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Woody Draws 

Introduction 

Rangeland fires likely occurred at moderate to high frequency in the northern Great Plains prior 

to European settlement, both as a result of natural lightning strikes and as set by indigenous 

tribes. Thus, the extent of woodland communities, including woody draws, were likely less than 

occurring today (USGS, 2008, Towne and Owensby, 1984, Baily 1976). Early settlers of the 

northern Great Plains during the late 1800’s harvested trees from woody draw communities for 

fuel and a variety of construction needs. Similarly, natural springs along woody draw drainages 

were utilized for human and livestock needs. Increased settlement brought large and often 

excessive livestock numbers to the Great Plains that likely had adverse affects on woody draw 

conditions. At the same time, intensive control of wildfires was conducted as a necessity for 

protecting property, livestock, and agricultural assets that at some time likely began assisting the 

spread of several woody communities or species within the grassland habitat. Cursory 

comparison of 1950s and current aerial photographs suggests that expansion has not been 

extensive during this period. 

Woody draw habitats in the project area tend to occur as linear stringers along various ephemeral 

and intermittent drainage courses and adjacent slopes with moderately increased amounts of 

available moisture. These habitats comprise less than 10 percent of the LMNG, which increases 

their attractiveness for many wildlife species and a variety of human related uses. Structural and 

ecological diversity provided by woody draws within the semi-arid grassland-dominated 

landscape attracts a disproportionately high number and diversity of wildlife species seeking 

forage, cover, and nesting habitat (Rumble and Gobeille, 1998, Hodorff et al, 1988, Sieg et al., 

1984, Hopkins, 1983a,b, Grosz et al., 1981, Seabloom et al., 1978, Stewart, 1975). Combined 

with low or sheltered topographic positions, woody draw structure provides a primary source of 

shade in the summer and thermal cover in the winter. 

Various drainage courses in which most woody draws occur function to trap, store, and release 

limited moisture, sediment, and nutrients, thus influencing downstream riparian systems through 

filtering of sediment, ameliorating high fluctuations in stream flow, and extending the period of 

flow through the storage and gradual release of moisture. 

Livestock also seek the amenities of woody draws that attract wildlife. Shade and cooler 

temperatures reduce heat stress and the torment of horn flies (Haematobia spp) and other insect 

pests. The increased moisture and shaded understory of woody draws result in lengthened green 

periods of herbaceous growth that can be an attractant to livestock along with several shrub 

species and tree saplings. Developed water sources involving springs and various reservoirs 

have been constructed along many woody draw drainages, and thus result in heavy livestock 

traffic. The terrain along woody draw drainages is often gentler than the surrounding 

topography, so these sites often serve as travel corridors for daily livestock movements to and 

from water development and forage areas. 

Woody draws also attract recreation users for a variety of uses including hiking, bird watching, 

hunting, trapping, and firewood harvest. Hunting, trapping, and firewood harvest associated with 
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woody draws in the region of western North and South Dakota and eastern Montana and 

Wyoming, have been estimated to contribute 38 million dollars per year to local economies when 

combined with related costs of fuel, lodging, and incidental expenses (Bjugstad and Sorg, 1985). 

Green ash (Fraxinus pennsylvanica) is the dominant tree of woody draws. American Elm 

(Ulmus americana) often occurs as a codominant. Other tree species include box elder (Acer 

negundo), quaking aspen (Populus tremuloides), plains cottonwood (P. deltoides), and peachleaf 

willow (Salix amygdaloides). These species generally occur as inclusions in proximity to springs 

or other sites of increased moisture. Dominant shrubs of the understory usually include 

chokecherry (Prunis virginiana) serviceberry (Amelanchier alnifolia) and snowberry 

(Symphoricarpos occidentalis), but other common species include hawthorn (Crataegus 

rotundifolia), American plum (Prunus americana), gooseberry (Ribes spp), aromatic sumac 

(Rhus aromatica), buffaloberry (Shepherdia argentea), and wild rose (Rosa woodsii). 

This analysis focused on the condition of green ash woody draws, hereafter known as woody 

draws, because previous analysis have suggested declining conditions of this habitat on the 

LMNG (USFS 2002 Little Missouri National Grassland Rangeland Assessment, NDGF, 2009 

and others). Furthermore, specific goals and objectives relating to the condition and continued 

viability of these communities are identified in the current LRMP. 

Spatial and Temporal Setting 

NFS lands located within the project area boundary is the analysis area for the woody draw 

analysis because management decisions within this area will primarily have an affect on woody 

draws within but not outside of project area. The temporal scope of the analysis is 10 to 15 

years. 

Methodology 

Three data sources were used to assess woody draw conditions in the project area; 1) a long-term 

cooperative study between the North Dakota Game and Fish Department (NDGF) and the USFS, 

2) internal surveys conducted by the Medora Ranger District during 1998, and 3) additional 

surveys conducted by the district botanist during 2005-2007 specific to this analysis and report 

development. The three sets of data differed in methodology and years of sampling and are 

briefly described below. 

Cooperative study – A cooperative woody draw study between the USDA Forest Service and 

North Dakota Game and Fish Department which was initiated in 1987. The study included 

seventeen randomly located permanent sites within the project area. These sites have been 

sampled every five years since 1987. Within the selected woody draws, 30x75 ft macroplots 

were established. Within each macroplot, the number and species of all trees over 1 inch dbh 

(diameter at breast height) were measured with a diameter tape and tallied into 1 inch dbh classes 

(8-9”, 9-10”, etc.). The density of tree saplings (> 2.5 ft tall and <1 inch dbh) and seedlings (< 

2.5 ft tall) were measured in two 1.5x75 ft belt transects extending the length of the macroplot. 

Saplings were also counted in five 1.5x6 ft belt transects placed along the 30 ft baseline of the 
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macroplot. The 1.5x6 ft belt transects were also used to count the density of shrub stems by 

species. The percent canopy cover of chokecherry and snowberry were measured from twentyfive 20x50 cm Daubenmire plot frames spaced at 3 ft intervals along the two 75 ft belt transects. 

Woodland class structure codes were recorded for each macroplot beginning with the third 

measurement period in 1997. 

USFS Survey 1998 - Landscape level assessments of woody draw communities were conducted 

in 1998 for preparation of the LMNG Rangeland Assessment (USDA Forest Service, 2002). 

Eighty-one randomly selected sample sites occurred in the project area and were included in the 

present assessment of existing conditions. 

Sampling involved a traverse of woody draw communities at least five acres in size while 

conducting ocular estimates of percent canopy cover for tree, shrub, and herbaceous species. 

Complexes of distinct communities based on the dominant woody species were identified, 

apportioned as a percent of the total woody community, and assigned a Woodland Structure 

Code. Ocular estimates of canopy cover for various age classes of tree and shrub species located 

in the woody draw was recorded. Representative segments of each site were photographed. 

Condition classes of Healthy, At Risk, and Unhealthy were assigned to each sample site based on 

the Woodland Structure Code, the degree of woody species regeneration, estimates of seral stage, 

the presence of noxious weeds, and supplemental observations such as erosion, trailing, livestock 

and wildlife browsing, the extent of plant diseases and pests such as Dutch Elm, leaf blight, and 

tent caterpillars, and the degree of dead or dying trees. Seral stages of woody draw communities 

were determined from a previously developed model that utilized values of tree basal area and 

canopy cover of chokecherry and snowberry (Uresk, unpublished). 

USFS 2005-2007 Survey -Woody draw surveys were conducted at 187 sites during 2005-2007 to 

supplement existing data. Potential sample sites were selected from aerial photographs to 

characterize existing conditions and variability within pastures and allotments. Approximately 

41of the 1998 USFS sites were revisited to ensure that the previous condition ratings were based 

on the same criteria as the 2005-2007 ratings. The sampling methods for 2005-2007 surveys 

generally followed the USFS 1998 methodology, but there was no minimum acreage of a sample 

site and complexes or inclusions identified by a change in the dominant tree and/or shrub species 

were not delineated. Ocular estimates of percent canopy cover were recorded for the most 

prominent tree and shrub species and each surveyed site was assigned an average woodland 

structure code. Canopy cover by tree species was recorded among size classes of saplings, polesized trees, medium-sized trees, and large trees. Tree densities by one-inch dbh classes were 

recorded from circular plots located to represent average conditions of the woodland. These 

plots were generally established with a 50 ft radius, but sometimes reduced to a 30 ft radius when 

tree sapling and shrub layers were sufficiently dense to inhibit access and counting. 

Supplemental observations were recorded similar to the 1998 samples and representative 

segments of most sites were photographed. 
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Affected Environment 

Existing Condition 

The general range of observed woody draw conditions and characteristics were similar to those 

reported by other researchers. Relatively poor condition woody draws exhibited low canopy 

cover of the tree overstory primarily derived from older trees. A scarcity of young and small 

diameter trees indicated minimal recruitment of new trees in the recent past that appeared 

insufficient to replace the mature overstory. Although basal sprouting from some mature or 

decadent trees was common and sometimes resulted in high sapling counts, heavy browsing of 

the basal sprouts and any independently establishing saplings was typical among poor condition 

communities (Figure 3-13). Desirable shrub species tended to occur as scattered patches along 

the least accessible portions of the community, and Kentucky bluegrass tended to dominate the 

herbaceous layer with or without snowberry. Woody 

draws with undesirable characteristics consistently 

exhibited evidence of high livestock use. 

Relatively high condition woody draws occurred along relatively steep or entrenched drainages 

or steep north aspect slopes. These communities tended to exhibit greater tree canopy cover and 

a wider distribution of age/size classes. Shrub 

diversity and cover was similarly increased and often 

contributed to the difficulty of access. Tree saplings 

were common among the shrub layer and especially 

prevalent along the uphill perimeter of several 

communities. Although there was usually minimal 

area for the existing community to continue 

expanding upslope before reaching inhospitable 

conditions of the adjoining ridgeline, saplings and 

small trees did occur among outlying shrub patches 

away from the main drainages (Figure 3.14). 

Although usually containing areas of Kentucky 

bluegrass, the herbaceous layer of high condition 

communities exhibited greater proportions of 

longbeak sedge (Carex sprengelii) and native grasses, 

as well as areas of bare mineral soil and leaf litter. 

Figure 3.14. Example of young green ash 

trees expanding into outlying shrub patches. 

Figure 3.13 Decadent box elder tree with 

over 100 basal sprouts that have been 

regularly browsed. 
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Similar to conclusions of the 1998 woody draw analysis (Nieto, 2002), topography and the 

relative ease of livestock accessibility was a dominant factor of woody draw conditions within 

both the Rolling Prairie and Badlands Geographic Areas. Woody draws or portions thereof 

occurring along poorly confined open drainages with low topographic relief were more likely to 

be in a poor condition relative to woody draws occurring along confined drainages with steep 

sideslopes. This topographic influence was also evident on a local scale within individual woody 

draws, where relatively flat and accessible drainage bottoms exhibited high livestock use and 

poor conditions, and adjacent steep sideslopes exhibited less livestock use and better conditions. 

Several drainages among all condition classes supported ephemeral or intermittent pools, fens, 

developed and undeveloped springs, dugout ponds, and beaver ponds, but these areas tended to 

be heavily disturbed with excessive trampling and poor expressions of native wetland vegetation. 

Headcuts were moderately common along several drainages but these tended to be partially 

vegetated and not particularly active. Relatively large blowouts or erosional nick points 

occurring along some drainages were often sites of green ash regeneration even when 

regeneration rates were low throughout most of the drainage. Noxious weeds of burdock 

(Arctium minus) and Canada thistle (Cirsium arvens) were abundant along a majority of the 

drainage bottoms and lower slopes, especially in the north half of the project area. Fewer 

occurrences of absinth wormwood (Artemisia absinthium) and leafy spurge (Euphorbia esula) 

were present. 

a) b)

Impacts to woody draws resulting from livestock use included browsing of shrubs and tree 

saplings, mechanical damage resulting from trampling and livestock congregations within the 

shaded understory. Livestock use was concentrated along the drainage bottoms, usually with the 

lowest degree of woody structure despite typically greater moisture availability and soil depths 

capable of supporting woody plants. Livestock trails observed in woody draws tended to involve 

multiple intertwining paths that were usually barren and exhibited dense and deep hoof prints 

that compact the soil (Figure 3-16). 

Figure 3.15. a) Healthy riparian community adjacent to beaver pond bordered by woody draw community 

along upper slopes. b) Ephemeral pond in Unhealthy condition with heavy trampling impacts and 

Unhealthy woody draw conditions in background. 
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Table 3-7. Distribution of woody draw condition ratings. 

Results and Discussion of Specific Analysis 

Condition Rating - The condition of woody draws is identified in terms of Healthy, At Risk, and 

Unhealthy. Healthy woody draws are defined as those woodlands that have self-perpetuating tree 

and shrub populations with diverse age classes, species composition, and multiple structural 

layers as habitat conditions permit (Grasslands Plan, Ch 1, p.1-2,1-13;.Ch 2, p. 2-10) At Risk 

woody draws tend to exhibit a moderate distribution of tree age classes, but lack consistent 

regeneration as expressed by sapling and young tree age classes, and exhibit inconsistent or 

patchy shrub diversity and structural complexity. Unhealthy woody draws are generally 

characterized by old or decadent tree layers, a lack of younger tree age classes, and little or no 

tree regeneration. The understory of Unhealthy woody draws tended to be dominated by 

herbaceous vegetation instead of a diverse shrub layer. 

Of the 283 surveyed woody draws, 147 or almost 52 percent were rated as Healthy (see Table 

3.7) and were meeting desired conditions as expressed through a diversity of age classes, 

structure, and species within the tree and shrub layers. About 40percent of the sites were rated 

At Risk due to a general scarcity of successful tree recruitment and poorly represented shrub 

layers often dominated by snowberry. Approximately 8percent of the sites were rated as 

Unhealthy and generally exhibited a greater degree of At Risk characteristics and/or poorly 

functioning or heavily impacted hydrologic systems. Unhealthy sites tended to exhibit dying or 

senescent trees with little or no successful regeneration, sparse shrub layers, and a dense grass 

layer comprised of Kentucky bluegrass. If bare ground was present among Unhealthy sites, it 

was generally trampled, compacted, and rilled, with a decreased ability of the drainage to trap or 

slow the movement of sediment and moisture. 

Healthy At Risk Unhealthy 

147 (52percent) 114 (40percent) 22 (8percent)

Figure 3-16. Trailing impacts along drainage 

of woody draw. 
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a) b)

c) d)

e) f)

Woodland Structure – Table 3-8 summarizes selected parameter values derived from the 

woodland structure codes and estimates of chokecherry and snowberry canopy cover. 

Figure 3-17. Photos a) and b) show Healthy woody draw conditions, note the mixed tree age 

classes and dense shrub layers of desirable species, i.e. green ash, service berry, chokecherry, etc. 

At Risk conditions in photo c) shows some mixed tree ages but no sapling/shrub layer is present 

and the herbaceous layer is dominated by Kentucky bluegrass/dandelion sod. Photo d) is 

dominated by old and middle-aged trees with no saplings. A low shrub layer of snowberry is 

present but the desired mid and tall shrub layers are absent. Unhealthy conditions in photos e )and 

f), show remnant tree populations with only a few shrubs and younger trees confined to scattered 

patches. 
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Table 3-8. Characteristics of tree, shrub, and grass cover among Healthy, At Risk, and Unhealthy sites. 

proportion of 

sites with 

> 39percent 

tree 

canopy cover 

proportion of 

sites with 

> 34percent 

canopy cover of 

tall shrub layer 

average 

chokecherry 

canopy cover 

average 

snowberry 

canopy cover 

proportion 

of sites 

dominated by 

grass below 2.5 

ft 

Healthy 51 59 24 13 18 

At Risk 25 7 11 21 65 

Unhealthy 5 0 6 14 82 

Fifty-one percent of Healthy woody draws exhibited more than 39 percent mature tree canopy 

cover, while At risk and Unhealthy sites exhibited mature tree canopy over of 25 and 5 percent 

respectively. This information shows average tree canopy cover increased with increasing woody 

draw condition ratings. At Risk sites exhibited the greatest cover of snowberry, while Unhealthy 

sites contained the least amount of shrub structure and greatest degree of grass dominance in the 

ground layer. 

Tree Population Structure The density of tree size classes as measured by diameter at breast 

height (dbh) were determined in about one-third of the survey sites and the results are listed in 

Table 3.9 and depicted in Figure 3-18. Deciduous tree saplings were counted in a greater 

proportion of At Risk and Unhealthy sites to support or defend the lower condition ratings. 

Sapling numbers among several At Risk sites were unusually high due to numerous suckers 

arising from a few tree trunks, but there was minimal evidence of any of these suckers 

progressing to the next size class (See Figure 3-13.). With the three most prominent outliers 

involving estimated densities 1,100-10,000 saplings/acre removed from the At Risk sites, 

average sapling density was more than four times greater among Healthy compared to At Risk or 

Unhealthy sites. Tree densities among all size classes up to the 5-inch dbh class were at least 

twice as great among Healthy sites compared to At Risk and Unhealthy sites. Tree densities 

among the larger size classes of 5-10 inch dbh and greater than 10 inch dbh were not appreciably 

different among the condition classes, but were greatest among the Unhealthy sites. 

DBH size 

class 

(inches) 

0-1 

(saplings) 

1-2 2-3 3-4 4-5 5-10 > 10 

Healthy 

N=31 359 59 40 51 45 108 36 

At Risk 

N=44 

(N=47) 

85 

(355) 

12 

(13) 

9 

(10) 

14 

(15) 

13 

(15) 

77 

(80) 

37 

(37) 

Unhealthy 

(N=10) 61 8 14 22 21 119 56 

Table 3.9 Tree density per acre by dbh size classes among Healthy, At Risk, and Unhealthy sites. 

Reported averages for At Risk sites include calculations after removal of three outliers. Averages 

with the outliers included are indicated in parenthesis.
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0

50

100

150

200

250

300

350

400

dbh class (inches)

number per acre

Healthy

At Risk

Unhealthy

saplings 1-2" 2-3" 3-4" 4-5" 5-10" > 10"

Of the 43 allotments in the project area five (132a, 133D5, 141, 220 and 248) contained no green 

ash woody draws. Six allotments 127, 135, 249,258, 282, and 283 were meeting woody draw 

objectives. The remaining allotments did not meet objectives. Table 3-10 below shows the 

woody draw ratings for each allotment. The information is expressed in percentage of sampled 

woody draws falling in each rating category. 

Table 3-10. Percentage of sampled woody draws by condition rating. 

Exiting Condition Exiting Condition 

Allot # Healthy 

percent 

At Risk 

percent 

Unhealthy 

percent 

Allot # Healthy 

percent 

At Risk 

percent 

Unhealthy 

percent 

126 31 69 241 17 83 

127 80 20 243 67 33 

128 63 32 5 244 75 25 

129 56 44 249 100 

130 27 67 6 256 50 50 

131 56 44 258 86 14 

132H 100 272 50 50 

133 33 67 277 50 42 8 

134 71 15 14 278 100 

135 100 281 20 60 20 

136/139 40 40 20 282 81 19 

140 100 283 100 

142 40 60 286 100 

158 69 23 8 287 33 50 17 

221 100 8 288 100 

230 67 33 289 45 33 22 

237 60 40 300 50 50 

239 100 301 47 35 18 

240 30 70 302 50 40 10 

Figure 3-18. Bar chart of tree density by dbh size class among Healthy, At Risk, and 

Unhealthy woody draws.
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Other Factors Affecting Existing Condition of green ash woody draws. 

Livestock Impacts - Several woody draw surveys and ecological assessments have been 

conducted in southwest North Dakota and adjacent regions and excessive livestock disturbances 

were the most obvious causal factor contributing to poor conditions (Leisica, 2001a, Jensen, 

1991, Butler and Goetz, 1984, Bjugstad and Girard, 1984, Hansen et al., 1984a, Butler 1983, 

Nelson, 1961, 1960, Severson and Boldt, 1978, Boldt et al., 1978). Under light or relatively 

undisturbed conditions, woody draws exhibited a range of tree age classes or population structure 

that included prominent amounts of seedlings and saplings, young to middle-aged trees, and a 

mature overstory that creates a moderately dense canopy. Dense shrub layers of varying 

diversity and height add to the structural complexity. A mosaic of longbeak sedge (Carex 

sprengelii) and native grasses mixed among leaf litter and mineral soil characterized the ground 

layer. 

With an increase in disturbance, successful tree and shrub regeneration decreases and mature or 

decadent trees begin to dominate the population age structure. Structure of the shrub layer 

similarly decreases, often with an increased dominance of low-statured snowberry. Kentucky 

bluegrass often begins to dominate the herbaceous layer and can form a dense sod with 

decreased amounts of leaf litter and mineral soil. Development of a Kentucky bluegrass sod 

layer likely contributes to low reproductive success of woody species by inhibiting seed 

germination and through direct competition with developing seedlings. Relatively static or 

decreasing population dynamics of the tree and shrub components are cited as indicators of poor 

ecologic conditions and a trend towards the woody draw community being replaced by shrub and 

grass communities. 

Repeated browsing and mechanical damage of tree and shrub saplings decreases their vigor and 

inhibits advancement to later growth stages. Overstory canopy cover decreases when an 

insufficient number of young trees are available to fill canopy openings resulting from the death 

of mature trees. As the woodland structure becomes more open, livestock access becomes 

easier, thus perpetuating poor woody draw conditions. The degree of adverse livestock affects 

on woody draw condition is a function of the frequency and intensity of disturbance. 

Fire - Fire can have both positive and negative affects on woody draws, and it is possible that 

successful wildfire suppression for more than 100 years has allowed some woody draw 

expansion, while also contributing to the eventual stagnation or deterioration of other woody 

draws. Fire can invigorate woody species regeneration through removal of accumulated litter 

layers and improvement of seedbed conditions, promotion of vegetative sprouting from burned 

woody plants, increased nutrient availability that promotes a flush of new growth, and disruption 

of pest, parasite, and disease cycles (Fitzpatrick, 2003, Sieg and Wright, 1996, Zimmerman, 

1981). The population age structure of some woody draws in the project area suggests an 

episodic occurrence of stand establishment, such as would occur from a flush of regeneration 

following fire or other severe disturbance. 

Conversely, historic wildfire frequencies are generally believed to have inhibited development of 

woodland communities on the grassland landscapes (USGS, 2008, Towne and Owensby, 1984, 

Baily 1976cite). There is evidence that several types of woody communities have been 

increasing on the LMNG where intensive wildfire suppression efforts have occurred ever since 
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settlement. Leisica (2001b) concluded that the overall affect of late summer wildfires on woody 

draws in eastern Montana was negative. Although many burned shrubs and trees re-sprouted, the 

total woody population was decreased by the complete death of a large number of mature trees 

that did not resprout. Wildfire control on the LMNG has likely lead to an increase in the extent 

of many woody communities in the project area but cursory comparison of 1951 and current 

aerial photographs suggests that expansion of woody draw communities in the project area has 

not been extensive. 

Disease - Several fungi infest green ash trees and hasten the mortality of older trees when they 

are less resistant or capable of withstanding the infections (Lesica, 2001a). Many of the sampled 

stands had mature green ash trees infected by fungi, in particular heartrot (Fomes fraxinophilus)

which is evidenced by white fruiting bodies on the outside of the tree. This fungi weakens the 

tree making it susceptible to breakage and hastens mortality. 

A common co-dominate tree in the green ash draws is American elm. The presence of Dutch elm 

disease is having an adverse effect on the elm which may, over time, result in high if not total 

loss of mature American elm from woody draws on the LMNG. However, as American elm is 

usually a subordinate species and is often absent from woody draws occurring at the drier end of 

the habitat range, the affect of potentially extirpated American elm would be less severe than 

green ash. A potential future threat to the green ash draws is an exotic beetle known as the 

Emerald Ash Bore (EAB). This asian beetle has no known natural enemies in the United States 

and no effective control has been developed to date. The EAB has been traveling from east to 

west, it was recently found in Minneapolis, Minnesota. 

Climatic Effects - Severe winters, late spring and early summer frosts, and extended drought, can 

adversely affect trees and shrubs. Overnight temperatures of 24 degrees have been observed in 

mid June after recent leaf emergence of green ash, one of the last species to initiate new growth 

in the spring. The vast majority of emerged leaves died, but these were replaced by new leaves 

and growth was sustained during the remainder of the summer, although likely at lower rates 

than would have otherwise occurred. Extended drought can increase the mortality of woody 

species and as much as 50 percent tree mortality was measured towards the end of severe 

drought during the 1930s Albertson and Weaver (1945). However, both late season frosts and 

drought are frequent in the northern Great Plains (HPRCC, 2009) and the presence of woody 

draws attests to adaptation of these communities to the climate. Climate extremes also do not 

explain the occurrence of immediately adjacent woody draws, where different conditions 

appeared to be correlated with topographic characteristics that influence livestock access or 

utilization, rather than significant differences in site microclimate. 

Wildlife - Wildlife such as deer and beaver can adversely affect woody draw conditions but the 

affects are generally not as severe as occurring with livestock due to lower animal numbers, 

smaller size, and less forage intake. In terms of carrying capacity, approximately 5 mule deer are 

equivalent to one mature cow in the amount of forage consumed (NRCS, 2009). Gubanyi et al. 

(2008) found whitetail deer densities of about 70 deer per square mile caused adverse impacts to 

vegetation structure and species composition of woodland communities in southeast Nebraska, 

but mule deer densities have averaged only 6.6 deer per square mile in portions of the project 

area during 1991-2007 (NDGF, 2008). The greatest evidence of deer use in woody draws was 
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observed among areas with dense woody structure and often along narrow benches located on 

slopes above the drainage. In contrast, livestock stocking in the project area is generally on the 

order of 200-300 head per square mile, with each head harvesting the equivalent of 

approximately eight deer. 

Beaver can decimate woodland communities of certain species, but this was usually confined to 

inclusions of quaking aspen at a few sites in the project area. Quaking aspen readily resprout 

after being cut by beaver and the re-growth is favored by many wildlife species. The adverse 

affect of beaver can be compensated by the beneficial affect of increased riparian habitat and 

diversity across the landscape. 

Adverse impacts such as Dutch elm and other diseases, invasive/noxious weeds, and beaver-cut 

trees were not used to assign At Risk or Unhealthy condition ratings. 

Summary 

About 52 percent of the sampled woody draws were rated Healthy, while 40 percent and 8 

percent were rated At Risk and Unhealthy respectively. Healthy communities exhibited a 

diverse range of tree age classes, including numerous saplings. Shrub species were generally 

diverse with multiple or at least tall height classes and densities that tended to impair movement 

through the community. At Risk and Unhealthy woody draws exhibited a lack of successful tree 

regeneration as indicated by the relative absence of saplings and young trees in the lower dbh 

classes. Shrub layers among these communities tended to be patchy and/or dominated by lowstatured snowberry. A dense grass layer usually dominated by Kentucky bluegrass occurred 

throughout most At Risk and Unhealthy woody draws. It appears likely that many Unhealthy 

communities will continue deteriorating and eventually be replaced by shrub/grass communities 

with scattered patches of desirable shrubs and trees on poorly accessible microsites. Relatively 

gentle terrain along drainages of At Risk communities has a similar potential to be replaced by 

shrub/grass communities, but steeper slopes above the drainage of many communities are likely 

to persist for longer periods. In many cases, the slope positions exhibit the greatest potential for 

improvement. 

Desired Condition 

The desired condition for woody draw communities (see Figures 3-17, a) and b)) involves 

healthy self-perpetuating tree and shrub populations with diverse age classes, structural layers, 

and species diversity, as habitat conditions permit (Grasslands Plan, pp. 1-13, 19, 2-10, 17) 

Objective 3 under Goal 1a of the Grasslands Plan specifies maintaining or moving at least 80 

percent of riparian areas and woody draws toward self-perpetuating plant and water communities 

that have desired diversity and density of understory and overstory vegetation within site 

capability (Grasslands Plan p.1-2) . 

Multiple structural layers are created by the mature tree overstory, one or more younger-aged 

tree layers, a range of shrub height or age classes, and a ground layer of herbaceous species 

intermixed among leaf litter and mineral soil. Self-perpetuation of the tree canopy should be 

evident through a moderate abundance of seedlings, saplings, and young to middle-aged tree 

classes. Excluding saplings, the distribution of age classes should generally follow a bell curve 

with the greatest proportion of trees in the middle age classes. Green ash is the predominant tree 
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species with subordinate species intermixed among the community or occurring as inclusions on 

suitable microsites. 

Dense shrub layers are desired and provide structure and shade that shelter developing tree and 

shrub seedlings, inhibiting competition from the grass layer, and impair livestock access. 

Chokecherry and serviceberry are generally the dominant shrub species. 

The desired herbaceous layer consists of native grasses, sedges, and forbs. Patches of mineral 

soil and leaf litter are desirable to facilitate tree and shrub seedling establishment. Invasive sodforming grasses such as Kentucky bluegrass and smooth brome are not desired because they 

likely inhibit tree and shrub seedling establishment. 

A desired condition would be to maintain American elm as a co-dominant in the green ash 

woody draws. However, Dutch elm disease will likely eliminate or greatly diminish the 

contribution of American elm from the region. There are no feasible management actions to 

alleviate or prevent this outcome, but barring any unknown mutualistic or symbiotic 

relationships, increases of green ash, box elder, or other deciduous species would likely 

compensate for the eventual demise of American elm. 

Environmental Consequences 

Direct and Indirect Effects 

Alternative 1 

All grazing would be limited to native wildlife under the no grazing alternative. In many 

respects, the termination of livestock grazing would likely contribute to improved ecologic 

conditions of many woody draws through decreased browsing and trampling. Reproductive 

success, density, and canopy cover of desirable woody species would likely increase, with the 

greatest increases likely to occur along relatively broad and level drainage bottoms where 

livestock concentrations have exerted the greatest negative effect. Ecological improvement of 

various springs, seeps, and ephemeral pool habitat that tend to experience heavy livestock 

trampling would occur, with patches of wetland sedges, bulrush (Scirpus spp.), prairie cordgrass 

(Spartina pectinata), and several forb species. Big bluestem (Andropogon gerardii) and longbeaked sedge could increase within drier habitat. Ecologic functions involving the capture, 

storage, and gradual release of moisture would improve in several areas where these functions 

are poorly operating due to trampling and compacted trail networks that assist rapid shedding of 

surface moisture. Existing dugout ponds would not be maintained and would begin to support 

increased wetland communities with the absence of heavy trampling and periodic maintenance 

disturbances. In time, pond depths would decrease as they gradually fill with sediment or dams 

fail. Shallower and shorter duration wetland pools would likely persist, but the natural 

hydrologic processes of many drainage systems would be re-established and could potentially 

enhance the condition of woody draws downstream. 

However, invasive Kentucky bluegrass and lesser amounts of smooth brome are well entrenched 

within most woody draws and have a high potential to continue spreading even without livestock 
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disturbances. The removal of livestock grazing could have negative consequences, in that nonharvest of the herbaceous layer would result in increased litter accumulation, possibly assisting 

invasive grass spread and impairing woody species seedling establishment and desired woodland 

structure. In time, the dynamics of both the woody and herbaceous layers could stagnate within 

many woody communities. 

Presently available funding for control of noxious weed populations with herbicide may decrease 

or cease without the impetus of maintaining livestock forage production and associated inputs to 

the local economy. However, affects of livestock and associated management that assist weed 

population dynamics, and collateral impacts to non-target vegetation from weed control 

treatments, would cease. Weed control funds could be sought through other avenues, and other 

treatment options could be investigated. 

In summary, the termination of livestock grazing would likely result in improved woody draw 

conditions as expressed through increased woody plant regeneration and density over the time 

frame of this analysis. With continued non-use, woody draw dynamics would possibly decrease 

unless natural ecosystem processes of fire, erosion, flooding, and ungulate grazing occur at 

sufficient intensity and frequency to facilitate dynamics of the system. Invasive grasses and 

accumulated litter would likely continue to be a prominent influence of poor conditions among 

many woody draws even without livestock grazing. 

