of the ecology of the prairie environment and

inspire a greater appreciation for the Front Range’s

remaining grassland habitat. Dogs and other pets will not

be permitted on the Refuge.
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 73

The visitor experience will include opportunities for the

public to engage in hunting, wildlife observation,

photography, interpretation and environmental education.

The public use activities will be carefully managed to avoid

harmful impacts to wildlife and their habitat. Because the

Service will focus on restoration and facility development

during the first 5 years of Refuge operation, most of these

activities will not be instituted until the Refuge is fully

open to the general public (by year 6).

• Hunting: A highly controlled youth and/or

disabled hunting program will be held a few

weekends a year. This program will allow

youth and disabled individuals to hunt deer

and elk with the assistance of Service staff

(and Refuge partners) in a safe environment

where they will have reasonable harvest

opportunities. If necessary, the Service could

consider expanding the hunting program to

include the general public (depending on

wildlife management needs). During special

hunting weekends, the Refuge will be closed to

all other visitors.

• Wildlife Observation and Photography:

Trails, blinds and overlooks will provide

numerous vantage points for observing

wildlife. Naturalists, photographers and other

wildlife enthusiasts will also enjoy

opportunities to view and photograph wildlife

off-trail (between October and May in areas

south of Woman Creek). 

• Interpretation: Upon entering the Refuge,

visitors will find signage, maps and

interpretive panels outside a visitor contact

station. Interpretive and informational

materials at trailheads, overlooks, and the

contact station will educate visitors about

specific site resources such as grassland

restoration, early settlement of the prairie and

wetland ecology.

• Volunteers: A volunteer program will be

developed to provide support for Refuge staff.

Volunteers will assist with orienting and

educating visitors. Any visitor interested in

learning more about the Refuge and, in turn,

improving the Refuge experience for others

will have the opportunity to volunteer. 

• Environmental Education: Throughout the

life of the CCP, the target audience for onand off-site environmental education

programs will be high school and college-level

students. During the initial years of Refuge

establishment (years 1 through 5), students

will be encouraged to engage in researchoriented and independent study. Following

year 5, guided tours and other nature

programs will be designed to explore the

site’s natural and cultural resources and

foster an understanding and lasting

appreciation for the prairie environment.

Viewing blinds will provide opportunities for wildlife observation and photography.

© Shapins Associates
Chapter 4: Management Direction 

74 Rocky Flats National Wildlife Refuge 

Other Public Uses

Visitors will have the opportunity to bike and ride horses

on some of the Refuge’s multi-use trails. Although biking

and equestrian uses are not priority public uses, they will

provide means for visitors to access the Refuge’s interior

to observe wildlife and explore the prairie landscape. 

Biking will be allowed on all multi-use trails, but

equestrian use will be limited to the multi-use trails in the

southern half of the site. The southern multi-use trails will

provide equestrians with links to adjacent trail systems in

Westminster, Broomfield and Arvada.

Off-trail use will be permitted seasonally in the southern

half of the Refuge. Off-trail use will provide visitors with

increased opportunities to view wildlife and to explore the

grasslands.

Facilities 

Facility development will carefully balance opportunities

for visitors to explore the prairie with habitat

conservation. Facility development will include trails,

trailheads (with portable restrooms) overlooks,

information kiosks, viewing blinds, contact station (with

restrooms) and parking areas. 

For the first 5 years of Refuge establishment, the site will

only be open to the general public at scheduled times and

one trail (1.75 miles) to Lindsay Ranch will be open to

pedestrians. The initial trail will extend from the parking

area to the Rock Creek overlook and make a loop within

the Rock Creek drainage. 

Outlined below are all facilities that will be 

developed and open to the public 5 years after the Refuge

is established:

• Trails: Approximately 12.8 miles of multi-use

trails and 3.8 miles of pedestrian-only trails

will be developed. The majority of the trails

will follow converted road corridors away from

riparian areas. Trails within the Rock Creek

drainage and other sensitive areas will be

subject to seasonal closures as needed to

protect wildlife. Looped pedestrian-only and

multi-use trails as well as connections to

adjacent trail systems will accommodate a

variety of trail users. 

• Kiosk: Within a kiosk located outside the

contact station, visitors will find maps of the

trail system, rules and regulations, and

information on Refuge wildlife and habitat.

The kiosk will consist of three sign panels

hung on a wooden structure. The kiosk will be

accessible to all visitors when the contact

station is closed. During the early years of

refuge establishment when access is limited

and before development of the contact station,

Multi-use and pedestrian-only trails will accommodate a variety of trail users. 

© Shapins Associates
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 75

the kiosk will provide information on current

and future public use opportunities.

• Equestrian Uses: Only multi-use trails in the

southern portion of the site will be open to

equestrian uses. Hitching posts will be located

near the contact station, allowing equestrian

users to hike to Lindsay Ranch.

• Trailheads: All entries to the Refuge trail

system will be posted with signage that clearly

demarcates the visitor’s entry into a National

Wildlife Refuge. 

• Overlook: Three overlooks will provide views

of the site and the outlying landscape. The

overlooks will be simple and designed to fit

into the prairie landscape. They will likely

entail a graded, gravel area sited for its nearby

and distant views. The Rock Creek and

Highway 128 overlooks will feature

interpretive sign panels. Benches at the

Woman Creek and Rock Creek overlooks will

provide a resting point for visitors.

• Blinds: Wildlife viewing blinds will be sited to

optimize observation opportunities. The blinds

will be designed to blend in with the

surrounding landscape and minimize

disturbances to wildlife. 

• Parking: Four parking areas (spaces for about 54

cars and one bus) will be constructed. The largest

parking lot (30 spaces) will be located at the entry

drive terminus and adjacent to the contact station.

This main parking area will be designed to

accommodate horse trailers. An additional

parking lot (20 spaces) will be situated on the

site’s northern edge with convenient access from

Highway 128. Pull-offs along the main access road,

south of the visitor contact station, and along

Indiana Street will provide additional parking

spaces (3 to 4 spaces each) for visitors using trails

in the southern portion of the Refuge. All parking

areas will be gravel and enclosed by a post and

beam fence. 

• Restrooms: Restrooms will be located near

and/or within the visitor contact station.

• Contact Station: A small structure

(approximately 750 to 1,000 square feet) will

house an interpretive display and staff office

space. The contact station will be the primary

orientation point for visitors where they will

collect information about the Refuge. The

station also will serve as the meeting ground

for guided tours and other Refuge programs.

Located outside the main parking area, the

contact station will be staffed seasonally (e.g.,

weekends from May through October), to

provide visitor contact with Refuge staff. 

The Refuge could become a popular destination for

wildlife enthusiasts, naturalists and students within the

Denver metropolitan area.

© Shapins Associates
Chapter 4: Management Direction 

76 Rocky Flats National Wildlife Refuge 

4.2. OBJECTIVES AND STRATEGIES

The objectives and strategies are the specific actions

that the Service will implement to achieve the goals of

the Refuge. An objective is a general statement about

what the Service wants to achieve on the Refuge, while

a strategy is a specific action, tool, technique or

combination of the above used to meet objectives. The

objectives and strategies are arranged by the six goals

discussed in Chapter 1. Several goals were subdivided

into topics. For example, Goal 1 addresses wildlife and

habitat management. Objectives and strategies within

this goal were developed for species reintroduction, deer

and elk management, prairie dog management and other

topics. 

Table 8 at the end of this chapter provides a detailed

summary of all the objectives and strategies.

GOAL 1. WILDLIFE AND HABITAT MANAGEMENT

Conserve, restore and sustain biological diversity of

the native flora and fauna of the mountain/prairie

interface with particular consideration given to

threatened and endangered species.

The Refuge supports about 250 species of wildlife and

several rare or sensitive plant communities. While some

of these species and communities have specific

management requirements that are directly addressed in

the following objectives, there are many others that are

not specifically addressed. These include animals such as

the short-horned lizard and red-tailed hawk and rare

plants such as the tall upland shrubland community and

forktip three awn. The Service will address these species

and communities by focusing on sustaining and improving

the habitat conditions that support their life processes.

For example, the protection and improvement of Preble’s

meadow jumping mouse habitat (Objective 1.1) will benefit

many other species that depend on riparian areas for

survival, as well as wetlands and the tall upland shrubland

community. Weed management strategies (Objective 1.5)

will improve habitat conditions for numerous grasslanddependent species, including the short-horned lizard,

various ground nesting birds and small mammals, and

some rare plants such as the forktip three awn.

While it is not outlined specifically in the objectives, the

Service will continue to informally monitor general

wildlife populations and rare plant communities on the

Refuge. In addition, the Service will work with CDOW,

the Colorado Natural Heritage Program, area universities

and other partners to ensure that general wildlife and

rare plants that are not directly addressed in the

objectives are protected and managed on the Refuge.

Objective 1.1 - Preble’s Habitat Management

Background

As the only known federally listed species that resides on

the Refuge, it is the Service’s responsibility to protect and

conserve the threatened Preble’s meadow jumping mouse

and its habitat. The life history of this species has not

been studied thoroughly. What has been gleaned from

habitat studies is that the species is a habitat specialist

relying on well-developed shrub- dominated riparian

vegetation. Not only riparian areas are utilized; upland

shrub and grasslands provide travel corridors, nest sites

and forage. The replacement of native vegetation by

noxious weeds and excessive grazing is shown to reduce

the quality and quantity of suitable Preble’s habitat

(Compton and Hugie 1993).

Objective 

Beginning in the first year and throughout the life of the

CCP, protect Preble’s habitat, maintaining and improving

approximately 1,000 acres of Preble’s habitat on the

Refuge.

Rationale: The Service will place a priority on the

protection and improvement of riparian, wetland and

adjacent grassland habitat that have the potential to

support Preble’s. Preble’s have evolved with grazing and

browsing by ungulates, especially deer, and under normal

circumstances should not be impacted by ungulate

behavior. If, however, Refuge deer become overpopulated,

over grazing/browsing within riparian areas has the

potential to adversely affect Preble’s habitat in isolated

areas.

Strategies:

1.1.1 – Establish permanent transects in each stream

drainage and survey these transects every 2 to 3 years

Preble’s meadow jumping mouse is a threatened species

found on the Refuge.

© RFETS, Nelson
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 77

for the presence/absence and abundance of Preble’s

using live-traps in linear transects parallel to the stream,

recording dominant vegetation type at trap locations

(Kaiser-Hill 2001; Burnham et al. 1980). Establish

exclosures to determine a baseline level of browsing and

grazing.

1.1.2 – Allow natural revegetation of native species on

lightly used roads in Preble’s habitat including

unimproved stream crossings.

1.1.3 – While the species is under the consideration of

the ESA, consult with the Service’s Ecological Services

field office on actions potentially adversely affecting

Preble’s. 

1.1.4 – Develop habitat-sensitive weed management

strategies for use in Preble’s habitat areas. 

1.1.5 – Control noxious weeds in Preble’s habitat to

prevent an increase in weed distribution and density using

IPM tools (biological, mechanical, chemical applications

and limited prescribed fire).

1.1.6 – If necessary, protect Preble’s habitat by using

fencing and ungulate population control to exclude

grazing/browsing animals if the quality of the habitat is

threatened.

1.1.7 – Seek partnerships and funding for the

performance of biannual surveys for the presence and

distribution of Preble’s in areas where existing and

proposed Refuge recreational trails cross Preble’s

habitat using live-trapping in grid patterns that

encompass the stream and uplands. Record level and

type of recreation use in the Preble’s survey areas. 

1.1.8 – Manage for species recovery as indicated in the

Service Recovery Plan (in draft 2003).

Objective 1.2 - Xeric Tallgrass Management

Background

Xeric tallgrass prairie is a rare vegetation community

type that will be protected, maintained and restored in

suitable locations. Tallgrass prairie evolved with the

natural processes of fire and grazing, which are

important in supporting and invigorating the prairie

ecosystem. The disruption of these natural processes

renders the prairie community prone to the

establishment of noxious weeds that often out-compete

native plants. Infested native plant communities are

reduced in their capacity to support native wildlife

populations. A variety of techniques are needed to

restore healthy, balanced native communities. IPM

involves using techniques that simulate natural processes

and could include: prescribed fire; revegetation with

native species; mechanical control methods such as

mowing, root grubbing and hand pulling; chemical

applications; grazing; and biological agents. 

As IPM tools, prescribed fire and grazing are useful in

helping to control weeds, reduce plant litter, recycle

nutrients and improve the overall health and vigor of the

native grasslands. Prescribed fire will be conducted

considering state air quality regulations, ecological timing

(to maximize benefits to desirable species and

effectiveness in controlling weed species), weather

conditions and operational logistics. Grazing for ecological

restoration purposes will likely consist of managed cattle

for short periods of time to simulate natural processes and

invigorate native grasses (grazing for the specific purpose

of weed control is typically conducted using goats).

Monitoring of these treatments and their effectiveness will

allow the Service to adapt and alter techniques to improve

long-term effectiveness.

Objective 

By year 15, manage the existing extent (about 1,500 acres)

of the xeric tallgrass prairie across the Refuge to achieve

an average relative cover of no less than 60 percent (± 4

percent) native grasses and 10 percent (± 5 percent)

forbs, with no more than 10 percent of the average cover

to be invasive non-native species. Maintain the total

number of native species to be at least 80 percent of the

about 285 plant species that have been identified in the

tallgrass community prior to Refuge establishment.

Rationale: Management focus will be on maintaining

and improving the 1,500 acres of xeric tallgrass across the

site from the conditions that existed at the time of Refuge

establishment. IPM techniques, as described in Objective

1.5 - Weed Management, will be used to maintain the

native composition of species in the xeric tallgrass

communities. While the number of plant species within

the community fluctuates annually according to climactic

conditions, a total of about 285 species are consistently

found within this community. Not meeting the objective as

stated above does not necessarily indicate the xeric

tallgrass is critically imperiled but will warrant a more

thorough investigation. Prescribed fire will be conducted

Refuge-wide to stimulate native plant growth, reduce plant

litter and help control weeds in the xeric tallgrass

community.

Strategies:

1.2.1 – Within 2 years, produce a long-term vegetation

management plan that identifies detailed strategies for

weed management, restoration and xeric tallgrass prairie
Chapter 4: Management Direction 

78 Rocky Flats National Wildlife Refuge 

species composition to be attained by the end of the CCP.

1.2.2 – Throughout the growing season, conduct informal

monitoring of grasslands for noxious weeds.

1.2.3 – At a minimum, every 3 years survey selected

vegetation point intercept transects to determine ground

cover, vegetation density, species and species richness,

document effectiveness of weed control, assess impacts

of disturbance on plant communities, track ratio of warm

season to cool season species and provide overall

assessment of the status of the tallgrass community

(Kaiser-Hill 1997; Owensby 1973). 

1.2.4 – Use prescribed fire in conjunction with other

restoration tools such as grazing, mowing, herbicides and

biological controls to simulate natural processes that

once existed at Rocky Flats. 

1.2.5 – Participate in regional efforts to implement

tallgrass prairie conservation measures.

1.2.6 – Suppress all wildfires.

