September 2012 

U.S. Department of the Interior 

Bureau of Land Management 

Lower Sonoran Field Office, Phoenix,Arizona 

SONORAN DESERT 

NATIONAL MONUMENT 

RECORD OF DECISION & 

APPROVED RESOURCE 

MANAGEMENT PLAN 
MISSION STATEMENT

“The Bureau of Land Management is responsible for stewardship of our public lands. The BLM is 

committed to manage, protect, and improve these lands in a manner to serve the needs of the American 

people. Management is based upon the principles of multiple use and sustained yield of our Nation’s 

resources within the framework of environmental responsibility and scientific technology. These 

resources include recreation, rangelands, timber, minerals, watershed, fish and wildlife habitat,

wilderness, air, and scenic quality, as well as scientific and cultural values.”

BLM/AZ/PL-12/008
SONORAN DESERT NATIONAL MONUMENT

RECORD OF DECISION AND

APPROVED RESOURCE MANAGEMENT PLAN

Lead Agency: US Department of the Interior (DOI), Bureau of Land Management (BLM) 

Cooperating

Agencies: Arizona Game and Fish Department, Arizona Department of Transportation

Location: Arizona 

Contacts: Requests for additional information regarding the Record of Decision and Approved Resource 

Management Plan: 

 Rich Hanson, Sonoran Desert National Monument Manager, 623-580-5500 

Requests for copies of the document: 

 blm_az_ls_sdnm_plan@blm.gov or call the Phoenix District Office Receptionist, 

623-580-5500

Project Web site: http://www.blm.gov/az/st/en/prog/planning/son_des.html 

Abstract: The Sonoran Desert National Monument Record of Decision and Approved Resource 

Management Plan (ROD/ARMP) is a project of BLM Arizona that supports the BLM’s 

Mission. The Approved RMP was prepared under the authority and regulations 

implementing Presidential Proclamation 7397 and the Federal Land Policy and 

Management Act (FLPMA) of 1976 (43 Code of Federal Regulations [CFR], 1600). It 

includes broad land use plan decisions that provide the overall direction for managing 

resources and resource uses in the Sonoran Desert National Monument (SDNM). 

Land use plan decisions are expressed as goals and objectives (desired outcomes), 

allowable uses, and management actions anticipated to achieve desired outcomes. The 

Approved RMP also includes implementation-level decisions for travel management. 

The SDNM is located in Maricopa and Pinal Counties, Arizona, approximately 50 miles 

southwest of Phoenix, and contains 486,400 acres of BLM-administered lands. The 

decisions in the RMP only apply to the BLM-administered lands within the Monument.

This plan represents years of ongoing coordinated efforts on the part of the BLM 

Phoenix District, SDNM staff, BLM Arizona State Office staff, representatives of 

communities in the Planning Area, cooperating agencies, special interest and user 

groups, and hundreds of concerned citizens. The decisions outlined in this document 

will enable the BLM to manage and protect the resources on public lands within the 

SDNM to achieve desired future conditions and management objectives in compliance 

with the Presidential Proclamation, in partnership with communities and citizens.

Land use plan decisions identified in the Approved RMP are final and become effective 

upon the Arizona’s State Director’s signing of the ROD.
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United States Department of the Interior 

BUREAU OF LAND MANAGEMENT 

TAKE PRIDir

INAMERICA Phoenix District 

Sonoran Desert National Monument 


21605 North 7th Avenue 


Phoenix, Arizona 85027 


www.blm.gov/az/ 


In Reply Refer To: 

2000/20 I 0 (PO 1 0) 

Dear Reader/Interested Party: 

I am pleased to announce that, after several years of hard work and collaboration, the Sonoran 

Desert National Monument Resource Management Plan (RMP) is complete. This document will 

provide guidance for the management of about 496,400 acres of Federal surface and mineral 

estate administered by the Bureau ofLand Management (BLM) in Maricopa, and Pinal Counties 

in south-central Arizona. 

The attached Record ofDecision (ROD) and Approved RMP have been prepared in accordance 

with the Federal Land Policy and Management Act (FLPMA) and the National Environmental 

Policy Act (NEPA). The ROD/Approved RMP is available to members ofthe public and will be 

sent to pertinent local, State, Tribal and Federal government entities. The ROD finalizes the 

proposed decisions presented in the Proposed RMP/Final Environmental Impact Statement 

(FEIS) that was released on June 15, 2012 and subject to a 30-day protest period that ended on 

July 16, 2012. Nine protest letters with standing were received. The protests were reviewed by the 

BLM Director in Washington, D.C. After careful consideration ofall points raised in these 

protests, the Director concluded the responsible planning team and decision makers followed all 

applicable laws, regulations, policies, and pertinent resource considerations in developing the 

proposed plan. Minor adjustments or points of clarification are incorporated into the Approved 

RMP in response to issues raised in the protest process and final BLM review. These minor 

changes are discussed in the ROD under the section titled Clarifications and Modifications, but 

the protest review did not result in any significant changes from the Proposed RMP. 

The approval of this ROD by the BLM Arizona State Director serves as the final decision for all 

land use plan decisions described in the attached Approved RMP. Implementation-level 

decisions in the Approved RMP, relating to route designations, are subject to appeal. Appeal 

procedures for these implementation decisions are described in section 1.4.2 of the attached ROD. 

Future implementation of land use plan decisions will not be undertaken without suitable further 

NEPA analysis, including appropriate public involvement. 
2 

Notification of the apprm·al of this ROD/ Appro' ed RMP will be announced 'ia localne" s 

releases and on the BLM website at· hll '~"" .plm.gO\ az/st/cn/prog, pl::mning_~on de~ html. 

CD-ROM Yersions of the ROD/ Apprm ed RMP may be obtained b~ contacting the Lo" cr 

Sonoran Field Office by phone at (623) 580-5500: b~ sending a request by email to 

BLM _ AZ_LSFO _ SDNM@blm.gov ; or at the following address: 

Bureau of Land Management 


Lower Sonoran Field Office 


21605 N. 7th Avenue 


Phoenix, Arizona 85027 


A limited number of Hard Copy documents will be available at a later date and may be requested 

from the same locations. 

The BLM is pleased to provide this copy of the Sonoran Desert National Monument 

ROD/ Approved RMP for your reference. We greatly appreciate the efforts of all who contributed 

to completion ofthis RMP, including the State of Arizona, Maricopa County, The towns of 

Buckeye and Gila Bend, and numerous Federal and State government agencies that worked 

closely with us to complete this important effort. We also appreciate the extensive public 

involvement during this time by local communities, organizations, and individuals. Public input 

informed and improved this planning document. We look forward to continuing to work with our 

partners and citizens as we implement the decisions in this RMP. 

Sincerely, 

Richard B. Hanson 

National Monument Manager 

Enclosure 
TABLE OF CONTENTS

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan i 

TABLE OF CONTENTS

Chapter Page

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

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

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

1.2.1 Protest Resolution......................................................................................................... 1-2

1.2.2 Clarifications and Modifications ................................................................................. 1-4

1.3 The Alternatives............................................................................................................................ 1-5

1.3.1 Alternatives Considered, but Not Analyzed........................................................... 1-5

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

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

1.4 Land Use Plan Decisions, Implementation Decisions, and Administrative Actions...... 1-9

1.4.1 Land Use Plan Decisions.............................................................................................. 1-9

1.4.2 Implementation Decisions......................................................................................... 1-10

1.4.3 Administrative Actions............................................................................................... 1-12

1.5 Management Considerations for Selecting the Approved RMP ...................................... 1-12

1.5.1 Compatibility of Grazing in the SDNM.................................................................. 1-13

1.6 Mitigation Measures................................................................................................................... 1-14

1.7 Plan Monitoring – RMP-Level Decisions............................................................................... 1-14

1.8 Implementation of the Management Plan.............................................................................. 1-15

1.9 Public Involvement...................................................................................................................... 1-15

1.9.1 Public Scoping ............................................................................................................... 1-15

1.9.2 Public Review of and Comment on the DRMP/EIS ............................................. 1-15

1.9.3 Public Review of and Protest on the PRMP/FEIS ................................................. 1-16

1.9.4 Agency Consultations – US Fish and Wildlife Service (USFWS) and 

State Historic Preservation Office........................................................................... 1-16

1.10 Rationale for Selection of the Approved RMP .................................................................... 1-16

1.11 Availability and Approval of the Plan...................................................................................... 1-18

2. APPROVED RESOURCE MANAGEMENT PLAN ............................................................... 2-1

2.1 Introduction ................................................................................................................................... 2-1

2.1.1 Purpose and Need......................................................................................................... 2-1

2.1.2 Decision Area Description.......................................................................................... 2-2

2.1.3 Scoping Issues................................................................................................................. 2-2

2.1.4 Issues Addressed............................................................................................................ 2-5

2.1.5 Issues Considered but not Further Analyzed ......................................................... 2-7

2.1.6 Planning Criteria........................................................................................................... 2-11

2.1.7 Planning Process........................................................................................................... 2-13

2.1.8 Consultation and Collaboration............................................................................... 2-14

2.1.9 Policy............................................................................................................................... 2-19

2.2 Planning Decisions...................................................................................................................... 2-19

2.2.1 Air Quality..................................................................................................................... 2-19

2.2.2 Cave Resources ........................................................................................................... 2-21

2.2.3 Cultural and Heritage Resources Goals, Objectives, and Management 

Actions ........................................................................................................................... 2-21

2.2.4 Paleontological Resources......................................................................................... 2-27
Table of Contents

ii Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

2.2.5 Soil Resources.............................................................................................................. 2-28

2.2.6 Vegetation Resources................................................................................................. 2-30

2.2.7 Visual Resources.......................................................................................................... 2-34

2.2.8 Water Resources......................................................................................................... 2-36

2.2.9 Wilderness Characteristics....................................................................................... 2-40

2.2.10 Wildland Fire Management........................................................................................ 2-44

2.2.11 Wildlife and Special Status Species.......................................................................... 2-50

2.2.12 Lands and Realty .......................................................................................................... 2-61

2.2.13 Livestock Grazing ........................................................................................................ 2-63

2.2.14 Minerals Management................................................................................................. 2-69

2.2.15 Recreation Management ............................................................................................ 2-69

2.2.16 Travel Management..................................................................................................... 2-78

2.2.17 National Byways........................................................................................................... 2-87

2.2.18 National Trails.............................................................................................................. 2-88

2.2.19 Hazardous Materials and Public Safety ................................................................... 2-93

2.2.20 Scientific Research, Education, and Public Outreach .......................................... 2-95

2.3 Implementation Decisions – Travel Management............................................................... 2-98

2.4 Public Involvement...................................................................................................................... 2-99

2.5 Management Plan Implementation....................................................................................... 2-100

2.6 Plan Evaluation and Maintenance ......................................................................................... 2-100

2.6.1 Plan Evaluation........................................................................................................... 2-100

2.6.2 Plan Maintenance ...................................................................................................... 2-101

2.7 Monitoring and Adaptive Management............................................................................... 2-101

2.7.1 Monitoring .................................................................................................................. 2-101

2.7.2 Adaptive Management ............................................................................................. 2-102

3. GLOSSARY..................................................................................................................... 3-1

4. LIST OF PREPARERS....................................................................................................... 4-1

5. APPENDICES.................................................................................................................. 5-1

TABLES Page

2-1 Cultural and Heritage Site Use Allocation .......................................................................................... 2-21

2-2 Desired Future Conditions for Vegetation Resources..................................................................... 2-30

2-3 VRM Classes ............................................................................................................................................... 2-34

2-4 Sonoran Desert Tortoise Habitat by Category ................................................................................. 2-51

2-5 Livestock Grazing Allocations for the SDNM .................................................................................... 2-63

2-6 Livestock Grazing Acres1 for the SDNM North of Interstate 8 Only.......................................... 2-63

2-7 Recreation Allocations............................................................................................................................. 2-69

2-8 Off-Highway Vehicle Area Designations (BLM Acres) ..................................................................... 2-78

2-9 Potential Byway Designations (BLM Miles).......................................................................................... 2-87

2-10 Route Designations (Miles) ..................................................................................................................... 2-98

4-1 List of Preparers........................................................................................................................................... 4-1
Table of Contents

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan iii

MAPS Page

1 Surface Management................................................................................................................................... 2-3

2 Cultural Resources Allocations.............................................................................................................. 2-23

3 Visual Resource Management................................................................................................................. 2-37

4 Lands Managed to Protect Wilderness Characteristics................................................................... 2-41

5 Sonoran Pronghorn Classification Areas............................................................................................. 2-53

6 Livestock Grazing ...................................................................................................................................... 2-67

7 Recreation Management .......................................................................................................................... 2-73

8 Travel Management................................................................................................................................... 2-79

9 SDNM Route Designations ..................................................................................................................... 2-83

10 Special Designations.................................................................................................................................. 2-89

APPENDICES

A. Presidential Proclamation

B. Guidelines for Grazing

C. Recreation Settings and Worksheets

D. Best Management Practices and Standard Operating Procedures 

E. Travel Management Plan

F. Possible Easement Locations 

G. Route Rationales

H. Route Mitigations
Table of Contents

iv Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

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1. RECORD OF DECISION

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-1 

1. RECORD OF DECISION

1.1 INTRODUCTION

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

Land Management’s (BLM’s) proposal to manage the BLM-administered lands in the Sonoran Desert 

National Monument (SDNM) as presented in the attached Approved Resource Management Plan (RMP). 

This RMP was described as Alternative E in the Lower Sonoran and Sonoran Desert National 

Monument Proposed RMP and Final Environmental Impact Statement (PRMP/FEIS), which was released 

on June15, 2012. While the PRMP/FEIS also addressed management of the Lower Sonoran Decision

Area, which is also administered by the Lower Sonoran Field Office, this ROD applies only to those 

decisions for management of the SDNM. 

On January 17, 2001, Presidential Proclamation 7397 created the Sonoran Desert National Monument 

to ensure protection of a spectacular diversity of biological resources, and archaeological and historic 

sites. These monument objects include abundant saguaro cactus forests; a rich diversity, density, and 

distribution of plants in the Sand Tank Mountains area; rare patches of desert grasslands; a wide variety 

of desert wildlife, such as the desert bighorn sheep and Sonoran desert tortoise; and significant 

archaeological resources, such as large village sites, rock art sites, and lithic quarries.

The SDNM is located in Maricopa and Pinal Counties, Arizona, and contains 486,400 acres of BLMadministered lands. The decisions in the RMP only apply to the BLM-administered lands within the 

Monument. 

This ROD provides an overview of the alternatives considered; a summary of protests received and 

clarifications made in response; management considerations and rationale for the decisions; and an 

overview of public involvement in the planning process.

1.2 THE DECISION

The decision is hereby made to approve the attached RMP for the SDNM. The RMP was prepared 

under the authority and regulations implementing the Federal Land Policy and Management Act (FLPMA) 
1. Record of Decision

1-2 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

of 1976 (43 Code of Federal Regulations [CFR] 1600), and includes broad land use plan decisions that 

provide overall direction for management of resources and resource uses within the SDNM decision

area. Land use plan decisions are expressed as goals and objectives (desired outcomes), allowable uses, 

and management actions anticipated to achieve desired outcomes. Although land use plan decisions

identified in the RMP are final and effective upon signing of this ROD, some implementation-level 

decisions to implement the ROD may require additional steps before on-the-ground activities can begin. 

The RMP also includes new implementation-level decisions related to travel management. The RMP does 

not include implementation-level decisions related to grazing.1 

The decisions included in this ROD and RMP supersede all of the previous RMPs and interim 

management direction that guided management within the boundaries of the SDNM. 

1.2.1 Protest Resolution

An environmental impact statement (EIS) was prepared for this RMP in compliance with the National 

Environmental Policy Act (NEPA) of 1969. The Approved RMP is nearly identical to the PRMP set forth 

in the Lower Sonoran-SDNM PRMP/FEIS, published June 2012. 

The BLM received nine protest letters during the 30-day protest period provided for the proposed land 

use plan decisions in the PRMP/FEIS in accordance with 43 CFR Part 1610.5-2. Protesting parties are 

listed below: 

• Arizona State Senator Gail Griffin

• Ronald G. Martin

• Dawn Meidinger, Fennemore-Craig on behalf of Freport-McMoRan Corporation

• Greta Anderson, Western Watersheds Project and Sandy Bahr, Sierra Club – Grand Canyon 

Chapter 

• Michael DeRosier, Beloat Allotment 

• The Wilderness Society, Arizona Wilderness Coalition, National Trust for Historic 

Preservation, Archeology Southwest, Sierra Club – Grand Canyon Chapter, Western 

Watersheds Project

• Jason Keith, Conley Allotment

• Ron Henry, Mayor, and Colby Turner, Parks and Recreation Director, Town of Gila Bend

• Patrick Bray, Arizona Cattle Growers’ Association

Protest resolution is the responsibility of the BLM Washington Office, with input from the Lower 

Sonoran Field Office and the Arizona State Office. Once the standing of the protesters was determined, 

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

 

1 The decision document for the implementation-level decision regarding grazing management will be issued 

separately in compliance with 43 CFR § 4160.
1. Record of Decision

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-3 

• Land use planning level decisions. Implementation-level decisions are not protestable under the 

planning regulations.

• Information already raised in comment sometime during the planning process. No new issues 

can be brought up for protest.

• A concise statement explaining why the State Director's decision is believed to be wrong. A 

difference of opinion or disagreement is not sufficient to constitute a protest issue. 

Protest issues are “parsed” out of letters and then combined into common issues. These issues are then 

summarized and responded to as issue groups. While the protest process considers the whole letter 

sent by protesters, this document responds to only those statements that constitute valid protest issues.

Responses are then published to the BLM website as a Director’s Protest Resolution Report. 

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

Impacts Analysis: The BLM failed to analyze the direct and indirect effects of the proposed action, 

including the proposed closure of public lands to mineral entry and the effects of Areas of Critical 

Environmental Concern (ACECs) and other special management areas on minerals development.

Cumulative Effects Analysis: The BLM failed to adequately analyze the cumulative effects of the proposed 

action for minerals management and livestock grazing.

Scoping: The public scoping process for the Lower Sonoran-SDNM RMP was insufficient, as BLM failed 

to reinitiate scoping in response to significant changes in the Planning Area subsequent to the publication 

of the Notice of Intent in 2002.

Range of Alternatives: The range of alternatives presented in the PRMP/FEIS failed to explore the 

opportunity for the enhanced development of mineral resources and to consider an ephemeral grazing 

alternative.

ACECs: The Cuerda de Lena ACEC did not meet the requisite statutory and regulatory criteria for 

designation, and BLM failed to fully disclose the proposed management actions and mitigation features 

for the Cuerda de Lena ACEC.

Air Resources: The PRMP/FEIS does not comply with the requirements of Secretarial Order 3289, and 

did not adequately analyze impacts on climate change. 

Cultural Resources: The BLM failed to adequately analyze impacts on cultural resources under NEPA 

and did not complete Section 106 consultation with the State Historic Preservation Office for route 

designations. 

Fish, Wildlife, Plants, and Special Status Species: The BLM did not complete consultation as required 

under Section 7 of the Endangered Species Act (ESA). 

Lands, Realty: The PRMP/FEIS did not recognize valid existing rights.

Livestock Grazing: The BLM did not adequately analyze impacts from livestock grazing on wildlife and 

special status species, visual resource management (VRM), air quality, climate change, vegetation, and 
1. Record of Decision

1-4 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

socioeconomics. Additionally, the BLM did not use the best available information as baseline data for the 

impact analysis. Specific to the SDNM, protesters suggested that BLM did not adequately protect the 

monument’s objects in violation of the Presidential Proclamation.

Department of the Interior Policy for the Integrity of Scientific and Scholarly Activities: During the 

development of the PRMP/FEIS, the BLM violated the Department of the Interior’s Policy for the 

Integrity of Scientific and Scholarly Activities by committing scientific and scholarly misconduct by 

changing data and intentionally omitting data relevant to the impact analysis.

Administrative Procedures Act: Aspects of the RMP/EIS process violated the Administrative Procedures

Act. 

Recreation, Visitor Services: The BLM did not analyze the impacts from allowing recreational target 

shooting within the SDNM and arbitrarily proposed to allow recreational target shooting in the SDNM.

Wilderness Characteristics: The BLM failed to follow agency policy on managing lands with wilderness 

characteristics. 

The BLM Director’s decisions on the protests are summarized in the Director’s Protest Resolution Report, 

Sonoran Desert National Monument and Lower Sonoran Resource Management Plans, released on September 

14, 2012 and available on the BLM Web site. The Director dismissed the protests from Senator Gail 

Griffin, Ronald Martin, and the Arizona Cattle Growers’ Association because they contained only 

comments and no valid protest issues. The director dismissed protests from Michael DeRosier and the 

Town of Gila Bend because the protests cite only implementation decisions. Implementation decisions 

are not subject to protest under the planning regulations. However, any party adversely affected by an 

implementation decision may appeal such decision to the Interior Board of Land Appeals after the ROD 

is signed. The Director denied the protest from Fennemore-Craig, Western Watersheds Project, The 

Wilderness Society et al., and Jason Keith, and provided responses to their protests in the Director’s 

Protest Resolution Report. In summary, the Director concluded that the BLM Arizona State Director 

followed the applicable laws, regulations, and policies, and considered all relevant resource information 

and public input in developing the PRMP. Each protesting party was notified in writing of the Director’s 

findings and the disposition of their protests.

The BLM Director resolved the protests without making significant changes to the PRMP, though minor 

clarifications were made and have been explained in the Clarifications and Modifications section below.

1.2.2 Clarifications and Modifications

As the result of continued internal review, the BLM made several clarifications between the PRMP/FEIS 

and the Approved RMP. Minor grammatical or editorial edits were made and are not described here. 

The implementation-level grazing decisions are not included in this ROD and Approved RMP. These 

decisions will be implemented under the authority of BLM grazing regulations at 43 CFR Subpart 4160. 

The implementation-level decisions for livestock grazing will be issued before the start of the grazing 

year. See Sections 1.4.2 and 1.5.1 for additional details. 
1. Record of Decision

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-5 

During review of the livestock grazing AUM decision for the SDNM, the BLM discovered mathematical 

errors in the original formulas used to calculate the AUM number. In the PRMP/FEIS, the number of 

AUMs was noted as 3,114 (see Alternative E in Table 2-24 of the Lower Sonoran-SDNM PRMP/FEIS). 

Upon recalculation, the AUMs increased to 3,318; this revised AUM decision is the final AUM allocation 

in the SDNM Approved RMP (see LR-2.1.1).

As a point of clarification, a protesting party noted that information regarding baseline information for 

the grazing analysis was incorrectly stated in the PRMP/FEIS on page 6-251. BLM stated that baseline 

information was collected through 2010, which is incorrect. The BLM completed data collection in 2009; 

no new data was collected after 2009. The BLM analyzed and interpreted the data in 2010.

Eight appendices that were in the PRMP/FEIS have been brought forward and renumbered for the 

Approved RMP, as follows: Appendix A, Presidential Proclamation, Appendix B, Guidelines for 

Grazing, Appendix C, Recreation Setting and Worksheets, Appendix D, Best Management Practices 

and Standard Operating Procedures, Appendix E, Travel Management Plan, Appendix F, Possible 

Easement Locations, Appendix G, Route Rationales, and Appendix H, Route Mitigations. 

Some decisions presented in the PRMP/FEIS were repeated in multiple program areas. In the Approved 

RMP, these decisions are coded only once. The code reflects the program that is most affected.

1.3 THE ALTERNATIVES

NEPA requires the development and consideration of a reasonable range of management alternatives, 

including a No Action Alternative, to analyze impacts and guide decision-makers in developing and 

selecting the RMP. All alternatives must be viable and reasonable. They must reflect the requirements of 

the Presidential Proclamation; be responsive to issues identified by the public, stakeholders, and BLM 

specialists and managers during the scoping period; and meet established planning criteria, as well as 

applicable federal and state laws, regulations, and BLM policies.

1.3.1 Alternatives Considered, but Not Analyzed

The following alternatives and management options were considered as possible ways of resolving 

resource management issues and conflicts but were eliminated from detailed analysis; rationale for the 

alternative’s elimination is provided under each heading.

Public Safety

There was a recommendation to prohibit the carrying of weapons. By law, US citizens may carry 

weapons on or through public lands for a number of legitimate purposes including hunting and selfprotection. Alternatives for managing recreational target shooting activities were considered in the 

PRMP for public safety and resource protection purposes, but a prohibition against the possession of 

firearms was not analyzed. 
1. Record of Decision

1-6 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Driving in Washes

A proposal was submitted requesting that driving be allowed in all washes large enough to accommodate 

a four-wheel-drive vehicle as a long-standing, traditional use. This alternative was not carried forward 

into an action alternative because allowing vehicular travel in washes not specifically designated as a BLM

asset, such as a primitive road, would force drivers to determine whether the wash was open for travel. 

Such ambiguity could lead to situations of unlawful driving and resource damage. The travel route 

inventory conducted by the BLM included routes in washes. 

In addition, authorizing unlimited driving in washes at the driver’s discretion would essentially open 

hundreds of miles of wash system to all-terrain or four-wheel drive vehicles, as this action would include 

currently traveled washes as well as untraveled washes. This type of travel is inconsistent with 

Presidential Proclamation 7397, which expressly prohibits, with the exception of emergency or 

authorized administrative use, all off-road motorized and mechanized vehicle use in the Monument. Due 

to potentially adverse resource impacts on wildlife habitat, soils, and vegetation, unlimited driving in 

washes is inconsistent with the resource protection and management goals established for the SDNM 

Decision Area.

Livestock Grazing

For livestock grazing allotments within the SDNM Decision Area, the SDNM proclamation requires the 

BLM to determine whether livestock grazing is compatible with the paramount purpose of protecting

the Monument objects. During the land health evaluation process, the BLM did not determine if the 

allotments meet the criteria described in the Special Ephemeral Rule; therefore, an alternative to 

convert all allotments to ephemeral was not analyzed. However, in the future, the BLM could modify the 

designation based on their future findings, and in coordination and cooperation with the permittee and 

interested publics, as required by NEPA.

1.3.2 Alternatives Considered in Detail

The general scope and key highlights of each alternative considered in the FEIS for the SDNM RMP are

summarized below.

Alternative A, No Action Alternative

Selection of the No Action Alternative for the Monument would continue current management under 

the existing land use plans, except as changed by Presidential Proclamation 7397, which established the 

Monument and specified certain management provisions. Alternative A continued current public use and 

resource protection/conservation prescriptions without change. It neither set desired outcomes for 

resource management or most uses, nor addressed new issues unforeseen or nonexistent when the 

current management plans were prepared.

Alternative B

The management decisions in Alternative B generally identified the areas of the Monument that would 

be most suitable for the largest number of potential uses and emphasized opportunities for those uses. 
1. Record of Decision

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-7 

Alternative B set desired outcomes and allocations for resources discussed in the proclamation, 

including natural, cultural, and visual, while providing appropriate human use/influence and an array of 

visitor experiences and opportunities. It focused on proactive techniques for ecosystem restoration, 

resource management, and scientific research and likely required more intensive use management to 

avoid or mitigate any adverse effects.

Alternative C

The management decisions in this alternative generally represented an attempt to balance resource 

protection and human use and influence. As in Alternative B, it set desired outcomes and allocations for 

the resources discussed in the Monument’s proclamation, including natural, cultural, and visual. It 

proposed a moderate amount of open roads and trails and a mix of recreational opportunities. It 

proposed a mix of natural processes and proactive techniques for ecosystem restoration, resource 

management, and scientific research and would likely reduce the need for intensive use management to 

avoid or mitigate any adverse effects.

Alternative D

Alternative D placed the greatest emphasis on minimal human use and influence and the maintenance of 

primitive landscapes. It focused on natural processes and other unobtrusive methods for ecosystem 

restoration, resource management, and scientific research, while emphasizing resource protection and 

conservation. As in the other alternatives, it set desired outcomes and allocations for Monument 

resources discussed in the proclamation, including natural, cultural, and visual, while allowing a lower 

level of human use. The need for both intensive use management and proactive resource stabilization 

and restoration measures would be reduced by the greatest degree under Alternative D.

Alternative E

Alternative E was the BLM’s PRMP for the SDNM Decision Area. It incorporated elements from each of 

the other alternatives, offering a unique prescription for managing public use of the Monument, while

providing long-term protection and conservation of resources. It balanced human use and influence with 

resource protection. The need for both intensive use management and proactive resource stabilization 

and restoration measures would be reduced by an intermediate degree.

1.3.3 Environmentally Preferable Alternative

Alternative E, the Approved RMP, is considered by the BLM to be the environmentally preferable 

alternative when taking into consideration the human (social and economic) environment and the 

natural environment. The US Council on Environmental Quality has defined the environmentally 

preferable alternative as the alternative that will promote national environmental policy as expressed in 

Section 101 of NEPA. The six broad policy goals for all federal plans, programs, and policies are listed 

below:

• Fulfill the responsibilities of each generation as trustee of the environment for succeeding 

generations. 
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1-8 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• Ensure for all Americans safe, healthful, productive, and aesthetically and culturally pleasing 

surroundings.

• Attain the widest range of beneficial uses of the environment without degradation, risk to health 

or safety, or other undesirable and unintended consequences.

• Preserve important historic, cultural, and natural aspects of our national heritage, and maintain, 

wherever possible, an environment that supports diversity and variety of individual choice.

• Achieve a balance between population and resource use that will permit high standards of living 

and a wide sharing of life’s amenities.

• Enhance the quality of renewable resources and approach the maximum attainable recycling of 

depletable resources.

In comparison with the other alternatives analyzed, Alternative E best meets the above NEPA goals for 

the future management of the SDNM. It provides long-term protection and resource conservation, and 

balances human use and influence with resource protection. 

The No Action Alternative, Alternative A, would have no specific special status species or cultural 

resource provisions or allocations, no management actions specific to wildlife movement corridors, no 

areas managed to protect wilderness characteristics, and grazing would continue to have undesirable 

effects. For these reasons, the No Action Alternative is not preferable from an environmental 

perspective.

The management decisions in Alternative B identified the areas of the Monument that would be most 

suitable for the largest number of potential uses and emphasized opportunities for those uses. 

Alternative B set desired outcomes and allocations for resources discussed in the proclamation, 

including natural, cultural, and visual, while providing opportunities for appropriate human use and 

influence and an array of visitor experiences and opportunities. It focused on proactive techniques for 

ecosystem restoration, resource management, and scientific research and likely required more intensive 

use management to avoid or mitigate any adverse effects. However, Alternative B has the least amount 

of resource protections and would not achieve balance between resource uses and preserving 

important historic, cultural, and natural aspects of the SDNM.

The management decisions in Alternative C represented an attempt to balance resource protection and 

human use and influence. As in Alternative B, it set desired outcomes and allocations for the resources 

discussed in the Monument’s proclamation, including natural, cultural, and visual. Alternative C proposed 

a moderate amount of open roads and trails and a mix of recreational opportunities. It also proposed a 

mix of natural processes and proactive techniques for ecosystem restoration, resource management, 

and scientific research and would likely reduce the need for intensive use management to avoid or 

mitigate any adverse effects. Alternative C does not attain the widest range of beneficial uses of the 

environment without degradation or reduction in visitor experience.

Alternative D placed the greatest emphasis on limiting human use and influence and maintaining primitive 

landscapes. It focused on natural processes and other unobtrusive methods for ecosystem restoration, 

resource management, and scientific research, while emphasizing resource protection and conservation. 

As in the other alternatives, Alternative D set desired outcomes and allocations for Monument 

resources discussed in the proclamation, including natural, cultural, and visual, while allowing a lower 

level of human use. The need for both intensive use management and proactive resource stabilization 
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-9 

and restoration measures would be reduced by the greatest degree under Alternative D. For these 

reasons, Alternative D did not achieve a balance between population and resource use, resource 

protection that permitted enhancement of resource conditions and visitor experience.

Alternative E was the BLM’s PRMP for the SDNM Decision Area. It incorporated elements from each of 

the other alternatives, offering a unique prescription for managing public use of the Monument, while

providing long-term protection and conservation of resources. Alternative E balanced human use and 

influence with resource protection. The need for both intensive use management and proactive

resource stabilization and restoration measures would be reduced by an intermediate degree. Overall, 

Alternative E best meets the requirements of Section 101 of NEPA. The BLM has selected Alternative E 

as the environmentally preferable alternative.

1.4 LAND USE PLAN DECISIONS, IMPLEMENTATION DECISIONS,

AND ADMINISTRATIVE ACTIONS

The Approved RMP provides overall direction for management of all resources on BLM-administered 

land in the Monument. Many land use plan decisions are implemented or become effective upon 

publication of the ROD for the Approved RMP and may include desired future conditions, land use 

allocations (allowable uses) or designations, and special designations.

Land use plan decisions represent the desired outcomes and the actions needed to achieve them. Such 

decisions were attained using the planning process found in 43 CFR 1600 and guide future land 

management actions and subsequent site-specific implementation decisions. When presented to the 

public as proposed decisions, land use plan decisions can be protested to the BLM Director; however, 

they cannot be appealed to Interior Board of Land Appeals.

Implementation decisions and management actions that require additional site-specific project planning, 

as funding becomes available, will require further environmental analysis. Some implementation decisions 

(e.g., route designations) are finalized with this ROD and thus require no further environmental analysis. 

Administrative actions are not land use planning or implementation decisions, but are a key component 

of the overall plan because they describe the BLM’s day-to-day actions to help meet desired future 

conditions. The BLM will continue to involve and collaborate with the public during implementation of 

the Approved RMP. Brief descriptions of the types of decisions are presented below.

1.4.1 Land Use Plan Decisions

Desired Outcomes

Land use plans identify desired outcomes expressed in terms of specific goals and objectives. Goals and 

objectives direct the BLM’s actions in most effectively meeting legal mandates; numerous regulatory 

responsibilities; national policy, including the Department of the Interior Strategic Plan goals; State 

Director guidance (see 43 CFR 1610.0-4[b]); and other resource or social needs. Desired outcomes 

should be identified for and pertain to resources such as natural, biological, and cultural; resource uses 

such as energy and livestock grazing; and other factors such as social and economic conditions. Land use 
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1-10 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

plans are designed to most effectively meet these desired outcomes through special designations, 

allowable uses, land use allocations, and management actions.

Special Designations

Special designations are designated by Congress for special protection, such as wilderness areas (see the 

Approved RMP). Such designations are not land use plan decisions; however, recommendations for 

designation can be made at the land use plan level. Congress may then act on these recommendations at 

a later time. 

Administrative designations made by the BLM, such as ACECs, are also considered special designations 

and can be made in the land use plan (see the Approved RMP).

Allowable Uses (Land Use Allocations)

Land use plans must identify uses, or allocations, that are allowable, restricted, or prohibited on the 

public lands and mineral estate. These allocations identify surface lands or subsurface mineral interests 

where uses are allowed, including any restrictions that may be needed to meet goals and objectives. 

Land use plans also identify lands where specific uses are excluded to protect resource values. Certain 

lands may be open or closed to specific uses based on legislative, regulatory, or policy requirements or 

criteria to protect sensitive resource values. If land use plan decisions close areas of 100,000 acres or 

greater in size to a principal or major use for two years or more, Congress must be notified of the 

closure upon its implementation as prescribed in 43 CFR 1610.6.

Management Actions

Land use plans for National Monuments must identify the actions anticipated to achieve desired 

outcomes, including actions to maintain, conserve, protect, restore, or improve land health. These 

actions include proactive measures (e.g., measures that will be taken to enhance watershed function and 

condition), as well as measures or criteria that will be applied to guide day-to-day activities on public 

land. Land use plans also establish administrative designations such as ACECs, recommend proposed 

withdrawals, land tenure zones, and recommend or make findings of suitability for congressional 

designations such as components of the National Wild and Scenic Rivers System. 

1.4.2 Implementation Decisions

Implementation decisions (or activity-level decisions) are management actions tied to a specific location 

that implement land use plan decisions. Implementation decisions generally constitute the BLM’s final 

approval allowing on-the-ground actions to proceed and require appropriate site-specific planning and 

NEPA analysis. Such decisions may be incorporated into implementation plans (activity or project plans) 

or may exist as stand-alone decisions.

Unlike land use plan decisions, implementation decisions are not subject to protest under the planning 

regulations. Instead, implementation decisions are subject to various administrative remedies, including, 

in most cases, appeal to the Interior Board of Land Appeals (under 43 CFR 4.410). Where 

implementation decisions are made as part of the land use planning process, they are subject to an 
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-11 

administrative review process as prescribed by the specific resource program regulations. For example, 

the designation of a specific route is an implementation-level decision, rather than a land use plan 

decision. Consequently, individual route designations are subject to an administrative review process 

that is described below.

Implementation-level decisions in the PRMP/FEIS are the SDNM route designations for approved 

motorized and non-motorized public use (see Section 2.3.1, Travel Management). All route 

designations (i.e., routes designated as open, see attached Approved RMP) are finalized with this ROD, 

and may be appealed at this time.

Grazing Implementation Decisions

The implementation-level grazing decisions are not included in this ROD. These decisions will be 

implemented under the authority of BLM grazing regulations at 43 CFR Subpart 4160. The BLM expects 

to issue implementation level decisions for livestock grazing before the start of the grazing year 

consistent with these regulations, which describe the intended livestock grazing administrative and 

management actions or series of actions, and provides an avenue by which applicants, permittees, 

lessees, states having land or resource management responsibilities within the area, and the interested 

public may challenge and seek further review of the decision.

Appeal Procedures for Travel Management Implementation Decisions

The following procedures describe the appeal process for the implementation decisions related to travel 

management. Implementation decisions related to Travel Management (see Section 2.3.1 of the 

Approved RMP) will be available for appeal immediately upon public release of this ROD/Approved 

RMP.

Any party adversely affected by an implementation decision may appeal within 30 days of receipt of this 

decision in accordance with the provisions of 43 CFR Part 4.4. The appeal must include a statement of 

reasons or file a separate statement of reasons within 30 days of filing the appeal. The appeal must state 

if a stay of the decision is being requested in accordance with 43 CFR 4.21 and must be filed with the 

Lower Sonoran Field Manager at the following address:

Field Manager, Lower Sonoran Field Office

21605 North 7th Avenue 

Phoenix, AZ 85027-2929

A copy of the appeal, statement of reasons, and all other supporting documents shall be sent to the Field 

Solicitor at the following address:

Field Solicitor

US Department of the Interior

Office of the Solicitor

401 West Washington Street, SPC 44

Phoenix, AZ 85003
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If the statement of reasons is filed separately, it must be sent to the following address:

United States Department of the Interior

Office of Hearings and Appeals

Interior Board of Land Appeals

801 N. Quincy Street, Suite 300

Arlington, Virginia 22203 

Request for Stay

Any party wishing to file a request for stay pending the outcome of an appeal of one or more 

implementation decisions must show sufficient justification based on the following standards under 43 

CFR 4.21:

• The relative harm to the party if the stay is granted or denied

• The likelihood of the appellant’s success on the merits of the stay

• The likelihood of immediate and irreparable harm if the stay is not granted

• Whether the public interest favors granting the stay

As noted above, the request for stay must be filed with the BLM Field Manager at the address listed 

above. 

1.4.3 Administrative Actions

Although the BLM’s intent and commitment to accomplish administrative actions is generally addressed 

in an EIS, such activities are neither management nor implementation decisions. Administrative actions 

are day-to-day activities conducted by the BLM, often required by FLPMA, but do not require NEPA 

analysis or a written decision by a responsible official. Examples of administrative actions include 

mapping, surveying, conducting inventory or monitoring, scientific research, other studies, partnering 

and collaborating with partners, developing educational materials, and working with local communities 

or interest groups.

1.5 MANAGEMENT CONSIDERATIONS FOR SELECTING THE 

APPROVED RMP

In developing the Approved RMP, the BLM had the discretion to select an alternative in its entirety, or 

to combine aspects of the various alternatives presented in the Draft RMP/Draft EIS (DRMP/EIS) or the 

PRMP/FEIS, including considering management approaches presented during the comment period that 

do not result in significant changes from what the DRMP/EIS considered. The NEPA Handbook (H-1790-

1) states, “Various parts of separate alternatives that are analyzed in the draft can also be ‘mixed and 

matched’ to develop a complete alternative in the final” (see also 43 CFR 1503.4(a)).

Based on the input received during the planning process, there was both support and opposition to 

many components of the PRMP. However, the BLM did not receive comments from federal or state 

agencies, or from tribal governments indicating that the PRMP was inconsistent with other existing plans 

or policies. Additionally, no inconsistencies with state plans, policies, or programs were identified during 
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-13 

the Governor’s consistency review of the PRMP/FEIS. The BLM considered all comments and protests 

received on the PRMP/FEIS and input from the Governor’s consistency review. This ROD serves as the 

final decision for the land use plan decisions for the Approved RMP. The Approved RMP will become 

effective on the date this ROD is signed.

1.5.1 Compatibility of Grazing in the SDNM

The Presidential Proclamation establishing the Sonoran Desert National Monument (Appendix A, 

Presidential Proclamation) directed the BLM “...that grazing on Federal lands north of Interstate 8 shall 

be allowed to continue only to the extent that the Bureau of Land Management determines that grazing 

is compatible with the paramount purpose of protecting the objects identified in this proclamation.”

Appendices E and F of the PRMP/FEIS presented the studies that assessed whether grazing is compatible 

with protecting the objects of the Monument. Methodologies employed in the compatibility analysis 

included a rigorous land health evaluation process, a thorough literature review, technical reports and 

guidance, and a comprehensive evaluation of the effects of grazing on Monument objects and their 

indicators within the SDNM. 