Alternative 2 

About 50 percent of sampled woody draws met Healthy or desired conditions, about 30 percent 

short of objectives for 80 percent Healthy. The lack of significant regeneration in about half of 

the sampled sites suggests that some of these sites or large portions thereof have the potential to 

be lost from the system. Unhealthy communities would likely continue deteriorating and 

eventually be replaced by communities of snowberry/Kentucky bluegrass, with scattered patches 

of desirable shrubs and trees on favorable or less accessible microsites. Gentle topographic 

positions of At Risk communities along the relatively level drainage area may experience a 

similar fate of replacement by snowberry and Kentucky bluegrass. Relatively steep slopes above 

the drainage bottom of some At Risk and Unhealthy communities tended to exhibit better 

conditions and are likely to persist for longer periods. 

There was evidence of relatively recent woody draw expansion across the landscape that 

primarily followed the establishment of buffaloberry and aromatic sumac shrub patches. 

However, most of these patches occurred on small sites of increased soil moisture and were not 

of sufficient extent to compensate for potential losses or deteriorating conditions of existing 

communities. Many of these satellite communities are a possible response to more than 100 

years of fire suppression. 

There would appear to be little potential for improving woody draw conditions across the 

landscape under current management in which the existing conditions and level of impacts occur. 

Undesirable conditions involving a lack of prominent tree regeneration and sparse or absent 

shrub layers were attributed to livestock impacts associated with browsing and trampling as 

evidenced through direct observations of livestock presence, or as indicated by hoof prints, trails, 
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bedding areas, manure, and the character of browsed twigs and saplings that were moderately 

shredded or torn. Amenities of shade, thermal cover, extended herbaceous green periods, woody 

browse species, and water, are strong attractants for livestock and a level of adverse impacts 

resulting from livestock congregations within woody draws should be expected. The severity of 

impact is correlated with the intensity and frequency of livestock use that is influenced by 

stocking levels, the length and season of grazing, the amount or proportion of woody draws 

comprising a pasture, and production and composition of the adjacent rangeland. Of the 42 

grazed allotments, 88 percent were overstocked relative to estimated initial estimated carrying 

capacity when current AMs (animal months) are converted to AUMS (animal unit months) under 

the assumption of 1,200 pound average livestock weights. Thus, overstocking has likely and 

would continue to contribute to excessive use and impacts to woody draw communities. 

There was an apparent increasing trend of invasive grasses in many allotments that appeared to 

be spreading west from the Rolling Prairie to the Badlands Geographic Area. Invasive grasses, 

as well as planted crested wheatgrass, generally become undesirable forage species by mid-June. 

Sufficient proportions of pasture acreage comprised of these species may contribute to increased 

use of woody draws during mid and late summer as livestock seek extended green periods and 

browse species beneath the tree canopy. Heavy continuous or heavy seasonal grazing has been 

implicated in the expansion of invasive grasses (NRCS, 2009, Uchytil, 1993) and previous 

research of woody draw ecology has noted a correlation of relatively poor woody draw 

conditions and increasing prominence of Kentucky bluegrass (Butler and Goetz, 1984, Hansen 

and Hoffman, 1988, Hodorf et al. 1988, Lesica and Atthowe, 2001, Rumble and Gobeille, 1998). 

Relatively dense sod layers associated with Kentucky bluegrass and lesser amounts of other 

invasive grasses may impede the successful regeneration of woody species through direct 

competition, inhibiting seed-soil contacts, and low survival of seedlings unable to break through 

accumulating litter layers and attain sufficient sunlight. Decreasing structure of the shrub and 

sapling layers can provide negative feedback by facilitating additional livestock access and 

grazing impacts. Thus, as further discussed under seral stage, current management practices that 

appear to be assisting the spread of invasive grasses may be indirectly contributing to poor 

woody draw conditions. 

Continued use and maintenance of developed water sources along several woody draw drainages 

ensures high livestock use and continuing impacts. Reservoirs constructed along drainages 

disrupt hydrologic characteristics and downstream moisture availability that may negatively 

affect woody species establishment and longevity. 

Alternative 3 

Under this alternative a series of different livestock management techniques are utilized to 

address concerns with At Risk woody draws. Proposed actions included relocating some water 

tanks out of woody draws where feasible, fencing or controlling access of some water structures 

to manage livestock distribution, creating new water sources located to pull livestock away from 

woody draws, fencing individual woody draws to limit livestock access, and implementing or 

changing existing rotations to affect the amount of time livestock have access to woody draws. 

This alternative is also adaptive management based. 
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For both Alternatives 3 and 4, Allotments 132A, 135D5, 141, 220, and 248 are not included in 

the effects analysis because there were are no green ash woody draws present. Allotments 127, 

135, 249, 258, 282, and 283 are also not included because these allotments are meeting woody 

draw objectives. 

A summary of the effects of the proposed actions on the affected woody draws by allotment is 

presented below. A detailed discussion of each allotment is contained in the Botany Report 

which is located in the Project Record. 

Allotment 126/128 - Combining allotments 126 and 128 and creating a nine pasture deferred 

rotation system would significantly shorten the length of the grazing season in each pasture and 

allow for annual changes in the period of grazing. Thus, the potential for greater woody species 

reproduction and woody draw conditions should increase and improve the current proportion of 

Healthy (31 percent) and At Risk (69 percent). 

Installing a fence between pastures 5 and 6 would be necessary to create a nine pasture rotation. 

If the proposed water source in pasture 5 is not constructed prior to the fence, the likely result 

would be greater impacts to woody draws in this pasture from livestock seeking water from 

ephemeral pools along several drainages. 

Adding water pipelines and stock tanks in the uplands of 126-4 and 126-5/6 to replace developed 

springs along drainage bottoms would improve or restore the spring habitat and likely improve 

adjacent woody draw conditions. Reconstructing the existing spring development in 128 pasture 

1 by adding a short pipeline and check valve to a new tank location 200-300 ft distant from the 

spring that would be fenced, would similarly improve conditions in the immediate area of the 

spring. However, trailing/grazing impacts in much of the drainage would continue. 

In summary, the most comprehensive management change involving implementation of an eight 

(or nine) pasture deferred rotation system (relative to the current twice-over system) has the 

potential to improve woody draw conditions towards LRMP objectives. Reconstruction or 

addition of new water sources and temporary fencing should also assist improvement of some 

woody draws. However, continuation of proposed authorized use which is as much as 37 

percent above initial estimated carrying capacity for the combined allotments has the potential to 

inhibit significant improvements. 

Allotment 129, 131-1, 2 and 3 - Combining allotments and several pastures or portions thereof 

(131-3), would create the potential for a five pasture deferred rotation grazing system with 

potential benefits of shortened grazing periods and altered seasons of use within each pasture. 

The potential for improving or achieving woody draw objectives would increase relative to the 

current twice or thrice-over grazing system. Proposed authorized use in these pastures have yet 

to be finalized, but are likely to remain less than initial estimated carrying capacity, potentially 

facilitating woody draw improvement. 

With the allotments and pastures combined, 56 percent of sampled woody draws were Healthy 

and 44 percent were At Risk. Splitting Allotment 129 pasture 2 into two pastures to create a 

riparian pasture along Magpie Creek would increase the pasture number to six and should 
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provide greater flexibility and control for improving the riparian habitat. A few woody draw 

communities that tend to be concentrated adjacent to Magpie Creek in this portion of the 

allotment would have an increased potential to improve if included in the riparian pasture. 

Reclaiming two reservoirs at the north end of Allotment 131 pasture 1 and replacing these water 

sources with a pipeline and two stock tanks from an existing well in 131-3 would likely have a 

neutral or slightly positive affect on woody draw conditions. Livestock use already occurs at the 

north end of 131-1 and woody draws would continue to be sought for amenities of shade and 

shelter. However, replacing the freely available reservoir water with controlled stock tanks 

would allow for increased management of livestock distribution and utilization. 

Extension of an existing water pipeline in Allotment 129 pasture 4 approximately one mile to 

replace a developed spring in Section 14 that would be reclaimed, would in itself have minimal 

or a slight negative influence on woody draw conditions. Small or patchy woody draws occur in 

this area and replacement of the spring water source with well water would create a more reliable 

water source that may facilitate increased livestock use in the surrounding area. However, 

reclamation of the spring habitat would contribute to LRMP goals of maintaining or restoring 80 

percent of springs to natural conditions, and flow to the tank could be controlled to manage 

livestock distribution. 

In summary, reconfiguration of these allotments and development of new water sources that 

could be effectively manipulated to control livestock distribution and utilization would have the 

potential to assist improvement of woody draw conditions. 

Allotment 130- Proposed actions are not appreciably different than current management and are 

therefore not expected to have a large positive effect on woody draw conditions. Adverse 

impacts to woody draws would likely continue during summer grazing periods and may be 

facilitated by relatively high amounts of invasive grasses and composition-timing conflicts in the 

uplands of several pastures. Water reservoirs along several woody draw drainages serve as 

natural attractants for livestock congregations. Use of pasture 6 one of every three winters has 

the potential to result in livestock congregations within woody draws to escape winter storms. 

Allotment 131- .See allotment 129. 

Allotment 132H - The single primary woody draw and two lesser shrub communities in the 

allotment are unlikely to significantly improve without the adaptive action of fencing because 

they provide the only source of shelter. Concentrating the season of use during May and early 

June to synchronize with the high invasive grass component relative to season-long use that often 

occurs at present, would increase the potential for improved woody draw conditions. However, 

the proposed grazing season has not been precisely identified. The addition of a water tank on 

the fenceline between pastures would allow consistent pasture rotations, thus allowing only half 

of the seasonal use within pasture 3 that contains the woody draw and thereby increasing the 

potential for improved conditions. 

Allotment 134 - Woody draw objectives were just under the goal of 80 percent Healthy and this 

is not expected to appreciably change because Healthy communities in the allotment occurred on 
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relatively steep hillsides avoided by livestock, while less than Healthy communities occurred 

along bottomlands adjacent to Whitetail Creek with greater livestock utilization that would 

continue. Although Whitetail Creek was rated at PFC, riparian woodland habitat along the 

floodplain was poorly developed and is not expected to improve due to high utilization and the 

dominance of smooth brome in this area. 

Allotment 136/139 - Allotment 136 pasture 1(136-1) and Allotment 139 pasture 1 (139-1) are 

almost entirely comprised of broken land and are proposed as early season crested wheatgrass 

pastures. The two woody draws located in pasture 136-1 are currently At Risk and Unhealthy. 

These communities would have the potential to improve under early-season use relative to the 

current twice-over rotations that include periods of mid and late summer use. There were no 

woody draws in 139-1. Pasture 136-2 and 139-4 are proposed for summer use. Two sampled 

woody draws in pasture 139-4 were Healthy and At Risk, while one sampled woody draw in 

136-2 was Healthy. Present conditions in 139-4 are likely to persist because management would 

not significantly change, but the addition of a water source in 136-2 may facilitate greater use of 

this pasture with the potential for decreasing woody draw conditions. 

In summary, woody draws in pasture 136-1 would have the potential to improve, while no 

improvement would be expected among woody draws in 136-2 and 139-4. Overall, the 

proportion of Healthy woody draws in these combined allotments would have a moderate 

potential to increase from 40 percent to 60 percent. 

Allotment 140 - Three woody draw samples in pasture 1 were At Risk. No woody draws 

occurred in pastures 4 or 5. Implementing a deferred rotation between pastures 1 and 5 is 

unlikely to improve woody draws in pasture 1 because use of the draws would not be appreciably 

different than current use during May-July and authorized use would be as much as 39 percent 

above initial estimated carrying capacity. 

Allotment 142 Forty percent of sampled woody draws in pasture 1 were Healthy while 60 

percent were At Risk. Relatively small and insignificant woody draw patches occurred in 

pasture 2 and these were not sampled. Proposed management involves continuation of a rotation 

between the two pastures, but annually changing the season of use. Pasture 1 currently receives 

twice-over grazing and this is presumed to continue. Woody draws in pasture 1 are likely to 

experience the same level of current use so the proportion of 40 percent Healthy communities is 

unlikely to increase. Permitted authorized use as much as 45 percent above initial estimated 

carrying capacity is likely to result in further degradation of existing woody draws. 

Allotment 158 – There are 13 pastures in this allotment. The proposed action is to continue use 

of an once-over rotation while changing the season of use as much as possible. Of thirteen 

woody draws sampled in five pastures, 69 percent were Healthy, 23 percent were At Risk, and 8 

percent were Unhealthy. Continuation of current grazing patterns and authorized use as much as 

34 percent above initial estimated carrying capacity are likely to result in the persistence of 

current woody draw conditions. Rocky Mountain juniper was prominent or comprised the 

majority of woodlands in several pastures on the east and northeast sides of the allotment. Small 

inclusions of green ash/chokecherry occurred along the lower slopes of these communities. 
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Pasture 14 was the largest and primary summer pasture, and three sampled woody draws were 

generally Healthy although heavily infested with leafy spurge. 

Allotment 221 - Two woody draws occurring in pasture 2 were At Risk. This pasture would 

continue to be used in an early season deferred rotation with pasture 3, with authorized use as 

much as 63 percent above initial estimated carrying capacity. Thus, woody draw conditions 

would not be expected to improve. 

Allotment 230 – Of three sampled woody draws in pastures 1 and 3, two were Healthy and one 

was At Risk. No woody draws occurred in pasture 2. Pasture 1 is proposed to be used with 

other allotments/pastures in a two-pasture deferred rotation. This would increase opportunities 

for improvement of the At Risk community in pasture 1 by providing greater periods of non-use 

relative to the current season-long use. Pasture 3 would continue to be used as a winter pasture 

and the sampled woody draw at the low range of Healthy would have the potential to be 

maintained. However, proposed authorized use as much as 26 percent above initial estimated 

carrying capacity would have the potential to inhibit improvements. 

Allotment 237 – Of five woody draw samples throughout the allotment, 60 percent were 

Healthy and 40 percent were At Risk. All three woody draws in pasture 2 were Healthy, while 

the one woody draw sample in pastures 1 and 3 were At Risk. 

Proposed actions involve early season use of crested wheatgrass in pasture 3. Earlier turn-in 

relative to current June turn-in should assist greater utilization of crested wheatgrass and possibly 

facilitate improved woody draw conditions. However, specific turn-in dates are not specified so 

the potential benefits cannot be ascertained. Pastures 1 and 2 would continue to be used in the 

summer through fall with more consistent deferment than present. 

The proposed action of extending an existing pipeline in pasture 1 and installing a tank could 

potentially decrease use of ponded water along Blacktail Creek that could assist improved 

riparian and adjacent woody draw conditions. However most woody draws in pasture 1 were 

clustered along a fork of Blacktail Creek that are likely to experience continued utilization for 

shade and shelter during the summer grazing seasons. 

In summary, the proposed actions do not appear sufficient to appreciably increase the proportion 

of Healthy woody draw conditions, and continued authorized use as mush as 40 percent above 

initial estimated carrying capacity are likely to inhibit the potential for improvement. 

Allotment 239 – All three woody draw samples in the single pasture of this allotment were At 

Risk. The proposed action primarily involves splitting the pasture into two pastures and 

implementing a deferred rotation conducted from May through September. Existing 

composition-timing conflicts would continue due to the predominance of bluegrass in the 

pasture, and along with authorized use as much as 69 percent above initial estimated carrying 

capacity, are likely to perpetuate At Risk woody draw conditions. 

Allotment 240 - Of ten woody draw samples, 30 percent were Healthy and 70 percent were At 

Risk. Proposed management primarily involves continuation of a twice-over grazing system 
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conducted throughout the entire year with winter use concentrated in pasture 4. A water tank is 

proposed in pasture 1 to replace several less reliable reservoirs and ensure more consistent 

pasture deferments. However, the proposed actions would not result in appreciable changes in 

management and woody draw conditions are not expected to improve. 

Allotment 241 –. Of five woody draw samples in pasture 1, one was Healthy, three were At 

Risk, and one near a developed spring and hay storage area on private property was Unhealthy. 

Past beaver activity was noted along several drainages and livestock appeared to be continually 

browsing sapling re-sprouts. A large woody draw comprised approximately 17 percent of 

pasture 7. North aspect slopes of the woodland were Healthy but the wide and flat semi-riparian 

bottom was Unhealthy. Smooth brome was present but not dominant. No woody draws were 

present in pastures 3 and 6. No new management is proposed and woody draw conditions in 

pasture 1 are unlikely to increase because high winter stocking rates of less than 1 acre/AUM 

would continue. 

Allotment 243 – Of three woody draws occurring in this allotment, two were Healthy and one 

was At Risk. Under the proposed action, an additional tank would be placed in pasture 1 to 

improve livestock distribution. While adding the tank has the potential to redistribute use, the 

new tank would create a water source closer to two woody draws in pasture 1, potentially 

decreasing current conditions which nearly meet objectives. The woody draw is pasture 2 was 

Healthy. 

Allotment 244 – This allotment is nearly meeting woody draw objectives. Of eight woody draw 

samples within both pastures, 75 percent were Healthy and 25 percent were At Risk. All the At 

Risk communities occurred in pasture 2. The proposed action calls for splitting pasture 2 into 

two separate pastures, with the predominance of crested wheatgrass in the east pasture to be used 

as an early season pasture. Some impacts may occur to the Healthy woody draw in the new 

crested wheatgrass pasture because it would be the only woody draw present. At Risk woody 

draw conditions on the west side of the pasture are unlikely to improve because they are situated 

along Whitetail Creek where utilization would remain relatively high. Moderate rates of 

overstocking as much as 12 percent greater than initial estimated carrying capacity could also 

contribute to At Risk conditions. 

Allotment 256 – Of eighteen woody draws sampled in this allotment, half were Healthy and half 

were At Risk. Pastures 1 and 3 contained the greatest portion of woody draws with more than 

half of the sampled sites At Risk. 

The proposed actions include splitting pasture 2 into two pastures through fencing, with the north 

pasture becoming a riparian pasture. A new stock tank would be installed in each of these 

pastures. The two pastures would then be used with two other pastures of allotments 230 and 288 

in a deferred rotation. This would decrease the season of use in pasture 2 and the riparian 

pasture relative to current season-long use, potentially facilitating improved riparian and woody 

draw conditions. Additionally, an existing reservoir and the one Unhealthy sampled woody draw 

in pasture 2 would be fenced separately from the riparian pasture and would assist further woody 

draw improvement. These improvements in pasture 2 would potentially increase the proportion 

of sampled communities from 50 percent to about 61 percent Healthy. 
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No appreciable changes are proposed for pastures 1 and 3 that are generally grazed from three to 

four and four to six months respectively, with a moderate degree of annual change in the grazing 

period. Therefore, no improvement of several At Risk woody draws would be expected in these 

pastures. Proposed authorized use that exceed initial estimated carrying capacity by as much as 

22 percent would contribute to poor conditions. Rough topography in large areas of pasture 3 

limit livestock access and likely compound apparent rates of overstocking. AOIs for the past 

five years indicate only 45-74 percent of permitted use, so a decline in woody draw conditions 

would be expected if stocking were conducted at the proposed rates. 

Allotment 272 - Two woody draws occurred in pasture 2. One was At Risk and the other was 

Unhealthy. Proposed actions include fencing one of the two woody draws. The greatest benefit 

would likely be obtained from fencing the At Risk site where green ash saplings were most 

abundant but repeatedly browsed. Removal of livestock browsing pressure should allow 

saplings to advance to the next growth stages, whereupon the fence might be moved to another 

section of the woodland or the adjacent woodland. 

Allotment 277- Of twelve woody draws sampled throughout the allotment, 50 percent were 

Healthy, 42percent were At Risk, and 8 percent were Unhealthy. Woody draws sampled in 

pasture 2 were relatively Healthy, while those in pastures 1 and 5 tended to be At Risk. 

One new water tank is proposed in pasture 1 to replace an unreliable reservoir that would be 

fenced. Placement of the new tank in the uplands would decrease use of the reservoir and 

adjacent small woody draw, but maintenance of the reservoir as a water source might result in 

continued use of the woodland, thereby minimizing the effect of improvement. A recently 

reclaimed reservoir along another woody draw has an increased potential for improvement 

relative to the current rating of At Risk. 

In summary, woody draw objectives are not met in the allotment and the proposed management 

would appear to have a slightly beneficial affect on only one draw. Recent management is likely 

to have a stronger beneficial affect on another draw that was included in the sample set, 

potentially increasing the proportion of Healthy communities to 60percent. 

Allotment 278– The two woody draws occurring in this allotment were Unhealthy. One woody 

draw occurred in the northeast corner of pasture 1, while the second occurred downstream of a 

reservoir in pasture 2. No woody draws occurred in pasture 3. 

The reservoir in pasture 2 is proposed for reclamation. However, improvement of the adjacent 

woody draw is unlikely without the adaptive action of fencing due to continued use of the draw 

by livestock that is ensured by the scarcity of woody draws in the pasture and an adjacent water 

tank. Overall, woody draw conditions in pastures 1 and 2 have some potential to improve due to 

the short and early-season grazing periods that have been implemented the past five years, 

compared to season-long use that was previously implemented. However, the scarcity, easy 

accessibility, and poor condition of these communities, along with proposed authorized use that 

exceed initial estimated carrying capacity by as much as 36 percent, may minimize the potential 

for improvement. 
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Allotment 281 – Of five woody draw samples, 20 percent were Healthy, 60 percent were At 

Risk, and 20 percent were Unhealthy. 

Two relatively large woody draw communities in pasture 1 were rated At Risk and Unhealthy. 

The Unhealthy community contained several small beaver ponds that provided the primary 

source of livestock water, hence trampling/browsing related impacts were high. In pasture 2, half 

of the woody draws occurred on sideslopes and were Healthy, while half occurred along the 

bottom of the slopes and were At Risk. The single woody draw in pasture 5 was At Risk, and a 

small unsampled woody draw in pasture 6 is likely to be in a similar condition because it is the 

only such community present. 

The proposed action includes development of a water source in Pasture 1 to pull livestock away 

from the woody draw and the water source involving beaver ponds and a poorly functioning 

dugout. This could facilitate improvement of woody draw conditions but moderate to high 

livestock use is likely to continue unless the adaptive action of fencing a portion of the draws is 

implemented, because they were the only draws present and would continue to provide amenities 

of shade, browse species, and additional water. 

Relatively light use of pasture 2 should sustain Healthy conditions of half the woody draws that 

occurred on steep slopes, but At Risk woody draws would be difficult to improve due to 

relatively flat terrain that facilitates livestock access, and collateral impacts likely to occur from 

noxious weed control treatment. The woody draw in pasture 5 exhibited a moderately high 

potential for improvement but it was the only such community present and is therefore likely to 

continue receiving heavy use. The proposed actions may result in 40 percent rather than 20 

percent Healthy woody draws but continued authorized use as much as 25 percent above initial 

estimated carrying capacity have the potential to limit improvements. 

Allotment 286 – A single prominent Unhealthy woody draw extended through pastures 1and 3. 

No woody draws occurred in pasture 2. Fencelines have been poorly maintained and pastures 1 

and 3 have generally been used together in a twice over rotation, with pasture 2 used during the 

intervening period. 

The proposed actions call for repair of the fencelines and construction of a water lot between 

pastures 1 and 3 to implement a three-pasture deferred rotation. This would shorten the period of 

use in each pasture. However, proposed authorized use that exceeds initial estimated carrying 

capacity by as much as 35 percent are likely to result in continued high use of the woody draw. 

Composition-timing conflicts resulting from high proportions of invasive grasses, and areas of 

forage production that appeared well below that used to estimate carrying capacity, are likely to 

contribute to adverse affects of overstocking. In summary, no improvement of the woody draw 

is expected. 

Allotment 287 – . Six woody draw samples primarily collected from pasture 3 resulted in 

ratings of 33percent Healthy, 50percent At Risk, and 17 percent Unhealthy. 

Stock tanks are proposed to be manipulated to control livestock distribution. The effectiveness 

of tank manipulation to increase woody draw conditions in pasture 3 may be impaired by less 
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than 2000 ft of distance between the two existing tanks. One of the tanks is situated near a 

cluster of At Risk woody draws so it is uncertain what degree of tank deferment would be 

necessary to facilitate improved conditions of the draws. Additionally, a major livestock trail 

extending between the two tanks and an unfenced reservoir passes the woody draws, potentially 

contributing to their continued use. The adaptive action of fencing the reservoir would improve 

the effectiveness of water manipulation, and adaptively fencing selected draws could increase the 

potential for their improvement. Pasture management would otherwise continue as present, with 

authorized use that exceed initial estimated carrying capacity by as much as 30 percent. The 

proposed action of deferring the grazing rotation is unlikely to be effective without the adaptive 

action of repairing poorly maintained fencelines and improving upon partially effective natural 

barriers. 

Allotment 288 - All four woody draw samples within the single pasture of this allotment were 

At Risk. The proposed action involves including the pasture in a four-pasture deferred rotation 

with allotments 230 and 256. This would have the potential to assist improvement of woody 

draw conditions through decreased and alternating periods of use relative to the current seasonlong use. Proposed actions also include manipulating the single stock tank to control livestock 

distribution and utilization. This may be moderately effective in limiting utilization around the 

water tank in the southwest quarter of the pasture, but utilization in the area around an unfenced 

reservoir about 3000 ft to the east would remain unmanaged. Woody draws in this area were At 

Risk. 

In summary, the proposed actions would have a moderate potential for increasing woody draw 

conditions, but continuation of authorized use as much as 60 percent above initial estimated 

carrying capacity have the potential to impede improvement. 

Allotment 289 – Across the allotment, 56 percent of sampled woody draws were Healthy, 22 

percent were At Risk, and 22 percent were Unhealthy. However, several Healthy woody draws 

were recently observed in pastures 2 and 4 but not documented sufficiently for inclusion in the 

woody draw analysis. Given this new information, the proportion of Healthy communities is 

likely to approach objectives of 80percent because a high proportion of woody draws in the 

allotment occurred in these pastures. Woody draws in pasture 3 were in poor condition 

compared to pasture 2 and occurred at lower densities. 

Proposed actions include adding a stock tank in pasture 3 and manipulating the tanks to control 

livestock distribution and utilization within woody draws. The effectiveness of this tool in 

pasture 3 is likely to be minimized due to the relatively low density of woody draws that would 

continue to be sought for shade and shelter. Some of the At Risk communities were located well 

away from water sources, while some Healthy communities were located adjacent to water. 

Topography was the main predictor of woody draw condition in pasture 3. 

Overall, the proposed actions are unlikely to facilitate improvement of existing woody draw 

conditions. 

Allotment 300 - Of six woody draw samples in the single pasture of this allotment, 50 percent 

were Healthy and 50 percent were At Risk. The primary water source involving a developed 
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spring resulted in Unhealthy conditions of the adjacent woody draw. The proposed action of 

developing a water well and stock tank and reclaiming the developed spring would facilitate 

improved conditions of the woody draw and accomplish LRMP objectives for restoring natural 

spring habitat. The action could potentially increase the proportion of Healthy woody draws 

from 50 to 67 percent. 

Allotment 301 Four pastures comprise this allotment but the fenceline between pastures 1 and 2 

has not been maintained. All water sources in the allotment involved developed springs and 

dugout ponds located along drainages, with resulting livestock concentrations contributing to 

poor conditions with extensive trailing. Of seventeen woody draw samples throughout the 

allotment, 47 percent were Healthy, 35 percent were At Risk, and 18 percent were Unhealthy. 

Proposed actions call for maintaining/repairing existing reservoirs and developed springs to 

improve management opportunities. Developed springs are proposed to be reconstructed by 

moving the water tank further from the spring source that would be fenced, and installing check 

valves that would maintain flow at the spring when the water tank is full. Flow to the tank could 

be stopped to control livestock distribution and utilization within pastures. This action would 

improve the condition of several springs and contribute to meeting LRMP objectives for 

restoring spring habitat. However, extensive trailing along drainages in which the springs and 

reservoirs are located would persist and adjacent woody draws would continue to be impacted. 

Fencing of existing reservoirs to control access is not proposed, potentially decreasing the 

effectiveness of tank manipulation. 

Pastures 1 and 2 are proposed to be split from east to west to re-create a four-pasture deferred 

rotation, likely with some twice-over grazing. Although the number of pastures would increase 

from three to four, utilization of woody draws would likely remain similar to present, with 

authorized use that exceed initial estimated carrying capacity by as much as 27 percent. 

In summary, small woody draw patches adjacent to several springs would have the potential to 

improve, but the proportion of Healthy communities is unlikely to appreciable change. 

Allotment 302 Of ten woody draw samples from the two pastures of this allotment 50 percent 

were Healthy, 40 percent were At Risk, and 10 percent were Unhealthy. 

The primary proposed action involves fencing of three reservoirs in pasture 2 to control livestock 

distribution. This could help alleviate excessive use in key areas, potentially facilitating 

improvement of some woody draw communities. However, proposed authorized use that exceed 

initial estimated carrying capacity by as much as 17 percent have the potential to inhibit 

improved woody draw conditions. The proposed grazing system and authorized use are not 

appreciably different than current management and would not be expected to result in 

appreciable increases in woody draw conditions. 

Adaptive Management - This alternative is based on adaptive management, as described in 

Chapter 2. If monitoring reveals that an initial action(s) is/are not successfully resolving a 

resource concern then a team comprised of different specialists, the affected permittee, and 

affected Grazing Director, would recommend to the District Ranger a possible course of 
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action(s) based on the adaptive options identified in the Allotment Summary Sheets and/or 

Grazing Management Toolbox (Table 2.2). An effects discussion of the different tools, available 

under adaptive management, is located in Appendix D, Grazing Management Tool Box. 

Summary 

The following table briefly summarizes the information provided above in terms of improving or 

not improving the survey woody draws in each allotment. 

 Table 3-11. Likely affect of Alternative 3 proposed actions on woody draw conditions by allotment. 

 

Allotment 

Number 

Woody 

Draw 

Conditions 

Met 

Improved Not 

Improved

Allotment

Number 

Woody 

Draw 

Conditions 

Met 

Improved Not 

Improved

126 No S 240 No X 

127 Yes M 241 No X 

128 No S 243 No X 

129 No M 244 No X 

130 No X 248 none present 

131 No M 249 Yes X 

132A none present 256 No S 

132H No X 258 Yes X 

133 No X 272 No M 

133D5 none present 277 No S 

134 No X 278 No X 

135 Yes X 281 No S 

136/139 No S 282 Yes X 

140 No X 283 Yes X 

141 none present 286 No X 

142 No X 287 No X 

158 No X 288 No S 

220 none present 289 possibly X 

221 No X 300 No S 

230 No S 301 No X 

237 No X 302 No X 

239 No X 

43 total allotments. 6 allotments meeting woody draw objectives, and 5 allotments with no woody draws. 

Of 32 allotments not meeting woody draw objectives, 44% would likely improve, and 56% would be unlikely to 

improve. Of the 44% of allotments likely to improve, the degree of improvement would be relatively high (M) in 

29% and relatively low (S) in 71%. . 

Collective proposed actions under Alternative 3 should result in improved woody draw 

conditions in about 44% of allotments that do not currently meet woody draw objectives. Likely 

improvements would be moderate in about 29% of these allotments, and slight in 71%. Woody 

draw conditions would be unlikely to improve in about 56% of allotments. Improvements would 

likely occur among specific woody draws where proposed actions include fencing or 

construction of new water sources outside of woody draws. Fencing of woody draws may 

eventually lead to increased dominance of invasive grasses and associated litter that has the 

potential to inhibit regeneration of woody species. The potential exists for removing fences and 
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and/or halting fence projects if desired results are not obtained. Proposed actions that involve 

fencing of developed springs and moving the water tank a relatively short distance away would 

contribute to objectives for restoring these habitats, but the surrounding area of woody draw 

habitat would be unlikely to improve due to continued use in the immediate area. 