1.2.7 – Use prescribed fire in areas identified in Figure

18. Prescribed fire may be used in grassland areas at a

average frequency of 5 to 7 years (riparian areas 5 to 10

years). These can occur for two years in a row but not

less frequently than once every 10 to 12 years. Burn

areas will average about 200 to 500 acres per year of

both xeric and mixed grasslands and portions of riparian

communities across the site. 

1.2.8 – Use grazing in areas identified in Figure 18.

Grazing on a specific grassland area will be limited to

short duration with high animal numbers (flash grazing

for an average of 2 weeks) as identified in the Vegetation

and Wildlife Management Plan. Temporary paddocks

with electric fencing will be used to contain livestock in

specific areas. 

1.2.9 – Monitor ecological conditions before and after the

application of any specific restoration tool.

1.2.10 – In accordance with Objective 3.2 - Visitor

Safety, close the Refuge to all public use prior to and

during the use of prescribed fire on the Refuge.

Objective 1.3 - Mixed Grassland Prairie Management 

Background

Nearly one half of the Refuge is vegetated with shortgrass

prairie communities, including mesic mixed grassland,

xeric needle and thread grassland, short grassland, and

reclaimed mixed grassland. While these communities are

habitat for a variety of wildlife species on the Refuge, the

Service has not outlined very many specific management

strategies for the mixed grassland prairie at the Refuge.

Instead, management strategies that are important to

these prairie communities, including managing weeds,

managing prairie dogs, restoring unused roads and

sustaining habitat for introduced species, are covered

under other wildlife and habitat management objectives.

However, because many native wildlife species rely on

diverse habitat components that are not present in

agricultural fields, hay meadows, or a monoculture of

plant species, the Service has outlined specific

management strategies related to restoration of these

areas. Maintenance and enhancement of these mixed

grassland prairie communities is integral to other, more

specific objectives. 

As outlined in Objective 1.5 - Weed Management, a

variety of IPM tools, including managed grazing and

prescribed fire, will be used to maintain the health and

integrity of the mixed grassland prairie communities.

Prescribed fire will be conducted considering state air

quality regulations, ecological timing (to maximize benefits

to desirable species and effectiveness in controlling weed

species), weather conditions and operational logistics.

Grazing for ecological restoration purposes will likely

consist of managed cattle for short periods of time to

simulate natural processes and invigorate native grasses

(grazing for the specific purpose of weed control is

typically conducted using goats). Monitoring of these

treatments and their effectiveness allows for adaptation

and alteration of techniques to improve long-term

effectiveness.

Objective 

Through the life of the CCP, maintain and improve the

vigor and native species composition of short and mesic

mixed grassland habitat according to the management

objectives for weed management, prairie dog

management, habitat restoration and species

reintroduction. Additionally, restore 300 acres of nonnative grassland in the southeast corner of the Refuge

(hay meadow), as well as other reclaimed grassland areas,

to a native mixed grassland community.

Rationale: The mixed grassland prairie communities at

the Refuge provide habitat for a variety of wildlife species.

The Service will restore non-native grassland areas,

including the hay meadow, to improve the diversity of

habitat for a variety of species. In addition, the mixed

grassland prairie communities will be managed according

to the specific purposes of other objectives. Prescribed

fire will be conducted Refuge-wide to stimulate native

plant growth, reduce plant litter and help control weeds in

the mixed grassland prairie communities.
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 79

Coal C reek

South Woma n Cre ek

Woman

Reservoir

South B oulder Diversion

Rock Creek

93

Rocky Flats

Lake

Mower Di tch

Rock Creek

Woman C reek

Dry Cre e k

B ig

Indiana Lindsay Pond

Ranch

Ditch

Smar t

Broomfield County

U%

INDIANA STREET

Jefferson County

Boulder County

National Wind 

Technology Center

Lindsay 

Pond 2

Lindsay 

Pond 1

C-1

D-1

D-2

McKay Ditch

Upper Church Ditch

128

Walnut Creek Coal C reek

South Woma n Cre ek

Woman

Reservoir

South B oulder Diversion

Rock Creek

93

Rocky Flats

Lake

Mower Di tch

Rock Creek

Woman C reek

Dry Cre e k

B ig

Indiana Lindsay Pond

Ranch

Ditch

Smar t

Broomfield County

U%

INDIANA STREET

Jefferson County

Boulder County

National Wind 

Technology Center

Lindsay 

Pond 2

Lindsay 

Pond 1

C-1

D-1

D-2

McKay Ditch

Upper Church Ditch

128

Walnut Creek

US Fish & Wildlife Service

Rocky Flats National Wildlife Refuge

Jefferson County, CO

Prescribed Fire and Grazing

November 2004

0 0.5 1 Mile

DOE Retained Area (Subject to Change)

Areas Where Grazing Only May Be Used

Areas Where Prescribed Fire and Grazing May Be Used

 ́

Figure 18. Prescribed Fire and Grazing Areas
Chapter 4: Management Direction 

80 Rocky Flats National Wildlife Refuge 

Strategies:

1.3.1 – Use IPM strategies to control or reduce noxious

weed infestations and maintain or improve the vigor of

native short and mesic grassland according to Objective -

1.5 Weed Management and Objective 1.4 - Road

Restoration and Revegetation.

1.3.2 – Allow short and mesic grassland communities to

support prairie dog expansion, according to Objective 1.7

- Prairie Dog Management.

1.3.3 – Maintain short and mesic grassland communities

as needed to support the reintroduction of sharp-tailed

grouse or other species, as directed under Objective 1.8 -

Species Reintroduction.

1.3.4 – Suppress all wildfires.

1.3.5 – Use prescribed fire in conjunction with other

restoration tools such as grazing, mowing, herbicides and

biological controls to simulate natural processes that

once existed at Rocky Flats.

1.3.6 – Restore non-native reclaimed grasslands in the

hay meadow and other areas to a native mixed grassland

community.

1.3.7 – Use prescribed fire in areas identified in Figure

18. Prescribed fire may be used in grassland areas at a

average frequency of 5 to 7 years (riparian areas 5 to 10

years). These can occur for two years in a row but not

less frequently than once every 10 to 12 years. Burn

areas will average about 200 to 500 acres per year of

both xeric and mixed grasslands and portions of riparian

communities, across the site. 

1.3.8 – Use grazing in areas identified in Figure 18.

Grazing on a specific area will be limited to short

duration with high animal numbers (flash grazing for an

average of 2 weeks) as identified in the Vegetation

Management Plan. Temporary paddocks with electric

fencing will contain the livestock in specific areas. 

1.3.9 – Monitor ecological conditions before and after the

application of any specific restoration tool.

1.3.10 – In accordance with Objective 3.2 - Visitor

Safety, close the Refuge to all public use prior to and

during the use of prescribed fire on the Refuge.

Objective 1.4 - Road Restoration and Revegetation

Background

Currently about 70 miles of roads occur at the Refuge (of

which about 20 miles will remain under DOE’s

jurisdiction). The removal and revegetation of extraneous

roads will provide more wildlife habitat and reduce the

effects of fragmentation. Fragmentation results from

roads, trails and other disturbances interrupting

continuous habitat with unsuitable and possibly hostile

environments. Fragmentation can affect plants and

animals, resulting in the isolation of populations or

individuals, reduction of genetic diversity, reduction of

carrying capacity and other effects. Roads provide

corridors for predators and are prone to weed

infestations. Abrupt vegetation changes at road edges

alter light, temperature and wind exposure. Revegetation

and the restoration of natural contours, either by natural

succession or mechanical grading, will increase the quality

and quantity of native wildlife and plant habitats.

The Service will retain about 25 miles of roads for

maintenance, fire control, utility and ecological

monitoring access. In some cases, the roads will also be

used as trails. Unless designated otherwise, access

roads will be closed to public use. 

Objective 

Beginning in the first year and completed within the life of

the CCP, revegetate approximately 26 miles of unused

roads with 13 stream crossings. This will include about 7

miles of xeric tallgrass habitat and about 11 miles of

mixed grassland prairie. 

Rationale: Roads across the Refuge that are not being

used for public use, fire protection, or maintenance access,

will be restored and revegetated, while others will be

narrowed to the width of a trail.

Strategies:

1.4.1 – Allow natural revegetation of native species on

lightly used roads and unimproved stream crossings, in

areas not dominated by weeds.

1.4.2 – In select locations, prepare (including soil prep,

culvert removal, fill, regrading to match original

contours, herbicide application) and seed roadways and

uplands with native species appropriate to soil type,

slope and aspect.

1.4.3 – Where suitable, revegetate stream crossings with

woody riparian species.

1.4.4 – Informally survey roadways for noxious weeds

during the growing season and apply IPM techniques.

1.4.5 – Work with the Service’s Ecological Services office

and other agencies for ESA consultation and necessary

permits in Preble’s habitat and wetlands and adjacent

buffer zones. 

1.4.6 – Every 3 years survey restored habitat areas

along selected vegetation point intercept transects to

determine ground cover, vegetation density, species
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 81

and species richness; document effectiveness of weed

control; assess impacts of disturbance on plant

communities; and provide overall assessment of the

vegetation community and restoration success (KaiserHill 1997; Owensby 1973).

Objective 1.5: Weed Management

Background

Noxious weeds are nonnative plant species that invade an

area that has been disturbed or where vegetation is

stressed. Noxious weed infestations reduce the capacity of

native plant communities to support wildlife populations

and a diversity of organisms. Soil disturbances and

cessation of the natural processes such as fire and grazing

have resulted in a proliferation of noxious weed species at

Rocky Flats. 

IPM involves techniques that simulate the processes that

contribute to the integrity of the ecosystems and can be

applied when conditions are optimum for greatest

effectiveness: prescribed fire; revegetation with native

species; mechanical methods of mowing, root grubbing

and hand collection; chemical applications; and biological

agents. Depending on the location and treatment,

controlled grazing by goats or cattle can be used as

ecological restoration tools (as discussed in Objective 1.2 -

Xeric Tallgrass Management) or for weed management

purposes.

Monitoring the effectiveness of treatment allows

adaptation and alterations of techniques to improve longterm effectiveness. Diffuse knapweed and Dalmatian

toadflax are the principal threats to the grasslands, while

Canada thistle threatens wetlands and riparian areas.

Weed management efforts will seek to prevent the spread

of existing infestations and the establishment of new ones. 

In accordance with the Colorado Noxious Weed Act, the

control of “list B” noxious weed species such as Diffuse

knapweed, Dalmatian toadflax, and Canada thistle will be

prioritized over the control of “list C” species such as field

bindweed and jointed goatgrass. Biological controls will

be planned to minimize potential impacts to native species. 

Objective 

Reduce the density of diffuse knapweed and

Dalmatian toadflax populations by 15 percent within

the first 5 years, 30 percent within 10 years and 60

percent within 15 years (as described in Kaiser-Hill

2002). Reduce the density and spread of other noxious

weed species, especially Canada thistle by 50 percent

within 15 years. Limit and control the establishment of

weed species (Jefferson County, Boulder County and

State of Colorado weed lists) not yet observed on the

Refuge. 

Rationale: The full range of IPM tools, including

chemical, biological and mechanical control, prescribed

Prescribed fire will occur in designated areas outside of DOE-retained lands.

© USFWS
Chapter 4: Management Direction 

82 Rocky Flats National Wildlife Refuge 

fire and grazing, will be available to reduce noxious

weed concentrations throughout the Refuge.

Prescribed fire will be subject to an approved fire

management plan and state air quality regulations.

Grazing also will be subject to an approved plan.

Burning along fence lines will reduce seed spread of

noxious weeds, and the removal of plant litter will

reduce the amount of herbicide that will be required to

control weed infestations in that area.

Strategies:

1.5.1 – Employ an IPM approach to include the

application of herbicides to perimeters of knapweed

and toadflax patches to prevent their spread.

Redistribute established biological control agents

across the Rock Creek drainage and continue releases.

Rake along fence lines and dispose of all tumbleweeds.

Grub and handpull where needed. 

1.5.2 – Annually identify and map weed patches using a

Global Positioning System (GPS) to demarcate the areal

extent and relative severity of infestations. Map

treatment sites and monitor for efficacy in subsequent

growing season.

1.5.3 - Correlate weed management with prairie dog

management to minimize weed infestations in prairie

dog expansion areas.

1.5.4 – Develop a comprehensive IPM plan.

1.5.5 – Conduct annual informal survey for new

infestations during the growing season, focusing on

roadways, trails, restoration areas and disturbed

sites. 

1.5.6 – If necessary, establish temporary interior

fencing in areas where weeds are wind dispersed to

collect weeds and limit dispersal. Burn along fence

lines and dispose of all tumbleweeds. 

1.5.7 – Use managed grazing of goats, or other

livestock as appropriate for short periods to control

weed infestations and simulate natural grassland

processes.

Objective 1.6: Deer and Elk Management

Background

CDOW has primary responsibility for the management of

deer and elk herds throughout the state and cooperated

with the DOE for wildlife management at Rocky Flats

before Refuge establishment. CDOW strives to set

population levels at 80 percent carrying capacity, but the

Service believes that setting a target population level for

the Refuge will provide for better management of the

ungulate population and will present fewer difficulties in

determining what the carrying capacity should be. The

resulting target population level may be lowered if

degradation is occurring in Preble’s habitat (riparian and

upland shrubs). Continued cooperation with the CDOW

will provide continuity in management, sharing of

resources and provide larger habitat areas for deer and

elk. Management of deer and elk populations is necessary

to maintain the health of the herds and prevent the

degradation of sensitive habitats such as riparian

woodlands and shrublands. 

Objective

Within 3 years, establish deer and elk population targets

to be achieved by year five. Adverse effects to Preble’s or

other federally endangered or threatened species and

their habitats may necessitate reduced population target

levels.

Rationale: A public hunting program may be all that

is necessary to control the herd size; however,

additional culling by Refuge staff and CDOW, or

keeping the herd away from sensitive habitat areas

with exclosures or temporary fencing may be required.

The Service will correlate the establishment of

population targets with the public hunting program to

maximize the utility of hunting as a management tool

and to ensure that it does not adversely impact

populations. 

Strategies:

1.6.1 – Coordinate and assist CDOW to monitor and

manage populations through a public hunting program,

culling by Refuge or CDOW personnel, or temporary

exclosures. 

1.6.2 – Assist CDOW in establishing target populations

for deer and elk on the Refuge.

1.6.3 – Every 2 years monitor for ungulate induced

degradation using multiple methods for foliage density,

foliage height diversity and plant species diversity

(Anderson and Ohmart 1986) in the riparian woodlands,

riparian and tall upland shrub communities in Preble’s

habitat.

1.6.4 – Perform annual deer and elk relative abundance

or relative density study by direct count.

1.6.5 – Establish permanent vegetation photo points

in riparian and upland shrubs and use them to

monitor for excessive habitat degradation by

ungulates every 2 years. Establish exclosure plots to

determine the extent of browsing. 

1.6.6 – Work with other agencies to protect movement

corridors between the Refuge and 

nearby habitat areas.
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 83

Objective 1.7 - Prairie Dog Management

Background

Prairie dogs are important components in the short and

mesic grasslands systems. They are commonly

considered a “keystone” species because their activities

(burrowing and intense grazing) provide food and shelter

for many other grassland species. While black-tailed

prairie dogs are no longer a candidate species for

threatened status listing under the ESA (as of August

2004) the Service still has a strong interest in conserving

the species and habitat where appropriate.