In Appendix E of the Lower Sonoran-SDNM PRMP/FEIS, the Lower Sonoran Field Office Manager 

determined that: 

In some locations, current conditions on the six allotments within the SDNM are not achieving 

Standard 3 (see Map E-2 of the Lower Sonoran-SDNM PRMP/FEIS, Appendix E). Monument 

lands not achieving Standard 3 total 127,550 acres, representing 50.5 percent of all Monument 

lands north of I-8. Livestock use pattern mapping and monitoring data indicate that nonachievement of Standard 3 cannot be attributed to current livestock-grazing practices on 96.6 

percent of Monument lands located north of I-8. There may be several contributing factors to 

non-achievement of Standard 3 aside from livestock grazing. 

The results of the analysis indicate that livestock grazing is a causal factor for non-achievement 

of Standard 3 on 8,498 acres (Map E-2 of the Lower Sonoran-SDNM PRMP/FEIS, Appendix E). 

This represents 3.4 percent of the 252,500 acres of the Monument north of I-8, and 6.76 

percent of the 127,550 acres not achieving Standard 3. 

Areas where livestock grazing was determined to be the causal factor for not achieving Standard 

3 include portions of the following Monument objects or indicators: palo verde-mixed cacti (1 

percent of plant community), the saguaro cactus forest (1 percent of plant community), 

creosote bush-bursage (5 percent of plant community) or desert wash (2 percent, or 12 miles of 

the plant community) and its associated wildlife objects (identified in Table E-7, Results of the 

Land Health Evaluation [LHE Objectives by Monument Object]) and a small portion (1.4 

percent, or 10-acres) of the Anza National Historic Trail (NHT). 

Currently, the grazing preference for perennial forage is not supported by monitoring and 

inventory data. Field observations and use compliance checks indicate that operators graze the 

majority of their permitted animal unit months (AUMs) during the early winter and spring 

months, which are periods of high levels of ephemeral forage. 
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1-14 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Concentrated livestock use around North Tank (10 acres) is not consistent with past use during 

historic time periods, and it negatively affects the protection of the archaeological and historic 

site within the SDNM. Elsewhere, known rock art sites in the SDNM are not near areas of 

grazing concentration and have not been impacted by grazing. Artifact scatters have not yielded 

any definitive evidence of grazing impacts that would affect site setting or integrity.

Based on this determination, the PRMP contained both planning and implementation level decisions for 

livestock grazing. This ROD addresses only the planning level decisions for livestock grazing. The 

planning level decision for livestock grazing make those areas where grazing has been determined to be 

incompatible with the paramount purpose of protecting the objects identified in the Proclamation 

unavailable to grazing. The grazing decisions identified as “implementation-level decisions” in the 

PRMP/FEIS – decisions regarding level of use and season of use – must be implemented consistent with 

the BLM regulations at 43 CFR Subpart 4160. In order to comply with these regulations, the BLM has 

determined not to address the implementation-level decisions for grazing previously identified in the 

PRMP/FEIS in this ROD. BLM expects to issue a decision for grazing implementation decisions before 

the next grazing year

1.6 MITIGATION MEASURES

In developing the alternatives, the BLM used a variety of management methods and tools, including the 

identification of allowable uses, temporal, spatial, and restrictions on uses, where specific uses will be 

prohibited, and specific actions needed to achieve desired outcomes. Restrictions on uses include 

seasonal closures, limitations on surface disturbance, and application of best management practices.

1.7 PLAN MONITORING – RMP-LEVEL DECISIONS

BLM planning regulations (43 CFR Part 1610.4-9) call for the monitoring of RMPs on a continual basis 

with a formal evaluation done at five year intervals. Land use plan monitoring is the process of tracking 

the implementation of land use planning decisions (implementation monitoring) and collecting the 

information necessary to evaluate the effectiveness of land use planning decisions (effectiveness 

monitoring). Monitoring is the process of following up on management actions and documenting the 

BLM’s progress toward full implementation of the land use plan and the achievement of desired 

outcomes. 

Implementation monitoring is the process of tracking and documenting the implementation (or the 

progress toward implementation) of land use plan decisions. The BLM tracks what management actions 

have been proposed or undertaken to implement land use plan decisions, documents which management 

actions were completed, and sets out what further actions are needed to continue implementing land 

use plan decisions.

Effectiveness monitoring is the process of collecting data and information in order to determine whether 

desired outcomes (the goals and objectives in the land use plan) are being met, or progress is being 

made toward meeting them, as the allowable uses and management actions are being implemented. The 

level and intensity of monitoring will vary, depending on the sensitivity of the resource or area and the 

scope of the proposed management activity.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-15 

Evaluation is the process of reviewing the land use plan and any plan monitoring reports to determine 

whether the SDNM Approved RMP-level decisions and NEPA analysis are still valid and whether the 

plan is being implemented. The SDNM Approved RMP will be evaluated to determine if decisions remain 

relevant to current issues; decisions are effective in achieving, or making progress toward achieving, 

desired outcomes; any decisions need to be revised; any decisions need to be dropped from further 

consideration; and any areas require new decisions.

The SDNM Approved RMP will be evaluated at a minimum every five years; special or unscheduled 

evaluations may be required to review unexpected management actions or significant changes in the 

related plans of Indian tribes, other federal agencies, and state and local governments, or to evaluate 

legislation or litigation that has the potential to trigger an RMP amendment or revision.

1.8 IMPLEMENTATION OF THE MANAGEMENT PLAN

Planning decisions of the Approved RMP will begin to be implemented upon signature of the ROD. 

Some planning level decisions require immediate action and will be implemented upon publication of the 

ROD and Approved RMP; other decisions will be implemented over a period of years based on 

priorities and available funding. The rate of implementation is tied, in part, to the BLM’s budgeting 

process. The implementation of the Approved RMP will also occur in accordance with an adaptive 

management framework.

1.9 PUBLIC INVOLVEMENT

1.9.1 Public Scoping

The Notice of Intent to initiate planning on the SDNM Decision Area was published in the Federal 

Register on April 24, 2002 (Vol. 67, No. 79, Page 20158, [AZ-400-02-1610-DO-089A]). The opportunity 

to comment was also publicized through news releases, mail notification, flyers, and other methods. 

Eleven public scoping meetings were held, and the public was invited to submit written comments. 

Overall, more than 6,000 comments were received on both the SDNM and Lower Sonoran Decision 

Areas during the scoping period. Following scoping, the BLM held additional public workshops 

throughout the Lower Sonoran Field Office to collaborate on planning criteria, RMP goals and 

objectives, the range of alternatives, and preliminary alternatives.

1.9.2 Public Review of and Comment on the DRMP/EIS 

The EPA published a Notice of Availability of the DRMP/EIS on August 25, 2011. The Notice of 

Availability initiated the 90-day public comment period required for planning actions. In preparing the 

PRMP/FEIS, the BLM considered all comments received or postmarked during the public comment 

period. The DRMP/EIS was made available for viewing, downloading, and commenting by a variety of 

methods, including as a PDF on the BLM Web site, CD, paper copies, and on the BLM’s ePlanning 

system.

The BLM held eight public meetings throughout the Lower Sonoran Field Office in October 2011. 

Meeting locations included Phoenix, Ajo, Gila Bend, Mesa, Casa Grande, and Buckeye. Over 200 people 
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1-16 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

attended the public meetings. The largest number of attendees was from non-affiliated individuals, 

followed by non-profit organizations, local clubs, and government agencies.

Over 250 organizations, government agencies, industry representatives, and individuals responded 

during the comment period. Most of the written submissions contained multiple comments on different 

topics, and over 500 unique comments were made. Comments on the DRMP/EIS pertained to a number 

of issues including the scope of the document, NEPA adequacy of the baseline data and impact analysis, 

information related to consultation and coordination on the project, and policies and guidance the BLM 

needed to follow. In addition, comments were received on a number of resource topics, including air 

quality, cultural resources, fish and wildlife, livestock grazing, land use and special designations, minerals 

and energy, noise, national scenic and historic trails, recreation, socioeconomics, special status species, 

tribal interests, vegetation, visual resources, and water resources.

1.9.3 Public Review of and Protest on the PRMP/FEIS

A 30-day protest period was provided on the land use plan decisions contained in the PRMP/FEIS in 

accordance with 43 CFR Part 1610.5-2. The BLM received nine protest letters that were subsequently 

resolved by the BLM Director, whose decision constitutes final agency action for the Department of the 

Interior. The issues raised in the protest letters covered a broad range of topics with differing opinions, 

sometimes completely opposite opinions, on how the protesting party felt the BLM erred in the planning 

process. All protests were dismissed or denied.

1.9.4 Agency Consultations – US Fish and Wildlife Service (USFWS)

and State Historic Preservation Office

In accordance with the requirements of Section 7 of the ESA, the BLM consulted with the US Fish and 

Wildlife Service (USFWS) to ensure that the BLM’s proposed action would not jeopardize the continued 

existence of any listed threatened, endangered, or proposed species or critical habitat. The Biological 

Opinion (BO) on the Lower Sonoran-SDNM RMP/EIS project included four conservation 

recommendations to minimize or avoid possible adverse effects on listed species or their critical habitat. 

See Section 2.1.8, Consultation and Collaboration for additional details.

In accordance with the requirements of Section 106 of the National Historic Preservation Act, the BLM 

has consulted with and obtained comment from the Arizona State Historic Preservation Office (SHPO)

concerning the content of this RMP. These comments have been taken into account by the BLM during 

the development of this RMP. Further consultation with the SHPO will take place as specific actions 

implementing the RMP are developed.

1.10 RATIONALE FOR SELECTION OF THE APPROVED RMP

The PRMP/FEIS described and analyzed five alternatives, including Alternative A (the No Action 

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

varying management actions for each resource and resource use for achieving the stated goals and 

objectives. The BLM has the discretion to select an alternative in its entirety, to combine aspects of the 

various alternatives that were presented in the PRMP/FEIS, or to consider management approaches 
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 1-17 

resulting from protest resolution. In this PRMP/FEIS, Alternative E has been identified as the Approved 

RMP. 

The Approved RMP uses Alternative E from the PRMP/FEIS with adjustments made due to clarifications 

and edits. Alternative E was chosen because it resolves the major issues posed by managing resources in 

the SDNM while providing for common ground among conflicting opinions and multiple uses of public 

lands in a sustainable fashion. It provides the best balance of resource protection and use within legal 

constraints. The Approved RMP:

• Satisfies statutory requirements (true for all alternatives);

• Reflects what the BLM believes to be the best combination of actions to achieve the stated 

goals; 

• Represents the best solution for the purpose and need as described in Chapter 1, Purpose and 

Need for the Resource Management Plan;

• Provides the best approach to address the key resource and planning issues; and

• Includes input from cooperating agencies, collaborating partners, stakeholders, and the public, 

and BLM specialists.

The Approved RMP represents the BLM’s final decision; upon signing of the ROD/Approved RMP, the 

decisions become final.
I. Record of Decision 

1.11 AVAILABILITY AND APPROVAL OF THE PLAN 

Copies of the Record of Decision and the Sonoran Desert National Monument Approved Resource 

Management Plan may be obtained by viewing or downloading the document from the BLM Web site 

located at www.blm.gov/az or by obtaining a hard copy or CD at the BLM Phoenix District Office, 

Lower Sonoran Field Office at 21605 N. 7th Avenue, Phoenix, Arizona 85027. Copies will also be 

available for review at local community libraries near the SDNM. 

Field Manager Recommendation 

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

recommend the adoption and implementation of the Sonoran Desert National Monument Approved 

Resource Management Plan. 

Recommended: 

Emily G b 

Fiel:: : 

Lower Sonoran Field Office 


District Manager Concurrence 


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


Resource Management Plan. 


Concurrence: 


Scott Cooke Date 

Acting District Manager 

Phoenix District Office 

State Director Approval 


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


Resource Management Plan. 


Approved: 


Date 

Arizona State Director 

1-18 Sonoran Desert National Monument Record ofDedsion and Approved Resource Management Plan September 20 12 
2. APPROVED RESOURCE 

MANAGEMENT PLAN

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-1 

2. APPROVED RESOURCE MANAGEMENT PLAN

2.1 INTRODUCTION

The United States (US) Department of the Interior, Bureau of Land Management (BLM), Phoenix 

District Office has prepared the Sonoran Desert National Monument Resource Management Plan (RMP) 

to provide comprehensive current and future management of BLM-administered lands in the Sonoran 

Desert National Monument (SDNM). The monument is located approximately 50 miles southwest of 

Phoenix, immediately east of Gila Bend, Arizona, in eastern Maricopa County and western Pinal County. 

Its boundaries encompass 496,400 acres, including 486,400 BLM-administered acres, with the remaining 

lands consisting of privately owned and state-administered parcels (Map 1, Surface Management).

The RMP was prepared in compliance with the Sonoran Desert National Monument Proclamation 

(Proclamation 7397, “the Proclamation”) and the BLM’s planning regulations Title 43 Code of Federal 

Regulations (CFR) 1600 under the authority of the Federal Land Policy and Management Act of 1976

(FLPMA). This document also meets the requirements of the National Environmental Policy Act of 1969 

(NEPA), the Council on Environmental Quality Regulations for Implementing the NEPA (40 CFR 1500-

1508), and requirements of the BLM’s NEPA Handbook 1790-1.

This plan represents years of ongoing, coordinated efforts on the part of BLM Phoenix District, Lower 

Sonoran Field Office and SDNM staff, the BLM Arizona State Office staff, representatives of 

communities near the Planning Area, cooperating agencies, special interest and user groups, and 

hundreds of concerned citizens. The decisions outlined in this document will enable the BLM to manage 

and protect the unique resources and monument objects on public lands within the SDNM to achieve 

desired future conditions and management objectives in partnership with communities, organizations, 

and citizens.

2.1.1 Purpose and Need

The Monument proclamation assigns responsibility to protect objects for which the Monument was 

established to the BLM and requires that an RMP be prepared to ensure that the management actions 

needed to do so are identified and implemented. The Monument Proclamation is the principal direction 
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2-2 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

for management of the SDNM; all other considerations are secondary to that edict. In the absence of 

such a plan, current management for the SDNM falls under interim Monument guidance and the various 

existing RMPs and amendments. These documents do not address many management issues and 

direction given in the Presidential Proclamation. To address these issues, the BLM needed to prepare a 

new SDNM RMP.

The purpose of the SDNM RMP is to provide guidance for managing the use of BLM-administered lands 

and to provide a framework for future land management actions within the National Monument. The 

SDNM RMP will consolidate and replace the current management guidance for the SDNM. 

2.1.2 Decision Area Description

The Lower Sonoran and SDNM planning process was conceived as a combined effort, analyzing two 

decision areas, the SDNM and the Lower Sonoran Field Office area surrounding the SDNM. The 

consolidated Planning Area encompassed nearly 8.9 million acres of south-central Arizona and included 

much of Maricopa County, as well as sections of Gila, Pima, Pinal, and Yuma counties. Population 

centers within or adjacent to the Planning Area include metropolitan Phoenix and the communities of 

Goodyear, Buckeye, Gila Bend, Ajo, Globe-Miami, Tonopah, Mobile, Maricopa, Casa Grande, and Sells. 

The SDNM Decision Area covers approximately 496,400 acres of south-central Arizona and includes 

much of eastern Maricopa County, as well as a portion of western Pinal County. Population centers 

within or adjacent to the Planning Area include metropolitan Phoenix and the communities of 

Goodyear, Buckeye, Gila Bend, Mobile, Maricopa, and Stanfield. The Decision Area encompasses BLMadministered lands only. 

As stated in Presidential Proclamation 7397, the SDNM was designated to protect “a magnificent 

example of untrammeled Sonoran desert landscape” with an “extraordinary array of biological, scientific, 

and historic resources” (Appendix A, Presidential Proclamation). The Monument is considered a 

geographic area (Area 8 on Map 1, Surface Management), which contains one sub-area, the Sand Tank 

Mountains, formerly known as “Area A” (Area 9 on Map 1, Surface Management), located in the 

southwest corner of the Monument.

2.1.3 Scoping Issues

Development of this RMP was formally initiated with publication of a Notice of Intent in the Federal 

Register on April 24, 2002 (67 Federal Register 20158, April 24, 2002 [AZ-400-02-1610-DO-089A]). 

Following scoping, the BLM held additional public workshops throughout the Lower Sonoran Field 

Office, which includes the SDNM, to collaborate on planning criteria, RMP goals and objectives, the 

range of alternatives, and preliminary alternatives. One of the most important outcomes of the scoping 

process was the identification of significant issues to be addressed in the planning effort. For planning 

purposes, an “issue” is defined as a matter of controversy or dispute over potential land and resource 

allocations, levels of resource use, production, and related management practices. Issues help determine 

what decisions will be made in the RMP and what the EIS must address as required by NEPA.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-5 

Based on the more than 6,000 scoping comments received for both the Lower Sonoran and SDNM 

Decision Areas and subsequent analysis and evaluation, six major planning issues were identified within 

the scope of this planning effort. All six issues center on balancing resource use and human activity with 

the mandated level of resource protection.

2.1.4 Issues Addressed

1. How will the BLM manage travel and public access?

Travel management is an important issue for the public and presents a management challenge for the 

BLM. Many who commented during the public scoping process felt that existing roads and trails should 

be kept open for public use and, where necessary, maintained, upgraded, or improved to provide safe 

and efficient public access. Others were opposed to the creation of new roads or believed that 

unnecessary roads should be closed for the protection of resources, particularly those roads that might 

fragment wildlife habitat or damage archaeological sites or riparian areas.

Additionally, members of the public expressed concern with the type of motor vehicle use that should 

be allowed to access the SDNM, with viewpoints falling into two general categories: 1) those who 

valued off-highway vehicle (OHV) use and favored no or minimal further limitations on such use, and 2) 

those who expressed concern for the adverse effects from unregulated or increased OHV activities.

The SDNM proclamation specifically states that all off-road motorized and mechanized vehicle use will 

be prohibited except for emergency or authorized administrative purposes; therefore, only a limited 

ranged of alternatives were considered.

2. How will the BLM manage wilderness characteristics in the Decision 

Area?

A number of individuals and groups voiced their concern for protecting areas with wilderness 

characteristics in the SDNM. During the public scoping period, a number of citizen groups and 

individuals suggested additional wilderness designations, including the establishment of new wilderness 

study areas (WSAs). Other commenters felt that there is an abundance of existing wilderness, national 

monuments, wildlife refuges, and other restricted access lands in the region and were opposed to the 

additional wilderness-related allocations.

The discussion concerning recommending the designation of additional wilderness areas was outside the 

scope of the RMP/EIS. Only Congress can designate wilderness areas, the current Department of the 

Interior and BLM policies do not provide for designation of additional WSAs. However, areas that 

contain wilderness characteristics can be managed by the BLM to protect those characteristics and were 

considered in the alternatives in compliance with FLPMA and Washington Office Instruction 

Memorandum (IM) 2011-154. 
2. Approved Resource Management Plan

2-6 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

3. How will the BLM address wildlife management, including special status 

species and wildlife water developments in the Decision Area? 

Many of those who provided scoping comments on general wildlife and wildlife habitat also commented 

on special status species. These comments focused on the protection of threatened and endangered 

species and their habitats. Some comments were general in nature, while others mentioned particular 

species (e.g., Sonoran pronghorn, cactus ferruginous pygmy-owl, desert tortoise) or management 

concerns (e.g., fawning/nesting sites, impacts of grazing, effects of off-road driving, etc.) Comments on 

wildlife management specific to the Lower Sonoran Decision Area concerned Sonoran pronghorn 

management in the Ajo area.

Various wildlife water development programs, initiated in the 1940s and 1950s throughout the western 

US, have provided sources of freestanding water under the assumption that this is a key limiting factor 

on wildlife populations in arid habitats. Critics have suggested that wildlife water developments have not 

yielded expected benefits and could negatively influence wildlife by increasing predation, competition, 

and disease transmission. The scientific community in Arizona, led by the efforts of Arizona Game and 

Fish Department (AGFD), is studying whether water developments are necessary for wildlife, what 

effect developments might have on populations of non-target animals (e.g., predators), and the 

development of additional wildlife waters. Scoping comments received regarding wildlife water 

developments represent both sides of the debate. Some individuals advocated that no new wildlife 

waters be developed while others stressed the importance of allowing the continued access, 

maintenance, redevelopment, and construction of wildlife waters.

Wildlife corridors have also arisen as an important issue related to wildlife. Due to urban growth, 

existing rights-of-way (ROWs), and the preponderance of wildlife corridors lying outside of BLM 

jurisdiction in the Planning Area, there is concern about maintenance of sufficient wildlife movement 

corridors within the SDNM Decision Area. Addressing and resolving these concerns were considered in 

the range of alternatives.

4. How will livestock grazing be addressed in the SDNM?

The scoping process identified livestock grazing as an important issue for a number of people. Many 

comments pertained to better management of livestock grazing or were in favor of ending livestock 

grazing on public lands. There were some who advocated prohibiting certain kinds of grazing (e.g., yearround, domestic animals, stock grazing) and those who advocated prohibiting grazing in certain areas 

(e.g., Sonoran pronghorn and/or desert tortoise habitat, riparian areas) or under certain conditions (e.g., 

drought, when not sustainable).

The SDNM proclamation mandates that grazing permits on public lands within the Monument south of I8 will not be renewed at the end of their current term. All of these permits expired in 2008 and 2009. 

The proclamation also states that grazing on public lands north of I-8 will be allowed to continue only to 

the extent that the BLM determines that grazing is compatible with the paramount purpose of 

protecting the Monument objects identified in the proclamation. The RMP considers grazing in its 

analysis of use allocations. 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-7 

5. How will renewable and traditional energy facilities and transmission 

corridors be managed?

Given the growth in renewable energy interest in the Sonoran Desert, much concern was expressed 

regarding utility corridors, and some concern was expressed regarding renewable energy, particularly 

utility-scale solar sites. Energy-generating and transmission industries urged the BLM to consider the 

importance of providing additional utility corridors to meet growing demands for electrical energy 

requirements in Arizona. Others urged the BLM to consolidate requests for new transmission lines 

within existing utility corridors and to refrain from granting ROWs) for new corridors. One exception 

to the opposition to new corridors was a proposal that new transmission lines be accommodated within 

corridors established within 400 feet of each side of highways. Given public concern and increased 

demand for energy, several alternatives for transmission corridors and land use authorizations were 

discussed in the alternatives.

6. How will public recreation activities be managed?

During public scoping, people reported that they enjoy a wide variety of activities in the SDNM Decision 

Area, including hiking, hunting, sightseeing, camping, observing wildlife, and OHV use. They expressed 

desires for continued opportunities for such activities. Many of the comments overlapped with the travel 

management issues, particularly with regard to OHV use. Some disagreed with the types of recreational 

activities that should be allowed in the Monument. Many expressed concern for the management of 

certain types of recreation to minimize environmental impacts. Some commenters advocated for 

dispersed recreation, while others advocated for the development of various types of recreational 

services (e.g., interpretive sites, restrooms, recreational vehicles areas, equestrian facilities, etc.). Some 

individuals advocated the development of non-motorized recreational opportunities, while others 

preferred motorized forms of recreation. There were comments in support of dispersed, primitive-type 

camping as well as comments in support of having more developed camping with services and facilities.

While some people indicated that they enjoy recreational shooting within the SDNM Decision Area, 

others expressed their opposition to recreational shooting due to its resource impacts as well as noise 

and public safety concerns. 

Given the proximity of the SDNM to the Phoenix metro area and the increased participation of people 

in recreation pursuits on public lands over time, ineffective management of visitor activities is recognized 

as potentially having profound environmental effects on the SDNM. These possible effects, along with 

potential user conflicts, make appropriate management of recreational activities crucial to protecting 

public resources. Decisions such as where and what kind of recreational facilities to provide, how to 

minimize potential user conflicts, and what types of recreation settings should be maintained in specific 

areas were addressed in the alternatives.

2.1.5 Issues Considered but not Further Analyzed

The issues identified during public scoping (discussed above) shaped the alternatives carried forward in 

the RMP process. Other issues identified during public scoping were also considered but were not 
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2-8 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

analyzed further in the planning process because they fell outside of BLM jurisdiction or were beyond 

the scope of the RMP. The issues and the rationale for not analyzing them further are provided below.

Water 

Local aquifers are being depleted, and mineral-laden water is being pumped to the surface, polluting waterways 

and killing vegetation. 

Rationale: The BLM does not have the authority to permit or deny pumping of groundwater in Arizona. 

Such authority lies with the Arizona Department of Water Resources.

Biological Resources

Protect and restore native fish populations impacted by dams and non-native species. 

Rationale: The BLM does not manage any suitable perennial aquatic habitat for native fish species in the 

Planning Area. Streams within the Planning Area are typically dry and flow only in response to storms.

Protect and manage Sonoran pronghorn and Sonoran pronghorn habitat within the SDNM. 

Rationale: The SDNM is outside the current range of Sonoran pronghorn. The BLM will, however, 

coordinate with the Sonoran pronghorn recovery team during the RMP process and take any necessary 

measures for protection of historic habitat, as well as consider possible reintroduction of Sonoran 

pronghorn into the Monument.

Livestock Grazing

Increase grazing fees and use the money to hire more staff to study and protect the land

Rationale: The BLM has no authority to adjust or change the grazing fee. It is set by a formula contained 

in law, as is the disbursement of the fees collected.

Wild Horse & Burro Management

Do not implement wild horse and burro management in the SDNM

Rationale: There are no wild, free-roaming horses or burros within the Monument, and no herd areas 

have been designated or recognized, making it unnecessary to address their management. Any burros or 

horses on the Monument are considered in trespass and are addressed under the BLM’s trespass 

regulations at 43 CFR 4150.

Minerals Management

Allow mining in the Monument; do not grant new mineral leases; ensure any new mining claims are valid and 

limit to small-scale operation; study and regulate coal-bed methane wells; limit or prohibit resource use in the 

Monument except for strategic and low-impact mineral extraction
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-9 

Rationale: Lands within the SDNM are closed to mineral development, subject to valid existing rights, by

Monument proclamation. There is no coal in either the SDNM or Lower Sonoran Decision Area. 

It is inappropriate that hard rock mining on public lands is governed by outdated laws such as the General 

Mining Law of 1872

Rationale: The BLM does not have discretionary authority to disregard existing laws. Rather, a course of 

action that complies with existing laws, such as the General Mining Law of 1872, must be pursued.

Land Tenure Adjustment and Withdrawals 

Within the SDNM, sell BLM holdings only as an absolute last resort

Rationale: According to the Monument proclamation, the BLM does not have the authority to sell public 

lands in the SDNM and can only exchange such lands when it furthers the purposes of the Monument.

Use zoning laws to establish a balance between property rights and conservation of natural resources

Rationale: The BLM does not have jurisdiction over zoning laws. Rather, local and county governments 

are responsible for establishing zoning laws and controlling land use through zoning. However, the 

potential for acquisition, disposal, and exchange of public lands could indirectly affect zoning and 

development and is considered further in the RMP.

Special Area Designations

Designate areas in the Sand Tank Mountains, Margie’s Peak, and Butterfield Pass units as WSAs as outlined in 

the Arizona Wilderness Coalition proposal. Do not designate any additional wildernesses or WSAs; these 

misguided preservation designations have detrimental impacts on wildlife populations because of unwarranted 

burdens

Rationale: Only Congress has the authority to designate wilderness, and the current Department of the 

Interior and BLM policy does not provide for designation of additional WSAs. However, areas that 

contain wilderness characteristics can be actively managed by the BLM to protect those characteristics, 

and various alternatives for this management were considered by the BLM. 

Visual Resources

Protect the viewsheds through zoning and other mechanisms

Rationale: Local and county governments control land use through zoning; however, the BLM can 

address the protection of viewsheds through other means. The BLM considers viewshed protection 

through the VRM program. Various degrees of such protection have been incorporated into the 

alternatives and were considered by the BLM. 
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2-10 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Travel Management

Provide additional motorized public access in wilderness areas for people who are unable to walk long distances

Rationale: Wilderness areas are designated by Congress and must be managed in accordance with the 

Wilderness Act of 1964, which expressly prohibits motorized vehicle use by the public for recreational 

purposes. The BLM thus has no authority to develop new or open old motorized vehicle routes within 

designated wilderness.

Within the SDNM, designate OHV use areas in locations with low wildlife habitat values or where OHV use is 

already popular; keep each OHV use area to about 30 acres with twisting and interlaced trails

Rationale: Presidential Proclamation 7397 prohibits off-road use in the SDNM; consequently, OHV areas 

cannot be designated within the Monument.

Airspace

Consider how wilderness designations could adversely affect military overflights

Rationale: As identified above in Section 2.1.4, Issues Addressed, the BLM does not have the authority 

to designate new WSAs or wilderness areas. There would thus be no potential for conflicts to emerge 

between military airspace use and new WSA/wilderness designations. In terms of conflicts with existing 

wilderness areas in the SDNM, the Monument proclamation establishing the SDNM provides for 

continued military use of airspace over the SDNM, including over existing wilderness areas.

Work closely with nearby military bases and airports to schedule flights and design flight paths that are the least 

intrusive to wildlife populations and the Monument

Rationale: The Monument proclamation does not address the need for the BLM to dictate flight paths, 

and the many and varied uses by the military of the airspace over the Monument preclude establishing 

specific flight paths. The military already has specific high altitude flight paths, but they are very wide and 

have little impact on Monument resources.

Socioeconomics

Include a full identification of the social and economic impacts on all of the approved regional extra-high-voltage 

electric system components

Rationale: The EIS evaluated economic impacts of the alternatives, including those regarding corridors 

and ROWs, as needed at a programmatic level to assess the potential environmental impacts. 

Cumulative economic impacts (i.e., the impacts of the alternatives when combined with past, present, 

and reasonably foreseeable actions) were also addressed. A full social and economic impact analysis of 

the regional extra-high-voltage electric system components, however, was beyond the scope of the EIS.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-11 

Undocumented Immigrants and Drug Smuggling

Manage illegal immigration and drug smuggling

Rationale: BLM law enforcement is predominantly responsible for visitor safety and resource protection. 

US Customs and Border Protection, under the Department of Homeland Security, has the mission and 

responsibility for securing the US Border and enforcing federal immigration and drug laws. While the 

BLM can respond to crime and resource impacts from border activity, jurisdiction of illegal immigration 

and international drug smuggling lies with the Customs and Border Protection and Department of 

Homeland Security. In coordination with Customs and Border Protection, Department of Homeland 

Security, and state and local law enforcement agencies, the BLM: 

• Develops integrated resource and law enforcement goals and priorities on National Landscape 

Conservation System units and other borderlands locales;

• Coordinates resource rehabilitation and mitigation with deployment of law enforcement 

resources to maximize effectiveness of both within the borderlands;

• Monitors smuggling activity levels, resource impacts, and mitigation efforts through existing and 

developing technologies;

• Communicates and coordinates effectively with agency partners and public, including sharing of 

funding and intelligence;

• Works with partners to identify key areas for increased enforcement, closure, restoration, 

protection efforts, and visitor safety;

• Actively deploys and collaborates on enhanced communication technologies; and

• Implements coordinated safety measures for agency staff, fire and law enforcement personnel, 

and public visitors.

2.1.6 Planning Criteria

Planning criteria are the standards, rules, and guidelines that helped guide the RMP/EIS process. The BLM 

developed planning criteria principally from FLPMA and other applicable laws and, in the case of the 

SDNM, from Presidential Proclamation 7397, as well as collaboration with partner agencies, American 

Indian tribes, and the public. The planning criteria were provided to the public for review during the 

scoping process and were included in the scoping report. General planning criteria and criteria specific 

to planning in the SDNM are presented below.

General Planning Criteria

• The planning process will include an EIS that will comply with NEPA standards. Two records of 

decision will be issued: one for the Lower Sonoran Decision Area and one for the SDNM 

Decision Area.

• The RMP will be completed in compliance with FLPMA, the ESA (16 USC 1531 et seq.), NEPA, 

the Archaeological Resources Protection Act, and all other relevant federal laws and executive 

orders, as well as the management policies of the BLM.

• Where previous planning decisions still apply, those decisions will be carried forward into the 

RMP. The BLM will also use information developed and management alternatives proposed in 

previous studies of the Planning Area, including the proposed Amendment and Environmental 
2. Approved Resource Management Plan

2-12 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Assessment to the Lower Gila North Management Framework Plan and the Lower Gila South 

RMP (BLM 2005a).

• Planning decisions will be made in the context of the best-available data, including information 

specific to public lands. Regional contextual data may also be used to identify the regional 

importance of public lands for resource use and protection.

• The planning team will work collaboratively with the State of Arizona; Maricopa, Pinal, Pima,

Gila, and Yuma counties; tribal governments; municipal governments; other federal agencies; the 

Resource Advisory Council; and all other interested groups, agencies, and individuals. Decisions 

in the plans will strive to be compatible with existing plans and policies of adjacent local, state, 

tribal, and federal agencies, consistent with federal law and regulations. Opportunities to 

coordinate management with adjoining landowners for resource protection and public uses will 

be considered.

• The RMP will be developed to be flexible and adaptable to new and emerging issues and 

opportunities. During implementation of the RMP, the BLM will continue to work in partnership 

with the public and with local, state, and tribal governments and agencies to identify priority 

implementation projects and to identify and resolve emerging issues.

• Native American tribes will be consulted in accordance with policy, and tribal concerns will be 

given due consideration. The planning process will include the consideration of any impacts on 

Indian trust assets.

• Consultation with the USFWS will take place throughout the planning process in accordance 

with Section 7 of the ESA and the National Memorandum of Agreement (August 30, 2000) to 

identify conservation actions and measures for inclusion in the plans.

• Coordination with the Arizona State Historic Preservation Office (SHPO) will be conducted 

throughout the planning process.

• The plans will recognize the state’s authority to manage wildlife populations, including hunting 

and fishing, within the Planning Area. Coordination with AGFD will occur in accordance with 

the statewide memorandum of understanding (MOU; March 1987).

• The plans will set forth a framework for managing recreational and commercial activities in 

order to maintain existing natural landscapes and to provide for the enjoyment and safety of the 

visiting public.

• The lifestyles of area residents, including the wide variety of uses of the public lands, will be 

considered in the RMP.

• Any lands, or interests therein, acquired by the BLM within the Planning Area boundary will be 

managed consistently with the RMP, subject to any constraints associated with the acquisition.

• The RMP will address travel management for the public lands. Areas will be identified as open to 

vehicles, closed to vehicles, or limited to designated roads. Within the Monument and in other 

areas identified in the RMP, motorized and mechanized routes will be designated.

• The RMP will recognize valid, existing rights.

• Federal Geographic Data Committee standards and other applicable BLM standards will be 

followed in the development and management of data.

• Management of existing wilderness will continue. The RMP will not address reduction or 

elimination of existing wilderness, changes in boundaries of existing wilderness, or opening of 

roads or mechanized or motorized access into existing wilderness.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-13 

Criteria Specific to the SDNM

Planning criteria for the SDNM were derived from Presidential Proclamation 7397. The proclamation 

states that the BLM will manage the Monument “pursuant to applicable legal authorities, to implement 

the purposes of the proclamation.” Thus, any BLM planning criteria developed for the SDNM were 

inextricably tied to protecting the objects identified in the proclamation. The following SDNM criteria 

were used in addition to the general planning criteria noted above:

• The SDNM RMP will establish guidance upon which the BLM will manage the SDNM and will 

replace and supersede all other BLM RMPs for the lands covered by the SDNM RMP.

• The SDNM RMP will meet the requirements of the Presidential Proclamation 7397, dated 

January 17, 2001, to conserve, protect, and restore the objects of geological, archaeological, 

historical, and biological value within the Monument.

• In accordance with the proclamation, acquired lands and interests within the Monument’s 

boundary will be added to the Monument and will be managed consistently with the SDNM 

RMP.

• To maintain the existing natural and cultural landscapes of the SDNM to the maximum extent 

possible, facilities will be located outside the Monument’s boundary or in neighboring 

communities. Facilities that must be located within the Monument’s boundaries will be placed in 

such a way that they are unobtrusive, to the extent practicable.

• The SDNM RMP will not address Monument boundary adjustments or proposals to change the 

Proclamation. 

2.1.7 Planning Process

The SDNM RMP was initiated under the authority of Section 202(f) of FLPMA and guided by BLM 

planning regulations in 43 CFR 1600. Additionally, the EIS is subject to Section 202(c) of NEPA and 

guided by the Council on Environmental Quality regulations in 40 CFR 1500.

BLM uses a multi-step planning process when developing RMPs as required by 43 CFR Part 1600 and 

illustrate in the BLM’s Land Use Planning Handbook (H-1601-1). The planning process is designed to 

help BLM identify the uses of BLM-administered lands desired by the public and to consider these uses 

to the extent they are consistent with the laws established by Congress and the policies of the executive 

branch of the federal government. The planning process is issue-driven. The BLM used the public 

scoping process to identify planning issues, noted above, to direct the development of the SDNM RMP. 

The scoping process also was used to introduce the public to planning criteria.

Title II, Section 202, of FLPMA directs BLM to coordinate planning efforts with Native American tribes, 

other federal departments, and agencies of the state and local governments as part of its land use 

planning process. The BLM is also directed to integrate NEPA requirements with other environmental 

review and consultation requirements to reduce paperwork and delays (40 CFR Part 1500.4-5). The 

BLM accomplished coordination with Native American tribes, other agencies, and consistency with 

other plans through ongoing communications, meetings, and collaborative efforts with an 

interdisciplinary team, which includes BLM specialists and federal, state, and local agencies.
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2-14 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

2.1.8 Consultation and Collaboration

BLM land use planning regulations (43 CFR 1610.3), FLPMA (43 USC 1712), and regulations for 

implementing NEPA (40 CFR 1501.5 and 1501.6) guide the BLM in coordinating and cooperating with 

other federal and state agencies, local governments, and American Indian tribes during the land use 

planning process. This collective guidance instructs the BLM to:

• Stay informed of federal, state, local, and tribal plans;

• Ensure that it considers these plans in its own planning;

• Help resolve inconsistencies between such plans and BLM planning; and

• Cooperate with other agencies and tribal governments during the development of RMPs and 

NEPA analysis.

The USFWS reviewed the biological assessment and developed a biological opinion, the purpose of 

which is to prevent unacceptable harm to an ESA-listed species or its habitat. A biological opinion is a 

scientific judgment about a proposed action, not a policy document. The biological opinion on the 

Lower Sonoran-SDNM RMP/EIS project included four conservation recommendations to minimize or 

avoid possible adverse effects on listed species or their critical habitat. The USFWS recommended the 

following four conservation measures:

Sonoran Pronghorn

1. BLM continue to monitor the condition of fences on and adjacent to BLM lands in the action 

area to address unauthorized cattle use and identify opportunities to improve SPH [Sonoran 

pronghorn] passage across fence lines.

2. BLM coordinate with CBP [Cabeza Prieta Wildlife Refuge] to identify opportunities for 

alternatives to the Bates Well FOB to re-establish a pronghorn movement corridor to the 

Valley of the Ajo from adjacent lands.

Southwestern Willow Flycatcher

1. BLM monitor the condition of fences on BLM lands in the action area to address 

unauthorized cattle use of Gila River bottom lands.

2. BLM participate in planning efforts along the Gila River to integrate BLM efforts with the 

Flood Control District of Maricopa County and local jurisdictions to improve habitat 

conditions along the Gila River.

Agency coordination efforts included reviewing numerous plans that provide the policies and guide the 

activities of these agencies and governments. 

The BLM has coordinated with federal, state, and county agencies throughout the planning and EIS 

process. The BLM gathered issues, ideas, and concerns, and discussed the role of agencies in the 

process. A full listing of the agencies that the BLM coordinated with can be found in the Scoping Report 

(available from the BLM Phoenix District Office). 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-15 

A letter introducing the RMP/EIS, identifying data-gathering efforts, and offering agencies the opportunity 

to become cooperating agencies in the planning efforts was sent to more than 200 agencies, followed by 

a cooperating agency meeting at the Arizona State Office. The meeting agenda included discussions on 

the BLM’s planning process, collaborative planning, the meaning and responsibilities of cooperating 

agency status, and opportunities for involvement in the BLM’s planning process without becoming a 

cooperating agency. The BLM’s goal was to encourage involvement by all interested parties using 

whatever methods the parties wished.

For those agencies choosing to be a cooperating agency, MOUs were developed that outlined the roles 

and responsibilities of the cooperating agencies and the BLM throughout the planning process. The BLM

signed MOUs with the Arizona Game and Fish Department and Arizona Department of Transportation 

discussed below.

Specific Agreements

The BLM and AGFD have agreed to work cooperatively to manage wildlife resources on public lands 

throughout Arizona. The master MOU (AZ-930-0703) between the BLM’s Arizona State Office and the 

Arizona Game and Fish Commission, which sets policy for the management, preservation, and harvest of 

wildlife and fish resources, establishes the BLM’s responsibility for managing wildlife habitat on public 

lands and the AGFD’s public trust responsibility to manage fish and wildlife populations through the 

authority of the Commission. As stated in the MOU, the BLM and the AGFD “consider the management 

of fish and wildlife resources as a high priority and agree to work cooperatively to achieve a shared goal 

to actively manage, sustain, and enhance those resources.”