The relatively high proportion of allotments likely to exhibit only slight or no improvement in 

woody draw conditions is due to grazing strategies not appreciably different than current 

strategies, and authorized use usually exceeding initial estimated carrying capacity. Proposed 

grazing strategies under Alternative 3 are unchanged compared to current management in about 

61% of allotments. Even with changes in grazing strategies, the major impediment to improving 

woody draw conditions would involve the continuation of high authorized use with initial 

estimated carrying capacity exceeded in 88% of the allotments when 1200 lb. average livestock 

weights are assumed. Current authorized use stocking would likely continue to result in high use 

and adverse impacts to woody draws. 

Adverse affects of composition-timing conflicts and practices such as hay feeding would 

continue among most allotments under Alternative 3. Additionally, about twenty-six new water 

related developments are proposed under Alternative 3 that have a high potential to assist the 

spread of invasive grasses as a result of construction disturbances or new areas of high livestock 

concentrations, potentially contributing to adverse affects of invasive grasses within woody 

draws. 

Alternative 4 

Alternative 4 is similar to Alternative 3 in the use of management tools such as implementation 

or changes in rotations, but doesn’t utilize range infrastructure to the extent of Alternative 3. In 

addition to these actions Alternative 4 includes authorized use based on carrying capacity and an

adjustment for livestock weight. This alternative is also adaptive management based. For AUMs 

by allotment refer to Table 2.8 at the end of Chapter 2. 

Allotment 126 and Allotment 128 These two allotments would be combined similar to 

Alternative 3 and seven pastures would be utilized in a deferred rotation. Shorter grazing periods 

would increase the potential for improved woody draw conditions relative to current proportions 

of 31 percent Healthy and 69 percent At Risk. 

The spring in pasture 1 (allotment 128) located in Section 25 would be reconstructed as 

discussed in alternative 3. The immediate area of spring habitat would improve as directed by 

LRMP objectives, but trailing/grazing impacts in much of the drainage would continue from 

livestock trailing to the tank. 

A thirty-five acre exclosure is proposed to be constructed along a large headcut of Whitetail 

Creek in 128-1. Benefits to the riparian system are discussed in the Hydrology Report, but 

increased tree and shrub establishment would likely occur and could increase the proportion of 

Healthy woody draws. 
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The proposed stocking rate for the two allotments is 1929 AUMs, equivalent to the initial 

estimated carrying capacity and about 29 percent less than currently permitted use. The 

reduction in stocking rate would likely be instrumental in improving woody draw conditions. 

Allotments 129, 131-1, 2, and 3 Combining allotments and several pastures, or portions thereof 

would create the potential for a five pasture deferred rotation grazing system that could facilitate 

improvement of woody draw conditions relative to the current twice or thrice-over grazing 

system. However, a specific grazing system and authorized use have not been proposed so the 

potential benefits cannot be ascertained. 

With the allotments and pasture combined, 56 percent of sampled woody draws were Healthy 

and 44 percent were At Risk. Splitting Allotment 129 pasture 2 (129-2) into two pastures to 

create a riparian pasture along Magpie Creek would increase the pasture number to six and 

should provide greater flexibility and control for improving the riparian habitat. A few woody 

draws that tend to be concentrated adjacent to Magpie Creek in this portion of the allotment 

would have an increased potential to improve if included in the riparian pasture. 

Reclaiming two reservoirs at the north end of 131-1 and replacing these water sources with a 

pipeline and two stock tanks from an existing well in 131-3 would likely have a neutral or 

slightly positive affect on woody draw conditions. Livestock use already occurs at the north end 

of 131-1 and woody draws would continue to be sought for amenities of shade and shelter, but 

replacing the freely available reservoir water with controlled stock tanks could facilitate 

improved woody draw conditions through increased management of livestock distribution. 

Extension of an existing water pipeline in 129-4 approximately one mile to replace a developed 

spring in Section 14, that would be reclaimed, would have minimal net affect on woody draws, 

but would contribute to LRMP goals of maintaining or restoring 80 percent of springs to natural 

conditions. 

In summary, reconfiguration of these allotments and development of new water sources that 

could be effectively manipulated to control livestock distribution and utilization, has the 

potential to assist improvement of woody draw conditions. 

Allotment 130 Of fifteen sampled woody draws, 27 percent were healthy, 67 percent were At 

Risk, and 7 percent were Unhealthy. 

Proposed actions include decreased authorized use from 959 to 889 AUMS according to initial 

estimated carrying capacity. This seven percent reduction is unlikely to have an appreciable 

affect on woody draw conditions. Pasture 6 is proposed to be included with pastures 1 and 2 for 

annual rotation of a winter grazing/feeding pasture. Winter use could assist improvement of 

three At Risk woody draws in pasture 6. However, summer use would continue 2 of every 3 

years and may continue during the year of winter use due to the twelve month inventory permit 

and twice-over rotations. Additionally, relatively gentle topography of pasture 6 is likely to 

result in high use of woody draws for shelter during harsh winter weather. 
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Pastures 8 and 9 with high proportions of broken land and invasive grasses are proposed for an 

early season deferred rotation two of every three years. Composition-timing conflicts would 

persist two out of three years in each pasture, potentially contributing to high use of woody 

draws and adjacent native-dominated sideslopes. In summary, woody draw conditions would not 

be expected to significantly improve in the allotment because pasture management and 

authorized use would remain similar to current conditions. 

Allotment 131 Pastures 1 and 2 are proposed to be reallocated to allotment 129 and are 

discussed therein. Pasture 129-2 would be added with 131-3 to create a new allotment 131. The 

fenceline between these pastures would be removed. 

Initial estimated carrying capacity for the new allotment has not been estimated, nor has 

authorized use or grazing management been proposed. Sampled woody draws in the new 

allotment include one site that was At Risk, but the potential exists for the occurrence of Healthy 

communities on steeper slopes south of the sampled site. 

Allotment 132H Proposed decreases in stocking rate from 382 to 364 AUMs might assist in 

slight improvements of the single primary woody draw community that was At Risk, and two 

lesser shrub communities. However, attaining Healthy conditions is unlikely without the 

adaptive action of fencing portions of the woody draw because it provides the only source of 

canopy shelter. 

Allotment 133 Of three woody draw samples in pasture 1, two were At Risk and one was 

Healthy. No significant woody draws occurred in pasture 2. Proposed management largely 

follows current management, with a fall/early winter two-pasture deferred rotation occurring 

most years. 

Proposed authorized is reduced from 313 AUMs to 196AUMs according to initial estimated 

carrying capacity. Continued focus on fall grazing along with the 37% reduction in AUMs 

would increase the potential for improved woody draw conditions. 

Allotment 134 Of seven woody draw samples, 71percent were Healthy, 14 percent were At 

Risk, and 14 percent were Unhealthy. As with Alternative 3, the proposed grazing regime 

involves a deferred twice-over grazing system rather than the current non-deferred twice or 

thrice-over system. Proposed authorized use is reduced from the current 292 AUMs to 220 

AUMs according to estimated initial estimated carrying capacity. 

The 25 percent decrease in authorized use would likely assist improved woody draw conditions, 

but existing Healthy communities occurred on relatively steep hillsides avoided by livestock, 

while less than Healthy communities occurred along bottomlands adjacent to Whitetail Creek 

where livestock utilization is likely to remain relatively high. Although Whitetail Creek was 

rated at PFC, riparian woodland habitat along the floodplain was poorly developed and is not 

expected to improve due to high utilization and the dominance of smooth brome. 

Alternating the placement of salt and mineral to the west and east sides of Whitetail Creek in 

pasture 3 may help decrease over-utilization on a local scale. However, this would not be 
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expected to have a large affect on woody draws due to narrowness of the pasture and abundant 

crossing areas that allow livestock to graze where they prefer while maintaining ready access to 

mineral blocks. 

Allotment 136/139 Allotment 136 pasture 1(139-1) and Allotment 139 pasture 1 ( 139-1) are 

almost entirely comprised of broken land and are proposed as early season crested wheatgrass 

pastures. This would facilitate effective use of invasive grasses that dominate these pastures 

relative to the current twice-over system, thus increasing the potential for improved woody draws 

conditions in 136-1 that were At Risk and Unhealthy. There were no woody draws in 139-1. 

Pasture 136-2 and 139-4 would continue to be used as late season pastures. Proposed authorized 

use would decrease from the current 416 AUMs to 252 AUMs that corresponds to the initial 

estimated carrying capacity. Decreased authorized use could assist improved woody draw 

conditions in pasture 136-1 and 139-4. . 

Development of a water source in pasture 136-2 to replace a water source that was lost on 

adjacent private land may facilitate greater use of this pasture with the potential for decreasing 

woody draw conditions. Thus, the tank should be placed with these factors in mind. 

Allotment 140 Three woody draw samples in pasture 1 were At Risk, and no woody draws 

occurred in pastures 4 or 5. Authorized use for the allotment would be reduced from 281 to 232 

AUMs according to estimated carrying capacity. A deferred rotation is proposed for pastures 1 

and 5 that contain high proportions of broken land and intermixed native and invasive grasses. 

The deferred rotation and reduced authorized use are unlikely to appreciably improve woody 

draw conditions because use of the draws is likely to remain high relative to current use during 

May-July. Warmer temperatures and increased composition-timing conflicts have the potential 

to result in increased use of the draws when the deferred rotation results in late summer use of 

the pasture. 

Allotment 142 Pasture 1 was the largest of two pastures in this allotment and contained about 

20 percent broken land with native grasses appearing to dominate in non-broken land. Of five 

woody draws sampled in pasture 1, 40 percent were Healthy and 60 percent were At Risk. Only 

small patches or fragments of woody draws were present in pasture 2 and these were not 

sampled. 

Proposed management involves a deferred rotation of the two pastures. Twice-over grazing 

currently implemented in pasture 1 is likely to continue due to the small size of pasture 2.. 

Authorized use would decrease from 192 to 106 AUMs according to initial estimated carrying 

capacity. Decreased authorized use would increase the potential for improvement of woody 

draw conditions in pasture 1. 

Allotment 158 Of thirteen woody draws sampled in five pastures, 69 percent were Healthy, 23 

percent were At Risk, and 8 percent were Unhealthy. All three woody draws sampled in pasture 

14OK were Healthy, although often at the low range of this class. 
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The proposed action is to continue use of a once-over rotation while changing the season of use 

as much as possible. However, the grazing system has been variable and not well documented. 

As many as six of thirteen pastures have been used for winter pastures and are not specifically 

discussed in the potential rotation. Recent management has involved 5 to 7 pastures in the 

summer rotation schedule. Proposed authorized use would decrease from 1801 to 1347 AUMs 

according to initial estimated carrying capacity. Decreased authorized use would provide the 

potential for increasing woody draw conditions. 

Allotment 221 All three pastures of the allotment contained a high proportion of broken land 

with crested wheatgrass, bluegrass, and intermixed native grasses. Two woody draws in pasture 

2 were At Risk. No woody draws occurred in pastures 3 and 6. 

The proposed action involves implementing a three pasture deferred rotation with grazing 

initiated in early May. Authorized use would be reduced from 283 to 174 AUMs according to 

initial estimated carrying capacity. Decreased authorized use may increase the potential for 

improvement of woody draws in pasture 2, but moderate to high use of the draws would likely 

continue because they were the only draws present. A stock tank would be installed on the 

fenceline of pasture 3 and adjacent allotment 272. This would ensure use of pasture 3 when the 

small reservoir is dry, thereby potentially alleviating additional pressure on the other pastures 

and woody draws in pasture 2. Overall, the proposed 39% reduction in authorized use has the 

potential to assist improvement of woody draws in pasture 2. 

Allotment 230 Three federal pastures are included in this allotment. Of two woody draw 

samples in pasture 1, one was Healthy and the second was At Risk. One woody draw sample in 

pasture 3 was Healthy. No woody draws occurred in pasture 2. 

Proposed actions involve using pasture 1 in a deferred rotation with several other 

allotments/pastures. This would increase opportunities for improved woody draw conditions by 

providing longer periods of non-use compared to current season-long grazing. 

Authorized use for the allotment would be decreased from 419 to 333 AUMs according to initial 

estimated carrying capacity. This would create the potential for improved woody draws 

conditions, but failure to account for use of pasture 3 during January-May has the potential to 

negate decreased authorized use during the growing season. 

Allotment 237 All three sampled woody draws in pasture 2 were Healthy, while one sampled 

woody draw in pastures 1 and 3 was At Risk. 

The proposed action involves early use of pasture 3, and a deferred rotation of pastures 1 and 2. 

This is similar to current management, where pasture 3 has been used in June, and pasture 1 and 

2 have been used for two-month periods with inconsistent deferment during July-October. 

Proposed authorized use would decrease from 331 to 236 AUMs according to initial estimated 

carrying capacity. 

Earlier turn-in of pasture 3 would improve synchronization of grazing with crested wheatgrass 

palatability relative to current June turn-in dates. Thus, composition-timing conflicts would 
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likely decrease and potentially assist improvement of woody draws and adjacent sideslopes as a 

result of decreased utilization of these areas. 

More consistent deferred rotations of pastures 1 and 2 may slightly assist improvement of woody 

draw conditions, but most woody draws in pasture 1 were clustered along a fork of Blacktail 

Creek that is likely to experience high utilization during summer grazing seasons regardless of 

the rotation. 

In summary, the proposed actions are likely to decrease composition-timing conflicts in pasture 

3, with some potential for improved woody draw conditions. Reduced authorized use among all 

three pastures should also facilitate improved woody draw conditions. 

Allotment 239 The single pasture of this allotment was largely dominated by Kentucky 

bluegrass with subordinate native grasses occurring at high frequency but contributing a small 

portion to the total forage production. Three woody draw samples were At Risk. 

The proposed action involves splitting the single 640-acre pasture and implementing a deferred 

rotation beginning May 1 and generally extending through September or October. Stocking 

would be reduced from 288 to 176 AUMs according to initial estimated carrying capacity. 

Woody draw conditions would have some potential to increase under lower authorized use, but 

increased green periods and browse species relative to persistent composition-timing conflicts in 

the uplands would likely ensure their continued use and decrease the potential for improvement. 

In summary, woody draws would have some potential to improve as a result of decreased 

authorized use and shorter grazing periods resulting from the creation of two pastures. However, 

extensive bluegrass understories observed in several portions of these draws have the potential to 

inhibit woody species regeneration. 

Allotment 240 Of ten woody draw samples, 30 percent were Healthy and 70 percent were At 

Risk. 

The proposed action involves development of a new water source and reclamation of unreliable 

reservoirs in pasture 1 to implement a more consistent three-pasture deferred rotation. Two other 

pastures of the allotment would continue to be used for winter grazing and hay feeding. 

Authorized use would decrease from 930 to 809 AUMs according to initial estimated carrying 

capacity. However, no AUMs are recorded during January-April when livestock are wintered in 

pasture 4 and/or 1, and fed hay, with continued grazing when snow cover is minimal or lacking. 

Decreased authorized use may assist improved woody draw conditions but the proposed deferred 

rotation is unlikely to have a large influence on woody draw conditions relative to the current 3 

or 4-pasture twice-over rotation because the length of the total grazing period in each pasture 

would be similar under the twelve-month inventory permit. An adaptive action of including 

pasture 4 in the summer rotation one of every four years would be unlikely to appreciably assist 

woody draw conditions due to the low frequency of this action. 
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In summary, woody draw conditions may have the potential for small improvements with the 

decreased authorized use proposed, but other proposed actions are unlikely to have an 

appreciable affect on woody draws relative to current use. 

Allotment 241 Of five woody draw samples in pasture 1, one was Healthy, three were At Risk, 

and one near a developed spring and a hay storage area on private property was Unhealthy. Past 

beaver activity was noted along several drainages and livestock appeared to be continually 

browsing sapling re-sprouts. A large woody draw comprised 17 percent of pasture 7. North 

aspect slopes of the woodland were Healthy but the wide and flat semi-riparian bottom was 

Unhealthy. Smooth brome was present but not dominant. No significant woody draws occurred 

in pastures 3 and 6. 

Fencing and monitoring of a woody draw in pasture 1 is proposed, along with continued 

monitoring of the woody draw in pasture 7. Pasture 1 would continue to be utilized from 

November through March or April with likely stocking rates of 1.0 or less acres/AUM. The 

winter use along with hay feeding has been counted in annual use. 

Authorized use would be reduced from 413 to 358 AUMS according to initial estimated carrying 

capacity. No other new management is proposed. Except for the woody draw in pasture 1 

proposed for fencing, woody draw conditions for the allotment are not expected to appreciably 

improve because most of the draws occurred in pasture 1 that would continue to receive heavy 

winter use. There was minimal evidence for livestock being the direct result of poor conditions 

along the bottom of the woody draw in pasture 7. Continued monitoring of this site may provide 

greater insight for management decisions. 

Allotment 243 Of two woody draw samples in pasture 1, one was Healthy and one was At Risk. 

The primary woody draw on federal land in pasture 2 was Healthy. 

The two pastures would continue to be grazed in a modified deferred rotation starting in late May 

or early June and extending through late September or early October. The first pasture of use 

each season has received a second period of use in the fall and this is likely to continue. 

Proposed authorized use would decrease from 431 to 347 AUMs according to initial estimated 

carrying capacity. Woody draw conditions would have an increased potential to improve with 

lower authorized use, and the proposed action of fencing a portion of the At Risk woody draw in 

pasture 1 would further increase the potential for achieving objectives. 

Allotment 244 Of eight woody draw samples within the two pastures of this allotment, 75 

percent were Healthy and 25 percent were At Risk. All three sampled woody draws in pasture 1 

were Healthy, including the area around a developed spring. Two of five woody draw samples 

in pasture 2 were At Risk. 

The proposed action calls for splitting pasture 2 into two separate pastures, with the 

predominance of crested wheatgrass and bluegrass in the east half of the pasture to be used as an 

early season pasture. The west half of pasture 2 would continue to be used in a deferred rotation 

with pasture 1. Woody draw conditions in pasture 2 are unlikely to improve with the slightly 
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later season of use allowed by early season use of the crested wheatgrass pasture because 

utilization along Whitetail Creek where At Risk woody draws were concentrated would remain 

high. 

Authorized use would be reduced from 271 to 236 AUMs according to initial estimated carrying 

capacity. This would increase the potential for improving woody draw conditions. In summary 

the modest decrease in stocking rate may assist slight increases in woody draw conditions, but 

splitting of pasture 2 may result in increased impacts to a Healthy woody draw in the new crested 

wheatgrass pasture. 

Allotment 256 AOIs for the past three years indicated only 45 to 67 percent of permitted use in 

this allotment, at least in part due to non-use by one of the permittees. Of eighteen woody draws 

sampled among the three pastures of this allotment, half were Healthy and half were At Risk. 

The proposed actions include splitting pasture 2 into two pastures through fencing, with the north 

pasture becoming a riparian pasture. A new water well would be drilled and a new stock tank 

would be installed in each of the two new pastures. The two pastures would then be used with 

two pastures of other allotments in a four-pasture deferred rotation. This would shorten the 

period of use in the new pastures and likely facilitate improved riparian and woody draw 

conditions. An existing reservoir and the one Unhealthy sampled woody draw in pasture 2 

would be fenced separately from the riparian pastures and assist further woody draw 

improvement. 

Current season-long grazing would continue in pastures 1 and 3. Authorized use for the 

allotment would decrease from 1830 to 1509 AUMs according to initial estimated carrying 

capacity. This could potentially facilitate improved woody draw conditions. 

Allotment 272 Only two woody draws occurred in this allotment, with one At Risk and the 

other Unhealthy. 

Current pasture rotations are proposed to continue, with the woody draw pasture utilized in May 

and early June to utilize the predominance of crested wheatgrass. Authorized use would be 

reduced from 1694 to 1472 AUMs according to initial estimated carrying capacity. The 13 

percent decrease in authorized use could facilitate some improvement of woody draw conditions, 

but as only two communities were present, they are likely to continue experiencing relatively 

high use. Proposed actions of fencing one of the two woody draws would increase the potential 

for improvement. The greatest benefit would likely be obtained from fencing the At Risk site 

where green ash saplings were most abundant but repeatedly browsed. Removal of livestock 

browsing pressure should allow saplings to advance to the next growth stages, whereupon the 

fence might be moved to another section of the woodland or the adjacent woodland. 

Allotment 277 Of twelve woody draws sampled throughout the three pastures of this allotment, 

50 percent were Healthy, 42 percent were At Risk, and 8 percent were Unhealthy. Woody draws 

sampled in pasture 2 were relatively Healthy, while those in pastures 1 and 5 tended to be At 

Risk. 
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The twelve-month grazing system involving a twice or thrice-over rotation would be maintained. 

Pasture 5 would continue to be the primary pasture for winter/spring grazing, hay feeding, and 

calving, but some hay feeding would likely occur in pastures 1 and 2 when they are used in 

December and January. Authorized use would be reduced from 1298 to 1129 AUMs that is 

about 9 percent less than initial estimated carrying capacity. Periods of hay feeding and winter 

use appear to be counted in annual use. The reduction in authorized use could facilitate 

improved woody draw conditions. 

One new water tank is proposed in pasture 1 to replace an unreliable reservoir that would be 

fenced. Placement of the new tank in the uplands would decrease use of the reservoir and 

adjacent small woody draw, but maintenance of the reservoir as a water source may ensure 

sufficient use to minimize improvement of the woodland. Woody draws adjacent to a recently 

reclaimed reservoir in another portion of pasture 1 have an increased potential for improvement 

relative to the current rating of At Risk. Water sources throughout the allotment would continue 

to be managed to control livestock distribution, but this has not resulted in the achievement of 

woody draw objectives in pastures 1 or 5 thus far. The effectiveness of water tank manipulation 

in pastures 2 and 5 is likely to be decreased by free water access along North Creek and Magpie 

Creek. 

In summary, proposed management primarily involving a slight reduction in authorized use after 

accounting for livestock weight may assist small improvement of woody draw conditions. 

Fencing and control of an existing stock pond may result in a slight improvement of an adjacent 

small woody draw, and recent reclamation of a stock pond has the potential to facilitate 

improvement of adjacent and more significant woody draws. Overall, these actions are likely to 

facilitate small improvement of woody draw conditions. 

Allotment 278 The single woody draw present in pasture 1 was Unhealthy, and an adjacent 

alkaline fen occurring along Whitetail Creek was in poor condition with a high degree of 

trampling associated with livestock watering. A small woody draw downstream of a reservoir in 

pasture 2 was also Unhealthy. No woody draws occurred in pasture 3. 

The proposed action involves continued use of all three pastures as early season crested 

wheatgrass pastures. Authorized use would be decreased from 313 to 230 AUMs according to 

initial estimated carrying capacity. Woody draw conditions should improve with continued early 

season use of crested wheatgrass compared to previous grazing conducted over longer periods. 

The decrease in authorized use would likely assist improvement of woody draws, but actual 

stocking levels during the past five years have averaged slightly less than the currently proposed 

levels. Thus, authorized use will not appreciably change. Additionally, the general scarcity and 

easy accessibility of woody draws in the allotment may decrease the potential for improvement. 

This is especially true for the Unhealthy woody draw located below a reservoir. 

Although little improvement in woody draws might be expected due to continuation of current 

management, additional time should be allowed for the At Risk community to improve as the 

short grazing periods and proposed authorized use should have the potential for improving 

conditions relative to past use. 
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Allotment 281 Two relatively large woody draw communities in pasture 1 were rated At Risk 

and Unhealthy. The Unhealthy community contained several small beaver ponds that provided 

the primary source of livestock water, hence trampling/browsing related impacts were high. Half 

of the woody draws in pasture 2 were Healthy, while half were At Risk. A single woody draw in 

pasture 5 was At Risk, and a small unsampled woody draw in pasture 6 is likely to be in a similar 

condition because it is the only such community present. In summary, 20 percent of sampled 

woody draws were Healthy, 60 percent were At Risk, and 20 percent were Unhealthy. 

Pasture 1 has been seasonally grazed from May through June, or May through November with an 

intervening period of rest occurring in some years. Pastures 5 and 6 appeared to be used 

together, with reported grazing periods in May and again in August. Pasture 2 has been used in 

August and as a gathering area in late fall. 

Greater deferment or changes in the rotation sequence are proposed. Authorized use would be 

reduced from 339 to 272 AUMs according to initial estimated carrying capacity, and the 20 

percent reduction should assist improved woody draw conditions. A new water source proposed 

for development in the northeast corner of pasture 1 should facilitate improvement of the two 

woody draws, and especially the Unhealthy draw with the only current source of water. 

However, relatively high use of the draws for shade, shelter, and extended green periods may 

inhibit or decrease the potential for improved conditions. 

In summary, woody draw conditions in pasture 1 have the potential to improve with 

development of a new water source. Relatively light use of pasture 2 should sustain Healthy 

conditions of half the woody draws that occurred on steep slopes, but At Risk woody draws 

would be difficult to improve due to relatively flat terrain that facilitates livestock access, and 

collateral impacts likely to occur from noxious weed control treatments within these particular 

draws. The woody draw in pasture 5 exhibited a moderately high potential for improvement but 

it was the only such community present and it is uncertain whether the proposed 20 percent 

reduction in authorized use will be sufficient to allow Healthy conditions. 

Allotment 286 The single prominent woody draw in pastures 1 and 3 was Unhealthy, no woody 

draws occurred in pasture 2. Pasture management has remained consistent with a twice-over 

rotation occurring in pastures 1 and 3 during mid-May through mid-June, and mid-July through 

mid-August. Pasture 2 has been grazed in the intervening period of mid-June through mid-July. 

This system is proposed to be replaced by a three-pasture deferred rotation after reconstruction of 

a water lot and other fenceline segments. Authorized use would be reduced about 26 percent 

from 320 to 237 AUMs according to initial estimated carrying capacity. However, current plant 

production appeared lower than assumptions used to estimate carrying capacity, so the proposed 

authorized use may continue to exceed current carrying capacity. Additionally, the three most 

recent years AOI’s indicated that stocking rates were about 50 percent of the permitted rate and 

well below initial estimated carrying capacity and the currently proposed rate, but it is unknown 

whether these rates would continue. The deferred rotation has the potential to assist 

improvement of woody draw conditions through decreased periods of woody draw use. 

In summary, although proposed authorized use is about 26 percent less than currently permitted 

rates, they are greater than actual use rates during the past three years and possibly greater than 
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actual current carrying capacity. Thus, it is uncertain whether the proposed reductions in 

permitted rates are sufficient to assist improvement of woody draw conditions. Implementation 

of a deferred rotation could assist improved woody draw conditions through greater control of 

livestock distribution and potentially greater periods of non-use within affected woody draw 

segments. 

Allotment 287 Six woody draw samples primarily collected from pasture 3 resulted in ratings of 

33 percent Healthy, 50 percent At Risk, and 17 percent Unhealthy. One of the samples was 

collected in pasture 2 and was Healthy. 

A deferred grazing rotation is proposed between pastures 2 and 3, but this cannot be effectively 

accomplished without the adaptive action of repairing and improving fencelines and natural 

barriers between the two pastures. Authorized use would be reduced from 665 to 513 AUMs 

according to initial estimated carrying capacity. Stock tanks are proposed to be manipulated to 

control livestock distribution but this may occur to some extent at present. The effectiveness of 

tank manipulation to increase woody draw conditions in pasture 3 may be impaired by less than 

2000 ft of distance between the two existing tanks. One of the tanks is situated near a cluster of 

At Risk woody draws, so it is uncertain what degree of tank deferment would be necessary to 

facilitate improved conditions of the adjacent draws. Additionally, a major livestock trail 

extending between the two tanks and continuing to an unfenced reservoir passes the woody 

draws and would likely contribute to their continued use. Only one water tank occurred in 

pasture 2 and one reservoir occurred in pasture 4, so tank manipulation is not applicable in these 

pastures. In summary, the proposed reduction in authorized use of almost 30 percent is likely to 

be the most influential factor in promoting improved woody draw conditions. 

Allotment 288 Allotment 288 includes one 640-acre federal pasture where four woody draw 

samples were At Risk. 

The proposed actions include utilizing the pasture in a four-pasture deferred rotation with three 

other allotments/pastures. Authorized use would be reduced from 308 to 192 AUMs according 

to initial estimated carrying capacity. AUMs recorded during 2003 and 2004 exceeded initial 

estimated carrying capacity by 82-110 percent, while more recent stocking rates exceeded 

carrying capacity by about 25 percent. 

The proposed reduction in stocking level and switching to a deferred rotation should greatly 

assist improvement of woody draw conditions through decreased and alternating periods of use 

relative to the current season-long use. The proposed action of manipulating the single stock 

tank to control livestock distribution and utilization would be less effective because utilization 

around an unfenced reservoir about 3000 ft to the east with adjacent At Risk woody draws would 

remain unmanaged. Additional unmanaged water might also occur during some years along a 

fork of Blacktail Creek that extends through the northeast portion of the pasture. 

In summary, reduced authorized use and utilization of the pasture in a four-pasture deferred 

rotation should have the greatest potential for improved woody draw conditions. 
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Allotment 289 Across the six pastures of this allotment, 56 percent of sampled woody draws 

were Healthy, 22 percent were At Risk, and 22 percent were Unhealthy. However, several 

Healthy woody draws were recently observed in pastures 2 and 4 that receive winter use. These 

sites were insufficiently documented for inclusion in the woody draw analysis, but it is apparent 

that the proportion of Healthy communities is likely to be greater than 56 percent and may 

approach the objective of 80 percent because a high proportion of woody draws in the allotment 

occurred in these pastures. Woody draws in pasture 3 were in poor condition and occurred at 

low densities compared to pasture 2. 

Current grazing rotations would generally continue but authorized use would be reduced from 

2057 to 1862 AUMs according to initial estimated carrying capacity. However, winter use of 

pasture 2 is poorly accounted and no AUMs have been recorded for the period of January-April. 

The predominance of blue grama-western wheatgrass communities throughout large areas of 

pasture 3 and at least some portions of pasture 2 are likely to result in lower forage production 

relative to potential production used to estimate carrying capacity. Thus, authorized use may 

continue to exceed actual carrying capacity, but the proposed reductions use may facilitate some 

woody draw improvement. 

Pasture 2 is proposed to be split into two pastures by fencing section 2 from the two southern 

sections to allow a two-pasture deferred rotation. Continued winter and early spring grazing is 

assumed but unspecified for these two pastures. A partially maintained fence presently occurs in 

the southern third of the pasture and it is not clear why the two-pasture rotation cannot be 

presently implemented. Another proposed action in pasture 2 involves the addition of a water 

tank, but it is uncertain where the tank would be located. Water is currently obtained from North 

and Camp Creeks and at least one reservoir located at the north and south ends of the current 

pasture. 

Proposed actions also include adding a stock tank in pasture 3 and manipulating the tanks to 

control livestock distribution and utilization within woody draws. However, in addition to four 

and possibly five existing tanks in the 2800-acre pasture, there were several dugout ponds and 

drainages with perennial or at least long-term surface flow, so the effectiveness of tank 

manipulation would be minimal in some areas. The effectiveness of tank management in pasture 

3 for improved woody draw conditions is also likely to be impaired by the relatively low density 

of draws that would continue to be sought for shade and shelter. Some of the At Risk 

communities were located well away from water sources, while some Healthy communities were 

located adjacent to water. Topography rather than distance to water sources was the main 

predictor of woody draw conditions in pasture 3. 

In summary, the proportion of Healthy woody draw conditions is likely greater than estimated 

from current measurements and may meet or approach objectives of 80 percent Healthy. 

Proposed reductions in authorized use of about 9 percent have the potential to facilitate small 

improvement of woody draw conditions. Potential benefits are not immediately apparent in 

regard to splitting pasture 2 with a new fenceline while ignoring an existing fenceline, and 

adding water tanks to both pastures 2 and 3. 
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Allotment 300 Of six woody draw samples in the single 1,300 acre pasture of this allotment, 50 

percent were Healthy and 50 percent were At Risk. The primary water source involving a 

developed spring resulted in Unhealthy conditions of the adjacent woody draw community. 