Rocky Flats contains about 2,460 acres of potential prairie

dog habitat, based on an analysis of suitable soils,

vegetation, and slope. While about 113 acres of prairie

dog colonies have been identified in recent years, active

prairie dog colonies at Rocky Flats currently comprise an

area of about 10 acres. Thresholds for prairie dog

expansion in the various alternatives are based on these

existing conditions and the extent of potential habitat.

Objective 

Allow prairie dog populations to expand up to 750 acres in

areas of non-native grassland as well as short and mixed

native grasslands outside of recognized Preble’s habitat

across the Refuge 

Rationale: Restoration is a key component of the CCP.

The Service will manage for a sustainable prairie dog

population that contributes to the overall function and

integrity of the grassland communities and does not

degrade other sensitive resources (such as wetlands,

shrublands and xeric tallgrass prairie). With limited

staff resources, it could be difficult to limit prairie dog

expansion if they populate large areas, so it is important

that the Service maintain a manageable prairie dog

population on the Refuge. If necessary, the Service will

try to limit the expansion of prairie dogs into sensitive

areas that do not provide primary habitat for prairie

dogs. Because human recreation is a significant

component of Alternative B, plague control methods may

be needed in prairie dog management to protect prairie

dog colonies as well as Refuge visitors. 

Strategies:

1.7.1 – If necessary, trap and relocate within the Refuge,

or use other methods to exclude prairie dogs from

Preble’s habitat and xeric tallgrass throughout the

Refuge. 

1.7.2 – Use intra-Refuge relocation as required.

1.7.3 – Do not accept prairie dogs from off-Refuge

relocation projects. 

1.7.4 – Cooperate with DOE’s stewardship designee to

manage prairie dogs and exclude them from DOE

retained lands with visual and vegetative barriers where

necessary. 

1.7.5 - Correlate prairie dog management with weed

management efforts to minimize weed infestations in

prairie dog expansion areas.

1.7.6 – Annually monitor and map the location, extent

and distribution of prairie dog populations including

densities and vegetation characteristics within prairie

dog towns. 

1.7.7 – Continuously monitor for plague and respond

with flea control if appropriate.

Objective 1.8 - Species Reintroduction

Background

CDOW holds the primary responsibility for wildlife

management in Colorado and cooperated with the DOE

for wildlife management on Rocky Flats before Refuge

establishment. CDOW, through a cooperative effort with

City of Boulder, introduced a small number of plains

sharp-tailed grouse just north of the Refuge on Boulder’s

The Service will manage for a sustainable prairie dog

population that contributes to the function and integrity

of the grassland communities.

© Mauro
Chapter 4: Management Direction 

84 Rocky Flats National Wildlife Refuge 

open space land during spring 2003 and is interested in

expanding the introduction of the grouse onto the

Refuge. The Service worked with CDOW to introduce

northern redbelly dace and the common shiner in Rock

Creek during summer 2003. 

Objective 

Within 3 years of Refuge establishment, evaluate the

suitability for introducing/reintroducing plains sharptailed grouse and other native species, prioritize the

species that could be introduced/reintroduced during the

life of the CCP and implement population monitoring of

reintroduced species at least annually until populations are

established.

Rationale: A full evaluation of Refuge habitat suitability

is needed before introductions/ reintroductions are

planned. Service staff will play an active role in evaluating

the suitability of reintroduction efforts and will partner

with CDOW to manage implementation. Population

monitoring by Service staff will be implemented as

necessary.

Strategies:

1.8.1 – Coordinate with and assist CDOW in evaluating

the suitability of the Refuge for plains sharp-tailed

grouse and other native species. 

1.8.2 – Oversee and assist CDOW with species release,

monitoring and habitat maintenance on the Refuge. 

1.8.3 – Annually monitor native fish (northern redbelly

dace and common shiner) in Rock Creek. If needed,

reintroduce them in the Walnut Creek drainage and

Woman Creek (provided suitable habitat exists), until

successful establishment.

1.8.4 – If found suitable for introduction, during the first

2 years of the CCP, complete a management plan for the

plains sharp-tailed grouse.

GOAL 2. PUBLIC USE, EDUCATION AND INTERPRETATION

Provide visitors and students high quality

recreational, educational and interpretive

opportunities and foster an understanding and

appreciation of the Refuge’s xeric tallgrass prairie,

upland shrub and wetland habitats; native wildlife;

the history of the site; and the NWRS.

Objective 2.1 - Visitor Experience 

Within the first 5 years of the Refuge’s establishment, the

Service will initiate efforts to make Refuge visitors feel

safe and will ensure that at least 75 percent of visitors will

be informed about the cleanup effort undertaken prior to

Refuge establishment.

Rationale: Access to the Rocky Flats site has been

highly restricted during both the nuclear production and

the cleanup phases of the site’s history. A substantial

amount of public skepticism about the site’s safety and a

lack of familiarity with the site’s resources are likely to

hamper visitation. To ease public apprehension about the

site, it will be crucial to ensure that visitors feel welcome,

safe and comfortable. During focus groups about visitor

use and outreach programs, specialists emphasized the

importance of communicating with the public and

explaining cleanup results and ongoing safety measures.

One survey will be developed to measure all visitor

experiences and will include questions related to use

patterns, satisfaction and understanding of the resource

(as referred to in objectives 2.1, 2.2, 2.3, 2.4 and 2.5).

Strategies:

2.1.1 – Provide a staff contact during peak seasons to

welcome visitors and address safety concerns.

2.1.2 – Develop a survey designed to measure how

safe visitors feel during their visit.

Wildlife observation and interpretation will help foster an

understanding of wildlife and its habitat.

© Mauro
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 85

2.1.3 – Develop an outreach program that reaches beyond

the site’s boundaries and educates surrounding

communities about the Refuge’s safety and amenities.

2.1.4 – Use signage, staff contact, brochures, website and

other means to convey safety information.

2.1.4 – Implement a volunteer program focused on

helping the public and site visitors understand efforts

that have been made to ensure the safety of site users. 

2.1.6 – Keep surrounding communities including, but not

limited to, Jefferson, Boulder and Broomfield counties,

the cities of Westminster, Arvada, Boulder, Golden and

Broomfield and nearby school districts informed about

Refuge events and the progress of the CCP’s

implementation.

Objective 2.2—Public Access 

By the end of 15 years, visitors will have opportunities to

observe and photograph wildlife and to experience the

Refuge’s unique habitats, mountain and prairie views on

foot, bike and horse. Satisfaction with their Refuge

experience will be reported by 75 percent of visitors.

Rationale: One of the goals of the Refuge System is to

foster an understanding of wildlife and its habitat by

providing the public with safe, high quality, wildlifedependent public uses. The Refuge provides opportunities

for the public to experience the unique xeric tallgrass

prairie, upland shrub, wetland habitats and learn about

the site’s history and the NWRS. Trails and overlooks will

be designed to allow visitors to experience the diverse

areas of the site and expansive views of the mountain

backdrop and the Denver/Boulder metropolitan area. 

Off trail use will be allowed on a seasonal basis for

pedestrian access only in the southern portion of the

Refuge during specific times of the year (October-April).

Limiting off trail use to the late fall and winter will limit

impacts to ground nesting birds and deer fawning in the

uplands. Off trail use will provide opportunities for

amateur naturalists, wildlife photographers and others to

access their subjects.

To protect Preble’s and other wildlife habitat, closures in the

Rock Creek area and other drainages will be instituted on an

as needed basis. Overlooks, however, will remain open and

provide views into the riparian areas. Dogs will be prohibited

on the Refuge because they are permitted on nearby open

spaces and pose a threat to wildlife resources.

Strategies: 

2.2.1 – Develop and implement a survey that measures

visitor satisfaction and use patterns.

2.2.2 – Do not permit dogs on the Refuge.

Interpretive signage will be used to foster an understanding and appreciation of the National Wildlife Refuge System. 

© Shapins Associates
Chapter 4: Management Direction 

86 Rocky Flats National Wildlife Refuge 

2.2.3 – Develop trails to provide multiple opportunities

for viewing and photographing wildlife. 

2.2.4 – Allow off-trail use in the southern portion of

the Refuge (south of Woman Creek) between October

and April.

2.2.5 – Establish seasonal trail closures in Rock Creek

and other drainages as necessary to minimize impacts to

wildlife. Keep portions of the rim trails open for viewing

the riparian areas.

2.2.6 – Provide a seasonally staffed visitor contact

station to inform visitors about the Refuge’s

resources and how to best experience the Refuge

during different seasons.

2.2.7 - Open the Refuge to the public from sunrise 

to sunset.

2.2.8 - Maintain public access on the main access road

only. Close all other roads to public access.

2.2.9 - Do not permit motorized vehicles on the Refuge

except in designated parking/access areas, refuge

maintenance access and access to utility easements,

ditches, and private mineral rights.

Objective 2.3—Appreciation of the National Wildlife

Refuge System 

By the end of the CCP, 65 percent of visitors will

understand and appreciate the NWRS, the purpose of the

Refuge and the natural and cultural resources of the

Refuge.

Rationale: Given the drastic shift in the use of Rocky

Flats from nuclear weapons production to a wildlife

refuge, the public is unfamiliar with the site’s new mission

and its natural resources. As people begin to feel safe and

comfortable with accessing the Refuge, the Service will

strive to foster public awareness and appreciation of the

Refuge System and the purpose of the Refuge. The

Refuge’s proximity to urban areas presents a good

opportunity to educate a large number of people about the

NWRS and its role in conservation across the country. 

Strategies: 

2.3.1 – Include questions in the visitor surveys and

questionnaires (strategy 2.2.1) that measure visitors’

understanding of the NWRS and the Refuge’s resources.

2.3.2 – Create the interpretive media and programs

identified in the environmental education component of

the Visitor Services Plan, a step-down plan that will

outline visitor services in more detail than the CCP.

2.3.3 – Work with outside partners to ensure visitors

understand the Refuge’s natural and cultural resources.

Potential partners include the CDOW, surrounding city

and county environmental education entities

(government, non-profit and profit), Cold War Museum,

Boulder and Jefferson County high schools and the State

Historic Preservation Office. 

2.3.4 – During peak seasons, provide adequate

personnel to ensure that staff contact is available to

visitors.

2.3.5 – Develop an interpretive signage system that

educates visitors about the natural and cultural

resources at the Refuge.

2.3.6 - Educate visitors about the National Wildlife

Refuge System.

Objective 2.4—Public Use Tracking

Within the first year of the Refuge’s establishment, open a

pedestrian-only trail to Lindsay Ranch and monitor the

number of visitors to the Refuge. During years 5 through 7,

as more trails are opened, develop baseline data for

numbers of visitors and their use patterns.

Rationale: The Refuge has not been open to the public;

therefore, no visitor use data exists. Establishing quality

baseline data is needed for future management decisions.

A quantitative understanding of visitor activity (numbers

of visitors, trail and use patterns) combined with an

analysis of the quality of their experience will allow

Service staff to enhance or limit visitor use opportunities. 

Strategies: 

2.4.1 – Develop a visitor use tracking system to measure

the number of visitors. Use it in conjunction with a

visitor experience survey to identify changes needed to

improve the visitor’s experience. 

2.4.2 – Use trail or vehicle counters to record Refuge

visitor numbers.

2.4.3 - Use the results of tracking to guide the design

and planning of public use facilities and programs.

Objective 2.5—Public Use Assessments

By the end of the CCP, 25 percent of visitors will

demonstrate an appreciation of the Service’s stewardship

mission and will have the desire to apply the conservation

ethic to their own lives and share it with others. 

Rationale: The goal of interpretation and environmental

education is to foster an understanding and appreciation

for natural processes that inspires people to behave in a

more environmentally conscious manner. In addition to
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 87

providing on-site recreation and education opportunities,

the public use program will strive to inspire citizens to

become better land stewards in their own communities

and stronger advocates for the Refuge system. This

objective is in keeping with the goals of the System that

promote establishment of a greater appreciation of fish,

wildlife and plants and their conservation.

Strategies:

2.5.1 – Develop survey questions that gauge visitors

understanding and appreciation of natural resources,

stewardship and environmentally sensitive ethics. 

2.5.2 – Distribute the survey, on and off-site, every 5

years (twice during the life of the CCP). Distribute the

survey over the course of a year to ensure that feedback

is collected during all four seasons.

2.5.3 – Design simple, low cost methods of gathering

change of behavior data (e.g., web, volunteers,

environmental education students).

2.5.4 - Use survey data to guide interpretive and

educational program development as well as public

outreach.

Objective 2.6—Interpretative Planning

Within 4 years of the Refuge’s establishment, develop the

interpretive component of a Visitor Services Plan

outlining interpretive facilities and programs. 

Rationale: An interpretive plan will be prepared as a

component of an umbrella Visitor Services Plan. The

interpretive plan will focus on creatively and accurately

informing visitors and students about the new Refuge.

The first step will be to communicate about the site’s

history and safe opportunities for access. During the early

years of the Refuge’s establishment, it also will be

important to inform the public about the Refuge’s wildlife,

natural resources and scenic values and encourage people

to visit the site. Gradually, the Service will need to develop

and implement comprehensive interpretation programs

that build an appreciation for the intricacies of the site’s

natural systems. 

Strategies:

2.6.1 – Work with outside partners to develop the

interpretive component of the Visitor Services Plan.

Potential partners include CDOW, surrounding city and

county environmental education entities (government, nonprofit and private), Cold War Museum, Boulder and

Jefferson county high schools and the State Historic

Preservation Office. 

Objective 2.7—Interpretative Programs

Within 15 years of the Refuge’s establishment, implement

the interpretive component of the Visitor Services Plan.

Implementation will include the development of a wide

range of interpretive programs and facilities. 

Rationale: An interpretive plan will be prepared as a

component of an umbrella Visitor Services Plan. The

interpretive plan will be developed by Refuge staff and will

describe interpretive as well as environmental education

programs and related facilities. Initially, interpretation

efforts will focus on providing information related to visitor

comfort and safety. During later years of the CCP

implementation, the focus will shift to the development of

site-related interpretive programs and facilities. The range

of programs and facilities will include guided tours about

native flora and fauna, interpretive signage with both

cultural and natural themes and overlook structures.

Strategies:

2.7.1 – Develop interpretive programs that explore

the site’s natural and cultural resources and are

accessible to children and adults. 

2.7.2 – Distribute interpretive media (newsletter,

flyers, website) in accordance with outreach

techniques outlined in the Visitor Services Plan.

2.7.3 - Develop interpretive facilities including

interpretive signage and interpretive displays.

Objective 2.8—Environmental Education Planning

Within 5 years of the Refuge’s establishment, develop

a plan outlining on- and off-site environmental

education programs for high school and college-level

students as well as training for educators.

Environmental education programs will meet state

standards for learning, accommodate independent

studies and tie to the mission of the NWRS and the

site’s natural resources and history. 

Rationale: In the Denver Metropolitan area, natural

resource study sites are needed to accommodate high

school and college level research. This need was identified

by educators and interpretive specialists at an

environmental education focus group in the fall of 2002

and is based on the Refuge’s proximity to the Colorado

School of Mines and University of Colorado. 