The BLM, Arizona Department of Transportation, and Arizona Division of Federal Highway 

Administration have agreed to establish and improve cooperative working relationships (MOU No. AZ931-0309, Amendment 2). This MOU provides for a coordinated approach to accomplish land and 

resource management along with transportation development and operation management. The MOU is 

designed to reduce or eliminate duplication of work, establish procedures for streamlining work 

processes, ensure that each agency is provided with sufficient lead-time, share available resources, and 

develop and execute action programs that maximize responsiveness to public needs and concerns. Per 

the MOU, the BLM will coordinate with responsible agencies to develop design features that minimize 

the fragmenting effect of the planned roadway and evaluate/incorporate safe and effective wildlife 

crossings. Where planned roadways potentially fragment other resources, the BLM will work with the 

responsible agency to provide continued connectivity for those purposes. The BLM will also work with 

the agency to provide continued safe access to public lands from any developed roadway for recreation 

and other public land users.

Tribal Government-to-Government Consultation

The BLM has a long history of consultation on this RMP. Beginning in 2002 until late in 2011, BLM staff 

and managers held and documented 17 face-to-face meetings with tribal staff, legislative council 

members, or tribal council members about the RMP. 
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2-16 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

The BLM began by contacting the following tribes to initiate consultation, and invite them to the scoping 

meetings at the start of the RMP process as well as to participate as a cooperating agency in the planning 

process:

Ak-Chin Indian Community

Fort McDowell Yavapai Nation

Fort Sill Apache Tribe

Gila River Indian Community

Hopi Tribe

Pascua Yaqui Tribe

Salt River Pima-Maricopa Indian Community

San Carlos Apache Tribe

Tohono O’odham Nation

Tonto Apache Tribe

White Mountain Apache Tribe

Yavapai-Apache Indian Community

Yavapai-Prescott Indian Tribe

The BLM met with interested tribes on 17 occasions to describe and discuss the planning process and 

Planning Area. A total of five formal letters were sent to the Tribal Chairs with courtesy copies sent to 

the cultural staff at each and every tribal government. These were sent with return receipt requested. A 

few reply letters from some tribes were received. Follow-up telephone calls were made to tribal staff in 

order to make sure that the letters and accompanying documents arrived and to inquire whether there 

were any concerns that needed to be addressed. On two occasions, the BLM offered field tours that 

Tribal staff and elders attended. These field tours allowed time for discussion of planning issues at 

particular sites and particular broad landscapes. Several telephone calls and emails were exchanged at 

various times in order to provide more detailed information or to have a more in-depth discussion. 

Topics covered during consultation included formal consultation, cooperating agency status, and 

community involvement and collaboration. Tribal staff emphasized the importance of ongoing and 

regular consultation, and voiced concerns regarding protection of cultural and natural resources, grazing 

management, law enforcement, with regard to cultural resource site protection, route access, 

undocumented immigrants, and drug smuggling, and possible land exchanges and acquisitions. The BLM 

kept the tribes informed on RMP development throughout the planning process via meetings, telephone 

conversations, letters, faxes, email, personal communication, and news releases, including how to 

participate in commenting on the DRMP/EIS. These important topics are issues that will continue to be 

worked on with the tribes throughout Plan implementation. 

Section 7 Consultation

In accordance with the requirements of Section 7 of the ESA, the BLM consulted with the USFWS to 

ensure that the BLM’s proposed action would not jeopardize the continued existence of any listed 

threatened, endangered, or proposed species or critical habitat.

BLM wrote a biological assessment and held a meeting with the USFWS to explain the proposed action 

and the format used for the effects determinations. The assessment discussed the effects on four listed 

species in the Lower Sonoran-SDNM Biological Assessment from the PRMP (Alternative E in the 

PRMP/FEIS). The BLM delivered the completed biological assessment to the USFWS for comments and 

clarification.

The USFWS reviewed the biological assessment and developed a Biological Opinion; the purpose of a 

biological opinion is to prevent unacceptable harm to an ESA-listed species or its habitat: it is a scientific 
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-17 

judgment about a proposed action, not a policy document. The biological opinion on the Lower 

Sonoran-SDNM RMP/EIS project included conservation recommendations to minimize or avoid possible 

adverse effects on listed species or their critical habitat. It also imposed reasonable and prudent 

measures needed to minimize any harmful impacts, and required monitoring and reporting to ensure 

adequate protection compliance.

Section 106 Consultation

In accordance with the requirements of Section 106 of the National Historic Preservation Act, the BLM 

coordinated with and solicited input from the Arizona SHPO. The BLM and Arizona SHPO followed the 

coordination protocols in the Arizona Protocol relating to resource management plans; the protocol 

provides for a phased consultation process related to historic, traditional, and cultural resources for an 

EIS and subsequent activities that could tier from a ROD. Per these procedures, the BLM Arizona 

initiated consultation with the Arizona SHPO by written correspondence in 2003. The letter described 

the Lower Sonoran-SDNM RMP/EIS and specified the need to consult on information presented in the 

EIS. 

Over the course of the planning process, the BLM met with or contacted the SHPO to share updates 

and information on the planning effort. In October 2011, the BLM send a letter to the SHPO detailing 

the history of the planning effort and requesting review and comment on the DRMP/EIS by the SHPO. In 

November 2011, the BLM received the SHPO’s comments on the DRMP/EIS noting comments regarding 

impacts on cultural resources and associated mitigation outlined in the plan.

On July 26, 2012, the BLM sent a letter to the SHPO outlining the need for specific comments on the 

implementation-level decisions presented in the Travel Management section in accordance with BLM IM

No. 2012-067, “Clarification of Cultural Resource Considerations for Off-Highway Vehicle Designations 

and Travel Management”. On August 27, 2012, a letter was received from the SHPO, noting they had no 

additional comments. 

Federal and Military Coordination

The BLM coordinated with other federal agencies and military installations within the Planning Area, 

including the National Park Service (NPS) and US Air Force. The BLM and NPS met to discuss 

management options in the Ajo Block area, specifically regarding land tenure adjustments, land use 

authorizations, ROWs, borderland and associated law enforcement issues, national park access, 

boundary management, endangered species management, recreation, and comprehensive travel 

management decisions. The BLM coordinated with the Base Executive Council and Interagency 

Executive Committee regarding the planning efforts and military involvement for borderlands, travel and 

recreation management, land restoration, and threatened and endangered species management on Luke 

Air Force Base and the Barry M. Goldwater Air Force Range military installations, and management of 

public lands in the Ajo Block, Sentinel Plain, and SDNM.

The BLM also worked with the Borderlands Management Taskforce, which coordinates all federal 

agencies involved with borderlands management. The BLM’s responsibility is to manage and protect 

natural resources, protect employees and public land users, and coordinate with all other law 

enforcement agencies (e.g., county, state, and federal agencies, including Immigration and Customs 
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2-18 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Enforcement). Issues discussed included impacts related to undocumented immigration, drug and human

trafficking, and coordinated management and mitigation measures.

Arizona Governor’s Office Coordination

The BLM coordinated and consulted with the Arizona governor and governor’s office and other state 

agencies. The BLM met with the Arizona Department of Transportation to review regional 

transportation plans and discuss the agency’s concerns and questions. Additionally, the BLM had 

extensive coordination with the AGFD to discuss wildlife management, public access route designations, 

and wildlife movement corridors. 

The Arizona governor was given the opportunity to identify any inconsistencies between the proposed 

plan and state or local plans, policies, and programs, and to provide recommendations in writing during a 

60-day consistency review period, a requirement of the BLM’s planning process. The Governor’s Office 

did not note any inconsistency with state policies or plans.

Local Government

The BLM coordinated and consulted with local governments throughout the planning process. The BLM

met with the Maricopa County Department of Transportation regarding regional transportation issues, 

including discussion of anticipated highway planning projects. The BLM also met with the Maricopa 

County and Pinal County Park and Recreation departments to discuss recreation-related land 

management coordination efforts for the Saddle Mountain, Buckeye Hills, and San Tan Mountains areas. 

The BLM also met with the Town of Gila Bend regarding their recreation and development interests. 

Additionally, the BLM reviewed numerous county planning documents, including the Pinal County 

Comprehensive Plan, the Pinal County Open Space and Trails Master Plan, and the City of Maricopa’s 

Parks, Trails, and Open Space Master Plan. The BLM’s planning guidance notes that RMPs shall be 

consistent with other federal, state, and local plans to the maximum extent consistent with federal law 

and FLPMA provisions, and ensure that consideration is given to those state and local plans relevant to 

the development of land use plans for public lands. The BLM has reviewed these county plans for 

consistency and found that the actions in the RMP are generally consistent with the intent and actions in 

the county plans.

Local governments submitted scoping comments when BLM initiated the planning effort and reviewed 

and commented on the DRMP/EIS. The BLM will continue to coordinate with local governments after 

the ROD is signed.

Public Outreach and Local Constituency Groups

In an effort to provide outreach to the local communities in the Planning Area, the BLM contacted 

constituency groups with interests in several of the planning issues. The BLM contacted several shooting 

groups to discuss the target shooting analysis, including the Table Mesa Coalition, the Arizona State Rifle 

and Pistol Association, and the AGFD. The Table Mesa Coalition provided feedback on the shooting 

analysis, including information on safe shooting practices and distances and areas that should remain 

open for shooting activities.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-19 

2.1.9 Policy

This plan is consistent with and incorporates requirements identified in various laws, regulation and 

policy. These include Executive Orders, legislative designations, and court settlements and rulings. The 

policies and decisions that existed prior to this plan being written are outside the scope of the plan but 

have influenced the decisions, constrained the alternatives, and are needed to understand management 

of the area.

2.2 PLANNING DECISIONS

This section of the RMP presents the Goals, Objectives, Land Use Allocations, and Management Actions 

established for BLM-administered lands in the SDNM. Most of the desired future conditions are longrange in nature and will not be achieved immediately, but rather are assumed to require a period of time 

to achieve. These management decisions are presented by program area. Not all types of decisions were

identified for each program.

Implementation- or activity-level decisions are decisions that take action to implement land use plan 

decisions. These types of decisions require appropriate site-specific planning and NEPA analysis. 

Implementation decisions generally constitute the BLM’s final approval allowing on-the-ground actions to 

proceed and are generally appealable to the Interior Board of Land Appeals under 43 CFR 4.410. This 

RMP contains appealable implementation decisions for route designations. This decision is presented 

separately in Section 2.3, Implementation Decision – Travel Management. Please note that all acreages 

presented in the RMP are estimations, even when presented to the nearest acre.

Complete consideration of the RMP also includes Administrative Actions that outline the objectives, 

basic management policy, and program direction. Administrative Actions are not land use plan decisions;

however, these are day-to-day activities that are not ground-disturbing and are an important component 

when considering program activities.

2.2.1 Air Quality

Goals, Objectives, and Management Actions

AQ-1: Protect, maintain, and improve the quality of air resources associated with 

authorized uses and activities on public lands.

AQ-1.1: Maintain existing air quality and air quality-related values (e.g., visibility) by ensuring that 

authorized uses on public lands comply with and support federal, state, and local laws and 

regulations for protecting air quality.

AQ-1.1.1: State and local agencies and adjacent land managers will be consulted to 

address emissions that affect public lands.

AQ-1.1.2: Appropriate management techniques and practices will be applied to all 

authorized surface-disturbing projects and activities as needed to ensure compliance 

with standards.
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2-20 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

AQ-1.2: Apply mitigation measures for uses and activities within and near adjoining 

communities, wilderness areas, and large particulate-matter (PM10) (i.e., dust) non-attainment 

and maintenance areas, especially as they pertain to unpaved roads that traverse public lands.

AQ-1.2.1: Excessive fugitive-dust generation from unpaved roads, construction sites, 

recreation activity areas, and other areas will be managed to ensure emissions do not 

exceed air quality standards, particularly those more rigid requirements in nonattainment areas.

AQ-1.2.2: Fugitive-dust emissions from unpaved roads will be mitigated through 

appropriate control methods, including, but not limited to: 

• Lowering speed limits by creating obstacles such as speed bumps; 

• Using fugitive-dust control measures such as dust. suppressants, gravel, or 

pavement; 

• Installing cattle guards where unpaved roads meet paved roads;

• Reducing vehicle-use intensity or duration, reducing route density, or re-routing 

travel routes to more stable soils;

• Limiting the vehicle type on roads or in areas that are susceptible to excessive 

dust due to unstable soils;

• Closing high-use areas during high-pollution days;

• Closing areas that frequently exceed PM10 standards to non-compliant 

recreation and other projects until mitigation measures are implemented.

• Implementing temporary, seasonal, or permanent route closures when other 

methods are unsuccessful at controlling fugitive dust that exceeds regulatory 

limits.

Administrative Actions

Review projects requiring nonmajor permits within 10 kilometers of the SDNM to determine their 

effects on air quality and affected resources and provide comments to the appropriate regulatory 

agency.

• Work with adjoining land managers and users and county or municipal authorities to mitigate air 

quality effects on the SDNM. Make control of fugitive dust emissions from unpaved roads, 

construction sites, or other activity areas within 10 kilometers of SDNM a priority of this effort. 

• Coordinate with county or municipal authorities to encourage control of fugitive dust emissions 

from unpaved roads that affect attainment of air quality standards in the SDNM. 

• Increase public awareness and appreciation of air quality resources and visibility through 

interpretative displays as part of the public outreach program and visitor facilities planning for 

SDNM.

• Work with federal, state, and local agencies to monitor air quality in the SDNM. Air quality 

monitoring should include visibility, ozone, acid deposition, or other relevant air quality 

indicators. 
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-21 

• Promote the study of air quality conditions in the SDNM, including the effects of ozone, acid 

deposition and other related pollutants on plants and the supporting ecosystems. Cooperate 

and promote such activity with academic institutions and other interested parties.

2.2.2 Cave Resources

Goals, Objectives, and Management Actions

CR-1: Protect and conserve caves and karst resources as they are discovered on the public 

lands.

Objective CR-1.1: Manage caves and karst resources to maintain or enhance their physical 

integrity and scientific interest.

CR-1.1.1: Evaluate and inventory caves and karst resources, as they are discovered, to 

determine if the cave contains significant cultural, scientific, biological, geological, 

hydrological, educational, or recreational values.

CR-1.1.2: Protect and manage significant caves and karst resources for cultural, 

scientific, biological, geological, hydrological, educational, and recreational values.

CR-1.1.3: Public access to all caves within this Decision Area will be by permission of 

the authorized officer unless public entry is signed as open. Federal, state and local 

government employees operating within the scope of their authorizations will be 

exempt from permit issuance.

2.2.3 Cultural and Heritage Resources Goals, Objectives, and 

Management Actions

Allocation Summaries

Table 2-1 

Cultural and Heritage Site Use Allocation

Cultural and Heritage Site Uses BLM Acres

Management 

Action

Big Horn Station – Public and Scientific Use <5 CH-1.1.1

Christmas Camp – Public and Scientific Use <5 CH-1.1.1

Happy Camp (Desert Station) – Public and Scientific 

Use <5 CH-1.1.1

Selected segments of Butterfield Overland Stage Route 

(Butterfield Pass) – Public and Scientific Use 3,600 CH-1.1.1

Sonoran Desert Historic Trails SCRMA 16,200 CH-1.1.2
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2-22 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Goals, Objectives, and Management Actions

CH-1: Identify, preserve, and protect important cultural resources and Monument objects. 

Ensure they are available for appropriate uses by present and future generations.

CH-1.1: Allocate 90 percent of known and evaluated cultural resource sites to one of five use 

categories: (1) scientific use, (2) conservation for future use, (3) traditional use, (4) public use or 

(5) experimental use, or classify as “discharged from management,” within one year of 

recording.

CH-1.1.1: Anza-Butterfield Interpretive Trail (a high potential use segment of the Juan 

Bautista de Anza NHT and Butterfield Overland Stage Route within the SDNM, totaling 

3,600 acres), Happy Camp (<5 acres), Christmas Camp (<5 acres), and Big Horn Station 

(<5 acres) will be allocated as public or scientific use sites.

Management prescriptions for public use sites will follow those set forth in the 

applicable special designation sections of the RMP when more restrictive. Inventory, 

recordation, documentation, and preparation of all sites for increased public visitation 

must be accomplished prior to implementing interpretive developments. Big Horn 

Station will only be allocated if stabilization measures are taken, critical safety issues are 

addressed, and legal access is obtained (Map 2, Cultural Resources Allocations). 

CH-1.1.2: Allocate the Sonoran Desert Historic Trails Special Cultural Resources 

Management Area (16,200 acres).

CH-1.1.3: Camping within 100 feet of centerline along the Anza-Butterfield Interpretive 

Trail high potential use segment will be limited to designated campsites as determined in 

activity-level planning. See also SL-2.1.3, RM-1.1.4, and TM-6.1.1. 

CH-1.2: Encourage appropriate scientific use of cultural resources.

CH-1.2.1: Provide opportunities for scientific research and inventory at selected sites, 

including excavation by qualified researchers.

CH-2: Reduce threats, reduce or prevent damage, and resolve potential conflicts from 

naturally occurring or unauthorized human-caused damage or deteriorations.

CH-2.1: Impacts by erosion, natural processes, or those due to vandalism, visitation, vehicle 

traffic, or other unauthorized human activity will be reduced.

CH-2.1.1: Potential conflicts from other resource uses will be minimized, reduced, or 

unauthorized by complying with Section 106 of the National Historic Preservation Act, 

and using mitigation or avoidance strategies as prescribed by law, regulation, or the BLM 

8100 Manual.

CH-2.1.2: Sites suffering damage or deterioration resulting from natural or human 

causes will be restored or stabilized. 
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-25 

CH-2.1.3: Sites and Monument objects will be protected from degradation due to 

erosion and other natural processes by using a wide variety of techniques and tools, 

such as wash bank stabilization, rip rap, and vegetation restoration.

CH-2.1.4: Sites and Monument objects damaged by vandalism, excessive visitation, 

vehicle traffic, or other causes will be restored by using signing, fencing, gating, trail rerouting, or other measures.

CH-2.1.5: Special recreation permit (SRP) holders will be required to provide 

archaeological site etiquette and resource conservation information to all participants, 

employees, and volunteers associated with permitted activities. See also RM-2.1.10. 

CH-2.1.6: The number of visitors at cultural or historic sites will be limited to 25 people 

at the site at any one time to emphasize resource protection. Some sites may require 

further limitations to protect the resource. Casual use or group limits for SRPs may be 

higher on a case-by-case basis if determined to be acceptable in site specific evaluations 

and the activity/action can be designed to have a minor or negligible impact to cultural 

resources. See also RM-2.1.11. 

CH-3: Manage assemblages of sites within the Decision Areas as cultural landscapes.

CH-3.1: Distinct cultural landscapes will be described and mapped as defined by human use of 

the environment to protect the physical integrity, enhance visitor experience, and maintain or 

enhance visual settings. Cultural landscapes are a new and holistic land use concept that 

attempts to understand human interaction with each other and their environment through time 

on a landscape scale.

CH-3.1.1: The age, function, and interrelationship of sites attributed to historic 

indigenous populations in different environmental settings will be identified when 

possible.

CH-3.1.2: Cumulative impacts on the cultural landscape, as well as impacts on individual 

sites, will be analyzed as part of the project assessment when projects are proposed.

Administrative Actions

State Historic Preservation Office/National Historic Preservation Act

• Continue to regularly communicate with the SHPO to share information and obtain technical 

advice on issues relating to compliance with Sections 106 and 110 of the National Historic 

Preservation Act, in accordance with the Arizona State Protocol.

• Focus proactive (Section 110) inventories on areas defined as Special Cultural Resource 

Management Areas, and areas along historic trail routes.
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2-26 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Tribal Consultation and Concerns 

• Continue to consult with the Gila River Indian Community, the Ak-Chin Indian Community, the 

Salt River Pima-Maricopa Indian Community, the Tohono O’odham Nation, the Hopi Tribe and 

other interested Indian tribes to identify places of traditional importance and associated access 

needs. Develop measures for management and protection of such places that may be identified 

by tribes during the life of the RMP. 

• Identify sacred areas in consultation with Indian tribes and, where practicable, limit land uses to 

those that do not conflict with ascribed values.

• Honor tribal requests to protect the confidentiality of sensitive information to the extent 

permitted by law.

• Provide opportunities for participation by Indian tribes in research and interpretation.

• Develop specific management prescriptions for sites allocated to the Traditional Use category in 

consultation with the Indian tribes to which they are culturally important.

• Restrict public information about the locations of sites that are not allocated to public use as 

allowed by law and regulation.

Research Opportunities

• Complete documentary research and oral histories to gain a better understanding of cultural 

resources from homesteading, mining, ranching, and other historical period activities.

• Establish collaborative research partnerships with academic institutions, tribes, professional and 

nonprofit organizations, vocational organizations, and other entities for an orderly process of 

cultural research, recordation, and education.

• Work with researchers, tribes, interested members of the public, contractors, local 

communities, and published materials to define specific cultural landscapes. Work with tribal 

groups and individuals to define temporal, functional, and inter-relationships of sites within 

certain landscape settings.

• Provide opportunities for training and participation in site documentation, research, protection, 

and education projects by tribal members, students, and volunteers. Ensure adequate 

professional oversight of work conducted by tribal members, students, and volunteers.

Interpretation and Education

• Map and document sites before interpretive development for public use, as needed, to preserve 

archeological data, plan for interpretive data, and provide a baseline condition assessment for 

monitoring changes resulting from visitor use.

• Complete interpretive plans for public use sites selected for interpretive development.

• Develop interpretive materials and facilities for selected sites. Provide educational opportunities 

to the public, including resource protection and appreciation, education, and stewardship.

• Continue to participate in Arizona Archaeology Awareness Month events and other educational 

outreach programs to highlight the values of cultural heritage resources and the need to protect 

these resources.

• Provide opportunities for tribal and interested public participation in interpretation.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-27 

Monitoring

• Continue to work with and support the Arizona Site Steward Program.

• Develop a monitoring scheme to evaluate the condition of cultural resources.

• Implement procedures for systematic monitoring of all sites developed or authorized for public 

visitation.

Planning

• Develop Cultural Resource Project Plans for protection or interpretation projects that require 

precise descriptions of implementation procedures, workforce, scheduling, equipment, and 

supplies. Implement planning following the guidance in BLM’s Manual 8130, Planning for Uses of 

Cultural Resources.

Special Programs/Cultural Landscapes

• Work with researchers, tribes, concerned members of the public, contractors, local 

communities, and other stakeholders to make use of previously published materials to define 

certain cultural landscapes.

• Develop a strategy to identify, assess, and monitor the viewsheds along the historic trail 

corridor and other important cultural landscapes on the SDNM. Use Geographical Information 

System (GIS) technology to create viewshed studies and collect information for the monitoring 

program. 

2.2.4 Paleontological Resources 

Goals, Objectives, and Management Actions

PL-1: Protect and manage any paleontological resources, including all vertebrate fossils, 

traces, and invertebrate or plant fossils of paleontological interest, found on public lands 

for scientific, educational, or recreational values.

PL-1.1: Manage paleontological resources to maintain or enhance their physical 

integrity, educational values, and scientific interest while avoiding all surface-disturbing activities 

to the extent possible that will damage paleontological resources.

PL-1.1.1: Collection of paleontological resources for personal use will be prohibited 

except where intended for legitimate scientific uses and for which written authorization 

is obtained from the BLM authorized officer.

PL-1.1.2: Standard discovery stipulations will be included in any permit approval that is 

likely to affect significant paleontological resources. Stipulations will require the user or 

operator to: 

• Suspend operations immediately upon discovery of paleontological resources 

that will disturb them,
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2-28 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• Contact the authorized officer as soon as reasonably possible,

• Bear the cost of required mitigation.

PL-1.1.4: Upon notification of discovery by a permit user or operator, the BLM will: 

• Evaluate the discovery and inform the user/operator within 5 days,

• Allow resumption of use/operations only after completion of mitigation.

Administrative Actions

• Geologic units will be assigned and entered into the Potential Fossil Yield Classification System 

(per IM No. 2008-009) using geological maps and professional consideration. Assign a separate 

class ranking to each recognized geologic formation or member present at the surface in 

accordance with the guidelines provided in the IM.

• All assigned units entered into the Potential Fossil Yield Classification System will be integrated 

onto a GIS-based geologic map.

2.2.5 Soil Resources 

Goals, Objectives, and Management Actions

SL-1: Ensure watersheds are functioning appropriately and are consistent with Land Health 

Standards. Characteristics of a properly functioning watershed include channels that are 

stable and in balance with the landscape; erosion and sediment deposition appropriate for 

the ecological site; infiltration of surface water in soils sufficient to support desired future 

conditions and minimize erosion from runoff; and flood frequencies, durations, and 

magnitudes appropriate for the landscape.

SL-1.1: Maintain or restore upland, channel, and riparian components of watersheds that help 

stabilize or improve watershed conditions. Major indicators of watershed health include 

maintaining total cover (vegetation and litter) consistent with desired future conditions, riparian 

areas in proper function condition, and erosion and sedimentation rates appropriate to the 

ecological site.

SL-1.1.1: Priorities for restoration will be established for disturbed areas. Priorities will

be based on the potential for soil erosion and loss, damage to cultural or ecologically 

sensitive sites, and effects on water quality and quantity.

SL-1.1.2: Degraded sites will be stabilized and restored to slow or stop accelerated soil 

erosion and sedimentation and limit erosion to the natural rate for the ecological site.

SL-1.1.3: Benefits and risks of retaining the Vekol Valley spreader dike system will be 

evaluated along with benefits and risks of retaining or implementing vehicle closures in 

areas with eroded or otherwise degraded roads and trails.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-29 

SL-1.1.4: Soil erosion at cultural and ecologically sensitive sites will be evaluated. Soil 

erosion or degradation at these sites will be mitigated.

SL-1.1.5: Any management-caused soil erosion or degradation of the protected objects 

of the SDNM will be mitigated and restored to the extent possible.

SL-1.1.6: New or redeveloped facilities not related to water management will be 

constructed: 

• Outside the 100-year floodplain of washes or water ways. Water catchment 

facilities for wildlife waters could be developed or redeveloped in riparian areas 

or in the 100-year floodplain or if needed to meet wildlife objectives and no 

other options are viable.

• In a manner that avoids changing natural water flow or watershed dynamics, and 

consistent with other resource and public safety goals.

• Existing facilities could be relocated or modified if they are significantly affecting 

watershed or floodplain function. Where water management facilities are 

necessary, the BLM will pursue options that minimize changes to natural water 

flow and watershed dynamics. Any activities in the 100-year floodplain will be 

planned for compliance with any county or federal floodplain regulations.

SL-2: Maintain or improve sensitive soils to avoid accelerated erosion rates.

SL-2.1: Disturbance of sensitive soil surfaces, including those classified as highly susceptible to 

wind and water erosion and those with protective desert pavement or well-developed 

cryptogamic crust, will be avoided. If disturbance occurs, damage will be mitigated.

SL-2.1.1: Developments and ground-disturbing activities will be located away from areas 

of significant desert pavement, cryptogamic crust, and other sensitive or fragile soils that 

are vulnerable to disruption or have high wind or water erosion potential unless project 

goals cannot be met in another location. Where facilities or projects cannot be 

relocated, mitigation measures will be taken, including application of ground cover, to 

minimize erosion.

SL-2.1.2: Motorized vehicle use will be limited to designated roads, primitive roads, and 

trails. Specific designations will occur within this plan for the SDNM.

SL-2.1.3: Vehicle parking and camping will be limited to reasonable use of the shoulder 

or adjacent area. Designated sites in such locations will be inventoried, mapped, and 

signed. If monitoring results show effects that exceed limits of acceptable change, 

motorized vehicles will not be allowed to pull off a designated route. See also CH-1.1.3, 

RM-1.1.4, and TM-6.1.1. 

SL-2.1.4: Surface-disturbing activities – including vehicle camping, parking, and recreation 

facilities – will be prohibited on undisturbed desert pavement or well-developed 

cryptogamic crusts.
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Administrative Actions

• Update existing soils database on public lands that were formerly part of the Barry M. 

Goldwater Range (BGR). 

• Implement watershed improvement projects to increase ground cover to reduce erosion, 

sediment yield, and salinity contributions.

2.2.6 Vegetation Resources 

Goals, Objectives, and Management Actions

VM-1: The natural diversity and abundance of native vegetation will occur as expected for 

landform and ecological site, and within the SDNM protect the vegetative objects of the 

Monument.

VM-1.1: Maintain or restore vegetative communities to achieve desired future conditions as 

identified in Table 2-2, Desired Future Conditions for Vegetation Resources.

Table 2-2 

Desired Future Conditions for Vegetation Resources

Vegetative 

Community*

Acres/Miles in 

Planning Area Desired Future Condition

All N/A Vegetative communities will provide appropriate cover levels, as 

described in Natural Resources Conservation Service Ecological 

Site Descriptions, to protect soils from wind and water erosion. 

This will ensure properly functioning watersheds and ecological 

processes in order to sustain healthy biotic populations and 

communities (biological objects within the SDNM Planning Area).

All Each vegetation community will be maintained within its natural 

range of variation in plant composition, structure, and cover at 

the landscape level. Site potentials (soil, climate, topography) 

establish the natural limits on what can be produced in terms of 

vegetation and related resource values like forage, wildlife habitat, 

and watershed characteristics.

Creosote Bush–

Bursage

179,600 acres The potential of this community is a shrub dominated site with 

desert scrub species, cacti, and annual forbs and grasses.

Palo Verde-Mixed 

Cacti 

303,300 acres This vegetative community should consist of more diverse 

vegetative composition and structure than that of the creosote 

bush- bursage community. It includes vegetation varying from 

small shrubs to large trees (such as ironwood, palo verde, and 

mesquite) interspersed with a variety of cacti, such as 

mammalaria (Mammalaria spp.), prickly pear (Opuntia spp.), cholla 

(Opuntia spp.), barrel cactus (Ferocactus wislizenii), hedgehog 

(Echinocereus spp.), and saguaro (Carnegiea gigantea). Where 
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-31 

Table 2-2

Desired Future Conditions for Vegetation Resources

potential exists, saguaro cactus forests will support appropriate 

densities of saguaro, with all age classes represented to ensure 

recruitment.

Riparian 0 acres Riparian habitats should contain a diversity of native riparian 

obligate trees (such as cottonwood [Populus spp.] and willow 

[Salix spp.]) of various age and size classes and herbaceous plants 

adapted to hydric soils to restore ecological conditions and 

function.

ApacherianChihuahuan 

Upland Scrub

400 acres The potential for this community is a shrubland dominated 

community consisting of large desert scrub/trees, including 

mesquites, acacias or junipers, and cacti. Perennial grass cover is 

typically low.

Sonoran MidElevation Desert 

Scrub 

(Woodlands)

2,000 acres This vegetative community should consist of a diverse vegetative 

composition and structure, similar to that of the palo verdemixed cacti community, but with an increase of perennial grasses, 

forbs, and large shrub species (jojoba, crucifixion thorn, etc.) due 

to the increased precipitation.

Mogollon 

Chaparral 

100 acres This vegetative community should consist of woody species such 

as shrub live oak, mountain mahogany, desert ceanothus, and 

cliffrose interspersed with an understory of perennial grasses 

along with small shrub and forb species.

Desert Grassland 1,054 acres Manage this plant community as a tobosa (Pleuraphis mutica)-

dominated grassland while limiting the encroachment of 

mesquites and other shrubs.

Desert Washes 

(xeroriparian)

970 miles ** This community should have a multi-layered vegetative structure, 

as provided by perennial vegetation.

Diverse 

Composition 

N/A Diverse vegetative composition and structure will include such 

species as foothills palo verde (Cercidium microphyllum), blue palo 

verde (Cercidium floridum), desert willow (Chilopsis linearis), 

ironwood (Olneya tesota), mesquite (Prosopis spp.), smoke tree 

(Psorothamnus spinosus), and catclaw acacia (Acacia greggii) of 

various sizes and growth forms appropriate to the ecological site.

All N/A Ensure sufficient bank and floodplain vegetation (including along 

braided channel floodplains) provides for hydrologic function of 

the site.

* The desired future conditions described are general descriptions of the expected plant community makeup. Site 

potentials (based on ecological sites) and the development of specific desired plant community objectives for each 

vegetation type should be determined through the use of the Natural Resources Conservation Service ecological 

site descriptions, rangeland health reference sheets, or information collected from reference or comparison areas 

or a combination of the above. The ecological site descriptions that correspond to each vegetation community can 

be found at http://esis.sc.egov.usda.gov.

The vegetative communities listed that occur within the SDNM are identified as biological objects of the 

Monument. Within the SDNM, specific desired plant community objectives and site potentials were developed for 
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2-32 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Table 2-2

Desired Future Conditions for Vegetation Resources

each ecological site and corresponding vegetation type (biological object) through the land health evaluation 

process. These site potentials were determined through the use of a combination of the information collected 

from the BGR and Area A (comparison areas), the Natural Resources Conservation Service’s ecological site 

descriptions, and the rangeland health reference sheets for the ecological sites. Achievement of these desired plant 

community objectives will ensure that the biological objects of the Monument are being protected.

** Based on US Geological Survey 1:100K scale topographic quadrangles

VM-1.1.1: Activities will be evaluated on a case-by-case basis and impacts minimized, 

mitigated, or avoided to achieve land-health standards and vegetation community 

desired future conditions, and ensure protection of the vegetative objects of the 

Monument. 

VM-1.1.2: Vegetation treatments could be conducted in order to make progress toward 

achieving land health standards. Treatments will include, but will not be limited to, 

seeding, transplanting, watering, seasonal closures, and seasonal use restrictions.

VM-2: Populations of endangered, threatened, and special status plants will be stable 

and/or increasing and suitable habitat is available for future establishment and 

maintenance of the populations.

VM-2.1: Identify and protect occupied and potential habitats for maintenance, restoration, or 

reestablishment of acuña pineapple cactus and other endangered, threatened, or special status 

plants. Maintain the diversity and properly functioning ecological processes of natural plant 

communities that support rare or special status plant species.

VM-2.1.1: Authorized surface-disturbing activities within occupied acuña cactus habitat 

areas will be minimized, mitigated, or avoided. Currently, the only known areas of 

location are within the very southern portion of the SDNM.

VM-2.1.2: Authorized surface-disturbing activities within habitat areas of any 

endangered, threatened, or special status plants will be minimized, mitigated, or avoided 

to ensure stable populations.

VM-3: Noxious and undesirable plant species will not occur on the landscape or, if they 

occur, they will make up a sufficiently small percentage of the vegetative community that 

they do not affect ecological processes.

Objective VM-3.1: Control invasive species using an integrated weed-management 

approach, including prevention, restoration, mechanical, chemical, biological control 

methods, and prescribed fire, where appropriate.

VM-3.1.1: Proposed projects will use practices that minimize the introduction and 

spread of invasive species.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-33 

VM-3.1.2: Priority will be assigned to the control of invasive species that have a 

substantial and apparent impact on native plant communities and wildlife. When 

infestations are identified, they will be evaluated for their potential threat and scheduled 

for removal accordingly.

VM-3.1.3: Monitoring for invasive species will focus on likely vectors of invasion such as 

linear features (roads, canals, railroads, utility corridors, etc.), disturbed areas 

(construction or development areas), and areas where water is available or may pond 

(water-control structures, etc.).

VM-3.1.4: Certified weed-free feed will be required for all equestrian and stock animal 

uses authorized under special recreation permits. The general public will be encouraged 

to provide weed-free feed for their equestrian and stock animals.

VM-4: Protect native plants from collecting and other uses.

VM-4.1: Protect SDNM vegetation by managing collection and uses consistent with the 

Monument proclamation.

VM-4.1.1: Collecting or removing living or dead native vegetation, including plant 

byproducts and woodcutting for commercial and personal uses, will be prohibited within 

the SDNM without written authorization. Examples of authorizations include vegetation 

removal for Native American traditional uses, scientific research, educational uses, 

salvage, or meeting management objectives. Authorizations must be in accordance with 

the Arizona Native Plant Law.

VM-5: Native plants will occur at a natural abundance and distribution.

VM-5.1: Rehabilitate native plant communities after land-disturbing activities, where appropriate. 

Rehabilitation will be designed to achieve vegetative conditions (cover, composition, etc.) 

necessary to stabilize the site.

VM-5.1.1: Rehabilitation practices will be used to stabilize and rehabilitate sites impacted 

from new surface-disturbing activities. Long-term restoration will occur through natural 

processes. In most cases, lands previously disturbed by historical uses will be allowed to 

recover through natural processes. Sites that may be appropriate for rehabilitation 

practices include:

• Recently disturbed sites that may respond quickly to rehabilitation practices, 

including damage caused by wildfire, immigrant traffic, or other illegal activities;

• Severely damaged, rapidly deteriorating, or rapidly expanding sites;

• Placing adjacent resources at risk;

• Prone to invasion by nonnative species;

• Heavily disturbed, such as mining sites;

• Capable of improving habitat for threatened and endangered species;
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2-34 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• Management priorities that require accelerated restoration to meet selected 

management objectives.

VM-5.1.2: Native plants will be used as the first priority for all rehabilitation projects. 

Non-invasive, nonnative plants may be used in limited urgent situations where it may be 

necessary to protect the resources or when taking no action will further degrade the 

resources. In these situations, short-lived species (i.e., weed-free nurse crop species) 

will be preferentially used and will be combined with native species to facilitate the 

establishment of native species.

VM-5.1.3: Rehabilitation and reclamation plans that describe the site restoration goals, 

considering the starting condition of the site, and restoration methods will be required 

for all surface-disturbing activities commensurate with the amount of surface 

disturbance.

VM-5.1.4: Preliminary success criteria for a site will be considered achieved when soil 

conditions are stabilized and approximately 50 percent or more of the plant 

composition and cover are present based on appropriate Ecological Site Descriptions. 

Trees and shrubs will be considered established when they have survived (without 

assistance such as watering) for two consecutive years. Livestock will not be turned out 

on rehabilitated sites until it was determined by an interdisciplinary team that the reestablished forage could sustain livestock grazing.

Administrative Actions

• Seed from regionally native or sterile alien (nonnative) species of grasses and herbaceous 

vegetation will be used in areas where reseeding is necessary following ground disturbance to 

stabilize soils and prevent erosion by both wind and water.

• Prioritize monitoring for invasive species to determine if weeds not immediately being treated 

are becoming a greater threat to the resources of concern.

2.2.7 Visual Resources 

Allocations Summary

The following VRM classes will be allocated for each alternative to support management objectives for 

the various resources, such as designated wilderness, areas with wilderness characteristics, NHT 

segments, and back country recreation settings.

Table 2-3 

VRM Classes

VRM Class BLM Acres Management Action

Class I 157,700 VR-1.1.1

Class II 248,200 VR-1.1.2

Class III 80,500 VR-1.1.3

Class IV 0 VR-1.1.4
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-35 

Goals, Objectives, and Management Actions 

VR-1: Manage public lands that will maintain scenic quality, natural landscapes, undisturbed 

views, and other high-quality visual resources.

VR-1.1: Visual resources will be managed according to the class objectives set in the Visual 

Resource Inventory Handbook H-8410-1 and BLM Guidelines for a Quality Built Environment.

VR-1.1.1: Designated wilderness areas will be allocated as VRM class I (157,700 acres). 

VR-1.1.2: 248,200 acres are allocated as VRM class II.

VR-1.1.3: 80,500 acres are allocated as VRM class III.

VR-1.1.4: Zero (0) acres are allocated as VRM class IV.

VR-1.1.5: All surface-disturbing projects or activities, regardless of size or potential 

impact, will incorporate visual design considerations consistent with the Visual Resource 

Contrast Rating Manual H-8431-1 to meet VRM class objectives for the area. Even 

activities in VRM Class IV will consider designs that help reduce visual contrast between 

a proposed project and landscape settings (color, texture, line, and form). Measures to 

mitigate potential visual impacts could include the use of natural materials, screening, 

painting, project design, location sighting, or restoration.

VR-1.1.6: Restoration projects will ensure that visual impacts are minimized in the short 

term (5 years) and that VRM objectives in the project area are met in the long term (life 

of the project) when such projects are a) considered essential for public safety, achieving 

desired future conditions, or reducing hazardous fuels buildups, and b) expected to be 

visually prominent.

VR-1.1.7: The viewshed of the Juan Bautista de Anza NHT, Highway 238, and Interstate 

8 would be managed in a manner that exceeds or maintains the VRM objectives. VRM 

and scenic management prescriptions would be applied for their preservation and 

enhancement. The viewshed of the Anza NHT would be managed to maintain the 

historic landscape setting. See also Section 2.2.18. 

VR-2: Maintain night sky condition.

VM-2.1: Manage activities and projects on public lands that will contribute light or air pollution 

to maintain or improve dark, clear skies for stargazing and nighttime military training.

VR-2.1.1: Permanent outdoor lighting will not be allowed in VRM Class I areas.

VR-2.1.2: Development on public lands will be required to use dark-sky-friendly 

technologies in VRM Classes I through IV to provide opportunities for stargazers and 

amateur astronomers and to maintain conditions favorable to nighttime military 

operations. Measures may include, but will not be limited to directing all light 
2. Approved Resource Management Plan

2-36 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

downward, using shielded lights, using only the minimum illumination necessary, using 

lamp types such as sodium lamps (less prone to atmospheric scattering), using circuit 

timers, using motion sensors, or using flight proximity detectors.

VR-3: The natural splendor for which the SDNM was designated shall be maintained.

VR-3.1: Visual resources of the SDNM will be managed to preserve or to retain the existing 

character of the landscape. The visual character of management activities will be managed 

according to the objectives described above and in VRM Handbook H-8410-1.

VR-3.1.1: Public lands within the Monument will be allocated to the VRM classes as 

depicted in Map 3, Visual Resource Management to ensure visual landscapes as 

described in the Monument proclamation are protected. See also RM-1.2.3. 