The current grazing schedule from June 1 through October or November would generally 

continue but authorized use would decrease from 559 to 486 AUMs, about 2percent less than 

initial estimated carrying capacity. The 13 percent reduction in authorized use would assist 

improved woody draw conditions to some degree. A water well and stock tank to be located in 

the uplands is proposed, after which, the developed spring would be reclaimed. This would 

accomplish Grassland Plan goals and objectives for restoring natural spring habitat, and potential 

improvement of this single woody draw would increase the proportion of Healthy communities 

from 50 percent to 67 percent. 

In summary, the proposed actions of reduced authorized use and restoration of the developed 

spring would likely result in an increase in the proportion of Healthy woody draws. 

Allotment 301 Of seventeen woody draw samples throughout the allotment, 47 percent were 

Healthy, 35 percent were At Risk, and 18 percent were Unhealthy. All water sources in the 

allotment involved developed springs and dugout ponds located along drainages, with resulting 

livestock concentrations contributing to poor conditions with extensive trailing. 

Proposed actions include splitting pasture 1 and 2 from east to west to re-create a four rather than 

three-pasture deferred rotation. Occasional twice and thrice-over grazing that presently occurs 

would be discouraged (Dahl, 2009). Authorized use would be reduced from 1780 to 1509 

AUMs according to initial initial estimated carrying capacity. 

Proposed actions call for maintaining/repairing existing reservoirs and developed springs to 

improve management opportunities. Developed springs would be reconstructed and fenced to 

restore the spring habitat and while continuing to provide livestock water a short distance away. 

This would contribute to Grassland Plan objectives for restoring spring habitat and may improve 

the condition of small woody patches around some springs. Trailing and browsing disturbances 

along drainages and woody draws in which springs and reservoirs are located would persist and 

inhibit improved conditions of the larger woody draw community. Decreased authorized use of 

about 15 percent may facilitate some improvement of more distant woody draws. 

In summary, decreased authorized use may facilitate slight improvements in woody draw 

conditions, especially those most distant from water sources. Reconstruction of developed 

springs would improve the immediately surrounding habitat usually comprising less than one 

acre, but adjacent woody draws would continue to experience high use. 

Allotment 302 Of ten woody draw samples surveyed throughout the two pastures of the 

allotment, 50 percent were Healthy, 40 percent were At Risk, and 10 percent were Unhealthy. 

Most sample sites were located in pasture 2 and the potential exists for a greater proportion of 

Healthy woody draws through increased sampling of federal land at the south end of pasture 1. 
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The current grazing system is proposed to continue and involves a season-long deferred rotation 

with twice-over grazing alternately occurring in one of the pastures during successive years. 

Authorized use would decrease from 1201 to 1027 AUMs according to initial estimated carrying 

capacity. Areas of crested wheatgrass in broken land would be temporarily fenced and grazed 

early once every three years. Fencing of three reservoirs is proposed in pasture 2 to control 

livestock distribution. 

The 14 percent decrease in authorized use may facilitate slight improvements in woody draw 

conditions. Control of livestock distribution through management of three reservoirs and one 

water tank may also assist woody draw improvement. 

Adaptive Management Adaptive Management - This alternative is based on adaptive 

management, as described in Chapter 2. If monitoring reveals that an initial action(s) is/are not 

successfully resolving a resource concern then a team comprised of different specialists, the 

affected permittee, and affected Grazing Director, would recommend to the District Ranger a 

possible course of action(s) based on the adaptive options identified in the Allotment Summary 

Sheets and/or Grazing Management Toolbox (Table 2.2). An effects discussion of the different 

tools, available under adaptive management, is located in Appendix D, Grazing Management 

Tool Box. 

Summary 

The following table briefly summarizes the information provided above in terms of improving or 

not improving the survey woody draws in each allotment. 

Table 3-12. Likely affect of Alternative 4 proposed actions on woody draw conditions by allotment. 

Allotment 

Number 

Woody 

Draw 

Conditions 

Met 

Improved Not 

Improved

Allotment

Number 

Woody 

Draw 

Conditions 

Met 

Improved Not 

Improved

126 No M 240 No S 

127 Yes M 241 No X 

128 No M 243 No M 

129 No S 244 No S 

130 No X 248 none present 

131 No S 249 Yes M 

132A none present 256 No M 

132H No X 258 Yes S 

133 No M 272 No M 

133D5 none present 277 No S 

134 No S 278 No X 

135 Yes S 281 No S 

136/139 No M 282 Yes S 

140 No S 283 Yes X 

141 none present 286 No S 

142 No M 287 No S 

158 No M 288 No M 

220 none present 289 possibly S 

221 No M 300 No M 
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Allotment 

Number 

Woody 

Draw 

Conditions 

Met 

Improved Not 

Improved

Allotment

Number 

Woody 

Draw 

Conditions 

Met 

Improved Not 

Improved

230 No M 301 No S 

237 No M 302 No S 

239 No M 

43 total allotments. 6 allotments meeting woody draw objectives, and 5 allotments with no woody draws. 

Of 32 allotments not meeting woody draw objectives, 84% would likely improve, and 16% would be unlikely to 

improve. Of the 84% likely to improve, the degree of improvement would likely be relatively high (M) in 56% of 

the allotments and relatively low (S) in 44%. 

Collective proposed actions under Alternative 4 should result in moderate improvement of 

woody draw conditions in about 84% of allotments with woody draw conditions that do not meet 

current objectives (Table xx). The degree of improvement would likely be relatively high in 

56% of allotments and relatively low in 44% of allotments. Potential improvements would 

largely be driven by decreasing authorized use in accordance with initial estimated carrying 

capacity. This action would affect 91% of allotments, with potential reductions in authorized use 

ranging from 13-45% of current stocking levels with assumptions and adjustments for 1200 lb. 

average livestock weights. The average reduction among affected allotments would be about 

23%, while the average reduction across all forty-three allotments in the project area would be 

about 20%. These estimates do not include allotments that run lighter cows, so the average 

reductions would likely be less than the above values 

Other beneficial affects to woody draw conditions under Alternative 4 would include fencing or 

construction of new water sources outside of woody draws. Fencing of four woody draws would 

likely assist short-term improvement , but may eventually lead to increased dominance of 

invasive grasses and associated litter that has the potential to inhibit increasing conditions. The 

potential exists for removing fences and and/or halting fence projects if desired results are not 

obtained. Proposed actions that involve fencing of developed springs and moving the water tank 

a relatively short distance away would contribute to objectives for restoring these habitats, but 

the surrounding area of woody draw habitat would be unlikely to improve due to continued 

heavy use in the immediate area. 

Actions such as a change in the grazing season or pasture rotations may assist woody draw 

conditions in some allotments, but significant changes in proposed grazing strategies, other than 

livestock reductions, with the potential to provide improvements in several resource objectives 

would occur in about 39% of allotments. Grazing systems would remain very similar to or 

would be unlikely to result in generally improving conditions in 61% of allotments. Despite 

livestock reductions, a major impediment to improving woody draw conditions in several 

pastures would likely involve the maintenance of developed water sources along drainages that 

ensure relatively high use of the adjacent woodlands. 

Adverse affects of composition-timing conflicts and practices such as hay feeding and early 

season use of pastures on an inventory permit that can assist invasive grass expansion would 

continue among most allotments under Alternative 4. Additionally, about sixteen water related 
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developments or reclamation projects are proposed that have a high potential to assist the spread 

of invasive grasses on a local scale as a result of construction disturbances or new areas of high 

livestock congregations. Thus, continued spread of invasive grasses that likely result in adverse 

affects to woody draws would continue. 

Cumulative Effects 

Livestock Grazing -Termination of livestock grazing under Alternative 1 may slow the spread of 

invasive grasses, but several of the species now well entrenched within the system are likely to 

continue expanding. Although the removal of livestock grazing impacts would likely assist 

improved woody draw conditions over the short term, invasive grasses and accumulating litter 

resulting from non-harvest of the herbaceous layer may have the potential to impede woody draw 

dynamics and vigor over the long-term. 

Apparent increasing trends of invasive grasses as assisted by current management would likely 

continue under Alternatives 2, 3, and 4 with potential adverse affects relating to impaired woody 

seedling and sapling establishment. Current livestock related impacts to woody draws would 

continue under Alternative 2. Alternative 3 would see some improvements to a small portion of 

woody draws, however, current direct/indirect livestock related impacts to woody draws would 

continue. Under Alternative 4 a greater number of woody draws would experience an increased 

potential for improvement, principally due to decreased authorized use, and to a lesser extent, 

new grazing patterns and water developments. 

While termination of livestock grazing would stop the effects to woody draws associated with 

livestock use, adverse effects from other agents would likely continue. Impacts from herbicide 

control of noxious weeds within woody draws has and will likely continue to result in collateral 

impacts to desirable woody species. Dutch elm disease spread by beetles is killing a large 

portion of American elm trees in the project area. Although elm seedlings and saplings are 

present, most trees are old and dead or dying and there tend to be no vigorous young trees to 

replace the old. Thus, it appears that American elm will be lost from woody draws. This is not 

expected to dramatically decrease the ecologic integrity of woody draws because American elm 

is a subordinate species that does not occur in all communities. Where American elm is present, 

other tree species have the potential to replace dying trees. Conversely, the emerald ash borer 

recently introduced from Asia could have a devastating affect on woody draws because the 

principal tree populations of green ash could experience complete or near complete mortality. 

This invasive insect has been moving outward from the north central U.S. and was reported as 

far west as St. Paul, MN during the spring of 2009. Some local arborist’s believe it is only a 

matter of time until the emerald ash borer extends into North Dakota. 

There has been a gradually increasing trend of firewood permits on the grasslands in recent 

years, with currently reported annual harvest of about 400 cords on the Medora Ranger District 

(Felchle, 2009). Only dead and down material is permitted for harvest but some cutting of 

standing dead trees does occur (personal observation). Removal of standing and down material 

assists in opening woody draw sites, potentially facilitating increased livestock access, removing 

safe sites for seedling/sapling establishment, and allowing greater sunlight to reach the woodland 

floor that can increase evapotranspiration demands and decrease the success of woody species 
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establishment. However, to date these affects are unlikely to have had a large influence on 

woody draw conditions across the project area due to the limited amount of harvest. 

Oil and Gas Development - Is the second major landscape level influence in the project area after 

livestock grazing. Direct impacts to woody draws from this activity tend to be localized along 

road crossings and current stipulations direct for infrastructure developments to be located 

outside of woody communities and drainages. However, oil and gas production does assist with 

the introduction and spread of invasive grasses (Washington and Gildar, 2004) and noxious 

weeds in woody draws. Actions proposed under all of the alternatives will have no effect on oil 

and gas development or the effects arising from oil and gas activities. 

Noxious Weeds – Under all of the alternatives the presence of noxious weeds or invasive grasses 

would continue. Under alternatives 2-4, an array of different proposed actions would take place, 

however, none would have much of a controlling or inhibiting effect on the weeds or invasive 

grasses Alternative 1 may see reduced amount of funded available to treat noxious weeds. . 

Control of noxious weeds is primarily accomplished with herbicides and biological agents. There 

would be no cumulative effect on noxious weeds from any of these alternatives. 

Wlidfire – The harsh climate of the northern Great Plains ranging from severe winters to 

recurring drought periods resulted in a great deal of hardship and many settlement families left 

the region during the prolonged drought and dust bowl era of the 1930s. Assisted by decreased 

numbers of settled ranches and farms, many woody draw communities likely experienced a 

degree of resurgence that would have also been facilitated by continued wildfire control efforts 

that have persisted to the present. Several researchers or historians believe that the present extent 

of woody draw communities is more extensive than occurred historically (USGS, 2008, Towne 

and Owensby, 1984, Baily 1976). However, several characteristics of woody draw species and 

principal habitat likely allowed for the persistence of woody draw communities among areas of 

relatively rough topography (Severson and Boldt, 1976, Rumble, 1998, Lura, 2009). 

Although there is ample observational evidence to suggest that many different types of woody 

communitiues have been expanding on the LMNG, cursory comparison of 1950s and current 

aerial photographs indicate that the expansion of woody draw communities has not been 

extensive. Control or lack of fire may also have contributed to low vigor or stagnation of some 

woody draws by halting beneficial affects such as nutrient cycling, promoting a flush of new 

growth through re-sprouting, preparation of seed beds for seedling establishment, and disruption 

of disease and parasite cycles. There is more extensive visual evidence of recent Rocky 

Mountain juniper expansion from fire-resistant rocky or barren slopes into grassland habitats and 

woody draws where deciduous tree and shrub species may be experiencing increased 

competition. 

The array of alternatives is not likely to have any effect on the occurrence or intensity of wildfire 

and its potential effect on woody draws Increased woody draw health may provide more fuels 

for a fire and declining health may increase the amount of dead and down fuels which may 

influence fire intensity. However, controlling wildfire is likely to remain a priority and while 

wildfires do occur, their frequency and extent doesn’t appear to be great enough to have a 

cumulatively significant effect on green ash woody draws in the project area. 
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Drought - As Alternative 1 would likely see the greatest improvement in At Risk and 

Unhealthy woody draws condition. As the health and vigor of trees and shrubs increased, crown 

cover of both lifeforms would increase providing shade, which reduces transpiration and 

moisture loss and roots systems would deepen providing better access to ground water. 

Alternative 1would have the highest resistance to drought. Alternative 2 would maintain the 

status quo, At Risk and Unhealthy woody draws would remain impaired as would their 

resistance to drought. Alternative 3 and 4 would result in differing degrees of woody draw 

recovery with Alterative 3 providing the least of the two. Resistance to drought would follow 

accordingly. 

In summary, mechanical and browsing impacts from livestock grazing are likely the largest 

influence on existing woody draw conditions and termination of these impacts would have the 

potential to improve woody draw conditions over the short-term. Over the long-term, invasive 

grasses and the lack of disturbances within woody draws may have the potential to decrease the 

dynamics of these systems and impede overall vigor and reproduction, possibly contributing to 

stagnation of the communities. Invasive grass and noxious weed introductions are likely to 

continue from oil and gas related developments. Although the control of wildfire may have 

allowed some expansion of woody draw communities, it may also be contributing to the 

stagnation or decreased dynamics of woody species populations by removing potentially 

beneficial affects of fire. Dutch elm disease is impacting the diversity of woody draw 

communities, but potentially devastating affects to green ash trees and the general character of 

woody draw communities may occur as a result of the emerald ash borer in the near future. 

Herbaceous Structure 

Introduction 

Herbaceous structure refers to the height and density of herbaceous plants. Herbaceous plants are 

non-woody plants i.e grasses and forbs. The NGP Viability Report (2000) identified that under 

presettlement conditions the primary ecological processes on the mixed prairie affecting 

herbaceous structure were (1) climate (Simms 1988); (2) herbivory by large animals (bison, elk, 

and pronghorn), small herbivores (the black-tailed prairie dog and grasshoppers) (Risser 1996); 

and (3) fire (Bragg and Steuter 1996). These natural disturbance processes produced a diversity 

of herbaceous structure habitats occupied by a diversity of fauna. 

Today, the primary influences on herbaceous structure in the project area are generally limited to 

climate and livestock herbivory. Formerly herbivory by wide ranging bison herds was one of 

high intensity and short duration followed by a two to three year period of rest (Higgins 1986). 

In contrast, grazing by domestic livestock is characterized by high intensity over long duration 

followed by short lengths of rest, depending on the grazing system and management scenario 

(USDA 2000 NGP Viability Report). These two scenarios did and do produce differing structure 

mosaics across the landscape. 

The Grasslands Plan recognized the role of herbaceous structural diversity and its role in 

influencing the diversity and abundance of plants and animals, hydrology, availability of forage 

for grazing animals both domestic and wild, etc. This section looks at the existing structure in the 

project area and compares it to the desire condition for herbaceous structure as defined by the 

Grasslands Plan. 
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Spatial and Temporal Setting 

The analysis area for the structure issue is the National Forest System (NFS) lands located in the 

43 grazing allotment located in northern Billings County, North Dakota. The temporal setting is 

10 to 15 years from the signing of the Record of Decision for this project proposal. 

Methodology 

The Grasslands Plan identifies the need for a diversity of vegetative structure via the structure 

objectives. Specifically, the structure objectives are to have approximately 10-20 percent low 

vegetative structure, 50-70 percent moderate structure, and 20-30 percent high structure 

(Grassland Plan, Ch 2, pp. 2-13 and 2-21). These objectives are to be applied across all 

herbaceous communities. The Visual Obstruction Reading (VOR) methodology is used by the 

DPG and in this analysis to measure and quantify residual herbaceous cover i.e. structure. The 

Grasslands Plan defines structure in terms of VOR. The VOR measurements associated with 

each structure class are: Low structure 0 to 1.49 inches, moderate structure 1.5-3.5 inches, and 

high structure as greater than 3.5 inches. 

VOR is obtained through the use of a pole called a Robel pole. The pole is painted in alternating 

one inch white and gray bands. A one meter sight pole is attached to a graduated pole with a four 

meter string. The graduated pole contains a spike on the bottom end, which is used to anchor the 

pole when readings are taken. Once the graduated pole is 

anchored the person taking the reading stretches out the 

four meter sting and takes four readings at approximately 

90 degree intervals (See Figure 3-19). At each 90 degree 

interval a reading is taken at a one meter height and the 

lowest band visible, partially or wholly, is then recorded as 

the VOR value. The four VOR’s at each station were 

averaged to get a mean for each station. A VOR transect 

consists of 20 stations located at approximately 10 m or 

five paces (10 steps) intervals along each transect. The 

overall mean for the transect was then calculated from the 

20 station means. 

Within the herbaceous communities, VORs were taken on 

areas that are “biologically capable” of producing high 

structure. For this analysis, habitat types were used to 

define those areas capable of producing high structure. This 

approach is in keeping with the DPG direction identified in 

the DPG Final Response to the Scientific Review Team 

Report. A habitat type is a unit of land that has similar 

soils, topography, aspect, climate, elevation and potential 

vegetation. They identify, in terms of plant communities, what a particular area is capable of 

supporting, regardless of the existing plant community. The habitat types used to identify 

biologically capable areas were: western wheatgrass/green needlegrass, western 

wheatgrass/green needlegrass/blue grama, western wheatgrass/needle-and-thread grass, silver 

Figure 3-19 Person reading a 

Robel Pole 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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sage/western wheatgrass, big sage/western wheatgrass, and western snowberry (see Wildlife 

Report). The western wheatgrass/green needlegrass/blue grama habitat type had approximately 

266 acres distributed across the project area. Because of the small size and distribution it could 

not be effectively sampled so it was dropped from this analysis. These are the same habitat types 

used during the SRT process. Sites dominated by crested wheatgrass were also considered 

biologically capable. Of the roughly 87,263 acres of NFS lands in the project area, 

approximately 54,055 acres are biologically capable of producing high structure. 

These habitat types under normal growing conditions are generally capable of producing at least 

1100 lbs of herbaceous material/acre and most are capable of producing 1400 lbs or more. The 

exceptions are the western snowberry (which is rarely found on the DPG) and the big 

sage/western wheatgrass habitat types. Although the western snowberry and big sage/western 

wheatgrass habitat types produce relatively little herbaceous cover (450-850 lbs/ac. and 350-665 

pds/ac., respectively), they are nevertheless capable of producing high structure vegetation. If 

transects located in the three grass/shrub habitat types where dominated by shrubs they were 

deleted from the analysis. This was done because it is assumed to be generally inappropriate to 

analyze or lump shrubs and herbaceous dominated data together (Uresk pers. com. and Smith 

2008). 

The Scientific Review Team (SRT) recommended that the DPG summarize VOR transect data at 

the station level rather than by averaging together all the stations along a transect (SRT 2005. p. 

14). The DPG response was that it will provide the data in both formats in the future (USDA 

2006). However, interpreting station averages requires a different definition for high structure to 

account for the actual nest site needs of grouse and other ground nesting species such as Baird’s 

sparrow. It was recommended during the SRT process that a station average of 5.5 inches or 

greater would define “High” structure. This analysis adopted that recommendation. 

During the SRT process the focus of the station average verses transect average discussion was 

on high structure and if one method would produce better information than the other. Apparently 

there was no discussion over the class sizes for low and moderate structure related to the station 

average approach. For the station average analysis low structure was defined as 0 to 1.49 inches 

and moderate at 1.5 to 5.49 inches. 

A detailed explanation of stratification, sampling, and data collection methodologies are located 

in Appendix B of the Wildlife Report which is located in the Project Record. 

Affected Environment 

Existing Condition 

VOR measurements are used to describe the existing condition of structure in the project area. 

The Little Missouri National Grassland has been collecting VOR measurement since 1996. 

Between 1996 and 2001 structure data was collected on approximately 350 transects scattered 

across the LMNG. This broad-scale effort was used by the Northern Great Plains Land and 

Resource Management Plan Revision process to identify how structure was distributed across the 

landscape. In general this information showed that across the LMNG there was an 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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overabundance of low structure and a scarcity of high structure when compared to Grasslands 

Plan objectives (NGP FEIS, page 3-188). 

Transect information from National Forest System lands in Billings County is presented in 

Figure 3-20 which shows the percentage of high, medium and low structure transects from 1996 

thru 2001. 

 

Figure 3-20. 1996-2001 VOR transect data from National Forest System lands, Billings County, North 

Dakota. 

11%

31%

49%

30% 30% 27%

83%

62% 66%

47%

65% 67%

3% 6% 8%

3%

6%

4%

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

Year

%

o

f

T

r

a

n

s

e

c

t

s

<1.5 Inches 30% 27% 49% 30% 31% 11%

1.5-3.5 Inches 65% 67% 47% 62% 66% 83%

>3.5 Inches 4% 6% 3% 8% 3% 6%

1996 (113) 1997 (134) 1998 (118) 1999 (123) 2000 (35) 2001 (35)

Figure 3-20 reveals that between 1996 and 2001, in Billings County, four to eight percent of the 

surveyed transects had a VOR average greater than 3.5” (high structure), approximately 47 to 83 

percent averaged a VOR rating of 1.5”-3.5” (moderate structure) and roughly 11 to 49 percent 

had VOR ratings less than 1.5” (low structure). This transect information shows that herbaceous 

structure during that time period was skewed towards low and moderate classes with a minor 

amount of high structure. 

Of the 350 transects noted above 42 are located within the project area. Figure 3-21 shows the 

distribution of VOR transects in terms of structure. For example between 1996 through 1999 

high structure varied from 4.8 percent to 20 percent of the surveyed transects. Moderate structure 

ranged from about 56 percent to 70 percent and low structure from roughly 23 to 36 percent. The 

figure shows, that in general, moderate structure was meeting the Grasslands Plan objective i.e. 

50-70%. Low structure exceeded the high end (20%) of the Grassland Plan objective by 3 to 16 

percent. High structure ranges from about 13 percent below the low end of high structure range 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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(20 percent) to meeting the lower end of the objective. Herbaceous structure is skewed towards 

low and moderate classes across the project area. 

Figure 3-21. 1996-1999 VOR transect distribution within project area.

In 2004, a total of 183 VOR transects where located in the project area. This represents a 

sampling intensity of approximately one transect per 320 acres of biologically capable habitat 

type. Of the 183 transects, 22 had shrubs (i.e. snowberry or silver sage) listed as dominant or codominant vegetation on the data sheets. These transects were dropped from the analysis because 

it is thought to be generally inappropriate to analyze or lump shrubs and herbaceous dominated 

data together (Uresk pers. comm. and Smith 2008) 

The 2004 transect information (See Figure 3-22)shows that approximately 53 percent of the 

transects were in the 1.0 to 1.49 inch class (low structure), 47 percent in the 1.5 to 3.5 inch class 

(moderate structure ) and 1 percent in the >3.5 inch class (high structure). This information 

shows that structure, in the project area, continues to be skewed to low and moderate structure 

and insufficient high structure to meet Grasslands Plan objectives. 
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Figure 3-22 Herbaceous dominated structure transects results, expressed as percentages, for the 

 project area Area (2004 and 2005 Results) and Grasslands Plan Objectives. 

Grasslands Plan

2004 Results

2005 Results

1.0-1.49"

1.5-3.50"

>3.50"

15

52.8

29.5

60

46.6

63.6

25

0.6 6.8 0.0

10.0

20.0

30.0

40.0

50.0

60.0

70.0

% of 

Transects

It is important to put 2004 in context of what was happening climatically. Precipitation in 

Billings County, ND during the months of April through September of 2004 was approximately 

50 percent of normal for the analysis area according to the North Dakota Agricultural Network 

(NDAWN). The Grasslands Plan defines drought as 75 percent of normal annual precipitation. 

There was some moisture recovery in September and October of 2004. In 2005 precipitation for 

April to September in Billings County was 25 to 50 percent above average annual precipitation. 

Given the climatic events in 2004 a reduction in high structure would be expected but not to the 

0.6 percent level. 

 

In 2005, the transect information shows some recovery from the 2004 drought (Figure 3-22). 

High structure increased from less than a percent to almost seven percent. Low structure 

decreased from about 53 percent to 29 percent and medium structure increased from 47 to 64 

percent. These results are likely the result of increased precipitation and a mandatory 20 percent 

animal unit reduction put in place in 2005 as a result of the 2004 drought. In addition to the AU 

reduction turnout onto crested wheatgrass and native pastures was delayed until May 15 and 

June 1, respectively. 

Table 3-13 indicates where each allotment falls in relation to Grasslands Plan structure 

objectives. Review of the 2004 transect data, field visitations, and IDT team discussion 

determined that structure objectives were being met on allotments 132A, 239, 241, 243, 248, 

282, 287. A total of 12 allotments are not meeting low or high structure but are meeting 

moderate objectives. Twenty one allotments are not meeting any of the objectives. Two 
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allotments are meeting low structure but not moderate or high structure objectives. One allotment 

is a hay pasture. 

Table 3-13. Distribution of allotments in relation to Grasslands Plan structure objectives. 

Allotments Meeting Structure Objectives 

 Low Moderate High 

132A, 239, 241, 243, 248, 282, 287 YES YES YES 

126,128,131,132H, 133, 140,230, 

240,256, 272,283,288 NO YES NO 

127,130,134,135,136/139,141,142, 

158,220,221,237, 244,249,258, 

278,286,289,300,301,302 NO NO NO 

126,277 YES NO NO 

133D5 Hay 

Field Visitations -2006 

Results of the 2004 data collection where shared with the grazing permittees in the project area 

and given the opportunity to challenge an issue if they felt their allotment was meeting 

Grasslands Plan objectives. Several permittees issued challenges related to the amount of high 

structure present on their allotments. The IDT revisited these allotments and several others in 

2006 and ran additional VOR transects. The transect locations were purposely biased to survey 

areas of the highest structure that could be found. Allotments 126/128, 127, 129, 132A, 239, 

272, 278, and 281 were revisited. Two allotments, 132A and 239, had at least 20 percent high 

structure, the remaining allotments did not meet the high structure objective. 

VOR at the Station Scale 

In the response to the SRT, the DPG said it would use both transects and stations to describe the 

existing structure distribution (USDA 2006) in future analyses. That information is provided in 

Figure 3-23 for 2004 and 2005. As described earlier in the Methodology section station analysis 

requires new definitions for high, moderate and low structure classes. High structure for station 

averages is a VOR of 5.5 inches or greater. The primary concern during the SRT process was 

with high structure, However, all three structure levels are provided in Figure 3-23, which 

summarizes the station data for herbaceous dominated transects within the project area. 
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Figure 3-23: 2004 and 2005 VOR distribution of stations within herbaceous dominated transects within the 

Project Area. 

2004

2005

LOW MOD HIGH

42.5%

61.6% 55.6%

37.7%

1.9%

0.7%

0.0%

10.0%

20.0%

30.0%

40.0%

50.0%

60.0%

70.0%

%

o

f

S

t

a

t

i

o

n

s

Year

LOW 61.6% 42.5%

MOD 37.7% 55.6%

HIGH 0.7% 1.9%

2004 2005

The 2004 station data represented in Figure 3-23 shows that within the project area there was 

very little high structure present (0.7 percent), an exceedingly high amount of low structure (62 

percent), and a low amount of moderate structure (38 percent). Year 2005 shows a limited 

recovery of high structure (0.7 to1.9 percent), a reduction in low structure (43 percent), and 

moderate structure (56 percent) nearing objective. As previously noted 2004 was a dry year so an 

increase in low structure and a decrease in high structure would be expected but not to the degree 

indicated by the data. The 2005 data shows about a percent recovery in high structure and 

approximately a 18 percent reduction in low structure. These changes may be explained by 

increased precipitation and the mandatory 20 percent animal unit reductions and turnout 

restrictions put in place in early 2005. 

A comparison of 2004 and 2005 VOR data for project level transect averages and station average 

methods is presented in Table 3-14. Information in the table indicates that while there are some 

differences in the figures they are minor in nature. Both methods of analyzing the VOR data 

show a skewed distribution of structure towards low and moderate structure classes and a 

minimal amount of high structure. As noted previously high structure for the VOR transect 

average is a VOR reading of greater than 3.5 inches and for the station average a VOR reading 

of greater than or equal to 5.5 inches. 
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Table 3-14. Comparison of transect and station averages and Grasslands Plan structure objectives for 2004 

and 2005 sample years. 

 TRANSECT AVE. Grasslands STATION AVE. 

 2004 2005 Plan 2004 2005 

High 

Structure 0.6% 6.8% 20-30% 0.7% 1.9% 

Mod 

Structure 46.6% 63.6% 50-70% 37.7% 55.6% 

Low Structure 52.8% 29.5% 10-20% 61.6% 42.5% 

Summary 

A review of the LMNG, Billings County, project area, and allotment level VOR transect 

information from 1996 to 2005 shows a bias towards low and moderate structure classes and a 

scarcity of high structure. Grasslands Plan structure of objectives for high and low herbaceous 

structure are generally not being achieved. 

Structure objectives were being met on allotments 132A, 239, 241, 243, 248, 282, 287. A total 

of 12 allotments are not meeting low or high structure but are meeting moderate objectives. 

Twenty one allotments are not meeting any of the objectives. Two allotments are meeting low 

structure but not moderate or high structure objectives. One allotment is a hay pasture. 

It is acknowledged that 2004 was a drought year and that structure would tend to shift towards 

low and moderate. However, herbaceous structure was still below structure objective for 2005 

despite moisture recovery, stocking reductions, and turn-out restrictions. Analyzing the allotment

VOR data under the transect and station methodologies provided essentially the same results. 

Desired Condition 

The desired condition for herbaceous structure is identified in Chapters 1 and 2 of the Grasslands 

Plan. The following direction is provided by the plan: 

Goal 1.c: Increase the amount of forests and grasslands restored to or maintained in a healthy 

condition with reduced risk and damage from disturbance processes, both natural and humancontrolled (Grasslands Plan, p 1-3). 

Objective: Within 10 years, implement management practices, including prescribed fire, that 

 will move landscapes toward desired vegetation composition and structure as 

 described in Geographic Area direction” (Grasslands Plan, Ch 1, p 1-3). 

Badlands and Rolling Prairie Geographic Areas - The project area contains Rolling Prairie and 

Badlands geographic areas. The identical structure objectives for both of these geographical 

areas are presented in Table 3-15 (Grasslands Plan pp. 2-13 and 2-21). 
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Table 3-15: Grasslands Plan structure objectives for 

the Rolling Prairie and Badlands Geographic Areas. 

Structure Objectives 

Low Moderate High 

10-20% 50-70% 20-30% 

Environmental Consequences 

Direct and Indirect Effects 

Alternative 1 

Under this alternative all livestock would be removed from the NFS lands over a two year 

period. All range structures and water developments would be removed other then those deemed 

necessary for other resource management objectives. 

With no grazing pressure other than that resulting from wildlife there would be a shift in the 

structure mosaic across the project area. It is expected that moderate and high structure would 

increase and the amount of low structure would decrease, meeting or exceeding structure 

objectives identified in the Grasslands Plan. 

Vegetation species composition would be expected to improve, at least in the short term, towards 

a later seral state. However, without periodic disturbance once later seral stages are reached the 

herbaceous community, particularly forbs, may start to decline as the systems begins to stagnate. 

