Snake River Birds of Prey 

National Conservation Area 

Resource Management Plan 

and Record of Decision 

September 2008 

Boise District Office / Idaho 
It is the mission of the Bureau of Land Management to sustain the health, diversity, and productivity 

of the public lands for the use and enjoyment of present and future generations. 

Cover Graphic of Golden Eagle by: Jenay Law, 2005; Senior, Kuna High School 
Boise

United States Department of the Interior 

BUREAU OF LAND MANAGEMENT 

Boise District Office 

3948 Development Avenue 

Boise, Idaho 83705 

http://www.id.blm.gov/ 

In Reply Refer To: 

1610

Dear Reader: 

The Bureau of Land Management (BLM) is pleased to release the approved Record of Decision 

(ROD) and Resource Management Plan (RMP) for the Snake River Birds of Prey National 

Conservation Area (NCA). This document establishes the management framework for approximately 

483,700 acres of public land extending along 81 miles of the Snake River. The NCA includes the 

138,000-acre Orchard Training Area (OTA), which has been used by the Idaho Army National Guard 

(IDARNG) for military training since 1953. Within the NCA boundary are approximately 41,200 

State acres, 4,800 private acres, 1,600 military acres, and 9,300 acres covered by water; however, 

these areas are not affected by the NCA designation or by RMP decisions. Note that this document is 

not a full reprint of the Proposed RMP/Final Environment Impact Statement (EIS). 

The BLM appreciates the active role that many of you have taken in this process over the past several 

years; however, the planning process does not end with the ROD. We look forward to your continued 

involvement as we move on to route designations and other RMP implementation actions. The 

implementation of the plan, with its many elements, will require the continued support and efforts of 

the numerous individuals, organizations, and agencies that participated in the plan development. 

Thank you again for taking part in this important management decision-making process for the NCA. 

Your active participation will help the BLM achieve its mission to sustain the health, diversity, and 

productivity of the public lands for the use and enjoyment of present and future generations. We look 

forward to working with all interested governments, agencies, organizations and individuals in 

implementing this plan for the management of one of our nation’s special places. We will manage the 

NCA as a valued resource that has been entrusted to our care by the American people and in a manner 

that deserves your continued trust, while fulfilling the legislative intent to protect, conserve, and 

enhance raptor populations and habitats. 

Sincerely, 

John Sullivan

NCA Manager 

UNITED STATES DEPARTMENT OF THE INTERIOR 

BUREAU OF LAND MANAGEMENT 

BOISE DISTRICT OFFICE 
OVERVIEW OF THE

NATIONAL CONSERVATION AREA (NCA) 
LAND OWNERSHIP WITHIN THE NCA 

Record of Decision 

INTRODUCTION

The Bureau of Land Management (BLM) prepared this Record of Decision (ROD) on the Snake River 

Birds of Prey National Conservation Area (NCA) Proposed Resource Management Plan/Final 

Environmental Impact Statement. The ROD includes a statement of the decisions made, the basis for 

the decision(s), synopses of alternatives considered, description of the environmentally preferable 

alternative, and an overview of public involvement in the decision-making process. 

DECISION

The attached plan is hereby approved as the Resource Management Plan (RMP) for the public lands 

and resources within the NCA, which are managed as a part of the BLM Four Rivers Field Office 

(FRFO). The NCA contains approximately 483,700 acres of public land in the Idaho counties of Ada, 

Canyon, Elmore and Owyhee. Public Law (PL) 103-64 established the NCA in 1993 for the 

“...conservation, protection and enhancement of raptor populations and habitats and the natural and 

environmental resources and values associated therewith....” This Plan was prepared under the 

regulations implementing the Federal Land Policy and Management Act (FLPMA) of 1976 (43 CFR 

Part 1600), as well as in conformance with requirements of the NCA-enabling Act. An Environmental 

Impact Statement (EIS) was prepared for this plan in compliance with the National Environmental 

Policy Act (NEPA) of 1969. 

This RMP will replace portions of the 1983 Kuna Management Framework Plan (MFP), 1983 

Bruneau MFP, 1987 Jarbidge RMP, 1988 Cascade RMP, and 1999 Owyhee RMP that cover the 

NCA, and replace the 1996 NCA Management Plan. The RMP is nearly identical to the one set forth 

in the NCA Proposed RMP and Final EIS, published February 29, 2008. Specific management 

decisions for the public lands under the jurisdiction of the FRFO are presented in Chapter 2. Major 

decisions include: 

• Protecting remaining shrub communities through aggressive wildfire suppression; 

• Restoring up to 130,000 acres of shrub habitat; 

• Completing up to 100,000 acres of fuels management projects; 

• Modifying Idaho Army National Guard (IDARNG) training activities by limiting 

vehicular maneuver training to non-shrub communities to protect existing shrub 

communities, and by providing 4,100 acres of additional training area to enhance military 

maneuvers impacted by restrictions; 

• Area and use designations for livestock grazing, off-road vehicle use, rights-of-way, 

visual resource management, and energy corridors. 

OVERVIEW OF THE ALTERNATIVES 

The BLM developed four RMP alternatives, including a No Action (Current Management) 

Alternative, and analyzed them in detail in an EIS. Each alternative emphasized a different 

combination of resource uses, allocations and restoration measures to address issues and resolve 

conflicts among uses so program goals are met in varying degrees and timeframes across the 

alternatives. The four alternatives considered are summarized below. 

Decision R-1
Snake River Birds of Prey NCA 

Record of Decision Resource Management Plan and Record of Decision 

Alternative A (No Action—Continue Current Management) 

This No Action Alternative would continue present practices based on existing land use plans and 

amendments. It depicts current management, and also serves as a baseline for comparison with the 

other alternatives. The habitat restoration program would be driven primarily by emergency fire 

rehabilitation processes, resulting in a minimal increase in the acreage of shrub communities. 

Alternative B 

The emphasis of this alternative is the restoration of a moderate amount of raptor and raptor prey 

habitat in addition to those areas affected by emergency fire rehabilitation and fuels management 

projects. This alternative would accommodate recreation, military and commodity uses that are 

compatible with the purposes of the NCA. 

Alternative C 

This alternative emphasizes the restoration and rehabilitation of all non-shrub areas outside of the 

Orchard Training Area (OTA) to improve raptor and raptor prey habitat. To support this level of 

habitat restoration, recreation and military training would be substantially restricted, and livestock 

grazing preference would be eliminated. 

Alternative D (Proposed Action) 

This alternative emphasizes the restoration and rehabilitation of all non-shrub areas outside the OTA 

to improve raptor and raptor prey habitat while imposing only moderate restrictions on recreation, 

military training and commodity uses. 

NOTICE OF MODIFICATIONS 

The Approved RMP is identical to Alternative D of the Proposed RMP/Final EIS (PRMP/FEIS) with 

minor modifications and clarifications resulting from changes in the status of federally listed 

threatened and endangered species. In addition, the area known as Pasture 8B of the Battle Creek 

Allotment is no longer listed as closed to grazing. These minor modifications and clarifications did 

not result in substantial changes to the proposed action, which related to environmental concerns; 

therefore, a supplemental FEIS is not needed. 

The modifications and clarifications are: 

• The bald eagle and the Idaho springsnail were recently de-listed, and are no longer 

Federal endangered and threatened species. They remain BLM special status species and 

will continue to be managed to preclude the need for their re-listing as endangered or 

threatened.

• Slickspot peppergrass (Lepidium papilliferum) was listed as a proposed endangered 

species in response to a June 4, 2008 court order. The U.S. Fish and Wildlife Service 

(USFWS) is currently scheduled to issue a final listing decision by October 2009. This 

R-2 Notice of Modifications 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Record of Decision 

RMP identifies management actions and conservation measures based on the 2003 

Slickspot Peppergrass Candidate Conservation Agreement (CCA) and a programmatic 

Conservation Agreement (CA) signed by the BLM and USFWS in August 2006 which 

were designed to minimize adverse effects. If the final decision is to list the plant as 

either threatened or endangered, the BLM will initiate Section 7 consultation with the 

USFWS as required. 

• Pasture 8B (3,040 acres) will not be allocated preference grazing; however, it may be 

grazed at BLM’s discretion, under contract or as temporary non-renewable forage, for the 

purpose of meeting specific NCA resource management objectives, including weed 

reduction, hazardous fuels management, and ecological improvement (Grazing Map 1). 

Prior to grazing, an environmental analysis will be completed to identify impacts and 

develop appropriate mitigations. 

ENVIRONMENTALLY PREFERRED ALTERNATIVE 

A Record of Decision is required under Council on Environmental Quality (CEQ) regulations to 

identify the environmentally preferred alternative. The CEQ has defined the environmentally 

preferred alternative as the one that will promote the national environmental policy, as expressed in 

Section 101 of NEPA. Alternative C would be more protective of many natural and cultural values 

than the other alternatives, but would provide for fewer and more restricted uses, resulting in the 

greatest economic and social impacts. Also, the emphasis on minimal active management under this 

alternative could result in undesired conditions, especially, increased wildland fire potential. 

The BLM determined Alternative D, the approved RMP, to be the preferred alternative when 

considering both the human (social and economic) environment and the natural environment. Section 

101 of NEPA lists six broad policy goals for all Federal plans, programs and policies. It states in 

pertinent part that “...it is the continuing responsibility of the federal government to... 

1. fulfill the responsibilities of each generation as trustee of the environment for succeeding 

generations;

2. ensure for all Americans safe, healthful, productive and aesthetically and culturally 

pleasing surroundings; 

3. attain the widest range of beneficial uses of the environment without degradation, risk to 

health or safety or other undesirable and unintended consequences; 

4. preserve important historical, cultural and natural aspects of our national heritage, and 

maintain, wherever possible, an environment that supports diversity and variety of 

individual choice; 

5. achieve a balance between population and resource use that will permit high standards of 

living and a wide sharing of life’s amenities; 

6. enhance the quality of renewable resources and approach the maximum attainable 

recycling of depletable resources.” 

Environmentally Preferred Alternative R-3
Snake River Birds of Prey NCA 

Record of Decision Resource Management Plan and Record of Decision 

Identifying the preferred alternative involves balancing current and potential resource uses, resource 

impacts and mitigation to maintain a healthy environment while meeting human needs. 

MANAGEMENT CONSIDERATIONS/DECISION RATIONALE 

Approval of the attached RMP considers a number of factors, including input from Native American 

Tribes, the Idaho Army National Guard, State and County governments, other Federal agencies, BLM 

Boise District Resource Advisory Council (RAC), interested organizations and the public. 

Approval of the RMP is the best approach to addressing the planning issues identified through 

scoping, meeting the purpose and need of the planning process and providing an optimal balance in 

managing resource uses while considering potential impacts to public lands. 

MITIGATION MEASURES 

The Approved RMP contains appropriate mitigation and management actions to avoid or minimize 

environmental impacts, where practicable, while meeting the purposes for which the NCA was 

established. Mitigation may also be developed during site-specific activity and project level analysis. 

PLAN MONITORING 

Planning regulations (43 CFR 1610.4-9) require continuous monitoring of RMPs and periodic formal 

evaluations. The BLM will monitor the Approved Plan to determine whether the objectives set forth 

in this document are being met, and if the land use plan direction is effective. In addition to the 

program-specific monitoring, the plan identifies landscape-level monitoring and triggers that could 

result in change, should monitoring show that progress towards objectives is not being achieved or, 

ultimately, the Desired Future Conditions (DFC) are not being realized. 

The BLM may modify or adjust management to meet objectives without amending or revising the 

plan, as long as assumptions and impacts disclosed in the analysis remain valid and broad-scale goals 

and objectives are not changed. In those instances where BLM considers taking or approving actions 

that alter or do not conform to the overall direction of the plan, BLM will prepare a plan amendment 

or revision with appropriate public involvement and environmental analysis. 

PUBLIC AND GOVERNMENT INVOLVEMENT 

The BLM conducted an extensive public outreach program to encourage broad public participation 

during the development of this RMP. Over 30 public meetings were held during development of the 

Proposed RMP/Final EIS. In addition to the public scoping meetings, BLM attended meetings with 

non-governmental organizations and agencies. Participation by the public, Native American Tribes, 

local governments, and State and Federal agencies enhanced BLM’s understanding of their various 

viewpoints during development of the alternatives for analysis, identification of the preferred 

alternative based on public comments on the Draft EIS/RMP, selection of the proposed alternative for 

the Final EIS and Proposed RMP, and the final decision implementing the RMP. The BLM Boise 

District RAC helped with public outreach and understanding of the public issues and concerns. The 

R-4 Management Considerations/Decision Rationale 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Record of Decision 

Idaho Army National Guard and Owyhee County were cooperators in the development of the 

RMP/EIS.

SCOPING

The BLM published the Notice of Intent to Plan (NOI) in the Federal Register (FR) on August 7, 

2001. It conducted formal public scoping from November 27, 2001 to January 9, 2002. During the 

scoping period, BLM held six public meetings, sent a newsletter to interested parties, established a 

project web site and published notices in local newspapers. Throughout the scoping and issue 

identification process, 52 individuals and/or organizations provided 1,031 distinct written comments. 

The BLM analyzed these comments and used the results to identify the planning issues, Desired 

Future Conditions, alternatives, and conduct environmental analysis of the alternatives. 

DRAFT RMP/EIS 

On May 19, 2006, BLM published the Draft RMP/EIS with a 90-day public review and comment 

period. Copies of the document were distributed upon request, and it was available for viewing on the 

Idaho BLM web site and at the Boise District Office. Prior to the release of the Draft RMP, BLM held 

a number of “Coffee Shop” style meetings to discuss with interested parties the preliminary 

alternatives. During the comment period, BLM conducted four additional public meetings and sent 

out another newsletter. As a result of the extensive public outreach, BLM received only 17 letters 

from individuals and/or groups commenting on the Draft RMP. 

PROPOSED RMP/FINAL EIS 

Public comments on the Draft RMP/Final EIS, and review by and consultation with the ShoshonePaiute and Shoshone-Bannock Tribes and the U.S. Fish and Wildlife Service, were considered and 

incorporated into the Proposed RMP/Final EIS. The Proposed RMP/Final EIS was published on 

February 29, 2008 and contained responses to all substantive comments received on the Draft. The 

BLM distributed copies upon request, and made the document available on its web site and at the 

Boise District Office. It also published a Notice of Availability (NOA) in the Federal Register, which

initiated a 30-day protest period. 

RECORD OF DECISION/APPROVED RMP 

Copies of this ROD and Approved RMP are available upon request, can be viewed on the Idaho BLM 

web site, at the Boise District Office, or at the BLM Idaho State Office in Boise. 

PROTESTS AND APPEALS 

The BLM policy for land use planning specifies the types of decisions that are considered land use 

planning decisions, and those that are considered implementation-level decisions. This policy is 

outlined in the BLM Land Use Planning Handbook. Land use planning decisions are subject to 

protest in accordance with land use planning regulations (43 CFR 1610.5-2). Implementation level 

decisions are not subject to protest, but may be appealed as described by 43 CFR 4.4. 