Specialists noted that there are several environmental

programs for elementary and middle school children in

communities surrounding the Refuge, but programs that

provide opportunities for high school students to develop

research skills through field study are limited. Since
Chapter 4: Management Direction 

88 Rocky Flats National Wildlife Refuge 

high school and college students are more independent,

the costs and staffing resources needed to develop these

types of programs would be less than they would be for

programs for younger students. Environmental

education programs at the Refuge will be research

oriented and will involve independent study and will

therefore require only limited assistance and supervision

from Refuge staff. The Service will, however, sponsor

teacher workshops for local educators so they could

effectively lead environmental education programs on

the Refuge.

Given current public apprehension about the site’s safety,

an independent and off-site approach to environmental

education is appropriate during the first 5 years of the

Refuge’s establishment. Although the educational

program will focus on high school and college level

students, limited on and off-site activities for visitors of

all ages will also be included.

Strategies:

2.8.1 – Partner with area universities, high schools, the

Cold War Museum and other educational institutions to

develop the environmental education components of the

Visitor Services Plan. 

2.8.2 – Pursue environmental education grants in

collaboration with area universities, high schools, the

Cold War Museum and other educational institutions.

2.8.3 – Use website, email and other media to distribute

information on refuge resources and data for student

use.

Objective 2.9—Environmental Education

Implementation

Within 8 years of the Refuge’s establishment implement

the environmental education components of the Visitor

Services Plan and the program it outlines for high school

and college level students. 

Rationale: Once the Refuge becomes established and the

public becomes more comfortable with site visitation

through public education and outreach efforts, the Refuge

staff will begin implementing the plan. Education

programs will adopt the state’s model content curriculum

standards and focus on the Refuge’s natural resources.

Implementation of the program will include teacher

workshops in which Service staff train local educators

about the Refuge’s resources. Educators will be required

to attend a Service-sponsored workshop prior to leading

environmental education programs on the Refuge.

Strategies:

2.9.1 – Work with area universities, high schools, the

Cold War Museum and other educational institutions to

implement environmental education programs. 

2.9.2 – Collaborate with area universities, high schools,

the Cold War Museum and other educational institutions

and pursue grants to support environmental education

programs.

2.9.3 – Use a variety of media to distribute a wide range

of data that can be used by high school and college

students.

Two weekends a year, deer and/or elk hunts will be organized especially for youth and/or people with disabilities.

© Shapins Associates
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 89

2.9.4 - Sponsor teacher workshops in order to inform

educators about the Refuge’s resources and facilitate

teacher-led environmental education programs.

Objective 2.10 – Hunting Program

Within the first 2 years of the Refuge’s establishment,

institute a controlled youth and/or disabled person’s deer

and/or elk hunting program 2 weekends a year. After 2

years, annually modify the extent of the hunting program

(number of permits and frequency) in order to ensure that

target level ungulate populations are maintained. If

appropriate for wildlife management, expand the hunting

program to include able-bodied hunters.

Rationale: Hunting is consistent with the Refuge

System's mission and is identified as a priority wildlife

dependent use on refuges (outlined in the Improvement

Act). Hunting allowed on the Refuge will be subject to

state regulations and safety requirements. Hunting will

be highly controlled in terms of number of users, user

populations, time frame and allowable weapons. Hunting

will be limited to short-range weapons such as archery

and shotguns and only open during designated weekends

to youth and disabled hunters. There are very few

hunting opportunities for these special populations in the

region and they will benefit from the tightly managed

program at the Refuge. 

There have been concerns expressed from the public

about the consumption of deer at Rocky Flats if a public

hunting program is implemented. Tissue samples,

including meat tissues, of deer harvested at Rocky Flats

in 2002 have been analyzed for contaminants. The results

of the analysis indicate that there is no significant uptake

of contaminants by deer or other wildlife species at Rocky

Flats. Risk-based calculations based on these

measurements indicate very low health risks (less than

1x10-6 increased cancer risk).

Hunting will also be an important management tool for

maintaining target ungulate populations and optimal

habitat conditions. If the Service, in consultation with

CDOW, determines that a larger hunting program is

needed to control ungulate populations, the program will

be opened to the general public and not limited to youth

and disabled hunters. A step-down hunting plan would be

prepared as a component of an umbrella Visitor Services

Plan. 

Strategies:

2.10.1 – By year 1, develop a hunting plan with public

involvement.

2.10.2 – Work with the CDOW and other interested

entities to develop and implement the hunting plan.

2.10.3 – During the hunting weekends, close the Refuge

to other public use.

2.10.4 – Allow hunters with proof of completion of a

certified hunter safety course to hunt using archery and

shotguns.

Objective 2.11—Hunting Program Assessment

Following each hunting season, assess the success of the

hunting program and adjust hunting opportunities as

appropriate.

Rationale: Refuge management will need to monitor

and evaluate the newly instituted hunting program and

adjust the program based on ungulate population sizes,

safety, adjacent communities support and hunter

satisfaction (one survey will be developed to address

objectives 2.11 and 2.12).

Strategies:

2.11.1 – Develop a survey for hunters, adjacent

landowners and surrounding communities to measure

their interest and support for the hunting program. 

2.11.2 – Monitor deer populations and habitat conditions

to understand the effects of the hunting program on

wildlife and Refuge resources.

Objective 2.12—Hunting Program Benchmarks

About 95 percent of hunters will report no conflicts with

other users, a reasonable harvest opportunity and overall

satisfaction with their Refuge experience.

Rationale: Due to the limited number of hunters and

the healthy resident deer population at the Refuge, it is

likely that youth and disabled individuals will be afforded

a quality hunting experience.

Strategies:

2.12.1 – Develop a brief survey for hunters in order to

evaluate their Refuge experience (combined with survey

used to measure objective 2.11).

2.12.2 – Staff interaction on a one-on-one with

hunters.

Objective 2.13—Recreation Facilities

Within 1 year of the Refuge’s establishment, begin

development of the hiking trail to the Lindsay Ranch and
Chapter 4: Management Direction 

90 Rocky Flats National Wildlife Refuge 

build an un-staffed welcome kiosk and simple restroom

facilities at the open access point. By year 5, additional

trails will be open to public use. By year 7, 75 percent of

all recreation facilities including trails, portable restrooms

at trailheads, and interpretive signage at key locations will

be established. Parking (4 parking areas ranging in size

from 3 to 30 spaces with the largest parking area at the

main entrance accommodating horse trailers) will also be

developed during this period. By year 15, develop 100

percent of the trail system, including connections to

adjacent areas for pedestrians, cyclists and equestrians. 

Rationale: Recreational facilities will provide public

access to the Refuge’s many natural and cultural

resources. During the early years of the CCP

implementation, the Service will focus staffing and

budgetary resources on habitat restoration including

revegetating unnecessary roads, weed management, and

restoring stream crossings. This focus will allow the

Service to reduce the severity of noxious weed

infestations and gain a foothold on road restoration

before public trail use introduces new disturbances onto

the landscape. The Service will also need to conduct

baseline Preble’s surveys before opening the site to

public use. Therefore, with the exception of the

immediate opening of the Lindsay Ranch hiking trail

and welcome kiosk, development of the recreation

facilities will need to be postponed until year 5. The unstaffed welcome kiosk positioned nearby the Lindsay

Ranch trailhead will inform visitors about current access

opportunities and future public use facility development. 

If early restoration efforts are effective and budgetary

and staffing resources are available, the Service may

initiate construction of new trails and the conversion of

selected roads to trails before year 5 and, if feasible, may

open some trails or portions of trails ahead of schedule. 

Bicycles and horses will be permitted on multiple use

trails in order to facilitate regional trail linkages and to

serve as a mode of transportation for wildlife viewing and

accessing the Refuge from surrounding communities.

Certain trails will be designated for pedestrian use only.

Trails will be designed to provide connections, use existing

road corridors and minimize impacts to sensitive wildlife

resources. 

The unstaffed welcome kiosk will serve as a central

information dissemination point at the main entrance to

the Refuge. The simple structure will include orientation

and interpretive panels to explain Refuge resources and

public use opportunities. Eventually, the structure will

be augmented with a seasonally staffed visitor contact

station that will include permanent displays,

administrative offices, Refuge orientation information

and educational materials.

Strategies:

2.13.1 – Construct an unstaffed welcome kiosk and

portable restroom facilities within disturbed areas at

the main parking lot and trailhead.

2.13.2 – Develop a universally accessible trail that links

the main parking area to the Rock Creek overlook. Also

provide an accessible mounting ramp for equestrian use.

2.13.3 – To provide a quality trail user experience,

reduce reclaimed road widths to single lane, unpaved

trails. However, maintain adequate width of trail

corridors to allow them to also serve as access routes for

maintenance or fire protection vehicles.

2.13.4 – Clearly mark all trails with signage indicating

permitted uses.

2.13.5 - Prior to opening the Lindsay Ranch 

trail improve the trail corridor and conduct a 

Preble’s survey.

2.13.6 – Where appropriate, use existing road corridors

for trails to reduce negative impacts on site resources

and site trails so they minimally impact habitat and

provide a quality visitor experience.

2.13.7 – Realign road/trail corridors in specific areas

with excessive slopes and/or sensitive wildlife habitat, or

where wildlife viewing could be greatly enhanced.

2.13.8 – Designate some sections of the trail for

pedestrian use only and create multi-use trails that

permit bicycles and horses (equestrian use will be limited

to the southern half of the Refuge).

2.13.9 – Implement seasonal trail closures as needed to

protect wildlife and their habitats.

2.13.10 – Use existing roads to provide motorized access

to parking and trailheads. Make all motorized access and

parking areas unpaved.

2.13.11 – Work with adjacent landowners on issues

related to trail linkages to trail systems north, south,

east and west of the Refuge.

2.13.12 – Work with neighboring landowners,

agencies and the Colorado Department of

Transportation (CDOT) to develop safe pedestrian

crossings at all trailheads. 

2.13.13 – Work with others to develop an underpass

under Indiana Street if it is deemed necessary for safe

pedestrian connections to trails and open space east of

the Refuge.
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 91

2.13.14 - Post signage at all trailheads that clearly

communicates access opportunities as well as

information about the site’s history, recent clean up

efforts, and differences in management between the

Refuge and neighboring open space properties.

2.13.15 - Educate equestrian users on the importance of

using weed-free hay and removing manure from trails.

2.13.16 - Work with equestrian groups and ensure that

they remove horse manure from trails on a volunteer

basis.

Objective 2.14—Enhanced Recreation Facilities

Within 10 years of the Refuge’s establishment, enhance

trails, construct a seasonally staffed contact station with

upgraded restrooms, develop maintenance facilities and

create additional interpretive panels.

Rationale: To bolster the quality of the visitor

experience, additional resources will be expended on

visitor use facilities in the later years of the CCP. A

seasonally staffed contact station will be located in an

existing disturbed area where it will not fragment wildlife

habitat. The facility will allow for more visitor contact and

provide a central location for information dissemination

and interpretation. 

Trail-related improvements will include upgrading trail

surfaces, overlooks and interpretive signage. These

improvements will reduce maintenance costs, enhance the

quality of the visitor experience and reduce resource

damage. Viewing blinds could be constructed to enhance

photographic and wildlife observation opportunities.

Strategies: 

2.14.1 – Build additional interpretive signs.

2.14.2 – Improve trail alignments, surfaces and

overlooks to minimize resource impacts and improve

the visitor experience.

2.14.3 – Routinely evaluate trail and public facility

impacts and establish measures to minimize impacts

on wildlife from trails and other visitor facilities and

uses.

2.14.4 – Build a viewing blind to enhance wildlife

observation opportunities.

2.14.5 – Construct a small (approximately 750 to 1,000

square feet), seasonally staffed contact station.

2.14.6 - If trail conflicts arise, use signage and expanded

trail corridors on sections of trail where site lines are

limited to divide equestrians from other trail users.

2.14.7 - If funding is available, position benches at

strategic locations along certain trails and construct a

limited limited number of shade structures.

Objective 2.15— Cold War Museum 

If the Cold War Museum secures a site adjacent to the

Refuge and funds to develop a museum within the life

of the plan, the Service will partner to co-locate

interpretive and other public use facilities with the

organization. 

Rationale: The Refuge Act (P.L. 107-107,sec.3181)

(Refuge Act - Appendix A) states that the Secretary may

establish a Rocky Flats Museum to commemorate the

contribution that Rocky Flats and its work force provided

to winning the Cold War. The legislation states that the

museum shall be located in the City of Arvada unless the

Secretary determines otherwise. Therefore, there is a

Within 10 years of the Refuge’s establishment, a small, seasonally staffed contact station will be built.

© Shapins Associates
Chapter 4: Management Direction 

92 Rocky Flats National Wildlife Refuge 

possibility that the facility will be constructed on land

adjacent to the Refuge should it become available and be

deemed appropriate. 

Partnering with the Cold War Museum on the

development of a museum presents an excellent

opportunity for the Service to reduce the footprint of

public use facilities on the Refuge. The shared facility

will house the simple interpretive displays and staff

office space originally intended for the contact station.

The Cold War Museum would also be staffed seasonally

by Refuge staff and serve as a meeting area for guided

tours and other Refuge programs. Additionally, the Cold

War Museum facility would present increased

opportunities to interpret the the history of the site as

ranchland and a nuclear weapons production facility.

Strategies:

2.15.1 - Continue working with the Cold War Museum to

explore potential museum sites adjacent to the Refuge.

GOAL 3. SAFETY

Conduct operations and manage public access in

accordance with the final Rocky Flats’ cleanup

decision documents to ensure the safety of the Refuge

visitors, staff and neighbors.

Objective 3.1—Staff Safety

Throughout the life of the CCP, all Service staff working

at the Refuge will participate in a Refuge orientation and

training that will introduce them to the site itself, the

institutional controls, CERCLA remedy requirements,

safety procedures (both workers and public) and physical

hazards. The orientation and training will be required

prior to beginning an assignment. 

Rationale: Rocky Flats National Wildlife Refuge is a

CERCLA site that has undergone cleanup. Specific areas

will remain under primary jurisdiction of the DOE and

may remain off limits to the public. It will be important

that Refuge staff receive specific training regarding the

site background, remediation actions, CERCLA remedy

requirements and institutional controls. This training will

help ensure the safety of employees and visitors.

Knowledgeable employees will be instrumental in ensuring

that visitors are kept informed and feel safe during their

visit to the Refuge.

Strategies:

3.1.1 – Develop an orientation training program that

clearly addresses key Refuge safety issues. 

3.1.2 – Provide first aid training to key staff who may

be required to assist the public and staff on site

should an accident occur.

3.1.3 – Develop a record keeping system to document

worker training.

3.1.4 – As appropriate, develop site-specific

appendixes to the Refuge Complex Safety Plan.

3.1.5 – Develop a health and safety plan, within a year

of plan approval, to cover all Refuge operations.

3.1.6 – Implement a goal of zero incident performance.

Maps and interpretive signs will inform visitors about the site’s history, cleanup, and access restrictions.

© Shapins Associates
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 93

Objective 3.2—Visitor Safety

Within 5 years of Refuge establishment 75 percent of

visitors will be aware that the Refuge is safe and open

for public access before they arrive. Upon arrival,

these visitors will be informed of public use

opportunities and restrictions. 