Administrative Actions

• Incorporate visual design considerations for all surface-disturbing projects or activities, 

regardless of size or potential impact, consistent with the Visual Resource Contrast Rating 

Manual H-8431-1 to meet VRM class objectives for the area.

• Participate in regional planning initiatives and comment on proposals for development on 

adjacent non-federal lands to encourage future development to be compatible with VRM 

designations and protection of dark night skies on public lands.

• Develop user facilities (trailheads, non-motorized trails, campgrounds, roads, utilities, 

interpretive areas) to take advantage of views of scenic and historic landscapes in such a way 

that visual quality is protected.

2.2.8 Water Resources 

Goals, Objectives, and Management Actions

WR-1: Ensure physical and legal availability of water in sufficient quantity and quality to 

meet the management needs of the Sonoran Desert National Monument.

WR-1.1: New water source developments will not adversely affect existing sources and uses. 

This will be determined prior to any new development activity, including issuance of landowner’s 

permission to drill required by the Arizona Department of Water Resources.

WR-1.1.1: All proposed new water uses and developments will be assessed to 

determine whether they will adversely affect springs, streams, tinajas, or seeps; decrease 

water availability at existing wells; or conflict with other resource management goals.

WR-1.1.2: Groundwater exploration and development will be restricted and damage 

mitigated in areas with ecological or cultural resources that are sensitive to disturbance.

WR-1.1.3: The only proposed water developments allowed will be those that are 

consistent with the proclamation.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-39 

WR-1.1.4: Groundwater exploration and development will be restricted and damage 

mitigated in areas with ecological or cultural resources that are sensitive to disturbance.

WR-1.2: The BLM will take necessary steps to acquire all water rights allowed by law to 

properly manage the SDNM, and to protect the natural resources of the SDNM and objects of 

the SDNM. Inventory work and at least one-half of water-rights filings will be completed within 

5 years of issuing this plan.

WR-1.2.1: Water will be inventoried and appropriate applications and claims filed for 

state water rights for all water sources and beneficial uses on public land in accordance 

with state law to ensure water availability to meet management needs and protect 

ecological functions.

WR-1.2.2: Inventory all water sources, including groundwater sources, within the three 

wilderness areas of the SDNM for quantification and assertion of federal reserved water 

rights, and provide notice of these rights to Arizona Department of Water Resources.

WR-2: All surface water in the SDNM will meet appropriate state water quality standards 

or will have state-approved plans for water quality improvement.

WR-2.1: Impaired water quality in stretches of the Gila River that run through the Planning Area 

will be improved or corrected within 5 years; the BLM will commit to the state schedule for 

water quality improvement.

WR-2.1.3: No new water development that will divert water out of SDNM will be 

allowed.

Administrative Actions

• Identify, evaluate, and assign priorities for restoring disturbed areas considering the potential for 

soil erosion and loss, damage to cultural or ecologically sensitive sites, and effects on water 

quality and quantity.

• Evaluate proposals for groundwater withdrawals on BLM-administered lands within an AMA in 

coordination with the Arizona Department of Water Resources and incorporate any 

restrictions or guidelines for the AMA.

• Work with county, state, and federal agencies to monitor surface and groundwater quantity and 

quality on public lands. Correct problems as they are identified.

• Coordinate with the AGFD to be sure all wells within the BGR are registered with Arizona 

Department of Water Resources. Inventory all water sources on BGR and enter them into the 

BLM water data management system. Coordinate water rights filings for water sources with the 

US Air Force and AGFD (applicable to the three relinquished BGR parcels).

• Work with county, state, and federal agencies and other partners to evaluate the quantity of 

groundwater available and predict the effect of future potential water withdrawals on the ability 

to provide adequate water availability for natural resource and multiple use goals within SDNM.

• Begin a dialogue with appropriate State of Arizona policy, legal, and water resources staff on the 

development of a cooperative agreement on the protection of water resources on SDNM.
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2-40 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

2.2.9 Wilderness Characteristics 

Allocations Summary

Under the approved management action, approximately 107,800 acres of BLM lands in SDNM will be 

managed to protect wilderness characteristic (WC-1.1.1). 

Goals, Objectives, and Management Actions

WC-1: Areas to be managed to protect wilderness characteristics should retain a high 

degree of naturalness where the imprint of humans on lands and resources is substantially 

unnoticeable. Furthermore, outstanding opportunities for solitude and primitive or 

unconfined types of recreation should be maintained or enhanced.

WC-1.1: Manage lands managed to protect wilderness characteristics to maintain a high degree 

of naturalness and offer outstanding opportunities for solitude or primitive, unconfined 

recreation by reducing impacts on these values while considering manageability and competing 

resource demands.

WC-1.1.1: 107,800 acres of public lands will be designated as lands managed to protect 

wilderness characteristics (Map 4, Lands Managed to Protect Wilderness 

Characteristics). 

WC-1.1.2: Private or state in-holdings, including subsurface, will be acquired when 

available from willing owners. See also LR-2.1.5. 

WC-1.1.3: Lands managed to protect wilderness characteristics will be managed as 

avoidance areas for minor and nonlinear land use authorizations (LUAs) with the 

exception for law enforcement, public safety or administrative purposes as approved by 

the authorized officer.

WC-1.1.4: Any potential new minor and nonlinear LUAs, and maintenance of existing 

facilities, will be evaluated and allowed under the following circumstances:

• When compatible with maintaining or enhancing wilderness characteristics or 

when needed to protect, manage, or improve natural or heritage resource 

conditions;

• When meeting law enforcement, agency, or public safety needs;

• When reconstruction, replacement, or major maintenance of existing facilities, 

or development of new projects, is consistent with this plan's objectives, VRM 

classes, and desired recreation, social, and managerial settings;

• When the project site can be restored to its previous condition after the 

project is completed.

WC-1.1.5: Existing facilities and projects no longer active will be removed if practicable.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-43 

WC-1.1.6: Sites and locales with human-caused disturbances will be rehabilitated if such 

actions maintain or enhance wilderness characteristics and natural/heritage resources, 

are practicable, meet management prescriptions and SOPs, and are addressed in a 

restoration plan.

WC-1.1.7: Measurement standards will be developed and adopted for: 

• Trail conditions,

• Facility conditions,

• Visitor-to-visitor encounters,

• Vegetation changes,

• Vegetation and wildlife desired resource conditions, and

• Other approved activities

WC-1.1.8: Lands managed to protect wilderness characteristics will be designated 

limited OHV use areas.

WC-1.1.9: Public or commercial collection of plant and mineral materials will be 

prohibited.

WC-1.1.10: Wheeled game carriers will be allowed.

WC-1.1.11: Closed vehicle routes could be converted, where appropriate, for use as 

equestrian and/or hiking trails.

WC-1.1.12: New equestrian and/or hiking trails will be established when consistent with 

this plan's objectives; desired recreation, social, and managerial settings; and VRM 

classes.

WC-1.1.13: Special recreation permits, commercial recreation and vending operations, 

guided hunts, and concession leases will be allowed when they are landscape- and 

wilderness-character resource-dependent activities consistent with this plan's objectives; 

desired recreation, social, and managerial settings; and VRM classes. See also RM-2.1.10

Administrative Actions

• Employ the lowest-impact methods for development that can be reasonably applied:

• Use design methods that cause the facility to blend into the landscape, including consideration of 

site selection and use of a low profile;

• Design facilities that will require minimal maintenance;

• Use best management practices to minimize surface and vegetation disturbance during 

construction; 

• Decrease the visual effect of existing facilities during reconstruction, replacement, or major 

maintenance; 

• Establish baseline standards to protect proper levels of recreational and landscape disturbance 

to protect wilderness characteristics.
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2-44 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

2.2.10 Wildland Fire Management 

Goals, Objectives, and Management Actions

WF-1: Ensure firefighter and public safety is the highest priority in every fire or fuels 

management activity.

WF-1.1: Set priorities among protecting residences, community infrastructure, and other 

manmade property and improvements.

WF-1.1.1: Management Response to unplanned ignitions will be full suppression for all 

lands within the SDNM. 

WF-1.1.2: Implement a hazardous fuels reduction program that creates conditions 

conducive for safe and effective firefighting. 

WF-1.1.3: With community partners, implement the Pinal County Community Wildfire 

Protection Plans. 

WF-2: Wildland fuels are managed to protect wildland-urban interface (WUI) areas and 

meet resource management objectives.

WF-2.1: Fuels within WUI areas are proactively managed to improve the protection of life and 

property.

WF-2.1.1: Hazardous fuels around communities at risk and utility infrastructure (e.g., 

roads, power lines, and communication sites) within the WUI are reduced using 

mechanical, chemical, biological, and prescribed fire treatments, where applicable. 

WF-2.1.2: Identify, prioritize, and implement WUI fuels treatments in the Planning Area. 

Fuels treatments to reduce wildland fire risk will focus on the WUI areas identified in

the Planning Area Community Wildfire Protection Plans and those that are developed 

collaboratively with SDNM partners. 

WF-2.1.3: In consultation with cultural resource specialists, develop fuels treatments to 

protect cultural resources that are susceptible to damage from wildfire. 

WF-2.1.4: Analyze and implement where needed, hazardous fuels reduction in and 

around recreation sites to improve public and firefighter safety.

WF-3: Limit the extent of wildfires and the impact of fire suppression efforts on wildlife, 

plant communities, and natural and cultural features.

WF-3.1: Reduce the frequency of human-caused wildland fires and minimize the total number of 

acres burned within the SDNM. 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-45 

WF-3.1.1: Management Response to unplanned ignitions will be full suppression for all 

lands within the SDNM. 

WF-3.1.2: Identify, prioritize, and implement non-WUI fuels treatments within the 

SDNM. Prioritization will be given to fuels treatments that maintain areas in Fire Regime 

Condition Class 1 or have the ability to improve areas characterized as Fire Regime 

Condition Class II and III. 

WF-3.1.3: Implement fuels treatments, suppression activities, and prevention activities 

that target reducing the size and number of human-caused wildland fires.

WF-3.2: For all fire management activities (wildfire suppression, prescribed fire, and 

mechanical, chemical, and biological vegetation treatments), a focus will be to maintain or 

improve habitat for federally threatened, endangered, proposed, and candidate (federally 

protected) species.

WF-3.2.1: Identify and implement post-fire stabilization and rehabilitation actions in 

burned areas to restore a functional landscape to meet the resource management 

objectives. 

WF-3.2.2: Use prescribed fire, chemical, mechanical, manual, and biological treatments in 

areas of the SDNM that fall in Fire Regimes 2 and 4 to reduce shrub and tree 

components. 

WF-3.2.3: Protect known locations of habitat occupied by federally listed species. 

Minimum impact suppression tactics (MIST) will be followed in all areas with known 

federally protected species or habitat.

WF-3.2.4: Construction of permanent roads, primitive roads, or trails will not be 

permitted during fire-suppression activities in habitat occupied by federally protected 

species. Construction of temporary roads, primitive roads, or trails is approved only if 

necessary for safety or the protection of property or resources, including federally 

protected species habitat. Temporary road construction should be coordinated with the 

USFWS, through the resource advisor.

WF-3.2.5: Crew camps, equipment staging areas, and aircraft landing and fueling areas 

should be located outside of listed species habitats, preferably in locations that have 

previously been disturbed. If camps must be located in listed species habitat, the 

resource advisor will be consulted to ensure habitat damage and other effects to listed 

species are minimized and documented. The resource advisor should also consider the 

potential for indirect effects to listed species or their habitat from the siting of camps 

and staging areas (e.g., if an area is within the water flow pattern, there may be indirect 

effects to aquatic habitat or species located off-site).

WF-3.2.6: Use of motorized vehicles during prescribed burns or other fuels treatment 

activities in suitable or occupied listed species habitat will be restricted, to the extent 
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2-46 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

feasible, to existing roads, trails, washes, and temporary fuel breaks or site-access 

routes. If off-road travel is deemed necessary, any cross-country travel paths will be 

surveyed prior to use and will be closed and rehabilitated after the prescribed burn or 

fuels treatment project is completed.

WF-3.2.7: Use of motorized vehicles during rehabilitation or restoration activities in 

suitable or occupied listed species habitat will be restricted, to the extent feasible, to 

existing roads, trails, or washes, and to temporary access roads or fuel breaks created 

to enable the fire suppression, prescribed burn, or fuels treatment activities to occur. If 

off-road travel is deemed necessary, any cross-country travel paths will be surveyed 

prior to use and will be closed and rehabilitated after rehabilitation or restoration 

activities are completed.

WF-3.2.8: All temporary roads, vehicle tracks, skid trails, and OHV trails resulting from 

fire suppression and the proposed fire management activities will be rehabilitated (water 

bars, etc.), and will be closed or made impassible for future use.

WF-3.2.9: When using water from sources supporting federally protected species, care 

must be taken to ensure adverse impacts on these species are minimized or prevented. 

Unused water from fire abatement activities will not be dumped in sites occupied by 

federally protected aquatic species to avoid introducing nonnative species, diseases, or 

parasites. 

WF-3.2.10: If water is drafted from a stock tank or other body of water for fire 

suppression, it will not be refilled with water from another tank, lakes, or other water 

sources that may support nonnative fishes, bullfrogs, crayfish, or salamanders.

WF-3.2.11: Use of containment systems for portable pumps to avoid fuel spills in 

riparian or aquatic systems will be required.

WF-3.2.12: For priority fire/fuels management areas (e.g., WUI) with federally protected 

species or designated critical habitat downstream, BLM biologists and other resource 

specialists, as appropriate, in coordination with USFWS and AGFD, will determine:

• The number of acres and the number of projects or phases of projects to occur 

within one watershed per year.

• Where livestock grazing occurs in areas that have been burned, specialists will

determine when grazing can be resumed. Such deferments from grazing will only 

occur when necessary to protect streams from increased ash or sediment flow 

into streams.

WF-3.2.13: To the extent possible, maintain habitat features necessary to support 

breeding populations of the pygmy-owl within their historic range and review ongoing

fire management activities for effects on essential habitat features needed by cactus 

ferruginous pygmy-owls. Modify activities, where necessary, to sustain the overall 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-47 

suitability of the habitat for the owls. Priority will be given to activities in or near 

occupied or recently (within the last 10 years) occupied habitat.

WF-3.2.14: Minimize use of chainsaws or bulldozers to construct fire lines through 

occupied or found to be occupied listed species habitat except where necessary to 

reduce the overall acreage of occupied habitat or other important habitat areas that will

otherwise be burned.

WF-3.2.15: Avoid developing access roads that will result in fragmentation or a 

reduction in habitat quality for listed species. Close and rehabilitate all roads that were 

necessary for project implementation (see RR-5). 

WF-3.2.16: During fire management activities in habitat occupied by federally protected 

plant species, no staging of equipment or personnel will be permitted within 100 meters 

of identified individuals or populations, nor will off-road vehicles be allowed within the 

100-meter buffer area, unless necessary for firefighter or public safety or the protection 

of property, improvements, or other resources (see FS-7). Primary threats to many of 

these plant species are trampling or crushing from personnel and vehicles.

WF-3.2.17: No prescribed burning will be implemented within 100 meters of identified 

locations or unsurveyed suitable habitat for federally protected and sensitive plant 

populations unless specifically designed to maintain or improve the existing population.

WF-3.2.18: Prior to implementing any fuels treatment activities (prescribed fire, 

vegetation treatments), pre-project surveys will be conducted for paniculate agaves and 

saguaros that may be directly affected by fuels management activities.

WF-3.2.19: Protect long-nosed bat forage plants—saguaros and high concentrations of 

agaves—from wildfire and fire-suppression activities, and from modification by fuels 

treatment activities (prescribed fire, vegetation treatments), to the greatest extent 

possible. Agave concentrations are contiguous stands or concentrations of more than 

20 plants per acre. Avoid driving over plants, piling slash on top of plants, and burning 

on or near plants. Staging areas for fire crews or helicopters will be located in disturbed 

sites, if possible.

WF-3.2.20: No seeding/planting of nonnative plants will occur in any wildfire 

rehabilitation site or fuels treatment site with paniculate agaves or saguaros.

WF-3.3: For all fire management activities efforts will be made to reduce the impacts on natural 

and cultural resources.

WF-3.3.1: Conduct all fire management activities within the SDNM, and along the Anza 

NHT in a manner that will avoid or minimize degradation of these areas and values that 

have been identified in the respective legislative designations for these areas. 
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2-48 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

WF-3.3.2: Ensure fire management activities in wilderness areas are compatible with the 

applicable wilderness plan.

Administrative Actions

• Designate resource advisors from the BLM to coordinate natural resource concerns, including 

federally protected species. They will also serve as a field contact representative responsible for 

coordination with the USFWS. Duties will include identifying protective measures endorsed by 

the field office manager, and delivering these measures to the incident commander; surveying 

prospective campsites, aircraft landing, and fueling sites; and performing other duties necessary 

to ensure adverse effects on federally protected species and their habitats are minimized. Onthe-ground monitors will be designated and used when fire-suppression activities occur within 

identified occupied or suitable habitat for federally protected species.

• Brief and educate all fire management personnel (firefighters and support personnel) about listed 

species and the importance of minimizing impacts on individuals and their habitats. All personnel 

will be informed of the conservation measures designed to minimize or eliminate take of the 

species present by resource advisors or designated supervisors. This information is best 

identified in the incident objectives.

• Evaluate the effectiveness of fire-suppression activities and conservation measures for federally 

protected species after a fire, when practical, and share the results with the USFWS and AGFD. 

Revise future fire-suppression plans and tactical applications as needed and as practical.

• Involve biologists in the development of prescribed burn plans and vegetation treatment plans to 

minimize effects on federally protected species and their habitats within, adjacent to, and 

downstream of proposed project sites. Biologists will consider the protection of seasonal and 

spatial needs of federally protected species (e.g., avoiding or protecting important use areas or 

structures and maintaining adequate patches of key habitat components) during project planning 

and implementation.

• Require pre-project surveys and clearances (biological evaluations/assessments) for federally 

protected species for each project site before implementation. All applicable conservation 

measures will be applied to areas with unsurveyed suitable habitat for federally protected 

species, until a survey has been conducted by qualified personnel to clear the area for the 

treatment activity.

• Minimize short-term and long-term impacts when rehabilitating important areas for federally 

listed species that have been damaged by fire or other fuels treatments. Someone who is familiar 

with fire impacts and the needs of the affected species will contribute to rehabilitation plan 

development. Appropriate timing of rehabilitation and spatial needs of federally listed species 

will be addressed in rehabilitation plans.

• Monitor burned area emergency rehabilitation activities and long-term restoration activities, and 

share the results with the USFWS and AGFD. Section 7 consultation for burned area emergency 

rehabilitation activities will be conducted independently, if necessary.

• Develop public education plans that discourage or restrict fires and fire-prone recreation uses 

during high-fire-risk periods. Develop brochures, signs, and other interpretive materials to 

educate recreationists about the ecological role of fires, and the potential dangers of accidental 

fires.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-49 

• Develop mitigation plans in coordination with the USFWS for fuels treatment projects 

(prescribed fire; vegetation treatments) that may adversely affect cactus ferruginous pygmy-owls 

or their habitat. Mitigation plans for prescribed fire shall limit to the extent practicable the 

possibility that fire will spread to riparian habitats. Mitigation plans will be approved by the 

USFWS.

• Instruct all crew bosses fire personnel (wildfire suppression, wildland fire use, prescribed fire, 

and vegetation treatments) in the identification of agave and columnar cacti and the importance 

of their protection.

• Map known locations and potential habitat for plant populations to facilitate planning for 

wildland fire use, prescribed fires, and vegetation treatments, and to ensure protection of these 

populations during fire suppression.

• Coordinate with USFWS to delineate buffer areas around plant populations prior to prescribed 

fire and vegetation treatment activities. The BLM will coordinate with USFWS during any 

emergency response and wildland fire use activities to ensure protection of plant populations 

from fire and fire-suppression activities.

• Develop a mitigation plan in coordination with the USFWS for prescribed fires or fuels 

management projects (mechanical, chemical, biological treatments) within 1⁄2 mile of bat roosts 

or in areas that support paniculate agaves or saguaros. The mitigation plan will ensure that 

effects on bat roosts and forage plants are minimized and will include monitoring of effects on 

forage plants. The plan will be approved by the USFWS.

• Examine concentrations of agaves (including shindagger [A. schottii]) within each proposed fuels 

treatment area, and blackline or otherwise protect from treatments any significant 

concentrations of agaves that appear to be amidst fuel loads that could result in mortality 

greater than 20 percent (greater than 50 percent for A. schottii). The BLM personnel should use 

their best judgment, based on biological and fire expertise, to determine which significant agave 

stands are prone to mortality greater than 20 percent (greater than 50 percent for A. schottii). 

• Support and cooperate in the investigations of agave relationships to livestock grazing, and of 

the effects of prescribed fire on paniculate agaves.

• Coordinate invasive-species management, monitoring, control, and education efforts with the 

appropriate federal, state, county, municipal, and tribal agencies and other partners. Efforts will

be coordinated through the Borderlands Cooperative Weed Management Area and other 

similar groups.

• Conduct floristic surveys and monitoring for populations of sensitive, candidate threatened, 

endangered, rare, or unique species (applicable to the three relinquished BGR parcels).

• Update the existing botanical resources database and vegetation map (applicable to the three 

relinquished BGR parcels).

• Adhere to the intent of the Arizona Native Plant Law, ESA, and all other applicable laws and 

regulations to protect vegetative resources.

• Focus invasive species monitoring efforts on likely vectors of invasion such as linear features 

(roads, canals, railroads, utility corridors, etc.), disturbed areas (construction or development 

areas), and areas where water is available or may pond (water control structures, etc.).

• Control of noxious weeds required by law will not be subject to a benefit-cost analysis; 

however, the most economical and efficient method will be analyzed along with the safety of the 

proposed kind of treatment.

• Follow the Phoenix District Reclamation Plan for rehabilitation procedures. 
2. Approved Resource Management Plan

2-50 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• (Environmental Assessments) Conduct an environmental analysis at the time of the 

pretreatment survey. An interdisciplinary team will review any analysis needed on individual 

projects or group of projects.

• (Cost-Benefit Analysis) Subject land treatments proposed for livestock forage improvement to a 

cost-benefit analysis to ensure total benefits gained will equal or exceed the cost of the 

treatments. 

• Develop effective interagency and community interactions and cooperation to meet wildland-fire 

and fuel-management strategies and landscape-scale resource condition objectives across 

administrative boundaries.

• Include wildfire hazard mitigation strategies in the Fire Management Plan for the Planning Area 

by identifying appropriate areas for prescribed fire and mechanical, manual, biological, or 

chemical treatments to reduce hazardous fuels to minimize the adverse effects of 

uncharacteristic wildland fires and meet resource objectives. The plan will also identify areas for 

exclusion from fire (through fire suppression), chemical, mechanical, and biological treatments.

• Protect human life (both firefighters’ and the public) and communities, property, and the natural 

resources on which they depend. Firefighter and public safety are the highest priority in all fire 

management activities.

• Improve public awareness of the role of fire in ecosystem restoration, wildfire risk and 

mitigation strategies, and wildfire safe community, preparedness, and response planning.

2.2.11 Wildlife and Special Status Species 

Goals, Objectives, and Management Actions

WL-1: (Lesser Long Nosed Bat): Maintain, protect, and make accessible to lesser longnosed bats, roosts and contiguous foraging habitat.

WL-1.1: Protect known roosting habitat for lesser long-nosed bat on public land and maintain 

contiguous foraging habitat at its current range and distribution.

WL-1.1.1: Mitigation could occur for facility development, including those for recreation 

purposes, within 4 miles of known lesser long-nosed bat roosts as long as the action 

does not impact roost sites. In the event that mitigation is not sufficient, the 

development will be relocated at least 4 miles from roost sites.

WL-1.1.2: Activities with the potential to impact lesser long-nosed bats or their habitats 

will be evaluated on a case-by-case basis and impacts will be mitigated or avoided.

WL-1.1.3: Medium to high density columnar cactus habitat (≥ 30 saguaro/acre) within 40 

miles of known roost sites will be maintained and/or restored.

WL-1.1.4: Protect long-nosed bat forage plants-saguaros and high concentrations of 

agaves-from modification by treatment activities (prescribed fire, vegetation treatments), 

to the greatest extent possible. Saguaros and high concentrations of agaves will be 

excluded from treatments. Agave concentrations are contiguous stands or 

concentrations of more than 20 plants per acre.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-51 

WL-2: (Sonoran Pronghorn): Protect and enhance Sonoran pronghorn habitat and manage 

to support suitable habitat so it is available for future occupancy based on recovery goals.

WL-2.1: Manage to maintain or improve habitat for future populations of experimental/ 

nonessential Sonoran pronghorn within the SDNM.

WL-2.1.1: Sonoran pronghorn habitat within the SDNM will be managed to achieve 

recovery goals. 

WL-2.1.2: The Monument will be identified as a potential reintroduction site for an 

experimental/nonessential population of Sonoran pronghorn. See Map 5, Sonoran 

Pronghorn Classification Areas.

WL-3: (Sonoran Desert Tortoise): Manage tortoise habitat so habitats provide sufficient 

forage and shelter for a viable population.

WL-3.1: Achieve the following objectives in desert tortoise habitat, as identified by habitat 

category: 

• Category I - Maintain stable, viable populations and protect existing tortoise habitat 

values and increase populations where possible.

• Category II - Maintain stable, viable populations and halt further declines in tortoise 

habitat values. 

• Category III - Limit tortoise habitat and population declines to the extent possible 

through mitigation. 

• Retain natural shelter sites (boulders or caliche caves or similar features used by 

tortoises for sheltering) in Category I and II desert tortoise habitats, and

• Maintain or restore a diverse mixture of forage species and adequate cover of 

vegetation for desert tortoise habitat as recommended by the 1988 Rangewide Plan 

(BLM 1988b).

WL-3.1.1: Public lands currently allocated for management as Category I, II, and III Sonoran 

Desert tortoise habitat, as described in Table 2-4, Sonoran Desert Tortoise Habitat by 

Category, will be managed according to the objectives listed above.

Table 2-4 

Sonoran Desert Tortoise Habitat by 

Category

Category

Sonoran Desert Tortoise 

Habitat (BLM Acres)

I 166,000

II 124,700

III 3,500
2. Approved Resource Management Plan

2-52 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

The criteria for Category I tortoise habitat areas are as follows:

• Habitat areas are essential to the maintenance of large, viable populations;

• Conflicts are resolvable;

• Populations are medium- to high-density or low-density contiguous with 

medium- or high-density;

• Populations are increasing, stable, or decreasing. 

The criteria for Category II tortoise habitat areas are as follows:

• Habitat areas may be essential to maintenance of viable populations;

• Most conflicts are resolvable;

• Populations are medium- to high-density or low-density contiguous with 

medium- or high-density;

• Populations are stable or decreasing. 

The criteria for Category III tortoise habitat areas are as follows:

• Habitat areas are not essential to maintenance of viable populations;

• Most conflicts are not resolvable;

• Populations are low- to medium-density and not contiguous with medium- or 

high-density;

• Populations are stable or decreasing.

WL-3.1.2: Habitat-management categories and boundaries may be revised as new 

population information becomes available. The criteria that will be used in revising 

categories and boundaries are those in the 1988 Rangewide Plan (BLM 1988b).

WL-3.1.3: No net loss will occur in the quality or quantity of Category I and II desert 

tortoise habitat. Mitigation for impacts will be permissible to achieve no net loss in 

quantity or quality of desert tortoise habitat in accordance with the Desert Tortoise 

Rangewide Plan and other applicable policy guidance.

WL-3.1.4: In Category I and II tortoise habitats, all motorized competitive speed races 

will be prohibited from March 31 through October 15. All other use requests during 

this time will be reviewed on a case-by-case basis and could be denied or adjusted to 

avoid conflict with tortoise activity and habitat. Mitigation for conflicts will be 

permissible to achieve no net loss in quantity or quality of desert tortoise habitat. 

Development and uses must be compatible with wildlife objectives.

WL-4: (Cactus Ferruginous Pygmy Owls): Maintain or restore habitats to support cactus 

ferruginous pygmy owls.

WL-4.1: Protect cactus ferruginous pygmy-owls from disturbance during the breeding and 

nesting seasons. Maintain or improve a complex, multi-layered vegetative structure provided by 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-55 

perennial plants within the range of the cactus ferruginous pygmy-owl. Structure should consist 

of approximately 30 percent each of grasses and forbs, shrubs, and trees as dictated by site 

conditions. Maintain current or improve interconnected habitat patches of sufficient quality 

(diversity, density, and structure) and quantity (≥ 3 acres) to support cactus ferruginous pygmyowls. Maintain sufficient vegetation between patches to allow for dispersal. 

WL-4.1.1: Activities will be managed to protect, maintain, or improve occupied, or 

found to be occupied, cactus ferruginous pygmy-owl habitat.

WL-4.1.2: Surface-disturbing activities authorized or permitted by the BLM will be 

avoided within 1⁄2 mile of a known active cactus ferruginous pygmy-owl nest site from 

February 1 through July 31. All actions will be mitigated and managed to ensure 

consistency with management objectives, with an emphasis to maintain available habitat. 

Development planned to occur within 100 meters/330 feet of any known or found to be 

occupied cactus ferruginous pygmy-owl nest site will be evaluated on a site-specific 

basis, but significant modification of habitat within these areas should be avoided year 

round. Uses will be concentrated in less sensitive resource areas or in areas already 

disturbed.

WL-4.1.3: Use of motorized vehicles on routes within washes in the SDNM that are 

occupied or found to be occupied by cactus ferruginous pygmy-owls will be prohibited 

from April 15 to August 31 to protect pygmy-owls during their nesting seasons. 

Exceptions to the prohibitions will be authorized only for personnel engaged in 

constructing, maintaining, or repairing facilities; conducting research or surveys; for 

authorized law-enforcement or fire-suppression emergencies.

WL-4.1.4: Treatment of desert wash habitat, Sonoran desert/desert scrub, or mesquiteinvaded grasslands under 4,000 feet in elevation that may support nesting cactus 

ferruginous pygmy-owls will only occur during the non-nesting season of August 1 to 

January 31, unless pre-project surveys indicate the area does not support pygmy-owls or 

mitigation plans approved by the USFWS have alleviated negative consequences.

WL-5: (General Bats): Manage to encourage the natural abundance and diversity of bat 

habitats so they are stable or increasing.

WL-5.1: Protect bat roosts associated with natural caves and abandoned mine features that are 

necessary to provide roosting locations for existing bat populations and opportunities for 

expansion.

WL-5.1.1: In cooperation with AGFD, important bat roosts will be protected where 

practicable and mitigation measures will be used to resolve potential resource conflicts.

WL-5.1.2: New water developments will be configured to allow for safe use by bats.
2. Approved Resource Management Plan

2-56 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

WL-5.1.3: Hazardous mine features occupied by bats will be remediated in coordination 

with the AGFD by installing bat gates or, if other roosts are readily available, by 

backfilling.

WL-6: (Migratory Birds): Manage migratory bird habitats so they are maintained and/or 

improving to meet the needs of migratory birds in general.

WL-6.1: Avoid take of migratory birds (adults, nests, eggs, and chicks) to comply with the 

Migratory Bird Treaty Act, Executive Order 13186, and the BLM-USFWS Memorandum of 

Understanding.

WL-6.1.1: Applications for activities on public lands will evaluate the effects of the BLM’s 

actions on migratory birds during the NEPA process, if any, and identify where take 

reasonably attributable to agency actions may have a measurable negative effect on 

migratory bird populations, focusing first on species of concern, priority habitats, and 

key risk factors. In such situations, the BLM will implement approaches lessening such 

take. 

WL-7: (Raptor Habitats): Manage raptor habitats so they are maintained and/or improving 

to meet the needs of raptors in general.

WL-7.1: Manage activities that could reduce raptor nest production.

WL-7.1.1: Authorized developments, uses, and activities within 1⁄4 mile of known 

occupied raptor nests will be avoided, relocated, or seasonally limited.

WL-7.1.2: Authorized developments, uses, and activities within 1⁄2 mile of communal 

raptor nesting areas will be avoided.

WL-8: (Bighorn Sheep/Big Game): Manage bighorn sheep and other big game habitats so 

they are maintained and/or improving.

WL-8.1: Provide water for bighorn sheep and protect them from communicable diseases.

WL-8.1.1: Additional waters may be installed in high elevations of bighorn sheep habitat 

to improve habitat suitability.

WL-8.1.2: Domestic sheep and goat use will be prohibited on all allotments within nine 

miles of bighorn sheep habitat.

WL-9: (Wildlife Movement Corridors): Manage wildlife movement corridors so they 

contain ample habitat to assist wildlife in moving from one area to another in a relatively 

safe manner.

WL-9.1: Manage wildlife movement corridors in a manner that will assist wildlife in safe passage 

from one area to another.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-57 

WL-9.1.1: All new roads and primitive roads where average speeds may be greater than 

45 miles per hour, or highways crossing public land, will be designed to facilitate 

movement of wildlife to reduce mortality of wildlife from vehicle collisions.

WL-9.1.2: Maintenance or expansion of existing roads will incorporate measures to 

maintain or restore wildlife habitat connectivity and will incorporate, where appropriate, 

wildlife underpasses or overpasses.

WL-9.1.3: Existing and/or designated roads and/or trails will be subject to seasonal 

closures if conflicts with wildlife cannot be mitigated.

WL-9.1.4: New surface disturbance within 100 meters of the edge of large washes 

located in the desert washes vegetative community (those depicted on US Geological 

Survey 1:24,000 maps) will be mitigated as needed to protect the integrity of washes as 

corridors.

WL-9.1.5: Density of roads, primitive roads, and motorized trails will be limited to 3 

miles of road per section or less within the wildlife movement corridors in accordance 

with the Habitat Guidelines for Mule Deer (Mule Deer Working Group 2006).

WL-9.1.6: Treatments of invasive plant species will be allowed.

WL-10: (Priority Species Management Guidance): Manage wildlife habitats so they are 

maintained and/or improved.

WL-10.1: Manage habitats for wildlife species so they are maintained and/or improving to meet 

the needs of wildlife in general.

WL-10.1.1: Reintroductions, transplants, and supplemental stockings of native wildlife 

populations (as defined in BLM Manual 1745 or subsequent guidance) could occur in 

their current or historic range with collaboration between the AGFD and USFWS.

WL-10.1.2: The release of rehabilitated or displaced wildlife on public lands will be 

allowed, which could involve constructing artificial habitats where appropriate, for 

species that are compatible with other resource-management and use objectives.

WL-10.1.3: Acquisitions of non-federal lands and disposals of federal land that have, or 

potentially have, priority species or habitats will include the potential to: 

• Enhance the conservation and management of threatened, endangered or special 

status species habitat, riparian habitat, desert tortoise habitat, key big game 

habitat; 

• Improve the overall manageability of wildlife habitat;

• Improve habitat connectivity in and around the wildlife habitat areas and wildlife 

movement corridors.

• The BLM will not transfer (dispose of) from federal ownership the following: 
2. Approved Resource Management Plan

2-58 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• Designated or proposed critical habitat for a listed or proposed threatened, 

endangered or special status species;

• Lands supporting listed or proposed threatened or endangered species if such 

transfer will be inconsistent with recovery needs and objectives or conservation 

measures or will likely affect the recovery of the listed or proposed species, and 

lands supporting federal candidate species if such action will contribute to the 

need to list the species as threatened or endangered. 

• Retain Category I and II tortoise habitat unless it is in the general public interest 

to dispose of them, and losses in habitat quality and quantity can be mitigated. 

Exceptions to the above could occur if:

• The recipient of the lands agrees to protect the species or critical habitat under 

the ESA, such as disposal to a non-federal governmental agency or private 

organization; 

• If conservation of the habitat will still be achieved and ensured; or 

• In a land exchange if a net gain in the value of species habitat or protection is 

achieved.

WL 10.1.4: Treatments of invasive species will be allowed to benefit visual resources or 

wildlife habitat unless otherwise restricted.

WL-10.1.5: Designated roads, primitive roads, and/or trails within washes will be closed 

from April 15-August 31 to address the forage, shelter, breeding, and thermal cover 

protection provided by washes as a component of wildlife habitat. This management 

action will apply to routes 8013, 8018 and 8019.

WL-11: (Wildlife Waters): Provide wildlife with safe, usable, year-round access to water.

WL-11.1: Increase, improve or maintain the density and distribution of wildlife waters on public 

lands throughout the Planning Area to sustain and enhance wildlife populations across their 

range. 

WL-11.1.1: Maintain and re-develop existing and develop additional wildlife waters in 

cooperation with AGFD. Increase the density and/or restore the distribution of wildlife 

waters throughout the Planning Area to sustain and enhance native wildlife populations 

across their range. All existing wildlife waters will be maintained or improved as needed 

to maintain the presence of perennial water for native wildlife. New wildlife waters will

be built when needed to maintain, restore, or enhance native wildlife population 

numbers or distributions.

WL-11.1.2: In the event that range water developments are no longer needed for 

livestock use, the BLM, in consultation with the AGFD, will determine if the water

development will be beneficial to meet wildlife distribution goals or other objectives. If it 

is deemed that the water development is not useful for such purposes, the water source 

will be removed.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-59 

WL-12: (Nonnative Invasive Animal Species Guidance): Manage to reduce or eliminate 

undesirable nonnative animal species so they do not occur in the Decision Areas or so their 

presence does not adversely affect ecological processes.

WL-12.1: Limit the distribution and abundance of invasive animal species to current levels. 

Reduce the impact of invasive species on native ecosystems from current levels.

WL-12.1.1: Non-native, invasive animal species will not be allowed except for biological 

controls for which peer-reviewed scientific literature states that the introduced species 

will have no detrimental effects to any native wildlife or plant species in the Planning 

Area. 

Administrative Actions

• Work in partnership with AGFD to manage wildlife and wildlife habitat to achieve AGFD’s 

wildlife population goals. Cooperatively develop habitat management plans to meet Sikes Act 

requirements and address site-specific habitat management objectives consistent with other 

natural resource objectives. Wildlife management activities administered by AGFD include, but 

are not limited to, surveys, telemetry, transplants, water management, vegetation restoration 

and enhancement, invasive species control, research, law enforcement activities, setting and 

administering hunting permits, and other wildlife or habitat management projects as identified in 

the Master MOU between the Arizona Game and Fish Commission and the BLM.

• Work in partnership with AGFD to manage wildlife and wildlife habitat to achieve AGFD’s 

wildlife population goals and other activities as identified in the Master MOU between AGFD 

and the BLM.

• Work with other land owners within wildlife movement corridors to maintain or improve 

vegetative connectivity and prevent actions that will obstruct the movement of wildlife through 

the areas. Fences may be removed when no longer needed or other options meet the need and 

as funding and opportunities allow.

• Emphasize maintaining and restoring ecological connectivity through land acquisition, 

partnerships with local landowners, and vegetation resources. If opportunities for wildlife 

movement cannot be adequately maintained, then mitigation to maintain isolated wildlife 

populations will be adopted.

• Eliminate unauthorized grazing by cattle, sheep, goats, burros, and other non-native animals and 

construct wildlife-passable fences where unauthorized use is a problem. Fences may be removed 

when no longer needed or other options meet the need and as funding and opportunities allow.

• Manage livestock waters to provide safe, usable water for wildlife, where possible. As funding 

and opportunities permit, existing facilities will be modified for safe wildlife use. The aboveground height of livestock troughs and tanks will not exceed 20 inches. The BLM will install 

wildlife escape ladders in each facility and provide ramps for small bird and mammal access as 

funding permits. Storage tanks will be configured to reduce evaporation and prevent wildlife 

from drowning.

• Contact the appropriate USFWS biologist as soon as practical once a wildfire starts and a 

determination is made that a federally protected species or its habitat could be affected by the 

fire or by fire-suppression activities.
2. Approved Resource Management Plan

2-60 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• Work with USFWS during the emergency response to apply the appropriate conservation 

measures.

• If conservation measures cannot be applied during the suppression activities, consult with the 

responding agency after the fact on any suppression actions that may have affected the federally 

protected species or its habitat.

• If conservation measures are adhered to, report to the USFWS on the actions taken and the 

effects on the species and its habitat following the fire; no further consultation on that incident 

will be required.

Threatened and Endangered Species

• Initiate formal Section 7 consultation with USFWS on all actions that may affect federal listed 

threatened and endangered species or critical habitat as required by the Endangered Species Act 

of 1973, as amended.

• Adhere to conservation measures for threatened and endangered species outlined in the ESA 

and BLM Manual 6840. The ESA provides for the protection of threatened and endangered and 

proposed threatened and endangered species of plants and animals. Specifications of the ESA 

pertain to both the Lower Sonoran and SDNM Decision Areas. BLM Manual 6840 prescribes 

conservation measures for threatened and endangered species, including conservation measures 

for fire management activities and species-specific conservation measures. To a large extent, 

these measures have been built in to the RMP alternatives evaluated in this FEIS.

• Monitor existing populations and inventory for additional populations of threatened and 

endangered species as funding permits.

Wildlife Species

• Maintain and develop a proactive public education program on the desert tortoise and its habitat 

requirements, including participation in public events with tortoise habitat information.

• Continue to work with and support other agencies and public entities in desert tortoise 

conservation. 

• Coordinate invasive animal species control and education efforts with AGFD.

• Design fences to reduce adverse impacts on wildlife movement. Specifications in BLM Manual 

1741 and in local BLM directives will be used. The BLM will consult with AGFD on the design 

and location of new fences. Where existing fences in wildlife habitat do not meet BLM 

specifications, they will be modified according to BLM Manual 1741 when they are scheduled for 

replacement or major maintenance as funding permits. Special consideration will be given to 

placement, type, and installation of fences in Category I and II desert tortoise habitat to facilitate 

desert tortoise movement, dispersal, and protection. Before installing facilities, the BLM will

conduct a site evaluation for special status and state-protected animals and will develop 

mitigation to protect these species and their habitats. Such mitigation might include project 

relocation, redesign, and abandonment.