Scoping R-5

Table of Contents 

DEAR READER LETTER 

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

TABLE OF CONTENTS...................................................................................................................... i

CHAPTER 1 – PURPOSE OF AND NEED FOR THE RMP 

1.1 INTRODUCTION..................................................................................................................1-1

1.2 PURPOSE OF THE RMP ......................................................................................................1-1

1.3 NEED FOR THE RMP ..........................................................................................................1-2

1.4 PUBLIC PARTICIPATION...................................................................................................1-3

1.5 LAWS AND REGULATIONS THAT INFLUENCED THE SCOPE OF THE RMP ..........1-4

1.6 DESIRED FUTURE CONDITIONS AND STANDARDS FOR THE NCA........................1-4

1.6.1 Air Quality.................................................................................................................1-4

1.6.2 Cultural and Tribal ....................................................................................................1-4

1.6.3 Fish and Wildlife (includes Special Status Animals) ................................................1-5

1.6.4 Soil Resources ...........................................................................................................1-5

 1.6.5 Vegetation .................................................................................................................1-5

1.6.6 Visual Resources .......................................................................................................1-7

1.6.7 Water Quality ............................................................................................................1-7

1.6.8 Idaho Army National Guard......................................................................................1-7

1.6.9 Lands and Realty.......................................................................................................1-7

1.6.10 Livestock Grazing .....................................................................................................1-8

1.6.11 Recreation..................................................................................................................1-8

1.6.12 Renewable Energy.....................................................................................................1-8

1.6.13 Transportation ...........................................................................................................1-8

1.6.14 Utility and Communication Corridors.......................................................................1-8

1.6.15 Fire Ecology ..............................................................................................................1-8

1.6.16 Special Designations .................................................................................................1-9

1.6.17 Social and Economic Conditions ..............................................................................1-9

1.7 RELATIONSHIP TO OTHER PLANS, POLICIES, AND PROGRAMS ............................1-9

Chapter 1 i
Snake River Birds of Prey NCA 

Table of Contents Resource Management Plan and Record of Decision 

CHAPTER 2 – MANAGEMENT OBJECTIVES AND MANAGEMENT ACTIONS 

2.1 AIR QUALITY...................................................................................................................... 2-1

2.2 CULTURAL AND TRIBAL RESOURCES ......................................................................... 2-1

2.3 FISH AND WILDLIFE ......................................................................................................... 2-3

2.4 SPECIAL STATUS SPECIES (SSS) – ANIMALS AND PLANTS..................................... 2-5

2.5 SOIL RESOURCES .............................................................................................................. 2-7

2.6 UPLAND VEGETATION..................................................................................................... 2-8

2.7 WATER QUALITY, RIPARIAN AND WETLANDS ....................................................... 2-11

2.8 VISUAL RESOURCES....................................................................................................... 2-12

2.9 WILD HORSES AND BURROS ........................................................................................ 2-13

2.10 IDAHO ARMY NATIONAL GUARD (IDARNG)............................................................ 2-13

2.11 LANDS AND REALTY...................................................................................................... 2-14

2.12 LIVESTOCK GRAZING .................................................................................................... 2-16

2.13 MINERAL RESOURCES ................................................................................................... 2-18

2.14 RECREATION .................................................................................................................... 2-18

2.15 RENEWABLE ENERGY.................................................................................................... 2-20

2.16 TRANSPORTATION.......................................................................................................... 2-20

2.17 UTILITY AND COMMUNICATION CORRIDORS (LAND USE 

 AUTHORIZATIONS) ......................................................................................................... 2-25

2.18 WILDLAND FIRE ECOLOGY AND MANAGEMENT................................................... 2-26

2.19 SPECIAL DESIGNATIONS............................................................................................... 2-28

2.20 SOCIAL AND ECONOMIC CONDITIONS...................................................................... 2-29

 2.20.1 Economic Conditions.............................................................................................. 2-29

 2.20.2 Hazardous Materials ............................................................................................... 2-29

CHAPTER 3 – PLAN IMPLEMENTATION AND MONITORING 

3.1 INTRODUCTION ................................................................................................................. 3-1

3.2 ADAPTIVE MANAGEMENT.............................................................................................. 3-1

3.3 IMPLEMENTATION............................................................................................................ 3-1

3.4 MONITORING...................................................................................................................... 3-2

3.5 EVALUATION AND ASSESSMENT – FUTURE CHANGES TO THE RMP.................. 3-8

3.6 COLLABORATION IN IMPLEMENTATION AND MONITORING ............................... 3-8

Chapters 2 and 3 ii
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Table of Contents 

LIST OF TABLES 

Transportation Table 2.1. Route Designation Criteria – Route Use..............................................2-22 

Transportation Table 2.2. Route Designation Criteria – Concerns. ..............................................2-23 

Transportation Table 2.3. Route Designation Criteria – Current Use...........................................2-24 

Table 3.1. Landscape-level Measures of the Effectiveness of Implementing the 

NCA RMP. Changes in these Indicators Will Help Determine Progress 

Toward Meeting DFC ...............................................................................................3-3 

Table 3.2. Landscape-level Measures of the Effectiveness of Implementing the 

NCA RMP. Changes in these Indicators Will Help Determine if 

Objectives are Being Met. .........................................................................................3-5 

LIST OF FIGURES 

Figure 3.1. The Adaptive Management Process. .........................................................................3-1 

LIST OF APPENDICES 

Appendix 1. NCA Enabling Legislation...................................................................... A-1 

Appendix 2. Idaho Standards for Rangeland Health and Guidelines for 

Livestock Grazing Management............................................................. A-9 

Appendix 3. Special Status Animal Species in the NCA. ......................................... A-29 

Appendix 4. BLM Special Status Plant Species in the NCA. ................................... A-31 

Appendix 5. Grazing Allotments in the NCA. .......................................................... A-33 

Appendix 6. Mineral Material Sites in the NCA. ...................................................... A-35 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA.... A-37 

Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA)................ A-57 

Appendix 9. Conservation Measures for Listed Species........................................... A-87 

Appendix 10. Snake River Wild & Scenic River Evaluation Report.......................... A-99 

Appendix 11. Maps.................................................................................................... A-129 

List of Tables, Figures and Appendices iii
Snake River Birds of Prey NCA 

Table of Contents Resource Management Plan and Record of Decision 

THIS PAGE INTENTIONALLY LEFT BLANK. 

iv
TABLE OF CONTENTS 

CHAPTER 1 – PURPOSE OF AND NEED FOR THE RMP 

1.1 INTRODUCTION..................................................................................................................1-1 

1.2 PURPOSE OF THE RMP ......................................................................................................1-1

1.3 NEED FOR THE RMP ..........................................................................................................1-2 

1.4 PUBLIC PARTICIPATION...................................................................................................1-3 

1.5 LAWS AND REGULATIONS THAT INFLUENCED THE SCOPE OF THE RMP ..........1-4 

1.6 DESIRED FUTURE CONDITIONS AND STANDARDS FOR THE NCA........................1-4 

 1.6.1 Air Quality.................................................................................................................1-4 

 1.6.2 Cultural and Tribal ....................................................................................................1-4 

 1.6.3 Fish and Wildlife (includes Special Status Animals) ................................................1-5 

 1.6.4 Soil Resources ...........................................................................................................1-5 

 1.6.5 Vegetation .................................................................................................................1-5 

 1.6.6 Visual Resources .......................................................................................................1-7 

 1.6.7 Water Quality ............................................................................................................1-7 

 1.6.8 Idaho Army National Guard......................................................................................1-7 

 1.6.9 Lands and Realty.......................................................................................................1-7 

 1.6.10 Livestock Grazing .....................................................................................................1-8 

 1.6.11 Recreation..................................................................................................................1-8 

 1.6.12 Renewable Energy.....................................................................................................1-8 

 1.6.13 Transportation ...........................................................................................................1-8 

 1.6.14 Utility and Communication Corridors.......................................................................1-8 

 1.6.15 Fire Ecology ..............................................................................................................1-8 

 1.6.16 Special Designations .................................................................................................1-9 

 1.6.17 Social and Economic Conditions ..............................................................................1-9 

1.7 RELATIONSHIP TO OTHER PLANS, POLICIES, AND PROGRAMS ............................1-9 

Chapter 1 – Purpose and Need for the RMP 

1.1 Introduction 1-1

1.1 INTRODUCTION 

The Snake River Birds of Prey National Conservation Area (NCA) is located in southwestern Idaho, 

within a 30-minute drive of Boise, and where almost half of Idaho’s population resides. It is located 

in Ada, Canyon, Elmore and Owyhee counties and encompasses approximately 483,700 public land 

acres extending 81 miles along the Snake River. The NCA includes the 138,000-acre Orchard 

Training Area (OTA), used by the Idaho Army National Guard (IDARNG) for military training since 

1953. Within its boundary are approximately 41,200 State acres, 4,800 private acres, 1,600 military 

acres, and 9,300 acres covered by water; however, these lands were not affected by the NCA 

designation and are not affected by NCA RMP decisions. 

The NCA was established in 1993 by Public Law (PL) 103-64 (16 USC 460iii-2; 107 Stat. 304) 

(Appendix 1). Public activities and uses that existed when the legislation was enacted are allowed to 

continue to the extent that they are compatible with the purposes for which the NCA was established - 

conservation, protection, and enhancement of raptor (birds of prey) populations and habitats. It 

contains the greatest concentration of nesting raptors in North America and the greatest density of 

prairie falcons in the world. About 700 raptor pairs, representing 16 species, nest there each spring, 

including golden eagles and burrowing owls. Eight other raptor species use the area during various 

seasons. 

The area is a unique habitat for birds of prey because the cliffs of the Snake River Canyon provide 

ideal nesting sites, while the adjacent upland plateau supports unusually large populations of small 

mammal prey species. It is noted for having one of the highest densities of ground squirrels ever 

recorded, and the Piute ground squirrel is a critical food source during late winter, spring, and early 

summer for many of the NCA raptor species – most notably prairie falcons. 

The NCA is managed by BLM under the concept of dominant use rather than multiple use. This 

means that prior to authorizing uses, BLM determines the compatibility of those uses with the 

purposes for which the NCA was established. Many historic uses that were occurring when it was 

established have either already been analyzed or were analyzed during this planning process. 

This planning effort was undertaken to provide the BLM Boise District with a comprehensive 

framework, known as a Resource Management Plan (RMP), for managing the affected public lands. 

The purpose of the RMP is to ensure that public land uses are planned for and managed in accordance 

with the requirements of PL 103-64. 

1.2 PURPOSE OF THE RMP 

The RMP provides BLM with a stand-alone comprehensive framework for managing public lands in 

the NCA over the next 20+ years to meet the purposes of the enabling legislation (Appendix 1): 

“...to provide for the conservation, protection, and enhancement of raptor populations 

and habitats and the natural and environmental resources and values associated 
 Snake River Birds of Prey NCA 

Chapter 1 – Purpose and Need for the RMP Resource Management Plan and Record of Decision 

1-2 1.3 Need for the RMP

therewith, and of the scientific, cultural, and educational resources and values of the 

public lands in the conservation area....” 

The enabling legislation and the management principles contained in the Federal Land Policy and 

Management Act (FLPMA) guide the land use decisions within the NCA. In addition, authorized uses 

must be determined to be compatible with the purposes for which it was established [Section 3(a) of 

the NCA-enabling Act], as well as with the management guidance provided in Section 1(5) and 

Section 4(b) of the Enabling Act. 

1.3 NEED FOR THE RMP 

According to BLM’s planning manual (1610), land use plans guide management actions on the 

affected public lands. Land use plan decisions establish goals and objectives for resource 

management [i.e., Desired Future Conditions (DFC)], the measures needed to achieve the goals and 

objectives, and parameters for using public lands. They identify lands that are open or available for 

certain uses, including any applicable restrictions, and lands that are closed to certain uses. Land use 

plan decisions ordinarily are made on a broad scale and customarily guide subsequent site-specific 

implementation decisions. Among the issues and concerns needing to be addressed in the NCA are: 

• Landscape-level changes in ecological condition caused by the loss of shrub habitat. 

• The need to recognize the role of fire in the NCA and identify appropriate fire and fuels 

management. 

• The expansion of invasive and noxious weeds contributing to landscape-wide changes in 

plant communities and ecological processes. 

• The burgeoning human population in the surrounding area which has increased recreation 

demands and related impacts. 

• The management of special status species including slickspot peppergrass and Snake 

River snails. 

• Locations and size of military training areas. 

• Areas available for livestock grazing. 

Because of the increasing demand for use of public land, there is a compelling need to develop an 

RMP that ensures that: 

• Management is more proactive about conserving, protecting, and enhancing raptor 

populations and habitats, including raptor prey populations. 

• Authorized uses are compatible with the purposes for which the NCA was established. 

• Resource uses are balanced, and are sustainable over the long-term. 

• Increasing demand for a comprehensive transportation plan, including off-highway 

vehicle use, is addressed. 

• Sensitive species habitats are protected and enhanced. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 1 – Purpose and Need for the RMP 

1.4 Public Participation 1-3

1.4 PUBLIC PARTICIPATION 

BLM published the Federal Register Notice of Intent (NOI) to plan in the NCA on August 7, 2001. 

The following principles for collaboration drove the public involvement process: 

1. Realistically match internal resources to commitments. 

2. Identify what is fixed and what is open for input and influence by the public. 

3. Be clear and consistent. 

4. Educate the public about the RMP process and how it links to future site-specific 

decisions. 

5. Link to national strategies and policies in order to focus on what is open for discussion 

and minimize debate on issues that are already decided. 

6. Follow through on commitments, both procedural and substantive. 

7. Be publicly accountable for seeking input from the public. 

The BLM designed a process consistent with its seven principles for collaboration, which was 

included in an internal document entitled A Collaborative Process for Resource Management 

Planning. Generally, this iterative process followed a pattern of: 

• Interdisciplinary team (ID Team) product development and internal agency review. 

• Review from BLM Boise District Resource Advisory Council (RAC). 

• Review from Federal, State, local agencies, and cooperating agencies through the 

Intergovernmental Coordination Group (ICG). 

• Formal government-to-government consultation with American Indian Tribes. 

• Review and comment from the general public. 

• ID team revisions based on this feedback. 

The RAC is a 15-member advisory group which provides advice and recommendations to BLM on 

resource and land management issues. Membership includes a cross section of Idahoans from the 

southwestern portion of the state representing energy, tourism and commercial recreation, 

environmental, and archeological or historic interests, as well as elected officials, Tribes and the 

public-at-large. Council members are selected for their ability to provide informed, objective advice 

on a broad array of public lands issues and their commitment to collaboration in seeking solutions to 

those issues. Members are appointed to three-year terms, may be reappointed to consecutive terms, 

and must be Idaho residents. 

The ICG is a group comprised of representatives from Federal, State, and local governments which 

meet to increase two-way information sharing about natural resource guidance, documents, data, and 

initiatives to ensure that information is considered, and to assist in resolving inconsistencies between 

Federal and State/local plans. 

Meetings with individuals and interest groups occurred throughout the process. It should be noted that 

the ID Team included representatives from two cooperating agencies, the IDARNG and Owyhee 

County. 
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Chapter 1 – Purpose and Need for the RMP Resource Management Plan and Record of Decision 

1-4 1.5 Laws and Regulations that Influenced the Scope of the RMP

1.5 LAWS AND REGULATIONS THAT INFLUENCED THE SCOPE OF 

THE RMP 

The BLM planning regulations (43 CFR 1610) require identification of planning criteria which guide 

and direct the development of the RMP. They influence all aspects of the planning process, including 

inventory and data collection, formulation of alternatives, estimation of effects, and, ultimately, the 

selection of a proposed alternative. They ensure that RMPs are tailored to the identified issues and 

that unnecessary data collection and analyses are avoided. Planning criteria are based primarily on 

standards prescribed by applicable laws, regulations, and agency guidance. They are also based on 

consultation with American Indian Tribes; coordination with public, other Federal, State, and local 

agencies and government entities; and analysis of information pertinent to the planning area. 

1.6 DESIRED FUTURE CONDITIONS AND STANDARDS FOR THE NCA 

Following consultation with the Tribes and with the assistance of the RAC, ICG, public, and 

cooperators (IDARNG and Owyhee County), BLM developed the DFC. They are the goals that 

specifically address the issues and perspectives identified by the public and others, and are generally 

broad statements that describe the future condition of resources and/or land uses that BLM and the 

public identified during the scoping process. The DFC do not, however, describe the actions needed 

to attain those conditions. The conditions are expressed in terms of DFC and standards. The DFC aid 

BLM in identifying actions that will most effectively address unsatisfactory resource conditions as 

required by laws and regulations, national policy (i.e., BLM Strategic Plan Goals), State Director 

guidance, and resource or social considerations. 

Standards are descriptions of physical, chemical, and biological conditions required to maintain 

healthy ecosystems. In addition, BLM has developed goals for specific programs. Collectively, they 

form the vision for future management of the area. 

Resources:

1.6.1 Air Quality 

Tied to National and State Guidance. 

1.6.2 Cultural and Tribal 

DFC: 

• Cultural and historic resources would be protected, and past, present, and future traditions 

and practices would be preserved. 

Standard: 

• Protection would be provided through administrative and physical measures, education, 

interpretation, and special designations. 
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Resource Management Plan and Record of Decision Chapter 1 – Purpose and Need for the RMP 

1.6.3 Fish and Wildlife (includes Special Status Animals) 1-5

1.6.3 Fish and Wildlife (includes Special Status Animals) 

DFC:

• The distribution, abundance, and quality of wildlife habitats would be maintained or 

improved to provide food, cover, and space for healthy populations of game and nongame wildlife through the seasons, as well as through various life stages. 

• Distribution and condition of habitats would contribute to the long-term viability of 

federally listed and BLM sensitive species and to their resilience to environmental 

change. 

• Raptor nest sites would be protected, maintained, and enhanced. 

Standards:

• Plant communities with shrub, forb, and grass diversity and cover appropriate to the site 

would provide quality upland habitats. 

• Quality habitat for riparian-dependent animals would be provided by streams and 

wetlands with plant species diversity and structure appropriate to the site. 