Rationale: Both the EPA and the CDPHE have

concurred that the Refuge will be safe for public access

(Appendix D). However, given the Rocky Flats site’s

nuclear weapons production history, it will be

important for the Service to clearly inform the public

that it is safe to visit the Refuge and that the site

offers opportunities to experience unique grassland

habitat and many wildlife dependent recreation

programs and facilities. In addition to promoting

opportunities for accessing the Refuge, the Service will

communicate to visitors about the site’s history and

areas on-site where public access is prohibited. Areas

retained by DOE will most likely be closed to public

access and access to sensitive habitats will be

restricted at times. Similarly, the dilapidated

structures within the Lindsay Ranch complex may be

fenced off if they pose a safety hazard. 

Outreach materials, signage and staff will educate the

public about the steps to becoming a refuge, access

restrictions and opportunities. DOE will post signage

and construct fencing or another means of boundary

demarcation to clearly identify all restricted areas that

are subject to institutional controls. The Service will

continue to work with DOE to ensure that the

boundary is clearly visible to the public.

Strategies: 

3.2.1 – Ensure that every guided program addresses

the site’s history.

3.2.2 – Include safety-related questions in the visitor

survey. Surveys will be used to determine the safety

knowledge of the visitors and understand how to

adjust the safety awareness program based on this

information.

3.2.3 – Provide maps and interpretive signs at all

trailheads that inform visitors about the site’s history,

clean up, and access restrictions.

3.2.4 – Help potential users understand the site’s

restrictions and public use opportunities through a

diversity of media including TV and radio programs,

brochures, personal talks, website, public service

announcements, news releases and articles. Also work

with local school systems to educate teachers and

students about the Refuge’s recreational and educational

potential. 

3.2.5 – Provide Refuge access information to

regional map and tour book publishers.

3.2.6 – Develop surveys that are implemented at

Refuge access points to determine the safety

knowledge of the visitors and understand how to

adjust the awareness program based on this

information. Data collection will be consolidated into

one public use survey encompassing survey needs

identified in other goals. 

3.2.7 – Maintain a law enforcement presence on-site and

ensure that Refuge employees are well informed and can

educate visitors on Refuge safety restrictions and

allowable uses. 

3.2.8 – Document violations and measure the success of

the program by the reduction in violations.

3.2.9 – Close the Refuge to public use prior to and

during the use of prescribed fire on the Refuge.

3.2.10 - Work with DOE to clearly demarcate the DOE

retained land boundary with a barbed-wire agricultural

fence, permanent obelisks, signage or other appropriate

means.

3.2.11 - Address the site’s history in guided programs.

GOAL 4. EFFECTIVE AND OPEN COMMUNICATION

Conduct communication outreach efforts to raise

public awareness about the Refuge programs,

management decisions and the mission of the U.S

Fish & Wildlife Service and the National Wildlife

Refuge System among visitors, students and

nearby residents.

Objective 4.1—Outreach

Within 5 years of the Refuge’s establishment, develop and

implement four outreach methods to inform the public

about environmental stewardship, safety issues, CCP

implementation and educate them on the missions of the

Service and NWRS. Once established in year 1, outreach

efforts will be ongoing throughout the life of the CCP. 

Rationale: Historically, Rocky Flats has been a

controversial site with substantial public interest and

concern. The Service will respond to inquiries and

educate the public about the site’s transformation from a

nuclear weapons production facility to a National Wildlife

Refuge. Additionally, the Service will work with

stakeholders, interst groups and the general public to

inform them about the site’s resources and the visitor
Chapter 4: Management Direction 

94

programs and facilities. In order to achieve the Refuge’s

purposes, vision and goals, the Service will need to

maintain open and regular communication with the

public. 

Strategies:

4.1.1 – At a minimum conduct outreach opportunities in

Broomfield, Boulder, Arvada and Westminster and

recruit participation from the local municipal

governments, business communities, civic and

educational organizations, conservation groups,

recreational users and other interested stakeholders.

4.1.2 – Establish a monitoring system to measure the

diversity of groups in attendance at outreach events.

4.1.3 – Use a variety of outreach communication methods

such as a newsletter, website, news releases, local

newspaper column and TV and radio programs.

4.1.4 – Encourage Refuge staff to attend selected

government and organization meetings and participate

with DOE in communicating with the public about longterm stewardship programs.

GOAL 5. WORKING WITH OTHERS

Foster beneficial partnerships with individuals,

government agencies and non-governmental

organizations and others that promote resource

conservation, compatible wildlife-related research,

public use, site history and infrastructure.

Objective 5.1—Emergency

Within 1 year of the Refuge’s establishment, emergency

response agreements will be in place with all adjacent

fire districts for mutual aid in responding to fire and

other emergencies. Additional emergency response and

fire protection agreements will be developed with state

and local law enforcement agencies as needed.

Rationale: The Refuge is small and in close proximity to a

number of communities. Given the Refuge’s location and

the other on-site safety issues, rapid suppression of fire or

response to other emergencies will be essential.

Strategies:

5.1.1 – Meet annually, or as often as needed, with

partnering agencies including DOE, to coordinate fire

and emergency response plans.

5.1.2 – Coordinate all prescribed fires with all nearby

fire districts and other cooperating agencies.

Objective 5.2—Conservation

Throughout the life of the CCP, Refuge staff will meet

annually (at a minimum) with local governments and other

adjacent landowners, to coordinate habitat management

and resource conservation strategies. 

Rationale: The Service will encourage a regional

management approach for the conservation and

restoration of natural resources, which will require

collaboration with surrounding landowners. Many

natural resource management issues such as invasive

weed control, wildlife corridors, recovery of declining

species and impacts to resources caused by visitors will

need to be coordinated across boundaries. 

Strategies:

5.2.1 – Work closely with surrounding open space and

natural resource entities such as Jefferson County, City

of Boulder, Boulder County, City and County of

Broomfield, City of Westminster, Town of Superior,

City of Arvada and CDOW to develop resource

management approaches for issues that cross Refuge

boundaries.

The Service will continue to partner with CDOW.

© USFWS

Volunteers will help with some restoration projects.

© Shapins Associates

Rocky Flats National Wildlife Refuge 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 95

5.2.2 – Use volunteers to help with conservation and

restoration activities. 

5.2.3 – Work with adjacent landowners to maintain

corridors for ungulate populations and other wildlife

that migrate seasonally to and from the Refuge.

Objective 5.3—Research

Within the first 5 years of the Refuge’s establishment,

develop a list of research needs to be addressed by Refuge

staff and external researchers and establish a system to

evaluate and approve proposals for compatible scientific

research that focuses on the Refuge’s habitat, wildlife and

public use.

Rationale: Because the Refuge will be a newly

established refuge with limited resources, it will be

important for Service staff to collaborate with outside

researchers. Research partnerships would allow the

Service to expand its baseline data and study

management techniques more efficiently. Research that

has direct implications for Refuge management, such as

information gathering and analysis focused on wildlife,

habitat and public use would be instrumental in shaping

the management direction of the Refuge and similar

prairie landscapes throughout the life of the CCP and into

the future. 

Strategies 

5.3.1 – Establish criteria to evaluate research proposals

that will ensure research is compatible with the Refuge

mission, purpose and goals.

5.3.2 – Emphasize and support research focusing on

studies that directly affect Refuge management.

Objective 5.4—Volunteer

Within 3 years of the Refuge’s establishment, create a

volunteer program and support the establishment of a

Friends group for the Rocky Flats National 

Wildlife Refuge.

Rationale: Volunteers are essential for the growth and

success of many refuges within the NWRS. Volunteers

can assist with both resource conservation activities and

visitor use programs. Support of a Friends groups would

play an important role in leveraging local private

resources and public support for Refuge programs.

Strategies

5.4.1 – Recruit volunteers from equestrian and bicycle

groups and others to help maintain trails.

5.4.2 – Develop and implement a volunteer program that

defines volunteer opportunities for participation in

wildlife habitat and public use programs.

5.4.3 – Work with interested individuals to establish and

maintain a nonprofit corporation who’s objective is to

positively support the Refuge.

GOAL 6. REFUGE OPERATIONS

Based on available funds, provide facilities and staff

to fulfill the Refuge vision and purpose.

Objective 6.1—Staffing

Within 2 years of the Refuge’s establishment, obtain base

funding for three employees (3.0 FTE) for the Refuge and

within 5 years, add one employee (1.0 FTE). Also assign

collateral duties for Rocky Mountain Arsenal NWR staff.

Fire management funding will be used for an additional

two full-time (2.0 FTE) and two seasonal (1.0 FTE)

employees.

Rationale: Due to the site’s urban context, high public

interest and extensive restoration requirements, on-site

staffing and facilities will be necessary from the onset of

the CCP’s implementation. Staffing needs will be based

on the current and projected NWRS’s budgetary

environment and the objectives of the CCP. Three fulltime employees (3.0 FTE) will be required within 2 years

of Refuge establishment to begin instituting habitat and

restoration management practices. An increase in public

use after year 5 will require one additional employee (1.0

FTE). 

Due to the use of prescribed fire and the high probability

and frequency of wildfires in the grasslands of the Refuge,

fire personnel are included in the staffing. Refuge fire staff

(3.0 FTE) will be responsible for suppressing wildfires,

developing prescribed burn plans, overseeing prescribed

fires and developing and maintaining mutual aid

agreements. Because the Refuge will be managed as part of

a complex, in conjunction with Two Ponds NWR and the

RMA, some staffing resources will be shared between the

three refuges. Collateral duties for Two Ponds and RMA

staff at the Refuge will ensure that the new Refuge benefits

from the experience and expertise of trained staff. 

Strategies:

6.1.1 – Follow Service protocols for budget development

and hiring of staff.

Objective 6.2—Operations and Management Facilities

Within 5 years of the Refuge’s establishment, develop 50

percent of administrative and visitor use facilities for on-
Chapter 4: Management Direction 

96 Rocky Flats National Wildlife Refuge 

site presence and connectivity with regional trail systems.

Within 5 years of the Refuge’s establishment, develop 50

percent of O&M facilities needed to support public use and

conservation objectives. By year 10, complete all O&M

facilities. 

Rationale: During the early years of CCP

implementation, management resources will be focused

on public outreach and education beyond the site

boundaries, developing partnerships and securing

funding. Habitat conservation and restoration will be the

primary management priority. Construction of the trail

system, signage and orientation and interpretation

facilities will follow the development of restoration

measures. 

During the first 5 years of the Refuge’s establishment,

the Service staff will rely on O&M facilities at RMA. Due

to public outreach events and word of mouth, visitor

numbers are likely to substantially increase once the

Refuge is fully open to the general public in the fifth year

of the Refuge’s establishment. Therefore, it will be

important to establish on site staffing and complete

visitor facilities by year 10. Once visitor use facilities are

established, on-site maintenance facilities will be

constructed and interpretive signage and trails will be

upgraded. Throughout the life of the CCP, RMA O&M

facilities and staff will supplement Refuge operations.

The Service will not use the land at Rocky Flats for

residential or “bunkhouse” facilities during the life of the

CCP.

Strategies:

6.2.1 – Prepare and submit projects for the Refuge

Operations Needs System and Maintenance Management

System database.

6.2.2 – Prepare a fire cache and install necessary water

storage systems (e.g., tanks).

6.2.3 – Coordinate equipment use with RMA staff.

6.2.4 – Install boundary and trailhead signs along the

Refuge boundary in order to identify access points and

ownership. 

6.2.5 – Renovate existing, on-site vehicle search buildings

to create a small office space and to use for storage and

other refuge operations.

6.2.6 – Provide administrative offices for Refuge

employees within the contact station.

6.2.7 – Pursue partnerships and funding sources including

but not limited to challenge cost share projects, Federal

Highway Administration, CDOT and other transportation

entities, Great Outdoors Colorado, CDOW, Mile High

Youth Corps, Colorado Historical Society and Volunteers

for Outdoor Colorado.

6.2.8 – Where possible, screen maintenance facilities

from visitor use areas.

6.2.9 – Construct a small (1,750 to 2,250 square feet)

maintenance/storage facility.

6.2.10 - Install a cistern or other storage system to

provide water to the visitor contact station, offices, and

maintenance facilities.

6.2.11 - Co-locate O&M facilities with public use facilities

and construct facilities in areas that are already

disturbed or degraded and will not impact important

wildlife habitat.

Objective 6.3—Fencing

Upon the Refuge’s establishment and throughout the life

of the CCP, maintain the existing barbed-wire stock fence.

The fence will line the entire perimeter and will be

suitable for excluding neighboring livestock from

trespassing on the Refuge.

Rationale: State law requires that a stock fence enclose

the Refuge to prevent livestock trespassing. Visitor safety

and wildlife habitat goals will be accomplished through

signage, staff contact with visitors and internal fencing of

off-limits areas. The Service will also work closely with

DOE to ensure that the DOE retained land boundary is

clearly demarcated.

Strategies:

6.3.1 – Attach boundary signage to the perimeter fence

and any fencing delineating the DOE retained area.

6.3.2 - Advise DOE on the use of signage and fencing to

demarcate the boundary of lands subject to institutional

controls.

Objective 6.4—Cultural Resources - Lindsay Barn

By year five, develop a step-down plan for the preservation

of all cultural resources on the Refuge. By the end of the

CCP, interpret the Lindsay Ranch barn.

Rationale: Although the Lindsay Ranch structures are

not eligible for listing in the National Register of Historic

Places, they are valued by the public and present an

opportunity to interpret the early ranching era at the

Refuge. The Lindsay Ranch structures including a barn

and house are not structurally sound and are in varying

states of decay. In order to preserve the scenic value of

the cultural resource, the Service and DOE initiated a

project to stabilize the barn in 2003. Since the ranch
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 97

house is not structurally sound and presents a safety

concern, the Service chose to concentrate its stabilization

efforts on the barn. The house will be fenced off or taken

down to minimize safety hazards. Should partners raise

sufficient funds to stabilize and interpret the ranch house,

the Service will be amenable to working with them to

complete such a project. Over time, additional cultural

resources may be uncovered on the Refuge. The Service

will maintain a record of identified cultural resources.

Where appropriate, the Service will provide interpretive

signage to help visitors better understand the history of

the Lindsay Ranch.

Strategies:

6.4.1 – Pursue partnerships to help fund the ongoing

stabilization of the Lindsay Ranch barn.

6.4.2 – Maintain an inventory of all cultural resources

found on site.

6.4.3 – Following all prescribed fires, survey burned

areas for archaeological or cultural resources or artifacts.

6.4.4 – Work with interested parties and organizations to

interpret the Lindsay Ranch and the story of

homesteading on the Refuge.

6.4.5 – Use trail signage to identify the historic stagecoach stop and apple orchard in the Woman Creek

drainage. 

Objective 6.5—Cultural Resources - Site History

Within 5 years of the Refuge’s establishment, develop a

cooperative partnership with interested stakeholders,

including the Cold War Museum, to interpret the history

of the Refuge.