Nonnative invasive grasses such as smooth broom and Kentucky bluegrass may begin to 

dominate more sites within the project area reducing the native component of the plant 

communities. The “shifting mosaic” of vegetative structure identified in the Grasslands Plan (pp. 

2-11 and 2-18, respectively), would not be addressed since there would be no periodic largescale disturbance such as livestock grazing within the project area. Occasional wild fires and 

prescribed fires could provide some habitat diversity. 

The effects of drought on high herbaceous structure would be lessened as no grazing would be 

permitted. High structure would remain available, though likely of lower quality, throughout the 

drought period. Given the increase in vegetation the opportunity for more wildfires of larger size 

and duration may increase. 

Alternative 2 

This alternative maintains exiting authorized use, grazing rotations, allotment arrangements, in 

short, the status quo. Appendices A and C contains the existing management direction for each 

allotment contained in the project area. 

As this alternative would maintain current management direction existing structure conditions 

will likely continue to reflect those identified in the Existing Condition section above. Essentially 
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the skewed distribution towards low and moderate structure would continue as would the 

continued shortfall in high structure 

Alternative 3 

The initial actions of this alternative include establishing, changing or maintaining rotational 

grazing systems; additional range improvements such as fencing, water development, range 

pipelines, etc, on approximately a third of the allotments; and range water management. 

Authorized use are maintained at current levels. Proposed initial and adaptive actions are 

identified for each allotment in Appendix A. 

Grazing systems -The use of rotational systems to address structure concerns appears to be of 

limited benefit according to Briske 2008, and Holechek 1999 , Hart et al 1993, Salo 2004, Van 

Poollen and Lacey 1979, and others. They identify that rotational grazing offers no perceived 

vegetative benefits over continuous grazing under similar stocking rates and that the general 

effect is towards even utilization of the forage base which may result in the project area being 

skewed towards moderate structure. Therefore, changing, or maintaining a grazing rotation 

systems while maintaining current stocking appears to generally favor a continuation of the 

existing structure situation. Because rotation grazing systems influence the duration and time of 

pasture use, it is possible that some herbaceous structure improvement at the pasture scale may 

occur but the actual outcome is uncertain. 

Infrastructure -Under this alternative, 17 allotments would receive additional range 

infrastructure (i.e. range water, water pipelines, tanks, or fencing). The development or extension 

of existing water sources via pipelines affects livestock use patterns and, indirectly, structure. 

Managing access to water may afford an opportunity for vegetation regrowth or reduced 

utilization by controlling the duration of grazing on a portion of the allotment or pasture. This 

may provide a chance for some low structure to recover into a higher structure class. However, 

according to the Northern Great Plans (NGP) FEIS (page 3-240) the effect of increased 

infrastructure such as water development, tends to increase the overall harvest efficiency by 

livestock. This means the forage base is utilized more evenly across the entire pasture, which 

under this alternative tends to favor moderate structure. It is also possible that increasing water 

infrastructure may adversely affect high structure because formerly underutilized areas i.e. 

secondary range containing high structure may now be exposed to more intensive grazing 

pressure. 

Fencing can have many of the same effects as water development. Reducing a larger area into 

smaller pastures favors increased herbaceous structure homogeneity (USDA 2001b)and 

increased harvest efficiency because livestock tend to utilize the forage in smaller areas more 

thoughly. Also, existing high structure areas may receive more utilization resulting ina lower 

structure class. Conversely, creating a crested wheatgrass pasture, if feaseable, may provide 

additional time for a native pasture to increase structure. 

Stocking Level - The Wildlife Report notes that Holechek et al 1989, Reece 1991, Hart et al 

1993, Briske et. al. (2008), and others, have identified that stocking is the most important 

variable in managing range vegetation. Derner and Hart 2007 and Holechek et al 1989 also note 

that lighter stocking levels result in higher levels of standing crop which equates to higher 
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structure. Conversely, heavy grazing has the reverse effect. Given that grazing systems and 

infrastructure tend to favor moderate structure, it doesn’t appear that under the initial actions of 

this alternative, that high structure objectives will be achieved. Adaptive management actions 

may be necessary to provide appreciable movement towards structure objectives, in particular 

high structure. 

The Wildlife Report concludes that some low structure may move to the moderate category. 

However, the opportunity to increase high structure appears unlikely due to the homogenization 

effects of increased infrastructure and rotational grazing systems and especially the lack of 

stocking adjustments. 

Adaptive Management – Adaptive Management - This alternative is based on adaptive 

management, as described in Chapter 2. If monitoring reveals that an initial action(s) is/are not 

successfully resolving a resource concern then a team comprised of different specialists, the 

affected permittee, and affected Grazing Director, would recommend to the District Ranger a 

possible course of action(s) based on the adaptive options identified in the Allotment Summary 

Sheets and/or Grazing Management Toolbox (Table 2.2). An effects discussion of the different 

tools, available under adaptive management, is located in Appendix D, Grazing Management 

Tool Box. 

Alternative 4 

Alternative 4 is similar to Alternative 3 in the use of management tools such as implementation 

or changes in rotations but doesn’t utilize range infrastructure to the extent Alternative 3 does. In 

addition to these actions Alternative 4 includes authorized use based on carrying capacity and an

adjustment for livestock weight. This alternative is also adaptive management based. Proposed 

initial and adaptive actions are identified for each allotment in Appendix A. 

Carrying capacity was developed from soil information provided by the Natural Resource 

Conservation Service (NRCS). The Grasslands Plan Glossary defines carrying capacity as: “The 

maximum possible stocking rate that is consistent with maintaining or improving vegetation or 

related resources. It may vary from year to year in the same areas due to fluctuating forage 

production.” Initial estimated carrying capacity calculations for this analysis are based on the 

reference communities, normal or better growing conditions, and “good to excellent” rangeland 

conditions. It is an assumption of this analysis that most of the communities within the analysis 

area are not at reference conditions. 

Effects related to the other parts of this alternative i.e. grazing systems and range infrastructure 

would have the same effects as identified in Alternative 3. Except the opportunity to affect 

secondary range would be decreased under alternative 4 because it has less infrastructure then 

Alternative 3. 

The Wildlife Reoprt states that studies and reviews of grazing systems have repeatedly shown 

that specialized grazing systems have no advantage over continuous grazing under similar 

stocking rates (e.g. Holechek 1999 and Briske et al 2008) and that stocking is the most important 

variable in managing range vegetation (. Holechek et al 1989, Reece 1991, Hart et al 1993, 
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Briske et al 2008). Therefore, Alternative 4’s combination of emphasis on authorized use, in 

combination with rotational grazing, should begin to move herbaceous structure conditions 

towards structure objectives. 

The exact effect of implementing stocking adjustments on the structure distribution is unknown 

and would require monitoring. Since one basic premise of classic range management assumes a 

“take half-leave half” approach, there may still be an inherent lack of structural variability in the 

system. 

Summary: 

•Adjustment of authorized use to carrying capacities will likely result in a stronger movement 

towards moderate and high structure than Alternative 3. 

•Appendix I of the Grasslands Plan assumes that stocking at carrying capacity will result in 

“limited opportunity to provide habitat for management indicator species needing high structure 

grasslands.” Further, it states that this “grazing intensity will allow movement toward a higher 

seral condition but provides minimal opportunity for the necessary structure on an annual basis.” 

•Lighter stocking rates results in more standing crop (e.g. Derner and Hart 2007), assumed to be 

related to visual obstruction (Benkobi and Uresk 2000 and Robel et al 1970); 

•Though Alternative 4 reduces the current grazing levels to “carrying capacity,” the stocking 

may still be high on many sites within the project area. Plant communities are typically in a 

lower ecological state than the assumed reference community used in initial carrying capacity 

analyses. Production is generally assumed to be lower in lower ecological states. Therefore some 

allotments and/or pastures may still be overstocked in regards to the calculated carrying capacity. 

•Confounding factors in the carrying capacity analysis include the presence of non-native cool 

season grasses such as Kentucky bluegrass and Crested wheatgrass. These species are prevalent 

within the project area and can significantly alter the production level of a vegetation 

community. These species are typically only palatable during the spring and early summer 

months. 

Adaptive Management - Adaptive Management - This alternative is based on adaptive 

management, as described in Chapter 2. If monitoring reveals that an initial action(s) is/are not 

successfully resolving a resource concern then a team comprised of different specialists, the 

affected permittee, and affected Grazing Director, would recommend to the District Ranger a 

possible course of action(s) based on the adaptive options identified in the Allotment Summary 

Sheets and/or Grazing Management Toolbox (Table 2.2). An effects discussion of the different 

tools, available under adaptive management, is located in Appendix D, Grazing Management 

Tool Box. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Cumulative Effects 

Livestock Grazing- Alternative 1 would result in the removal of all livestock from the NFS lands 

within the project area. There are no effects different then identified direct and indirect effects so 

there are no cumulative effects under Alternative 1. Under Alternative 2, management activities 

and effects to herbaceous structure are not expected to change over the current condition so there 

are no cumulative effects. Alternative 3 may see movement in herbaceous structure from low to 

moderate. However, a timeframe longer then the 10-15 years associated with this project would 

likely be needed to see a significant decrease in low structure and it is unlikely that any 

appreciable increase in high structure would occur given stocking levels are maintained at 

current levels. Alternative 4 addresses carrying capacity and adjustments for livestock weight, 

which should result in a reduction in low structure and an increase in high structure. However, 

because of assumptions associated with determining carrying capacity it is unknown if initial 

actions of this alternative will result in appreciable increases in high structure. 

Oil and Gas/Road Development – None of the alternatives would affect oil and gas development 

in the project area. Under Alternative 2, 3, and 4 cattle would continue to utilize oil and gas 

roads to access different parts of the range within the allotments. Future road development is 

generally tied to oil and gas road development. These future roads may open up areas currently 

inaccessible to cattle for due to topographic reasons. If this were to occur, vegetation structure in 

those secondary range areas may be reduced which could cumulatively result in lower amounts 

of high structure across the project area. 

Wildfire – Under Alternative 1 the primary herbivore would change from livestock to wildlife 

and the opportunity for fire fuels to accumulate would increase significantly. This could result in 

a potential increase in the frequency and intensity of wildfires. Alternative 2 would maintain the 

existing vegetation condition and it is expected that the opportunity for wildfires would be 

maintained at the status quo. Alternative 3 could potentially increase the amount of fuels on the 

ground as an unknown amount of lower structure potentially moves into the moderate structure 

class. However, it isn’t apparent that this shift in fuels would be cumulatively significant enough 

to alter the current frequency and intensity of wildfires. Alternative 4 would provide for more 

potential fire fuels than Alternative 3 but to what extent is currently unknown. The opportunity 

for increased wildfires exists with this alternative but can’t be quantified beyond that. Currently 

wildfire doesn’t play a significant role in affecting the mosaic of herbaceous structure across the 

project area and none of the alternatives, except Alternative 1, is expected to have a cumulative 

significant effect in that regard. 

Noxious weeds – Noxious weeds would continue to be present under all alternatives. Under 

Alternative 1 there would be a significant reduction in the number of potential vectors (i.e 

livestock and associated ranch vehicles) available to spread noxious weeds and invasive grass 

seed. This potentially would slow the spread of those species but not eliminate them. The 

absence of significant herbivory may also lead to the expansion of some of the invasive plants. 

Alternatives 2 and 3 maintain current authorized use so the rate of spread associated with the 

livestock would be equal to the current situation. Alternative 4 would see reduction in the 
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number of livestock, varying by allotment, however, it is unlikely that these reductions would 

have a major effect on reducing the spread of noxious weeds over the current situation. 

Drought- Alternative 1 would result in a significant increase in herbaceous vegetation in the 

project area. The increase in vegetation and resulting litter would increase soil shading. Shading 

reduces ground temperatures and reduces water evaporation making a system more drought 

resistant. Plant root systems are also likely to expand and deepen under this alternative 

increasing their ability to better withstand the effects of drought. Alternative 2’s ability to 

withstand drought is probably the least of all the alternatives. Its skewing towards lower and 

moderate structure classes suggests a reduction in litter and less plant material being available to 

shade the soil and reduce temperatures and water loss from the soil. Alternative 3 could 

potentially see a modest increase in the amount of moderate structure and therefore more 

vegetation to moderate the effects of drought. Alternative 4 should see an upward shift in 

moderate and high structure classes and the great increase in vegetation and thus would be the 

most drought resistant of Alternative 2, 3, and 4. 

Seral Stages 

Introduction 

The concept of seral stages is that in the absence of disturbance, distinct plant communities 

develop and over time move along a linear path until a relatively stable climax plant community 

is attained. Seral stages are assemblages of relatively distinct plant species that co-occur along 

the path of succession, and are generally classified as early, mid, and late. 

Early seral stages occur in heavily disturbed sites caused by intensive livestock or wildlife 

grazing, burrowing rodents, severe fire, extended drought, and natural erosion and deposition. In 

general, low-stature species such as blue grama and carex dominate the early seral stages in 

upland grass communities. Early seral stages can also have an abundance of annual forbs and 

grass, and/or large amounts of club moss and/or bare ground. 

Mid seral stages contain a mixture of early and late seral species, with the later involving mid 

and tall grasses such as western wheatgrass and needlegrass species in sites with loamy or finer 

textured soil, and little bluestem and prairie sandreed in sandy or less developed soil. With 

continued plant community development, late seral stages are attained as the mid and tall height 

grasses gain dominance over short grass species on the sites. The greatest plant diversity often 

occurs among the mid seral stages, but late seral communities tend to exhibit the greatest plant 

structure. 

Seral stage is import to consider for many reasons. In terms of range management, the 

assessment of plant composition is critical for determining forage production, carrying capacity, 

and establishing appropriate stocking rates and seasons of use to maintain sustainable rangeland 

systems (NRCS, 2006). 

Monitoring of species composition is required to quantify the effects of management and 

environmental influences, and to determine if desired goals and objectives for the rangeland 

resource are achieved, including the maintenance of natural ecosystems and biodiversity. Seral 
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stage was estimated through cover measurements of the prominent grass species within habitat 

types and ecological sites most commonly utilized by livestock. 

Spatial and Temporal Setting

 The NFS lands located within the project area boundary is the analysis area for the plant seral 

stage analysis. This is a sufficient analysis area for the seral stage analysis because these are the 

lands that will be directly affected by decisions made from the implemented alternative. The 

temporal scope of the analysis is 10 to 15 years. 

Methodology 

The data sampling and analysis methodologies used for the seral stage analysis are briefly 

presented below. A detailed discussion of the methodologies is located in the Botany Report 

located in the Project Record. 

Data Sampling Methodology 

• 2005; 2006-2008 Seral Stage Plot Sampling (Sere Plots) In 2005 a total of fifty-three 

sites, and in 2006-2008 twenty seven sites were randomly selected and sampled to assess 

the proportion of early, mid, and late seral stages . Key plant species of the western 

wheatgrass - green needlegrass, and western wheatgrass – needle-and-thread habitat types 

were chosen for measurement based on their significance in defining the seral stage 

(Uresk, 2005, 1990) and their general indication of range conditions. Grass species were 

the primary plant form of measurement, but a few selected shrub and forb species were 

included when encountered. Sampling protocol followed the Natural Resource Inventory 

System for terrestrial vegetation (NRIS Terra, 2003). A copy of the protocol is located in 

the project record and summarized in the Botany Report. 

• Ecoplot Data Eighty-seven, tenth acre circular plots, primarily sampled during 1997-

1998 within the project area were utilized as an additional source of baseline data to assess 

plant composition and estimate seral stages among the sample points. Ocular estimates of 

species canopy cover were collected within each sample plot. 

Data Analysis Methodology 

The seral assessment was conducted by comparing values of species cover, frequency, and 

relative composition, with quantitative descriptions of community composition and dynamics in 

relation to habitat types (Jensen et al, 1992) and ecological sites (NRCS, 2009, 2006, 2003). 

Sere plot data was also analyzed with respect to State and Transition Models (Westoby et al. 

1989) currently being refined for several ecological sites of the Northern Great Plains (NRCS, 

2009, 06, 03). The State and Transition Model is increasingly being used by plant ecologists and 

resource agencies such as the NRCS and USFS. 

State-and-Transition Models consists of a collection of discrete vegetation states, i.e. vegetation 

communities, together with a catalog of transitions that describe the circumstances under which 

the system in question moves (transitions) from one vegetation state to another. In general the 

states are assumed to be more or less stable, so that the system is capable of maintaining itself in 
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a particular state for an extended period of time, barring high intensity and/or frequent 

disturbances sufficient to cause a transition in the plant community. For example we may have a 

native plant community that is invaded by invasive grasses who become the dominant species in 

the community, inhibiting re-establishment of the original native species. In this case, we started 

out in a native or reference state but transitioned into another vegetation state where invasive 

grasses are dominant and will persist without transitional forces. 

Affected Environment 

Existing Condition 

The results of seral analysis using the data sets identified above are displayed in Table 3-16. 

The results of the collective sere plots indicated that the current proportion of seral stages as 

determined by the employed methods was close to that of Desired Conditions, with a slight 

excess of mid seral stages and shortage of early and late stages. Comparison of the sere plot data 

with the more than ten-year old ecoplot data was highly suggestive of a downward trend in late 

and early seral stages and an upward trend in mid stages. However, this trend cannot be 

positively ascertained due to differences in sampling methodology of the two data sets that result 

in a lack of statistical rigor. 

Table 3-16. Seral stage percentages by methodology. 

Early Seral Mid Seral Late Seral 

Grasslands Plan 

seral stage 

objectives 

10-15% 65-75% 15-20% 

Traditional 

Successional Model 

2005 and 2006-2008 

(Sere Plot Data)

8.8% 81.2% 10.0% 

Traditional 

Successional Model 

(Ecoplot Data) 

14.9% 64.4% 20.7% 

State and 

Transition Model 

(Sere Plot Data) 

8.8% 80.0% 11.2% 

The results of the State and Transition model and the traditional Successional model, displayed 

in Table 3-16, show similar proportions of seral stages among the 2005 and 2006-2008 sere 

plots. Results were similar among the Traditional Succession and State and Transition Models. 

The Botany Report stressed that rather than the current proportion of seral stages, the present 

extent and potential for continued invasive grass expansion was of greatest concern. The 

proportion of seral stages and adverse affects of invasive grasses on seral stage were considered 

an insignificant issue compared to the adverse affects of invasive grasses on other management 

objectives involving the maintenance of native plant communities and associated biodiversity to 

which current grazing systems are targeted. 
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Invasive Grasses 

The apparent increasing trend of invasive grasses, principally bluegrass, represents a downward 

trend in range condition and adverse affects related to the maintenance of native plant 

communities, biodiversity, and seral stage distribution. Table 3-17 shows the results of the State 

and Transition Model analysis of the sere data. The analysis indicated that ten percent of the 

sampled sere plots where at Reference State, with plant communities similar to historic native 

communities. Half of the sampled sites were at a Native Invaded State , which means that native 

communities are being occupied (invaded) by invasive grasses with these grasses comprising up 

to 40 percent of the relative cover. Of the forty sere plots at a Native Invaded State, 10 plots were 

approaching an Invaded State identified by more than 40 percent relative cover of invasive 

grasses. Ten percent of the sere plots were at an Invaded State with more than 40 percent 

relative cover of invasive grasses. The remaining 30 percent of the sere plots were located on 

areas that had been cultivated during the 1930s and had been planted back with crested 

wheatgrass. These sites are classified as a Planted Crested Wheatgrass Invaded State due to 

invasive grasses occurring on the sites. About a third of these sites are approaching an Invaded 

Crested Wheatgrass State due to invasive grasses becoming dominant or codominant with 

crested wheatgrass. 

Table 3-17 Results of State and Transition Model analysis on sere plot data 

Ecological Site Reference 

State 

Native 

Invaded 

State 

Invaded 

State 

Planted 

Broken Land 

Invaded State 

Loamy 1 14 3 13 

Thin Loamy 5 10 0 1 

Shallow Loamy 1 1 1 0 

Claypan 0 2 3 2 

Thin Claypan 0 1 0 3 

Clayey 0 1 0 3 

Sandy 1 11 1 2 

TOTAL 8 40 8 24 

Percent of 

Total Plots 

10 50 10 30 

As demonstrated above, invasive grasses are affecting native grass communities. Basic plant 

ecology theory involving invasive species, as well as current State and Transition models with 

respect to current management, strongly suggests that invasive grasses will continue to spread. 

Comparison of ten re-measured ecolopts with sere plots indicated moderate to high increases of 

invasives grasses in five of the plots. Continued spread of invasive grasses has the potential to 

adversely affect the current seral stage proportions in the project area and a variety of other 

resource goals and objectives as outlined in the LRMP. . 

Desired Condition 

Plant communities are desired to be dynamic with the continuum of seral stages shifting across 

the landscape over time. The desired proportion of seral stages for grassland habitat types among 

both the Badlands and Rolling Prairie Geographic Areas is 10-15% Early, 65-75% Mid, and 15-
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20% Late (Grasslands Plan, pp. 2-11,2-19). Also a full spectrum of cool and warm season grass 

species and communities is desired to maintain or perpetuate inherent diversity of the system. 

(Grasslands Plan, pp. 2-10, 2-17) 

Environmental Consequences 

Direct and Indirect Effects 

Alternative 1 

Research in western portions of the northern Great Plains have shown that long-term moderate 

and high stocking levels similar to that occurring in most allotments of the project area generally 

result in shifts of the plant community towards early seral stages with proportional decreases in 

late seral stages (Brand and Goetz, 1986, Rauzi, 1963). Thus, removal of current livestock 

grazing pressure would create conditions favorable for a shift of grassland communities towards 

late seral stages or potential climax communities. A shift towards late seral stages would occur 

at the expense of a decrease in early and mid seral stages, with potential decreases in a variety of 

associated plant and wildlife species. The greatest decrease would likely occur in the abundance 

of early seral species, but they would persist on sites of poorly developed soil or areas of primary 

and secondary succession such as residual buttes, parent material outcrops, natural 

erosion/deposition, around prairie dog towns or other sites disturbed by wildlife. 

However, invasive grasses complicate typical paths of succession in much of the project area. 

High and/or continuous levels of livestock grazing over extended periods can contribute to the 

spread of bluegrass and other invasive grasses (NRCS, 2009; NRPH, 1997), but several invasive 

grasses are sufficiently entrenched throughout most allotments to continue spreading even if 

livestock are removed. Continued expansion and spread with or without heavy disturbance is an 

inherent characteristic of true invasive species that differ from typical increaser species 

(Dyksterhuis, 1949), that increase in prominence under a given disturbance but decrease with 

removal of the disturbance. Increasing amounts of litter resulting from the removal of grazing 

may also assist invasive grass expansion by improving moisture characteristics for these species 

(NRCS, 2009, 2003). However, increasing litter is not a prerequisite for expansion, as bluegrass 

was observed in many sere plots without excessive litter. A study in Streeter, ND found 

bluegrass to increase with periods of increasing moisture even with high stocking rates resulting 

in 90% utilization (Biondini and Manske, 1998) 

Livestock grazing has often been assumed to result in decreased net primary production of 

grassland ecosystems, hence, the removal of grazing could increase system productivity. 

However, this traditional theory has been refuted by some studies of moderate grazing levels that 

found no significant differences in above or below ground production or nutrient availability at 

moderate stocking levels (Biondini et al, 1998, Biondini and Manske, 1996,). Conversely, the 

complete removal of livestock grazing would likely result in decreased total production of 

grassland communities because there would be less regrowth from grazed vegetation and 

accumulating plant litter would contribute to decreased energy flow (photosynthesis) and 

nutrient cycling. Although ground cover would increase, plant vigor and density and ecosystem 

dynamics would likely decrease. 
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Less-invasive crested wheatgrass would persist among present occurrences principally involving 

broken land and other highly disturbed sites where it was seeded. Relatively small degrees of 

crested wheatgrass expansion could occur, but it is also possible that native grass species mixed 

among crested wheatgrass would gradually increase in prominence and contribute to community 

development and later seral stages. The potential mechanism of increasing native grass 

prominence within mixed crested wheatgrass – native grass stands relates to the current timing of 

livestock grazing that too often results in selective pressure on the native grass component. 

Thus, removal of grazing pressure could allow for greater expression of native species in many 

crested wheatgrass stands. However, invasive grasses were also invading these stands at similar 

or greater rates than native stands and would be expected to continue increasing. 

In summary, removal of livestock grazing would have the potential to contribute to shifts in plant 

species composition towards later seral stages with a decrease of early seral stages and species. 

However, invasive grasses already present in the system would likely continue to increase at 

varying rates and impede the development of late seral native plant communities. From the east 

side of the project area where the extent of invasive grasses is greatest, to the west where 

invasive grasses are less abundant, large portions of the project area would likely continue to 

shift towards Invaded Grass States that are relatively irreversible without very intensive control 

treatments of uncertain effectiveness. With time, total productivity of the predominant grassland 

communities would likely decrease unless other herbivores or fire is present to decrease 

accumulating litter and increase rates of decomposition. 

Alternative 2 

Current management actions and stocking would continue under this alternative. Existing seral 

stage distribution would likely be maintained for a time, however, the apparent trend of 

increasing invasive grasses would be expected to continue under Alternative 2 and would be 

assisted by the current management practices outlined below. 

• Moderate to high stocking levels Moderate to heavy seasonal or season-long stocking 

rates repeated on an annual basis can facilitate the spread of bluegrass and other invasive 

grasses when they are present in the system (NRCS, 2009, NRPH, 1997, Uchytil, 1993). 

Many pastures in the project area have been grazed season-long or are affected by repeated 

grazing during a single year. The average weight of most modern cow breeds has 

significantly increased since the late 1940s (Carter, 2008; Hancock, 2006; Dhuyvetter, 

1995). Larger cows eat more forage which isn’t adjusted for under this alternative. Once 

adjusted for livestock weight, 88 percent of the allotments have an authorized use above 

estimated carrying capacity, with authorized use on 50 percent of allotments exceeding 

initial estimated carrying capacity by 25 percent, and 24 percent of allotments exceeding 

initial estimated carrying capacity by more than 50 percent. 

• Composition-Timing Conflicts Determination of stocking rates based on the production of 

key species and key areas of utilization is a standard range management practice (NRCS, 

2006, 1997; Brisket et al 2008; KSU, 1994), but there is a general lack of prescribed grazing 

that incorporates optimum periods of palatability and utilization of invasive grasses, 
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including crested wheatgrass. A significant portion of the available forage is effectively 

sacrificed when grazing is initiated after the period in which invasive species are likely to 

be most utilized. The result is likely to be excessive utilization of the more palatable native 

grass component, potentially compounding the apparent level of over-stocking and 

providing feedback for additional invasive grass expansion. This situation is referenced as a 

composition-timing conflict and affects about 70% of the allotments to varying degrees. 

• Hay feeding Most hay is fed in the winter and is comprised of crested wheatgrass, 

however, more aggressive invasive species of sweet clover, smooth brome, bluegrass, and 

annual brome have been observed. High livestock densities in hay feeding areas can result 

in high levels of trampling, often compounded by moist soil conditions. The native grass 

component is grazed during hay feeding periods during relatively open winters, potentially 

contributing to excessive use and low production the following year. The resulting levels of 

winter use and the introduction of invasive grass seed through the hay likely assists the 

establishment of these species by improving seed-soil contacts and decreasing the 

competitive ability of native grasses. 

The effects of this alternative would likely increase invasive species that have the potential to 

alter the current distribution of seral stages towards early seral stages and /or invaded vegetation 

states and away from Grasslands Plan seral stage objectives. 

Alternative 3 

The apparent increasing trend of invasive grasses is likely to continue under Alternative 3. The 

main practices contributing to this outcome involve continuation of current levels of apparent 

overstocking and the persistence of varying levels of composition-timing conflicts in about 70% 

of allotments with high amounts of invasive grasses. Adverse effects associated with hay 

feeding would continue. These factors would likely result in downward trends of late seral 

stages and adverse effects to the maintenance of native plant communities. 

Slight to moderate degrees of change in grazing strategies that have the potential to result in 

varying levels of decreased composition-timing conflicts would occur in a small portion of 

invasive grass infested allotments and usually benefit only some pastures within the allotment. 

The proposed action of delaying turn-in dates until June 1 or after sufficient growth is attained in 

native dominated pastures has the potential to assist plant health and community development 

among all affected pastures compared to premature grazing that often occurs at present (Manske 

Peck et al, 1994; Cook & Child, 1971). Early May and occasionally late April turn-in into 

crested wheatgrass or invasive pastures is appropriate for synchronizing grazing with periods of 

peak palatability for these species. However, efforts to shift grazing periods towards early use of 

invasive grasses is proposed among relatively few affected allotments and is likely to provide 

feedback for additional invasive grass expansion. Failure to more comprehensively address the 

situation probably represents the most significant threat to the native plant resource and the 

inconsequential measurement of seral stage. 

Greater manipulation of water sources would likely improve livestock distribution and decrease 

levels of excessive utilization in some pastures. The addition of new water sources has the 
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potential to result in similar benefits. However, increased distribution has the potential to result 

in decreased secondary range and a decrease in seral stages and high structure. Disturbances 

associated with new water developments are likely to facilitate local spread of invasive grasses. 

Across the project area, continued levels of apparent overstocking and composition-timing 

conflicts are likely to facilitate current apparent trends of increasing invasive grasses and shifts 

towards early seral and/or invaded vegetation states. 

Adaptive Management - This alternative is based on adaptive management, as described in 

Chapter 2. If monitoring reveals that an initial action(s) is/are not successfully resolving a 

resource concern then a team comprised of different specialists, the affected permittee, and 

affected Grazing Director, would recommend to the District Ranger a possible course of 

action(s) based on the adaptive options identified in the Allotment Summary Sheets and/or 

Grazing Management Toolbox (Table 2.2). An effects discussion of the different tools, available 

under adaptive management, is located in Appendix D, Grazing Management Tool Box. 

Alternative 4 

The average reduction in authorized use of about 20 percent according to initial estimated 

carrying capacity has the potential to assist development of late seral stages and achieve seral 

stage objectives that are currently nearly met. Several studies analyzing the effects of stocking 

rates and utilization have concluded that there is no substitute for establishment of appropriate 

stocking levels according to current resource conditions in order to improve or maintain 

rangeland productivity and health (Holocheck et al 1999; Hart & Test, 1993; Pieper & 

Heitschmidt, 1988; Eckert & Spencer 1987). 

Several proposed practices in addition to decreased authorized use have the potential to facilitate 

improved conditions by increasing plant vigor and providing greater opportunity for plants to 

periodically complete critical growth stages. The proposal common to all allotments involving 

the delay of turn-in onto native pastures until June 1 or when plant stages are sufficiently 

developed to tolerate grazing should facilitate plant health or vigor and could assist development 

of late stages compared to May turn–in dates that often occur at present. Other commonly 

proposed actions that would assist seral stage development in some allotments involve greater 

use of crested wheatgrass pastures early in the season, consistent deferment of pasture rotations, 

and shifting away from twice or thrice-over rotations to once-over rotations. Greater 

manipulation of water sources would likely improve livestock distributions and decrease levels 

of excessive utilization in some pastures. The addition of new water sources has the potential to 

result in similar benefits. However, increased or more even distribution also has the potential to 

result in decreased secondary range with potential decreases in late seral stages and high 

structure. 

In summary, some allotments have the potential to exhibit slight to moderate increases in plant 

composition towards late seral stages as a result of proposed management and decreased 

authorized use. However, persistent composition-timing conflicts similar to alternative 3 have 

the potential to facilitate the continued spread of invasive grasses and associated adverse affects. 
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Adaptive Management - This alternative is based on adaptive management, as described in 

Chapter 2. If monitoring reveals that an initial action(s) is/are not successfully resolving a 

resource concern then a team comprised of different specialists, the affected permittee, and 

affected Grazing Director, would recommend to the District Ranger a possible course of 

action(s) based on the adaptive options identified in the Allotment Summary Sheets and/or 

Grazing Management Toolbox (Table 2.2). An effects discussion of the different tools, available 

under adaptive management, is located in Appendix D, Grazing Management Tool Box. 