• Connectivity between habitats for fish and wildlife populations would be maintained or 

enhanced. 

• The number of large trees would be increased to enhance raptor roosting and nesting 

habitat. 

1.6.4 Soil Resources 

 Tied to National and State guidance. 

1.6.5 Vegetation 

1.6.5.1 Upland and Special Status Plants 

 DFC:

Areas 1, 2 and 3 (See Management Area Map)

• The uplands would support healthy sagebrush and salt desert shrub communities, and 

provide habitats to sustain or increase raptor and raptor prey populations. 

• The uplands would provide habitats to increase the populations of shrub obligate animals. 

• Habitat conditions would contribute to long-term viability of special status species.

• Noxious weeds would only be present in small isolated areas. 

• Plant communities would show an upward trend in species diversity, productivity, and 

structure. 

Area 1 Specific

• Sagebrush and salt desert shrub communities would be the dominant vegetation type and 

would include a mosaic of multi-aged shrubs, forbs, and native and adapted non-native 

perennial grasses. 

• There would be a decrease in the severity, frequency, and size of wildfires. 
 Snake River Birds of Prey NCA 

Chapter 1 – Purpose and Need for the RMP Resource Management Plan and Record of Decision 

1.6.5 Vegetation 1-6 

Area 2 Specific

• Sagebrush and salt desert shrub communities would increase and would include a mosaic 

of multi-aged shrubs, forbs, and native and adapted non-native perennial species. 

• There would be a decrease in the severity, frequency, and size of wildfires. 

Area 3 Specific

• Sagebrush and salt desert shrub communities would increase, but the area would remain 

largely dominated by cheatgrass and other exotic annuals. 

• Fire would continue to be a function of cheatgrass-dominated areas. 

Standards:

Areas 1, 2 and 3: 

• Healthy native and adapted non-native plant populations would minimize the 

establishment of invasive and noxious weeds. New infestations of noxious weeds would 

be eradicated, and existing populations of noxious and invasive weeds would be managed 

to prevent invasions of weed-free areas. 

• The population size and habitat quality of special status plants would be maintained 

and/or improved. 

• Special status plants would continue to exist at their present locations. 

• The distribution, abundance, and vigor of special status plant species would be 

maintained or improved. 

Area 1 Specific:

• A mixture of early to late seral sagebrush and salt desert shrub/grasslands, needed for 

raptor and raptor prey habitat, would exist in various sized blocks in well-distributed 

patterns across the landscape (including disjunct islands and corridors). 

Area 2 Specific:

• Early to mid seral sagebrush and salt desert shrub/grasslands, needed for raptor and raptor 

prey habitat, would exist in smaller sized and less contiguous blocks compared to Area 1. 

Area 3 Specific:

• Small, non-contiguous stands of early to mid seral sagebrush and salt desert 

shrub/grasslands, needed for raptor and raptor prey habitat, would increase in size and 

connectivity. 

1.6.5.2 Vegetation – Riparian and Water Quality 

 DFC: 

• Upland and riparian conditions would support water quality that is consistent with Idaho 

water quality standards. 

• Riparian areas would provide habitats to sustain or increase raptor populations. 
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Resource Management Plan and Record of Decision Chapter 1 – Purpose and Need for the RMP 

1.6.9 Lands and Realty 1-7

• Riparian areas would provide habitats to sustain riparian obligate species, especially 

special status species. 

Standards:

• Native riparian plant species would be the dominant vegetation type. 

• The population size and habitat quality of special status plants would be maintained 

and/or increased. 

• Desirable native and non-native plant populations would minimize establishment of 

invasive noxious weeds. 

1.6.6 Visual Resources 

No Specific DFC: See Recreation. 

1.6.7 Water Quality 

No Specific DFC: See Vegetation – Riparian and Water Quality. 

Resource Uses:

1.6.8 Idaho Army National Guard 

DFC:

Areas 1 and 2

• The Idaho Army National Guard would continue to administer military activities in the 

Orchard Training Area in a manner that is compatible with the NCA-enabling legislation. 

Standard:

Areas 1 and 2

• Military activities would not adversely impact raptor and raptor prey habitats. 

1.6.9 Lands and Realty 

 DFC:

• Public lands would be consolidated to facilitate land management. 

• Administrative and public access to public lands would exist where needed and where 

consistent with resource values. 

• All major utility and transportation rights-of-way would be located in designated 

corridors. 

• Resource values on public lands would be protected to prevent loss of revenue due from 

the use of public lands. 

 Standard:

• Consolidation would be accomplished through a combination of land exchange, purchase, 

and donation. 
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Chapter 1 – Purpose and Need for the RMP Resource Management Plan and Record of Decision 

1.6.10 Livestock Grazing 1-8 

1.6.10 Livestock Grazing 

 DFC:

• Forage would be made available to support ranching operations to the extent compatible 

with the NCA-enabling legislation. 

Standards:

• Livestock grazing would not adversely impact habitat requirements of raptors and their 

prey base. 

• Grazing management programs would be planned and scheduled to control the timing, 

intensity, and duration of grazing use to protect and/or enhance the ecological integrity of 

plant communities. 

1.6.11 Recreation 

 DFC:

• A range of motorized, non-motorized, undeveloped and developed recreation 

opportunities would exist in a manner compatible with the NCA-enabling legislation. 

• Environmental impacts and user conflicts would be reduced by improving public 

awareness of birds and their prey. 

 Standard:

• New recreation facilities that are compatible with the NCA purposes would be designed 

to protect the natural and scenic landscape values. 

1.6.12 Renewable Energy 

 No Specific DFC: See Lands and Realty. 

1.6.13 Transportation 

No Specific DFC: See Recreation. 

1.6.14 Utility and Communication Corridors 

 No Specific DFC: See Lands and Realty. 

 

Other:

1.6.15 Fire Ecology 

 No Specific DFC: See Vegetation. 
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Resource Management Plan and Record of Decision Chapter 1 – Purpose and Need for the RMP 

1.7 Relationship to Other Plans, Policies, and Programs 1-9

1.6.16 Special Designations 

 DFC:

• Special or unique natural, historic, cultural, scenic, and recreational values would be 

protected through special designations, as needed. 

 Standard:

• Special designations would be used for intensive management of unique resources. 

1.6.17 Social and Economic Conditions 

 DFC:

• Consumptive and non-consumptive uses, determined to be compatible with the purposes 

of the NCA, would contribute to the economy of the region. 

 Standard:

• No standard was identified.

1.7 RELATIONSHIP TO OTHER PLANS, POLICIES, AND PROGRAMS 

Specific actions required to attain the goals and outcomes defined in the RMP are accomplished 

through implementation plans and subsequent monitoring. These plans apply to specific program 

areas, projects, or operational and development strategies for specific areas of the NCA. Future 

implementation plans will use the goals and DFC defined in this document as their objective. 

Implementation plans with potential to affect the environment will require formal analysis in 

compliance with NEPA and related legislation, including the National Historic Preservation Act. 

FLPMA requires that: “the Secretary shall, to the extent he finds practical, keep apprised of State, 

local, and tribal land use plans; assure that consideration is given to those State, local and tribal 

plans that are germane in the development of land use plans for public lands; assist in resolving to 

the extent practical, inconsistencies.... Land use plans of the Secretary under this section shall be 

consistent with State and local plans to the maximum extent he finds consistent with Federal law and 

the purposes of this act.” 

Relevant plans, policies, and programs (e.g., State/local land use plans) were considered in the 

preparation of this document. In addition to all local, State and Federal regulations, the IDARNG 

must comply with internal Department of Defense (DoD), Department of Army (DA), and National 

Guard Bureau directives, policies, and regulations. 

As previously mentioned, BLM formed the ICG, which is composed of representatives from various 

Federal, State, and local agencies and government entities to ensure that, where practical, the RMP is 

consistent with requirements in other agency plans. Since over 20% of the NCA is located in Owyhee 

County, the Board of Commissioners signed a cooperating agency agreement which allowed them to 

have representation on BLM’s ID Team during RMP development. IDARNG also signed a 
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Chapter 1 – Purpose and Need for the RMP Resource Management Plan and Record of Decision 

1.7 Relationship to Other Plans, Policies, and Programs 1-10 

cooperating agency agreement. IDARNG, as a cooperating agency, provided both natural resource 

and military training expertise on the ID Team. 
TABLE OF CONTENTS 

CHAPTER 2 – MANAGEMENT OBJECTIVES 

AND MANAGEMENT ACTIONS 

2.1 AIR QUALITY ......................................................................................................................2-1 

2.2 CULTURAL AND TRIBAL RESOURCES..........................................................................2-1 

2.3 FISH AND WILDLIFE..........................................................................................................2-3 

2.4 SPECIAL STATUS SPECIES (SSS) – ANIMALS AND PLANTS .....................................2-5 

2.5 SOIL RESOURCES...............................................................................................................2-7 

2.6 UPLAND VEGETATION .....................................................................................................2-8 

2.7 WATER QUALITY, RIPARIAN AND WETLANDS........................................................2-11 

2.8 VISUAL RESOURCES .......................................................................................................2-12

2.9 WILD HORSES AND BURROS.........................................................................................2-13 

2.10 IDAHO ARMY NATIONAL GUARD (IDARNG) ............................................................2-13 

2.11 LANDS AND REALTY ......................................................................................................2-14

2.12 LIVESTOCK GRAZING.....................................................................................................2-16

2.13 MINERAL RESOURCES....................................................................................................2-18 

2.14 RECREATION.....................................................................................................................2-18 

2.15 RENEWABLE ENERGY ....................................................................................................2-20 

2.16 TRANSPORTATION ..........................................................................................................2-20 

2.17 UTILITY AND COMMUNICATION CORRIDORS (LAND USE 

 AUTHORIZATIONS)..........................................................................................................2-25 

2.18 WILDLAND FIRE ECOLOGY AND MANAGEMENT ...................................................2-26 

2.19 SPECIAL DESIGNATIONS ...............................................................................................2-28 

2.20 SOCIAL AND ECONOMIC CONDITIONS ......................................................................2-29 

 2.20.1 Economic Conditions ..............................................................................................2-29 

 2.20.2 Hazardous Materials................................................................................................2-29

LIST OF TABLES 

Transportation Table 2.1. Route Designation Criteria – Route Use. .........................................2-22 

Transportation Table 2.2. Route Designation Criteria – Concerns. ...........................................2-23 

Transportation Table 2.3. Route Designation Criteria – Current Use........................................2-24 

Chapter 2 – Management Objectives and Management Actions 

2.1 Air Quality 2-1

The following information details the rationale, standard operating procedures, objectives and 

management actions for each resource and resource use throughout the life of this plan. 

2.1 AIR QUALITY 

Rationale 

The “Interim Air Quality Policy on Wildland and Prescribed Fires” issued by the U. S. Environmental 

Protection Agency (EPA) on April 23, 1998 directs public land managers to protect public health and 

welfare by mitigating the impacts of air pollutant emissions on air quality and visibility for all 

wildland and prescribed fires managed to achieve resource values. In accordance with the planning 

criteria, including the Clean Air Act, all authorized actions would meet or exceed National Ambient 

Air Quality Standards. 

Standard Operating Procedures 

• Emissions from point and non-point sources will be limited by requiring and 

implementing mitigation measures. 

• An approved burn plan, that includes information and techniques to reduce or alter smoke 

emission levels, will be in place prior to implementing a prescribed burn. 

• All prescribed fire actions will be coordinated with other affected agencies through the 

Montana/Idaho Smoke Management Program certified by the EPA and Idaho Department 

of Environmental Quality. 

• The majority of fuel types do not allow for opportunities to reduce emissions; therefore, 

emissions will be managed primarily by timing and atmospheric dispersal.

Air Quality Objectives and Management Actions 

Objectives: 

Meet or exceed the National Ambient Air Quality Standards and the Prevention of Significant 

Deterioration regulations with all authorized actions.

Management Actions: 

Management actions are derived from the legislation and are covered under Standard Operating 

Procedures. 

2.2 CULTURAL AND TRIBAL RESOURCES 

Rationale 

The BLM’s management of cultural resources is guided by laws, executive orders (EO), regulations, 

and policies. The National Historic Preservation Act (NHPA) of 1966, as amended, directs Federal 

agencies to provide leadership in the protection and preservation of prehistoric and historic cultural 

properties that have been determined eligible for listing or are listed in the National Register of 

Historic Places (NRHP). Section 106 of the NHPA directs Federal agencies to consider the potential 

effects of agency and agency-approved actions on significant archaeological and historic properties 

through a process of inventory, evaluation and effects analysis, and consultation with American 

Indian Tribes, State Historic Preservation Office, Advisory Council on Historic Preservation, and 
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Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.2 Cultural and Tribal Resources 2-2 

interested publics. Section 110 of the NHPA directs agencies to establish programs to inventory, 

evaluate and nominate sites to the NRHP and to protect, preserve, manage, and maintain cultural 

properties. 

As part of BLM’s cultural resource management program, the Idaho Army National Guard 

(IDARNG) protects and monitors cultural and historic sites within the Orchard Training Area (OTA) 

under the requirements of a Cultural Resources Memorandum of Agreement, which is an addendum 

to the OTA Memorandum of Understanding (MOU). 

Standard Operating Procedures 

• American Indians have access to the public lands in the NCA for hunting, fishing and 

gathering, and to practice their religion and culture. Sites and traditional cultural 

properties deemed to be at risk from natural or human caused factors will be protected. 

• Section 110 cultural resource surveys will be conducted. Based on historic numbers, it is 

estimated that 80 to 240 acres will be surveyed for cultural resources per year. 

• Conduct interpretation and education, data recovery and recordation, and site stabilization 

activities as key elements in the protection of cultural resources. 

• Retain public lands containing important cultural resources and plant habitat unless they 

can be exchanged for lands containing better habitat and/or more significant resource 

values. 

• Adverse impacts to cultural resources will be mitigated with specific management actions 

chosen for each project. Management actions could be chosen from a variety of options 

that include, but are not limited to: 

o Physical avoidance of the site by moving the proposed project. 

o Fencing of the site to protect the cultural properties. 

o More complete documentation of the site with additional site recordings such as 

photographs, site maps, sketches, or other data recovery techniques. 

o Preservation of the site by limiting surface collection of artifacts. 

o Archaeological testing. 

o Data recovery through salvage excavation. 

o Full data recovery through scientific excavation. 

o On-site mitigation of potential adverse impacts. 

Cultural and Tribal Resources Objectives and Management Actions 

Objective: 

Manage cultural resources by emphasizing mitigation and public interpretation. 

Management Actions: 

Acquire lands that contain significant natural or cultural resources as opportunities arise. 

Protect cultural resources in place without actions such as site excavations or removal of objects when 

possible. 

Restrict vehicles to designated routes in the Guffey Butte-Black Butte Archaeological District. 

Revoke the Guffey Butte-Black Butte Area of Critical Environmental Concern (ACEC) designation. 
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Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.3 Fish and Wildlife 2-3

Cultural and Tribal Resources Objectives and Management Actions 

Enlarge the Oregon Trail Special Recreation Management Area (SRMA) to approximately 7,900 

acres. (Recreation Map 1) 

Protect the Oregon Trail as a Visual Resource Management (VRM) Class II area. [Visual Resource 

Management (VRM Map)] 

2.3 FISH AND WILDLIFE 

Rationale 

Pursuant to Section 3(a)(2) of the 1993 NCA-enabling legislation (PL 103-64), BLM is required to 

manage the NCA to “...provide for the conservation, protection, and enhancement of raptor 

populations and habitats and the natural and environmental resources and values associated 

therewith...” Section 2(4) of the Act defines the term “raptor habitat” to include the habitat of the 

raptor prey base as well as the nesting and hunting habitat of raptors within the conservation area. 

Over 300,000 acres of native shrub communities have been lost in the past 30 years due, in large part, 

to repeated wildfires. Upland shrub and riparian communities constitute important habitat for small 

mammals that are the principal prey for the 25 raptor species that spend all or a portion of their year 

in the NCA. These communities also support a myriad of other wildlife species. Shrub communities 

degraded by wildfire, soil erosion, and exotic plant invasion cannot support relatively stable small 

mammal populations that are found in less degraded communities. Anything that compromises the 

population dynamics of raptors and their prey is of special concern. Therefore, a prime consideration 

for wildlife management is to improve existing habitat conditions, especially for small mammal 

populations. Management actions for the fish and wildlife program are tied closely to the vegetation 

and riparian resource programs. 