• Inventory for federally listed, proposed, and candidate species. Implement monitoring programs 

on known populations of listed, proposed, and candidate species and other special status species 

(as defined in BLM Manual 6840) to document population levels and status. Where monitoring 

finds threats to these populations, actions will be taken to protect the species and their habitats.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-61 

• Standardize desert tortoise management throughout its habitat. Management will be consistent 

with the following documents:

o Desert Tortoise Habitat Management on Public Lands: A Range wide Plan (BLM 1988b).

o Strategy for Desert Tortoise Habitat Management on Public Lands in Arizona, IM No. 

AZ-91-16 (BLM 1990a).

o Strategy for Desert Tortoise Habitat Management on Public Lands in Arizona: New 

Guidance on Compensation for the Desert Tortoise, IM No. AZ-92-46 (BLM 1992).

o Instructional Memorandum No. 94-018 Ephemeral Grazing Policy in Desert Tortoise 

Habitat Supplemental Guidance for Desert Tortoise Compensation, IM No. AZ-99-008 

(BLM 1999).

o Desert Tortoise Mitigation Policy, IM No. AZ-2009-010 (BLM 2009)

• Establish additional desert tortoise study plot(s) or other monitoring methods, as necessary. 

Read plots at five-year intervals, or as necessary, as funding permits.

2.2.12 Lands and Realty

Goals, Objectives, and Management Actions

LR-1: Manage lands and realty actions to effectively support public needs and resource 

management objectives.

LR-1.1: The entire SDNM is an exclusion area for utility-scale renewable energy development

and communication sites Land Use Authorizations. 

LR-1.2 (Major Linear LUAs): Authorize major linear LUAs in locations that utilize designated 

multiuse utility corridors effectively.

LR-1.2.1: No existing or future multiuse utility corridors will be designated within the 

Monument. 

LR-1.3 (Minor Linear and Nonlinear LUAs): Authorize minor linear and nonlinear LUAs in 

locations that minimize resource impacts, are compatible with multiple use objectives, and do 

not compromise the existing rights of current holders.

LR-1.3.1: Proposed minor linear and nonlinear LUAs will be prohibited in SDNM, a 

designated LUA Exclusion Area, unless they allow for:

• Access to private property in holdings when there is no other reasonable access 

alternative across non-federal land,

• Authorized emergency, public safety and administrative uses, and

• Uses that will further enhance the goals and objectives of the allocation, as 

permitted by the authorizing official.
2. Approved Resource Management Plan

2-62 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

LR-2: Manage land tenure to meet natural resource management objectives, community 

needs, and to promote agency efficiency.

LR-2.1: Determine interests in lands for consolidation, retention, disposal, and acquisition. 

Evaluate land tenure actions in accordance with the criteria established in the Arizona Land 

Tenure Adjustment Strategy.

LR-2.1.1: All 486,400 acres of public land will be retained.

LR-2.1.2 The BLM will continue to eliminate split estate situations by acquiring nonfederal subsurface estates that lies beneath federal lands when there is a willing seller.

LR-2.1.3: The BLM will continue to eliminate split estate situations by disposing of 

federal subsurface estates when there are no known mineral values

LR-2.1.4: The BLM will not dispose of any subsurface mineral estates that lie under BLM 

managed surface estate.

LR-2.1.5: The BLM will seek land owners who are willing to sell private land interests 

within the Monument and proceed with acquiring these inholdings (surface and 

subsurface) as funding opportunities arise. See also WC-1.1.2.

LR-2.1.6: The BLM will seek landowners who are willing to sell partial private land 

interests (i.e., “easements”) within the Monument in cases where the BLM cannot 

acquire fee-simple ownership in land interests, and proceed with securing the easements 

as funding opportunities arise.

LR-2.1.7: No lands are designated as being suitable for disposal within the Monument. 

Exchanges for lands within the Monument for other private lands within the 

Monument’s boundaries will be permitted if they further improve the management of 

Monument objects and present no net loss to existing objects that will be impacted by 

the exchange.

Administrative Actions

• Continue to coordinate with the Maricopa County Department of Transportation, the Maricopa 

Association of Governments, Pinal County, the Arizona Department of Transportation, and the 

Federal Highway Administration for transportation activities that may affect public lands.

• Cooperate with the Western Utility Group and other industry groups to facilitate the exchange 

of information and coordinate planning efforts between federal agencies and utility providers 

through the western US.

• Promptly communicate new designations for land use, resource protection, safety, and security 

to the public and other agencies, as necessary.

• Activities to maintain existing facilities will be evaluated on a case-by-case basis, and if SDNM 

resources can be protected, approved.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-63 

2.2.13 Livestock Grazing 

Allocations Summary

Table 2-5 

Livestock Grazing Allocations for the SDNM

Allocation BLM Acres Management Action

Total Acres within SDNM 486,400

Unavailable Acres from Proclamation 1 155,900

Unavailable Acres from Area A2 78,000

Unavailable Acres3 from RMP Decisions 95,2903 GR-2.1.3

Total Unavailable Acres 329,190

Total Available Acres (see summary breakdown for each 

allotment in Table 2-7 below) 157,210

Total AUMs4 3,318 GR-2.1.4 1 Relinquished lands in BGR south of I-8. 2 In accordance with the Monument Proclamation the allotments or portions of allotments south of I-8, within 

SDNM, were made unavailable to livestock grazing when the permits expired.

3 Acreage includes approximately 8,500 acres (or 3.4%) of the area north of I-8 determined to be unavailable for 

livestock grazing through the Compatibility Analysis, plus 36,300 acres connected to or surrounding those acres, 

using a combination of fencing and topographic barriers and wilderness boundaries. Additionally, The Conley 

Allotment within the Monument boundaries will be unavailable for livestock grazing. These areas encompass a total 

of 95,290 acres that will be unavailable for livestock grazing. 

4 AUMs shown are prorated and reduced by 7,884 from the total permitted use due to the allotment closures 

south of I-8. AUMs were further prorated using current data compared to forage allocations suggested in the 

Lower Gila South RMP Resource Protection Alternative.

Table 2-6 

Livestock Grazing Acres1 for the SDNM North of Interstate 8 Only

Allotments Available (BLM Acres)

Unavailable (BLM Acres)2

(GR-2.1.3)

Arnold 1,610 0

Beloat 33,600 0

Big Horn 75,230 16,970

Conley 0 77,710

Hazen 31,930 0

Lower Vekol 14,800 610

Total 157,170 95,290 1 These numbers reflect the numbers from the Land Health Evaluations and are 

estimated. The acreage totals shown in Table 2-5, Livestock Grazing Allocations for 

the SDNM, were rounded up for the land use plan-level decisions. 2

 Unavailable numbers come from the acres determined to be incompatible with 

Monument objects from the Compatibility Analysis, Proposed Compatibility Analysis: 
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2-64 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Table 2-6

Livestock Grazing Acres1 for the SDNM North of Interstate 8 Only

Livestock Grazing on the Sonoran Desert National Monument, and the acreage

determined to become unavailable due to the projected boundary closures of the area 

based on fencing and topographic boundaries.

Goals, Objectives, and Management Actions

GR-1: Manage livestock grazing in the SDNM to provide for multiple uses while 

maintaining healthy ecosystems.

GR-1.1: Livestock grazing use and associated practices will be managed in a manner consistent 

with other multiple use needs and other desired resource condition objectives to ensure that 

the health of rangeland resources and ecosystems are maintained or improved. Management will

achieve, or make significant progress toward achieving, Land Health Standards and produce a 

wide range of public values such as wildlife habitat, livestock forage, recreation 

opportunities, clean water, and functional watersheds.

General Management Actions

GR-1.1.1: All existing water developments will be evaluated, and modified as necessary, 

to provide the maximum benefit and minimum impact to priority wildlife and special 

status species.

GR-1.1.2: Grazing management on allotments categorized as “Maintain” and “Improve” 

may include rest rotation, deferred rotation, deferred, seasonal, short duration or other 

management practices to be implemented where needs are identified through 

monitoring. On “Custodial” allotments, grazing systems or season of use will be 

coordinated with the permittee, Arizona State Land Department, and/or Natural 

Resources Conservation Service.

GR-1.1.3: If grazing availability or classification differs for the Big Horn, Conley, Lower 

Vekol, Hazen, Beloat, and Arnold allotments outside SDNM versus inside the 

Monument boundaries, fencing or other control mechanisms will be installed to allow 

for management of Monument lands separately from the rest of the allotment before 

grazing could continue.

GR-1.1.4: Allotments may be classified as ephemeral in accordance with the Special 

Ephemeral Rule published December 7, 1968 through Rangeland Health Assessments 

during the permit renewal process. The BLM has established criteria and SOPs (see 

Appendix D, Best Management Practices and Standard Operating Procedures) based 

upon the Special Rule through which allotments can be classified and managed as 

ephemeral. These criteria include:

• Rangelands are within the hot desert biome;
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-65 

• Average annual precipitation is less than eight inches;

• Rangelands produce less than 25 pounds per acre of desirable perennial forage;

• The vegetative community is composed of less than five-percent desirable 

forage species;

• The rangelands are generally below 3,500 feet in elevation;

• Annual production is highly unpredictable and forage availability is of a short

duration; 

• Usable forage production depends on abundant moisture and other favorable 

climatic conditions; and

• Rangelands lack potential to improve existing ecological status and produce a 

dependable supply of forage through intensive rangeland management practices.

GR-1.1.5: The Arizona Guidelines for Grazing Administration, as approved in the 

Arizona Standards for Rangeland Health and Guidelines for Grazing Administration 

(1997), will apply where appropriate to all livestock grazing activities (Appendix B, 

Guidelines for Grazing). 

GR-1.1.6: Land not allocated for livestock use will remain unallocated for this use and its 

forage and other vegetation will be reserved for wildlife and non-consumptive uses. 

GR-1.1.7: If an evaluation of land health standards identifies an allotment where land 

health standards cannot be achieved under any level or management of livestock use and 

where current grazing use has been identified as the causal factor, then decisions 

identifying those areas as available for livestock grazing will be revisited.

GR-1.1.8: Should a livestock grazing permit be relinquished, the allotment and associated 

resources, and public uses will be evaluated to determine the appropriate allocation of 

available forage.

GR-1.1.9: One-time travel off of designated routes may be approved with written 

authorization from the authorized officer to access sick or injured livestock. See also 

TM-4.2.3.

GR-1.1.10: Construction of new livestock waters in Category I and Category II desert 

tortoise habitat and in bighorn sheep habitat will be addressed on a case-by-case basis.

GR-1.1.11: Range improvement permits and cooperative range improvement 

agreements shall specify the standards, design, construction and maintenance criteria for 

the range improvements and other additional conditions and stipulations or 

modifications deemed necessary. The extent, location and timing of such actions will be 

based on allotment-specific management objectives adopted through the evaluation 

process, interdisciplinary development and analysis of proposed actions, and funding.
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2-66 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

GR-2: Manage livestock grazing in the SDNM Decision Area to provide for multiple uses 

while maintaining healthy ecosystems and protecting the Monument’s biological and 

cultural resources.

GR-2.1: Public lands in SDNM north of I-8 available to livestock use will be managed to achieve 

or make significant progress toward achieving Land Health Standards to ensure that the health 

of the biological resources are maintained or improved. Livestock grazing use and associated 

practices will be managed in a manner consistent with other multiple use needs and other 

desired resource condition objectives to ensure that the health of rangeland resources and 

ecosystems are maintained or improved.

GR-2.1.1: Pursuant to the Monument Proclamation, the grazing permits for the 

allotments south of I-8, within SDNM, were not renewed upon expiration. The public 

lands South of I-8, within SDNM, will remain unavailable for livestock use and the 

grazing preferences, attached to the base properties, for permitted use on the 

allotments will be cancelled. Forage previously allocated for livestock grazing (7,255 

AUMs) will be available for other resource uses such as wildlife habitat, watershed 

values, recreation, etc.

GR-2.1.2: Domestic goats or sheep will not be permitted.

GR-2.1.3: 95,290 acres will become unavailable to livestock grazing use within allotments 

north of I-8 through a combination of fencing and natural barriers. Allotment-specific 

unavailable acres (rounded to nearest 10 acres): 

• 16,970 acres within the Big Horn allotment 

• 77,710 acres within the Conley allotment, and

• 610 acres within the Lower Vekol allotment.

(Total of 8,500 incompatible acres, 36,300 pasture fencing acres and remaining 50,490 

acres in Conley allotment). See Map 6, Livestock Grazing.

GR-2.1.4: 3,114 AUMs are permitted in the SDNM.

Administrative Actions

• Existing range developments in areas not allocated for livestock use may be removed if not 

necessary for management of other resources.

• Develop a monitoring plan for allotments as needed to determine and track ecological condition 

and trend.

• Livestock management changes may be made based on assessment, inventory, or monitoring 

data. Develop and implement a monitoring plan on the SDNM to determine and track ecological 

condition and trend. The plan will include:
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-69 

Monitoring previously established study sites in allotments that will continue to be grazed, and 

establishing new key areas as needed. Data will be used to support grazing management decisions.

Monitoring previously-established study sites in the allotments not to be grazed and establishing new 

sites as needed. Location of sites should be established based on resource management goals. Data will 

be used for comparison to grazed areas and historical data to track resource responses to management 

changes. 

• Establish frequency and intensity of monitoring effort.

• BLM will develop a monitoring program based upon the land health evaluation methodology to 

determine any effects on Monument objects, not limited to livestock use.

2.2.14 Minerals Management 

Allocations Summary

As stated in the Proclamation, the SDNM is withdrawn from all mineral entry and closed to all leasable 

and salable minerals.

Administrative Actions

• Recognize the superior right to explore for and mine mineral resources on those split estate lands 

where the BLM manages the surface and the subsurface estate is owned by the State of Arizona or 

private entities. Develop an MOU with the state to establish procedures to protect SDNM 

resources from the effects of exploration and mining on SDNM to the greatest extent possible.

2.2.15 Recreation Management 

Allocations Summary

Table 2-7 

Recreation Allocations

Recreation Management Area / Zone BLM Acres

Management 

Action

Sonoran Desert ERMA 486,400 (100%) RM-1.2

Desert Back Country RMZ 433,600 RM-1.2.4

Juan Bautista de Anza NHT RMZ 52,800 RM-1.2.1

Undesignated Lands 0

Total Acres 486,400 (100%)

Goals, Objectives, and Management Actions 

RM-1: Establish Extensive Recreation Management Areas (ERMAs) and associated zones 

where specific management considerations are necessary to address recreation use, 
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2-70 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

demand, or recreation program investments commensurate with the management of 

other resources and resource uses while sustaining the principal recreation activities and 

associated qualities and conditions of the area.

RM-1.1 (General Recreation): Through the life of the plan, 90% of sampled visitors report 

satisfaction with their recreation experience. 

General Recreation Management Actions and Allowable Uses

RM-1.1.1: All proposed management actions will conform to the settings described for 

each recreation allocation. 

Camping, Parking, Facilities, and Other

RM-1.1.2: Camping on all lands open to the public will be allowed in accordance with 43 

CFR 8365 unless otherwise closed.

RM-1.1.3: Except where otherwise specified, camping will continue to be limited to no 

more than a period of 14 days within any period of 28 consecutive days and, after the 

14th day of occupation, the camper will be required to move outside of at least a 25-

mile radius of the previous location until the 29th day since initial occupation.

RM-1.1.4: Vehicle-based camping and parking along roads and primitive roads will be 

strongly encouraged through visitor information, education, and signing to assist visitors 

in selecting and using existing camp and parking sites that show clear evidence of prior 

use. Existing and suitable sites is indicated or evidenced by the following: vehicle access 

to the site, lack of vegetation, bare mineral soils, and other dispersed campsite amenities 

such as fire rings. Existing vehicle parking and camping sites must be large enough to 

accommodate the group size without increasing the disturbed area. See also CH-1.1.3, 

SL-2.1.3, and TM-6.1.1. 

RM-1.1.5: Camping facilities and length-of-stay limits will be developed and adjusted to 

sustain the prescribed settings and attain the desired objectives of the recreation 

management area(s) (RMA) or undesignated lands for dispersed camping or managed 

camping areas.

RM-1.1.6: Long term visitor areas will not be designated.

Geocaching Activities

RM-1.1.7: The placement of geocaches is prohibited in archaeological and raptor nesting 

sites. Virtual caches may be allowed within archaeological sites with prior written 

authorization from the authorized officer.

RM-1.2. (SDNM ERMA): Provide modest facilities, educational opportunities, and visitor 

information to the extent that 90% of sampled visitors report satisfaction with their recreation 

experience. The Sonoran Desert National Monument ERMA will be designated (486,400 acres) 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-71 

to provide for recreation opportunities and outcomes that derive from the objects for which 

the National Monument was designated.

RM-1.2.1 (Juan Bautista de Anza NHT Recreation Management Zone [RMZ]): To 

provide recreation and educational opportunities directed at visitors seeking to 

discover, tour, and learn about the Juan Bautista de Anza National Historic Trail (NHT), 

Arizona history, and natural history of the Sonoran Desert.

RM-1.2.1.1: The Juan Bautista de Anza NHT (Anza) RMZ will be designated within 

the SDNM ERMA (approximately 52,800 acres).

RM-1.2.1.2: The physical, social and administrative settings for the Anza RMZ will be 

managed for 72% Front Country, 28% Back Country and <1% Passage. See 

Appendix C, Recreation Setting and Worksheets, for definitions. 

RM-1.2.1.3: physical, social and administrative settings for the Anza RMZ will be 

managed for 31% Front Country, 68% Back Country and <1% Passage.

RM-1.2.1.4: Physical, social and administrative settings for the Anza RMZ will be 

managed for 45% Front Country, 55% Back Country and <1% Passage

RM-1.2.1.5: The motor vehicle travel system will consist primarily of primitive roads 

maintained at levels 1-3 with up to 20% maintained at level 5 to provide two-wheeldrive passenger car access to public use cultural sites, day use areas and camping 

facilities.

RM-1.2.2: In the Anza RMZ, vehicle-based camping (including RVs) will be allowed at 

designated sites only. A maximum of 100 sites could be designated over the life of the 

plan, subject to site-specific analysis and monitoring. Cross country travel to access 

campsites will be prohibited. Specific sites identified as open and/or available for camping 

will be periodically reviewed and modified based on public demand and resource 

protection needs within the SDNM.

RM-1.2.3: The zone will be managed mostly for VRM Class II with small portions of 

Class III near high use recreation areas (see Map 3, Visual Resource Management). See 

also VR-3.1.1. 

RM-1.2.4. (Desert Back Country RMZ): To provide recreation opportunities for visitors 

seeking a remote, undeveloped, back country experience with resource-dependent 

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

RM-1.2.4.1: The Desert Back Country RMZ will be designated (433,600 acres; see 

Map 7, Recreation Management). 

RM-1.2.4.2: The physical, social and administrative settings for the Desert Back 

Country RMZ will be managed for 12% Front Country, 88% Back Country and <1% 

Passage. 
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2-72 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

RM-1.2.4.3: The motor vehicle travel system will consist primarily of primitive roads 

maintained at levels 1-3 with up to 5% maintained at level 5 to provide two-wheeldrive passenger car access to public use cultural sites, day use areas and camping 

facilities.

RM-1.2.4.4: In the Desert Back Country RMZ, dispersed vehicle-based camping 

(including RVs) will be allowed on existing or suitable sites as defined in RM-3.1.9. 

Cross country travel to access campsites will be prohibited. Over the life of the 

plan, designated sites will be established as the need arises to ensure the protection 

of Monument objects and other sensitive resources.

RM-2.1.2.5: The zone will be managed shown on Map 7, Recreation Management. 

RM-2.1. (SDNM General Recreation): Manage for recreation opportunities that derive from the 

vast, undeveloped, and remote character of the SDNM landscape, providing for the minimum of 

visitor assistance necessary to ensure visitor health and safety to the extent that 90% of sampled 

visitors report satisfaction with their recreation experience.

RM-2.1.1: The Sand Tanks Mountains area of the SDNM commonly known as “Area A” 

will be designated as a Special Management Area. Access to the area will continue to 

require the Barry M. Goldwater Air Force Range entry and public safety permit (for the 

BLM, these are managed as Individual Special Recreation Permits).

RM-2.1.2: Motorized and mechanized use will be limited to areas within designated 

roads, primitive roads, and trails with reasonable use of the shoulder and immediate 

roadside allowing for vehicle passage, emergency stopping, or parking unless otherwise 

posted.

RM-2.1.3: Collection of native vegetation as firewood will be prohibited in Front 

Country and Passage settings. Visitors will be encouraged to bring firewood for

campfires from sources outside the Monument. The burning of pallets, crates, and 

similar materials will be prohibited to prevent the accumulation of nails and staples at 

campsites. 

RM-2.1.4: Visitor and management infrastructure will be constructed and maintained to 

accommodate visitation in balance with protection of Monument objects; will be modest 

in scope and scale; and will be designed to blend with the dominant features of the 

landscape.

RM-2.1.5: Visitor and management infrastructure will be placed on non-Monument lands, 

where possible.

RM-2.1.6: Activities, vehicles, and group sizes will be limited to designated sites and 

lengths of stay; types and speeds; and numbers as deemed necessary to protect 

Monument objects.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-75 

RM-2.1.7: The designated motorized travel system will consist primarily of existing 

vehicle routes; however, construction of short segments of new vehicle routes to 

provide experience opportunities consistent with the outcome objective(s) of 

management zones will be allowed.

RM-2.1.8: Standards for the management of recreation impacts on objects of the SDNM 

will be established and monitored by the limits of acceptable change (LAC) method.

Recreational Target Shooting

RM-2.1.9: Recreational target shooting will be allowed on National Monument lands 

except as specifically restricted in this land use plan or prohibited by federal and state 

law. This activity may be or may become restricted or prohibited in specific areas where 

public safety and resource conflicts exist or become identified if active management and 

cooperative efforts fail to meet resource and safety goals, including the need to protect 

Monument objects. For the protection of Monument objects, to avoid undue 

degradation of natural resources, and for the safety of visitors, supplementary rules will 

be developed to allow enforcement of actions as described in the Administrative 

Actions following the Recreation Section of this plan. Shooters are encouraged to follow 

best management practices as outlined in Appendix D, Best Management Practices and 

Standard Operating Procedures. 

Special Recreation Permits (SRPs)

RM-2.1.10: At the discretion of the authorized officer, SRPs will be authorized on a 

case-by-case basis as outlined in 43 CFR 2930.5; in subsequent policies and guidance 

(See Appendix D, Best Management Practices and Standard Operating Procedures); 

and in the decisions below. See also CH-2.1.5, WC-1.1.13. 

RM-2.1.11: Organized groups numbering greater than 25 participants will require a 

special recreation permit. See also CH-2.1.6.

RM-2.1.12: To ensure protection of Monument objects, permits will not be issued for 

organized groups of more than 200 participants at one site.

RM-2.1.13: Competitive motor sports will not be allowed in the SDNM. 

RM-2.1.14: All commercial, other competitive, and vendor activities will be permitted on 

a case-by-case basis if Monument objects are protected.

RM-2.1.15: Certified weed-free feed will be required for all equestrian and stock animal 

uses authorized under SRPs.

Paintball Activities

RM-2.1.16: Paintball activities will be prohibited.
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2-76 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Administrative Actions

• Coordinate with partners and nearby land owners and managers to develop joint campgrounds 

on and off public lands to provide for public camping needs.

• Develop partnerships and volunteer opportunities with local clubs, organizations, and 

communities to maintain and monitor routes, recreation sites, and other areas.

• Develop brochures, maps, and information sheets to disseminate recreation use information to 

the public. 

• Coordinate with adjoining landowners; Maricopa, Pima, and Pinal counties; and local 

communities to enhance visitor and resident safety, improve resource protection, and manage 

recreation use and access that is compatible with protecting resources.

• Plan, designate, and develop recreation areas, routes, trails, tours, and management strategies 

through interdisciplinary plans with community and user input. Project plans will establish use 

indicators and standards for monitoring and evaluation. All development must be compatible 

with ERMA and RMZs, VRM classes, and resource management objectives. Areas may be 

developed as needed for the following purposes:

o Protecting resources,

o Improving visitor safety, and 

o Maintaining desired recreational setting and experiences.

• The BLM will collaborate with the Wildlife and Hunting Heritage Conservation Council, other 

interested stakeholders, and the public to implement management of recreational target 

shooting in the future.

• Coordinate with partners and nearby land owners/managers to develop regional shooting ranges 

outside the SDNM boundaries to support concentrated recreational target-shooting activities.

• Coordinate with interested shooting enthusiasts to develop partnerships for educating the 

shooting public in appropriate recreational and shooting behaviors and ethics.

• Work collaboratively with adjoining landowners, local communities, and interested individuals 

and organizations to incorporate the allowable uses and desired outcomes of this land use plan 

into comprehensive, activity-level recreation planning for the SDNM. Such activity-level planning 

and related site-specific projects will be designed to protect Monument objects, resources and 

visitor safety while providing desired recreation experiences and settings. For example, the BLM 

may consider recreational target shooting with further travel management planning (e.g. locating 

roads, trails and facilities that support motorized and non-motorized travel in the SDNM) hiking 

trails and trailheads, or other visitor facilities. Additional planning will include appropriate NEPA 

analysis to address potential site specific impacts.

• Develop educational materials and signage to inform the public about how to conduct target 

shooting activities in ways that avoid impacts on natural resources and monument objects. 

These materials will also educate visitors about the laws concerning littering, unnecessary 

damage to natural resources, “‘Leave No Trace!” principles, and Arizona Cactus and native plant 

laws as they apply. These materials will be developed and installed or distributed to the public as 

soon as possible.

• Dedicate sufficient law enforcement to the National Monument to ensure continued illegal 

conduct will cease and Monument objects will be protected. This will be particularly important 

until users become accustomed to the new rules created by this RMP and until the partnerships 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-77 

described above are able to assist with management of recreational target shooting on the 

Monument. 

• Prepare supplementary rules, closure or restriction orders, and arrange for enforcement of the 

rules of conduct applicable to public lands in order to minimize any adverse impacts of 

recreational shooting. The monument will remain open to recreational target shooting. 

• Prepare supplementary rules in order to provide BLM Law Enforcement full authority to enforce 

certain restrictions on the monument with regard to target shooting pursuant to the BLM’s

authority under 43 CFR 8365.1-6 (including appropriate environmental analysis in compliance 

with NEPA). For example, a future supplementary rule could include, although not be limited to, 

the following:

(a) Only retrievable, freestanding paper targets or targets commercially manufactured for 

the specific purpose of target shooting are allowed.

(b) Shooting glass objects, electronic items and waste, and items that may contain 

hazardous materials (i.e. paint, spray paint, gasoline, Freon, propane, etc.) is prohibited.

(c) Depositing or shooting appliances, furniture, electronic gear, toys, trash, household or 

construction products/refuse, or other debris determined to be garbage, refuse or 

waste by law enforcement or other authorized officers is prohibited.

(d) Attaching or placing targets on or in front of plants, rocks, or solid objects, signs and 

public infrastructure is prohibited.

(e) Shooting, injuring, defacing, harming or destroying plants, signs, outbuildings, public 

property, or other objects on federal lands that are for the public's enjoyment is 

prohibited.

(f) Shooting across or along any numbered BLM road, primitive road, vehicle route or trail, 

or within any BLM-designated recreation site, facility, trailhead, parking or staging area is 

prohibited.

(g) Persons engaged in target shooting shall pick up and remove shell casings, brass, targets, 

shrapnel, clay pigeon fragments, and all other debris resulting from target shooting 

activities.

(h) Discharge of a firearm is prohibited from 30 minutes after sunset to 30 minutes before 

sunrise.

(i) Using bullets to detonate explosives or an explosive device is prohibited.

• Patrol and monitor recreational target shooting sites. Monitoring will include a range of 

possibilities from regular periodic visits to take pictures and document visible changes, to 

repeated measurement of site characteristics including vegetation, soils, barren areas, trash, or 

other characteristics as appropriate. BLM will collaborate with interested publics to develop 

monitoring standards and methodologies for recreation activities on the Monument that address 

protection of Monument objects. Monitoring of activities such as recreational target shooting, 

camping, motorized recreation, visitation in wilderness areas, and others, will be conducted to 

ensure future protection of Monument objects and to inform appropriate changes in Monument 

management. 

• Exercise authority pursuant to 43 CFR. 8364.1 (including appropriate environmental analysis in 

compliance with NEPA) to close areas or restrict recreational target shooting in order to 

protect persons, property, and public lands and resources.
2. Approved Resource Management Plan

2-78 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• As set forth in the BLM’s regulations at 43 CFR Subpart 8365, the rules of conduct applicable to 

the public lands apply in the SDNM. Violation of these regulations will result in penalties as set 

forth in 43 CFR 8360.0-7.

2.2.16 Travel Management 

Allocations Summary

Table 2-8 

Off-Highway Vehicle Area Designations (BLM Acres)

Allocation Acres Management Action

Open 0 TM-1.1

Closed 157,700 TM-1.2.1

Limited to Designated Routes 328,700 TM-1.3.1

Total 486,400

Goals, Objectives, and Management Actions

TM-1: All public land will be classified as open, closed or limited per 43 CFR 8342.1. See 

Map 8, Travel Management. 

TM-1.1: No areas within the SDNM will be allocated open (zero acres).

TM-1.2: Close areas of the SDNM to motorized-vehicle activities for the purposes of protecting 

Monument objects and resources; and meeting associated conservation, restoration, and public 

safety goals over the lifetime of the plan.

TM-1.2.1: Approximately 157,700 acres of designated wilderness will remain closed to 

motorized use.

TM-1.3: Limit motorized vehicle use in SDNM to designated roads or primitive roads to 

minimize impacts on Monument objects; other resources; and to reduce or eliminate 

resource, visitor, and behavior-based conflicts over the lifetime of the plan.

TM-1.3.1: Approximately 328,700 acres will be limited to designated roads, primitive 

roads and trails. All other vehicles (e.g., bicycles, stock drawn carts/wagons, and other 

devices for conveyance) will be limited to primitive roads designated as open for such 

use.

TM-1.3.2: Motorized vehicles will be required to be “street legal” (licensed and 

registered), display a valid Arizona OHV sticker, be compliant with current or future 

state, county or local licensing, certification or authorization requirements, and be 

operated by licensed drivers.

TM-1.3.3: Restrictions from other resource section management actions will apply 

including, WL-1.1. 4. 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-81 

TM-2: Public use, resource management, and regulatory needs are met by development of 

a travel management plan and implementation of a travel management system (see 

Appendix E, SDNM Travel Management Plan, and Map 9, SDNM Route Designations.).

TM-2.1: Delineate areas where community interests or a manageable geographic boundary 

exists and address landscape issues in a programmatic manner.

TM-3: Protect Monument objects from human impacts associated with motorized and 

non-motorized travel within the SDNM.

TM-3.1: Manage areas for resource protection, conservation, restoration, and public safety using 

the OHV area allocation closed.

TM-3.1.1: Camping will be allowed in closed areas when accessed by non-motorized, 

non-mechanized means. 

TM-3.1.2: The use of wheeled game carriers will be prohibited in wilderness areas. 

Elsewhere, non-motorized, hand-powered, wheeled game carriers will be permitted to 

travel cross-country for the purpose of retrieving downed game. Retrieval of downed 

game by cross-country motor vehicle use is prohibited.

TM-3.2: Manage areas by structuring travel for visitor use and enjoyment, resource 

protection, conservation, and restoration using the OHV area allocation limited over the 

lifetime of the plan.

TM-3.2.1: Camping would be allowed in closed areas when accessed by non-motorized, 

non-mechanized means. 

TM-3.2.2: The use of wheeled game carriers would be prohibited in wilderness areas. 

Elsewhere, non-motorized, hand-powered, wheeled game carriers would be permitted 

to travel cross-country for the purpose of retrieving downed game. Retrieval of downed 

game by cross-country motor vehicle use is prohibited.

TM-3.3: Manage areas by structuring travel for visitor use and enjoyment, resource 

protection, conservation, and restoration using the OHV area allocation limited over the 

lifetime of the plan.

TM-3.3.1: Designated routes within washes are closed from April 15-August 31 to 

address the forage, shelter, breeding, and thermal cover protection provided by washes 

as a component of wildlife habitat. 

TM-4: Provide a comprehensive travel management system that supports protection of 

Monument objects, facilitates resource protection, and provides sustainable public use and 

enjoyment. 

TM-4.1: Pursue and secure legal access when possible over the lifetime of the plan.
2. Approved Resource Management Plan

2-82 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

TM-4.1.1: Legal or permissive access will be secured to all identified access points to 

designated routes within 10 years of final route designation. Identified access points 

including legal descriptions may be found in Appendix F, Possible Easement Locations. 

TM-4.1.2: Access to public lands will be restricted along urban interface as needed to 

protect Monument values and objects or at the request of adjoining land owners.

TM-4.2: Assign BLM road maintenance intensity levels on designated roads as a part of travel 

management planning and make adjustments as needed as maintenance of the travel 

management plans.

TM-4.2.1: Roads and primitive roads could be redeveloped to meet either Level 5 

maintenance intensity (the highest BLM standard) or the Level 3 standard as necessary 

to satisfy Objective 4.2 and prescriptions in TM- 4.2.2 or TM 4.2.3. Level 1 roads are 

primitive and will not be maintained except to correct safety hazards or resource 

problems such as erosion.

TM-4.2.2: Up to 10 percent of designated Monument roads/primitive roads may be 

assigned to Level 5 maintenance standards (passenger-car access) or Level 3 

maintenance standards. Level 5 and 3 maintenance level assignments may be adjusted or 

assigned as necessary to ensure that motorized travel routes: 

• Are compatible with protection of Monument objects and resources; 

• Achieve the Monument’s desired social and managerial recreation settings; 

• Meet established limits of acceptable change indicators and standards; 

• Satisfy biological and ecological land health standards; 

• Protect or mitigate effects on cultural resources; 

• Ensure visitor and agency staff safety; 

• Resolve erosion, air quality, or resource damage issues; 

• Offer sustainable access to popular Monument features, as well as 

recreation and national historic trail attractions; and 

• Meet water quality standards for influenced drainages and watersheds. 

TM-4.2.3: One-time travel off of designated routes may be approved with authorization 

from the authorized officer to access sick or injured livestock. Use of vehicles for 

livestock herding is prohibited. See also GR-1.1.9.

TM-4.3: Minimize the effects of the route system on the Monument and its objects and 

implement mitigation strategies as needed to resolve conflicts.

TM-4.3.1: Mitigation strategies will be identified and required to reduce the effects of 

routes and their use. Examples of typical actions are shown in Appendix H, Route 

Mitigations. 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-85 

TM-5: Manage the travel management system to protect resources and maintain desired 

recreation experiences.

TM-5.1: Determine the compatibility of emerging issues such as new vehicle technology or new 

or proposed recreation uses or use areas such as technical vehicle-use sites or motorcycleobserved trials. Proposals for using new recreation technologies or activities will be evaluated 

and a decision made to proceed or deny the use or proposal as funding and staffing allows.

TM-5.1.1: Travel management assets or their maintenance intensity shall not be changed 

without NEPA and a travel plan amendment. Road maintenance activities can only be 

completed with approval of the authorized BLM officer. This includes all permitted 

activities that use designated routes such as ranching, mining and other authorized 

activities.

TM-5.1.2: Adjustments to the designated route network may be requested by the public 

following the process set forth in Appendix S, Route Evaluation Methodology from the 

Lower Sonoran-SDNM PRMP/FEIS. 

TM-5.1.3: Areas affected by legal off-route travel, such as law enforcement-pursuit and 

wildfire suppression, will be restored within one year of the incident.

TM-5.2: All travel modes and uses on the SDNM travel system must be consistent with the 

travel management plan and Monument objects and resources. The BLM shall respond promptly 

to proposals for additional travel modes and uses (as funding and staffing allows).

TM-5.2.1: New travel technologies and uses will be evaluated on a case-by-case basis 

with community and user input. Compatibility evaluations will be developed as needed 

to ensure protection of Monument objects and resources, provide compatible and 

sustainable experiences based on Monument Objects and resources, and visitor safety. 

The compatibility analysis will establish limits of acceptable change indicators and 

standards. All uses will be compatible with protection of Monument objects, the 

Monument’s social and managerial recreation settings and VRM standards; the 

Monuments biological and ecological land health standards; protection of cultural 

resources; and water quality standards for influenced drainages and watersheds.

TM-6: Protect Monument objects and resources, meet conservation and restoration 

goals, ensure sustainable public use and enjoyment, and satisfy public safety and regulatory 

requirements by developing a travel management plan and implementing a sustainable 

and compatible travel management system.

TM-6.1: Implement a networked system of roads, primitive roads and trails within 1 year of plan 

completion. 

TM-6.1.1: The use of motorized or mechanized vehicles off designated roads or 

primitive roads will be prohibited with the following management restriction:
2. Approved Resource Management Plan

2-86 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• Motorized and mechanized use will be limited to areas within the designated 

route with reasonable use of the shoulder and immediate roadside allowing for 

vehicle passage, emergency stopping, or parking unless otherwise posted 

• Non-motorized, hand-powered wheeled game carriers will be permitted to 

travel cross-country (except in wilderness areas) for the purpose of retrieving 

downed game on public lands. See also CH-1.1.3, SL-2.1.3, and RM-1.1.4.

TM-6.1.2: A travel management plan will be implemented upon plan approval, including 

designating roads, primitive roads and trails that are open, closed or limited by use type 

or time, and allocating maintenance class. See Appendix E, Travel Management Plan.

Administrative Actions

• Develop of standards for monitoring the route system to be compliant with laws, regulations, 

and travel management plan goals and objectives

• Establish agreements with local interest groups and communities for long-term route 

maintenance and community support.

• Participate in regional or municipal transportation planning and promote appropriate legal access 

consistent with the land use plan.

• Establish a framework for reviewing the travel management program and make necessary 

changes to meet land health standards, area management, and recreation goals.

• Address casual and authorized recreational uses of the travel system when authorizing actions. 

Where major arteries in the recreational route network will be truncated or considerably 

altered by the authorization, mitigation will be required

• Consider adjustments to route designations, including adding, removing, and redeveloping 

routes and access, when necessary. Criteria for route designation adjustments can be found in 

Appendix S, Route Evaluation Methodology from the Lower Sonoran-SDNM PRMP/FEIS, and 

Appendix D, Best Management Practices and Standard Operating Procedures, Travel 

Management subsection.

• Develop brochures, maps, access guides, and information sheets to disseminate targeted 

recreation opportunity information to the public.

• Develop and maintain a monitoring system to support implementation and management of 

motorized and non-motorized use of the public lands, including routes and access points.

• Implement route-mitigation techniques when designing and implementing the route system.

• In areas where access permits are required, coordinate with other agencies that issue use 

permits on public lands to provide reasonable access for their permitted activities. For example, 

the BLM and AGFD will coordinate hunter access into permit-required access areas for hunters 

with valid hunting licenses for the affected hunting unit.

Support the development and implementation of regional or municipal transportation plans that protect 

or promote appropriate legal access to public lands and are consistent with resource and use objectives.

• Establish relationships and enter into agreements with local OHV groups and other groups and 

communities for long-term route maintenance and community support.

• Respect valid existing rights.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-87 

• Support development and implementation of regional and municipal transportation plans that 

protect or provide appropriate legal access to the SDNM and protect its resources and 

management objectives.

• Where needed, identify the SDNM boundary with appropriate fencing, signs, and other 

structures.

• Portions of the SDNM may be closed as needed to accommodate safety, weather, resource 

protection, specific projects, or staffing constraints.

2.2.17 National Byways 

Allocations Summary

Table 2-9 

Potential Byway Designations (BLM Miles)

Allocation BLM Miles

Management 

Action

Interstate 8 21 NB-1.1.3

H-238 Maricopa Road (paved) 18 NB-1.1.2

Goals, Objectives, and Management Actions

NB-1: Provide opportunities for the American public to see and enjoy unique scenic and 

historic landscapes on public lands deemed to have state or national significance.

NB-1.1: Identify and evaluate potential roads that meet nomination criteria for BLM National 

Scenic or Back Country Byway designation.

NB-1.1.2: Approximately 18 miles of Highway 238 (Maricopa Road) will be evaluated as 

a scenic byway (Map 10, Special Designations). 

NB-1.1.3: Approximately 21 miles of I-8 will be evaluated as a scenic byway (Map 10, 

Special Designations).

NB-2: Promote regional development of eco- and recreational tourism through 

designation of BLM National Scenic and Back Country Byways and by managing public 

lands along potential byway corridors to protect the quality of scenic values.

NB-2.1: Maintain open space and the undeveloped natural character of landscapes within the 

specified byway corridor. Desert landscapes provide visitors with unique scenic and back 

country experience while traversing the diverse Sonoran Desert, including saguaro cactus 

stands, rugged mountains, and vast valleys. These landscapes also offer glimpses of traditional 

western uses, including historic trail corridors, mining, agriculture, and ranching.
2. Approved Resource Management Plan

2-88 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

NB-2.1.1: Surface-disturbing uses and activities along byways will exceed or at minimum 

maintain the visual quality consistent with the established VRM setting through project 

design or mitigation.

NB-2.1.2: Protective measures will be provided in wildlife-movement corridors to 

protect wildlife. Measures may include setting speed limits, installing speed bumps or 

other speed-limiting devices, and installing cautionary signs.