Rationale: The history of the Refuge represents diverse

periods of time and topics ranging from Native American

history to the settlement of the western frontier and

nuclear weapons production during the Cold War. The

history and cultural resources of the Refuge are of

interest to many groups and individuals. Interested

stakeholders, including the Cold War Museum, will be key

partners in interpreting the site’s history and cultural

resources and securing funding for interpretation and

stabilization efforts. 

Strategies:

6.5.1 – Work with a variety of interested entities to

manage and interpret the history of the site as it evolved

through time. Interpretation programs will illuminate

the historical evolution of the site including Native

Americans, early settlement, ranching and Cold War

histories. 

6.5.2 – Work with appropriate state and federal agencies

to manage the site’s cultural resources appropriately.

The Service will provide interpretive signage to help visitors better understand the history of the Lindsay Ranch.

© Shapins Associates
Chapter 4: Management Direction 

98 Rocky Flats National Wildlife Refuge 

Table 8. Summary of Objectives and Strategies

Summary of CCP Objectives and Strategies 

WILDLIFE and HABITAT MANAGEMENT

Preble’s Habitat 

Management 

Objective: 

x Protect, maintain, and improve Preble’s habitat throughout the Refuge. 

Strategies:

x Survey Preble’s locations and habitat every 2-3 years. 

x If necessary, exclude grazing/browsing animals to protect habitat. 

x Seek funding/partnerships to monitor impacts of recreation on Preble’s. 

Xeric Tallgrass 

Management 

Objective:

x Maintain xeric tallgrass habitat across the Refuge with a native species composition of 80%. 

Strategies:

x Within 2 years, develop vegetation management plan. 

x Monitor every 2-3 years to determine species composition, document effectiveness of weed 

control applications and assess impacts of disturbance on plant communities across Refuge. 

x Use prescribed fire, grazing, mowing and other tools to stimulate the growth of native plants. 

x Suppress all natural wildfires. 

x Participate in regional xeric tallgrass prairie conservation efforts. 

Mixed Grassland 

Prairie 

Management 

Objective: 

x Maintain and improve the vigor and native species composition of short and mesic mixed 

grassland habitat. 

x Restore hay meadow and other areas to a native mixed grassland community. 

Strategies: 

x Allow short and mesic prairie to support sustainable prairie dog expansion. 

x Maintain short and mesic prairie to support the reintroduction of sharp-tailed grouse or other 

species. 

x Use prescribed fire, grazing, mowing and other tools to stimulate the growth of native plants. 

x Suppress all natural wildfires. 

x Restore hay meadow and other areas to native mixed grassland. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 99

Summary of CCP Objectives and Strategies 

WILDLIFE and HABITAT MANAGEMENT (continued)

Road Restoration 

and Revegetation 

Objective:

x Revegetate 27.8 miles of unused roads and 13 stream crossings across the Refuge (to be 

completed by the end of the plan). 

Strategies:

x Allow natural revegetation of lightly used roads and stream crossings. 

x In some locations, regrade and seed roads. 

x Survey for noxious weeds and apply IMP techniques to control noxious weeds in seeded road 

corridors. 

x Every 3 years survey to determine ground cover, vegetation density, species composition, 

and effectiveness of weed control and impact of disturbances. 

Weed 

Management 

Objective: 

x Across the Refuge, 

- Reduce the density of diffuse knapweed and Dalmation 

toadflax populations to 15%, 30%, and 60% for 5, 10 and 

15 years respectively. 

- Reduce the density and halt the spread of other 

noxious weed species, especially Canada thistle, 

by 50% within15 years. 

x Prevent the establishment of species on County and State weed lists not yet observed on the 

Refuge. 

x Limit and control the spread and density of existing weed infestation. 

Strategies: 

x Employ an integrated pest management (IPM) approach to include prescribed fire, managed 

grazing, herbicides, biological controls, grubbing/hand-pulling, collecting tumbleweeds. 

x Annually map perimeters of weed infestations and treatment sites. 

x Develop comprehensive integrated pest management plan. 

x Informally survey for new infestations along roadways, trail, restoration areas and disturbed 

sites. 

x Establish interior fencing to collect wind dispersed weeds; burn along fence lines to dispose 

of collected weeds. 

 
Chapter 4: Management Direction 

100 Rocky Flats National Wildlife Refuge 

Summary of CCP Objectives and Strategies 

WILDLIFE and HABITAT MANAGEMENT (continued)

Deer and Elk 

Management 

Objective:

x Within 3 years, establish deer and elk population targets 

to be achieved by year 5. 

Strategies:

x Use public hunting, culling, temporary exclosures, or hazing to manage populations. 

x Cooperate with CDOW in monitoring and controlling populations. 

x Monitor every 2 years to evaluate ungulate impacts on riparian and upland shrub 

communities in Preble’s habitat. 

x Conduct annual abundance and density counts. 

x Use photo monitoring to document any habitat degradation. 

x Work with others to protect movement corridors. 

Prairie Dog 

Management 

Objective: 

x Limit prairie dog populations to 750 acres outside of recognized Preble’s habitat and xeric 

tallgrass habitat throughout the Refuge. 

Strategies:

x Annually monitor distribution of prairie dog populations. 

x Trap and relocate, or use other methods, to exclude prairie dogs from sensitive habitat areas. 

x Do not accept prairie dogs from off-site locations. 

x Monitor for plague. 

Species 

Reintroduction 

Objective: 

x Facilitate reintroduction of native extirpated species by or in coordination with CDOW. 

x Within 3 years, evaluate suitability for additional reintroduction of native extirpated species 

such as sharp-tailed grouse in coordination with CDOW. 

x Monitor redbelly dace and common shiner populations (introduced 2003) until successfully 

established. 

x Prioritize species to be reintroduced. 

Strategies: 

x Oversee and assist CDOW on species release, monitoring, and habitat maintenance. 

x If suitable, complete management plan for sharp-tailed grouse within first 2 years. 

x Annually monitor native fish in Rock Creek and introduce to other drainages. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 101

Summary of CCP Objectives and Strategies 

PUBLIC USE, EDUCATION and INTERPRETATION

Public Access 

Objectives: 

x Within 5 years, 75% of visitors will feel safe. 

x By plan’s end, visitors experience the Refuge on foot, bike and horse. 

x In year 1, open a trail to Lindsay Ranch. By years 5-7 open more trails and create baseline 

visitor data. 

x By plan’s end, 25% of visitors appreciate Refuge stewardship and desire to adopt 

conservation ethics. 

Strategies: 

x Allow self-guided public access to trails and facilities. 

x Develop an outreach program. 

x Develop surveys to measure visitor experience. 

x Provide a seasonally staffed visitor contact station, overlooks, trails, and other facilities. Site 

trails (pedestrian only and multi-use trails for equestrian and bike use) to provide 

opportunities for wildlife observation. Allow limited off-trail use. Seasonally close some 

trails to minimize wildlife impacts. 

x Use signage, staff contact, brochures, website and other means to inform visitors about the 

steps to becoming a refuge and access opportunities and restrictions. 

x Implement volunteer programs. 

x Keep surrounding communities informed about Refuge events and plan implementation. 

x Develop an interpretive signage system and interpretive programs. 

Interpretation 

Objectives: 

x Within 4 years, develop a plan outlining interpretive facilities/programs. 

x Within 15 years, implement the interpretive component of the Visitor Services Plan. 

Strategies: 

x Work with partners to develop the interpretive component of the Visitor Services Plan. 

x Develop programs that explore the site’s resources. 

x Distribute a variety of interpretive media. 
Chapter 4: Management Direction 

102 Rocky Flats National Wildlife Refuge 

Summary of CCP Objectives and Strategies 

PUBLIC USE, EDUCATION and INTERPRETATION (continued)

Environmental 

Education 

Objectives: 

x Within 5 years, develop an education plan for high school and college students. 

x Within 8 years, implement the education component of the Visitor Services Plan. 

Strategies: 

x Partner with educational institutions and the Cold War Museum. 

x Use electronic and other media to distribute data. 

Hunting 

Objectives: 

x Within 2 years, institute a controlled youth and/or disabled person’s deer and/or elk hunting 

program. Following year 3, consider expanding the hunting program to the general public. 

x Following each hunting season, assess the hunting program and adjust as appropriate. 

x 95% percent of hunters will report no conflicts with other users, and be satisfied with their 

experience. 

Strategies: 

x Work with the Colorado Division of Wildlife and other entities to develop a hunting 

component of the Visitor Services Plan and to monitor deer populations and habitat 

condition. 

x Close the refuge to others during hunting weekends and encourage staff to interact one-onone with the hunters. 

x Develop a survey for hunters, adjacent landowners and surrounding communities. 

Recreation 

Facilities 

Objectives: 

x Within 1 year, develop Lindsay Ranch trail. By years 5-7 build 75% of trails. By year 15, 

build all facilities including about 4 miles of hiking trails and about 13 miles of multi-use 

trails. 

x Within 10 years, construct a seasonally staffed contact station/restrooms and maintenance 

facilities. 

Strategies: 

x Develop a universal access trail to the Lindsay Ranch overlook and pedestrian only trails in 

the Rock Creek drainage. 

x Mark trails with way finding and interpretive signs and seasonally close trails to protect 

wildlife habitats. 

x Construct seasonally staffed contact station, un-staffed welcome kiosk, wildlife viewing blind, 

and portable restrooms at trailheads and partner to develop trail links and pedestrian 

crossings. Routinely evaluate facility impacts on wildlife. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 103

Summary of CCP Objectives and Strategies 

SAFETY

Staff Safety 

Objective: 

x All Refuge staff will receive orientation/training. 

Strategies: 

x Develop orientation and first aid training that addresses key Refuge safety issues. 

x Develop site-specific appendices to the Refuge Complex Safety Plan. 

x Within 1 year, develop a health and safety plan to cover all Refuge operations. 

x Implement a goal of zero incident performance. 

Visitor Safety 

Objective: 

x Within 5 years, 75% of visitors will be aware that the Refuge is safe and open for public 

access before they arrive. Upon arrival, these visitors will be informed of public use 

opportunities and restrictions. 

x Brief all participants in guided programs about site history. 

Strategies:

x Provide maps and interpretive signage with restriction information at all access 

points/trailheads. 

x Help potential users understand site restrictions and public use opportunities through a 

diversity of media. 

x Provide information to map/ tour book publishers. 

x Survey visitors to check success of safety program. 

x Maintain law enforcement and ensure employees can educate visitors on safety issues. 

x Measure program success by a reduction in visitors who violate safety rules. 

OPEN and EFFECTIVE COMMUNICATION 

Outreach 

Objective: 

x Within 5 years, implement 4 methods of informing the public. 

Strategies: 

x Reach out to local communities and recruit participants. 

x Measure diversity of groups attending outreach events. 

x Utilize a variety of outreach communication methods. 

x Take part in stewardship programs and local meetings. 
Chapter 4: Management Direction 

104 Rocky Flats National Wildlife Refuge 

Summary of CCP Objectives and Strategies 

WORKING WITH OTHERS 

Emergency 

Objective: 

x Within 1 year, create emergency response agreements with relevant parties. 

Strategies: 

x Meet annually, or as often as needed, to coordinate fire and emergency response plans. 

x Coordinate all prescribed burning and other restoration practices with all nearby agencies. 

Conservation 

Objective: 

x Meet annually (at minimum) with local entities to address conservation issues. 

Strategies: 

x Work closely with surrounding open space and natural resource entities. 

x Use volunteers to help with conservation activities. 

x Partner to maintain wildlife corridors for wildlife that migrate seasonally to and from the 

Refuge. 

Research 

Objective: 

x Make a list of habitat, wildlife and public use research needs; evaluate proposals for such 

research. 

Strategies: 

x Establish criteria to evaluate research proposals. 

x Emphasize research with implications for the Refuge. 

x Partner with other for research funding and resources. 

Volunteers 

Objective: 

x Within 3 years, create a volunteer program. 

Strategies: 

x Define volunteer opportunities, and recruit volunteers from horse and bike groups to help 

maintain trails. 

x Work to establish a Refuge “Friends” group. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 105

Summary of CCP Objectives and Strategies 

REFUGE OPERATIONS

Staffing 

Objective: 

x Within 2 years, fund four employees and assign collateral duties for Rocky 

Mountain Arsenal staff. Within 5 years add 1 additional employee. 

x Fund two full-time and two seasonal employees from fire management funding. 

Strategies:

x Follow Service protocols hiring of FTEs. 

Operation and 

Management 

Facilities 

Objective: 

x Within 5 years, develop 50% of operations and maintenance facilities needed to 

support public use and conservation objectives. By year 10, complete all operations 

and maintenance facilities. 

x Maintain the existing stock fence. 

Strategies:

x Submit proposals to the Refuge Operations Needs System and Maintenance 

Management System. 

x Renovate existing vehicle search buildings and provide additional administrative 

offices for Refuge employees within the contact station. 

x Prepare a fire cache and install necessary water storage systems. 

x Coordinate equipment sharing with RMA staff. 

x Attach boundary signage to the perimeter fence. 

x Install roadside signs along the site boundary in order to announce the Refuge’s 

presence. 

x Construct a small maintenance/storage facility (approximately 1750 – 2250 square 

feet). 

Cultural Resource 

Management 

Objective: 

x Develop a cultural resource preservation plan. 

x Stabilize and interpret the Lindsay Ranch barn. 

Strategies:

x Maintain an inventory of all cultural resources. 

x Pursue partnerships to fund barn stabilization. 

x Fence and/or take down the Lindsay Ranch house to prevent a safety hazard. 

x Work with interested parties to interpret the story of homesteading at Rocky Flats. 

x Survey burned areas for cultural artifacts. 
Chapter 4: Management Direction 

106 Rocky Flats National Wildlife Refuge 

4.3. ENVIRONMENTAL CONSEQUENCES

SUMMARY

The CCP will pose a variety of benefits and impacts to the

resources of the Refuge. Many of the greatest

environmental benefits will be the result of road removal

and revegetation, weed management practices, and habitat

management strategies for the Preble's meadow jumping

mouse. The greatest negative impacts to the resources

will result from new facility development and visitor use.

The environmental consequences of establishing and

managing the Rocky Flats NWR in accordance with this

CCP are summarized below. For a more detailed outline

of impacts refer to table 9 at the end of the chapter.

Preble's Habitat Management

The maintenance, protection, and improvement of riparian

and wetland habitat for Preble's will result in long-term

benefits for a number of species that depend on riparian

habitat. In addition, the maintenance of a vegetated buffer

around watercourses will benefit the water resources of

the Refuge. Furthermore, by providing a core reserve for

these threatened animals, Preble's habitat management on

the Refuge is likely to benefit populations on adjacent

lands. Increased monitoring of Preble's habitat, however,

may result in short-term, minor impacts to other ripariandependent species. The potential exclusion of deer and

elk from some of these riparian areas would further

protect riparian communities. While monitoring the

impacts of public use on riparian habitat and Preble's

populations would provide long-term benefits, recreational

monitoring alone may provide insufficient impacts for

effective habitat management.

Grassland Management

Grassland management and weed management tools,

including prescribed fire, grazing, and the restoration of

300 acres of disturbed grassland, could result in shortterm impacts to the Refuge due to disturbance of the

existing soil and vegetation structure. Effects of this

disturbance could include localized erosion, individual

wildlife impacts, localized air quality impacts due to

prescribed fire, and potential visual impacts. However, all

of the short-term effects of grassland management tools

will result in long-term benefits by promoting more robust

and sustainable native grassland communities. Improved

and diversified habitat conditions will result in long-term

benefits to a variety of wildlife species, including

grassland birds and native burrowing mammals.