Raptors and Raptor Prey: The greatest benefit to raptors is the stabilization of raptor prey populations, 

most notably the Piute ground squirrel. To stabilize and increase the small mammal prey base, 

remnant upland native shrub habitat must be preserved, inter-connected, and expanded. Restoring 

degraded areas to shrub/bunchgrass habitat with a forb component and biological soil crust provides 

additional habitat for small mammals, invertebrates, lizards, snakes, and birds. 

Waterfowl: Riparian and wetland habitat improvement will provide additional food for waterfowl and 

migrant shorebirds, plus feeding and resting sites for many other bird species. 

Upland Game: Pheasant, quail, dove, and partridge have additional nesting and escape cover if 

shrub/bunchgrass habitat is improved adjacent to agricultural sites. Additional water sources will also 

expand the amount of usable range for upland birds. Nuttall’s cottontails find increased cover and 

food in improved riparian and upland areas. 

Big Game: Although mule deer and pronghorn have historically used most of the NCA (at least 

seasonally), their range is currently limited by a lack of surface water. Additional surface water would 

make more of the NCA available to these species. 
 Snake River Birds of Prey NCA 

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2.3 Fish and Wildlife 2-4 

Non-Game: Improving and expanding existing riparian and woodland habitats provides nest, perch, 

feed, and cover sites for many non-game birds; breeding areas for amphibians; and temporary food 

and cover for mammals, reptiles, amphibians and invertebrates. Additional cover and feeding areas 

will especially benefit migratory songbirds in the spring. 

Special Status Species (SSS): See Special Status Species, Section 2.4 below. 

Fish and Wildlife Objectives and Management Actions 

Objectives: 

Emphasize protection and enhancement of raptor prey and other wildlife populations and habitats, 

expand areas utilized by raptor prey and big game, and reduce competition for forage in perennial 

pastures between livestock and Piute ground squirrels. 

Management Actions: 

Restore or maintain plant species diversity and hydrologic functioning of springs and seeps, where 

possible. 

Increase raptor nesting, perching, feeding and roosting opportunities through tree planting or artificial 

structures. 

Remove exotic trees and shrubs and plant cottonwood, willow, and other desirable trees and shrubs 

on up to 40 miles of riparian and wetland wildlife habitat. 

Protect and restore all river, stream, and reservoir shorelines (approximately 101 miles) to maintain or 

enhance fisheries and aquatic-riparian habitat. 

Provide additional surface water for big game, upland game, and non-game species. 

Include shrubs that are suitable for raptor prey (small mammals) and big game in habitat restoration 

projects. 

Plant up to 100 acres of yellow-billed cuckoo woodland habitat in appropriately sized blocks. 

Restore approximately 130,000-targeted acres of degraded small mammal and big game habitat. 

Habitat restoration priorities will be emphasized where it is most beneficial to raptor prey 

populations, rather than being limited to currently burned areas. 

Convert approximately 100,000 acres of annual grasslands to a perennial plant community through a 

combination of biological, chemical, and mechanical fuels management projects. This is in addition 

to habitat restoration projects. 

Construct an additional pond (approximately 20-acres) at the Ted Trueblood Wildlife Management 

Area (TWMA) to increase habitat for migrant shorebirds and nesting waterfowl. 

Improve up to two miles of riparian/wetland habitat annually. 

Treat approximately 4,000 acres for noxious weed infestations annually. Restored areas and Special 

Status Plants (SSP) habitat have priority for treatment. 
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Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.4 Special Status Species (SSS) – Animals and Plants 2-5

Fish and Wildlife Objectives and Management Actions 

Priest Ranch (340 ac), TWMA (300 ac) Gold Isle (120 ac), and Cove Recreation Site (100 ac) will be 

closed to livestock grazing. Kuna Butte (3,400 ac) of the Sunnyside Spring/Fall Allotment and 

Pasture 8B (3,040 ac) of the Battle Creek Allotment will only be grazed for the purpose of meeting 

specific NCA resource management objectives, under a fuels/weed reduction contract or as a 

temporary non-renewable grazing authorization (Grazing Map 1). Prior to grazing, an environmental 

analysis will be completed to identify impacts and develop appropriate mitigations. In addition to the 

above, livestock grazing in the Snake River Pasture (1300 ac) of the Melba Seeding Allotment, 

located downstream from Swan Falls Dam, will be restricted to the dormant season to reduce 

conflicts with spring and summer recreational use along the Snake River. 

Livestock grazing will not be permitted in areas restored with perennial species until the plants are 

successfully established and can withstand grazing. Where practicable, these areas will only be grazed 

during the dormant season or grazed under a rotational grazing system to maintain the perennial 

species. 

Retain Canyon and Plateau shooting restrictions as described below (Recreation Map 2). Use of 

firearms within these areas for animal damage control and law enforcement are exempt from the 

shooting closure. 

• Plateau (37,700 acres) – closed year-round to the discharge of rifles and pistols. 

• Snake River Canyon (23,500 acres) – closed year-round to the discharge of rifles and pistols 

except for deer hunting season in Hunting Unit 40 on the south side of the Snake River. Shotguns 

and muzzleloaders will be allowed from September 1 to February 14. The width of the closed 

area is 1/2 mile from the river or 100 yards back from the canyon rim, whichever is greater. 

2.4 SPECIAL STATUS SPECIES (SSS) – ANIMALS AND PLANTS 

Rationale 

The BLM Manual Section 6840 (Special Status Plant Management) provides overall policy direction 

to conserve listed, threatened, or endangered species on BLM administered land, and to ensure 

authorized actions do not contribute to the need to list Federal, candidate, State or BLM sensitive 

species. In addition, the management of Idaho rangelands is outlined in the Idaho Standards for 

Rangeland Health and Guidelines for Livestock Grazing Management (S&G) (Appendix 2). Standard 

8 (Sensitive Species) represents the standards against which the NCA SSS will be measured. 

Management actions will focus on minimizing or eliminating the threats associated with wildland 

fire, competition from exotic species, grazing, and off-road vehicle activity. 

The yellow-billed cuckoo is a candidate for threatened or endangered species listing by the U.S. Fish 

and Wildlife Service (USFWS) that needs immediate attention. Management actions authorized or 

funded by BLM should be implemented in a manner that do not jeopardize the continued existence of 

this species or result in the destruction or modification of its critical habitat. Once a species is listed, 

BLM’s mission, through law enforcement, research, and land management, is to enhance the specie’s 

chance for recovery and survival. State sensitive species and species proposed for Federal listing 

(candidate species) will be given the same management consideration as listed species. 

 
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Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.4 Special Status Species (SSS) – Animals and Plants 2-6 

In consultation with the USFWS, BLM developed conservation measures to promote the protection 

and conservation of listed, proposed and candidate species and their habitat. These conservation 

measures, included as Appendix 9, are considered land use plan management actions specific to the 

protection of the candidate and other SSS. These measures will remain in effect for the protection of 

the yellow-billed cuckoo unless or until they are amended or replaced through subsequent 

consultation. 

The BLM and Idaho Department of Fish and Game (IDFG) agreed to “Ensure, to the best of their 

abilities, that critical habitats and populations of sensitive species occurring on lands administered 

by the BLM will be managed and/or conserved to minimize the need for listing these animals as 

threatened or endangered by either Federal or State governments in the future” (IDFG and BLM 

Master MOU 2003 cover sheet). 

The BLM and IDFG consider 30 species in Idaho “range wide/globally imperiled”; however, habitat 

exists for only two of the species in the NCA. Additionally, 21 species are “regional and State 

imperiled” and 17 species are on the Idaho watch list (Appendix 3). All of these species are 

important, but in the NCA, there will be special emphasis on the prairie falcon and Piute ground 

squirrel, which are “regional and State imperiled” species. Restoration of upland shrub/bunchgrass 

habitat helps stabilize ground squirrel populations; thereby helping to stabilize the prairie falcon 

population. 

No data exists to suggest that the giant fairy shrimp or its habitat is in jeopardy. However, as needs 

are identified, BLM will implement measures to protect playas from user impacts. When more is 

known about the giant fairy shrimp’s biology and ecological requirements, BLM will, if warranted, 

implement more specific management actions to protect it from user impacts. 

Standard Operating Procedures 

• Retain public lands containing important plant habitat unless they can be exchanged for 

lands containing better habitat and/or more significant resource values. Land exchanges 

should enhance or at least not adversely affect raptor populations or their habitat. 

• Recreation permits will not be issued in areas that adversely affect SSS habitat. 

• Federal actions shall not contribute to the need to federally list candidate species or BLM 

sensitive species. 

• Inventories will be conducted prior to BLM authorizing surface disturbing actions to 

determine the presence or absence of SSS. 

• Wildland fires will be suppressed using the most aggressive tactics possible to minimize 

impacts to SSS habitat. 

• IDARNG has responsibility for (1) initial attack for fires within the OTA (2) maintenance 

of a BLM-authorized firebreak system, (3) hazardous fuels management within the 

Impact Area, and (4) strict control of ignition sources (pyrotechnics and tracer 

ammunition) in times of high fire danger. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.5 Soil Resources 2-7

Special Status Species Objectives and Management Actions 

Objectives: 

Emphasize maintenance, protection, and enhancement of raptors and other sensitive wildlife 

populations and habitats. 

The distribution, abundance, and vigor of SSPs will be maintained or improved. 

Management Actions: 

Increase raptor nesting, perching, feeding and roosting opportunities through tree planting or 

artificial structures. 

Remove exotic trees and shrubs and plant cottonwood, willow, and other desirable trees and shrubs 

on up to 40 miles of riparian and wetland wildlife habitat. 

Protect and restore all river, stream, and reservoir shorelines (approximately 101 miles) to maintain 

or enhance fisheries and aquatic-riparian habitat. 

Manage giant fairy shrimp habitat with protection of the fairy shrimp as the priority. As more is 

learned about its biological and ecological requirements, BLM will incorporate appropriate 

protection measures. (Wildlife Map) 

Maintain or improve 136 miles of existing fuel breaks and construct approximately 12 miles of new 

fuel breaks. (Vegetation Map) 

Include in all BLM authorizations permitting surface disturbing activities (non-grazing), 

requirements that (1) affected areas be reseeded with a perennial vegetative cover, and (2) surface 

disturbing activities be located at least 1/2 mile from occupied sensitive plant habitat. 

Implement the following actions consistent with the slickspot peppergrass CA (Appendix 8) to 

protect slickspot peppergrass and its habitat from wildfires: (1) occupied habitat has priority for 

suppression over the surrounding area, (2) use aggressive fire suppression tactics when occupied 

habitats are threatened, and (3) create and maintain fuel breaks around areas where frequent fires 

threaten habitat. 

Keep 90% of the wildfires occurring within slickspot peppergrass management areas (Fire Map) to 

100 acres or less while keeping 90% of wildfires in the remainder of the NCA to 200 acres or less. 

Require all permit holders in slickspot peppergrass habitat to conform to applicable conservation 

measures from the CA (Appendix 8). 

Require IDARNG to avoid shrub stands with 10% or greater canopy cover during military training 

activities. 

Restrict vehicle maneuver training to designated routes in the 22,300-acre Bravo Area. This 

restriction becomes effective after the authorization for an additional 4,100 acres (expanded 

Maneuver Area) goes into effect on land adjacent to the existing OTA boundary. [Idaho Army 

National Guard (IDARNG) Map] 

2.5 SOIL RESOURCES 

Rationale 

The BLM must comply with the Federal Land Policy & Management Act (FLPMA), Clean Water 

Act (CWA), Idaho S&Gs, and other related Federal and State laws and regulations regarding 

watershed health, soil stability, and water quality. Improving and maintaining healthy and properly 

functioning watersheds benefit wildlife, fisheries, water quality, recreation, and livestock grazing. 
 Snake River Birds of Prey NCA 

Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.6 Upland Vegetation 2-8 

Standard Operating Procedures 

• Adapted perennial grasses, forbs, and shrubs will be seeded when possible to (1) stabilize 

the soil, (2) prevent weed invasion, (3) restore wildlife habitat, and (4) reduce the 

likelihood of future fires. 

• Grazing management actions should provide for adequate amounts of vegetative ground 

cover and litter (determined on an ecological site basis) to support infiltration and soil 

stability, protect resources, and maintain site productivity. 

• Where livestock grazing is permitted, it will be managed through the Idaho S&G process. 

• Undue erosion from surface disturbing activities will be prevented or minimized by 

applying appropriate Best Management Practices (BMP) and/or SOPs in conjunction with 

site specific monitoring. 

• Mechanical impacts to the soil surface and biological soil crusts will be minimized 

through proper timing and duration for the type of use with regard to soil type, soil 

moisture content, and biological soil crust vulnerability. 

2.6 UPLAND VEGETATION 

Rationale 

PL 103-64 established the NCA to “...provide for the conservation, protection, and enhancement of 

raptor populations and habitats and the natural and environmental resources and values associated 

therewith...” Section 2(4) of the legislation defines “raptor habitat” as including the habitat of the 

raptor prey base as well as the nesting and hunting habitat of raptors within the conservation area. 

Soil Resources Objectives and Management Actions 

Objectives: 

Watersheds have stable vegetative communities that provide for proper hydrologic function, nutrient 

cycling, energy flow, and soil stability.

Soil productivity is maintained and enhanced. Accelerated soil erosion caused by human activities 

will be minimal. 

Minimize the potential for localized soil erosion processes on all soils with a moderate to very high 

soil erosion potential. (Soil Map) 

Management Actions: 

Retain all public lands in the 43,000-acre right-of-way (ROW) avoidance area to protect the visual 

corridor along the Historic Oregon Trail and the resources along the Snake River canyon. (Lands 

Map 1) 

Manage vehicle access according to the following Off-Highway Vehicle (OHV) Area Designations. 

(Transportation Map) 

Open – 0 acres 

Limited – 428,400 acres (limited to designated routes) 

Closed – 4,400 acres 
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Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.6 Upland Vegetation 2-9

The greatest emphasis would be placed on protecting remnant shrub communities from wildfire, 

treating 230,000 acres of degraded habitat, and reducing impacts from resource uses, such as 

livestock grazing and off-road vehicle activity. This would allow treatment (restoration, fuels) of 

essentially all acres outside of the OTA currently identified as non-shrub habitat. However, over the 

long-term, because of increasing recreation and other uses, it is anticipated that 30,000 acres of 

remnant shrub communities would be lost to wildfire. 

The management of Idaho rangelands is outlined in Idaho S&Gs. Standard 4 (Native Plant 

Communities), Standard 5 (Seedings), Standard 6 (Exotic Plant Communities Other than Seedings), 

and Standard 8 (Sensitive Species) represent the standards against which the NCA rangelands are 

measured. 

Standard Operating Procedures 

• All wildfires will be evaluated for possible Emergency Stabilization and Restoration 

(ESR). Objectives include the establishment of shrub and perennial herbaceous species to 

minimize soil erosion and invasion by annual plant species, and to maintain and improve 

raptor prey habitat.

• Prescribed fire and biological, chemical or mechanical fuels management treatments will 

be emphasized in priority areas depending on funding or perceived hazards. Priorities 

may include the Wildland Urban Interface (WUI) and protection of existing resources, 

including wildlife habitat and SSP populations. 

• Efforts will be made to restore native and/or desirable non-native vegetation in degraded 

habitats (i.e., exotic plant or seeded communities) to help create mosaics of vegetation 

that are resistant and resilient to disturbance. Restoration efforts will be prioritized using 

a variety of criteria including: (1) proximity to existing shrub communities, sensitive 

species habitat, priority raptor nesting sites, major roads and fences; (2) soils and 

ecological types; and (3) precipitation zone. Management Area 1 would have the highest 

probability for success. 

o Grazing practices will provide sufficient residual vegetation to improve, restore, 

and/or maintain hydrologic functioning, and to provide plant species diversity and 

structure for quality habitat. 

• Recreation permits will not be issued in areas that adversely affect SSS habitat. 

Upland Vegetation Objectives and Management Actions 

Objectives: 

Limit further loss of existing native shrub habitat to no more than 30,000 acres and increase the 

acres of restored shrub habitat. 

Special status plant and animal habitats will be in good ecological condition, where potential 

allows, and authorized human uses would be compatible. 

Emphasize protection and enhancement of raptor prey and other wildlife populations and habitats, 

expand areas utilized by raptor prey and big game, and reduce competition for forage in perennial 

pastures between livestock and Piute ground squirrels. 
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Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.6 Upland Vegetation 2-10 

Upland Vegetation Objectives and Management Actions 

Management Actions: 

Designate up to 5,000 acres for research purposes. 

Limit open fires to established (improved) campsites. Additional restrictions may be imposed 

during periods of high fire danger. 

Treat approximately 4,000 acres for noxious weed infestations annually. Restored areas and SSP 

habitat have priority for treatment. 