NB-2.1.3: No motorized competitive speed events will be authorized on the byways.

2.2.18 National Trails 

Goals, Objectives, and Management Actions

NT-1: Manage the Juan Bautista de Anza National Historic Trail corridor through the 

SDNM through focused management strategies.

NT-1.1: Manage the historic trail corridor on the SDNM to enhance the experience of 

visitors, maintain the integrity of the historic trail and associated trail sites, and the visual setting 

throughout the life of the plan. See also VR-1.1.7.

NT-1.1.1: The Juan Bautista de Anza NHT corridor (Anza NHT) will be managed 

consistent with the National Park Service (NPS) management plan and in cooperation 

with the NPS (Map 10, Special Designations). 

NT-1.1.2: Allocate one Juan Bautista de Anza NHT Management Area (Map 10, Special 

Designations). 

NT-1.1.3: Retain public lands and acquire available state and private lands from willing 

sellers and/or easements to ensure long-term use, protection, and access to areas along 

the Juan Bautista de Anza NHT corridor and within the Anza NHT Management Area. 

NT-1.1.4: The Anza NHT corridor and the Anza NHT Management Areas will remain 

closed to all minerals actions.

NT-1.1.5: The Anza NHT corridor and the Anza NHT Management Area will be an 

exclusion area for major utility-scale renewable energy development and new major 

linear LUAs. 

NT-1.1.6: The Anza NHT corridor will be an exclusion area for all minor linear and 

nonlinear LUAs except as described in the Lands and Realty section (see Section 

2.2.12). LUAs will be mitigated to be consistent with management objectives and 

prescriptions, and only if impacts are determined to have a negligible to minor effect to 

resources. 
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-91 

NT-1.1.7: Identify and obtain rights-of-way on selected areas along the Anza NHT 

corridor and within the Anza NHT Management Area to support National Trail 

purposes and further trail management objectives. 

NT-1.1.8: Cultural sites along the NHT and the Anza NHT Management Area will be 

identified and developed as allocated in the appropriate use categories and according to 

management actions and prescriptions identified in the Cultural and Heritage Resources 

section for all use categories (Section 2.2.3, Cultural and Heritage Resources). 

NT-1.1.9: Recreation opportunities will be provided consistent with the Anza NHT

objectives. Facilities will be developed and placed outside the trail corridor to protect 

resource values, provide for visitor safety, and support selected use opportunities. 

Facilities will be developed within the trail corridor only when needed to protect trail 

integrity and resources, or to establish an Anza NHT recreation retracement route. 

NT–1.1.10: Access points and routes needed to access the Anza NHT corridor and the 

Anza NHT Management Area will be identified and prioritized during travel management 

planning. Legal access will be secured within 5 years of route designation to ensure

public access to the areas.

NT-1.1.11: The Anza NHT corridor and the Anza NHT Management Area will be 

managed in concert with the Sonoran Desert SCRMA and the Anza Historic Trail RMZ 

as identified in the Cultural and Heritage Resource and Recreation Management sections 

(see Sections 2.2.3 and 2.2.15, respectively). 

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

Anza NHT Management Area will be protected to provide the visitor with an 

opportunity to appreciate the historic character of the area. 

NT-1.1.13: Vegetation will be rehabilitated and restored in the Anza NHT corridor and 

the Anza NHT Management Area consistent with the natural resource restoration 

objectives to restore or maintain the integrity of the landscape. 

NT-1.1.14: A strategy will be developed to encourage scientific and historical research 

within the Anza NHT corridor and the Anza NHT Management Area as appropriate 

with management prescriptions and only if designed to have a negligible or minor effect 

on resources.

NT-1.1.15: Scientific and historical studies of cultural landscapes, sites, historic trails, and 

other resources, including excavation, will be allowed by qualified researchers on a caseby-case basis within the Anza NHT corridor and the Anza NHT Management Area and 

with written authorization from the BLM. 

NT-1.1.16: Heritage tourism will only be allowed along the Anza NHT auto route when 

such use is compatible with protecting the cultural and historical resources and visual 

values. 
2. Approved Resource Management Plan

2-92 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

NT-1.1.17: The Anza NHT auto route will be marked and promoted as appropriate and 

consistent with Cultural and Heritage Resource and Travel Management actions 

designations and prescriptions identified in this plan (see Sections 2.2.3 and 2.2.15, 

respectively).

NT-1.1.18: The Anza NHT corridor and the Anza NHT Management Area will be 

managed to retain, and restore where appropriate, the physical integrity of the sites and 

trails through inventory, evaluation, rehabilitation and restoration of vegetation. 

NT-1.1.19: Acquire parcels that exhibit characteristics consistent with the landscape 

setting, or important to management of the National Historic Trail, from willing buyers 

when funds are available and the parcels are reasonable priced.

Administrative Actions

Inventory

• Perform field inventories, document, and map historic trail resources and associated cultural 

resources along the Anza NHT.

• Perform recreational inventories along the Anza NHT to identify high potential sites and 

segments. Make determinations of suitability for installation of recreational trail tread and 

interpretive developments.

• Perform viewshed analysis on selected Anza NHT segments with priority given to high potential 

route segments.

• Collect GPS data to Federal Trails Data Standards on the Anza NHT resources and use GIS 

mapping. 

Monitoring

• Perform condition assessments on selected segments of the Anza NHT, with a priority on the 

high potential route segments.

• Implement procedures for systematic monitoring of the Anza NHT management corridor, 

including associated sites and trail resources.

Restoration

• Perform mitigation and/or landscape restoration in priority areas along the Anza NHT, where 

incompatible activities have altered the historic landscape and visual setting of the trail.

Research

• Perform archival research on the history and subsequent uses of the Anza NHT.

• Establish collaborative partnerships with academic institutions, professional and non-profit 

organizations, individual scholars, tribes, and other entities to perform research on Anza NHT 

related topics.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-93 

Interpretation and Education

• Develop interpretive materials and facilities for selected sites.

• Provide educational materials and opportunities to the public pertaining to the Anza NHT.

Tribal Consultation

• Continue to consult with the Gila River Indian Community, the Ak-Chin Indian Community, the 

Salt River Pima-Maricopa Indian Community, the Tohono O’odham Nation, the Hopi Tribe, and 

other interested Indian tribes to identify places of traditional importance.

Partnerships

• Coordinate with partner groups, interest groups, interested individuals, local communities, and 

other stakeholders on Anza NHT issues and projects.

• Consult and collaborate with the NPS, the administrator of the Anza NHT.

2.2.19 Hazardous Materials and Public Safety 

Goals, Objectives, and Management Actions

PS-1: Manage hazards and public use to protect public health and safety.

PS-1.1: Identify naturally occurring or manmade public safety hazards on public lands and take 

appropriate action to protect public health and safety.

PS-1.1.1: Priorities for remediation of physical safety hazards will be set using the 

following criteria:

• Where a death or injury has occurred;

• Where site is on or in immediate proximity to a recreation site or a known high 

use area;

• Where a formal risk assessment has determined a high or extremely high risk 

level.

• The site is eligible for listing in the Abandoned Mines Cleanup Module of 

Protection and Response Information System

PS-1.1.2: Priorities for remediation due to water quality issues will be set using the 

following criteria:

• The state has identified the watershed as a priority based on: water laws or 

regulations, threat to public health or safety, threat to environment;

• The project is a collaborative effort among multiple agencies or jurisdictions.

PS-1.1.3: Post signs to identify hazardous situations when warranted to protect public 

safety. Emphasize the risks to visitors of entering public lands and taking responsibility 

for their own safety.
2. Approved Resource Management Plan

2-94 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

PS-1.1.4: If illegal activities threaten the safety of the public or BLM employees, or 

damage Monument objects, areas can be closed to access by the authorized officer. The 

area can be closed for up to 90 days pending a study or review of the level of impacts 

and longer term actions may be necessary to provide public safety.

PS-1.1.5: The Sand Tank Mountains south of I-8, formerly known as “Area A,” is 

restricted to entry by permit only

PS-2: Protect public safety by dealing with all hazardous materials and solid wastes on 

public lands.

PS-2.1: Investigate all reported hazardous-materials and solid-wastes sites. Plan necessary 

containment and/or cleanup responses on a case-by-case basis as soon as possible upon report.

PS-2.1.1: Establish priorities for investigating releases and planning/implementing 

responses based on the order in which releases are discovered unless other factors, 

such as the immediacy of the public-health threat, elevate the response urgency.

PS-2.1.2: Identify the probable scope of needed containment and clean-up efforts.

PS-2.1.3: Rank all sites according to relative priority for treatment planning and action. 

Priorities to consider include:

• High levels of heavy metals in waste,

• Ground- or surface-water quality degradation,

• Ongoing, active resource damage,

• Safety hazards near established recreation areas or other areas frequented by 

public land users,

• Other site-specific factors

PS-2.1.4: Inspect mining and milling sites to determine appropriate management for 

hazardous materials.

PS-2.1.5: Conduct active investigations to identify potentially responsible parties and 

recover planning, containment, cleanup, monitoring, investigation, and enforcement 

costs associated with spill/release responses.

PS-2.1.6: Complete site-specific inventories when lands are being disposed or acquired. 

It is departmental policy to minimize potential liability of the Department of the Interior

and its bureaus by acquiring property that is not contaminated unless directed by 

Congress, court mandate, or as determined by the Secretary.

PS-3: Minimize or eliminate the potential for intentional or accidental releases of 

hazardous materials or wastes and solid waste.

PS-3.1: Pursue locations of solid waste and wildcat dumpsites. Remove hazardous materials and 

solid waste, remediate, and, if appropriate, restore sites.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-95 

PS-3.1.1: Investigate all reported hazardous-materials and solid-waste sites.

PS-3.1.2: Establish a reporting system and encourage other agencies and citizens to 

report suspected spill and dump sites or suspected dumping activities.

PS-3.1.3: Establish an inventory of known historic and active mining sites and other areas 

on public lands where hazardous materials or solid wastes are known or suspected to 

be present.

PS-3.1.4: Evaluate all BLM actions (including land use authorizations, mining and milling 

activities, and unauthorized land uses) for their potential to prevent production or 

dumping of hazardous or solid wastes on public lands by doing the following:

• Minimize releases of hazardous materials through compliance with current 

regulations. 

• Identify appropriate mitigation for activities associated with all types of 

hazardous materials and waste management and all types of fire management.

Administrative Actions

• Provide public safety information through BLM visitor-use brochures, websites, the BGR/Cabeza 

Prieta National Wildlife Refuge/Sand Tank Mountains visitor-entry permit system, and various 

direct contacts with members of the public. Include information on hazards associated with 

abandoned mines, recreational shooting, unexploded ordnance, smuggler and undocumented 

alien traffic, other criminal activities, natural resource conditions, or other conditions.

• Post signs in the field to identify certain hazardous situations when warranted to protect public 

safety. Emphasize visitor acceptance of the risks of entering public lands and responsibility for 

their own safety.

• To reduce human-caused fires, the BLM will undertake education, enforcement, and 

administrative fire-prevention measures. Education measures will include various outreach 

efforts, including a signing program, information as to the natural role of fire within local 

ecosystems, and participation in fairs, parades, and public contacts. Enforcement will be 

accomplished by providing training opportunities for employees interested in fire cause 

determination. Administration includes expanded prevention and education programs with 

other cooperator agencies.

2.2.20 Scientific Research, Education, and Public Outreach 

Scientific Research

The BLM will partner with agencies and the academic and scientific community to develop a strategy for 

orderly scientific research on the National Monument. Scientific research will be evaluated and approved 

on a case-by-case basis. A priority will be placed on research likely to enhance management and 

understanding of public land resources and public uses. Researchers will be required to coordinate with 

the BLM, including providing a research plan, on proposed research and provide reports and supporting 

data that describe the outcome of the research.
2. Approved Resource Management Plan

2-96 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Approved scientific research will contribute to management of natural and cultural resources and 

achieving desired future conditions. The collection of any objects in the Monument is authorized only by 

permit for scientific research or use to ensure compatibility and reporting of results. A reasonable 

amount of disturbance to soils and/or vegetation may occur during approved research activities in order 

to meet the research goals. Effects of disturbance are likely to be transient or may require mitigation or 

rehabilitation of sites.

Collaborative research partnerships will be established with interested organizations, such as local 

scientific museums or organizations, agencies, academic institutions, professional and nonprofit 

organizations, vocational organizations, and other entities, for an orderly process of research, 

recordation, and education about public land resources and uses. These partnerships will support 

survey, evaluation, recordation, mitigation, protection, and management of various resources, including 

biological, cultural, scenic, paleontological, geologic, and caves, and public uses including recreation, 

grazing, mining, and others.

By developing a strategy to encourage scientific research and inventory, the understanding of resources 

and management needs will improve. A priority will be placed on the development and implementation 

for inventory, recording, and evaluation of the Monument, and other sensitive areas and resources.

Increased monitoring of public use, vegetation and wildlife habitat, cultural sites, and other resources, 

with particular focus on sensitive resources and easily accessible and regularly visited areas, will help to 

ensure the integrity of resources are maintained. Monitoring of public uses, wildlife, and other resources 

will be enhanced by the use of volunteers, scientific and academic organizations, and other interested 

groups. 

Interpretation, Environmental Education, and Outreach

The BLM will work with partners in agencies, academia, and other organizations to develop an effective 

environmental education and outreach strategy to enhance public understanding and appreciation of 

public land resources, and help the BLM achieve its mission and the desired outcomes of this PRMP.

The BLM will support existing educational and interpretive programs and initiatives such as Project 

Archaeology, Leave No Trace, Tread Lightly!TM, Project Learning Tree, and other proven national, state, 

regional, and local programs. An emphasis will be placed on reuse of existing educational materials.

Additionally, the BLM will work with partners to pursue interpretation and environmental education 

opportunities, outreach, development, and implementation of on-site and off-site programs for adults 

and children. The office will work with willing staff from schools, school districts, and other learning 

institutions to develop curricula that incorporate various learning styles in program design and delivery 

and focus on the BLM’s mission.

To help disseminate information to the public, websites, brochures, maps, access guides, and information 

sheets will be developed. BLM personnel will also participate in public events, such as fairs and open 

houses, with information and displays showing public land management. Information will emphasize 

Leave No Trace and Tread Lightly!TM practices.
2. Approved Resource Management Plan

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-97 

Topics may include:

• Resource protection and management,

• Recreational and public access,

• Land use ethics, 

• Recreational target shooting

• OHV rules and regulations,

• Public safety,

• Fire,

• OHV and special recreation vehicle information,

• Other information as needed.

Resources Education

Throughout the area, (with particular focus sensitive resource areas, including the Monument, SCRMAs, 

and threatened and endangered species habitat), emphasis will be placed on resource importance 

through interpretation, education, signing, and/or brochures. 

A public education program will accomplish the following:

• Provide information about resources and their importance,

• Provide information directly related to procedures to be followed if sensitive resources are 

found,

• Provide safety information to the public and identify any resource protection actions required 

for public use,

• Specify any pertinent fines for resource damage.

Public Uses and Visitor Information

Visitor information will be developed to guide recreational uses in the SDNM. Information could include 

identifying recreational opportunities, locations where certain uses are or are not appropriate, an 

appreciation and respect for other public land users and uses, and methods to avoid conflict.

Public Safety and Fire Education

Educational material will be available regarding public safety, definitions of hazardous materials and solid 

wastes, and regulations controlling the use and disposal of hazardous materials and solid wastes on 

public lands. Methods to disseminate information may include brochures at recreational sites, websites, 

signs at known or likely dumping sites, BGR/Cabeza Prieta National Wildlife Refuge/Sand Tank 

Mountains visitor entry permit system, and various types of direct contact with visitors. Information on 

hazards associated with abandoned mines, recreational shooting, unexploded ordnance, smuggler and 

undocumented alien traffic, natural resource or other conditions also may be included.

To protect public safety, when warranted, signs will be posted to identify certain hazardous situations.
2. Approved Resource Management Plan

2-98 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Visitor acceptance of the risks of entering public land and responsibility for their own safety will be 

emphasized.

The BLM will undertake education, enforcement, and administrative fire prevention mitigation measures 

to reduce human-caused fires. Education measures may include various media, including signs, 

information on the natural role of fire within local ecosystems, participation in fairs or parades, and 

other public contacts. Enforcement will be accomplished by providing training opportunities for 

employees interested in fire caused determinations. Administration includes expanded prevention and 

education programs with other cooperating agencies.

2.3 IMPLEMENTATION DECISIONS – TRAVEL MANAGEMENT

As described in Section 1.4.2, implementation decisions (or activity-level decisions) are management 

actions tied to a specific location that are made to implement the land use plan decisions. While BLM 

normally makes implementation decisions during more detailed planning after completion of an RMP, 

there are times when it is appropriate to make them as part of the RMP process. In the SDNM RMP, the 

following implementation-level decisions were made. See Section 1.4.2, Implementation Decisions, for 

a summary of the protest and appeal procedures associated with these decisions.

Implementation-level Allocations Summary for the SDNM

TMI-1: A network of routes are designated upon plan approval to include roads, primitive roads and 

trails that are open, closed or limited in their use as specified Table 2-10, Route Designations (Miles). 

For route locations, refer to the route maps on the CD, web site, or hard copies by request to the 

Lower Sonoran Field Office and on Map 9, SDNM Route Designations. For route rationales, see 

Appendix G, Route Rationales.

TMI-2: Routes 8013, 8018, and 8019 which are within washes, are closed from April 15-August 31 to 

address the forage, shelter, breeding, and thermal cover protection provided by washes as a component 

of wildlife habitat.

TMI-3: Develop legal public access along Interstate 8, in cooperation with Arizona Department of 

Transportation and Federal Highway Administration, to designated roads and primitive roads in SDNM.

Table 2-10 

Route Designations (Miles)

Total Route Inventory 631.7

Total Proposed Route System Available for Public Use1 410.9

Roads Closed to General Public Use2 220.4

Road Closure Percentage3 35%

Designated Asset Type

Road - Maintained 32.6

Open 24.2

Limited to Admin Use Only 0.4

Closed 0
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-99 

Table 2-10

Route Designations (Miles)

New 8.0

Primitive Road - Unmaintained 570.2

Open 323.8

Seasonally Limited (Closed April 15 to Aug. 31) 26.0

Limited to Non-Motorized Use4 8.3

Limited to Admin Use Only 7.8

Closed 204.3

Trail 28.9

Open to non-motorized/ mechanized travel (e.g., 

bicycles, handcarts, etc.) 3.3

Open to non-motorized/non-mechanized travel 

(wilderness trails) 25.6

1

Total Proposed Route System (Miles) equals the sum of open roads, 

primitive roads, trails (including those limited by season, width, and nonmotorized use), and new roads. The total excludes roads and primitive roads 

limited to administrative use. See Map 9, SDNM Route Designations. 

2 Road Closures (Miles) equals the sum of closed roads and primitive roads, 

roads and primitive roads limited to administrative use, and primitive roads 

limited to non-motorized use.

3 Road Closure Percentage equals the miles of road closure divided by the 

total route inventory (631.5 miles). Note: Primitive roads limited to nonmotorized use are included here because no vehicular use will be permitted.

4 Applies to the Anza NHT, where bicycles and handcarts will be allowed, 

but not motor vehicles.

2.4 PUBLIC INVOLVEMENT

The BLM will continue to work with existing partners, cultivate new partnerships, and actively seek the 

views of the public. Using techniques such as news releases, website postings, and mass mailings, the 

BLM will inform the public of new and ongoing management actions and site-specific planning, and 

provide opportunities and timeframes for comment and other participation. The public is encouraged to 

contact the BLM (Sonoran Desert National Monument at 21605 N. 7th Avenue, Phoenix, Arizona 

85027) and request that their name be placed in the field office mailing list along with their specific area 

of interest (e.g., wildlife, cultural resources, etc.) for plan implementation. The public may also make this 

request by calling (623) 580-5500.

The BLM will also continue to coordinate, both formally and informally, with the numerous federal and 

state agencies, Native American tribes, local agencies, and officials interested and involved in the 

management of public lands in the SDNM. 
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2-100 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

2.5 MANAGEMENT PLAN IMPLEMENTATION

The RMP will be implemented as funding and workforce allow. Most of the land use plan decisions are 

effective upon approval of this document. However, some decisions will take a number of years to be 

fully implemented. Implementation monitoring will track which decisions have been implemented and 

when.

After issuing the ROD/Approved RMP, the BLM will establish implementation priorities based on the 

goals, objectives and management actions detailed in the RMP. The implementation planning process will 

assist BLM managers and staff in preparing budget requests and in scheduling work priorities. However, 

the proposed schedule must be considered tentative and will be affected by future funding, changing 

program priorities, nondiscretionary workloads, and cooperation by partners and the public. Periodic 

review of the implementation plan will provide consistent tracking of accomplishments and provide 

information that can be used to develop annual budget requests to continue implementation. Plan 

implementation is a continuous and active process. 

Interdisciplinary impact analysis on implementation actions will be based on the PRMP/FEIS and other 

applicable EISs. If the analysis prepared for site-specific projects finds potential for significant impacts not 

already described in an existing EIS, another EIS or a supplement to an existing EIS may be warranted.

Site-specific environmental analyses and documentation, including the use of categorical exclusions and 

determinations of NEPA adequacy where appropriate, may be prepared for one or more individual 

projects in accordance with management objectives and decisions established in the approved land use 

plan. In addition, the BLM will ensure that the environmental review process includes evaluation of all 

critical elements, including cultural resources and threatened and endangered species, and completes 

required USFWS Section 7 consultations and coordination with the SHPO.

2.6 PLAN EVALUATION AND MAINTENANCE

2.6.1 Plan Evaluation

Plan evaluation is a process in which the plan and monitoring data are reviewed to determine if 

management goals and objectives are being met and if management direction is sound. Land use plan 

evaluations determine if decisions are being implemented, if mitigation measures are satisfactory, if there 

are significant changes in the related plans of other entities, if there is new data of significance, and if 

decisions should change through amendment or revision. Monitoring data gathered over time is 

examined and used to determine whether management actions are meeting objectives. Conclusions are 

then used to make recommendations on whether to continue current management or to identify what 

changes need to be made in management practices to meet RMP objectives.

BLM will use land use plan evaluations to determine if the decisions in the RMP, supported by the 

accompanying NEPA analysis, are still valid in light of new information and monitoring data. Evaluation of 

the RMP will generally be conducted every five years, unless unexpected actions, new information, or 

significant changes in other plans, legislation, or litigation triggers an evaluation.
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September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 2-101 

Evaluations will follow the protocols established by the BLM’s Land Use Planning Handbook (H-1601-1) 

and 43 CFR Part 1610.4-9 or other appropriate guidance in effect at the time the evaluation is initiated.

2.6.2 Plan Maintenance

Land use plan decisions and supporting information can be maintained to reflect minor changes in data, 

but maintenance is limited to refining, documenting, and clarifying previously approved decisions. Some 

examples of maintenance actions include:

• Correcting minor data, typographical, mapping, or tabular data errors;

• Refining baseline information as a result of new inventory data (e.g., changing the boundary of an 

archaeological district; refining the known habitat of special status species; or adjusting the 

boundary of a fire management unit based on updated fire regime condition class inventory, fire 

occurrence, monitoring data, or demographic changes); and 

• Applying an existing fluid mineral lease stipulation to a new area prior to the lease sale based on 

new inventory data (e.g., applying an existing protective stipulation for tortoise to a newly 

discovered tortoise habitat area.)

Plan maintenance will be documented in supporting records. Plan maintenance does not require formal 

public involvement, interagency coordination, or the NEPA analysis required for making new land use 

plan decisions.

2.7 MONITORING AND ADAPTIVE MANAGEMENT

2.7.1 Monitoring

The BLM expects that new information gathered from field inventories and assessments, research, other 

agency studies, and other sources will update baseline data and/or support new management techniques, 

best management practices, and scientific principles. Monitoring the RMP involves tracking the 

implementation and effectiveness of land use plan decisions (implementation monitoring) identified in 

Section 2.2, Management Decisions. Implementation monitoring tracks the completion of land use plan 

decisions whereas effectiveness monitoring helps determine whether completion of land use plan 

decisions achieves anticipated desired outcomes. If implementation of land use plans does not achieve 

anticipated desired outcomes, adaptive management may be necessary.

Management actions identified for the SDNM are based on studies and the best scientific and 

commercial information available. However, conditions may change over time. Experience has shown 

that implemented management actions can be improved as new technology and new information 

become available. It is also possible that changes in land use will require a different management action 

to protect the resources. To address the changing conditions and provide management flexibility using

best management practices, the SDNM staff will monitor and evaluate the RMP using a process that 

provides the optimum means of checking the effectiveness of management actions. This process will 

measure the effectiveness of existing actions by monitoring these actions and applying the results of new 

scientific research. The process will analyze the current resource conditions resulting from implemented 

actions and identify and recommend alternatives or modified actions, as necessary, to reach established 

objectives and goals.
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2-102 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Because the capability to conduct monitoring and analysis at the optimum level can vary from year to 

year, the actions to be monitored will be prioritized. If monitoring indicates the goals and objectives are 

not being met, the adaptive management process will be implemented to adjust actions and improve 

resource condition.

2.7.2 Adaptive Management

Adaptive management is a system of management practices based on clearly identified outcomes, 

monitoring to determine if management actions are meeting outcomes, and, if not, facilitating 

management changes that will best ensure that outcomes are met or to re-evaluate the outcomes. The 

SDNM managers will implement the adaptive management process for decisions appropriate to be 

adapted in order to meet resource goals and objectives. Monitoring, reports, documents, and timelines 

associated with the adaptive management process will be subject to the Monument’s budget and staffing 

constraints. 
3. GLOSSARY

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-1 

3. GLOSSARY

ABIOTIC: The nonliving, material components of the environment, such as air, rocks, soil, water, coal, 

peat, and plant litter. See BIOTIC.

ACCELERATED EROSION: Soil loss above natural levels resulting directly from human activities. 

Because of the slow rate of soil formation, accelerated erosion can permanently reduce plant 

productivity.

ACQUIRED PUBLIC LANDS: Lands in federal ownership that the government obtained as a gift or

by purchase, exchange, or condemnation. See PUBLIC LANDS.

ALLOTMENT: An area of land designated and managed for the grazing of livestock where one or 

more operators are authorized to graze their livestock. An allotment generally consists of federal 

rangelands but may include intermingled parcels of private, state, or federal lands. The BLM stipulates 

the number of livestock and season of use for each allotment.

ANIMAL UNIT: One mature (1,000 pound) cow or the equivalent based upon an average daily forage 

consumption of 26 pounds of dry matter per day.

ANIMAL UNIT MONTH (AUM): The amount of forage needed to sustain one cow, five sheep, or 

five goats for one month.

ANNUAL PLANT: A plant that completes its life cycle and dies in one year or less. Also see 

PERENNIAL PLANT.

AQUATIC HABITAT (COMPONENTS): Habitats confined to streams, rivers, springs, lakes, 

ponds, reservoirs, and other water bodies.

AQUIFER: A water-bearing bed or layer of permeable rock, sand, or gravel capable of yielding large 

amounts of water.
3. Glossary

3-2 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

ARCHAEOLOGICAL FEATURE: A non-portable object not recoverable from its matrix (usually in 

an archeological site) without destroying its integrity. Examples are rock paintings, hearths, post holes, 

floors, and walls.

AREA OF CRITICAL ENVIRONMENTAL CONCERN (ACEC): A designated area on public 

lands where special management attention is required (1) to protect and prevent irreparable damage to 

fish and wildlife; (2) to protect important historic, cultural, or scenic values, or other natural systems or 

processes; or (3) to protect life and safety from natural hazards.

ARIZONA STANDARDS FOR RANGELAND HEALTH AND GUIDELINES FOR 

GRAZING ADMINISTRATION: Standards and guidelines developed collaboratively by BLM and the 

Arizona Resource Advisory Council (RAC) to address the minimum requirements of the Department of 

the Interior’s final rule for Grazing Administration, effective Aug. 21, 1995.

ASSETS (TRAVEL MANAGEMENT): An engineering term utilized to describe roads, primitive 

roads, and trails that are included in Facility Asset Management System (FAMS). Assets are maintained 

through the maintenance program.

AUTHORIZED OFFICER: Any employee of the BLM who has been delegated the authority to 

perform duties related to public lands, public purposes, conveyances, hazardous substances, and solid 

wastes.

BACK COUNTRY BYWAY: A component of the national scenic byway system which focuses 

primarily on corridors along back country roads which have high scenic, historic, archeological, or other 

public interest values. The road may vary from a single track bike trail to a low speed, paved road that 

traverses back country areas (BLM Handbook H-8357-1, B 2).

BACK COUNTRY SETTING: Areas with undeveloped, primitive, and self-directed visitor 

experience without provisions for motorized or mechanized access, except for identified routes.

BENEFIT (RECREATION/SOCIETAL): A benefit is defined as an improved condition or the 

prevention of a worse condition. Benefits of leisure and recreation engagements can be realized by 

individuals (e.g., improved physical and psychological well-being), groups of individuals (strengthened 

bonds among family and friends), communities (economic gain from tourism), society (the cumulative 

effects of individual and group benefits), and the environment (a result of a stronger environmental ethic 

among individuals).

BIG GAME: Large species of wildlife that are hunted, such as elk, deer, bighorn sheep, and pronghorn.

BIGHORN SHEEP HABITAT: Area is open to non-vehicular traffic year around (e.g., hiking, biking, 

and equestrian). Restrictions vary by location and are listed in RMP. Typically, roads are closed during 

lambing season (January 1 through June 30).

BIOLOGICAL ASSESSMENT: Information prepared by or under the direction of a federal agency 

to determine whether a proposed action is likely to harm threatened or endangered species or 

designated critical habitat, jeopardize the existence of species that are proposed for listing, or adversely 
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-3 

modify proposed critical habitat. Biological assessments must be prepared for major construction 

activities. The outcome of a biological assessment determines whether formal Section 7 consultation or 

a conference is needed. Also see BIOLOGICAL OPINION.

BIOLOGICAL DIVERSITY (BIODIVERSITY): The full range of variability within and among living 

organisms and the ecological complexes in which they occur. Biological diversity encompasses 

ecosystem or community diversity, species diversity, and genetic diversity.

BIOLOGICAL EVALUATION: The gathering and evaluation of information on proposed 

endangered and threatened species and critical and proposed critical habitat for actions that do not 

require a biological assessment. Also see BIOLOGICAL ASSESSMENT.

BIOLOGICAL OPINION: A document that includes the following- (1) the opinion of the US Fish and 

Wildlife Service or the National Marine Fisheries Service as to whether a federal action is likely to 

jeopardize the existence of a species listed as threatened or endangered or destroy or adversely modify 

designated critical habitat; (2) a summary of the information on which the opinion is based; and (3) a 

detailed discussion of the effects of the action on listed species or designated critical habitat.

BIOLOGICAL VEGETATION TREATMENT: Methods of vegetation treatment that employ living 

organisms to selectively suppress, inhibit, or control herbaceous and woody vegetation. Examples of 

such methods include insects; pathogens; and grazing by cattle, sheep, or goats.

BIOTIC: Pertaining to life or living; the living components of the environment. Also see ABIOTIC.

BRAIDING: A pattern of an interlacing or tangled network of several branching and reuniting stream 

channels separated by branch islands or channel bars.

BROWSE: The part of leaf and twig growth of shrubs, woody vines, and trees available for animal 

consumption. 

CANCELLED/CANCELLATION: A permanent termination of a grazing permit, grazing lease, 

grazing preference, free-use grazing permit, or other grazing authorization in whole or in part.

CANDIDATE SPECIES: Species not protected under the ESA, but being considered by the US Fish 

and Wildlife Service for inclusion on the list of federally threatened and endangered species. 

CASUAL USE (MINING): Mining that only negligibly disturbs federal lands and resources and does 

not include the use of mechanized earth moving equipment or explosives or motorized equipment in 

areas closed to off-highway vehicles. Casual use generally includes panning, non-motorized sluicing, and 

collecting mineral specimens using hand tools.

CASUAL USE (RECREATION): Non-commercial or non-organized group or individual activities on 

public land that do the following: Comply with land use decisions and designations (i.e. special area 

designations), do not award cash prizes; are not publicly advertised; pose minimal risk for damage to 

public land or related water resources; and generally require no monitoring. If the use goes beyond 

those conditions, the activity should be treated as any other organized recreational group or 
3. Glossary

3-4 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

competitive activity or event for which BLM will require the event organizer to obtain a special 

recreation permit (SRP).

CASUAL USE OF MINERAL MATERIALS: Extracting mineral materials for limited personal 

(noncommercial) uses. 

CATEGORICAL EXCLUSION: A category of actions (identified in agency guidance) that do not 

individually or cumulatively have a significant effect on the human environment and for which neither an 

environmental assessment nor an EIS is required (40 CFR 1508.4).

CATTLE GUARD: A device placed in a road, usually a grate or series of metal bars placed 

perpendicular to the flow of traffic, which allows free passage of vehicles but which livestock will not 

cross.

CHANNEL: A natural or artificial watercourse with a definite bed and banks to confine and conduct 

continuously or periodically flowing water.

CHEMICAL VEGETATION TREATMENTS: The applying of chemicals to control unwanted 

vegetation. 

COMMUNICATION SITE: An area of Public Land or National Forest System lands designated for 

communications use through the land and resource management planning process.

COMMUNITY: A collective term used to describe an assemblage of organisms living together; an 

association of living organisms having mutual relationships among themselves and with their environment 

and thus functioning at least to some degree as an ecological unit. 

COMPETITIVE RACES: For purposes of this plan, all competitive events that have an element of 

speed as a component, including, motorcycle enduros, OHV desert racing, and equestrian endurance 

rides.

COMPOSITION: The proportions of various plant species in relation to the total on a given area. It 

may be expressed in terms of cover, density, weight, etc.

COOPERATING AGENCY: Assists the lead federal agency in developing an environmental 

assessment or EIS. The Council on Environmental Quality regulations implementing NEPA define a 

cooperating agency as any agency that has jurisdiction by law or special expertise for proposals covered 

by NEPA (40 CFR 1501.6). Any federal, state, local government jurisdiction with such qualifications may 

become a cooperating agency by agreement with the lead agency.

CORRIDOR: See DESIGNATED MULTIUSE UTILITY CORRIDOR.

COVER: (1) Plants or plant parts, living or dead, on the surface of the ground; (2) plants or objects 

used by wild animals for nesting, rearing of young, escape from predators, or protection from harmful 

environmental conditions.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-5 

CRITERIA AIR POLLUTANTS: Air pollutants for which acceptable levels of exposure can be 

determined and for which an ambient air quality standard has been set. Examples of such pollutants are 

ozone, carbon monoxide, nitrogen dioxide, sulfur dioxide, and PM10 and PM2.5. 

CRITICAL HABITAT, DESIGNATED: Specific parts of an area (1) that are occupied by a federally 

listed threatened or endangered plant or animal at the time it is listed and (2) that contain physical or 

biological features essential to the conservation of the species or that may require special management 

or protection. Critical habitat may also include specific areas outside an area occupied by a federally 

listed species if the Secretary of the Interior determines that these areas are essential for conserving the 

species.

CULTURAL HERITAGE VALUES: The irreplaceable qualities that are embodied in cultural 

resources, such as scientific information about prehistory and history, cultural significance to Native 

Americans and other groups, and the potential to enhance public education and enjoyment of the 

Nation’s rich cultural heritage. Section 1 of the National Historic Preservation Act states that “the 

preservation of this irreplaceable heritage is in the public interest so that its vital legacy of cultural, 

educational, aesthetic, inspirational, economic and energy benefits will be maintained and enriched for 

future generations of Americans.”

CULTURAL RESOURCE: A location of human activity, occupation, or use identifiable through field 

inventory, historical documentation, or oral evidence. Cultural resources include archaeological and 

historical sites, structures, buildings, objects, artifacts, works of art, architecture, and natural features 

that were important in past human events. They may consist of physical remains or areas where 

significant human events occurred, even though evidence of the events no longer remains. And they may 

include definite locations of traditional, cultural, or religious importance to specified social or cultural 

groups. 

CULTURAL RESOURCE DATA: Cultural resource information embodied in material remains such 

as artifacts, features, organic materials, and other remnants of past activities. An important aspect of 

data is context, a concept that refers to the relationships among these types of materials and the 

situations in which they are found.

CULTURAL RESOURCE DATA RECOVERY: The professional application of scientific techniques 

of controlled observation, collection, excavation, and/or removal of physical remains, including analysis, 

interpretation, explanation, and preservation of recovered remains and associated records in an 

appropriate curatorial facility used as a means of protection. Data recovery may sometimes employ 

professional collection of such data as oral histories, genealogies, folklore, and related information to 

portray the social significance of the affected resources. Such data recovery is sometimes used as a 

measure to mitigate the adverse impacts of a ground-disturbing project or activity.

CULTURAL RESOURCE INTEGRITY: The condition of a cultural property, its capacity to yield 

scientific data, and its ability to convey its historical significance. Integrity may reflect the authenticity of a 

property’s historic identity, evidenced by the survival or physical characteristics that existed during its 

historic or prehistoric period, or its expression of the aesthetic or historic sense of a particular period 

of time.
3. Glossary

3-6 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

CULTURAL RESOURCE INVENTORY (SURVEY): A descriptive listing and documentation, 

including photographs and maps of cultural resources. Included in an inventory are the processes of 

locating, identifying, and recording sites, structures, buildings, objects, and districts through library and 

archival research, information from persons knowledgeable about cultural resources, and on-the-ground 

surveys of varying intensity.

Class I: A professionally prepared study that compiles, analyzes, and synthesizes all available data on an 

area’s cultural resources. Information sources for this study include published and unpublished 

documents, BLM inventory records, institutional site files, and state and National Register files. Class I 

inventories may have prehistoric, historic, and ethnological and sociological elements. These inventories 

are periodically updated to include new data from other studies and Class II and III inventories.

Class II: A professionally conducted, statistically based sample survey designed to describe the probable 

density, diversity, and distribution of cultural properties in a large area. This survey is achieved by 

projecting the results of an intensive survey carried out over limited parts of the target area. Within 

individual sample units, survey aims, methods, and intensities are the same as those applied in Class III 

inventories. To improve statistical reliability, Class II inventories may be conducted in several phases 

with different sample designs.

Class III: A professionally conducted intensive survey of an entire target area aimed at locating and 

recording all visible cultural properties. In a Class III survey, trained observers commonly conduct 

systematic inspections by walking a series of close-interval parallel transects until they have thoroughly 

examined an area.

CULTURAL RESOURCE PROJECT PLAN: For cultural resource projects, a detailed design plan 

that defines the procedures, budget, and schedule for such activities as structure stabilization, 

recordation, interpretive development, and construction of facilities such as trails. These plans include 

estimates on workforce, equipment, and supply needs.

CULTURAL SITE: A physical location of past human activities or events, more commonly referred to 

as an archaeological site or a historic property. Such sites vary greatly in size and range from the 

location of a single cultural resource object to a cluster of cultural resource structures with associated 

objects and features.

CUMULATIVE IMPACTS: As stated in 40 CFR 1508.8, “...is the impact on the environment which 

results from the incremental impact of the action when added to other past, present, and reasonably 

foreseeable future actions regardless of what agency (federal or non-federal) or person undertakes such 

other actions. Cumulative impacts can result from individually minor but collectively significant actions 

taking place over a period of time.”

DATA RECOVERY: See CULTURAL RESOURCE DATA RECOVERY.

DECISION RECORD: A manager’s decision on a categorical exclusion review or an environmental 

assessment. Comparable to the record of decision for an environmental impact statement, the decision 

record includes- (1) a finding of no significant impact, (2) a decision to prepare an environmental impact 

statement, or (3) a decision not to proceed with a proposal. 
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-7 

DEFERMENT: A period of non-grazing during part of the growing season (see REST ROTATION).

DEFERRED ROTATION GRAZING: Moving grazing animals to various parts of a range in 

succeeding years or seasons to provide for seed production, plant vigor, and seedling growth.

DESERT TORTOISE HABITAT CLASSIFICATIONS: Three categories of desert tortoise

habitat based on population, viability, size, density, and manageability and derived from BLM inventories 

of desert tortoise habitat throughout the planning areas between 1989 and 1999. The categories are as 

follows:

Category I. Medium to high tortoise density. Habitat area essential for maintaining large, viable 

populations. 

Category II. Low to moderate tortoise density. Habitat is manageable.

Category III. Isolated patches of good habitat exist but are difficult to manage. Most management 

conflicts are not resolvable.

DESIGNATED MULTIUSE UTILITY CORRIDOR: See MULTIUSE UTILITY CORRIDOR

DESIRED FUTURE CONDITION: A detailed description of the particular resource condition to be 

achieved sometime in the future. These serve as resource standards which management is intended to 

achieve. These are analogous to resource objectives.

DESIRED OUTCOMES: A type of land use plan decision expressed as a goal or objective.

DESIRED PLANT COMMUNITY (DPC): The plant community that has been determined through 

a land use or management plan to best meets the plan’s objectives for a site. A real, documented plant 

community that embodies the resource attributes needed for the present or potential use of an area, 

the desired plant community is consistent with the site’s capability to produce the required resource 

attributes through natural succession, management intervention, or a combination of both.

DESTINATION RECREATION-TOURISM MARKET: National or regional recreation-tourism 

visitors and other constituents who value public lands as recreation-tourism destinations. Major 

investments in facilities and visitor assistance are authorized within SRMAs where the BLM’s strategy is 

to target demonstrated destination recreation-tourism market demand. Here, recreation management 

actions are geared toward meeting primary recreation-tourism market demand for specific activity, 

experience, and benefit opportunities. These opportunities are produced through maintenance of 

prescribed natural resource setting character and by structuring and implementing management, 

marketing, monitoring, and administrative actions accordingly.