Cumulative Effects 

Livestock Grazing – The apparent increasing trend of invasive grasses that adversely affects seral 

stage and the maintenance of native plant diversity would likely continue under this alternative. 

Termination of livestock grazing under Alternative 1 may slow the spread of invasive grasses, 

but they are likely to continue expanding through natural competitive advantages and other 

vectors of dispersal. Although native-dominated grass communities would have the potential to 

progress towards later seral stages and climax communities with the removal of grazing, the 

potential expansion of invasive grasses would likely lead to Invaded Vegetative States in a high 

portion of the project area. Increasing herbaceous litter accumulation with the removal of 

livestock grazing may assist the expansion of some invasive grasses (NRCS 2009, 2006) through 

increased shading and moisture conservation and decreased vigor of the native plant community. 

The control of wildfire may also assist the accumulation of litter in some sites and promote the 

spread of woody shrub communities such as snowberry where frequent Kentucky bluegrass 

dominance is suggestive of a positive relationship. 

The apparent increasing trend of invasive grasses driven or assisted by previously discussed 

direct/indirect effects of current management is likely to continue under Alternatives 2, 3, and 4. 

Under Alternative 4 the rate of invasive grass spread has the potential to decrease with 

authorized use established according to initial estimated carrying capacity, but the present extent 

of these species and continued practices that assist their spread are likely to ensure a continued 

upward trend. Some invasive grass impacts could increase under both Alternatives 3 and 4 due 

to increased developments associated with water lines and livestock tanks Non-treatment of 

invasive grasses assists their ability to spread, while in some cases, herbicide treatment of 

noxious weeds can assist the spread of invasive grasses. Alternative 2, 3, and 4 are all likely to 

see an increase in invasive species which has the potential to shift the existing seral stage 

distribution towards early seral stage. 

Oil and Gas Development – Numerous. active or reclaimed well sites and numerous miles of 

access road and utility corridors occur in the project area and additional developments will occur 

in the future under all alternatives. Soil and vegetation disturbances associated with these 

development activities have assisted the spread of invasive grasses and noxious weeds along the 

majority of access roads, utility corridors, and well pads, despite current reclamation with native 

grasses (Washington and Gildar, 2004). Periodic maintenance of the road corridors assists 

spreading of invasive species into new areas (Gelbard and Belnap, 2003), whereby they have the 

potential to continue spreading into adjacent rangeland. Noxious weeds are actively controlled 

on the grasslands, while invasive grasses and invasive forbs such as sweet clover are not, and are 

therefore able to spread unchecked. 
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None of the alternatives affects oil and gas development, but existing and future development of 

oil and gas infrastructure will continue to assist in the spread of invasive/noxious species that 

may contribute to a cumulative effect that influences seral stages and the maintenance of native 

plant communities. 

Wildfire /Noxious Weeds –Under Alternative 1 increasing herbaceous litter may increase the 

threat of wildfires that are more difficult to contain due to the increased fuel loads. Although 

providing some beneficial affects to grassland vigor and dynamics, fires are often succeeded by 

flushes of various invasive and noxious weeds that could increase their current extent. 

Additionally, both fire and weed control efforts often result in a distinct set of disturbances that 

can assist the spread or establishment of weed species. For instance, firebreaks created by 

bulldozing or otherwise scraping the sod layer down to bare soil, and extensive cross-country 

vehicle travel over rugged terrain to control fire, have the potential to spread weed species and/or 

create seedbed conditions favorable for their establishment. Controlling fire can also maintain 

litter accumulations in some areas which can assist the establishment of invasive grasses Many 

sites of noxious weed control treatments, either with or without previous wildfire, can result in 

the “release” of subordinate invasive weed species after competitive or allelopathic effects of the 

noxious weed are reduced. The potential effects of wildfire and fire suppression apply to all the 

alternatives. 

Wildfire and fire suppression both have the potential to be contributing agents affecting seral 

stage distribution in the project area. However, given the high priority placed on fire suppression 

the possibility of wildfire being a major contributor effecting seral distribution under any of the 

alternatives seems remote. 

Drought – The ability of the plant communities to withstand drought is expected to increase as 

plant communities increase the amount of canopy and litter cover which in turn increases shade, 

reduces ground temperatures, and conserves soil moisture. Alternative 1 would have the greatest 

ability to withstand the effects of drought, followed in descending order by Alternatives 4,3, and 

2. 

Summary- Removal of livestock grazing under Alternative 1 would have the potential to 

contribute to shifts in plant species composition towards later seral stages with a decrease of 

early seral stages and species. However, invasive grasses already present in the system would 

likely continue to increase at varying rates and impede the development of late seral native plant 

communities in many portion of the project area. From the east side of the project area where 

the extent of invasive grasses is greatest, to the west where invasive grasses are less abundant, 

large portions of the project area would likely continue to shift towards Invaded Grass States 

that are relatively irreversible without very intensive control treatments of uncertain 

effectiveness. With time, total productivity of the predominant grassland communities would 

likely decrease unless other herbivores or fire is present to decrease accumulating litter and 

increase rates of decomposition. 

For Alternative 2, 3 and 4 there is strong if not conclusive evidence that invasive grasses are 

increasing in the project area and adversely affecting the maintenance of native plant 
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communities and attributes of seral stage and native biodiversity. Past and current livestock 

management and oil and gas related disturbances are contributing to the spread of invasive 

grasses and the composition of grassland communities in the project area is likely to continue 

trending away from historic vegetation states and towards new vegetation states dominated by 

invasive grasses. For all practical purposes, Invaded Vegetation States are irreversible. 

Alternatives 2 and 3 have the potential to contribute to shifts in plant species composition 

towards early seral stages with a decrease of late seral stages and species. Alternative 4 has the 

greatest potential to assist development of late seral stages and slow the spread of invasive 

grasses, but trends of increasing invasive grasses are likely to continue. 

Sharp-tail Grouse 

Introduction 

The plains sharp-tailed grouse (Tympanuchus phasianellus jamesii) is the Management Indicator 

Species (MIS) for the biological community associated with grasslands containing scattered 

shrubs and diverse vegetative structure (Appendix H USDA 2001a). A critical feature to this 

community is the availability of high structure vegetation (i.e. herbaceous dominated grassland). 

Such habitat benefits nesting sharp-tailed grouse and some other ground nesting avian species. 

Spatial and Temporal Setting 

The analysis area includes the entire project area. After the 2005 surveys, there were 37 known 

sharp-tailed grouse leks located in the project area or within one mile of the project area 

boundary. Therefore, it is assumed there are sharp-tailed grouse and that habitat exists 

throughout the project area. The temporal context for the analysis is assumed to be 10-15 years 

from present. 

Methodology 

Two different methodologies were used to provide data for the sharp-tailed grouse analysis. 

First, Visual Obstruction Reading (VOR) information was used to determine the amount of high 

structure which is an essential component of grouse habitat. Sharp-tailed grouse need high 

herbaceous structure for nesting, brood cover, and hiding cover. High structure grassland for the 

LMNG is defined as areas with average VOR transect readings greater than 3.5 inches. The VOR 

methodology and analysis is described under the Herbaceous Structure section of this chapter. 

Second, surveys were conducted to determine the number and location of sharp-tailed grouse 

leks (dancing grounds) in the project area. Peak breeding activity for sharp-tailed grouse occurs 

in about the middle of April with lek activity occurring for several weeks either side of midApril. From the lek site, the average distance a hen may nest varies up to approximately one 

mile. The survey information is useful for identifying potential areas to manage for high 

structure and other necessary elements of sharp-tailed grouse habitat. 
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Affected Environment 

Existing Condition 

There are approximately 37 known leks scattered within the project area, with most of these in 

the eastern half of the project area. Some of these may be “satellite” leks. Satellite leks are 

defined generally as those leks that are temporary (<2 years), typically near an established lek 

(less than 0.6 mile), and/or attended by fewer males (usually 5 or less). Additional satellite leks 

likely exist in the project area, however, given their dynamic nature and typically small size they 

are hard to consistently detect. Most established leks are relatively stable over time but do move 

on occasion. 

The known leks occur in both the Rolling Prairie and Badlands Geographic Areas (GA). 

However, within the project area, the interface between the two geographic areas contains the 

highest density of leks with approximately 16 known leks within 1 mile of the delineated line 

between the two GA’s. With a two mile buffer approximately 24 leks would be included. 

The 2001 Northern Great Plans FEIS (pg. 239) states that “livestock grazing is the most 

significant and widespread activity affecting grassland structure.” Baseline grassland structure 

(via VOR methodology) data collected in 2004 and 2005 indicates that high structure grassland 

habitat is very poorly represented in the project area and low and moderate structure habitats are 

overly represented. Table 3-18 below provides a summary of project area transect and station 

structure distribution data from 2004. Station data exhibited somewhat similar results where 

High was defined as a station average equal to or greater than 5.5 inches (DPG Response to SRT 

2006). 

Table 3-18: 2004 and 2005 transect and station herbaceous structure 

 distribution within the project area . 

 LOW 

0-1.49” 

(percent) 

MODERATE 

1.5-3.5” 

(percent) 

HIGH 

>3.5” 

(percent) 

2004 Transect 53 47 <1 

2004 

Station 59 38 3 

2005 

Transect 29 64 7 

2005 

Station 42 56 2 

The climate pattern for 2004 was a dry year and would likely meet the criteria to be called a 

“drought year” under the Grasslands Plan definition. There currently is not a unit wide drought 

strategy for the Dakota Prairie Grasslands, however, one was developed by the McKenzie 

Ranger District for the 2005 NE McKenzie Allotment Management Plan Revisions FEIS. It has 

been previously identified in this analysis that the NE McKenzie strategy has been adopted as 

interim direction for this analysis pending the completion of the DPG-wide drought strategy. 

Part of the drought management precedent established under the FEIS (page 22) is to have as a 

structure objective of at least 10 percent high structure and at least 40 percent in moderate 
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structure. Considering these objectives in light of the VOR information provided above indicates 

that the project area was significantly short of high structure which is critical to sharp-tailed 

grouse. 

The Grasslands Plan (page 1-14) identifies the need to emphasize quality nesting and brooding 

habitat, consistent with Geographic Area objectives, within one mile of active sharp-tailed 

grouse display grounds i.e. leks. The lek site is the hub of nesting and other annual activities for 

sharp-tailed grouse (Connelly et al 1998 and Prose 1987). Buffering the known leks within the 

analysis area (i.e. project area leks plus one mile buffer) by one mile accounts for approximately 

42 percent of the NFS lands in the project area. Table 3-19 shows that for 2004 and 2005, the 

herbaceous structure distribution within the buffered lek areas is similar to the overall project 

area and further supports the lack of nesting cover, critical to the grouse. 

Table 3-19: 2004 structure distribution within one mile of leks within the project area. 

This data includes shrub dominated or co-dominated transects. 

LOW 

0-1.49” 

MODERATE 

1.5-3.5” 

HIGH 

>3.5” 

46.6% 50% 3.4% 

Green Ash woody draws in the project area provide forage, cover, and roosting sites for grouse 

and may be important in harsh winters (Prose 1987). The quality of the green ash woody draw 

habitat varies from healthy to unhealthy, however, at this time, the woody draws do not appear to 

be a limiting factor for the sharp-tailed grouse. 

The Grasslands Plan objective is for five percent of the suitable rangeland to be rested annually. 

Rest is defined in Appendix G of the Grasslands Plan as “To leave an area of rangeland ungrazed 

by livestock or unharvested by mechanical methods for at least one year (12 consecutive 

months” which includes one growing season, thereby, foregoing one forage crop. Rest, as 

defined above, is not occurring in the project area. Planned rest within rotational grazing systems 

would also aid in achieving the “shifting mosaic” pattern described in the Grasslands Plan (pages 

2-11 and 2-18) and help achieve structure objectives, thus providing an important habitat feature 

for sharp-tailed grouse and other wildlife species. 

There are areas within some allotments that are either not grazed or are very lightly grazed. 

These static long-term “rested” areas occur primarily in the Badlands where topography may 

limit access and/or the forage base. However, densities of sharp-tailed grouse in the Badlands are 

low and these rested areas, within the Badlands, do not provide noticeable amounts of potential 

habitat for grouse or other ground nesting species that prefer high structure habitats. 

In summary, sharp-tailed grouse do occur in the project area as demonstrated by the presence of 

the 37 leks. However, structure information provided above and in the Herbaceous Structure 

section of this chapter indicates that the amount of high structure is well below Grasslands Plan 

structure objectives and interim drought structure objectives. High herbaceous structure is a 

critical feature of sharp-tailed grouse habitat because it supplies nesting and brooding habitat. 

The lack of good quality nesting and brooding habitat is thought to be a limiting factor 

throughout the range of sharp-tailed grouse (Hillman and Jackson 1973 in Prose 1987). Thus low 
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amounts of this component infers a potential loss of habitat occurring in the project area which in 

turn means a reduced sharp-tailed grouse population. 

Desired Condition 

The desired condition for the Sharp-tailed grouse is identified in Chapters 1 and 2 and Appendix 

H of the Grasslands Plan. The following direction is provided by the plan: 

Goal 1.b: Provide ecological conditions to sustain viable populations of native and desired nonnative species and to achieve objectives for Management Indicator Species (MIS). (Grasslands 

Plan, p. 1-2) 

Objectives:- Within 15 years, for threatened, endangered, sensitive, and MIS, demonstrate 

 positive trends in population viability, habitat availability, habitat quality, and 

 population distribution within the planning area. 

 Within 10 years, provide sufficient habitat for MIS to reduce adverse impacts on 

 populations during droughts. (Grasslands Plan, p. 1-3) 

Badlands and Rolling Prairie Geographic Areas - Desired population trends and habitat quality 

and quantity for the Plains Sharp-tailed Grouse: Provide diverse and quality nesting, brooding, 

and wintering habitat at levels that, in combination with habitat on adjoining lands, help support 

stable to increasing sharp-tailed grouse populations within 10 to 15 years. (Grasslands Plan, p. 2-

14, 2-21). 

Grasslands Plan Appendix H - Within sharp-tailed grouse habitat, greater than 20% of the area 

around display grounds should be managed as quality nesting cover. Minimum patch size should 

be 160 acres. Quality nesting cover for the Little Missouri National Grasslands is defined as 

areas with average VOR transect reading greater than 3.5 inches. (Grasslands Plan, p. H-2) 

Environmental Consequences 

Direct and Indirect Effects 

Alternative 1 

With no livestock grazing, a significant increase in moderate and high structure would be 

expected resulting in increased nesting opportunities for ground nesting species requiring or 

preferring high structure (e.g. sharp-tailed grouse and Baird’s sparrow). It is uncertain how much 

high structure could be produced, however, assuming the 2001 Northern Great Plains FEIS 

analysis is correct, a minimum of 46 percent high structure on the landscape may be produced 

under Alternative 1. If we assume that all biologically capable sites can produce high structure in 

the next ten to fifteen years, then the structure distribution would be strongly biased towards high 

structure and those species who favor high structure habitat species such as the sharp-tailed 
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grouse. Additionally, there would be no potential for nest destruction resulting from livestock 

trampling and reduced incidences of collisions with fences. 

The occurrence of drought may affect grouse habitat and therefore populations under this 

alternative. However, due to the substantial increase in high structure and no livestock influence, 

the effects on the sharp-tailed grouse population would be mitigated. Ultimately under this 

alternative sharp-tailed grouse nesting and brooding habitat would increase, nests lost due to 

livestock would decrease, and sharp-tailed grouse populations would increase, barring some 

unforeseen natural calamity. 

Alternative 2 

Alternative 2 proposes to continue current management, therefore, the existing conditions will 

likely continue relatively unchanged as described in the Affected Environment section above. 

The existing low levels of high herbaceous cover, especially in dry years, as evidenced by 2004 

VOR data, would continue. This would render this alternative the least beneficial to grouse and 

their habitat needs and is assumed to maintain sharp-tailed grouse habitat and populations at 

status quo levels. 

The occurrence of drought generally tends to reduce the amount of high structure, which is 

further impacted by livestock grazing. Given the low amount of existing high structure, drought 

in combination with livestock grazing, has the potential to adversely affect sharp-tailed grouse 

habitat and, hence, populations. 

Alternative 3 

The initial actions of this alternative include establishing, changing, or maintaining rotational 

grazing systems; additional range improvements, fencing, water development, range pipelines, 

etc, on approximately 40 percent of the allotments; and range water management. Authorized use 

is maintained at current levels. 

As identified in the Herbaceous Structure section of this chapter the use of grazing rotations and 

additional range infrastructure without stocking/AUM adjustments is likely to result in a 

homogenization of herbaceous structure. Some low structure may move to moderate, however, 

there may also be a loss of existing high structure as rangelands are more efficiently utilized by 

livestock. Because there is little opportunity to increase high structure under the initial actions of 

this alternative there may be no improvement in nesting opportunities or improved brooding 

habitat for sharp-tailed grouse or other ground nesting species. Potential habitat may actually 

decrease in smaller pastures, as they are more effectively utilized by livestock. Improvement in 

the structure distribution will likely not begin to improve until after adaptive management 

actions are taken. If after further adaptive management actions are taken (i.e. stocking 

adjustments and implementation of rest) then habitat conditions for species requiring High 

structure may improve. 

Drought management using the interim McKenzie Ranger District strategy will be somewhat 

improved in that response to drought conditions may be more timely. Also if the structure 

guidelines ( i.e. >10 percent high structure and > 40 percent moderate structure) found in the 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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strategy are followed then effects to structure will be reduced. However, strict adherence to 

Reece (1991), the underlying basis for McKenzie’s strategy, will not ensure impacts to wildlife 

habitat are reduced under drought conditions (Wildlife Report, Appendix C)

Adaptive Management - This alternative is based on adaptive management, as described in 

Chapter 2. If monitoring reveals that an initial action(s) is/are not successfully resolving a 

resource concern then a team comprised of different specialists, the affected permittee, and 

affected Grazing Director, would recommend to the District Ranger a possible course of 

action(s) based on the adaptive options identified in the Allotment Summary Sheets and/or 

Grazing Management Toolbox (Table 2.2). An effects discussion of the different tools, available 

under adaptive management, is located in Appendix D, Grazing Management Tool Box. 

Alternative 4 

Overall, the basic premise of Alternative 4 is initially to: Adjust livestock numbers to the 

predicted initial estimated carrying capacity based on soil data developed by NRCS; Implement, 

change, or maintain rotational grazing systems; increase the net amount of infrastructure (e.g. 

water and fences) on approximately a third of the allotments, adjustments for livestock weight, 

and monitoring resource conditions and implement adaptive actions if necessary. 

Alternative 4, with an emphasis on carrying capacity and less emphasis on structural 

improvements than Alternative 3, would likely increase the potential for more structurally 

diverse, and perhaps more compositionally diverse habitat conditions than the other alternatives. 

Since livestock stocking levels are key, this alternative may move towards the overall structure 

objectives faster than the other alternatives as well. 

Though Alternative 4 reduces the current grazing levels to initial estimated carrying capacity, the 

stocking may still be likely higher on some sites within the project area because plant 

communities are believed to be in a typically lower ecological state than the assumed reference 

community used in initial carrying capacity analyses. This generally translates into lower 

standing crop and reduced herbaceous structure. Confounding factors in the carrying capacity 

analysis include the presence of non-native cool season grasses such as Kentucky bluegrass and 

crested wheatgrass. These species are prevalent within the project area and can significantly 

increase the production level of a vegetative community. 

Larger allotments found in the Badlands GA may have a higher probability to move towards 

objectives more quickly than the Rolling Prairie GA allotments. Topography and a lower density 

of structural improvements create the potential for more opportunities for heterogeneity in the 

Badlands allotments versus the smaller Rolling Prairie allotments with a higher density of 

structural improvements. However, the naturally lower density of grouse in this GA reduces the 

beneficial impact of the potentially improved herbaceous structural conditions. 

In summary, adjusting stocking to initial estimated carrying capacity would likely see an increase 

in moderate structure but a limited, yet positive response in high structure. However, the 

presence of non-native grass species complicates carrying capacity calculations making it 

difficult to determine specific effects. Fewer range improvements are proposed under this 

alternative then Alternative 3 which may lead to fewer impacts to existing secondary range, 

which potentially carries more high structure. Despite the above, Alternative 4 would probably 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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provide the most preferable scenario for sharp-tailed grouse and other species requiring high 

structure vegetation. 

Adaptive Management - This alternative is based on adaptive management, as described in 

Chapter 2. If monitoring reveals that an initial action(s) is/are not successfully resolving a 

resource concern then a team comprised of different specialists, the affected permittee, and 

affected Grazing Director, would recommend to the District Ranger a possible course of 

action(s) based on the adaptive options identified in the Allotment Summary Sheets and/or 

Grazing Management Toolbox (Table 2.2). An effects discussion of the different tools, available 

under adaptive management, is located in Appendix D, Grazing Management Tool Box. 

Cumulative Effects 

Livestock Grazing – Alternative 1would likely have the greatest positive effect on sharp-tailed 

grouse due to the potential increases in high herbaceous which would favor the grouse. 

Cumulatively, effects under this alternative are no different then the direct and indirect effects 

identified above. Alternative 2 would continue current management within the project and there 

would be no additional effects over those identified under direct and indirect effects section 

above. Alternative 3 relies on increased infrastructure to move towards structure objectives. 

These actions are likely to move some low structure more towards moderate but would have 

little positive effect on attaining high structure which is critical to sharp-tailed grouse. The initial 

actions of this alternative are unlikely to have a cumulatively significant effect either positive or 

negative on sharp-tailed grouse habitat or populations because the increase in high structure is 

assumed to be status quo. Alternative 4 also uses range infrastructure, but differs in that 

authorized use is based on carrying capacity and livestock adjusted for weight. Alternative 4 

would increase moderate structure and positively effect high structure but to an unknown degree, 

however, cumulatively it doesn’t appear to have a cumulatively significant effect either positive 

or negative on sharp-tailed grouse habitat or populations. 

Oil and Gas Development – Past and present oil and gas development has resulted in road 

development which has fragmented sharp-tailed grouse habitat to a limited degree and may have 

introduced some incidental mortality due to collisions with oil field traffic and infrastructure. 

Historical oil and gas development has displaced grouse leks, however, avoidance is now used 

when this conflict arises. Oil and gas development, under all alternatives is expected to continue 

into the foreseeable future. Habitat fragmentation will likely continue to an unknown degree as 

well as accidental mortality, however, there is no current evidence to indicate that there will be a 

cumulative significant effect on sharp-tailed grouse habitat or populations. 

Wildfire – Alternative 1 would see an increase in grass fuels followed to lesser degree by 

Alternative 3 and 4. As such there would be potential for increased intensity and frequency of 

wildfires. However, given current fire suppression policies it is unlikely that the frequency and 

size of wildfires would increase significantly under any of the alternatives. Wildfire could have 

an appreciable adverse effect if it significantly reduced existing high structure annually for a 

number of years, however, this seems a remote possibility, so functionally there are no 

significant cumulative effects to sharp-tailed grouse habitat related to wildfire. 
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Noxious weeds – Noxious weeds displace native vegetation thus removing habitat for the sharptailed grouse. There is a relatively low acreage (790 acres) of noxious weeds in the project area. 

Treatment of these weeds is addressed in the DPG Noxious Weed Management FEIS. Noxious 

weeds do not present a cumulative significant effect on sharp-tailed-grouse habitat under any of 

the alternatives. 

Drought – Is a naturally occurring climatic event in the project area. It reduces the amount of 

high structure due to limitation of available moisture which affects production. Alternative 1 

would be the most resistant to the effects of drought and would provide the most available 

habitat. It could have a cumulatively beneficial effect on habitat and sharp-tailed populations. 

Alternative 2 would maintain the status quo. Drought would likely have the greatest effect on 

high structure under this alternative due to the limited amount of existing high structure and the 

lack of a drought strategy. Alternative 3 and 4 would increase structure primarily in the moderate 

class which would be more drought resistant, however, it is unlikely that either alternative would 

have a cumulative significant effect either adverse or beneficial for sharp-tailed grouse habitat. 

Economics 

Introduction 

The social and economic implications of grassland resource management are of interest to local 

residents in Billings County, North Dakota and other areas surrounding the Little Missouri 

National Grasslands, visitors to the grasslands, and to some people from other parts of North 

Dakota and throughout the United States. Residents in Billings County, North Dakota would be 

most likely to experience the direct social and economic impacts of the North Billings County 

Allotment Management Plan Revisions. Ranchers who graze livestock on National Forest 

System (NFS) lands in the project area may potentially be affected positively or negatively 

depending on alternative selection. 

Spatial and Temporal Setting 

The geographic scope of the economic analysis includes: Billings, Bowman, Dunn, Golden 

Valley, McKenzie, Slope, Stark, and Williams Counties, North Dakota, and Dawson, Fallon, 

Richland and Wibaux Counties, Montana. This economic impact area is an appropriate scope of 

analysis because even though the project would occur in Billings County, ND these adjoining 

counties provide important inputs to the cattle ranching operations and serve as markets for beef 

cattle produced in the project area. The temporal scope of the analysis is 10 to 15 years. 

Economic Contribution Methodology 

Economic Impact Modeling Methodology and Overview 

This analysis compares the pace of authorized animal month (AM) reductions for each of the 

alternatives. The Medora Grazing Association provided grazing permits for the allotments in the 

project area for 2005-2007. This three-year period was used to portray current conditions. The 

anticipated changes under each alternative were determined by range specialists calculating the 

number of AMs authorized for each alternative based on information obtained from grazing 

association issued grazing permits, grazing association preference numbers, or estimating 

livestock carrying capacity numbers. .Using the expected AMs under each alternative, economic 
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impacts are estimated as direct, indirect, and induced employment (full- and part-time jobs) and 

labor income generated by the 1) foraging of cattle on NFS lands, and 2) the marketing of cattle 

that rely on national grassland forage as part of their growth requirements. The true economic 

contribution and impacts associated with each of the alternatives likely falls between the range of 

estimates generated using these two techniques. 

The existing condition is calculated by first determining the portion of total North Dakota cash 

receipts for cows and calves that are produced from NFS lands located in the 43 allotments in the 

project area.. To calculate the percent contribution that the NFS lands, in the project area, make 

to state cash receipts, the number of authorized animal months are divided by the number of 

animal months for all cows and calves marketed across North Dakota (2007 National 

Agricultural Statistical Service data). 

Since marketed cows and calves spend roughly twelve and eight months respectively, foraging 

before they are marketed, the total number of marketed cows is multiplied by twelve and the 

total number of marketed calves across the state is multiplied by eight. When these are summed 

they are used to estimate the total number of AMs required to bring animals to market and sell 

them for cash receipts. This becomes the denominator by which the N. Billings authorized AMs 

is divided to calculate the portion of state total attributable to federal forage on N. Billings 

allotments. When this portion is multiplied by the 2007 cash receipts, the N. Billings grasslands 

cash receipts each year are calculated. It is important to acknowledge that when the portion of 

North Dakota marketings is calculated this way, it likely overestimates the portion because not 

all cows and calves feeding on grasslands are indeed marketed each year. The true percentage 

marketed likely varies each year as many relevant markets change. Since we have no data 

describing this percentage, the portion of the statewide marketings estimated for the N. Billings 

allotments is presented as a maximum percent of statewide marketed animals directly attributable 

to N. Billings federal forage. 

In reality, some of the cattle ranchers with cows and calves that spend time on N. Billings 

national grasslands rely on these lands to feed cattle away from base ranches so that they can 

produce feed to winter the cattle when they are not feeding on national grasslands. Since these 

ranchers rely on having their cows and calves off the ranch, the existing situation needs to also 

consider the current contribution that all of the cattle spending any time on national grasslands 

make to state marketings. By taking the 2005-2007 three-year average of cows, calves and 

yearlings (no bulls, sheep or horses) an estimate of the number of cows and calves relying on 

grassland forage is produced. This estimate is then compared directly to the sum of cows and 

calves marketed across the state (2007 National Agricultural Statistics Service). It is important to 

again acknowledge that when the portion of North Dakota marketings is calculated this way, it 

also likely overestimates the portion because not all cows and calves foraging on NFS lands are 

indeed marketed each year. The true percentage marketed likely varies each year as many 

relevant markets change. Since we have no data pertaining to this percentage, this estimate is 

presented as a maximum percent of statewide marketed cows and calves attributable to the N. 

Billings AMP. 

This analysis used IMPLAN Pro software (MIG 2003), to support an "input-output" analysis 

method, to estimate employment and income impacts. Input-output analysis is a way to examine 
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relationships within an economy both between businesses and between businesses and final 

consumers. It captures all monetary market transactions for consumption in a given year. This 

economic impact analysis examines the effect of a change in one or several economic activities 

on an entire economy when all else is held constant. IMPLAN translates changes in final 

demand for goods and services into changes in economic effects, such as labor income and 

employment of the affected area’s economy. 

The IMPLAN modeling system allows one to build regional economic models of one or more 

counties for a particular year. The regional model for this analysis used 2007 IMPLAN data for 

Billings, Bowman, Dunn, Golden Valley, McKenzie, Slope, Stark, and Williams Counties, North 

Dakota Counties, and Dawson, Fallon, Richland and Wibaux Counties Montana, the economic 

impact area for the North Billings AMP reauthorization on the Dakota Prairie Grasslands. 

Economic impacts are used to evaluate potential direct, indirect, and induced effects on the 

economy. The direct employment and labor income benefit employees and their families and 

therefore directly affect the local economy. The direct response coefficients represent the 

number of jobs and the amount of labor income that are a direct impact to the cattle ranching & 

farming, and the agriculture support activity economic sectors in the IMPLAN model. Additional 

indirect and induced multiplier effects (ripple effects) are generated by the direct activities. 

Indirect jobs represent the additional circulation of money to purchase inputs for cattle ranching 

& farming and inputs for the agriculture support sector. These jobs and this labor income is 

distributed among the various economic sectors that exist in the twelve-county area in North 

Dakota and Montana. Workers and proprietors working and earning money from direct and 

indirect impacts also spend their earnings. Some of the money that is spent circulates in the local 

economy and much of the money leaks out to other parts of the country. The amount that 

remains local contributes additional jobs and labor income in a diverse group of economic 

sectors. This portion of the N. Billings contribution to the economic impact area is called 

induced economic impacts. 

Potential future expenditures by the USFS and permittees associated with range improvements 

on N. Billings allotments under alternatives 3 and 4 are multiplied by estimates of direct, indirect 

and induced effects for the agricultural support services IMPLAN sector and combined with the 

cattle ranching impacts in the analysis. The sum of direct, indirect and induced for both the cattle 

ranching & farming and agricultural support services sectors is labeled total economic impacts. 

Potential limitations of these estimates are the time lag in IMPLAN data and the structural 

changes to the economy that have happened since Autumn 2008, as well as the accuracy of the 

methodology for calculating the portions of total cash receipts attributable to federal forage and 

the all the cattle that spend some of the year grazing the N. Billings project area.. As noted 

above, the lack of data regarding percent of animals using N. Billings allotments that are 

marketed annually is also a limitation. In this case that has been dealt with by assuming all 

animals are marketed. Due to these limitations and assumptions, the best use of the economic 

impact modeling is to reveal relative differences in economic impacts between the alternatives. 
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After job and labor income impacts are discussed for each alternative, anticipated changes in 

revenue to the government under each alternative and the impact on payments to counties is 

projected based on the current fees and legislation governing payments to states. 

Social 

The social description briefly describes: the land base and the settlement history, lifestyles and 

ranching culture. The social analysis looked at how the USFS would manage the allotments and 

what changes to the relationships between the USFS and ranchers grazing on NFS lands would 

occur under each alternative. 

Affected Environment 

Existing Condition 

Medora, ND is the closest town to the North Billings allotments and has roughly 100 residents. 

Nearby, Dickinson, ND is the closest full-service city with roughly 16,000 residents. Some of the 

demographic and background economic information is summarized for Billings County, some 

for the twelve-county economic impact area and some for North Dakota to provide context and 

comparisons. 