Include in all BLM authorizations permitting surface disturbing activities (non-grazing), 

requirements that (1) affected areas be reseeded with a perennial vegetative cover, and (2) surface 

disturbing activities be located at least 1/2 mile from occupied sensitive plant habitat. 

Require all permit holders in slickspot peppergrass habitat to conform to applicable conservation 

measures from the CA. (Appendix 8) 

Implement the following actions consistent with the slickspot peppergrass CA (Appendix 8) to 

protect slickspot peppergrass and its habitat from wildfires: (1) occupied habitat has priority for 

suppression over the surrounding area, (2) use aggressive fire suppression tactics when occupied 

habitats are threatened, and (3) create and maintain fuel breaks around areas where frequent fires 

threaten habitat. 

Restore approximately 130,000-targeted acres of degraded small mammal and big game habitat. 

Habitat restoration priorities will be emphasized where it is most beneficial to raptor prey 

populations, rather than being limited to currently burned areas. 

Convert approximately 100,000 acres of annual grasslands to a perennial plant community through 

a combination of biological, chemical, and mechanical fuels management projects. This is in 

addition to habitat restoration projects. 

Livestock grazing in annual-dominated areas will be managed to leave sufficient residual litter 

after grazing for small mammal food and cover, and for watershed protection. 

Priest Ranch (340 ac), TWMA (300 ac) Gold Isle (120 ac), and Cove Recreation Site (100 ac) will 

be closed to livestock grazing. Kuna Butte (3,400 ac) of the Sunnyside Spring/Fall Allotment and 

Pasture 8B (3,040 ac) of the Battle Creek Allotment will only be grazed for the purpose of meeting 

specific NCA resource management objectives, under a fuels/weed reduction contract or as a 

temporary non-renewable grazing authorization (Grazing Map 1). Prior to grazing, an 

environmental analysis will be completed to identify impacts and develop appropriate mitigations. 

In addition to the above, livestock grazing in the Snake River Pasture (1300 ac) of the Melba 

Seeding Allotment, located downstream from Swan Falls Dam, will be restricted to the dormant 

season to reduce conflicts with spring and summer recreational use along the Snake River. 

Restrict vehicle maneuver training to designated routes in the 22,300-acre Bravo Area. This 

restriction becomes effective after the authorization for an additional 4,100 acres (expanded 

Maneuver Area) goes into effect on land adjacent to the existing OTA boundary. [Idaho Army 

National Guard (IDARNG) Map] 

Locate military assembly and bivouac areas in existing, hardened sites adjacent to designated roads 

in the Bravo Area and as needed throughout the rest of the OTA in non-shrub sites. Where 

appropriate, BLM will authorize IDARNG to gravel or cinder frequently used sites. 

Require IDARNG to avoid shrub stands with 10% or greater canopy cover during military training 

activities. 
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Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.7 Water Quality, Riparian and Wetlands 2-11

2.7 WATER QUALITY, RIPARIAN AND WETLANDS 

Rationale 

Water quality is important for human uses and proper ecosystem functioning. Management practices, 

such as grazing, mineral material extraction, recreation, and vegetation management, should be 

designed to maintain healthy, sustainable and functioning ecosystems as described in the Idaho 

S&Gs. 

The Clean Water Act (CWA) of 1977, as amended, requires the restoration and maintenance of the 

chemical, physical, and biological integrity of the Nation’s waters. Under the Act, State-developed 

Total Maximum Daily Loads (TMDL) and State-approved water quality management plans will be 

required for water bodies containing water quality limited segments. Sinker Creek and Rabbit Creek 

were the only streams originally identified in the Sub-basin assessment as 303(d) listed streams. 

Sinker Creek still remains listed for temperature. 

Standard Operating Procedures 

• The BLM’s management mandate authorizes only those uses and activities that comply 

with State water quality standards. Uses and activities will be managed to meet water 

quality standards on water quality limited stream segments. 

• Implement water resource objectives and maintain or improve water quality. Public lands 

adjacent to stream segments not meeting State water quality standards and/or Proper 

Functioning Condition (PFC) will be managed to produce an upward trend in the 

structure and composition of key riparian/wetland vegetation, as well as the desired 

physical characteristics of the stream channel. 

• To comply with State water quality standards, BLM takes the following actions to 

address Section 303(d) listed stream segments in the NCA: 

o Assess the effect of management actions on Section 303(d) listed streams and other 

water bodies. 

o For water bodies that remain on the 303(d) list and are affected by BLM management 

activities, BLM will develop or adjust management actions necessary to restore water 

quality and meet Idaho standards. The BLM will work with State agencies and local 

Tribes to set priorities and timelines for addressing listed water bodies. The BLM 

will also develop Water Quality Restoration Plans to address the water quality 

parameter at issue. 

• Grazing practices will provide sufficient residual vegetation to improve, restore, and/or 

maintain hydrologic functioning, and to provide plant species diversity and structure for 

quality habitat. 

• Conduct aggressive weed suppression activities at the TWMA. Other riparian areas 

infested with noxious weeds should also be treated, as weeds are identified. 

 
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Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.8 Visual Resources 2-12 

Water Quality, Riparian and Wetlands Objectives and Management Actions 

Objectives: 

Rivers, streams and reservoir shorelines will have appropriate aquatic-riparian habitat.

Management Actions: 

Treat up to 20 acres of TWMA decadent wetland vegetation with prescribed fire each year for five 

years. 

Restore 80 acres of the TWMA wetlands within five (5) years to achieve good ecological condition. 

Construct an additional pond (approximately 20-acres) at the TWMA to increase habitat for migrant 

shorebirds and nesting waterfowl. 

Improve up to two miles of riparian/wetland habitat annually. 

Remove exotic trees and shrubs and plant cottonwood, willow, and other desirable trees and shrubs 

on up to 40 miles of riparian and wetland wildlife habitat. 

Initiate biological weed control measures as a priority. When biological weed control methods are 

not feasible, BLM will use approved herbicides, tillage, and prescribed fire as appropriate. 

Protect and restore all river, stream, and reservoir shorelines (approximately 101 miles) to maintain 

or enhance fisheries and aquatic-riparian habitat. 

Priest Ranch (340 ac), TWMA (300 ac) Gold Isle (120 ac), and Cove Recreation Site (100 ac) will 

be closed to livestock grazing. Kuna Butte (3,400 ac) of the Sunnyside Spring/Fall Allotment and 

Pasture 8B (3,040 ac) of the Battle Creek Allotment will only be grazed for the purpose of meeting 

specific NCA resource management objectives, under a fuels/weed reduction contract or as a 

temporary non-renewable grazing authorization (Grazing Map 1). Prior to grazing, an environmental 

analysis will be completed to identify impacts and develop appropriate mitigations. In addition to 

the above, livestock grazing in the Snake River Pasture (1300 ac)of the Melba Seeding Allotment, 

located downstream from Swan Falls Dam, will be restricted to the dormant season to reduce 

conflicts with spring and summer recreational use along the Snake River. 

2.8 VISUAL RESOURCES 

Rationale 

Section 102(a)(8) of FLPMA states that public land will be managed to protect the quality of scenic 

values and, where appropriate, to preserve and protect certain public land in its natural condition. 

Section 101(b) of NEPA requires Federal agencies to “assure for all Americans...aesthetically 

pleasing surroundings”. Guidelines for the identification of Visual Resource Management (VRM) 

classes on public land are contained in BLM Handbook 8410-1, Visual Resource Inventory. The

establishment of VRM classes is based on an evaluation of the scenic qualities of the landscape, 

public sensitivity toward certain areas (e.g. special management areas, travel corridors, and landscape 

settings), and the location of affected land from primary travel corridors (distance zoning). 

Approved VRM objectives (classes) provide the visual management standards for the approval, 

design and development of future projects and for rehabilitation of existing projects. 

Visual design considerations will be incorporated into all surface disturbing projects regardless of size 

or potential impacts. Emphasis is placed on providing these inputs during the initial planning and 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.10 Idaho Army National Guard (IDARNG) 2-13

design phase so as to minimize costly redesign and mitigation at later phases. Every effort is made to 

inform potential applicants of the visual management objectives so visual design considerations can 

be incorporated into initial planning and design efforts. 

Visual Resources Objectives and Management Actions 

Objectives: 

Protect the visual resources of historic areas with a secondary emphasis on the Snake River Canyon. 

Management Actions: 

Manage the areas along the Oregon Trail and the Snake River Canyon as VRM Class II, the OTA as 

Class IV and remaining areas as Class III. [Visual Resource Management (VRM) Map] This will 

provide reasonable protection of the Oregon Trail and flexibility in managing the remainder of the 

NCA. 

2.9 WILD HORSES AND BURROS 

Rationale 

About 3,400 acres (7%) of the 51,000 acre Black Mountain Herd Management Area (HMA) is 

located within the NCA. Due to its proximity to Highway 78 and other competing uses in the area, 

this portion of the HMA receives minimal use by wild horses; therefore the HMA will continue to be 

managed in conformance with requirements in the Owyhee RMP. 

2.10 IDAHO ARMY NATIONAL GUARD (IDARNG) 

Rationale 

The IDARNG conducts military training activities in the 138,500-acre OTA (all ownerships) under 

the authority of an MOU, which was last amended in 2002. Among other things, that amendment 

extended the term of the MOU to 30 years, and provided for additional amendments at the conclusion 

of the RMP process to incorporate decisions that affect operational aspects of the OTA. The Impact 

Area is closed to public access for safety purposes. The closure is incorporated as an Ada County 

ordinance to protect the public from the potential safety and health hazards related to live firing, 

unexploded ordnance, and munitions-related chemical soil contamination. 

Standard Operating Procedures 

• Military training activities will be restricted from sensitive resource areas and cultural 

resources. 

• Existing firing ranges, support and maintenance facilities, and utilities will be operated, 

maintained, and upgraded by IDARNG, as authorized under BLM ROWs. 

• OTA road improvements and maintenance, fence repair, sign maintenance, and public 

notification of training activities are authorized or required through the OTA MOU. 

• IDARNG has responsibility for (1) initial attack for fires within the OTA (2) maintenance 

of a BLM-authorized firebreak system, (3) hazardous fuels management within the 

Impact Area, and (4) strict control of ignition sources (pyrotechnics and tracer 

ammunition) in times of high fire danger. 
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Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.11 Lands and Realty 2-14 

Idaho Army National Guard Objectives and Management Actions 

Objectives: 

Authorize military training in a manner that reduces impacts to existing shrub habitats, supports 

BLM habitat restoration projects, and provides modified and/or new areas to enhance military 

training opportunities. 

Management Actions: 

Recommend to Congress, through the Secretary of the Interior, that the OTA Impact Area be 

withdrawn to the Department of Defense (DoD), with the IDARNG having administrative authority 

for all uses in the Impact Area, including livestock. 

Allow recreational activities within the OTA outside of the Impact Area. (IDARNG Map) 

Require all military vehicles from outside the Treasure Valley area to be washed prior to entering 

the OTA. 

Incorporate into the OTA law enforcement Standard Operating Procedures (SOPs) a requirement to 

monitor and report public contacts/incidents in the OTA. 

Authorize one 5-acre and one 50-acre excavation-training site. (IDARNG Map) 

Authorize temporary or permanent military drop zones on a case-by-case basis. 

Locate military assembly and bivouac areas in existing, hardened sites adjacent to designated roads 

in the Bravo Area and as needed throughout the rest of the OTA in non-shrub sites. Where 

appropriate, BLM will authorize IDARNG to gravel or cinder frequently used sites. 

Require IDARNG to avoid shrub stands with 10% or greater canopy cover during military training 

activities. 

Restrict vehicle maneuver training to designated routes in the 22,300-acre Bravo Area. This 

restriction becomes effective after the authorization for an additional 4,100 acres (expanded 

Maneuver Area) goes into effect on land adjacent to the existing OTA boundary. (IDARNG Map) 

2.11 LANDS AND REALTY 

Rationale 

The NCA Lands and Realty program is composed of discretionary and non-discretionary cases. 

Nondiscretionary cases are application-generated proposals that BLM is required to process, such as 

ROW, land use permits, and various leases. Congress has delegated BLM discretionary authority to 

determine if specific proposals merit authorization and, if so, where and under what terms and 

conditions an authorization should be granted. 

Discretionary cases consist largely of land adjustment proposals that BLM proactively generates as 

well as proposals that are filed by outside sources. The BLM has full discretion to determine whether 

to act on specific proposals. In its evaluation process, BLM determines whether a proposal is feasible, 

is in the public interest, and if sufficient personnel and funding are available to process the case. Land 

adjustment proposals primarily involve the acquisition of in-holdings and the blocking up of Federal 

ownership to facilitate management and reduce conflicts with adjacent landowners. 

Designation of utility corridors and ROW avoidance areas are non-discretionary actions (see Utility 

and Communication Corridors, Section 2.17). Areas designated as either suited or unsuited for a 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.11 Lands and Realty 2-15

specific use is a landscape-scale RMP decision, and bears heavily on future ROW applications. An 

existing utility corridor crosses the extreme eastern corner of the NCA. The utility industry requested 

that an additional corridor be designated. Related to this issue, the NCA possesses certain resources 

and other values that could be impacted by utility or other types of development. As such, the 

designation of a ROW avoidance area(s) is appropriate to protect these sensitive resources. 

The original NCA boundary was located largely through negotiations with individual landowners 

following a general determination of the foraging needs of prairie falcons. The boundary was located 

on property lines and other administrative boundaries, and does not conform to easily identifiable 

landmarks, such as roads, railroads, pipelines, transmission lines, etc. Because of this, both land 

managers and users have difficulty determining the exact boundary in many locations. To improve 

management and facilitate use, Congress will be requested to realign the boundary. 

Standard Operating Procedures 

• All lands and realty proposals undergo site-specific NEPA analysis, and must be 

compatible with the purposes for which the NCA was established. 

• Tribal and public access needs will be considered in all land tenure adjustments. 

• Retain public lands containing important cultural resources and plant habitat unless they 

can be exchanged for lands containing better habitat and/or more significant resource 

values. 

• Land exchanges should enhance or at least not adversely affect raptor populations or their 

habitat.

• Lands that are acquired for, or that otherwise become a part of the NCA, will be managed 

under the requirements of the NCA-enabling legislation, and the management will be 

consistent with the adjacent NCA public lands as described in the RMP. 

• Public lands removed from the NCA by virtue of a boundary adjustment will be managed 

consistent with the BLM land use plan(s) in effect for the adjacent public lands.

• Land tenure adjustments (exchanges, purchases, donations, etc.) will be evaluated on a 

case-by-case basis, and completed only when in the public interest and consistent with 

the NCA-enabling legislation.

Lands and Realty Objectives and Management Actions 

Objectives: 

Consolidate public land ownership to enhance administration and improve resource management. 

Meet the needs of the public in a manner that minimizes impacts on resources consistent with NCA 

legislative requirements. 

Management Actions: 

Retain all public lands in the 43,000-acre avoidance area to protect the visual corridor along the 

Historic Oregon Trail and the resources along the Snake River canyon. (Lands Map 1) 

As opportunities arise, acquire scattered State and private lands within the NCA to improve 

management. 
 Snake River Birds of Prey NCA 

Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.12 Livestock Grazing 2-16 

Lands and Realty Objectives and Management Actions 

Recommend to Congress, through the Secretary of the Interior, that the OTA Impact Area be 

withdrawn to the Department of Defense (DoD), with the IDARNG having administrative 

authority for all uses in the Impact Area, including livestock grazing. 

Recommend to Congress, through the Secretary of the Interior, that the NCA boundary be 

realigned to areas more easily identified on the ground. (Lands Map 2) 

Restrict major utility developments to the two utility corridors identified. (Lands Map 3) 

Include in all BLM authorizations permitting surface disturbing activities (non-grazing), 

requirements that (1) affected areas be reseeded with a perennial vegetative cover, and (2) surface 

disturbing activities be located at least a half-mile from occupied sensitive plant habitat. 

Require permit holders in slickspot peppergrass habitat to conform to applicable conservation 

measures from the CA (Appendix 8). 

2.12 LIVESTOCK GRAZING 

Rationale 

Section 3(a)(3) of the Act establishing the NCA provides that uses of public lands existing on the date 

of enactment, including livestock grazing, shall be allowed as long as they are consistent with the 

purposes for which the NCA was established. It is BLM’s intent to manage livestock grazing in a 

manner that achieves objectives related to the conservation, protection, and enhancement of raptor 

populations and habitats. 

Rangelands should be meeting Idaho S&Gs or making significant progress toward meeting them. 