Population control of deer and elk by CDOW and USFWS will benefit those species and the habitat they depend on.

© Mauro
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 107

Road Removal and Revegetation

By reducing habitat fragmentation and eliminating

conduits for invasive weeds and predators, the removal

and revegetation of unused roads and stream crossings

will provide major long-term benefits to vegetation

communities and related wildlife species. Throughout the

Refuge, 28 miles of road will be removed and revegetated,

and 13 stream crossings will be restored. While these

changes will result in short-term soil disturbance and

erosion, these short-term effects will be outweighed by the

long-term benefits. Road removal and revegetation will

provide 51 acres of additional habitat and will increase the

Refuge's average habitat patch size to 93 acres. One

animal species that should benefit from these changes is

the threatened Preble's meadow jumping mouse, which

inhabits riparian habitats directly affected by the restored

stream crossings. In the long term, the Refuge's water

resources should also benefit, through improved bank

stabilization and stream channel vegetation. Finally, road

removal and revegetation will have a direct positive impact

on the visual resources of the Refuge, as road scars in the

landscape fade from view.

Weed Management

The implementation of an Integrated Pest Management

(IPM) plan will allow the Service to develop a targeted

weed-management strategy that will benefit a variety of

vegetation communities and native wildlife species. The

chemical, biological, and mechanical tools employed to

control weeds may have short-term adverse impacts for

both plants and wildlife, but these impacts will be offset by

the long-term advantages. For instance, by reducing

competition from invasive weeds, weed management

activities will enhance the quality and diversity of native

vegetation communities, which will provide long-term

benefits to a variety of native wildlife species. The

inclusion of prescribed fire and grazing as restoration

tools will provide further long-term advantages.

Moreover, the benefits of weed management may extend

beyond the Refuge borders, by reducing the spread of

weeds in adjacent open space areas and by providing a

source of information for regional weed management

efforts. 

Deer and Elk Management

Population control of deer and elk by CDOW and USFWS

will benefit those species and the habitat they depend on.

For instance, by monitoring deer impacts on riparian

habitat, Refuge staff could identify excessive overgrazing

and overbrowsing, and implement aggressive management

activities to limit damage and benefit Preble's habitat.

While culling and public hunting will directly impact

individual animals that are killed, these practices should

provide long-term benefits to deer and elk populations

throughout the Refuge and on adjacent lands. The

establishment of a five-year time-span for meeting the

target population is an important factor in ensuring

healthy populations and limiting habitat degradation. This

carefully considered program of deer and elk management

may provide environmental benefits in areas far from

Rocky Flats, as it will add to the growing base of scientific

information regarding wildlife management. 

Prairie Dog Management

The Refuge has the potential to support many more

prairie dog colonies and individuals than currently occupy

the site. A healthy prairie dog population on the Refuge

will provide a genetic base for the region if other

populations are diminished by plague, predation, or other

factors. The expansion of prairie dog colonies will be

limited to 750 acres of suitable habitat on the Refuge.

Excluding prairie dogs from riparian areas and xeric

tallgrass communities, which are not suitable habitat, will

benefit these communities. Prairie dog expansion could

result in minor impacts to the existing soil and vegetation

structure and some grassland wildlife species in expansion

areas. Nevertheless, it will have a beneficial effect on

wildlife and wildlife habitat by enhancing nutrient cycling

and plant growth, and increasing habitat for other wildlife

species that inhabit prairie dog colonies. For example,

prairie dog expansion will improve foraging conditions for

nearby bald eagles and other predators on the Refuge.

Overall, a greater diversity of wildlife is expected with

expansion of prairie dog colonies. 

Species Reintroduction

Sharp-tailed grouse is a likely candidate for reintroduction

to the Refuge. Species reintroduction would benefit

wildlife diversity throughout the Refuge and on nearby

open space lands and would result in increased wildlife

viewing opportunities. Weed management activities and

other planning would benefit these reintroduced

The use of blinds and overlooks, as well as guided

interpretive visits, will help mitigate impacts to wildlife. 

© Mauro
Chapter 4: Management Direction 

108 Rocky Flats National Wildlife Refuge 

populations. Additionally, the ongoing reintroduction of

native fish species in Rock Creek and the Lindsay Ponds

(and potentially other creeks) will provide long-term

benefits to the survival of these species by establishing a

population in its native habitat that can be a source for

future reintroductions to other foothills and plains

streams.

Facility Development

In the short term, the development of new trails and

facilities will result in localized soil disturbance and

erosion from construction, with corresponding impacts to

water resources though erosion and sedimentation. Soil

loss from new facilities will occur on 1.1 acres, and soil

disturbance will occur on 1.7 miles of newly constructed

trail. In the long term, trail use and off-trail use near

streams may result in some bank destabilization and

erosion. New trails and facilities will directly impact

existing vegetation and indirectly impact vegetation in

places adjacent to development sites, resulting in 4.8 acres

of impacted vegetation. The development of trails and

facilities on the Refuge, however, will provide real benefits

to the public by complementing, but not duplicating,

recreational opportunities available on nearby open space

lands. Trails and trailheads will also benefit the

connectivity of the regional trail system, though they will

not provide a direct link to Boulder County trails to the

north.

Public Use

Trail use throughout the Refuge may adversely affect

wildlife by creating a new disturbance that disrupts

wildlife movement and fragments some habitat areas. Offtrail use will pose minor impacts to vegetation due to

trampling, social trails, and dispersal of weeds. In

addition, new trails are likely to function as conduits for

predators and weeds. On the other hand, some of these

intrusions could benefit deer populations by increasing

deer movement, which may result in improved genetic

diversity. In riparian areas, use of trails may result in

minor impacts to the Preble's meadow jumping mouse.

The trails, however, do not follow riparian areas for

extended distances and these impacts will be mitigated by

seasonal trail closures. In general, short-term impacts to

wildlife, such as changes in behavior, foraging habits or

physiology, will apply to individuals rather than

populations or communities. For smaller species including

birds, small mammals, reptiles, and insects, the presence

and ongoing use of a trail will likely result in minor

localized adverse impacts by creating a barrier to

movement and the availability of nearby habitat (Meaney

et al. 2002; Dickerson 2003; Miller and Knight 2001).

Visitors engaging in wildlife photography and observation

can cause short-term impacts to wildlife due to the long

duration of their behavior (Knight and Cole, 1995; Weir

2000). The use of established blinds and overlooks, as well

as guided interpretive visits, will help mitigate these

impacts. 

Trail disturbance to large, broad ranging species such as

mule deer and elk will result in minor adverse impacts

due to changes in movement patters and abandonment of

certain concentration areas. Public hunting will result in

direct impacts to some individuals and will introduce a

new disturbance. The minor impacts of hunting will be

offset by the long-term benefits of improved population

dynamics (migration and dispersal) on the Refuge and in

surrounding habitat areas. 

Research

Habitat related research would benefit vegetation and

habitat management refuge-wide and regionally. Shortterm wildlife disturbances from research and monitoring

would be offset by improved knowledge of wildlife

management.

4.4. REFERENCES

Anderson, B.W. and R.D. Ohmart. 1986.

Vegetation. in A.Y. Cooperrider, R.J. Boyd

and H.R. Stuart, eds. Inventory and

Monitoring of Wildlife Habitat. U.S.

Department of Interior, Bureau of 

Land Management Service Center. 

Denver, Colorado.

Burnham, K.P., D.R. Anderson and J.L. Laake.

1980. Estimation of density from line transect

sampling of biological populations. Wildlife

Monographs, 72. 202 pp. 

CDOT. 2004. Northwest Corridor EIS. Materials

Presented at Public Meetings in April 2004.

http://www.dot.state.co.us/northwestcorridoreis/in

volvement/apr04boards.cfm. Accessed June 9,

2004.

Church Ranch. 2004. Technical Revision to Rocky Flats

Pit, Permit number M-1987-113.

Colorado Division of Minerals and Geology

(CDMG). 2004. Permit issuance, Rocky Flats

Pit, Permit number M-1987-113, with rider.

January 13, 2004.

Compton, S.A. and D.A. Hugie. 1993. Status

Report on Zapus hudsonius preblei, a

candidate Endangered Species. USDI Fish and

Wildlife Service, Denver, Colorado.
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 109

Department of Energy – National Renewable

Energy Laboratory. 2002. Final Site-Wide

Environmental Assessment of National

Renewable Energy Laboratory’s National

Wind Technology Center.

Department of Energy Rocky Flats

Environmental Technology Site and the U.S

Fish & Wildlife Service. 2001. Integrated

Natural Resources Management Plan,

Environmental Assessment and Finding of

No Significant Impacts for Rock Creek

Reserve, 2001-Closure.

EPA. 1999. Consideration of Cumulative Impacts in

EPA Review of NEPA Documents. U.S.

Environmental Protection Agency, Office of

Federal Activities (2252A). EPA 315-R-99-

002/May 1999.

Jefferson County Open Space. 2001. Executive

Summary: Coal Creek Canyon Park Management

Plan.

Informal Learning Experiences, Inc. 2003. Final

Report: Rocky Flats Cold War Museum Scoping

Study. Washington, D.C.

http://www.rockyflatscoldwarmuseum.org/

feasreport.pdf.

Kaiser-Hill, 1997. High-value vegetation survey plan

for the Rocky Flats Environmental Technology

Site. Golden, Colorado.

Kaiser-Hill. 2001. Ecology Field Monitoring Plans

for the Rocky Flats Environmental Technology

Site. Golden, Colorado.

Kaiser-Hill. 2002. 2001 Annual Vegetation Report

for the Rocky Flats Environmental Technology

Site.

Owensby, C.E. 1973. Modified step-point system for

botanical composition and basal cover

estimates. Journal of Range Management

26:303-303.

U.S. Fish & Wildlife Service. 2000. Final Refuge

Planning Policy. FWM 355. Part 602 National

Wildlife Refuge System Planning. 
Chapter 4: Management Direction 

110 Rocky Flats National Wildlife Refuge 

Table 9. Summary of Environmental Consequences

Environmental Consequences of the CCP 

GEOLOGY and SOILS

Deer and Elk Management Population control will reduce potential for soil erosion due to overgrazing. 

Prairie Dog Expansion May result in increased soil erosion. These impacts may be offset by the increased nutrient 

cycling and soil stability provided by prairie dog colonies. Effects up to 750 acres. 

Mixed Prairie Grassland 

Management 

Restoration of hay meadow and other disturbed areas will result in short-term soil 

disturbance and long-term benefits. 

Road Restoration and 

Revegetation 

Road removal will result in short-term soil disturbance and erosion. Long-term benefits of 

revegetation will offset the short-term effects. 

Public Use and 

Maintenance Facilities 

New trails and facilities will result in localized soil disturbance and erosion during 

construction, and long-term impacts from use. 

WATER RESOURCES

Preble’s Habitat 

Management 

Protection and maintenance of riparian habitat and vegetated buffer will benefit water 

resources. 

Weed Management Localized, short-term erosion may occur following prescribed fire or grazing. 

Road Restoration and 

Revegetation 

Road removal Refuge-wide may result in short-term impacts due to sedimentation, and longterm benefits due to improved bank vegetation, stream channel, etc. 

Public Use Trail use and off-trail use near streams may result in bank destabilization and erosion. 

Facility construction may result in short-term impacts due to erosion and sedimentation. 

VEGETATION COMMUNITIES

Deer and Elk Management 

Population management by CDOW and vegetation monitoring will benefit vegetation by 

reducing impacts of overbrowsing/ overgrazing. Benefits will be increased by the 5-year 

target population timeframe. 

Prairie Dog Management Prairie dogs may impact some plant communities. Exclusion of prairie dogs from riparian 

and xeric tallgrass habitat Refuge-wide will benefit these communities. 

Preble’s Habitat 

Management 

Maintenance, protection, and improvement of riparian and wetland habitat will benefit 

those communities. 

– Exclusion of ungulates will benefit riparian habitat. 

– Monitoring recreation impacts only may provide insufficient information for effective 

riparian habitat management. 

Xeric Tallgrass 

Conservation 

Management planning and regional conservation efforts will benefit xeric tallgrass 

community. Benefits will be Refuge-wide. 

Mixed Grassland Prairie 

Management 

Restoration of hay meadow and other areas will benefit grassland communities. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 111

Environmental Consequences of the CCP

VEGETATION COMMUNITIES (continued)

Road Restoration and 

Revegetation 

Road removal will benefit vegetation communities Refuge-wide by reducing fragmentation. 

Removal of stream crossings may result in short-term impacts to wetlands and riparian 

habitat, with long-term benefits. Will result in: 

– 45 acres of additional habitat 

– Average patch size of 98 acres 

Weed Management 

Weed management efforts will benefit vegetation communities Refuge-wide. 

– Chemical, biological, and mechanical control may have short-term adverse impacts that 

would be offset by long-term benefits. Benefits may be reduced by lack of grazing as a 

management tool. 

– Benefits may be increased because of Refuge-wide use of prescribed fire and grazing. 

Public Use Facilities 

New trails and facilities will directly impact vegetation and indirectly impact adjacent 

vegetation. Impacts include: 

– 2 acres of impacts to xeric tallgrass grassland 

– 2.6 acres of mixed grassland 

Off-trail Use Minor impacts to vegetation due to trampling, social trails, and weed dispersal. 

Public Use Monitoring Monitoring impacts of public use on riparian habitat will provide long-term benefit. 

Regional Coordination Coordination with adjacent landowners will benefit vegetation through better management. 

Research Habitat-related research will benefit vegetation and habitat management. 

WILDLIFE

Native Fish Reintroduction Will provide long-term benefits to fish populations and survival rates. 

Sharp-tailed Grouse 

Reintroduction 

Management planning and weed management efforts will benefit grouse reintroduction 

efforts. 

Deer and Elk Management 

Population targets will be realized within 5 years, providing moderate benefits. 

– Culling and hunting will impact animals due to mortality or stress, will provide longterm benefits. 

– Monitoring will be minimum necessary for effective population management. 

Preble’s Habitat 

Management 

Habitat protection will benefit other riparian wildlife species. Minor impacts to riparian 

wildlife species due to Preble’s monitoring. 

Prairie Dog Management Colony expansion could result in long-term impacts to vegetation structure and local 

extirpation of some species. Effects will be limited to 750 acres. 
Chapter 4: Management Direction 

112 Rocky Flats National Wildlife Refuge 

Environmental Consequences of the CCP

VEGETATION COMMUNITIES (continued)

Road Restoration and 

Revegtation 

Road revegetation will benefit various wildlife species Refuge-wide. 

Vegetation and Wildlife 

Monitoring 

May result in short-term impacts (disturbance/displacement) to individual animals. 

Xeric Tallgrass 

Management 

Efforts Refuge-wide may have short-term adverse impacts to wildlife and long-term benefits 

due to habitat enhancement. 

Mixed Grassland Prairie 

Management 

 Restoration of disturbed areas may impact some resident wildlife; will result in longterm habitat benefits to wildlife. 