DEVELOPED RECREATION SITES AND AREAS: Those sites and areas that contain structures 

or capital improvements primarily used by the public for recreation purposes. Such sites or areas may 

include such features as: delineated spaces for parking, camping, or boat launching; sanitary facilities; 

potable water; grills or fire rings; or controlled access.
3. Glossary

3-8 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

DIKE: (1) An upright or steeply dipping sheet of igneous rock that has solidified in a crack or fissure in 

the earth’s crust; (2) a human-made structure used to control stream flow.

DISPERSED RECREATION: Recreation that does not require developed sites or facilities.

DISPOSAL: See LAND DISPOSAL.

DRAINAGE AREA: Area or watershed that drains naturally to a particular point on a river, stream, 

or creek.

DRAINAGE BASIN: Drainage system that consists of a surface stream or body of impounded surface 

water together with all tributary surface streams and bodies of impounded surface water.

EASEMENT: The right to use land in a certain way granted by a landowner to a second party.

ECOLOGICAL CONDITION: See ECOLOGICAL SITE RATING (ECOLOGICAL CONDITION/ 

ECOLOGICAL STATUS).

ECOLOGICAL INTEGRITY: The quality of a natural unmanaged or managed ecosystem in which 

the natural ecological processes are sustained, with genetic, species, and ecosystem diversity ensured for 

the future.

ECOLOGICAL SITE: A distinctive kind of land that has specific physical characteristics and that 

differs from other kinds of land in its ability to produce a characteristic natural plant community.

ECOLOGICAL SITE DESCRIPTIONS: Descriptions of the following characteristics of an 

ecological site- soils, physical features, climatic features, associated hydrologic features, plant 

communities possible on the site, plant community dynamics, annual production estimates and 

distribution of production throughout the year, associated animal communities, associated and similar 

sites, and interpretations for management.

ECOLOGICAL SITE INVENTORY: The basic inventory of present and potential vegetation on 

BLM rangeland.

ECOLOGICAL SITE RATING (ECOLOGICAL CONDITION/ ECOLOGICAL STATUS): 

The present state of vegetation of an ecological site in relation to the potential natural community for 

the site. Independent of the site’s use, the ecological site rating is an expression of the relative degree to 

which the kinds, proportions, and amounts of plants in a community resemble those of the potential 

natural community. The four ecological status classes correspond to 0-25 percent, 25-50 percent, 51-75 

percent, or 76-100 percent similarity to the potential natural community and are called early-seral, midseral, late-seral, and potential natural community, respectively.

ECOSYSTEM: Organisms, together with their abiotic environment, forming an interacting system and

inhabiting an identifiable space.

ENDANGERED SPECIES: Any animal or plant species in danger of extinction throughout all or a 

significant portion of its range as designated by the US Fish and Wildlife Service under the ESA. 
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-9 

ENVIRONMENTAL ASSESSMENT (EA): As per 40 CFR 1508.9:

“(a) Means a concise public document for which a federal agency is responsible that serves to:

Briefly provide sufficient evidence and analysis for determining whether to prepare an environmental 

impact statement or a finding of no significant impact.

Aid an agency’s compliance with the Act when no environmental impact statement is necessary.

Facilitate preparation of a statement when one is necessary. 

(b) Shall include brief discussions of the need for the proposal, of alternatives as required by section 102 

(2) (E), of the environmental impacts of the proposed action and Alternatives, and a listing of agencies 

and persons consulted.”

ENVIRONMENTAL IMPACT STATEMENT (EIS): As per 40 CFR 1508.11 “means a detailed 

written statement as required by section 102 (2) (C) of the Act” (referring to the National 

Environmental Policy Act.)

EPHEMERAL RANGELAND: Areas of the hot desert biome (region) that do not consistently 

produce enough forage to sustain a livestock operation but may briefly produce unusual volumes of 

forage that may be utilized by livestock.

EXCAVATION: The scientific examination of an archaeological site through layer-by-layer removal 

and study of the contents within prescribed surface units, e.g. square meters.

EXISTING PARKING, STAGING, AND CAMPING AREAS AND DISTURBED AREAS: 

Sites and areas previously used for overnight stays, parking and staging. Existing sites must have bare 

mineral earth areas clear of vegetation, other indications include tent pads, camp fire rings, camper and 

vehicle pullouts, rock alignments and other signs of overnight and long-term use and occupation.

EXTENSIVE RECREATION MANAGEMENT AREA (ERMA): A public lands unit identified in 

land use plans containing all acreage not identified as a SRMA. Recreation management actions within an 

ERMA are limited to only those of a custodial nature.

EXTIRPATED SPECIES: A locally extinct species; a species that is no longer found in a locality but 

exists elsewhere.

FEDERAL LAND POLICY AND MANAGEMENT ACT (FLPMA): The act that (1) set out, for 

the Bureau of Land Management, standards for managing the public lands including land use planning, 

sales, withdrawals, acquisitions, and exchanges; (2) authorized the setting up of local advisory councils 

representing major citizens groups interested in land use planning and management, (3) established 

criteria for reviewing proposed wilderness areas, and (4) provided guidelines for other aspects of public 

land management such as grazing.

FINE PARTICULATE MATTER (PM2.5): Particulate matter that is less than 2.5 microns in 

diameter. 
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3-10 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

FIRE INTENSITY: The rate of heat release for an entire fire at a specific time.

FIRE MANAGEMENT: The integration of fire protection, prescribed burning, and fire ecology 

knowledge into multiple use planning, decision making, and land management.

FIRE MANAGEMENT PLAN: A plan that defines a program to manage wildland and prescribed fires 

and documents the fire management program in the approved land use plan.

FIRE SUPPRESSION: All the work of extinguishing or confining a fire, beginning with its discovery.

FIRE SUPPRESSION RESOURCES: People, equipment, services, and supplies available or 

potentially available for assignment to incidents.

FLOODPLAIN: Nearly level land on either or both sides of a channel that is subject to overflow 

flooding. 

FORAGE: All browse and herbage that is available and acceptable to grazing animals or that may be 

harvested for feed.

FORB: An herbaceous plant that is not a grass, sedge, or rush.

FRAGILE SOILS: Soils having a shallow depth to bedrock, minimal surface layer of organic material, 

textures that are more easily detached and eroded, or are on slopes over 35 percent.

FREE USE PERMIT: A permit that allows the removal of mineral materials from public lands free of 

charge to any federal, state, or territorial agency, unit, or subdivision.

FRONT COUNTRY SETTING: Front Country offers the main setting and locations for intensive 

resource-dependent recreation uses and facilities. Motorized and mechanized vehicles must remain on 

existing or designated routes. The lands are generally natural in appearance and may see minor to 

moderate alterations over the life of the land use plan due to land use authorizations and BLM 

management actions.

FUEL LOAD (IN FIRE SUPPRESSION): The oven-dry weight of fuel per unit area usually 

expressed in tons/acre.

FUEL LOADING: The amount of fuel present expressed by weight of fuel per unit area.

FUEL MOISTURE CONTENT (IN FIRE SUPPRESSION): The water content of a fuel 

expressed as a percentage of the fuel’s oven-dry weight. For dead fuels, which have no living tissue, 

moisture content is determined almost entirely by relative humidity, precipitation, dry-bulb temperature, 

and solar radiation. The moisture content of live fuels is physiologically controlled within the living plant.

FUGITIVE DUST: Dust particles that are introduced into the air through certain actions such as soil 

cultivation or vehicles crossing open fields or driving on dirt roads or trails.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-11 

FUNCTIONING WATERS (WILDLIFE): A well, catchment, spring, reservoir, or other feature 

(human made or natural) that provides a reliable source of potable water on a year-long basis. For such 

a source of water to be considered functional, the quality and quantity of water must be sufficient to 

sustain native wildlife populations in the local area. For example, a reservoir that fills up during monsoon 

rains but goes dry in a few weeks is not functional from a wildlife standpoint.

FUNDAMENTALS OF RANGELAND HEALTH: As Described in 43 CFR 4180, the conditions in 

which (1) rangelands are in proper functioning physical condition, (2) ecological process are supporting 

healthy biotic populations and communities, (3) water quality is meeting state standards and BLM 

objectives, and (4) special status species habitat is being restored or maintained.

GENETIC DIVERSITY: The variation in genes in a population pool that contributes to the ability of 

organisms to evolve and adapt to new conditions.

GEOGRAPHIC INFORMATION SYSTEM (GIS): An information system that integrates, stores, 

edits, analyzes, shares, and displays geographic information for informing decision making.

GOAL: The desired state or condition that a resource management policy or program is designed to 

achieve. Broader and less specific than objectives, goals are usually not measurable and may not have 

specific dates by which they must be reached. Objectives are developed by first understanding one's 

goals. 

GRANT: A document authorizing the use of public or federal lands for the construction, operation, 

maintenance, and termination of a project.

GRAZING CAPACITY (CARRYING CAPACITY): The highest livestock stocking rate possible 

without damaging vegetation or related resources. Grazing capacity may vary from year to year or in the 

same area because of fluctuating forage production.

GRAZING CYCLE: The amount of time required for livestock to rotate completely through all the 

pastures under an allotment management plan.

GRAZING DISTRICT: The specific area within which the public lands are administered under section 

3 of the Taylor Grazing Act of June 1934, as amended (43 USC 315). Public lands outside grazing district 

boundaries are administered under section 15 of the Act.

GRAZING PERMIT/LICENSE/LEASE: A written document authorizing use of the public lands 

within an established grazing district. Grazing permits specify all authorized use, including livestock 

grazing, suspended use, and conservation use. Permits also specify the total number of AUMs 

apportioned, the area authorized for grazing use, or both.

GRAZING PREFERENCE: A superior or priority position against others for the purpose of receiving 

a grazing permit or lease. This priority is attached to base property owned or controlled by the 

permittee or lessee.

GRAZING PRIVILEGES: The use of public land for livestock grazing under permits or leases.
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3-12 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

GRAZING REST: Any period during which no livestock grazing is allowed within an area.

GRAZING SEASON: An established period for which grazing permits are issued.

GRAZING SYSTEM: A systematic sequence of grazing use and non-use of an allotment to meet 

multiple use goals by improving the quality and amount of vegetation.

GROUND COVER: See COVER.

GROUND LITTER: See LITTER.

GROUNDWATER: Subsurface water and underground streams that supply wells and springs. Use of 

groundwater in Arizona does not require a water right, but must only be “reasonable.” Groundwater is 

separated from surface water by the type of alluvium in which the water is found. Water in the younger, 

floodplain alluvium is considered surface water. Water in the older, basin-fill alluvium is considered 

groundwater. 

GROUNDWATER RECHARGE: Adding water to an aquifer, a process that occurs naturally from 

the infiltration of rainfall and from water flowing over earth materials that allow it to infiltrate below the 

land surface.

HABITAT: An area that provides an animal or plant with adequate food, water, shelter, and living 

space.

HABITAT FRAGMENTATION: Process by which habitats are increasingly subdivided into smaller 

units resulting in their increased insularity and losses of total habitat area.

HABITAT MANAGEMENT PLAN: A site-specific wildlife habitat plan.

HAZARDOUS MATERIALS (HAZMAT): An all-encompassing term that includes hazardous 

substances; hazardous waste; hazardous chemical substances; toxic substances; pollutants and 

contaminants; and imminently hazardous chemical substances and mixtures that can pose an 

unreasonable risk to human health, safety, and property.

HERBACEOUS: Of, relating to, or having the characteristics of a vascular plant that does not develop 

woody tissue.

HERD AREA (HA): Geographic areas of the public lands identified as habitat used by wild horses 

and/or wild burros at the time the Wild Free-Roaming Horses and Burros Act of 1971 was enacted.

HERITAGE TOURISM: Programs that seek to stimulate economic development by promoting the 

use of historic properties. Management concerns include ensuring the long-term preservation and 

sustainable use of properties. Best-management practices also encourage economic partnerships 

between the BLM and the state, tribal and local tourism programs.

HIGH POTENTIAL HISTORIC SITE: Those historic sites related to the route of the National 

Historic Trail, or sites in close proximity thereto, which provide opportunity to interpret the historic 
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-13 

significance of the trail during the period of its major use. Criteria for consideration as high potential 

sites include historic significance, presence of visible historic remnants, scenic quality, and relative 

freedom from intrusion. (From Section 12 of The National Trails System Act).

HIGH POTENTIAL ROUTE SEGMENT: Those segments of a trail which would afford high quality 

recreation experience in a portion of the route having greater than average scenic values or affording an 

opportunity to vicariously share the experience of the original users of a historic route. (From Section 

12 of The National Trails System Act).

HISTORICAL SITE: A location that was used or occupied after the arrival of Europeans in North 

America (ca. A.D. 1492). Such sites may consist of physical remains at archaeological sites or areas 

where significant human events occurred, even though evidence of the events no longer remains. They 

may have been used by people of either European or Native American descent.

HYDRIC: Characterized by, relating to, or requiring an abundance of moisture.

HYDROLOGIC CYCLE: The circuit of water movement from the atmosphere to the earth and its 

return to the atmosphere through various stages or processes, such as precipitation, interception, 

runoff, infiltration, percolation, storage, evaporation, and transpiration.

IGNEOUS ROCK: Rock, such as granite and basalt, which has solidified from a molten or partially 

molten state.

IMPLEMENTATION DECISIONS: Decisions that take action to implement land use plan decisions; 

generally appealable to Interior Board of Land Appeals under 43 CFR 4.410.

INDICATORS: Elements of the human environment affected, or potentially affected, by a change 

agent. An indicator can be a structural component, a functional process or an index. A key indicator 

integrates several system elements in such a way as to indicate the general health of that system. 

INFILTRATION: The downward entry of water into the soil or other material.

INFRASTRUCTURE: The set of systems and facilities that support a region or community’s social 

and economic structures. Examples of such systems include energy, transportation, communication, 

education, medical service, and fire and police protection.

INHOLDING: Parcels of land owned or managed by someone other than BLM but surrounded in part 

or entirely by BLM-administered land.

INTERDISCIPLINARY TEAM: A team of varied land use and resource specialists formed to provide 

a coordinated, integrated information base for overall land use planning and management.

INTERESTED PUBLIC: An individual, group, or organization that has submitted a written request to 

the authorized officer to be provided an opportunity to be involved in the decision-making process for 

the management of livestock grazing on specific grazing allotments or has submitted written comments 

to the authorized officer regarding the management of livestock grazing on a specific allotment. 
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3-14 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

INVASIVE SPECIES (INVADERS): Plant species that were either absent or present only in small 

amounts in undisturbed portions of a specific range site’s original vegetation and invade following 

disturbance or continued overuse.

KEY AREA: A key area is a relatively small portion of an allotment selected because of its location, 

proximity to water, livestock and wildlife habitat values, and value as a long-term monitoring point. 

KEY FORAGE SPECIES: Forage species whose use serves as an indicator of the degree of use of 

associated species.

LAND DISPOSAL: A transaction that leads to the transfer of title to public lands from the federal 

government. 

LANDFORM: A discernible natural landscape that exists as a result of geological activity such as a 

plateau, plain, basin, or mountain.

LANDS MANAGED TO PROTECT WILDERNESS CHARACTERISTICS: An allocation 

resulting from a land use plan management decision for the purpose of protecting lands with wilderness 

characteristics. A wider range of actions and activities may be allowed than can occur in designated 

wilderness.

LAND TENURE ADJUSTMENT: The transfer of land or interest in land (e.g., easement) between 

the United States and private individuals, entities, state or local governments.

LAND USE ALLOCATION: The identification in a land use plan of the activities and foreseeable 

development that are allowed, restricted, or excluded for all or part of the planning area, based on 

desired future conditions.

LAND USE AUTHORIZATION (LUA): The BLM’s authorization; through leases, permits, and 

easements; of uses of the public land. Land use authorizations may allow occupancy, recreational 

residences and cabin sites, farming, manufacturing, outdoor recreation concessions, National Guard 

maneuvers, and many other uses.

LAND USE PLAN: A set of decisions that establish management direction for land within an 

administrative area as prescribed under the planning provisions of FLPMA; an assimilation of land-useplan-level decisions developed through the planning process outlined in 43 CFR 1600, regardless of the 

scale at which the decisions were developed. The term includes both Resource Management Plans and 

Management Framework Plans.

LEASABLE MINERALS: Minerals whose extraction from federally managed land requires a lease and 

the payment of royalties. Leasable minerals include coal, oil and gas, oil shale and tar sands, potash, 

phosphate, sodium, and geothermal steam.

LEASE: An authorization to possess and use public lands for a fixed period of time.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-15 

LEAVE NO TRACE: A nationwide (and international) program to help visitors with their decisions 

when they travel and camp on America’s public lands. The program strives to educate visitors about the 

nature of their recreational impacts as well as techniques to prevent and minimize such impacts.

LITTER: The uppermost layer of organic debris on the soil surface, essentially freshly fallen or slightly 

decomposed vegetal material.

LIVESTOCK/KIND OF LIVESTOCK: The species of domestic livestock, i.e., cattle, sheep, horses, 

burros, and goats.

LOCATABLE MINERALS: Minerals that may be acquired under the Mining Law of 1872, as 

amended.

LOCATION: The act of taking or appropriating a parcel of mineral land, including the posting of 

notices, the recording thereof when required, and marking the boundaries so they can be readily traced.

LUA AVOIDANCE AREA: Areas with sensitive resource values where minor linear and non-linear 

land use authorizations would be strongly discouraged and therefore “avoided.”

LUA EXCLUSION AREAS: Areas with sensitive resource values where minor linear and non-linear 

land use authorizations would not be authorized.

MAINTENANCE (ROAD): From BLM 9100 Manual: The work required keeping a facility in such a 

condition that it may be continuously utilized at its original or designed capacity and efficiency, and for 

its intended purposes. Road or trail maintenance actions include (a) signage, (b) minor repairs, e.g. 

correction of drainage, erosion, or vegetation interference problems. Upon performance of condition 

assessment, maintenance could also be construed as (c) allowing road or trail to remain in present state 

for regular and continuous use.

MAINTENTANCE INTENSITIES: Maintenance intensities provide a range of consistent objectives 

and standards for the care and maintenance of BLM routes based on identified management objectives 

consistent with land-use planning resource management objectives. These intensities provide operational 

guidance to field personnel on the appropriate intensity, frequency, and type of maintenance activities 

that should be undertaken to keep the route in acceptable condition and provide guidance for the 

minimum standards of care for the annual maintenance of a route. Four levels of objectives and 

standards are provided which are labeled as follows: Level 0 (routes to remove from transportation 

system), Level 1 (low intensity) , Level 3 (moderate intensity) and Level 5 (high intensity).

MAJOR LINEAR LAND USE AUTHORIZATION: Land use authorizations that include 

transmission lines (consisting of 115 kV or higher), water and gas pipelines (greater than 10 inches in 

diameter), roads (wider than 200 feet), as well as significant canals.

MANAGEMENT ACTIONS/PRACTICES (FROM RANGELAND STANDARDS & 

GUIDES): Actions or practices that improve or maintain basic soil and vegetation resources. Rangeland 

practices typically consist of watershed treatments (planting, seeding, burning, rest, vegetation 

manipulation, grazing management) in an attempt to establish desired vegetation species or communities.
3. Glossary

3-16 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

MANUAL VEGETATION TREATMENTS: The use of hand-operated power tools and hand tools 

to cut, clear, or prune herbaceous and woody plants. In manual treatments, workers cut plants above 

ground level; pull, grub, or dig out plant root systems to prevent later sprouting and regrowth; scalp at 

ground level or remove competing plants around desired vegetation; or place mulch around desired 

vegetation to limit the growth of competing vegetation. Manual vegetation treatments cause less ground 

disturbance and generally remove less vegetation than prescribed fire or mechanical treatments. 

MECHANICAL VEGETATION TREATMENTS: The use of mechanical equipment to suppress, 

inhibit, or control herbaceous and woody vegetation. The BLM uses wheeled tractors, crawler-type 

tractors, mowers, or specially designed vehicles with attached implements for such treatments.

MINERAL ENTRY: The filing of a claim on public land to obtain the right to any minerals it may 

contain. 

MINERALIZATION: Evidence of the presence of minerals.

MINERAL MATERIAL DISPOSAL: The disposal through sale or free use permit of sand, gravel, 

decorative rock, or other materials defined in 43 CFR 3600.

MINERAL MATERIALS: Materials such as common varieties of sand, stone, gravel, pumice, pumicite, 

and clay that are not obtainable under the mining or leasing laws but that can be acquired under the 

Mineral Materials Act of 1947, as amended.

MINING DISTRICT: An area, usually designated by name, with described or understood boundaries, 

where minerals are found and mined under rules prescribed by the miners, consistent with the Mining 

Law of 1872. 

MINOR LINEAR LAND USE AUTHORIZATIONS: Land use authorizations which consist of 

transmission lines (consisting of 115 kV or less), water and gas pipelines (less than 10 inches in 

diameter), roads (less than 200 feet wide), and other minor utility systems.

MONITORING: The periodic observation and orderly collection of information to determine (1) the 

effects of resource management actions by tracking changing resource trends, needs, and conditions; and 

(2) the effectiveness of actions in meeting management objectives.

MOTORIZED TRAIL: A designated route that allows the use of motorcycles.

MULTIPLE USE: A combination of balanced and diverse resource uses that considers long-term 

needs for renewable and nonrenewable resources including recreation, wildlife, rangeland, timber,

minerals, and watershed protection, along with scenic, scientific, and cultural values.

MULTIUSE UTILITY CORRIDOR: The BLM’s preferred route for placing MAJOR LINEAR LAND 

USE AUTHORIZATION for utilities (i.e. pipelines and power lines) and transportation (i.e. highways and 

railroads).

NATIONAL ENVIRONMENTAL POLICY ACT (NEPA): The federal law, effective January 1, 

1970, that established a national policy for the environment and requires federal agencies to become 
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-17 

aware of the environmental ramifications of their proposed actions, to fully disclose to the public 

proposed federal actions and provide a mechanism for public input to federal decision-making, and to 

prepare environmental impact statements for every major action that would significantly affect the 

quality of the human environment.

NATIONAL HISTORIC PRESERVATION ACT OF 1966, AS AMENDED (NHPA): A federal 

statute that established a federal program to further the efforts of private agencies and individuals in 

preserving the Nation’s historic and cultural foundations. The National Historic Preservation Act 

authorized the National Register of Historic Places, established the Advisory Council on Historic 

Preservation and a National Trust Fund to administer grants for historic preservation, and authorized 

the development of regulations to require federal agencies to consider the effects of federally assisted 

activities on properties included on or eligible for the National Register of Historic Places.

NATIONAL HISTORIC TRAIL: One of the three categories of national trails defined in the 

National Trails System Act of 1968 that can only be established by act of Congress and are administered 

by federal agencies, although part or all of the land base may be owned and managed by others. National 

historic trails are generally more than 100 miles long and follow as closely as possible and practicable the 

original trails or routes of travel of national historic significance. Their purpose is identifying and 

protecting the historic route and its remnants and artifacts for public use and enjoyment.

NATIONAL HISTORIC TRAIL CORRIDOR CONCEPT: Federal Trails Data Standards (FTDS) 

have been developed in order to describe several types of components of National Historic Trails. The 

codes NHT1, NHT2, and NHT3 are the labels used to describe these aspects. The National Historic Trail 

corridor may be comprised of two or even three of these aspects. 

NHT1 is defined as the congressionally designated NHT route and any associated NHT heritage sites. 

NHT2 is defined as the historic route and sites where history occurred. 

NHT3 is defined as the recreation aspect of the National Trail: where the trail and/or sites can be used 

for interpretive and recreational purposes.

NATIONAL HISTORIC TRAIL MANAGEMENT AREA: This is an allocation based on the 

congressionally designated NHT route (NHT1), BLM inventories, and GIS view shed analysis. A National 

Historic Trail Management Area encompasses the area identified along a portion of the National 

Historic Trail that meets certain criteria. The area must include a segment of National Historic Trail that 

qualifies as a “high potential route segment” and/ or has a “high potential historic site” within or along it 

(NHT2). The width of the National Historic Trail Management Area is defined as an area extending to 

the visual horizon from the NHT corridor on either side.

NATIONAL MONUMENT: An area designated to protect objects of scientific and historic interest 

by public proclamation of the President under the Antiquities Act of 1906, or by Congress for historic 

landmarks, historic and prehistoric structures, or other objects of historic or scientific interest on public 

lands. Designation also provides for the management of these features and values.
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3-18 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

NATIONAL REGISTER DISTRICT: A group of significant archaeological, historical, or architectural 

sites, within a defined geographic area, that is listed on the National Register of Historic Places. 

NATIONAL REGISTER ELIGIBLE PROPERTIES: Cultural resource properties that meet the 

National Register criteria and have been determined eligible for nomination to the National Register of 

Historic Places because of their local, state, or national significance. Eligible properties generally are 

older than 50 years and have retained their integrity. They meet one or more of four criteria- (a) 

associated with events that have made a significant contribution to the broad patterns of our history; (b) 

associated with the lives of persons significant in our past; (c) embody the distinctive characteristics of a 

type, period, or method of construction, or that represent the work of a master; and (d) have yielded, 

or may be likely to yield, information important in prehistory or history. 

NATIONAL REGISTER OF HISTORIC PLACES: The official list, established by the National 

Historic Preservation Act, of the Nation’s cultural resources worthy of preservation. The National 

Register lists archeological, historic, and architectural properties (i.e. districts, sites, buildings, structures, 

and objects) nominated for their local, state, or national significance by state and federal agencies and 

approved by the National Register Staff. The NPS maintains the National Register.

NATIONAL WILD AND SCENIC RIVERS SYSTEM: A system of nationally designated rivers 

and their immediate environments that have outstanding scenic, recreational, geologic, fish and wildlife, 

historical, cultural, and other similar values and are preserved in a free-flowing condition. The system 

consists of three types of streams- (1) recreation—rivers or sections of rivers that are readily accessible 

by road or railroad and that may have some development along their shorelines and may have 

undergone some impoundments or diversion in the past, (2) scenic—rivers or sections of rivers free of 

impoundments with shorelines or watersheds still largely undeveloped but accessible in places by roads, 

and (3) wild—rivers or sections of rivers free of impoundments and generally inaccessible except by 

trails with watersheds or shorelines essentially primitive and waters unpolluted.

NATIVE DIVERSITY: The diversity of species that have evolved in a given place without human 

influence.

NATIVE SPECIES: A species that is part of an area’s original flora and fauna.

NITROGEN OXIDES (OXIDES OF NITROGEN, NO2): A general term for compounds of nitric 

oxide (NO), nitrogen dioxide (NO2), and other oxides of nitrogen. Nitrogen oxides are typically created 

during combustion and are major contributors to smog formation and acid deposition. NO2 is a criteria 

air pollutant and may have many adverse health effects.

NON-ATTAINMENT AREA: An area in which the level of a criteria air pollutant is higher than the 

level allowed by the federal standards. A single area may have acceptable levels of one criteria air 

pollutant but unacceptable levels of one or more other criteria air pollutants. Therefore, an area can be 

both attainment and nonattainment at the same time.

NON-FUNCTIONAL: Riparian-wetland areas are considered to be in nonfunctioning condition when 

they don't provide adequate vegetation, landform, or large woody debris to dissipate stream energy 

associated with high flows and thus are not reducing erosion, improving water quality, or other normal 
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-19 

characteristics of riparian areas. The absence of certain physical attributes, such as a flood plain where 

one should be, is indicators of nonfunctioning conditions.

NON-LINEAR LAND USE AUTHORIZATIONS: LUAs that are not linear in fashion and do not 

exceed five acres of total surface disturbance. These LUAs do not produce or store more than 100

MW.

NOXIOUS WEED: The Federal Noxious Weed Act, 1974 (PL 930629) defines a noxious weed as, 

“any living stage (including seeds and reproductive parts) of a parasitic or other plant of a kind which is 

of foreign origin, is new to or not widely prevalent in the US, and can directly or indirectly injure crops, 

other useful plants, livestock, poultry or other interests of agriculture, including irrigation, navigation, 

fish and wildlife resources, or the public health.”

OBJECTIVES: The planned results to be achieved within a stated time period. Objectives are 

subordinate to goals, narrower in scope, and shorter in range. Objectives must specify time periods for 

completion, and products or achievements that are measurable. See also GOAL.

OBLIGATE: Essential, necessary, unable to exist in any other state, mode, or relationship.

OFF-HIGHWAY VEHICLE (OHV): Any motorized vehicle capable of, or designed for, travel on or 

immediately over land, water, or other natural terrain, excluding: (1) any non-amphibious registered 

motorboat; (2) any military, fire, emergency, or law enforcement vehicle while being used for emergency 

purposes; (3) any vehicle whose use is expressly authorized by the authorized officer, or otherwise 

officially approved; (4) vehicles in official use; and (5) any combat or combat support vehicle when used 

for national defense.

OFF ROAD: Cross country travel between designated routes.

ON ROAD: Travelling on designated routes.

PALEONTOLOGICAL RESOURCES: The remains of plants and animals preserved in soils and 

sedimentary rock. Paleontological resources are important for understanding past environments, 

environmental change, and the evolution of life.

PARTICULATE MATTER: Fine liquid or solid particles suspended in the air and consisting of dust, 

smoke, mist, fumes, and compounds containing sulfur, nitrogen, and metals. Also see PM2.5

PARTICULATES and PM10 PARTICULATES.

PASSAGE SETTING: Passage setting provides a motorized travel corridor traversing the Back 

Country setting. This corridor is 200 feet wide (100 feet each side), centered on a motorized travel 

route designated for public use, and is available for management infrastructure in response to resource 

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

moderate alterations over the life of the land use plan due to land use authorizations and BLM 

management actions.

PASTURE: A grazing area that is separated from other areas by fencing or natural barriers.
3. Glossary

3-20 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

PERENNIAL PLANT: A plant that has a life cycle of three or more years. Also see ANNUAL 

PLANT.

PERENNIAL STREAM: A stream that flows from source to mouth throughout the year; a stream 

that normally has water in its channel at all times.

PERMIT: A short-term revocable authorization to use public lands for specified purposes.

PERMITTED USE: The forage allocated by, or under the guidance of, an applicable resourcemanagement plan for livestock grazing in an allotment under a permit or lease and is expressed in animal 

unit months (AUMs).

PERMITTEE: A person or company permitted to graze livestock or conduct commercial recreation 

on public land.

PLANNING CRITERIA: The standards, rules, and other factors developed by managers and 

interdisciplinary teams for their use in forming judgments about decision making, analysis and data 

collection during planning. Planning criteria streamline and simplify the resource management planning 

actions. 

PLANT SUCCESSION: The process of vegetation development by which an area becomes 

successively occupied by different plant communities of higher ecological order.

PLANT VIGOR: The relative wellbeing and health of a plant as reflected by its ability to manufacture 

enough food for growth and maintenance.

PM10 PARTICULATES: A criteria air pollutant consisting of small particles with an aerodynamic 

diameter of 10 microns or less. Their size allows them to enter the air sacs deep within the lungs where 

they may be deposited in have adverse health effects. These particles include dust, soot, and other tiny 

bits of solid materials in the air.

PM2.5 PARTICULATES: Tiny particles with an aerodynamic diameter of 2.5 microns or less. These 

particles penetrate most deeply into the lungs.

POPULATION: A group of interbreeding organisms of the same kind occupying a particular space; a 

group of individuals of a species living in a certain area.

POTENTIAL NATURAL COMMUNITY (PNC): The stable biotic community that would become 

established on an ecological site if all succession stages were completed without human interference 

under present environmental conditions. The PNC is the vegetation community best adapted to fully 

use the resources of an ecological site.

PRESCRIBED FIRE (BURNING): The planned applying of fire to rangeland vegetation and fuels 

under specified conditions of fuels, weather, and other variables to allow the fire to remain in a 

predetermined area to achieve such site-specific objectives as controlling certain plant species; 

enhancing growth, reproduction, or vigor of plant species; managing fuel loads; and managing vegetation 

community types.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-21 

PRIMITIVE RECREATION: Recreation that provides opportunities for isolation from the evidence 

of humans, a vastness of scale, feeling a part of the natural environment, having a high degree of 

challenge and risk, and using outdoor skills. Primitive recreation is characterized by meeting nature on 

its own terms, without comfort or convenience of facilities.

PRIMITIVE ROAD: A linear route managed for use by four-wheel drive or high-clearance vehicles. 

Primitive roads do not normally meet any BLM road design standards.

PRIMITIVE ROUTE: Any transportation linear feature located within areas that have been identified 

as having wilderness characteristics and not meeting the wilderness inventory road definition. 

PRIORITY HABITAT: Includes fish and wildlife habitats requiring protective measures and/or 

management guidelines to ensure habitat availability.

PRIORITY WILDLIFE SPECIES: Includes fish and wildlife species requiring protective measures 

and/or management guidelines to ensure their perpetuation. Moreover, priority wildlife species includes 

State Endangered, Threatened, Sensitive, and Candidate species; animal aggregations considered 

vulnerable; and those species of recreational, commercial, or tribal importance that are vulnerable.

PROPERLY FUNCTIONING CONDITION: Riparian-wetland areas are functioning properly when 

enough vegetation, landform, or large woody debris is present to dissipate stream energy associated 

with high water flows, thereby reducing erosion and improving water quality; filter sediment, capture 

bed-load, and aid floodplain development; improve floodwater retention and groundwater recharge; 

develop root masses that stabilize stream banks against cutting action; develop diverse ponding and 

channel characteristics to provide the habitat and the water depth, duration, and temperature necessary 

for fish production, waterfowl breeding, and other uses; and support greater biodiversity. The 

functioning condition of riparian-wetland areas is influenced by geomorphic features, soil, water, and 

vegetation. 

Uplands function properly when the existing vegetation and ground cover maintain soil conditions 

capable of sustaining natural biotic communities. The functioning condition of uplands is influenced by 

geographic features, soil, water, and vegetation.

PUBLIC LANDS: Land or interest in land owned by the United States and administered by the 

Secretary of the Interior through the BLM without regard to how the United States acquired ownership, 

except lands located on the Outer Continental Shelf, and land held for the benefit of Indians, Aleuts, and 

Eskimos.

RANGE IMPROVEMENT: An authorized physical modification or treatment which is designed to 

improve production of forage; change vegetation composition; control patterns of use; provide water; 

stabilize soil and water conditions; restore, protect and improve the condition of rangeland ecosystems 

to benefit livestock, wild horses and burros, and fish and wildlife. Range improvements may be structural 

or nonstructural. A structural improvement requires placement or construction to facilitate the 

management or control the distribution and movement of animals. Such improvements may include 

fences, wells, troughs, reservoirs, pipelines, and cattle guards. Nonstructural improvements consist of 

practices or treatments that improve resource conditions. Such improvements include seedings; 
3. Glossary

3-22 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

chemical, mechanical, and biological plant control; prescribed burning; water spreaders; pitting; chiseling; 

and contour furrowing.

RANGELAND: A kind of land on which the native vegetation, climax, or natural potential consists 

predominately of grasses, grass like plants, forbs, or shrubs. Rangeland includes lands revegetated 

naturally or artificially to provide a plant cover that is managed like native vegetation. Rangelands may 

consist of natural grasslands, savannas, shrub lands, moist deserts, tundra, alpine communities, coastal 

marshes, and wet meadows. 

RANGELAND STUDIES: Any study methods accepted by the authorized officer for collecting data 

on actual use, utilization, climatic conditions, other special events, and trends to determine whether 

management objectives are being met.

RAPTORS: Birds of prey.

RECORD OF DECISION: A document signed by a responsible official recording a decision that was 

preceded by the preparing of an environmental impact statement.

RECREATIONAL TARGET SHOOTING: The discharge of any firearm for any lawful, recreational 

purpose other than the lawful taking of a game animal. Recreational target shooting does not include 

firearms use employed in accordance with state hunting regulations and policy regarding recreational 

target shooting does not apply to hunters in pursuit of game with firearms that are being employed in 

accordance with such regulations.

RECREATION AND PUBLIC PURPOSES ACT of 1926 (44 Stat. 741, as amended; 43 USC 869 

et seq.): An act of Congress that allows lease or acquisition of public land to be used for recreation or 

public purposes by local government entities (county or city governments) and nonprofit organizations.

RECREATION EXPERIENCES: Psychological outcomes realized either by recreation-tourism 

participants as a direct result of their onsite leisure engagements and recreation-tourism activity 

participation or by non-participating community residents as a result of their interaction with visitors 

and guests within their community and/or interaction with the BLM and other public and private 

recreation-tourism providers and their actions.

RECREATION MANAGEMENT ZONES (RMZs): Subunits within a special recreation 

management area or ERMA managed for distinctly different recreation products. Recreation products 

are comprised of recreation opportunities, the natural resource and community settings within which 

they occur, and the administrative and service environment created by all affecting recreation-tourism 

providers, within which recreation participation occurs.

RECREATION NICHE: The place or position within the strategically targeted recreation-tourism 

market for each special recreation management area that is most suitable (i.e., capable of producing 

certain specific kinds of recreation opportunities) and appropriate (i.e., most responsive to identified 

visitor or resident customers), given available supply and current demand, for the production of specific 

recreation opportunities and the sustainable maintenance of accompanying natural resource and/or 

community setting character.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-23 

RECREATION OPPORTUNITIES: Favorable circumstances enabling visitors’ engagement in a 

leisure activity to realize immediate psychological experiences and attain more lasting, value-added 

beneficial outcomes.

RECREATION OPPORTUNITY SPECTRUM (ROS): One of the existing tools for classifying 

recreation environments (existing and desired) along a continuum ranging from primitive, low-use, and 

inconspicuous administration to urban, high-use, and a highly visible administrative presence. This 

continuum recognizes variation among various components of any landscape’s physical, social and 

administrative attributes; and resulting descriptions (of existing conditions) and prescriptions (of desired 

future conditions) define recreation setting character. Descriptions of settings follow:

Primitive:

• Remoteness: An area designated by a line generally 3 miles from all open roads, railroads, and 

motorized trails.

• Evidence of Humans: Setting is essentially an unmodified natural environment. Evidence of 

humans would be unnoticed by an observer wandering through the area.

• Evidence of trails is acceptable but should not exceed standard to carry expected use.

• Structures are extremely rare.

• Social: Usually less than six parties per day encountered on trails and less than three parties 

visible at campsites.

• Managerial: Onsite regimentation is low with controls primarily offsite.

Semi-primitive Non-motorized: 

• Remoteness: An area designated by a line generally 1⁄2 mile from any road, railroad, or trail open 

to public motorized use. (The guideline for applying the 1⁄2 mile criterion is to use 1⁄2 mile except 

where topographic or physical features closer than 1⁄2 miles adequately screen out the sights and 

sounds of humans and make access more difficult and slower. For example, if a ridge is 1⁄4 mile 

from the road, use the ridge instead of the 1⁄2 mile.) 

• Any roads, railroads, or trails within the semi-primitive non-motorized areas will have the 

following characteristics:

• Closed to public motorized use, and 

• Are reclaimed, or in the process of reclaiming (when reclaiming will harmonize with the natural 

appearing environment). Some examples are old logging roads, old railroad beds, old access 

routes to abandoned campsites, temporary roads, and gated roads that are used for occasional 

administrative access.

• Evidence of Humans: Natural setting may have subtle modifications that would be noticed but 

not draw the attention of an observer wandering through the area.

• Little or no evidence of primitive roads and the motorized use of trails and primitive roads.

• Structures are rare and isolated.

• Social: Usually 6-15 parties per day encountered on trails and six or fewer parties visible from 

campsite. 

• Managerial: Onsite regimentation and controls present but subtle.
3. Glossary

3-24 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Semi-Primitive Motorized:

• Remoteness: An area designed by a line generally 1⁄2 mile from open better than primitive roads. 

(The guideline for applying the 1⁄2 mile criterion is to consistently use 1⁄2 mile where topographic 

or physical features closer than 1⁄2 mile adequately screen out the sights and sounds of humans, 

e.g. a ridge 1⁄4 mile from the road).

• Contains open primitive roads that are not maintained for the use of standard passenger-type 

vehicles, normally OHVs and high-clearance vehicles, e.g. an old pickup with high clearance. 

These open roads are generally tracks, ruts, or rocky-rough surface and upgraded and not 

drained. The roadbeds and cuts are mostly vegetated with grass or native material unless they 

are too rocky for vegetation. The roads harmonize with the natural environment. Examples 

include old logging roads from before specified road years, old revegetated railroad beds, old 

access roads to abandoned home-sites, temporary logging roads that are revegetated, and low 

standard administrative roads (normally used for access to wildlife openings).

• Evidence of Humans: Natural setting may have moderately dominant alterations but would not 

draw the attention of motorized observers on trails and primitive roads within the area. Any 

closed improved roads must be managed to revegetate and harmonize with the natural 

environment. 

• Strong evidence of primitive roads and the motorized use of trails and primitive roads.

• Structures are rare and isolated.

• Social: Low to moderate contact frequency.

• Managerial: Onsite regimentation and controls present but subtle.

Roaded Natural:

• Remoteness: No criteria.

• Evidence of Humans: Natural setting may have modifications, which range from being easily 

noticed to strongly dominant to observers within the area. But from sensitive travel routes and 

use areas these alterations would remain unnoticed or visually subordinate.

• There is strong evidence of designed roads, highways, or both.

• Structures are generally scattered, remaining visually subordinate or unnoticed to the sensitive 

travel route observer. Structures may include utility corridors or microwave installations.