When rangelands meet standards, they are providing for proper nutrient cycling, hydrologic cycling, 

and energy flow. Where livestock grazing is found to be a factor in not meeting a standard(s), 

stocking levels, duration, and season of use are adjusted to help the area progress towards meeting the 

standard(s). 

Standard Operating Procedure 

• Grazing allocations, which include stocking levels, seasons and duration of use, would be 

determined through the Idaho S&G process, which would include the potential for 

increases or decreases in authorized animal unit months (AUMs). 

• Grazing permits and livestock facilities will be authorized through the Idaho S&G 

process. 

• Grazing management practices: 

o Provide for periodic rest and/or deferment during critical growth stages of key forage 

plant species and allow sufficient re-growth to meet the plants’ needs for 

maintenance and reproduction. 

o Provide for adequate amounts of vegetative ground cover and litter (determined on an 

ecological site basis) to support infiltration and soil stability, protect resources, and 

maintain site productivity. 
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Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.12 Livestock Grazing 2-17

o Provide sufficient residual vegetation to shade stream channels, provide cover, 

capture sediment, and stabilize streambanks and channels so that streams are properly 

functioning. 

o Provide sufficient residual vegetation to maintain wetland functions, including 

dissipating water energy, capturing sediment, recharging ground water, stabilizing 

shorelines and streambanks, and providing structure for wildlife habitat appropriate 

to site potential. 

• Grazing management practices will be designed and scheduled to support vegetation 

management projects [restoration, fuels and Emergency Stabilization and Restoration 

(ESR)]. 

o Areas treated for restoration or rehabilitation purposes will be rested from livestock 

grazing for whatever time is necessary for adequate recovery and/or seedling 

establishment, up to ten (10) years. 

• Manage grazing in accordance with conservation measures listed in the CA. (Appendix 

8) 

Livestock Grazing Objectives and Management Actions 

Objectives: 

Livestock grazing would be managed to maintain or enhance prey habitat and reduce competition 

for forage in perennial pastures between livestock and Piute ground squirrels. 

Management Actions: 

As part of the OTA Impact Area withdrawal, IDARNG would assume responsibility for livestock 

management in the Impact Area. 

Consider and when appropriate, retire all or portions of grazing permits in deference to wildlife 

habitat management when opportunities arise. 

Suspend the adjudicated AUMs for treated areas during treatment establishment. 

Use livestock exclosures to protect sensitive plants or their habitat, where needed. 

The BLM authorized officer determines through the Idaho S&G process when, how, and to what 

extent livestock grazing will be authorized when a seeding has been determined to be successful to 

ensure that future livestock grazing is managed to maintain the long-term habitat quality of the 

area. 

Use grazing on a site-specific basis for hazardous fuel reduction and maintenance of fuels 

management projects, including up to 1,500 acres of greenstrips and firebreaks. (Grazing Map 2) 

Livestock grazing in annual-dominated areas will be managed to leave sufficient residual litter 

after grazing for small mammal food and cover, and watershed protection. 
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2.13 Mineral Resources 2-18 

Livestock Grazing Objectives and Management Actions 

Priest Ranch (340 ac), TWMA (300 ac) Gold Isle (120 ac), and Cove Recreation Site (100 ac) will 

be closed to livestock grazing. Kuna Butte (3,400 ac) of the Sunnyside Spring/Fall Allotment and 

Pasture 8B (3,040 ac) of the Battle Creek Allotment will only be grazed for the purpose of meeting 

specific NCA resource management objectives, under a fuels/weed reduction contract or as a 

temporary non-renewable grazing authorization (Grazing Map 1). Prior to grazing, an 

environmental analysis will be completed to identify impacts and develop appropriate mitigations. 

In addition to the above, livestock grazing in the Snake River Pasture (1300 ac) of the Melba 

Seeding Allotment, located downstream from Swan Falls Dam, will be restricted to the dormant 

season to reduce conflicts with spring and summer recreational use along the Snake River. 

2.13 MINERAL RESOURCES 

Rationale 

Section 3(d) of the NCA-enabling Act withdrew public lands in the NCA from entry, appropriation, 

or disposal under the general mining laws, mineral and geothermal leasing laws, and mineral material 

disposal laws. The Act provided for the continued extraction of mineral materials (sand, gravel, clay, 

building stone, and decorative rock) through mineral material sales and free use permits from sites 

that existed prior to the establishment of the NCA; however, no new mineral material sites may be 

established. BLM manages 16 active mineral material sites with another 29 previously operated, but 

currently inactive sites. Mineral material sales and free use permits will be authorized to the extent 

compatible with the purposes for which the NCA was established. 

Mineral Materials Objectives and Management Actions 

Objective: 

Authorize mineral material sales and free use permits from existing active and inactive sites to the 

extent compatible with the NCA-enabling legislation.

Management Actions: 

No new mineral material sites will be established. 

Authorize mineral material extraction from compatible active mineral material sites. Inactive sites 

could be reopened for operation if compatible. 

2.14 RECREATION 

Rationale 

FLPMA recognized recreation as an important component of multiple use management. Dispersed, 

unstructured activities typify most of the recreational uses occurring across the NCA. BLM Manual 

8300 (Recreation) directs the BLM to designate administrative units known as Special Recreation 

Management Areas (SRMAs) where there is a need for a higher level of managerial presence or 

investment than is typical of most public land. Public land outside of SRMAs is designated as an 

Extensive Recreation Management Area (ERMA) where limited resources are required to provide 

extensive, unstructured recreational activities. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.14 Recreation 2-19

The NCA’s legislation states that “...the Secretary may provide for visitor use of the public lands in 

the conservation area to such extent and in such manner as the Secretary considers consistent with the 

protection of raptors and raptor habitat, public safety, and the purposes for which the conservation 

area is established.” Educational values are also recognized and given a major management emphasis. 

The BLM does not expect to provide the full range of experiences because the primary management 

focus in the NCA is the protection of raptor populations and habitat. 

Standard Operating Procedures 

• Requests for recreational special use permits will be evaluated on a case-by-case basis to 

determine compatibility with NCA management objectives.

Recreation Objectives and Management Actions 

Objectives: 

Provide a range of developed and undeveloped recreational opportunities with existing and new 

amenities, while protecting resource values, minimizing user conflicts, and promoting public safety. 

Management Actions: 

Recreation permits will not be issued in occupied sensitive plant habitat. 

Prohibit rock climbing and rappelling due to safety and resource concerns. 

Limit open fires to established (improved) campsites. Additional restrictions may be imposed during 

periods of high fire danger. 

Prohibit the use of paintball guns and equipment within the Snake River Canyon and within 1/4 mile 

of the canyon rim. 

Retain Canyon and Plateau shooting restrictions as described below (Recreation Map 2). Use of 

firearms within these areas for animal damage control and law enforcement are exempt from the 

shooting closure. 

• Plateau (37,700 acres) – closed year-round to the discharge of rifles and pistols. 

• Snake River Canyon (23,500 acres) – closed year-round to the discharge of rifles and pistols 

except for deer hunting season in Hunting Unit 40 on the south side of the Snake River. 

Shotguns and muzzleloaders will be allowed from September 1 to February 14. The width of the 

closed area is 1/2 mile from the river or 100 yards back from the canyon rim, whichever is 

greater. 

Manage the NCA in a “roaded natural” setting, with 4,400 acres designated for semi-primitive, nonmotorized opportunities in the western portion of the Snake River Canyon and around the Grandview 

area. (Recreation Map 3) 

Maintain and expand both Dedication Point and Cove Recreation Site as needed to meet the 

increasing demands for developed recreational facilities. Develop five additional recreation sites with 

Black Butte, Three Pole, Kuna Butte, Guffey Butte, and Initial Point being examples. (Recreation 

Map 4) Develop small secondary sites as necessary to meet user needs. 
 Snake River Birds of Prey NCA 

Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.15 Renewable Energy 2-20 

Recreation Objectives and Management Actions 

Designate four SRMAs based on significant recreational, scenic or cultural values. (Recreation Map 

1) 

• Snake River Canyon SRMA – This SRMA consists of 22,300 acres in the Snake River Canyon 

downstream from Grandview, Idaho that is managed for the protection of cultural and scenic 

values. 

• Owyhee Front SRMA – This SRMA consists of 6,300 acres located west of State Highway 78. 

The boundary extends beyond the NCA into Owyhee Field Office lands, and is managed as part 

of the larger SRMA. If the NCA boundary is realigned as proposed in the Lands and Realty 

Section, this SRMA would no longer be within the NCA. The purpose of the SRMA is to 

provide enhanced management of recreational uses.

• C.J. Strike SRMA – This SRMA consists of 20,000 acres surrounding C.J. Strike Reservoir along 

the Snake River. The purpose of the SRMA is to provide enhanced recreation management 

associated with the reservoir, and protection of the Oregon Trail adjacent to the reservoir. 

• Oregon Trail SRMA – This SRMA consists of approximately 7,900 acres lying along a one-mile 

wide (1/2 mile on each side) corridor of the South Alternate of the Oregon Trail. The purpose of 

the SRMA is to protect the visual and historic values of the Trail. 

Wild & Scenic Rivers Objectives and Management Actions 

Objectives: 

Protect outstandingly remarkable values associated with rivers and streams. 

Management Actions: 

Recommend four segments of the Snake River as not suitable for inclusion in the WSR system. 

(Recreation Map 5) The existing NCA legislation provides protection for the outstandingly 

remarkable values associated with the Snake River Canyon. 

2.15 RENEWABLE ENERGY 

Rationale 

The NCA supports the densest concentration of nesting raptors in North America, as well as 

incredible numbers of migrating raptors. It also provides important habitat for songbirds, upland 

birds, bats, and waterfowl. Wind energy development projects located in almost any location in the 

NCA could pose potentially unacceptable hazards for one or more of these species during certain 

seasons. As such, wind energy developments are incompatible with the purposes for which the NCA 

was established and are not an appropriate use in the NCA. 

2.16 TRANSPORTATION 

Rationale 

Federal regulations require BLM to designate all public lands as either open, limited, or closed to offhighway vehicles (OHV) for the purpose of (1) meeting public demand for OHV activities, 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.16 Transportation 2-21

(2) protecting natural resources, (3) providing for public health and safety, and (4) minimizing 

conflicts between user groups. Regulations pertaining to OHV planning include 43 CFR 8342; EO 

11644, Use of Off-Road Vehicles on Public lands (37 FR 2877: Feb. 9, 1977) and EO 11989, OffRoad Vehicles on Public lands (42 FR 26959h: May 25, 1977). 

Standard Operating Procedures 

• The 53,000-acre OTA Impact Area is closed to public access for safety reasons, and, 

therefore, is not reflected in the acreages identified as closed below. 

• Route designations only apply to BLM managed lands and are not applicable to State and 

private lands or County roads. In addition, paved and graveled roads shown on the 

Transportation Map were identified as part of the base transportation system, and remain 

open. 

• The RMP identifies areas as open, closed or limited in terms of type and timing of 

vehicle use. A route inventory was completed in March 2004. In areas identified as 

limited to existing routes, this inventory is the basis for the identification of “existing”. 

• Hard surfaced, graveled routes and county roads are identified as part of the “base road 

network” and will remain open. Established ROW may be limited to the use for which 

they were authorized.

Route Evaluation Criteria 

In order to make systematic and consistent decisions relative to specific route designations, criteria 

are needed to help BLM determine if the route(s) should be open, limited or closed. 

The criteria are identified below. It is important to note that identification of specific resources or 

potentially conflicting uses does not automatically necessitate the closure of the route, but merely 

identifies the need for more in-depth analysis of the route. Route designations were not addressed 

through the RMP process, but will be done through a separate environmental analysis. 

The following questions will be answered during the analysis of each route. 

1. Is the route a paved or gravel surface, an officially recognized ROW, an officially 

recognized County or State route, or officially recognized in a Federal-planning 

document? 

2. Is the continued use of the route likely to impact a State or Federal SSS or its habitat, 

cultural or other specially protected resource, or any special area designations? 

3. Is the route a regional one that serves more than one planning sub-region, a principal 

means of connectivity within a sub-region, which provides commercial or private 

property access? 

4. Does the route contribute to recreational opportunities, route network connectivity, public 

safety, and/or public use access opportunities? 

5. Can the commercial, private property, or public use of the route be met by another route 

within this route’s zone of influence? 

6. Can impacts to identified sensitive resources be mitigated or avoided?
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Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.16 Transportation 2-22 

7. Would route closure or other mitigation address cumulative effects on other resources not 

identified as sensitive or specially protected? 

8. Is this consistent with the RMP and the intent of the NCA-enabling legislation? 

Once the above questions are answered, BLM will develop proposed route designations, which would 

show routes as open, limited, or closed. The public will have an opportunity to review and provide 

comment on route designation proposals, and alternatives will be based on public comment. 

The following tables reflect the criteria that will be used to evaluate each route. The distances reflect 

a proximity that requires further analysis and do not necessarily mean a route must be closed if it is 

within the specified distance. 

Transportation Table 2.1. Route Designation Criteria – Route Use. 

Route Use/Need Access Distance from route (ft) 

Range Improvements – Commercial Ranching Facility 

Fence 330 

Pipeline 330 

Water Sites 330 

Cattle Guard 150 

Corral 300 

Trailing Route 165 

Administrative Use Sites 

Monitoring Site 330 

Wildlife Resource (guzzlers, exclosures, etc.) 330 

Vegetation Treatment (including rehabilitation sites) 330 

Weather Station 330 

Utilities 

Cell Site/Communication Site 330 

Electrical Transmission 330 

Irrigation Canal 330 

Gas Pipeline 330 

Telephone 330 

Mining 

Mining Claim 330 

Mineral Material Site 330 

Tribal 

Treaty Areas N/A 

Traditional Use Areas (significant landform features such as 

caves, mesas, etc.) 

1320 

Private Property 

Access 330 
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Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.16 Transportation 2-23

Transportation Table 2.1. Route Designation Criteria – Route Use. 

Route Use/Need Access Distance from route (ft) 

Military 

Facility/Training Site 330 

Access 330 

Public Use Sites 

Road Kiosk, Campground, Etc 330 

Special Recreation Use Permits 

Commercial 1,320 

Competitive 1,320 

Large Group 1,320 

RS 2477 

Assertion N/A 

Recognized ROW N/A 

Transportation Table 2.2. Route Designation Criteria – Concerns. 

Environmental/Cultural Concerns Distance from route (ft) 

High Density Route Polygon (Habitat Fragmentation) 

Over 4 miles per square mile N/A 

303d -Water Quality Impaired Streams 

Adjacent to or Along 165 

Proximate (within 1⁄2 mile) 2,640 

Raptors 

Nesting Area 1,650 

Ground Nesting or Burrowing Raptors 1,650 

Special Status Species (Plant and Animal) 

Types 1 and 2 in or through 2,640 

Types 3-5 in or through 1,320 

Riparian 

Near streams, riparian areas, or floodplains 165 

Soils 

Route subject to erosion concerns N/A 

Cultural Sites 

Proximate Register/Register Eligible/Undetermined 1,650 

Through Register/Register Eligible/Undetermined 165 
 Snake River Birds of Prey NCA 

Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.16 Transportation 2-24 

Transportation Table 2.3. Route Designation Criteria – Current Use. 

Current Recreational Use/Users List Type of Use * 

Equestrian Primary/Secondary 

Mountain Biking Primary/Secondary 

OHV Hill Climbing Primary/Secondary 

Parking Area/Trailhead Primary/Secondary 

Snowmobile Primary/Secondary 

Special Recreation Use Permits Primary/Secondary 

Technical 4 WD/Rockcrawling Primary/Secondary 

Boating/Water/Fishing Access Primary/Secondary 

Camping Secondary 

Hiking – Popular Area Primary/Secondary 

Hunting – Popular Area Primary/Secondary 

Motorcycle Trials Primary/Secondary 

ATV and Motorcycle Trail Riding Primary/Secondary 

Mountain/Rock Climbing Secondary 

Public Use Site Access/Interpretive Panel Primary/Secondary 

Rockhounding Primary/Secondary 

Shooting Primary/Secondary 

Vistas, Sightseeing, Photography Primary/Secondary 

Wildlife Watching Primary/Secondary 

Special Recreation Use Permit – Commercial Primary/Secondary 

Special Recreation Use Permit – Competitive Primary/Secondary 

Special Recreation Use Permit – Large Group Primary/Secondary 

Other Primary/Secondary 

*Primary = Route used for a specific activity 

 Secondary = Route used to get to a specific activity
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.17 Utility and Communication Corridors (Land Use Authorizations) 2-25

2.17 UTILITY AND COMMUNICATION CORRIDORS (LAND USE 

AUTHORIZATIONS) 

Rationale 

The oil and gas, utility, and communication industries have a continuing need to upgrade and increase 

their infrastructure developments. As such, BLM will address ROW applications for developments, 

such as communication sites, electric transmission lines, and oil and gas pipelines. Major utilities will 

be restricted to the two corridors identified. (Lands Map 3) Potential developments within these 

corridors would be compatible with the purposes for which the NCA was established. Wind energy 

development is incompatible with the conservation, protection, and enhancement of raptor 

populations and habitats, and as such, will not be authorized in the NCA. (See Lands and Realty, 

Section 2.11.) 