Demographic Information 

The population of the twelve-county area during the last 35 years area peaked during the early 

1980s at roughly 105,000 people. The population then declined fairly rapidly during the 1980s 

before the population loss began to slow through the 1990s. Even at this slower rate of decrease 

the twelve-county area shrank by six percent between the 1990 and 2000 censuses. The 

population has leveled off during the last few years, 2003-2007 (BEA REIS 2005). 

Table 3-20 depicts general census demographic information for Billings County as compared to 

all of North Dakota. Billings County is very rural, with just under 1 person per square mile. As 

is the case in much of the rural west, both the Billings County and the North Dakota populations 

declined over recent years. While the overall North Dakota population declined slightly between 

1990 and 2000, the population in Billings County declined by just over 10 percent (Bureau of 

Census 2000). Although a portion of the Fort Berthold Indian Reservation lies adjacent to part 

of the economic impact area, it is not inside Billings County. 
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Table 3-20: Population, economic and geographic overview for North Dakota and Billings, County, ND 

North Dakota 

Billings County, 

North Dakota 

2000 Population Total 642,200 888 

2007 Population Estimate 639,715 798 

Population, % change, April 1, 2000 to July 1, 2007 -0.4% -10.1% 

Persons under 5 years old, % 2007 6.3% 4.1% 

Persons under 18 years old, % 2007 22.3% 18.0% 

Persons 65 years old and over, % 2007 14.6% 16.4% 

Female persons, % 2007 49.8% 47.1% 

Black persons, number and % 2007 1.0% 0.0% 

American Indian, number and % 2007 5.4% 0.1% 

Asian, number and % 2007 0.8% 0.1% 

Hispanic or Latino, number and % 2007 1.9% 0.4% 

White, number and % 2007 89.9% 97.9% 

Living in same house in 1995 and 2000, % age 5+, 2000 56.8% 72.9% 

Households, 2000 257,152 366 

Median household income, 2007 $43,936 $44,819 

Per capita money income, 1999 $17,769 $16,186 

Persons below poverty, % 2007 11.8% 11.4% 

Land area, 2000 (square miles) 68,976 1,151 

Persons per square mile, 2000 9.3 0.8 

Source: U.S. Census Bureau, from State and County QuickFacts , 

http://quickfacts.census.gov/qfd/states/38/38007.html 

Total employment in the 12-county economic impact area also peaked during the early 1980s, 

however after falling with the population decrease during the mid 1980s, total employment has 

grown since then and was 57,261 jobs during 2005. About 80 percent of job growth from 1970 to 

2005 was in wage and salary employment. Much of this job growth has been focused in the 

various parts of the service sector. This growth in services has occurred in most parts of the 

country. State and local government job growth also explains some of total employment growth. 

By 2005, 15 percent of all employment in the twelve-county area was government jobs, with 

federal civilian and military jobs accounting for small percentages of the total. Retail trade on the 

other hand has fallen as a percent of total employment. (BEA REIS 2005). Tables 3-21 and 3-22 

provide a snapshot of employment in North Dakota and Billings County, ND as of the 2000 

Census. 
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Table 3-21: Summary of occupations in North Dakota and Billings County, ND 2000. 

Occupation 

North 

Dakota 

Percent 

of Total Billings Co 

Percent 

of Total 

 Total Employed civilian population 16 years and over 316,632 100% 447 100%

 

Management professions and related occupations 105,314 33.3% 173 38.7%

Service occupations 52,942 16.7% 60 13.4%

Sales and office occupations 82,726 26.1% 102 22.8%

Farming, fishing, and forestry occupations 5,299 1.7% 24 5.4%

Construction, Extraction, and maintenance occupations 30,935 9.8% 50 11.2%

Production, transportation and material moving occupations 39,416 12.4% 38 8.5%

• Source: U.S. Census Bureau, Census 2000 Summary File 3 

•

Table 3-22. Summary of Industries in North Dakota and Billings County, ND 2000. 

Industry North 

Dakota 

Percent 

of Total 

Billings 

Co 

Percent 

of Total 

Agriculture, forestry, fishing and hunting, and mining 25,914 8.2% 166 37.1% 

Construction 19,707 6.2% 41 9.2% 

Manufacturing 22,471 7.1% 8 1.8% 

Wholesale trade 11,764 3.7% 15 3.4% 

Retail trade 40,154 12.7% 27 6% 

Transportation and warehousing, and utilities 18,203 5.7% 12 2.7% 

Information 7,438 2.3% 8 1.8% 

Finance, insurance, real estate, and rental and leasing 18,779 5.9% 5 1.1% 

Professional, scientific, management, administrative, and 

waste management services 19,001 6% 7 1.6% 

Educational, health and social services 76,698 24.2% 39 8.7% 

Arts, entertainment, recreation, accommodation and food 

services 25,813 8.2% 60 13.4% 

Other services (except public administration) 15,588 4.9% 21 4.7% 

Public administration 15,102 4.8% 38 8.5% 

•

With the exception of two short periods, the twelve-county-area had very low average annual 

unemployment since the early 1980s. During 2005 this rate was estimated at 2.6 percent. 

Seasonal fluctuations in the unemployment rate occur in this area, with winter months typically 

showing higher unemployment rates than the rest of the year. With the boom in oil and gas, even 

the 2007 winter rate was low, staying below 3 percent (BLS 2006). 

Total personal income across the twelve counties has varied more year to year than population or 

total employment but has also climbed from 1988 to the 2005 ($1,139,000,000), with substantial 

increases occurring since 2000. Proprietors income which was 43 percent of total income during 

1970, fell to 20 percent by 2005. Much of this can be explained by the decrease in farm 

proprietors income which fell from 25 percent of total during 1970 to 6 percent during 2005 

(BEA REIS 2005). 

Aggregate average earnings per job in the twelve counties was lower than state and national 

averages. After adjusting wages for inflation, it is notable that average wages per job were also 

lower in 2005 ($30,248) than during 1970 ($30,988). On the other hand, inflation adjusted per 
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capita personal income was higher during 2005 ($29,151) than during 1970 ($16,683). Much of 

the explanation lies in the increase in non-labor income. Like most areas in the country, nonlabor income has grown to a larger portion of total income in the last few decades. In the twelvecounty area, this reached a maximum of roughly 45% during the early 1990s. By 2005, it had 

fallen back to approximately 34% of total income. Welfare payments remained a small portion of 

non-labor income. Consistent growth in age- related non labor income explains some of this 

change, but the major changes in dividends, interest, and rent explain the overall trend in nonlabor income growth (BEA REIS 2005). 

Project Area 

Summed for all National Forest System lands within the project area, the total preference number 

or permitted AMs is 29,125. On average over the last three years (2005-2007), ranchers who 

operate in allotments within the project area have run 26,543 AMs annually on National Forest 

System lands (see range specialist report), or 91.1% of preference. It should be noted that 

mandatory drought reductions occurred in the 2005 permitting year. 

The methods and tools described in the methodology section above were used to estimate the 

contribution that forage from NFS lands located in the N. Billings project area makes to the local 

economy as well as the contribution that all cows and calves using the NFS lands associated with 

the N. Billings allotments make to the local economy. In 2007, there were 874,000 cows and 

139,500 calves marketed in North Dakota. By first multiplying the number of cows by 12 

months and the number of calves by 8 months (March 1 – October 31) and then adding these 

together, the result is 11,604,000 animal months for marketed cows and calves across the state. 

This becomes the denominator by which the N. Billings authorized animal months are divided. 

The result of the division is that 0.00251 of the state cash receipts were produced on average 

from the federal portion of the N. Billings allotments each year between 2005-2007. When this 

portion is multiplied by the 2007 cash receipts ($741,066,000) the result is that the federal N. 

Billings grasslands produce up to $1.86 million dollars worth of cash receipts each year. To 

consider the contribution of all the animals that rely on N. Billings allotments for some of the 

year, the estimated number of cows and calves that rely on N. Billings allotments for some 

forage (5,013) is divided by the sum of marketed cows and calves for the state during 2007. This 

becomes the portion (0.00495) of the state cash receipts ($741,066,000) that relied at some point 

in the year on North Billings allotments, leading to an estimate of $3.67 Million in cash receipts 

each year. 

Table 3-23 shows the annual direct, indirect and induced, and total part and full-time jobs 

contribution based on the three-year average from 2005-2007. During 2005 drought conditions 

reduced authorized grazing below preference. The 2007 IMPLAN model for the twelve-county 

area reveals an employment multiplier of 2.07, meaning that for each direct job there is about 

one more indirect/induced job contributed or roughly two total jobs in the economy. While this is 

lower than often suggested, it is based on economic data for this area when using a 100% 

regional purchasing coefficient in IMPLAN. Considering the contribution of cash receipts from 

just the federal forage in the N. Billings area, 9 direct and 20 total part and full-time jobs are 

contributed annually. When all cows, yearlings and calves spending time on N. Billings 

allotments are considered these direct and total part-and full-time job estimates increase to 20 
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and 39, respectively As noted in the Northern Great Plains FEIS (USDA Forest Service 2001, p. 

3-10), these contributions, while small compared to either national cattle production or even the 

total cattle production of the 37 Northern Great Plains national grassland counties, are still a 

valuable component of the local economy and are especially important to the permittees who 

have developed operations based on grazing National Forest System lands. This range of 

estimates forms the basis of jobs comparisons for all alternatives in the environmental 

consequences section. 

Table 3-23 Annual part and full-time employment contribution from the N. Billings 

allotments, based on federal forage only and all cows, calves and yearlings spending any 

time on NFS lands in the project area 

Part and full-time jobs 

contributed per year (2005-

2007 average) from N. Billings 

Federal Forage (29,125 AMs) 

Part and full time jobs contributed per 

year for all cows and calves that rely 

on N. Billings Allotments at some point 

in the year (5,013 Head) 

Current - Direct 9 19 

Current – Indirect and Induced 10 20 

Current - Total 20 39 

The jobs presented in Table 3-23 represent the range of part and full-time jobs (20 to 39) 

contributed from North Billings project area each year. Considering that several permittees 

operate more than one allotment and that there are 37 individuals (including spouses, hired 

hands, and children) listed on the 60 permits for the N. Billings area, these modeled numbers 

appear reasonable.

Similar to job estimates, a range of labor income estimates attributable to the N. Billings 

allotments is provided in Table 3-24. The total labor income contributed by NFS forage alone 

and which is a result of cows and calves in the N. Billings allotments being marketed each year 

represents roughly $359,497 dollars each year. Considering the contribution of cash receipts 

from all the cows, yearlings and calves which rely on N. Billings allotments for a portion of the 

year, total labor income is estimated at roughly $708,453 per year. These estimates form the 

basis of jobs comparisons for all alternatives in the environmental consequences section. 

Table 3-24. Annual labor income ($2007) contribution from the North. Billings allotments, 

based on federal forage only and. on all cows, calves and yearlings spending any time on 

NFS lands in the project area.. 

Labor Income contributed per 

year (2005-2007 average) from 

N. Billings Federal Forage 

(29,125 AMs) 

Labor income contributed per 

year for all cows and calves that 

rely on N. Billings Allotments at 

some point in the year 

Current - Direct $88,676 $174,752 

Current – Indirect and Induced $270,819 $533,698 

Current - Total $359,497 $708,453 

Totals reflect the sum rounded estimates 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Bankhead-Jones Payments and Conservation Practice Funds 

Historically, a percentage of revenue received from N. Billings grazing fees has been distributed 

to Billings and Golden Valley Counties from the Bankhead-Jones Farm Tenant Act Fund 

(Payment Act of 7/22/1937). Under this Act, 50% of receipts from grazing fees are held by the 

Grazing Association, 25% of net receipts from grazing fees are given to the counties (USDA 

Forest Service 2001, p. 3-24) and 25% are returned to the U.S. treasury . Recent grazing rates, 

set by the US congress are a $1.35/head month. Table 3-25 displays estimates of the average 

annual receipt collected by the federal government from grazing fees for livestock run on 

National Forest System lands in the North Billings project area over the past three years, the 

average payment made to Billings and Golden Valley Counties, ND, and the Medora Grazing 

Association from Bankhead Jones Act payments. Given that a grazing association can petition to 

obtain the county’s payment for use in administration and Conservation Practice (CP) funds, up 

to 75% of gross receipts can be used for administration and CP (e.g., water developments, 

fences, noxious weed control, cultural resource surveys) purposes on the National Forest System 

unit from which they were collected (USDA Forest Service 2001, p. 3-26). For comparison, 

Billings County received $101,686 from the Payment in Lieu of Taxes program during 2008. 

Table 3-25: Average annual receipts and payments returned to project area county . 

County Average annual 

receipts 

2005-2007 

Average Bankhead 

Jones Act payments to 

Billings and Golden 

Valley Counties 2005-

2007 

Average grazing receipts 

held by the Medora GA 

2005-2007 

Billings and Golden 

Valley Counties, ND 

$39,319 $9,830 $19,659 

• Source: USFS INFRA Database 

Desired Economic Condition 

To provide for long-term sustainable management on the DPG, to build a common vision for 

national grassland resources and to demonstrate sound and practical management of grassland 

ecosystems for the multiple benefits of grassland agriculture, local communities and the rural 

economy and the public. 

Social Setting 

Land Base Overview and Settlement History -The project area is located almost entirely within 

Billings County, North Dakota with a small area located in Golden Valley County. Pages. 3-49 

through 3-51 of the Final Environmental Impact Statement for the Dakota Prairie Grasslands 

Plan (USDA Forest Service 2001), and pages 3-162 through 3-191 of the Little Missouri 

National Grassland Rangeland Assessment (USDA Forest Service 2002) provide a good history 

and overview of the social and economic setting of communities in western North Dakota, 

including Billings and Stark Counties. A summary from those documents is provided here.
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

3-168 

From 10,000 B.C. until the early-mid 1800s, human use in the area was primarily hunting and 

gathering, with some agriculture, by Native Americans. In the early 1700s, the arrival of EuroAmerican traders and the introduction of the horse started a chain of events that significantly 

changed historic human use of the plains. Bison were hunted nearly to extinction and were 

replaced with large herds of cattle. Homesteads and communities were established. By the midto late-1870s, most tribal people were forced onto reservations, while Euro-American settlers 

became established in the area. Farming and ranch operations significantly altered the once 

intact prairie grassland ecosystem. 

The federal government encouraged homesteading on the Great Plains through the 1862 

Homestead Act and similar laws; however, the soils and climate of the region made productive 

farming difficult. Western North Dakota reached its peak population in the 1920s, and by the 

end of that decade many people had left. The 1930s drought exacerbated the problems of farming 

in the arid west. 

Environmental and economic devastation led to federal action to assist people and communities 

in the Great Plains. Through several acts, the federal government repurchased land and relocated 

families. This effort to purchase lands was called the Land Utilization Program. The program 

culminated with passage of the Bankhead-Jones Farm Tenant Act in 1937, which provided 

management direction for the purchased lands. As part of the Land Utilization Program in 

western North Dakota, grazing associations were formed to integrate management of the 

purchased lands with private ranch and farm operations. 

In 1954, administration of the Land Utilization Program was transferred from the Soil 

Conservation Service to the USFS. In 1960, the US Department of Agriculture created nineteen 

national grasslands, including the Little Missouri National Grassland. These grasslands were to 

be administered under Title III of the Bankhead-Jones Act. The grassland grazing permits would 

be managed by the USFS through the already established grazing associations to help maintain 

and improve the national grasslands. The same year, the Multiple-Use Sustained-Yield Act of 

1960 was passed, which applies to national grasslands as well as national forests, calling for 

multiple use management on these lands. 

Livestock production from NFS lands on the Northern Great Plains is very important to the 

people who hold grazing permits. Overall, though, the national grasslands and forests of the 

Northern Great Plains play a minor role in the total production of cattle and sheep. Total 

production from the 37 counties in the area of influence (those counties containing or adjacent to 

National Forest System lands in the Northern Great Plains planning area) is approximately 2.2% 

of the national cattle herd size. Of the 37-county cattle production total, less than 4% of the 2.2% 

contribution to the national cattle herd is derived from the national grasslands and forests on the 

Northern Great Plains (Census of Agriculture 1992; USFS grazing records). 

Nonetheless, local ranchers with grazing permits have an interdependent relationship with the 

national grasslands and forests. The public lands grazed, under inventory permits, provide up to 

12 months of grazing while turn-in permits provide livestock forage for part of the year; with the 

permittee providing forage for the remainder of the year. Therefore, any increase or decrease in 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

3-169 

forage provided from public lands may cause adjustments in herd sizes or other factors related to 

permittees' livestock operations and affect efficient grazing use of their own lands. 

Cooperative Livestock Grazing Management - Since the National Grasslands were developed, 

the USFS and the Medora Grazing Association have cooperatively managed livestock grazing on 

the Little Missouri National Grassland in Billings and Golden Valley Counties. This 

cooperative management is outlined in a Grazing Agreement between the USFS and the Medora 

Grazing Association (Agreement last signed in 1999). The Grazing Agreement acts as the 

permit for livestock grazing on National Forest System lands within the County. The Grazing 

Agreement spells out the terms and conditions under which the Medora Grazing Association 

administers permits for individual permittees to graze livestock within an allotment. Grazing 

allotments can be, and usually are, made up of a combination of NFS, private, and state lands.

Ranchers live throughout the project area on private property surrounded and interspersed with 

National Forest System lands. A grazing association grazing permit to graze NFS lands is 

attached to what is referred to as base property, which is historically designated property on 

which a grazing preference was established as original members came into the Medora Grazing 

Association. A person must own or lease the base property to qualify for a grazing association 

grazing permit on National Forest System lands. 

According to government policy, a grazing permit is an instrument that grants the permittee the 

privilege of grazing on federal lands. It carries no rights or value, and it can’t be bought, sold, or 

used as collateral. Nevertheless, banks and real estate markets do associate real property values 

with federal grazing permits. Base property with a federal grazing permit sells for considerably 

more per acre than similar property without such a permit. (USDA Forest Service 2002, p. 3-

181, 3-182). 

The Grazing Agreement identifies the base number of livestock animal months allocated to graze 

in each allotment. These are sometimes referred to as the Preference numbers. The base figure 

can be adjusted to permit increases or reductions as approved in allotment management plans 

(Grazing Agreement p. 2). The grazing Preference is a maximum number of livestock allowed 

for a permittee; however, annual adjustments in permitted numbers are made based on resource 

conditions and trends in each allotment. These annual adjustments are negotiated between the 

USFS and the Medora Grazing Association as outlined in the Grazing Agreement. 

Ranching Lifestyles - As noted earlier, Billings County is very rural, and farming and ranching 

are important components of the economic base of the county. Additionally, farming and 

ranching lifestyles are an important and traditional culture of the county. Even people who are 

not directly involved in farming and ranching are usually indirectly involved or affected through 

their business and social lives. A general flavor of western heritage is obvious in Billings 

County, from the merchandise available in local stores to community activities such as rodeos, 4-

H, FFA (Future Farmers of America), and spring brandings.

This western heritage and culture is partly due to the expansive ranch operations in the county, 

which include operations on National Forest System lands. Large fenced allotments in the N. 

Billings project area, and other parts of the county, are conducive to maintaining a ranching 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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lifestyle where sometimes a cowboy on horseback is still the best way to check or move cattle. 

These large federal allotments can be grazed by one or several permittees running their livestock 

together depending on the allotment. Such intermingled land and livestock ownership requires 

ranchers to work closely together as well as with the USFS. 

Desired Social Condition 

The desired social condition evolves from Goals 1 and 2 of the Grasslands Plan (page 1-2 and 1-

4). These goals point out that by taking care of the ecosystem the grasslands will be able to 

provide a sustained supply of goods and services which in turn positively affects social wellbeing. 

Paraphrased, these goals identify that by ensuring sustainable ecosystems through promoting 

ecosystem health and conservation using a collaborative approach the grasslands will be able to 

provide multiple benefits to people by providing a variety of uses, values, products, and services 

for present and future generations. 

Environmental Consequences 

Direct and Indirect Effects 

Alternative 1 

Alternative 1 is the no grazing alternative for the N. Billings analysis. Pursuant to Forest Service 

Handbook (FSH) 2209.13, Section 16.24, this alternative could not be implemented until two 

years after the notification of each affected permittee (36CFR 222.4(4)(1)). Regular grazing 

would persist for two seasons following selection of this alternative. After that, all grazing on the 

North Billings allotments would cease during 2012. Table 3-26 shows how the number of 

authorized AMs, revenue, and jobs would fall to zero on NFS lands. 

Table 3-26. Proposed authorized federal animal months (reduction schedule) for the North. Billings 

allotments. 

Alternative 1 2010 2011 2012 

Federal AMs 29,125 29,125 0 

Total part and fulltime jobs contributed 

per year 

20 to 39 20 to 39 0 

Total labor income 

contributed per year 

$359,497 -

$708,453 

$359,497 – 

$708,453 

0 

Revenues (see Table 3-25) generated from grazing fees would drop to zero thus there would be 

no returns to the U.S. Treasury or funds available for Bankhead-Jones Payments or Conservation 

Practice. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Cumulative Effects 

Eventually all of the allotment management plans across the Dakota Prairie Grasslands will be 

revised to be NEPA sufficient and consistent with the Grasslands Plan. The selection of this 

alternative would impact the economic impact area in concert with all other AMP revisions. The 

cumulative impact is in part an abrupt shift of current livestock grazing occurring on national 

grasslands to private pasture and/or feeding operations, as well as an abrupt aggregate reduction 

in the number of cattle grazing in the economic impact area starting two years after notification 

of permit cancellation. This may result in a new configuration of cattle ranching operations in the 

economic impact area. Some land owners with pasture available for lease may benefit from new 

demand. 

Oil and gas exploration and extraction are expected to continue to grow in the area, and the 

employment growth in this sector will likely outpace any declines in the cattle ranching and 

farming sector and agriculture support services sectors even when considering forward and 

backward economic linkages with cattle ranching. However, cumulative impacts do mean that 

some people may retire or change to other professions. 

Social - The social impacts of terminating grazing on the North Billings allotments may include 

change of lifestyles for several permittees currently running cattle operations. Their may be a 

loss of leisure time as loss of access to graze local NFS lands may mean more time is required to 

transport livestock to distant pastures. Although an increase in social problems associated with 

unemployment is possible, the extremely low average annual unemployment rate in the area 

indicates that other work would likely be available. The fact that oil and gas production has 

grown and will likely continue to grow means that outdoor work is available in this area. This 

may moderate or negate social impacts that could result from loss of a few cattle operations. 

 

Perhaps the largest social impacts would be the relationship between the cattle ranching 

community and the USFS. This long tradition of grazing National Forest System lands would 

likely be perceived as changing for the worse. Even if resource conditions were to improve 

following implementation of proposed actions, and this spurred additional economic activity in 

the agriculture support services and recreation and tourism related sectors (e.g., hunting and bird 

watching), the net effect would likely be a negative perception of federal lands management. 

Alternative 2 

Alternative 2 represents the current grazing occurring on the 43 North Billings allotments. No 

changes are anticipated in federally authorized AMs. This means the current economic 

contributions from North Billings allotments would continue, there would be no economic 

impacts and no change to collected receipts expected from federal actions. However, under this 

alternative market factors and individual management decisions might cause unknown economic 

impacts. All information in the affected environment discussion applies to this alternative. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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This alternative would have no cumulative effect as it wouldn’t implement anything different 

then the existing condition. 

Perhaps the largest social impacts would be the relationship between the cattle ranching 

community and the USFS. This long tradition of grazing National Forest System lands may be 

perceived as enduring successfully. 

Alternative 3 

Alternative 3 represents collaborative implementation of the demonstration project agreement. 

Under this alternative an adaptive management approach is taken to address resource issues in 

the project area. Provision number 9 from the Demonstration Project proposal states that, “There 

will be no cuts in permitted AUMs without monitoring showing that livestock are principally 

responsible for not meeting the desired condition, and that the cuts are the only ecologically 

practicable and economically feasible means available for meeting the desired condition.” 

Under this alternative there may be a small increase in economic activity in the agriculture 

support sector, possibly leading to one or two additional jobs per year in the twelve-county area. 

These jobs would be based on continued funding for range improvement (such as drilling water 

wells, installing pipeline, fencing etc.) The projected annual level of investments in grazing 

infrastructure coming from Conservation Practice funds, permittees, USFS watershed funds and 

USFS wildlife funds are estimated at $47, 917. This money is multiplied with the response 

coefficients for the agriculture support activities sector in the twelve-county area. Table 3-27 

shows that in general, economic and job impacts from this increased investment in new 

management practices described in this alternative are expected to be small increases above 

current NFS forage and total contribution levels. 

Table 3-27. Annual part and full-time employment and labor income ($2007) contributions 

from the federal forage on N. Billings allotments, if Alternative 3 is implemented. Changes or 

impacts from the current contributions are indicated in parentheses. 

Totals reflect the sum of rounded estimates 

Alternative 3 stable grazing, 

increased investment 

2010 2011 2012 

Direct part and full-time jobs 

contributed per year 

11 (+2) 11 (+2) 11 (+2) 

Indirect and induced part and full-time 

jobs contributed per year 

11 (+1) 11 (+1) 11 (+1) 

Total part and full-time jobs 

contributed per year 

22 (+2) 22 (+2) 22 (+2) 

Direct labor income contributed per 

year 

$136,943 

(+$48,267) 

$136,943 

(+$48,267) 

$136,943 

(+$48,267) 

Indirect and induced labor income 

contributed per year 

$277,958 

(+$7,139) 

$277,958 

(+$7,139) 

$277,958 

(+$7,139) 

Total labor income contributed per 

year 

$414,902 

(+$55,405) 

$414,902 

(+$55,405) 

$414,902 

(+$55,405) 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

3-173 

Table 3-28. The economic impacts of alternative 3, considering the economic contribution of 

all cows, yearlings, and calves that spend time on North Billings allotments at some point in 

the year. Changes from the current contributions are indicated in parentheses. 

Alternative 3 stable grazing, 

increased investment 

2010 2011 2012 

Direct part and full-time jobs 

contributed per year 

20 (+1) 20 (+1) 20 (+1) 

Indirect and induced part and full-time 

jobs contributed per year 

20 (0) 20 (0) 20 (0) 

Total part and full-time jobs 

contributed per year 

41 (+2) 41 (+2) 41 (+2) 

Direct labor income contributed per 

year 

$223,018 

(+$48,266) 

$223,018 

(+$48,266) 

$223,018 

(+$48,266) 

Indirect and induced labor income 

contributed per year 

$540,836 

(+$7,139) 

$540,836 

(+$7,139) 

$540,836 

(+$7,139) 

Total labor income contributed per 

year 

$763,858 

(+$55,405) 

$763,858 

(+$55,405) 

$763,858 

(+$55,405) 

Totals reflect the sum of rounded estimates 

If reductions in authorized AMs were decided upon through the process of adaptive 

management, there might eventually be some negative impacts. Further AM adjustments would 

reduce receipts to the US treasury, counties and grazing association would decrease from current 

levels. However, because its unknown if, when, or what those adjustments might be it is not 

possible to predict what those economic effects may be on jobs and income. 

The grazing fees revenue generated by this alternative would be same as the existing condition 

thus funds available for Bankhead-Jones payments, conservation practices, and the return to the 

U.S. Treasury would be the same. 

The only social impacts expected with this alternative are improved relationships between the 

USFS, the Medora Grazing Association and its permittees as they work together to make suitable 

revisions. 

Cumulative Effects 

Eventually all of the allotment management plans across the Dakota Prairie Grasslands will be 

revised to be NEPA sufficient and consistent with the Grasslands Plan. The selection of this 

alternative would impact the economic impact area in concert with all other AMP revisions. 

Considering that the prospect of grazing reductions under this alternative is unclear until 

additional monitoring results are evaluated there are two possible cumulative effect scenarios. 

If no reduction are needed, this alternative would have no cumulative effect as it wouldn’t 

implement anything different then the existing condition. 

Perhaps the largest social impacts would be the relationship between the cattle ranching 

community and the USFS. This long tradition of grazing National Forest System lands may be 

perceived as enduring successfully. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

3-174 

If significant reductions are eventually needed, the cumulative impact is in part an abrupt shift of 

current livestock grazing occurring on national grasslands to private pasture and/or feeding 

operations, as well as an abrupt aggregate reduction in the number of cattle grazing in the 

economic impact area starting two years after notification of permit cancellation. This may result 

in a new configuration of cattle ranching operations in the economic impact area. Some land 

owners with pasture available for lease may benefit from new demand. 

Oil and gas exploration and extraction are expected to continue to grow in the area, and the 

employment growth in this sector will likely outpace any declines in the cattle ranching and 

farming sector and agriculture support services sectors even when considering forward and 

backward economic linkages with cattle ranching. However, cumulative impacts do mean that 

some people may retire or change to other professions. 

Social - The social impacts of terminating grazing on the North Billings allotments may include 

change of lifestyles for several permittees currently running cattle operations. Their may be a 

loss of leisure time as loss of access to graze local NFS lands may mean more time is required to 

transport livestock to distant pastures. Although an increase in social problems associated with 

unemployment is possible, the extremely low average annual unemployment rate in the area 

indicates that other work would likely be available. The fact that oil and gas production has 

grown and will likely continue to grow means that outdoor work is available in this area. This 

may moderate or negate social impacts that could result from loss of a few cattle operations. 

 

Alternative 4 

Under Alternative 4, authorized use is equal to the allotment initial estimated carrying capacity 

which is expressed in AUMs. Since the economic analysis uses AMs for its calculations the 

AUMs under alternative 4 were converted back to AMs. If under this alternative there is a 

reduction those reductions would be limited to 10 percent per year for each of the affected 

allotments. The result is that reductions will be phased in over a five year period and the total 

reductions proposed to federal AMs would be less than 10 percent every year. 

Tables 3-29 and 3-30show the contributions and (impacts) for the next five years for part and 

full-time jobs as well as labor income based on the federal forage only and on all cows, calves 

and yearlings spending any time on NFS lands in the project area. These estimates include 

additional infrastructure investments made, where there may be a small increase in economic 

activity in the agriculture support sector, possibly leading to one or two additional jobs per year 

in the twelve-county area. The projected annual level of investments in grazing infrastructure 

coming from Conservation Practice funds, permittees, USFS watershed funds and USFS wildlife 

funds are estimated at $47, 917. This money is multiplied with the response coefficients for the 

agriculture support activities sector in the twelve-county area. Taken together, the estimated 

changes in the number total of part and full-time jobs range from no change in 2010 to a loss of 

six jobs in 2014. The estimated change in the labor income from the current condition ranges 

from +$20,175 during 2010, to minus $87,702 during 2014. The explanation for why there is an 
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increase in labor income estimates for 2010 is that the new investments outweigh the reductions 

the first year. 

Table 3-29 and 3-30. Annual part and full-time employment and labor income ($2007) 

contributions from the federal forage and. on all cows, calves and yearlings spending any time on 

NFS lands in the project area. Changes from the current conditions are indicated in parentheses. 

Table 3-29. Annual part and full-time employment and labor income ($2007) contributions 

from the federal forage on N. Billings allotments, and (impacts) if Alternative 4 is 

implemented. Changes from the current contributions are indicated in parentheses 

Alternative 4 

reduced 

grazing with 

increased 

investments 

2010 2011 2012 2013 2014 

Direct part 

and full-time 

jobs 

contributed 

per year 

10 (+1) 10 (+1) 9 (0) 9 (0) 9 (0) 

Indirect and 

induced part 

and full-time 

jobs 

contributed 

per year 

10 (0) 9 (-1) 9 (-1) 8 (-2) 8 (-2) 

Total part and 

full-time jobs 

contributed 

per year 

20 (0) 18 (-2) 18 (-2) 18 (-2) 18 (-2) 

Direct labor 

income 

contributed 

per year 

$128,252 

(+$39,576) 

$122,577 

(+$33,901) 

$119,917 

(+31,241) 

$119,119 

(+$30,443) 

$119,030 

(+$30,354) 

Indirect and 

induced labor 

income 

contributed 

per year 

$251,418 

(-$19,401) 

$234,085 

(-$36,734) 

$225,960 

(-$44,859) 

$223,523 

(-$47,296) 

$223,252 

(-$47,567) 

Total labor 

income 

contributed 

per year 

$379,672 

(+20,175) 

$356,664 

(-$2,833) 

$345,879 

(-$13,618) 

$342,643 

(-$16,854) 

$342,284 

(-$17,213) 

Totals reflect the sum of rounded estimates 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Table 3-32. Annual part and full-time employment and labor income ($2007) contributions 

from the federal forage on N. Billings allotments, and (impacts) if Alternative 4 is 

implemented based on the economic contribution of all cows, yearlings and calves that 

spend time on North Billings allotments at some point in the year. 