• Social: Frequency of contact is- Moderate to High on roads; Low to Moderate on trails and away 

from roads.

• Managerial: Onsite regimentation and controls are noticeable but harmonize with the natural 

environment. 

Rural:

• Remoteness: No criteria.

• Evidence of Humans: Natural setting is culturally modified to the point that it is dominant to the 

sensitive travel route observer. This setting may include pastoral, agricultural, intensively 

managed wild landscapes, or utility corridors. Pedestrian or other slow-moving observers are 

constantly within view of culturally changed landscape.

• There is strong evidence of designed roads, highways, or both.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-25 

• Structures are readily apparent and may range from scattered to small dominant clusters, 

including utility corridors, farm buildings, microwave installations, and recreation sites.

• Social: Frequency of contact is: Moderate to High developed sites, on roads and trails, and water 

surfaces; Moderate away from developed sites.

• Managerial: Regimentation and controls obvious and numerous, largely in harmony with the 

human-made environment.

Urban:

• Remoteness: No criteria.

• Evidence of Humans: Setting is strongly structure dominated. Natural or natural appearing 

elements may play an important role but be visually subordinate. Pedestrian and other slow 

moving observers are constantly within view of artificial enclosure of spaces.

• There is strong evidence of designed roads and/or highways and streets.

• Structures and structure complexes are dominant. 

• Social: Large numbers of users onsite and in nearby areas.

• Managerial: Regimentation and controls obvious and numerous.

RECRUITMENT: The increase in population caused by natural reproduction or immigration.

RENEWABLE ENERGY: Energy which comes from natural resources such as sunlight, wind, rain, 

tides, and geothermal heat, which are renewable (naturally replenished).

RESOURCE ADVISORY COUNCIL (RAC): A citizen-based group of 10 to 15 members chartered 

under the Federal Advisory Committee Act and appointed by the secretary of the interior to forward 

advice on public land planning and management issues to the BLM. Council membership reflects a 

balance of various interests concerned with the management of the public lands and users of the public 

lands.

RESOURCE MANAGEMENT PLAN (RMP): The Federal Land Policy and Management Act (43 

CFR 1601.0-5 (k)) details the form and contents of an RMP. It generally establishes that the document 

will provide guidance on: 

• Land areas for limited, restricted or exclusive use; designation, including ACEC designation; and 

transfer from Bureau of Land Management Administration;

• Allowable resource uses (either singly or in combination) and related levels of production or 

use to be maintained;

• Resource condition goals and objectives to be attained;

• Program constraints and general management practices needed to achieve the above items;

• Need for an area to be covered by more detailed and specific plans;

• Support action, including such measures as resource protection, access development, realty 

action, cadastral survey, etc., as necessary to achieve the above;

• General implementation sequences, where carrying out a planned action is dependent upon 

prior accomplishment of another planned action; and

• Intervals and standards for monitoring and evaluating the plan to determine the effectiveness of 

the plan and the need for amendment or revision.
3. Glossary

3-26 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

• It is not a final implementation decision on actions which require further specific plans, process 

steps, or decisions under specific provisions of law and regulations.

REST: See GRAZING REST.

RESTORATION (CULTURAL RESOURCE): The process of accurately reestablishing the form 

and details of a property or portion of a property together with its setting, as it appeared in a particular 

period of time. Restoration may involve removing later work that is not in itself significant and replacing 

missing original work. Also see STABILIZATION (CULTURAL RESOURCE).

REST-ROTATION GRAZING: A grazing system in which one part of the range is ungrazed for an 

entire grazing year or longer while other parts are grazed for a portion or all of a growing season. 

Distinguished from deferment, in which non-use occurs only during part of the grazing season (see 

DEFERMENT).

RIGHT-OF-WAY: A permit or easement that authorizes the use of lands for certain specified 

purposes, commonly for pipelines, roads, telephone lines, or power lines.

RIPARIAN: Pertaining to or situated on or along the bank of streams, lakes, and reservoirs.

RIPARIAN AREA: A form of wetland transition between permanently saturated wetlands and upland 

areas. Riparian areas exhibit vegetation or physical characteristics that reflect the influence of permanent 

surface or subsurface water. Typical riparian areas include lands along, adjacent to, or contiguous with 

perennially and intermittently flowing rivers and streams, glacial potholes, and the shores of lakes and 

reservoirs with stable water levels. Excluded are ephemeral streams or washes that lack vegetation and 

depend on free water in the soil.

ROAD (Travel Management definition): A linear route declared a road by the owner, managed for 

used by low-clearance vehicles having four or more wheels, and maintained for regular and continuous 

use.

ROAD (Wilderness Inventory definition): A route that has been improved and maintained by 

mechanical means to insure relatively regular and continuous use. Refer to BLM IM 2011-154, 

Attachment 1 for additional description of this definition.

ROADSIDE: A general term denoting the area adjoining the outer edge of the road.

ROTATIONAL GRAZING: A grazing system that involves scheduled movement of grazing animals 

from one pasture to another. Utilizing rotational grazing can improve livestock distribution while 

incorporating rest period for new forage.

ROUTE: represents a group or set of roads, trails, and primitive roads that represents the BLM 

transportation system. Generically, components of the transportation system are described as “routes”.

RUNOFF: Precipitation, snow melt or irrigation water that appears in uncontrolled surface streams or 

rivers.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-27 

SALABLE MINERALS: Common variety minerals on public lands, such as sand and gravel, which are 

used mainly for construction and are disposed of by sales or special permits to local governments.

SCIENTIFIC DATA RECOVERY: See CULTURAL RESOURCE DATA RECOVERY.

SCOPING: An early and open process for determining the scope of issues to be addressed in an 

environmental impact statement and the significant issues related to a proposed action.

SEASONAL GRAZING: A grazing system that allows livestock grazing on a particular area for only 

part of the year.

SEASON OF USE: The time period when livestock grazing is permitted on a given range area as 

specified in the grazing permit.

SECTION: 640 acres, 1 mile square.

SECTION 2920 PERMIT: Revocable authorizations, for up to three years to permit land uses that 

involve either little or no land improvement or construction, or investment which can be amortized 

within the terms of the permit. A permit conveys no possessory interest. The authorized officer may 

renew it at his/her discretion or revoke it in accordance with its terms or the provisions of 43 CFR 

2920.9-3. There are no limitations on the amount of land that maybe included in a permit; however, the 

area should be limited to the size justified.

SECTION 7 CONSULTATION: The requirement of Section 7 of the ESA that all federal agencies 

consult with the US Fish and Wildlife Service or the National Marine Fisheries Service if a proposed 

action might affect a federally listed species or its critical habitat. 

SEDIMENT: Solid material that originates mostly from disintegrated rocks and is transported by, 

suspended in, or deposited from water. Sediment includes chemical and biochemical precipitates and 

decomposed organic material such as humus.

SEDIMENTARY ROCKS: Rocks, such as sandstone, limestone, and shale, that are formed from 

sediments or transported fragments deposited in water.

SEDIMENTATION: The process or action of depositing sediment. 

SEDIMENT LOAD (SEDIMENT DISCHARGE): The amount of sediment, measured in dry weight 

or by volume, which is transported through a stream cross-section in a given time. Sediment load 

consists of sediment suspended in water and sediment that moves by sliding, rolling, or bounding on or 

near the streambed.

SEDIMENT TRANSPORT: The movement of mineral and organic solid materials in a stream.

SEDIMENT YIELD: The amount of sediment removed from a watershed over a specified period, 

usually expressed as tons, acre-feet, or cubic yards of sediment per unit of drainage area per year.

SEEPS: Wet areas, normally not flowing, arising from an underground water source.
3. Glossary

3-28 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

SENSITIVE SOILS: Soil types prone to erosion, such as from surface disturbing activities and vehicle 

use, and have a low soil loss tolerance rate. A tolerable soil loss is the maximum annual amount of soil, 

which can be removed before the long term natural soil productivity is adversely affected based on the 

Universal Soil Loss Equation (USLE) (Ontario Ministry of Agriculture, Food and Rural Affairs web site, 

http://www.omafra.gov.on.ca/english/engineer/facts/00-001.htm last visited 2/21/2012).

SHOULDER: The portion of the roadway contiguous to the travel way for accommodation of stopped 

vehicles.

SIKES ACT OF 1974: A federal law that promoted federal-state cooperation in managing wildlife 

habitats on both BLM and Forest Service lands. The act requires BLM to work with state wildlife 

agencies to plan the development and maintenance of wildlife habitats and has as its main tool the 

habitat management plan.

SOIL ERODIBILITY: The predisposition of a particular soil to be transported by wind or water if it is 

disturbed and exposed to the elements.

SOIL INFILTRATION: The ability of soil to absorb moisture that falls on it as precipitation.

SOIL MOISTURE STORAGE: The water content stored in a soil.

SOIL PRODUCTIVITY: The capacity of a soil in its normal environment to produce a specified plant 

or sequence of plants under a specified system of management. 

SOIL STABILITY: A qualitative term used to describe a soil’s resistance to change. Soil stability is 

determined by intrinsic properties such as aspect, depth, elevation, organic matter content, parent 

material, slope, structure, texture, and vegetation. 

SOIL STRUCTURE: The physical constitution of soil material as expressed by size, shape, and the 

degree of development of primary soil particles and voids into naturally or artificially formed structural 

units.

SPECIAL CULTURAL RESOURCE MANAGEMENT AREA (SCRMA): An area containing 

cultural resources that are of special importance for public use, scientific use, traditional use or other 

uses as defined in BLM Manual 8110.4.

SPECIAL RECREATION MANAGEMENT AREAS (SRMAs): A public lands unit identified in 

land use plans to direct recreation funding and personnel to fulfill commitments made to provide 

specific, structured recreation opportunities (i.e., activity, experience, and benefit opportunities). Both 

land use plan decisions and subsequent implementing actions for recreation in each special recreation 

management area are geared to a strategically identified primary market: destination, community, or are 

undeveloped.

SPECIAL RECREATION PERMIT (SRP): An authorization that allows for specific nonexclusive 

permitted recreational uses of the public lands and related waters. SRPs are issued to control visitor 

use, protect recreational and natural resources, provide for the health and safety of visitors, and 

accommodate commercial recreational uses.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-29 

SRP TYPES AND DEFINITIONS: 

Commercial Use: The activity, service, or use is commercial if: 

• Any person, group, or organization makes or attempts to make a profit, receive money, 

amortize equipment, or obtain goods or services, as compensation from participants in 

recreational activities occurring on public lands led, sponsored, or organized by that person, 

group, or organization;

• Anyone collects a fee or receives other compensation that is not strictly a sharing of actual 

expenses, or exceeds actual expenses, incurred for the purposes of the activity, service, or use;

• There is paid public advertising to seek participants; or 

• Participants pay for a duty of care or an expectation of safety.

Competitive Use: Any organized, sanctioned, or structured use, event, or activity on public land in which 

two or more contestants compete and either or both of the following elements apply:

• Participants register, enter, or complete an application for the event;

• A predetermined course or area is designated;

• Or, one or more individuals contesting an established record such as for speed or endurance.

Organized Group Activity and Event Use: A structured, ordered, consolidated, or scheduled event on, 

or occupation of, public lands for the purpose of recreational use that is not commercial or competitive.

Vending: The sale of goods or services, not from a permanent structure, associated with recreation on 

the public lands or related waters, such as food, beverages, clothing, firewood, souvenirs, filming or 

photographs (video or still), or equipment repairs.

SPECIAL STATUS SPECIES: Plant or animal species listed as threatened, endangered, candidate, or 

sensitive by federal or state governments. By policy, the BLM has certain responsibilities for all special 

status species. BLM sensitive species are not covered by any other “safety net” of status designation; 

therefore, the Arizona BLM Sensitive Species List does not include species that are already federally 

listed or state listed.

SPLIT-ESTATE: Land whose surface rights and mineral rights are owned by different entities.

STABILIZATION (CULTURAL RESOURCE): Protective techniques usually applied to structures 

and ruins to keep them in their existing condition, prevent further deterioration, and provide structural 

safety without significant rebuilding. Capping mud-mortared masonry walls with concrete mortar is an 

example of a stabilization technique. Also see RESTORATION (CULTURAL RESOURCE).

STABILIZATION (SOIL): Chemical or mechanical treatment to increase or maintain the stability of 

a mass of soil or otherwise improve its engineering properties.

STAGING AREA: An area where participants in an activity gather and make final preparations for the 

activity.
3. Glossary

3-30 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

STANDARDS AND GUIDELINES FOR RANGELAND HEALTH: See ARIZONA 

STANDARDS FOR RANGELAND HEALTH AND GUIDELINES FOR GRAZING ADMINISTRATION.

STANDARD TERMS AND CONDITIONS: Areas may be open to leasing or available for 

permitted uses with no specific management decisions defined in a Resource Management Plan; 

however, these areas are subject to lease or permit terms and conditions as defined on the lease form 

(Form 3100-11, Offer to Lease and Lease for Oil and Gas; and Form 3200-24, Offer to Lease and Lease 

for Geothermal Resources) or land use authorization permit. 

STATE HISTORIC PRESERVATION OFFICER (SHPO): The official within and authorized by 

each state at the request of the Secretary of the Interior to act as liaison for the National Historic 

Preservation Act. Also see NATIONAL HISTORIC PRESERVATION ACT OF 1966, AS AMENDED 

(NHPA).

STIPULATION: A condition of lease or permit issuance that provides a level of protection for other 

resource values or land uses by restricting surface disturbing activities during certain times or locations 

or to avoid unacceptable impacts, to an extent greater than standard lease terms or regulations. A 

stipulation is an enforceable term of the lease contract or land use authorization, supersedes any 

inconsistent provisions of the standard lease form, and is attached to and made a part of the lease or 

permit. Stipulations further implement BLM’s regulatory authority to protect resources or resource 

values. Stipulations are developed through the land use planning process.

STOCKING RATE: The number of specific kinds and classes of animals grazing or using a unit of land 

for a specific time period. Stocking rates may be expressed as a ratio, such as of animal units/section, 

acres/animal unit, or acres/animal unit month.

STOCK TANK (POND): A water impoundment created by building a dam, digging a depression, or 

both, to provide water for livestock or wildlife. 

STREAM BANK: The portion of a stream channel that restricts the sideward movement of water at 

normal water levels. The stream bank’s gradient often exceeds 45° and exhibits a distinct break in slope 

from the stream bottom.

STREAM BANK STABILITY: A stream bank’s relative resistance to erosion, which is measured as a 

percentage of alteration to stream banks.

STRUCTURAL DIVERSITY: The diversity of the composition, abundance, spacing, and other 

attributes of plants in a community.

SUBSURFACE: Of or pertaining to rock or mineral deposits which generally are found below the 

ground surface.

SUCCESSION: See PLANT SUCCESSION.

SUPPLEMENTAL WILDERNESS VALUES: Resources not required for an area to be designated 

a wilderness but that are considered in assessing an area’s wilderness potential. Such values include 

ecological, geologic, and other features of scientific, educational, scenic, or historical value.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-31 

SURFACE-DISTURBING ACTIVITY: Surface-disturbing activities are those that normally result in 

more than negligible disturbance to public lands and accelerate the natural erosive process. Surface 

disturbance may, but does not always, require reclamation. These activities normally involve use or 

occupancy of the surface, cause disturbance to soils and vegetation, and are usually caused by motorized 

or mechanical actions. They include, but are not limited to: the use of mechanized earth-moving 

equipment; truck-mounted drilling and seismic exploration equipment; off-road vehicle travel in areas 

designated as limited or closed to off-road vehicle use; vegetation treatments; construction of facilities 

such as power lines, pipelines, oil and gas wells; recreation sites, improvements for range and wildlife; 

new road construction; and use of pyrotechnics and explosives. Surface disturbance is not normally 

caused by casual-use activities. Activities that are not considered surface-disturbing include, but are not 

limited to: livestock grazing, cross-country hiking, minimum impact filming, and vehicular travel on 

designated routes.

TAKE: As defined by the ESA, “to harass, harm, pursue, hunt, shoot, wound, kill, capture, or collect, or 

attempt to engage in any such conduct.”

TARGET SPECIES: Plant species to be reduced or eliminated by a vegetation treatment. 

TEMPORARY NON-USE: The authorized withholding, on an annual basis, of all or a portion of 

permitted livestock use in response to a request of the permittee or lessee.

TERMS AND CONDITIONS: Stipulations contained in livestock grazing permits and leases as 

determined by the authorized officer to be appropriate to achieve management and resource condition 

objectives for the public lands and other lands administered by BLM and to achieve standards for 

rangeland health and ensure conformance with guidelines for grazing administration. See also 

STANDARD TERMS AND CONDITIONS.

THREATENED SPECIES: Any plant or animal species likely to become endangered within the 

foreseeable future throughout all or a part of its range and designated by the U.S. Fish and Wildlife 

Service under the ESA. Also see ENDANGERED SPECIES.

TINAJA: A small pool in a rocky hollow, usually along an ephemeral water course where it runs 

through exposed bedrock that holds water into the dry season.

TRAIL: (Interagency definition) Linear route managed for human powered, stock, or off highway vehicle 

forms of recreation or for historic or heritage values. Trails are not generally managed for use by four 

wheel drive or high clearance vehicles.

Sonoran Desert National Monument Trail Definition: Linear route managed for foot, horseback, and 

pack stock. Motorized and mechanized forms of travel are prohibited, except for wheeled game carriers 

and handcarts.

Designated Wilderness Area Trail Definition: Linear route managed for travel by foot, horseback and, 

pack stock. Mechanized forms of travel (e.g. mountain bikes, wheeled game carriers, handcarts, and hang 

gliders) are prohibited in wilderness areas. Motorized travel is prohibited.
3. Glossary

3-32 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

TRAILHEAD: The terminus of a hiking, horse, or bicycle trail accessible by motor vehicle and 

sometimes having parking, signs, a visitor register, and camping and sanitary facilities.

TRANSPORTATION SYSTEM: Represents the sum of the BLM’s recognized inventory of linear 

features (roads, primitive roads, and trails) formally recognized, designated, and approved.

TRAVEL MANAGEMENT AREAS (TMA): The TMAs are polygons or delineated areas where 

travel management (either motorized or non-motorized) needs particular focus. These areas may be 

designated as open, closed, or limited to motorized use and will typically have an identified or designated 

network of roads, trails, ways, and other routes that provide for public access and travel across the 

planning area. All designated travel routes within TMAs should have a clearly identified need and 

purpose as well as clearly defined activity types, modes of travel, and seasons or times for allowable 

access or other limitations. 

TREAD LIGHTLY!TM: A not-for-profit organization whose mission is to increase awareness of ways 

to enjoy the great outdoors while minimizing human impacts.

TREND: The direction of change, over time, either toward or away from desired management 

objectives.

UNAUTHORIZED USE: Any use of the public lands not authorized or permitted.

UNDERSTORY: Plants growing under the canopy of other plants. Understory usually refers to 

grasses, forbs, and low shrubs under a tree or brush canopy.

UNDEVELOPED RECREATION-TOURISM MARKET: National, regional, and/or local 

recreation-tourism visitors, communities, or other constituents who value public lands for the 

distinctive kinds of dispersed recreation produced by the vast size and largely open, undeveloped 

character of their recreation settings. Major investments in facilities are excluded within special 

recreation management areas where the BLM’s strategy is to target demonstrated undeveloped 

recreation-tourism market demand. Here, recreation management actions are geared toward meeting 

primary recreation-tourism market demand to sustain distinctive recreation setting characteristics; 

however, major investments in visitor services are authorized both to sustain those distinctive setting 

characteristics and to maintain visitor freedom to choose where to go and what to do—all in response 

to demonstrated demand for undeveloped recreation.

UPLANDS: Lands at higher elevations than the alluvial plain or low stream terrace; all lands outside 

the riparian-wetland and aquatic zones.

URBAN INTERFACE (WILDLAND-URBAN INTERFACE): The line, area, or zone where 

structures and other human development meet or intermingle with undeveloped wildland or vegetation. 

This interface creates conflicts and complicates fighting wildfires and conducting prescribed burns, as 

well as all other natural resource management activities.

USABLE FORAGE: That portion of the forage that can be grazed without damage to the basic 

resources; may vary with season of use, species, and associated species.
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-33 

UTILITY CORRIDOR: The BLM’s preferred route for placing land use authorizations for major linear 

utilities (i.e. pipelines and power lines). See also DESIGNATED MULTIUSE UTILITY CORRIDOR.

UTILITY-SCALE RENEWABLE ENERGY DEVELOPMENT: Utility-scale renewable energy

facilities (managed as a land use authorization), where the proponent has signed a purchase power 

agreement with a utility company to sell power. These facilities typically produce more than 100 MW.

UTILIZATION (FORAGE): The proportion of the current year’s forage consumed or destroyed by 

grazing animals. Utilization is usually expressed as a percentage.

VALID EXISTING RIGHTS: Locatable mineral development rights or land use authorizations that 

existed when the Federal Land Policy and Management Act (FLPMA) was enacted on October 21, 1976. 

Some areas are segregated from entry and location under the Mining Law to protect certain values or 

allow certain uses. Mining claims that existed as of the effective date of the segregation may still be valid 

if they can meet the test of discovery of a valuable mineral required under the Mining Law. Determining 

the validity of mining claims located on segregated lands requires BLM to conduct a valid existing rights 

determination. 

VANDALISM (CULTURAL RESOURCE): Malicious damage or the unauthorized collecting, 

excavating, or defacing of cultural resources. Section 6 of the Archaeological Resources Protection Act 

states that “no person may excavate, remove, damage, or otherwise alter or deface any archaeological 

resource located on public lands or Indian lands...unless such activity is pursuant to a permit issued 

under section 4 of this Act.”

VEGETATION STRUCTURE: The composition of an area’s vegetation--plant species, growth 

forms, abundance, vegetation types, and spatial arrangement.

VEGETATION TREATMENTS: Treatments that improve vegetation condition or production. Such 

treatments may include seedings; prescribed burning; or chemical, mechanical, and biological plant 

control. 

VEGETATION TYPE: A plant community with distinguishable characteristics.

VIABILITY: The capability of living, developing, growing, or germinating under favorable conditions.

VIEWSHED: The entire area visible from a viewpoint.

VISITOR DAY: 12 visitor hours, which may be aggregated continuously, intermittently, or 

simultaneously by one or more people.

VISUAL ASPECT: The visual first impression of vegetation at a particular time or seen from a specific 

point. 

VISUAL RESOURCE MANAGEMENT (VRM): The planning, design, and implementing of 

management objectives to provide acceptable levels of visual impacts for all BLM resource management 

activities.
3. Glossary

3-34 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

VISUAL RESOURCE MANAGEMENT (VRM) CLASSES: Categories assigned to public lands 

based on scenic quality, sensitivity level, and distance zones. There are four classes. Each class has an 

objective which prescribes the amount of change allowed in the characteristic landscape.

Class I: (Preservation) provides for natural, ecological changes only. This class includes wilderness areas, 

some natural areas, some wild and scenic rivers, and other similar sites where landscape modification 

should be restricted.

Class II: (Retention of the landscape character) includes areas where changes in any of the basic 

elements (form, line, color, or texture) caused by management activities should not be evident in the 

characteristic landscape.

Class III: (Partial retention of the landscape character) includes areas where changes in the basic 

elements caused by management activities may be evident in the characteristic landscape. But the 

changes should remain subordinate to the existing landscape character.

Class IV: (Modification of the landscape character) includes areas where changes may subordinate the 

original composition and character. But the changes should reflect what could be a natural occurrence in 

the characteristic landscape.

WATER DEVELOPMENTS: Construction of artificial, or modification of natural water sources to 

provide reliable, accessible water for livestock, wildlife, or people.

WATER QUALITY: Term used to describe the chemical, physical, and biological characteristics of 

water in respect to its suitability for a particular purpose.

WATER RIGHT: The right to use a specific quantity of water occurring in a water supply, on a 

specific time schedule, at a specific place and putting it to a specific beneficial use.

WATERSHED (CATCHMENT): A topographically delineated area that is drained by a stream 

system, that is, the total land area above some point on a stream or river that drains water past that 

point. The watershed is a hydrologic unit often used as a physical-biological unit and a socioeconomicpolitical unit for planning and managing natural resources.

WATERSHED CONDITION (WATERSHED HEALTH): The comparison of watershed

processes to normal or expected measurements of properties such as soil cover, erosion rate, runoff 

rate, and groundwater table elevation; an assessment or categorization of an area by erosion conditions, 

erosion hazards, and the soil moisture/temperature regime.

WATERSHED FUNCTION: The combination of processes attributed to watersheds as part of the 

hydrologic cycle, including interception of rain by plants, rocks, and litter; surface storage by the soil; 

groundwater storage; stream channel storage; soil evaporation; plant transpiration; and runoff. These 

processes affect the following properties of the watershed: runoff rate, water infiltration rate, soil 

building rate, soil erosion rate, groundwater recharge rate, groundwater discharge rate, water table 

elevation, and surface water discharge. These properties in turn affect plant communities through soil 

attributes, including soil parent material, soil moisture, and nutrients; stream and rivers through flooding 
3. Glossary

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 3-35 

duration and magnitude, as well as sediment load, which structures the dimension, pattern, and profile of 

channels; and lakes and reservoirs through sedimentation and nutrient input.

WEED: Any plant that interferes with management objectives. A weed may be native or non-native, 

invasive or passive, or non-noxious.

WETLANDS: An area that is inundated or saturated by surface or ground water often and long 

enough to support and that under normal circumstances supports a prevalence of vegetation typically 

adapted for life in saturated soil. Wetlands include marshes, shallows, swamps, lake shores, bogs, 

muskegs, wet meadows, estuaries, cienegas, and riparian areas.

WILD AND SCENIC RIVER CORRIDOR: See NATIONAL WILD AND SCENIC RIVERS 

SYSTEM.

WILDCAT DUMPSITE: A non-permitted dumping on federally managed land.

WILDERNESS CHARACTERISTICS: Attributes defined in Section 2(c) of the Wilderness Act, 

including the area’s size, its apparent naturalness, and its outstanding opportunities for solitude or a 

primitive and unconfined type of recreation. Wilderness characteristics may also include supplemental 

values such as ecological, geological, or other features of scientific, educational, scenic, or historical value 

that may be present but are not required.

Naturalness: The degree to which an area generally appears to have been affected primarily by the 

forces of nature with the imprint of people’s work substantially unnoticeable.

Solitude: The state of being alone or remote from others; isolation. A lonely or secluded place.

Primitive and Unconfined Recreation: Non-motorized, non-mechanized (except as provided by law), and 

undeveloped types of recreation activities.

WILDFIRE: The unplanned ignition of a wildland fire (such as a fire caused by lightning, volcanoes, 

unauthorized and accidental human-caused fires) and escaped prescribed fires.

WILD FREE-ROAMING HORSES AND BURROS: Wild horses and burros are managed in a 

manner that ensures significant progress is made toward achieving the Land Health Standards for upland 

vegetation and riparian plant communities, watershed function, and habitat quality for animal 

populations, as well as other site-specific or landscape-level objectives, including those necessary to 

protect and manage Threatened, Endangered, and Sensitive Species.

WILDLAND FIRE: A general term describing any non-structure fire, other than prescribed fire, that 

occurs in the wildland. Wildland fires are categorized into two distinct types:

Wildfires- unplanned ignitions or prescribed fires that are declared wildfires.

Prescribed Fires- Planned ignitions.
3. Glossary

3-36 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

WILDLAND-URBAN INTERFACE (WUI): Areas where human structures and natural fuels 

interface or intermix with each other. This interface occurs mainly within 66 to 200 feet of houses, 

where fire most directly threatens houses and where a defensible zone can be developed.

WILDLIFE: A broad term that includes birds, reptiles, amphibians, and non-domesticated mammals.

WILDLIFE HABITAT AREAS (WHAs): An area that offers feeding, roosting, breeding, nesting, 

and refuge areas for a variety of wildlife species native to an area. Referred to as Wildlife Management 

Areas in prior plans.

WITHDRAWAL: Withholding an area of federal land from settlement, sale, location, or entry under 

some or all of the general land laws, for the purpose of limiting activities under those laws in order to 

maintain other public values in the area or reserving the area for a particular public purpose or program; 

or transferring jurisdiction over an area of federal land, other than property governed by the Federal 

Property and Administrative Services Act, from one department, bureau, or agency to another 

department, bureau, or agency. See also SEGREGATION.

XERORIPARIAN: An area in a drainage that supports plant species more characteristic of uplands 

than wetlands, but that is more densely vegetated than areas removed from the drainage. Any flows in 

these channels are characteristically ephemeral but water may also be subsurface and the drainage may 

not flow.
4. LIST OF PREPARERS

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 4-1 

4. LIST OF PREPARERS

Table 4-1

List of Preparers

Name Degree Role

Preparers: 2011 DRMP/EIS and 2012 PRMP/FEIS

Bureau of Land Management, Management Team

Angelita S. Bulletts B.S., Anthropology Phoenix District Manager (Former)

Emily Garber M.A., Anthropology; B.A., Anthropology Lower Sonoran Field Manager

Richard B. Hanson B.S., Park and Recreation Resources Sonoran Desert National Monument 

Manager and Recreation/Wilderness

Bureau of Land Management, Interdisciplinary Team

Brian Achziger Fire Science Fire Management Officer – Phoenix 

District Office

Barbara Albiston B.S., English Writer/Editor – Boise District Office

Don Applegate B.S., Recreation Resources Management Recreation Program Lead – Arizona 

State Office

Leah Beaudoin Baker M.A., Global Environmental Policy; B.S., 

Biology

Planning and Environmental 

Coordinator – Phoenix District Office

Mike Behrens M.S., Forest Science/Fire Ecology; B.S., 

Forest Science

Fire Management Officer – Phoenix 

District Office (Former)

Jameson Belke B.S., Geography/Cartography GIS Specialist – Phoenix District Office 

(Former)

Thomas V. Bickauskas B.S., Manufacturing Engineering 

Technology

Travel Management Coordinator – 

Hassayampa Field Office

Steve Bird B.S., Wildlife Sciences Wildlife Biologist – Sonoran Desert 

National Monument

Cheryl Blanchard B.A., Anthropology

Cultural Resources – Lower Sonoran 

Field Office
4. List of Preparers

4-2 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Table 4-1

List of Preparers

Name Degree Role

Todd Calico

B.I.S., Natural Resources Management 

and Environmental Studies, GIS 

Certificate

GIS Specialist – Arizona Strip Office

Bill Coulloudon B. S., Rangeland Management Range Management Specialist – Arizona 

State Office

David Eddy B.S., Geology Geologist – Hassayampa Field Office

Andrea Felton M.S., Range and Wildlife Management; 

B.A., English

Rangeland Management Specialist — 

Lower Sonoran Field Office

Sharisse Fisher B.S., Geography GIS Specialist – Phoenix District Office

Penny Foreman B.S., Business Management; B.S., 

Recreation and Tourism Management

Lower Sonoran-SDNM RMP Project 

Manager – Lower Sonoran Field Office

Chris Garbo M.U.E.P, Urban & Environmental 

Planning; B.S., Regional Development

Planning and Environmental Assistant – 

Lower Sonoran Field Office (Former)

Jeff Garrett B.S., Geology Mining Law Program Lead – Arizona 

State Office

Jo Ann Goodlow M.P.M., Planning Management Reality Specialist– Lower Sonoran Field 

Office

Chris Horyza B.S., Forestry and Range Management

Arizona BLM Planning and 

Environmental Program Lead – Arizona 

State Office

Michael Johnson M.A., Anthropology; B.A. Anthropology Deputy Preservation Officer – Arizona 

State Office

Byron Lambeth B.S., Rangeland Management Rangeland Resources – Lower Sonoran 

Field Office (Former)

Mariano Lanza B.S., Environmental Technology 

Management and Engineering

Surface Protection Specialist, Hazardous 

Materials, Public Safety – Lower 

Sonoran Field Office

Matthew Magaletti M.U.E.P., Urban and Environmental

Planning; B.S., Planning

Realty Specialist/Assistant Planning and 

Environmental Coordinator – Lower 

Sonoran Field Office (Former)

Ken Mahoney B.S., Leisure Studies, Park Planning & 

Resource Management

National Landscape Conservation 

System Coordinator – Arizona State 

Office

Elroy Masters B.A., Biology State Fish and Wildlife Program Lead – 

Arizona State Office

Joshua Mays B.S., Wildlife and Restoration Ecology Biological Science Technician – Lower 

Sonoran Field Office (Former)

Roger Oyler B.S., Agriculture, Range Science Arizona Wild Horse and Burro Program 

Lead – Arizona State Field Office
4. List of Preparers

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 4-3 

Table 4-1

List of Preparers

Name Degree Role

David G. Proffitt M.U.E.P., Urban & Environmental 

Planning; B.A. English

Writer/Editor & Assistant 

Environmental Planner – Lower Sonoran 

Field Office (Former)

William J. Ragsdale B.S., Agriculture

Outdoor Recreation Planner – Lower 

Sonoran Field Office

Jim Renthal M.S., Watershed Management Soil, Water, Air, Riparian Program Lead 

– Arizona State Office

David L. Scarbrough B. S., Forestry

Outdoor Recreation Planner – Sonoran 

Desert National Monument

Paul Sitzmann B.A., Ecology and Evolutionary Biology

Range Technician – Phoenix District 

Office, Wildlife Biologist Agua Fria 

National Monument

Michael Werner B.S., Natural Resources Realty Specialist – Arizona State Office

Ammon Wilhelm B.S., Fish and Wildlife Management Wildlife Biologist – Kingman Field Office

EnviroSystems Management

2011 DRMP/EIS

Lilian Jonas Ph.D., Sociology; M.A., Applied 

Sociology; B.S., Biology

Writer/Editor

Environmental Management and Planning Solutions, Inc., Interdisciplinary Team

2012 PRMP/FEIS and RODs/Approved RMPs

Angie Adams B.A., Biology Transportation, Recreation

David Batts

M.S., Natural Resource Planning; B.S., 

International Development

Socioeconomics

James Bode B.A., Environmental Studies Socioeconomics; Technical Editing

Amy Cordle B.S., Civil Engineering Air Quality, Climate Change

Annie Daly B.A., Environmental Studies Fire Management, Hazardous Materials

Zoe Ghali

M.S., Environmental Physiology; 

Interdisciplinary Certificate in 

Environmental Policy; B.S., Biology

Socioeconomics

Holly Prohaska

M.S., Environmental Management; B.A., 

Marine Science / Biology Public Outreach, Project Management

Laura Long

M.A., 2010, Media and Communications; 

B.A., 2004, English Literature

Technical Editor

Carol-Anne Murray M.A., Anthropology; B.A., Anthropology Project Manager, Cultural Resources, 

Paleontology, Tribal Interests

Katie Patterson J.D., Environmental Law; B.A., 

Environmental Policy Air Quality, Climate Change

Jennifer Thies M.S., Resource Management; B.S., 

Conservation and Resource Studies

Lands and Realty

Drew Vankat

M.S., Environmental Policy and Planning; 

B.Ph., Urban and Environmental Planning Travel Management, Recreation
4. List of Preparers

4-4 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Table 4-1

List of Preparers

Name Degree Role

Jennifer Whitaker

M.S., Project Management; B.S., Public 

Affairs, Concentration Natural Resource 

Management

Mineral Resources

Kate Wynant B.A., Environmental Studies; Spanish Visual Resources Management

Meredith Zaccherio

M.S., Biology; B.S., Biology; B.S., 

Environmental Science

Plants and Wildlife

Preparers: 2006 Administrative Draft

Bureau of Land Management, Management Team

Teresa A. Raml B.S., Wildlife Biology

Phoenix District Manager (Former); 

District Manager – California Desert 

District

Marshall Kevin Harper M.A., Archaeology Lower Sonoran Field Manager (Former)

Ralph Costa B.S., Engineering

Lower Sonoran Acting Associate Field 

Manager for Lands and Minerals 

(Retired)

Eugene Dahlem M.S., Zoology Sonoran Desert National Monument 

Manager (Retired)

Karen Kelleher M.E.M., Landscape Ecology

Sonoran Desert National Monument 

Manager (Former)

Bureau of Land Management, Interdisciplinary Team

Jim Andersen B.S., Natural Resource Management Lead Realty Specialist – Hassayampa 

Field Office

Camille Champion M.S., Environmental Sciences; B.S., 

Geology

Lands and Realty – Lower Sonoran Field 

Office (Former)

William Crolly A.S., Forest Technician, Technical Fire 

Management

Fire Management – Phoenix District 

Office (Former)

Joseph Dixon M.A., Geology; B.A., Geology

Mineral Resources – Sonoran Desert 

National Monument (Former)

Lin Fehlmann B.S., Secondary Education, Biological 

Resources

Water Rights – Arizona State Office 

(Retired)

Helen Graham B.S., Biology Fire Management – Phoenix District 

Field Office (Former)

Genevieve Johnson M.U.E.P., Urban and Environmental 

Planning; B.S., Conservation Biology

Project Manager, Socioeconomics – 

Lower Sonoran Field Office (Former)

Glenn Joki B.S., Engineering Studies Fire Management – Phoenix District 

Office (Retired)

James Maes B.S., Mechanical Engineering

Air Quality, Hazardous Materials, Public 

Safety – Lower Sonoran Field Office 

(Former)

Angel Mayes A.A., General Studies Realty Specialist – Sonoran Desert 

National Monument (Former)
4. List of Preparers

September 2012 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan 4-5 

Table 4-1

List of Preparers

Name Degree Role

Sally Olivieri A.S., Forest Technician Geographic Information Systems and 

Mapping – Kingman Field Office

Demetrius Purdie-Williams B.S., Technology

Geographic Information Systems and 

Mapping – Phoenix District Office 

(Former)

Kirk N. Rentmeister B.S., Geology Geologist – Hassayampa Field Office 

(Former)

Gregg Simmons B.S., Forest Management

BLM State Planning and Environmental 

Coordinator – Arizona State Office 

(Retired)

Lori Young B.S., Wildlife Management Wildlife Biologist – Sonoran Desert 

National Monument (Former)

EnviroSystems Management, Interdisciplinary Team

Sunny Bush M.T., Hazardous Materials and Waste 

Management; B.A., English

Hazardous Materials, Public Health and 

Safety

Debra Duerr B.A., Urban Planning Project Manager, Visual Resources

URS Corporation, Interdisciplinary Team

Kirsten Erickson M.A., Public History and US History; 

B.A., History Cultural and Heritage Resources

Jennifer Frownfelter

M.S., Environmental Management, Public 

Policy; B.S., Environmental, Population, 

and Organismic Biology, Environmental 

Conservation

Lands and Realty

Jeff Johnson M.S., Plant Biology; B.S., Plant Biology Biological Resources, Fire and Fuels 

Colleen Mahoney None Administrative Support

Peter Martinez

M.A., Geography Information 

Management; B.S., Environmental 

Geography

Database and Web Applications

Brad Norling M.S., Zoology and Physiology; B.S., 

Wildlife Biology Biological Resources

Dave Palmer M.A., Geology; B.S., Geology Minerals, Geological and Paleontological 

Resources, Cave Resources

Meg Quarrie B.A., Liberal Arts Administrative Support 

Ryan Rausch M.S.E.L., Environmental Law; B.A., 

Biology

Project Coordinator, Water Resources, 

Soils

Patty Renter

Geography, Visual Basic, Introduction to 

ArcView, Computer information 

Systems

Geographic Information Systems

Gene Rogge M.A., Anthropology; B.A., Anthropology Cultural and Heritage Resources

Cindy Smith B.S., Liberal Arts and Sciences Principal-in-Charge
4. List of Preparers

4-6 Sonoran Desert National Monument Record of Decision and Approved Resource Management Plan September 2012

Table 4-1

List of Preparers

Name Degree Role

Barbara Sprungl M.B.A., Business Administration; B.S., 

Chemical Engineering Air Quality

Brock Tunnicliff

Ph.D., Natural Resource Management; 

M.S., Watershed Hydrology; B.S., Forest 

Ecology

Wilderness Characteristics, Travel 

Management, Special Designations, 

Recreation

Leslie Watson B.S., Zoology Biological Resources

Sandy Weir B.S., Geography Socioeconomics

Jessica Wellmeyer M.S., Geology; B.S., Geology Water Resources and Soils

Jen Wennerlund

M.S., Geography; B.S., Geography, 

Cartography, Remote Sensing, Land Use 

Planning

Geographic Information Systems 

Manager
ACEC Areas of Critical Environmental Concern

AGFD Arizona Game and Fish Department

AUM animal unit month 

BLM Bureau of Land Management 

BGR Barry M. Goldwater Range 

DEIS draft environmental impact statement 

DRMP Draft Resource Management Plan

EIS environmental impact statement

ERMA extensive recreation management area 

ESA Endangered Species Act 

FEIS final environmental impact statement

FLPMA Federal Land Policy and Management Act 

I-8 Interstate 8 

I-10 Interstate 10 

IM instruction memorandum

LUA land use authorization 

MOU memorandum of understanding

NEPA National Environmental Policy Act

NHT National Historic Trail

NPS National Park Service

OHV off-highway vehicle

PEIS programmatic environmental impact statement

PM10 particulate matter 10 microns in diameter or less

PM2.5 particulate matter 2.5 microns in diameter or less

PRMP Proposed Resource Management Plan

RMA recreation management area

RMP resource management plan

RMZ recreation management zone

ROD record of decision

ROW right-of-way

SCRMA special cultural resource management area

SDNM Sonoran Desert National Monument

SRP special recreation permit

TMA travel management area

US United States

USFWS United States Fish and Wildlife Service

VRM visual resource management 

WSA wilderness study area

WUI wildland-urban interface
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