Standard Operating Procedures 

• Land containing significant cultural resources will be protected during any use-authorized 

project installation or during use. 

Transportation Objectives and Management Actions 

Objectives: 

Provide motorized access to the majority of the NCA while reducing the number of unnecessary routes, 

and increasing non-motorized opportunities. 

Management Actions: 

Designate and sign up to 20 miles of non-motorized trails to create a trail network. 

Restrict vehicles to designated routes in the Guffey Butte-Black Butte Archaeological District.

Include the current Canyon Creek OHV area (approximately 300 acres) in the OHV “ limited” 

designation. However, that designation would not take effect for one year following the signing of the 

ROD to give a qualified entity or local government time to develop an acceptable management plan for 

the area. An acceptable management plan would include opportunity for ownership and/or 

responsibility for management, maintenance and supervision of the area, and would prevent impacts 

from spreading outside of the area. If this does not occur within one year, OHV cross-country travel 

will not be allowed. 

Manage vehicle access according to the following OHV Area Designations. (Transportation Map) 

Open – 0 acres 

Limited – 428,400 acres (limited to designated routes) 

Closed – 4,400 acres 

Close the following areas to motorized vehicles: 

• Halverson Bar – 1,150 acres 

• Wees Bar – 1,200 acres 

• TWMA – 320 acres 

• Cove – 1,600 acres 

• Gold Isle – 150 acres 
 Snake River Birds of Prey NCA 

Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.18 Wildland Fire Ecology and Management 2-26 

• Tribal interests and public access needs will be considered in all utility and 

communication site grants. 

• Important sensitive species and other wildlife habitat will be protected and monitored if a 

land use authorization is granted. 

• VRM Class II management areas will not be available for utility corridors. 

• Land use authorizations will enhance or at least not adversely affect raptor populations or 

their habitat. 

• To protect occupied SSS habitat adjacent to construction activities, temporary or 

permanent project fencing is required prior to the implementation of ground disturbing 

activities. 

• Surface disturbing activities and/or human developments will be located with an 

appropriate buffer to protect occupied, sensitive plant habitat. 

• Surface disturbing activities are not authorized in areas supporting SSS unless the action 

could be appropriately mitigated. 

• Include in all BLM authorizations permitting surface disturbing activities (non-grazing), 

requirements that (1) affected areas be reseeded with a perennial vegetative cover, and (2) 

surface disturbing activities be located at least a half-mile from occupied sensitive plant 

habitat. 

Utility and Communication Corridor Objectives and Management Actions 

Objectives: 

ROW authorizations for utility developments will be compatible with the purposes for which the NCA 

was established, emphasizing habitat protection with economic development. 

Management Actions: 

Restrict major utility developments to the two utility corridors identified. (Lands Map 3) 

Retain the five existing communication sites and consider new locations on a case-by-case basis. 

Include in all BLM authorizations permitting surface disturbing activities (non-grazing), requirements 

that (1) affected areas be reseeded with a perennial vegetative cover, and (2) surface disturbing 

activities be located at least a half-mile from occupied sensitive plant habitat. 

Require all permit holders in slickspot peppergrass habitat to conform to applicable conservation 

measures from the CA. (Appendix 8) 

Retain all public lands in the 43,000-acre ROW avoidance area to protect the visual corridor along the 

Historic Oregon Trail and the resources along the Snake River canyon. (Lands Map 1) 

2.18 WILDLAND FIRE ECOLOGY AND MANAGEMENT 

Rationale 

In order to conserve a dwindling ecosystem component, remnant shrub habitat would have the highest 

priority for protection after human life and property, including the Wildland Urban interface (WUI). 

All wildland fires would receive an Appropriate Management Response (AMR) which allows for a 

full range of management actions ranging from full, aggressive and costly suppression tactics to a 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.18 Wildland Fire Ecology and Management 2-27

confine or contain strategy using existing barriers, predicted weather changes, or minimal suppression 

activities. 

Wildland fire use is the practice of using wildland fire for resource benefit while limiting the cost of 

fire suppression. Because of the extensive shrub loss within the NCA, wildland fire use projects will 

not be used. AMR would be used first and foremost to protect life and property while emphasizing 

firefighter and public safety. AMR is adaptable and appropriate in providing for a broad range of 

responses based on hazards, threats, resource management objectives, values at risk, tactical concerns, 

etc. 

Standard Operating Procedures 

• Extinguish fires with the least possible surface disturbance. 

• In order to minimize risk to firefighters and reduce wildland fire suppression costs, allow 

wildland fires to burn to natural fuel breaks, where and when appropriate. 

• Follow management direction in the District Oregon Trail Management Plan and the 

NCA Cultural Resource Management Plan. 

• Conduct fire suppression and fuels management activities in accordance with 

conservation agreements and recovery plans. 

• Use Minimum Impact Suppression Tactics (MIST) when appropriate to mitigate potential 

adverse effects of fire suppression on values at risk, i.e., cultural sites such as the Oregon 

Trail, and areas with highly erosive soils. 

• Minimize the spread of annual grasses and other invasive non-native species. 

• Where possible, equipment used for suppression and prescribed fire is to be cleaned 

before arriving on-site, i.e., vehicle wash stations set up in base camps. Staging areas and 

fire camps should be located on sites free of invasive, non-native species. 

• Fuels projects will be designed to protect active raptor nests with an appropriate speciesspecific buffer, if needed. 

• Pre- and post-burn treatments will be used to reduce the overall threat of invasive, nonnative species establishment and spread. 

• Support fire hazard reduction efforts to reduce fire hazards in and around WUI areas, and 

in areas of high resource value. 

• IDARNG has responsibility for (1) initial attack for fires within the OTA (2) maintenance 

of a BLM authorized firebreak system, (3) hazardous fuels management within the 

Impact Area, and (4) strict control of ignition sources (pyrotechnics and tracer 

ammunition) in times of high fire danger. 

• Fire suppression priorities are as follows: 

1. Threats to human life and structures in the WUI. 

2. Remnant shrub habitat, slickspot peppergrass sites, and habitat restoration projects. 

3. Fire-altered areas dominated by annual grasses (cheatgrass). 

• Habitat restoration will improve the overall health of the vegetation and return the Fire 

Regime Condition Classes (FRCC) closer to historic states. To this end, native and 

adapted non-native species will be seeded with low soil-disturbance techniques to meet 

the habitat needs of raptors and their prey base, reduce invasive species, and provide 
 Snake River Birds of Prey NCA 

Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.18 Wildland Fire Ecology and Management 2-28 

improved fire resistance. Mechanical, chemical, and biological treatments, as well as 

prescribed fire (when conducted under appropriate conditions), may be used to help 

restore native plant communities and reduce the size and occurrence of future wildfires. 

• The use of surface disturbing equipment is limited during fire suppression on areas 

containing significant natural or cultural values, including native shrub communities, the 

Oregon Trail, and identified paleontological resources. 

Wildland Fire Ecology and Management Objectives and Management Actions 

Objective: 

Protection of native plant communities is one of the highest priorities for fire suppression. 

Management Actions: 

Limit open fires to established (improved) campsites. Additional restrictions may be imposed during 

periods of high fire danger. 

Maintain or improve 136 miles of existing fuel breaks and construct approximately 12 miles of new 

fuel breaks. (Vegetation Map) 

Use grazing on a site-specific basis for hazardous fuel reduction and maintenance of fuels management 

projects, including up to 1,500 acres of greenstrips and firebreaks. (Grazing Map 2) 

Evaluate all burned areas for emergency stabilization and rehabilitation with the goal of restoring shrub 

and perennial grass communities. 

Use a combination of prescribed fire, herbicides and mechanical treatments where appropriate, on all 

vegetation treatment projects, including ESR. 

Implement the following actions consistent with the slickspot peppergrass CA (Appendix 8) to protect 

slickspot peppergrass and its habitat from wildfires: (1) occupied habitat has priority over the 

surrounding area, (2) use aggressive fire suppression tactics when occupied habitats are threatened, and 

(3) create and maintain fuel breaks around areas where frequent fires threaten habitat. 

Restore approximately 130,000-targeted acres of degraded small mammal and big game habitat. 

Habitat restoration priorities will be emphasized where it is most beneficial to raptor prey populations, 

rather than being limited to currently burned areas. 

Convert approximately 100,000 acres of annual grasslands to a perennial plant community through a 

combination of biological, chemical, and mechanical fuels management projects. This is in addition to 

habitat restoration projects. 

2.19 SPECIAL DESIGNATIONS 

(See Recreation, Section 2.14) 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 2 – Management Objectives and Management Actions 

2.20 Social and Economic Conditions 2-29

2.20 SOCIAL AND ECONOMIC CONDITIONS 

2.20.1 Economic Conditions 

Rationale 

FLPMA directs the BLM to manage public lands for multiple use purposes. This mandate, however, 

was modified by the 1993 NCA legislation, which requires BLM to provide for a multitude of uses, 

so long as each use is compatible with the purposes for which the NCA was established. The 

legislation, however, specifically withdrew the area from certain activities, including: (1) entry, 

appropriation, or disposal under the public land laws (Desert Land Entry, Carey Act, State of Idaho 

Admissions Act, etc.); (2) locatable mineral disposal; (3) mineral and geothermal leasing; and (4) 

mineral material disposal, with the exception that mineral materials could be made available from 

existing sites to the extent compatible with the purposes for which the NCA was established. 

Management actions that have a socio-economic impact come from the various resource programs 

and no specific management actions were developed for socio-economic development. 

2.20.2 Hazardous Materials 

Rationale 

The BLM is committed to reducing hazardous material situations on public lands. Federal agencies 

are required to comply with all Federal and State laws, regulations and policies regarding hazardous 

materials on public lands. 

The BLM policy requires that areas subject to hazardous materials accumulation from military 

activities be withdrawn to the DoD. 

Standard Operating Procedures 

• Utilize educational programs for public awareness of the impacts of hazardous materials 

on health, safety, and the environment.

• All authorizations providing for the use or storage of, or the potential for, hazardous 

materials would include special stipulations to assure human and natural resource safety. 

Hazardous Materials Objectives and Management Actions 

Objectives: 

Protect human health and safety and minimize environmental damage from hazardous materials. 

Management Actions: 

Authorize and manage land uses to reduce the occurrence and severity of hazardous material 

incidences. 

Recommend to Congress, through the Secretary of the Interior, that the OTA Impact Area be 

withdrawn to the Department of Defense (DoD), with the IDARNG having administrative authority for 

all uses in the Impact Area, including livestock. 
 Snake River Birds of Prey NCA 

Chapter 2 – Management Objectives and Management Actions Resource Management Plan and Record of Decision 

2.18 Wildland Fire Ecology and Management 2-30 

THIS PAGE INTENTIONALLY LEFT BLANK. 
TABLE OF CONTENTS 

CHAPTER 3 – PLAN IMPLEMENTATION AND MONITORING 

3.1 INTRODUCTION..................................................................................................................3-1 

3.2 ADAPTIVE MANAGEMENT ..............................................................................................3-1 

3.3 IMPLEMENTATION ............................................................................................................3-1 

3.4 MONITORING ......................................................................................................................3-2 

3.5 EVALUATION AND ASSESSMENT – FUTURE CHANGES TO THE RMP ..................3-8 

3.6 COLLABORATION IN IMPLEMENTATION AND MONITORING................................3-8 

LIST OF TABLES 

Table 3.1. Landscape-level Measures of the Effectiveness of Implementing the 

NCA RMP. Changes in these Indicators Will Help Determine Progress 

Toward Meeting DFC ...............................................................................................3-3 

Table 3.2. Landscape-level Measures of the Effectiveness of Implementing the 

NCA RMP. Changes in these Indicators Will Help Determine if 

Objectives are Being Met..........................................................................................3-5 

LIST OF FIGURES 

Figure 3.1. The Adaptive Management Process. .........................................................................3-1 

Chapter 3 – Plan Implementation and Monitoring 

3.1 Introduction 3-1

3.1 INTRODUCTION 

The success of the Snake River Birds of Prey National Conservation Area (NCA) resource 

management plan (RMP) will be measured by the degree to which it is implemented and the degree to 

which the Desired Future Conditions (DFC) are met. This chapter provides a framework to implement 

and monitor the various components of the proposed alternative described in Chapter 3 through an 

adaptive management process. 

3.2 ADAPTIVE MANAGEMENT 

The complexity and interconnectedness of natural processes and resource uses makes it impossible to 

completely understand all the components that make up the NCA and how they interact. Not only is 

knowledge incomplete, but the ecological systems are constantly changing through both natural and 

human-caused mechanisms. A dynamic planning process allows managers to apply new knowledge 

and understanding of processes to address these unknowns. Adaptive management is a continual 

process of planning, implementation, monitoring, and evaluation/assessment to adjust management 

strategies (Figure 3.1). Using the best available data, scientific information, and professional 

judgment, adaptive management allows managers to meet DFC and objectives by adjusting 

management throughout the life of the plan. Adaptive management improves the effectiveness of the 

plan by permitting dynamic responses to new data, changes in public expectations/desires, and a 

changing landscape. 

3.3 IMPLEMENTATION 

Implementation is the process of putting plans and decisions into effect. Following the adoption of the 

RMP, many of the actions identified will require implementation plans such as the designation of 

routes within areas identified as limited to designated routes, or a management plan for a Special 

Planning/Decision 

Implementation Evaluation and 

Assessment 

Monitoring 

Figure 3.1. The Adaptive Management Process. 
 Snake River Birds of Prey NCA 

Chapter 3 – Plan Implementation and Monitoring Resource Management Plan and Record of Decision 

3.4 Monitoring 3-2 

Recreation Management Area (SRMA). These plans will provide the site specific management 

emphasis necessary to fully achieve the RMP objectives for the area(s). 

In implementing this plan, BLM will focus its resources on the highest priority issues determined to 

have the greatest significance in meeting the needs of raptor and raptor prey populations. Other issues 

will be deferred until priority programs and projects are implemented. In setting priorities, the 

following factors would be evaluated. 

• Is this a primary purpose for the NCA? 

• Which geographic area will show the greatest return for the time and money invested? 

• Will the project benefit special resource values, such as SSP or cultural resources? 

• Does monitoring show we are making progress toward achieving the DFC? 

Implementation decisions represent the final approval of on-the-ground actions needed to implement 

the decisions identified in the RMP. These types of decisions generally require site-specific planning 

and National Environmental Policy Act (NEPA) analysis. The following are examples of 

implementation: 

• Fire Management – Site-specific fire and fuels management practices that are needed to 

meet the RMP decision to increase the number of acres receiving fuels treatments. 

• Idaho Army National Guard (IDARNG) – Developing support facilities or infrastructure 

based on changes in training. 

• Lands and Realty – Ensuring that authorized realty actions occurring in avoidance areas 

are consistent with the protection of the identified sensitive resource(s). 

• Livestock Grazing – Identifying allotment-specific grazing management practices for 

lands designated as open for livestock grazing. 

• Recreation – Developing SRMA management plans. 

• Transportation – Designating the travel management network for all areas identified as 

limited to designated routes in the RMP. 

The rate of implementation and overall management will be guided by budget allocations and 

developed in consultation with other agencies, Tribes, government entities, and collaborators. 

Specific priorities will be further refined during development and NEPA analyses of implementation 

and project plans. Priorities will be reviewed annually to help develop the work plan commitments for 

future years and will be driven, in part, by BLM’s success in making progress toward achieving the 

DFC. 

3.4 MONITORING 

RMP monitoring differs from activity or program specific monitoring in that it looks at progress on a 

landscape basis and focuses on trends in achieving objectives that will move closer to the DFC. 

Monitoring will focus on how the plan is implemented (implementation monitoring) and the 

effectiveness of the actions implemented (effectiveness monitoring). Although some program specific 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 3 – Plan Implementation and Monitoring 

3.4 Monitoring 3-3

monitoring currently occurs (i.e., livestock utilization, traffic counters), a comprehensive monitoring 

plan will be developed to insure adequate progress toward the goals and objectives of this RMP. 