Alternative 4 

reduced 

grazing with 

increased 

investments

2010 2011 2012 2013 2014 

Direct part 

and full-time 

jobs 

contributed 

per year 

19 (0) 17 (-2) 17 (-2) 17 (-2) 17 (-2) 

Indirect and 

induced part 

and full-time 

jobs 

contributed 

per year 

18 (-2) 17 (-3) 17 (-3) 16 (-4) 16 (-4) 

Total part and 

full-time jobs 

contributed 

per year 

37 (-2) 35 (-4) 33 (-6) 33 (-6) 33 (-6) 

Direct labor 

income 

contributed 

per year 

$205,893 

(+$31,141) 

$194,709 

(+$19,957) 

$189,466 

(+$14,714) 

$187,893 

(+$13,141) 

$187,719 

(+$12,967) 

Indirect and 

induced labor 

income 

contributed 

per year 

$488,534 

(-$45,164) 

$454,377 

(-$79,321) 

$438,366 

(-$95,332) 

$433,563 

(-$100,135) 

$433,029 

(-$100,669) 

Total labor 

income 

contributed 

per year 

$694,430 

(-$14,023) 

$649,089 

(-$59,364) 

$627,835 

(-$80,618) 

$621,459 

(-$86,994) 

$620,751 

(-$87,702) 

Totals reflect the sum of rounded estimates 

Alternative 4 would see a reduction in grazing fees and therefore fewer Bankhead-Jones and 

conservation practice funds would be available. The U.S. Treasury would also see a reduction in 

funds paid into the treasury. Table 3-31 shows what those reduction may look like based on a 

current Congressional set rate of $1.35 / head month. 

Table 3-31. Affects of Alternative 4 on grazing fee collections. 

Alternative 4 2010 2011 2012 2013 2014 and each 

year in the 

future 

Grazing Fees 

collected from N. 

Billings 

$39,319 $32,933 $31,779 $31,415 $31,393 
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Alternative 4 is also an adaptive alternative so if further reductions in authorized AMs were 

necessary there might eventually be some additional negative impacts past 2014, and the receipts 

to the US treasury, counties and grazing association would decrease from current levels. The 

amount is unknown because future possible reductions, if any, are unknown. 

Cumulative Effects 

The cumulative effects of this alternative include a shift of some livestock grazing from federal 

to private lands and a possible reduction in herd sizes if the federal graze can’t be made up for by 

private graze and /or feeding. This may lead to a new configuration of cattle ranching operations 

in the economic impact area. In other cases the increased cost of renting private graze and/or 

feed for the current herd size could possibly lead to a smaller number of cattle ranching 

operations. However, cumulative impacts do mean that some people may retirement or change to 

other professions. 

Oil and gas exploration and extraction are expected to continue to grow in the area, and the 

employment growth in this sector will likely outpace any declines in the cattle ranching and 

farming sector and agriculture support services sectors even when considering forward and 

backward economic linkages with cattle ranching. 

The social impacts of reducing grazing on the N. Billings allotments may include change of 

lifestyles for several permittees currently running cattle operations. Their might be a loss of 

leisure time as loss of access to graze local national grasslands may mean more time is required 

to transport livestock to distant pastures. Although an increase in social problems associated with 

unemployment is possible, the extremely low average annual unemployment rate in the area 

indicates that other work would likely be available. The fact that oil and gas production has 

grown and will likely continue to grow means that outdoor work is available in this area.. 

Perhaps the largest social impacts would be the relationship between the cattle ranching 

community and the USFS. This long tradition of grazing National Forest System lands would 

likely be perceived as changing for the worse. 

Global Warming 

Introduction 

Climate change is a topic of international concern as are activities that have a potential to affect 

climate either positively or negatively. The following discussion focuses on two questions 

related to climate change and the proposed project. First what is the effect of the proposed 

project on global climatic change? Second, what are the existing or potential effects of climatic 

change on the proposed project? 

The proposed action is to continue grazing livestock in the analysis area located on the Medora 

Ranger District of the Dakota Prairie Grasslands. The timeframe associated with this action is 10 

to 15 years. Livestock’s connection to climate change is both adverse and beneficial. Livestock 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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through the rumination and manure decomposition processes produce methane gas which is a 

greenhouse gas. However, according to Oesterheld and McNaughton, (1990) grazing likely 

stimulates, among other things, plant photosynthetic rates, relative growth rates, total production, 

litter or standing dead accumulation, assuming proper livestock stocking levels and sufficient 

time for plant recovery. In other words properly managed herbivory is an important element in 

maintaining a healthy grassland ecosystem, which affects climate through carbon sequestration. 

Under the proposed project approximately 4,000 to 5,200 head of livestock would be authorized 

to graze on the Medora Ranger District under Allotment Management Plans (AMPs) which span 

10 to 15 years. Livestock under this proposal represent .00004 to .00052 percent of the EPA 

reported (http://www.epa.gov/methane/rlep/index.html) 100 million cattle located in the United States 

of America (U.S.) and .0000033 to .0000043 percent of the 1.2 billion large ruminants 

worldwide. Grazing on federal lands under this project would be in concert with an unknown 

number of livestock grazing on adjacent private and state lands. 

Affect Of Proposed Action On Global Climate Change 

Livestock affect climate change through the production of methane gas (CH4) which is produced 

as part of normal digestive processes in animals. During digestion, microbes resident in an 

animal’s digestive system ferment food consumed by the animal. This microbial fermentation 

process, referred to as enteric fermentation, produces CH4 as a by-product, which can be exhaled 

or eructated by the animal. Methane is a potent greenhouse gas which is 21 times more effective 

at trapping heat in the atmosphere than carbon dioxide on a kilogram per kilogram basis (Wood 

et. al, 1998). 

According to the EPA’s April 15, 2008 Inventory of U.S. Greenhouse Gas Emissions and Sinks 

1990-2006 Final Report , the agricultural sector was responsible for emissions of 454.1 

teragrams of carbon dioxide equivalent (Tg CO2 Eq.), or 6 percent of total U.S. greenhouse gas 

emissions (EPA, 2008). Methane (CH4) and nitrous oxide (N2O) were the primary greenhouse 

gases emitted by agricultural activities. Methane is the primary greenhouse gas associated with 

this project proposal. 

The EPA (2008) reports that total livestock CH4 emissions from enteric fermentation was 126.2 

Tg CO2 Eq in 2006. Cattle, due to their large population, large size, and particular digestive 

characteristics, account for the majority of CH4 emissions from livestock in the United States. In 

2006 beef cattle accounted for 71 percent (89.2 Tg CO2 Eq.) of the CH4 produced from enteric 

fermentation. Emissions from dairy cattle in 2006 accounted for 24 percent, and the remaining 

emissions were from horses, sheep, swine, and goats. 

Manure management from all livestock sources produced 41.4 Tg CO2 Eq of methane in 2006. 

Beef cattle accounted for six percent (2.5 Tg CO2 Eq) of that total with dairy cattle, swine and 

other livestock classes making up the remainder. Most of the methane production associated with 

manure is from concentrated sources such as feed lots were manure is stored creating the 

anaerobic conditions necessary for the production of methane from manure. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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In summary the agricultural sector in 2006, was responsible for emissions of 454.1 Tg CO2 Eq., 

or 6 percent of total U.S. greenhouse gas emissions. Of that total 91.7 Tg CO2 Eqs of methane 

are produced from enteric fermentation and manure management attributed to beef cattle. Thus, 

beef cattle are responsible for the production of 20 percent of the 6 percent of greenhouse gases 

generated from agriculture sources. Stated another way beef cattle produce approximately1.2 

percent of U.S greenhouse gases generated by the agricultural sector. 

DIRECT AND INDIRECT EFFECTS 

It is a given that livestock associated with project proposal will in fact produce methane through 

rumination and their excretions. Methane generated from manure is generally associated with 

situations where it accumulates and is stored, such as in feed lots or dairy farms. Methane 

production from beef cattle manure within the project area, however, is considered to be minimal 

because the cattle graze on open range. Their manure is subject to the effects of the elements, is 

not concentrated, and there is a lack of anaerobic conditions which are necessary for methane 

production. 

Enteric fermentation is the primary source of methane produced by beef cattle. Total methane 

production from the EPA reported 100 million U.S. cattle accounts for approximately 1.2 percent 

of the green houses gasses produced in the U.S. On a percentage basis the 5200 head of cattle 

that currently utilize the project area would account for .0000006 percent of the produced 

agricultural greenhouse gases. 

Alternative 1 -, livestock grazing would be terminated two years after the selected alternative is 

implemented. So initially there may be no reduction in the methane produced, it depends on the 

permittees and how they decide to manage their herds. After the two year grace period no cattle 

would be grazed on the federal lands associated with this project. This may or may not lead to a 

reduction in methane production. The permittees may maintain their existing herd numbers on 

their own or rented properties. They may reduce a certain portion of their herds or get out of 

livestock production entirely. It is impossible to predict what each permittee would do. In general 

terms it is possible to say that under this alternative methane production, produced by cattle in 

this project area would range from zero to what is currently produced. 

A possible indirect effect of removing livestock from lands in the project area relates to potential 

effects to the plant communities and their abilities to serve as carbon sinks. Although not held by 

all, it is generally accepted that in herbivory evolved systems grazing is needed to maintain the 

health of associated plant communities. The cessation of grazing in the project area may result in 

increases in plant community health in the sort term but eventually these communities become 

decedent and decline. As the vigor of a plant community decreases so does it’s ability to 

effectively sequester carbon. 

Alternative 2 would maintain current cattle umbers so the status quo would be maintained in 

relation to methane produced from livestock in the project area. 

Alternative 3 would initially maintain existing cattle numbers. However, if after implementation 

of proposed management activities monitoring indicated a need for livestock reductions methane 

production may decreased. It is currently not possible to predict if methane production would be 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

3-180 

reduced if cattle numbers were reduced because the permittee may chose to run the reduced 

cattle numbers on his private or rented lands. 

Alternatives 4 would reduce authorized AUMs which may result in 12 to 23 percent reductions 

in cattle numbers which may result in decreased methane production. Again, it depends on what 

the permittee decides to do with the cattle removed from the federal lands in the project area. 

Beneficial Effects - 

The Little Missouri Grassland (LMG) is a part of the Northern Great Plains (NGP), which 

evolved under the herbivory of ungulates such as bison, deer, elk, and antelope. As such the 

native plant communities associated with the NGP are adapted to herbivory, in other words it is a 

grazing ecosystem. Livestock have, for the most part, replaced the large herds of wild ungulates 

on the grasslands but as identified in the introduction they have a role in maintaining healthy 

grasslands. In addition to the beneficial effects of grazing identified in the introduction Olff and 

Ritchie (1998) note that large grazing herbivores, such as cattle, often play a role in increasing 

plant diversity on productive grasslands, again assuming correct stocking rates. 

Information from the EPA website (http://www.epa.gov/methane/rlep/index.html) states that 

properly managed grazing “...can reduce atmospheric concentrations of carbon dioxide through 

the mechanism of soil carbon sequestration on grazing lands. As plants grow, they remove 

carbon dioxide from the atmosphere. Even though a large portion of the plant material is 

harvested by grazing cattle, through good management residues accumulate and increase the 

amount of organic matter in the soil. Some of this organic matter will remain in the soil or plant 

root system for long periods of time instead of being released back into the atmosphere as carbon 

dioxide”.

In summary, properly stocked and managed livestock have a beneficial effect in helping to 

maintain the health of the grasslands. Healthy grasslands in turn play a major role in the 

sequestration of carbon. Scurlock and Hall (1998) note that the terrestrial biosphere absorbs 

quantities of carbon dioxide amounting to about one-third of the total emissions from fossil fuels. 

The terrestrial biosphere includes the grasslands whose below ground allocation carbon to roots 

and soil organic may account for a significant fraction of this carbon sink. They go on to say that 

“Overall...naturally occurring grass ecosystems may be responsible for a substantial proportion 

(as much as 20% or more) of total terrestrial [carbon] production” 

CUMULATIVE EFFECTS 

Alternative 1 – No Action- would likely see a reduction of methane produced from livestock. 

However, because the removed livestock may be replaced on private land it isn’t possible to say 

with absolute certainty that this alternative would result in a reduction of produced methane. 

Also the loss of herbivory in the project area may have a cumulatively adverse effect on climatic 

change due to plant communities reduced ability to sequester green house gases. Even if all 

5,200 cattle were removed and not replaced it is difficult to say that the reduction of .0000006 

percent of methane produced by these cattle would have a cumulatively significant effect on 

agricultural methane produced in the United States. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Alternative 2 would maintain the status quo in methane produced by beef cattle because the total 

number of head of livestock would be maintained. Alternative 3 would also maintain the status 

quo but may, in the future, see an unknown reduction in cattle numbers. However, because 

possible reductions are monitoring based it is currently not possible to predict if any reduction 

would occur. Maintaining the approximately 5,200 head of livestock in the project area would 

maintain the status quo in methane production therefore both alternatives would not have a 

cumulatively significant impact on methane produced by cattle in the United States. 

Alternative 4 would ideally see a decline in methane production assuming the reduced number of 

livestock are not replaced on private lands. However, the reduction of produced methane would 

be infinitesimally small in context of agriculturally produced methane attributed to cattle in the 

United States and therefore not cumulatively significant. 

The proposed project under all alternatives has little if any cumulative effect on the amount of 

agriculturally produced greenhouse gases in the U.S. and thus climate change, therefore, this 

issue is dropped from further consideration in this analysis. 

Affect Of Climate Change On Proposed Projects 

According to information provided by the Environmental Protection Agency’s (EPA) Climate 

Change website (http://www.epa.gov/climatechange/) there has been a warming trend of 1.0 to 

1.7 degrees Fahrenheit (F) between 1906 and 2005. Based on projections made by the 

Intergovernmental Panel on Climate Change and results from the United Kingdom Hadley 

Centre’s climate model (HadCM2), a model that accounts for both greenhouse gases and 

aerosols, by 2100 temperatures in North Dakota could increase by 3°F in summer (with a range 

of 1-5°F) and 4°F in the other seasons (with a range of 2-7°F). Precipitation is estimated to 

increase by 5% in spring (with a range of 0-10%), 10% in summer (with a range of 5-20%), 15% 

in fall (with a range of 5-25%), and 25% (with a range of 10-40%) in winter (EPA, 1998). 

Another factor associated with climate change is the effect of increased CO2. According to the 

EPA article “Climate Change-Health and Environmental Effects” increased levels of CO2 can act 

as a fertilizer and enhance the growth of crops. Morgan in his presentation of “Grassland 

Ecosystem Responses to Climate Change” identifies that the CO2 fertilization effect would tend 

to favor cool season (C3) grasses but as temperature increases the fertilization effect would favor 

warm season (C4) grasses. In both situations forage production would be increased. 

The EPA acknowledges that predicting climate change at a regional scale is less reliable then 

global predictions. Therefore, it is difficult to predict what effect climate change would have on 

the Little Missouri National Grasslands (LMNG) and in turn the proposed project. If predictions 

of increased moisture, temperature, and CO2 are correct forage productivity may increase on the 

LMNG which is turn may increase the carrying capacity of the land in regards to both livestock 

and wildlife. However, within the timeframe of this proposal (10-15 years) it may not be possible 

to discern any noticeable changes in either species composition changes or increased 

productivity due to the effects climatic change. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Short-term Use/ Long term productivity 

NEPA requires consideration of “the relationship between short-term uses of man’s environment and 

the maintenance and enhancement of long-term productivity” (40 CFR 1502.16). As declared by the 

Congress, this includes using all practicable means and measures, including financial and technical 

assistance, in a manner calculated to foster and promote the general welfare, to create and maintain 

conditions under which man and nature can exist in productive harmony, and fulfill the social, 

economic, and other requirements of present and future generations of Americans (NEPA Section 

101). 

Alternative 1, while not having short-term uses, could result in a downward trend on long-term (>15 

years) productivity. Northern Great Plains mixed grass prairie evolved with herbivory and fire as 

disturbances that promote species diversity. Without herbivory, other disturbances such as mowing 

or prescribed burning would be required to maintain long-term productivity of plant and wildlife 

species. Alternative 2 could have long-term loss of productivity relative to the effects of invasive 

grass species invading and replacing native grass communities. This alternative may also see adverse 

long term effects in woody draws and riparian areas, and possible sharp-tailed grouse populations 

due to the low amount of herbaceous high structure which would likely be maintained under this 

alternative. Alternative 3 proposes a series of different management actions to address resource 

concerns but maintains current stocking levels. Potential long term effects of Alternative 3 are 

similar to Alternative 2. Alternative 4 utilizes a variety of range management actions plus sets 

authorize used at initial estimated carrying capacity and adjusts for livestock weight. This alternative 

over the long term should improve the amount of high herbaceous structure and condition of riparian 

areas. It should also slow the advance of invasives grasses. 

Both Alternatives 3 and 4 are adaptive based so if initial actions do not solve the resource concern 

other actions are available address the concern. 

Unavoidable Adverse Effects 

There are no completely unavoidable adverse effects from any of the alternatives. The only 

potentially unavoidable effect is the concern over advancing invasive grasses. The complexities of 

intermingled management, politics, size of invaded areas, disagreement over appreciate techniques to 

address invasive grasses, etc. makes the effective treatment of invasive grasses difficult. So in the 

term of this project’s 10-15 years, a possible unavoidable effect may be increases in the amount of 

invasive grasses in the project area. 

Irreversible/Irretrievable 

Irreversible commitments of resources are those that cannot be regained, such as the extinction 

of a plant or wildlife species or the removal of oil and gas. Irretrievable commitments are those 

that are lost for a period of time such as the temporary loss of timber productivity in forested 

areas that are kept clear for use as a power line rights-of-way or road. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Existing invasive grasses are having an irretrievable effect on native plant communities. The 

alternatives would have varying degrees of potential effects on the spread of these grasses ranging 

from no effect under Alternatives 1 and 2, to some effect under Alternative 3 with the best potential 

results under Alternative 4 which is a potential slowing action. Given enough time and the right 

conditions existing invasive grasses might effect native communities to a point their restoration is so 

difficult that it approaches an irreversible lose of native communities. 

Other Required Disclosures 

NEPA at 40 CFR 1502.25(a) directs “to the fullest extent possible, agencies shall prepare draft 

environmental impact statements concurrently with and integrated with ...other environmental 

review laws and executive orders.” 

The USFS has consulted with the US Fish and Wildlife Service to ensure compliance with the 

Endangered Species Act, and with the North Dakota State Historic Preservation Office to ensure 

compliance with the National Historic Preservation Act. 

The project is consistent with Executive Order 12898, issued in 1994, which ordered federal agencies 

to identify and address the issues of environmental justice (i.e. adverse human health and 

environmental effects of agency programs that disproportionately impact minority and low income 

populations). The Environmental Justice effects analysis is located in the Project File. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

Chapter 4 

List of Preparers 

This chapter identifies the individuals on the North Billings County Allotment 

Management Plan Revisions interdisciplinary team. 

NAME TITLE BACKGROUND ROLE(s) 

Arden Warm Wildlife Biologist B.S. Wildlife Biology 

20 Years Experience 

IDT member, Data 

Collection, Wrote 

Wildlife Report 

Jack Dahl Range Management 

Specialist 

A.S. Wildlife Management 

B.S. Animal & Range Science 

with Range Emphasis 

M.S. Range Science 

11 Years Experience 

IDT member, Data 

Collection ,Range 

Analysis, co-author 

Range Report 

Jeff Adams National 

Environmental 

Policy Act 

Specialist 

B.S Wildlife 

Management/Forestry 

M.S. Natural Resource 

Management and Planning 

29 Years Experience 

IDT Leader, Ensured 

NEPA compliance, 

Writer /Editor, Wrote 

Global Warming 

Report 

Joe 

Washington 

Botanist B.S. Geology 

M.S. Range Science 

30 years experience 

IDT member, Data 

Collection, Woody 

Draw and Seral Stage 

Analysis, Wrote 

Botany Report 

Keith 

Stockman 

Acting Regional 

Economist 

B.A. Economics, 

M.S. Environmental Science, 

Ph.D. Applied Wildland Econ. 

14 years experience 

Ad hoc IDT member, 

wrote grazing 

Economics report. 

Mark 

Gonzalez 

Grasslands 

Hydrologist 

B.A. Geology, 

M.S. Geography, 

M.S. Land Resources, 

Ph.D. Earth & Planetary 

Science, 

27 years experience. 

IDT member, Data 

Collection, Wrote 

Watershed Report. 

Mervin 

Floodman 

Archeologist B.S Archeology 

M.S. Archeology 

35 years experience 

Ad hoc IDT member, 

wrote Archeologist 

report. 

Nickole Dahl Range Management 

Specialist 

B.S. Animal & Range Science 

with Science Emphasis 

11 years experience 

Co-IDT leader, Data 

Collection, Range 

Analysis, co-author 

Range Report 

The Forest Service consulted the following during the development of this environmental 

impact statement: 

Board of Directors Medora Grazing Association 

Jeff Printz Natural Resource Conservation Service 

John Hendrickson USDA Agricultural Research Service. 

Permittees associated with each of the 43 allotments. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

Distribution of the Draft Environmental Impact Statement 

This draft environmental impact statement has been distributed to those who provided 

comments during the scoping process, grazing permittees, and to individuals or 

organizations who specifically requested a copy of the document. Notices of Availability 

were published in the Federal Register and in the Bismarck Tribune of Bismarck, North 

Dakota. The draft EIS was also placed on the internet at 

Individuals To Whom the DEIS Was Sent

Jerry Anheluk Roy Krivoruchka 

James Arthaud James Lowman 

Dale Baranko Kasey Malkowski 

Orest Baranko Pete Malkowski 

Don Basaraba Roger Malkowski 

Roy Basaraba Pat Marx 

Edwin Egly William Meyer 

Johnny Ewoniuk Randy Mosser 

Harris & Ron Goldsberry Bill O'Brien 

Marvin Gregory Dennis O'Brien 

Ray Gregory Tim O'Brien 

Ray Haverluk Tom Osdachuk 

Dwight Hecker Cody & Julie Reis 

Bertram Johnson Dave Rodakowski 

Ken Johnson Les Simnioniw 

Larry Johnson Don Stigen 

Kevin Kanski Gus & Cody Tachenko 

Albert & Pat Kessel Steve Tachenko 

Kevin Kessel Allan Thompson 

Tony Kessel Joe & Emily Vesey 

Roger Klym Tim Wyse 

Kurt Kordon Cecilia Yourk 

Mark Kordon 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

Agencies and Organizations To Whom the DEIS Was Sent

Billings County Commissioners 

Badlands Conservation Alliance 

Golden Valley Board of County Commissioners 

Little Missouri Grazing Association 

Medora Grazing Association 

ND Chapter of the Society for Range Management 

North Dakota Game and Fish Department 

North Dakota Department of Health 

North Dakota Parks and Recreation Department 

Slope County Commissioners 

Teddy Roosevelt Group of Sierra Club 

U.S. Environmental Protection Agency, Denver, CO 

U.S. Environmental Protection Agency, Washington D.C. 

The following agencies were supplied an executive summary of the project and web site 

address for the location of the DEIS. 

Advisory Council on Historic Preservation, Washington D.C. 

USDA APHIS PPD/EAD, Riverdale MD 

Natural Resource Conservation Service, Washington D.C. 

USDA, National Agricultural Library, Beltsville, MD 

U.S. Coast Guard, Washington D.C. 

U.S. Department of Energy, Washington D.C. 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

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Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

Index-1 

Index 

adaptive management, iii, xviii, xix, xxi, 

xxv, Chapter 1, pages 5, 10, 13, 14, 

21, Chapter 2, pages 15, 17, 18, 19, 

20, 24, 27, Chapter 3, pages 11, 12, 

80, 83, 100, 109, 111, 124, 139, 140, 

149, 150, 156, 157, 158, 172, 173 

animal month(s), xxii, xxiii, xxiv, 

Chapter 1, pages 17, 27, 28, Chapter 

2, pages 19, 20, Chapter 3, pages 52, 

82, 159, 173 

AMs, xxii, xxiii, xxiv, Chapter 2, pages 

26, 27, 28, Chapter 3, pages 9, 12, 13, 

16, 17, 18, 19, 20, 21, 22, 23, 24, 25, 

26, 27, 28, 29, 30, 31, 32, 33, 34, 35, 

36, 37, 38, 39, 40, 41, 42, 43, 44, 45, 

46, 47, 48, 49, 50, 51, 52, 53, 74, 75, 

76, 77, 78, 79, 80, 81, 82, 83, 100, 

159, 160, 165, 166, 170, 171, 173, 

174, 177 

animal unit equivalent, Chapter 1, page 

11 

AUEs, Chapter 1, pages 11, 17 

Animal Unit Months (AUMs), xx, xxii, 

xxiii, xxiv, Chapter 1, page 18, 

Chapter 2, pages 9, 16, 17, 26, 27, 28, 

Chapter 3, pages 11, 12, 13, 17, 33, 

37, 38, 39, 40, 41, 42, 43, 44, 45, 46, 

47, 48, 49, 50, 51, 52, 53, 74, 75, 76, 

77, 78, 79, 80, 81, 82, 83, 111, 112, 

113, 114, 115, 116, 117, 118, 119, 

120, 121, 122, 123, 124, 172, 174, 180 

carrying capacity, xxv, xxvii, Chapter 2, 

pages 18, 24, 26, Chapter 3, pages 11, 

12, 13, 35, 37, 38, 39, 40, 41, 42, 43, 

44, 45, 46, 47, 48, 49, 50, 51, 52, 75, 

76, 77, 78, 79, 80, 84, 96, 100, 101, 

103, 104, 105, 106, 107, 108, 109, 

111, 112, 113, 114, 115, 116, 117, 

118, 119, 120, 121, 122, 123, 124, 

125, 139, 140, 141, 142, 147, 149, 

150, 157, 158, 159, 174, 181, 182 

Council on Environmental Quality 

(CEQ), xvii, Chapter 1, pages 13, 

Chapter 2, pages 4, 13, 14, 21 Chapter 

3, pages 3, 4 

deferred rotation, Chapter 3, pages 13, 

18, 21, 25, 26, 27, 28, 29, 30, 32, 34, 

35, 36, 41, 42, 43, 45, 46, 75, 77, 78, 

79, 81, 83, 101, 103, 104, 105, 107, 

108, 109, 111, 112, 113, 114, 115, 

116, 117, 118, 120, 121, 122, 123, 124 

early seral stage, xxvii, Chapter 3, pages 

26, 142, 144, 146, 147, 148, 150, 151, 

152 

ecological site, Chapter 3, pages 12, 13, 

73, 143 

ephemeral stream(s), xv, Chapter 3, 

pages 2, 57, 67, 72 

erosion, xvi, Chapter 1, pages 2, 5, 

Chapter 3, pages 2, 5, 23, 56, 57, 60, 

61, 62, 64, 65, 66, 68, 69, 72, 73, 82, 

84, 88, 99, 142, 146 

habitat, xvi, xviii, Chapter 1, pages 5, 

Chapter 2, pages 3, 6, 7, 9, 10, 11, 13, 

14, Chapter 3, pages 5, 6, 7, 67, 72, 

74, 86, 87, 91, 96, 97, 98, 101, 102, 

103, 109, 111, 112, 113, 123, 125, 

127, 129, 130, 132, 137, 140, 143, 

145, 152, 153, 154, 155, 156, 157, 

158, 159, 4, 6, 9 

herbaceous structure, iii, x, xiii, xv, xviii, 

Chapter 1, pages 9, Chapter 2, pages 

1, 7, 14, 22, Chapter 3, pages 11, 128, 

131, 136, 137, 138, 140, 141, 152, 

153, 154, 156, 157, 182 

income, x, xii, xvii, xxvii, Chapter 1, 

page 8, Chapter 3, pages 3, 26, 160, 

161, 162, 163, 164, 165, 166, 170, 

172, 173, 174, 175, 176, 183 

intermittent stream (s), xv, 2, 4, 6, 74 

invasive grasses, xiv, xvii, xxvii, 

Chapter 1, page 10, Chapter 2, pages 

3, 26, Chapter 3, pages 7, 54, 64, 85, 

100, 102, 107, 110, 111, 113, 114, 

125, 126, 127, 128, 137, 144, 145, 

146, 147, 148, 149, 150, 151, 182, 183 
Draft Environmental Impact Statement North Billings County Allotment Management Plan Revisions

Index-2 

jobs, xvii, xxvii, Chapter 3, pages 3, 26, 

160, 161, 163, 165, 166, 170, 172, 

173, 174, 175, 176 

late seral stage, xvii, xxvii, Chapter 3, 

pages 3, 23, 26, 142, 143, 146, 148, 

149, 152 

management indicator species (MIS), x, 

Chapter 2, pages 11, 12, 13, Chapter 

3, pages 140, 152, 155 

mid seral stage, Chapter 3, pages 142, 

144, 146 

noxious weeds, xviii, Chapter 2, pages 6, 

14, Chapter 3, pages 6, 7, 16, 54, 65, 

66, 73, 85, 88, 97, 126, 127, 141, 150, 

151, 159 

perennial stream (s), xiii, xvi, Chapter 1, 

page9, Chapter 3, pages 2, 4, 57, 63, 

67, 69, 70, 72, 74, 78, 82 

PFC, ix, x, xiii, xv, xvi, xxvii, Chapter 1, 

page 9, Chapter 2, pages 2, 20, 21, 26, 

Chapter 3, pages 19, 31, 55, 56, 57, 

60, 61, 62, 63, 64, 65, 67, 68, 69, 70, 

71, 72, 74, 78, 82, 83, 84, 85, 103, 113 

plant composition, xvii, Chapter 1, page 

20, Chapter 3, pages 3, 23, 42, 43, 46, 

73, 79, 142, 143, 149 

preference, x, xix, Chapter 2, page 15, 

Chapter 3, pages 12, 72, 75, 76, 83, 

84, 159, 165, 169 

SRT, Chapter 1, pages 4, 10, 11, 14, 17, 

18, Chapter 3, pages 25, 130, 134, 153 

twice over rotation, 107 

VOR, ix, xiii, xv, Chapter 1, page 9, 

Chapter 2, pages 1, 20, 22, Chapter 3, 

pages 10, 129, 130, 131, 132, 134, 

135, 136, 152, 153, 154, 155, 156 

winter feeding, xx, Chapter 2, page 16, 

Chapter 3, pages 9, 39, 43 

winter grazing, Chapter 2, page 9, 

Chapter 3, pages 19, 20, 21, 112, 116 

woody draw(s), iii, ix, x, xvi, xvii, xviii, 

xx, xxv, xxvi, Chapter 1, pages 2, 3, 7, 

13, 14, 16, 19, 20, 23, 24, 25, Cha[ter 

3,, pages 1, 2, 7, 15, 17, 18, 21, 22, 

25, 28, 29, 30, 31, 32, 34, 35, 42, 45, 

46, 67, 72, 74, 75, 77, 86, 87, 88, 89, 

90, 91, 93, 94, 95, 96, 97, 98, 99, 100, 

101, 102, 103, 104, 105, 106, 107, 

108, 109, 110, 111, 112, 113, 114, 

115, 116, 117, 118, 119, 120, 121, 

122, 123, 124, 125, 126, 127, 128, 

154, 182