Weed Management Various management tools have the potential to cause direct mortality or injury to 

individual animals. Impacts will be offset by long-term benefits of improved habitat. 

Public Use 

Trail use throughout the Refuge may adversely affect wildlife in the following ways: 

– Creating a new disturbance that may disrupt wildlife movement and fragment habitat 

areas. 

– New trails may provide a conduit for predators and weeds. 

– Short-term stress and adjustment for mule deer; followed by long-term benefits of 

increased deer movement that may improve genetic diversity and decrease habitat impacts. 

Regional Coordination Coordination with other land managers will improve wildlife and habitat management. 

Research Short-term wildlife disturbance will be offset by improved knowledge of wildlife 

management. 

Fence Removal Removal of unnecessary interior stock fencing will benefit wildlife species by facilitating 

open movement through Refuge. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 113

 Environmental Consequences of the CCP 

THREATENED, ENDANGERED and CANDIDATE SPECIES

Grouse Reintroduction 

Grouse habitat management will benefit Preble’s habitat, provide additional eagle prey; 

may conflict with prairie dog habitat management. 

Deer and Elk Management More aggressive population management could benefit Preble’s by reducing overbrowsing. 

Prairie Dog Management Colony expansion will be limited to 750 acres. Expansion will benefit prairie dogs and 

improve foraging for bald eagles, but could impact Preble’s habitat. 

Preble’s Habitat 

Management 

Exclusion of grazing from habitat may have moderate benefits to Preble’s. Monitoring 

could lead to short-term disturbance. Habitat management may benefit bald eagle foraging 

perches. 

Road Restoration and 

Revegetation Revegetation of unused roads and stream crossings will benefit all species. 

Weed Management Short-term habitat impacts from management tools followed by long-term habitat 

improvements. 

Public Use 

Trail development and use in riparian areas may impact Preble’s (mitigated by seasonal 

closures). Facility development may impact prairie dogs and associated foraging habitat for 

eagles. 

CULTURAL and HISTORIC RESOURCES

Lindsay Ranch Stabilization efforts would benefit barn, but value of house would be lost. 

OPEN SPACE, RECREATION and TRAILS 

Wildlife Management 

Species reintroductions and deer and elk population management on the Refuge may result 

in long-term benefits to wildlife populations and wildlife viewing opportunities on adjacent 

open space lands. 

Preble’s Habitat 

Management 

Refuge could provide a core reserve for Preble’s and other species that would benefit 

populations on adjacent open space lands. 

Vegetation Management Efforts such as xeric tallgrass management planning, and regional collaboration could 

benefit adjacent open space areas by improving knowledge and coordination. 

Weed Management Weed reduction efforts on the Refuge could benefit adjacent open space by reducing spread 

of weeds and increasing management knowledge. 

Recreation Opportunities Recreation programs will compliment but not duplicate opportunities on nearby open space 

lands. 

Trail Facilities Trails and trailheads will benefit the regional connectivity of trails, but would lack a direct 

connection to Boulder trails. 
Chapter 4: Management Direction 

114 Rocky Flats National Wildlife Refuge 

 Environmental Consequences of the CCP 

VISUAL RESOURCES

Deer and Elk Management May reduce visual impacts of overgrazing/overbrowsing. 

Prairie Dog Management Colonies will be a visual impact to some, a benefit to others. Effects will be limited to 750 

acres of the Refuge. 

Prescribed Fire Short-term visual impacts associated with smoke and burned areas from prescribed fires. 

Grazing May result in short-term visual impacts; though some may consider livestock to be a benefit 

for landscape views. 

Road Removal and 

Revegetation Revegetation will benefit visual aesthetics Refuge-wide. 

Mixed Grassland Prairie 

Management Revegetation will likely cause short-term visual impacts followed by long-term benefits. 

Public Use Facilities May result in minor visual impacts. 

NOISE

Deer and Elk Management Occasional gunshots associated with culling and public hunting may be audible from within 

Refuge, but would not impact overall noise levels. 

Excavation and 

Construction 

Heavy equipment for road restoration and facility development would result in short-term 

noise impacts in nearby areas. 

TRANSPORTATION

Highway 93 

Contribution of Refuge traffic to Highway 93 will be much less than pre-Refuge conditions. 

Will not warrant a traffic signal, but existing acceleration/deceleration lanes will be 

beneficial. 

Highway 128 No impacts from trailhead location. Potential trail crossing at McCaslin would require 

pedestrian signals. 

Indiana Street Potential pedestrian crossings should include warning signs for safety. Recommended 

locations are north of Walnut Creek, and south of Woman Creek. 

AIR QUALITY

Dust and Emissions Equipment usage will result in short-term localized emissions and fugitive dust. 

Prescribed Fire Will result in short-term increases in particulates and decreased visibility nearby. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 115

 Environmental Consequences of the CCP 

SOCIOECONOMICS

Staffing Staffing levels will have no impact on regional employment, income or housing conditions. 

Community Change from past use to Refuge will benefit community perceptions of Rocky Flats. 

Environmental Justice No adverse effects on minority or low-income populations, or Native Americans. 

Chapter 4: Management Direction 

110 Rocky Flats National Wildlife Refuge 

Table 9. Summary of Environmental Consequences

Environmental Consequences of the CCP 

GEOLOGY and SOILS

Deer and Elk Management Population control will reduce potential for soil erosion due to overgrazing. 

Prairie Dog Expansion May result in increased soil erosion. These impacts may be offset by the increased nutrient 

cycling and soil stability provided by prairie dog colonies. Effects up to 750 acres. 

Mixed Prairie Grassland 

Management 

Restoration of hay meadow and other disturbed areas will result in short-term soil 

disturbance and long-term benefits. 

Road Restoration and 

Revegetation 

Road removal will result in short-term soil disturbance and erosion. Long-term benefits of 

revegetation will offset the short-term effects. 

Public Use and 

Maintenance Facilities 

New trails and facilities will result in localized soil disturbance and erosion during 

construction, and long-term impacts from use. 

WATER RESOURCES

Preble’s Habitat 

Management 

Protection and maintenance of riparian habitat and vegetated buffer will benefit water 

resources. 

Weed Management Localized, short-term erosion may occur following prescribed fire or grazing. 

Road Restoration and 

Revegetation 

Road removal Refuge-wide may result in short-term impacts due to sedimentation, and longterm benefits due to improved bank vegetation, stream channel, etc. 

Public Use Trail use and off-trail use near streams may result in bank destabilization and erosion. 

Facility construction may result in short-term impacts due to erosion and sedimentation. 

VEGETATION COMMUNITIES

Deer and Elk Management 

Population management by CDOW and vegetation monitoring will benefit vegetation by 

reducing impacts of overbrowsing/ overgrazing. Benefits will be increased by the 5-year 

target population timeframe. 

Prairie Dog Management Prairie dogs may impact some plant communities. Exclusion of prairie dogs from riparian 

and xeric tallgrass habitat Refuge-wide will benefit these communities. 

Preble’s Habitat 

Management 

Maintenance, protection, and improvement of riparian and wetland habitat will benefit 

those communities. 

– Exclusion of ungulates will benefit riparian habitat. 

– Monitoring recreation impacts only may provide insufficient information for effective 

riparian habitat management. 

Xeric Tallgrass 

Conservation 

Management planning and regional conservation efforts will benefit xeric tallgrass 

community. Benefits will be Refuge-wide. 

Mixed Grassland Prairie 

Management 

Restoration of hay meadow and other areas will benefit grassland communities. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 111

Environmental Consequences of the CCP

VEGETATION COMMUNITIES (continued)

Road Restoration and 

Revegetation 

Road removal will benefit vegetation communities Refuge-wide by reducing fragmentation. 

Removal of stream crossings may result in short-term impacts to wetlands and riparian 

habitat, with long-term benefits. Will result in: 

– 45 acres of additional habitat 

– Average patch size of 98 acres 

Weed Management 

Weed management efforts will benefit vegetation communities Refuge-wide. 

– Chemical, biological, and mechanical control may have short-term adverse impacts that 

would be offset by long-term benefits. Benefits may be reduced by lack of grazing as a 

management tool. 

– Benefits may be increased because of Refuge-wide use of prescribed fire and grazing. 

Public Use Facilities 

New trails and facilities will directly impact vegetation and indirectly impact adjacent 

vegetation. Impacts include: 

– 2 acres of impacts to xeric tallgrass grassland 

– 2.6 acres of mixed grassland 

Off-trail Use Minor impacts to vegetation due to trampling, social trails, and weed dispersal. 

Public Use Monitoring Monitoring impacts of public use on riparian habitat will provide long-term benefit. 

Regional Coordination Coordination with adjacent landowners will benefit vegetation through better management. 

Research Habitat-related research will benefit vegetation and habitat management. 

WILDLIFE

Native Fish Reintroduction Will provide long-term benefits to fish populations and survival rates. 

Sharp-tailed Grouse 

Reintroduction 

Management planning and weed management efforts will benefit grouse reintroduction 

efforts. 

Deer and Elk Management 

Population targets will be realized within 5 years, providing moderate benefits. 

– Culling and hunting will impact animals due to mortality or stress, will provide longterm benefits. 

– Monitoring will be minimum necessary for effective population management. 

Preble’s Habitat 

Management 

Habitat protection will benefit other riparian wildlife species. Minor impacts to riparian 

wildlife species due to Preble’s monitoring. 

Prairie Dog Management Colony expansion could result in long-term impacts to vegetation structure and local 

extirpation of some species. Effects will be limited to 750 acres. 
Chapter 4: Management Direction 

112 Rocky Flats National Wildlife Refuge 

Environmental Consequences of the CCP

VEGETATION COMMUNITIES (continued)

Road Restoration and 

Revegtation 

Road revegetation will benefit various wildlife species Refuge-wide. 

Vegetation and Wildlife 

Monitoring 

May result in short-term impacts (disturbance/displacement) to individual animals. 

Xeric Tallgrass 

Management 

Efforts Refuge-wide may have short-term adverse impacts to wildlife and long-term benefits 

due to habitat enhancement. 

Mixed Grassland Prairie 

Management 

 Restoration of disturbed areas may impact some resident wildlife; will result in longterm habitat benefits to wildlife. 

Weed Management Various management tools have the potential to cause direct mortality or injury to 

individual animals. Impacts will be offset by long-term benefits of improved habitat. 

Public Use 

Trail use throughout the Refuge may adversely affect wildlife in the following ways: 

– Creating a new disturbance that may disrupt wildlife movement and fragment habitat 

areas. 

– New trails may provide a conduit for predators and weeds. 

– Short-term stress and adjustment for mule deer; followed by long-term benefits of 

increased deer movement that may improve genetic diversity and decrease habitat impacts. 

Regional Coordination Coordination with other land managers will improve wildlife and habitat management. 

Research Short-term wildlife disturbance will be offset by improved knowledge of wildlife 

management. 

Fence Removal Removal of unnecessary interior stock fencing will benefit wildlife species by facilitating 

open movement through Refuge. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 113

 Environmental Consequences of the CCP 

THREATENED, ENDANGERED and CANDIDATE SPECIES

Grouse Reintroduction 

Grouse habitat management will benefit Preble’s habitat, provide additional eagle prey; 

may conflict with prairie dog habitat management. 

Deer and Elk Management More aggressive population management could benefit Preble’s by reducing overbrowsing. 

Prairie Dog Management Colony expansion will be limited to 750 acres. Expansion will benefit prairie dogs and 

improve foraging for bald eagles, but could impact Preble’s habitat. 

Preble’s Habitat 

Management 

Exclusion of grazing from habitat may have moderate benefits to Preble’s. Monitoring 

could lead to short-term disturbance. Habitat management may benefit bald eagle foraging 

perches. 

Road Restoration and 

Revegetation Revegetation of unused roads and stream crossings will benefit all species. 

Weed Management Short-term habitat impacts from management tools followed by long-term habitat 

improvements. 

Public Use 

Trail development and use in riparian areas may impact Preble’s (mitigated by seasonal 

closures). Facility development may impact prairie dogs and associated foraging habitat for 

eagles. 

CULTURAL and HISTORIC RESOURCES

Lindsay Ranch Stabilization efforts would benefit barn, but value of house would be lost. 

OPEN SPACE, RECREATION and TRAILS 

Wildlife Management 

Species reintroductions and deer and elk population management on the Refuge may result 

in long-term benefits to wildlife populations and wildlife viewing opportunities on adjacent 

open space lands. 

Preble’s Habitat 

Management 

Refuge could provide a core reserve for Preble’s and other species that would benefit 

populations on adjacent open space lands. 

Vegetation Management Efforts such as xeric tallgrass management planning, and regional collaboration could 

benefit adjacent open space areas by improving knowledge and coordination. 

Weed Management Weed reduction efforts on the Refuge could benefit adjacent open space by reducing spread 

of weeds and increasing management knowledge. 

Recreation Opportunities Recreation programs will compliment but not duplicate opportunities on nearby open space 

lands. 

Trail Facilities Trails and trailheads will benefit the regional connectivity of trails, but would lack a direct 

connection to Boulder trails. 
Chapter 4: Management Direction 

114 Rocky Flats National Wildlife Refuge 

 Environmental Consequences of the CCP 

VISUAL RESOURCES

Deer and Elk Management May reduce visual impacts of overgrazing/overbrowsing. 

Prairie Dog Management Colonies will be a visual impact to some, a benefit to others. Effects will be limited to 750 

acres of the Refuge. 

Prescribed Fire Short-term visual impacts associated with smoke and burned areas from prescribed fires. 

Grazing May result in short-term visual impacts; though some may consider livestock to be a benefit 

for landscape views. 

Road Removal and 

Revegetation Revegetation will benefit visual aesthetics Refuge-wide. 

Mixed Grassland Prairie 

Management Revegetation will likely cause short-term visual impacts followed by long-term benefits. 

Public Use Facilities May result in minor visual impacts. 

NOISE

Deer and Elk Management Occasional gunshots associated with culling and public hunting may be audible from within 

Refuge, but would not impact overall noise levels. 

Excavation and 

Construction 

Heavy equipment for road restoration and facility development would result in short-term 

noise impacts in nearby areas. 

TRANSPORTATION

Highway 93 

Contribution of Refuge traffic to Highway 93 will be much less than pre-Refuge conditions. 

Will not warrant a traffic signal, but existing acceleration/deceleration lanes will be 

beneficial. 

Highway 128 No impacts from trailhead location. Potential trail crossing at McCaslin would require 

pedestrian signals. 

Indiana Street Potential pedestrian crossings should include warning signs for safety. Recommended 

locations are north of Walnut Creek, and south of Woman Creek. 

AIR QUALITY

Dust and Emissions Equipment usage will result in short-term localized emissions and fugitive dust. 

Prescribed Fire Will result in short-term increases in particulates and decreased visibility nearby. 
Chapter 4: Management Direction

Final Comprehensive Conservation Plan 115

 Environmental Consequences of the CCP 

SOCIOECONOMICS

Staffing Staffing levels will have no impact on regional employment, income or housing conditions. 

Community Change from past use to Refuge will benefit community perceptions of Rocky Flats. 

Environmental Justice No adverse effects on minority or low-income populations, or Native Americans.