Implementation monitoring will record what, when, where, and how the plan has been followed, 

including legal requirements and agency policies; occur at one-year intervals; and provide a basis for 

annual budgeting. 

Effectiveness monitoring will focus primarily on vegetation resources (for DFC) and, secondarily, on 

other resources (for objectives). Most resources and resource uses depend on the type and ecological 

condition of existing vegetation communities. The DFC generally calls for maintaining or increasing 

the amount of perennial grass and shrub cover. Effectiveness monitoring will focus on short- and 

long-term landscape-wide changes to perennial vegetation cover (Table 3.1). Key indicators will 

include the amount of: 

• shrub or perennial grass dominated communities that are converted to annual dominated 

communities by fire or failed vegetation treatments (desirable vegetation lost); 

• perennial grass/shrub or, to a lesser degree, perennial grass communities (desirable 

vegetation) present; and 

• connectivity between desirable vegetation communities (degree of fragmentation). 

Table 3.1. Landscape-level Measures of the Effectiveness of Implementing the NCA RMP. 

 Changes in these Indicators Will Help Determine Progress Toward Meeting DFC.

Indicator 

Management 

Area 

(BLM acres) Current 10-year3 20-year3 Trigger(s) 

Desirable 

Vegetation Lost 

Entire NCA <15,000 

acres 

<30,000 

acres 

Loss of >7,500 acres in 

a 5-year period 

Entire NCA 

(476,600) 2

39 46 58 

NCA outside 

the OTA 

(341,600) 

42 52 66 

1 

(96,700) 

66 75 90 

2 

(190,800) 

35 45 60 

3 

(54,100) 

30 35 45 

Failure of >20% of 

treatments over a 

5-year period. 

Desirable 

Vegetation Present1

OTA 

(134,900) 

32 32 39 Loss of 10% in 10 

years 
 Snake River Birds of Prey NCA 

Chapter 3 – Plan Implementation and Monitoring Resource Management Plan and Record of Decision 

3.4 Monitoring 3-4 

Table 3.1. Landscape-level Measures of the Effectiveness of Implementing the NCA RMP. 

 Changes in these Indicators Will Help Determine Progress Toward Meeting DFC.

Indicator 

Management 

Area 

(BLM acres) Current 10-year3 20-year3 Trigger(s) 

1 Moderate Moderate Low 

2 Moderate 

to High 

Moderate Moderate 

to Low 

3 High High Moderate 

Degree of 

fragmentation 

OTA Low to 

High 

Low to 

High 

Low to 

High 

Increase in the 

expected level of 

fragmentation. 

1 Expressed as a percentage of the area. 2 Total of the following general vegetation classifications: shrub/cheatgrass; cheatgrass; exotic annuals; Sandberg 

bluegrass/cheatgrass; shrubs, seeded; and bare ground. 3 Although 230,000 acres of vegetation treatments will occur, the 10- and 20-year projected values for “Desirable 

Vegetation Present” account for funding problems or unforeseen catastrophic events (i.e., fire, drought). 

Monitoring intervals will vary because of different responses to treatments or disturbances. Wildfire 

will result in the immediate conversion of shrublands to grasslands; therefore, changes can be 

monitored on a yearly basis. However, because fire conditions vary considerably between years, the 

trigger for change will occur at a longer interval. Establishing perennial grass and shrub communities 

through vegetation treatments will occur at a slower rate; therefore, changes from fuels and 

restoration treatments could be expected to be measurable at five-year intervals. Increasing the size 

and connectivity of perennial communities would occur over the long-term, and measurable changes 

could be expected at 10- or 20-year intervals. The triggers are meant as guidelines and could change 

as inventory, research, and experience indicate. 

Objectives to be monitored are organized by resource or resource use (Table 3.2). Monitoring is 

intended to identify broad trends that indicate improvements or changes that need to be addressed, 

and is not intended to be site-specific or address all objectives, activities, and resources. Some 

objectives have been paraphrased or combined, where appropriate. They are listed under the resource 

most directly affected by the action. 

Monitoring of key elements of the plan does not constitute a BLM decision, but merely provides the 

basis for adaptive management. Monitoring will be implemented over a period of years, and 

conducted in a cost-effective manner, often using data currently collected for other purposes, such as 

rangeland trend data. Monitoring may also include sampling, modeling or remote sensing to analyze 

landscape-wide progress. Monitoring methods will follow BLM or other appropriate protocols. 

The monitoring program will not be static, but will be periodically evaluated and adjusted as 

appropriate to ensure that the monitoring questions and standards remain relevant. As part of regular 

plan maintenance, some monitoring items could be discontinued and others added as knowledge and 

issues change. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 3 – Plan Implementation and Monitoring 

3.4 Monitoring 3-5

Table 3.2 Landscape-level Measures of the Effectiveness of Implementing the NCA RMP. 

Changes in These Indicators Will Help Determine if Objectives are Being Met. 

Objective Manage cultural resources by 

emphasizing mitigation and public 

interpretation. 

Indicator/Trigger for 

Adaptive Management 

Cultural 

Monitoring 

Method and 

Frequency 

Monitor a representative sample of 

significant cultural sites (including sites 

within the OTA) at least once every three 

years (1-3 year intervals). Create a 

mitigation plan based on the results of 

the monitoring. 

Monitor the Guffey Butte – Black Butte 

Archaeological District and the Oregon 

Trail for recreation, OHV, fire 

suppression, and rehabilitation/ 

restoration impacts (annually). 

Impacts to cultural 

resources that detract 

from the characteristics 

that make a site eligible 

for the National 

Register. 

Objective Emphasize protection and enhancement 

of raptor, raptor prey and other wildlife 

populations and habitats and expand 

areas useable by raptor prey and big 

game.

Indicator/Trigger for 

Adaptive Management 

Fish and 

Wildlife 

Monitoring 

Method and 

Frequency 

Monitor raptors and raptor prey 

populations to determine whether treated 

and untreated vegetation communities 

are meeting their needs (1-3 year 

intervals). 

Use monitoring data provided by IDFG 

(1-5 year intervals) for waterfowl, upland 

game, and big game species to identify 

population trends. 

Monitor the colonization of successfully 

rehabilitated and restored uplands by 

representative wildlife species beginning 

15 years after treatment. (1-3 year 

intervals). 

Consistent downward 

trends or persistent 

instability in 

populations. 

Special 

Status 

Animals 

Objective Emphasize maintenance, protection, and 

enhancement of raptors and other 

sensitive wildlife populations and 

habitats. 

Indicator/Trigger for 

Adaptive Management 
 Snake River Birds of Prey NCA 

Chapter 3 – Plan Implementation and Monitoring Resource Management Plan and Record of Decision 

3.4 Monitoring 3-6 

Table 3.2 Landscape-level Measures of the Effectiveness of Implementing the NCA RMP. 

Changes in These Indicators Will Help Determine if Objectives are Being Met. 

Monitoring 

Method and 

Frequency 

Monitor representative, select sensitive 

species (avian, mammalian, aquatic) in 

representative habitats (1-3 year 

intervals). 

Monitor the colonization of successfully 

rehabilitated and restored riparian/ 

wetlands by representative special status 

species beginning 15 years after 

treatment (1-3 year intervals). 

Consistent downward 

trends or persistent 

instability in 

populations. 

Objectives The distribution, abundance, and vigor 

of special status plants will be 

maintained or improved. 

Indicator/Trigger for 

Adaptive Management 

Special 

Status 

Plants 

Monitoring 

Method and 

Frequency 

Monitor select populations of Type 1 and 

2 special status plants for disturbance 

from livestock trampling and grazing, 

OHV activity, fire (suppression and ESR 

activities), and exotic plant invasion 

(1-5-year intervals). Slickspot 

peppergrass occurrences would be 

monitored annually using the habitat 

integrity protocol, as described in the 

CCA (Appendix 7). 

For slickspot 

peppergrass, 10% 

surface disturbance on 

10% of slickspots on a 

transect would trigger a 

management change. 

Other species do not 

currently have specific 

triggers. 

Vegetation Objectives Watersheds will have stable vegetative 

communities that provide for proper 

hydrologic function, nutrient cycling, 

energy flow, and soil stability. 

Limit further loss of existing native shrub 

habitat to no more than 30,000 acres 

and increase the acres of restored shrub 

habitat. 

Indicator/Trigger for 

Adaptive Management 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Chapter 3 – Plan Implementation and Monitoring 

3.4 Monitoring 3-7

Table 3.2 Landscape-level Measures of the Effectiveness of Implementing the NCA RMP. 

Changes in These Indicators Will Help Determine if Objectives are Being Met. 

Monitoring 

Method and 

Frequency 

Use satellite imagery to monitor 

landscape changes in desired plant 

communities related to fire, recreation, 

livestock grazing, military training, and 

other activities to assess potential 

impacts to raptor prey species (5-year 

intervals) 

Monitor livestock utilization following 

use periods. 

Monitor vegetation trend in the OTA. 

Monitor condition, viability, and 

effectiveness of fuel breaks (annually). 

Greater than expected 

loss of remnant 

perennial vegetation 

communities. 

Objective Provide a diversity of quality, resource 

based recreational opportunities, while 

protecting resource values, minimizing 

user conflicts, and promoting public 

safety 

Indicator/Trigger for 

Adaptive Management 

Recreation 

Monitoring 

Method and 

Frequency 

Obtain visitor use estimates from other 

State agencies (e.g. IDFG, IDPR) and 

private entities (e.g. Idaho Power 

Company) (annually). 

Conduct visitor satisfaction surveys. 

Monitor activities to identify user 

conflicts and safety concerns. 

Monitor recreation use to assure the 

purposes of the enabling legislation (4d) 

are met. 

Evaluate other monitoring data 

(vegetation, wildlife) to determine if 

resource impacts are being caused by 

recreation.

Limits of Acceptable 

Change (LAC) thresholds 

are exceeded.
 Snake River Birds of Prey NCA 

Chapter 3 – Plan Implementation and Monitoring Resource Management Plan and Record of Decision 

3-8 3.5 Evaluation and Assessment – Future Changes to the RMP

3.5 EVALUATION AND ASSESSMENT – FUTURE CHANGES TO THE 

RMP 

Evaluation and assessment is the point where plans and monitoring data are reviewed. This phase of 

adaptive management is used to 1) judge the success of existing actions in meeting objectives and 

making progress toward achieving DFC; 2) make recommendations for mid-course corrections; and 

3) help set priorities for management and research. The understanding gained through a 

comprehensive review of all the monitoring data is critical to managing sustainable, healthy, and 

productive habitats. 

Evaluation and assessment will occur at five-year intervals. Tables 3.1 and 3.2 identify indicators or 

triggers (conditions that reflect a movement away from DFC) that may indicate a need to change or 

adjust management. Results from program specific monitoring could provide additional indicators for 

change. Conditions that might warrant a change in the RMP include: 

• New information or circumstances that provide for interpretations not known or understood when the RMP was completed that could significantly affect ongoing actions. 

• RMP decisions that are no longer valid based on new information or changed circumstances. 

• Implementation decisions that are no longer valid based on new information or changed 

circumstances. 

• Effects of proposed or ongoing actions that are substantially different from those 

projected in the Environmental Impact Statement (EIS). 

• Inconsistencies that arise between RMP actions and other resource-related plans. 

Minor changes, refinements or clarifications in the plan are maintenance actions that incorporate data 

from monitoring. Plan maintenance actions would not expand the scope of resource uses or 

restrictions or change the terms, conditions or decisions of the approved NCA RMP/EIS. 

Maintenance actions do not require formal public involvement, Tribal consultation or interagency 

coordination. Major changes to the plan, however, would require a plan amendment, formal public 

involvement, interagency coordination, Tribal consultation, and NEPA analysis. 

3.6 COLLABORATION IN IMPLEMENTATION AND MONITORING 

Although BLM has primary responsibility for management of the NCA, opportunities exist to work 

with a variety of cooperating entities (i.e. Idaho Army National Guard, U.S. Geological Survey’s 

Biological Resource Division) during plan implementation and monitoring. For example, the 

IDARNG monitors vegetation plots annually to determine habitat trend, and to provide information 

regarding the status of vegetation in the OTA. 

 
TABLE OF CONTENTS 

APPENDICES 

Appendix 1. NCA Enabling Legislation...................................................................... A-1 

Appendix 2. Idaho Standards for Rangeland Health and Guidelines for 

 Livestock Grazing Management............................................................. A-9 

Appendix 3. Special Status Animal Species in the NCA. ......................................... A-29 

Appendix 4. BLM Special Status Plant Species in the NCA. ................................... A-31 

Appendix 5. Grazing Allotments in the NCA. .......................................................... A-33 

Appendix 6. Mineral Material Sites in the NCA. ...................................................... A-35 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA.... A-37 

Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA)................ A-57 

Appendix 9. Conservation Measures for Listed Species........................................... A-87 

Appendix 10. Snake River Wild & Scenic River Evaluation Report.......................... A-99 

Appendix 11. Maps.................................................................................................... A-129 

Appendices 

Appendix 1. NCA Enabling Legislation A-1

APPENDIX 1. NCA ENABLING LEGISLATION 

PUBLIC LAW 103-64 – AUG. 4, 1993 

SNAKE RIVER BIRDS OF PREY NATIONAL CONSERVATION AREA 

PUBLIC LAW 103-64 

103d Congress 

An Act 

To establish the Snake River Birds of Prey National Conservation Area in the State of Idaho, and for 

other purposes. 

Be it enacted by the Senate and House of Representatives of United States of 

America in Congress assembled, 

Section 1. Findings 

The Congress finds the following: 

(1) The public lands managed by the Bureau of Land Management in the State of Idaho 

within the Snake River Birds of Prey Area contain one of the densest known nesting populations of 

eagles, falcons, owls, hawks, and other birds of prey (raptors) in North America. 

(2) These public lands constitute a valuable national biological and educational resource 

since birds of prey are important components of the ecosystem and indicators of environmental 

quality, and contribute significantly to the quality of wildlife and human communities. 

(3) These public lands also contain important historic and cultural resources (including 

significant archaeological resources) as well as other resources and values, all of which should be 

protected and appropriately managed. 

(4) A military training area within the Snake River Birds of Prey Area, known as the Orchard 

Training Area, has been used since 1953 by reserve components of the Armed Forces. Military use 

of this area is currently governed by a Memorandum of Understanding between the Bureau of Land 

Management and the State of Idaho Military Division, dated May 1985. Operating under this 

Memorandum of Understanding, the Idaho National Guard has provided valuable assistance to the 

Bureau of Land Management with respect to fire control and other aspects of management of the 

Orchard Training Area and the other lands in the Snake River Birds of Prey Area. Military use of 

the lands within the Orchard Training Area should continue in accordance with such Memorandum 

of Understanding (or extension or renewal thereof), to the extent consistent with section 460iii-3(e) 

of this title, because this would be in the best interest of training of the reserve components (an 

important aspect of national security) and of the local economy. 

(5) Protection of the conservation area as a home for raptors can best and should be 

accomplished by the Secretary of the Interior, acting through the Bureau of Land Management, 

under a management plan that: 

(A) emphasizes management, protection, and rehabilitation of habitat for these raptors 

and of other resources and values of the area; 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-2 Appendix 1. NCA Enabling Legislation

(B) provides for continued military use, consistent with the requirements of section 

460iii-3(e) of this title, of the Orchard Training Area by reserve components of the Armed 

Forces; 

(C) addresses the need for public educational and interpretive opportunities; 

(D) allows for diverse appropriate uses of lands in the area to the extent consistent with 

the maintenance and enhancement of raptor populations and habitats and protection and 

sound management of other resources and values of the area; and 

(E) demonstrates management practices and techniques that may be useful to other 

areas of the public lands and elsewhere. 

(6) There exists near the conservation area a facility, the World Center for Birds of Prey 

operated by The Peregrine Fund, Inc., where research, public education, recovery, and 

reestablishment operations exist for endangered raptor species. There also exists at Boise State 

University a raptor study program which attracts national and international graduate and 

undergraduate students. 

(7) The Bureau of Land Management and Boise State University, together with 

other State, Federal, and private entities, have formed the Raptor Research and Technical 

Assistance Center to be housed at Boise State University, which provides a unique adjunct to the 

conservation area for raptor management, recovery, research, and public visitation, interpretation, 

and education. 

(8) Consistent with requirements of sections 1712 and 1732 of title 43, the Secretary has 

developed a comprehensive management plan and, based on such plan, has implemented a 

management program for the public lands included in the conservation area established by this 

subchapter. 

(9) Additional authority and guidance must be provided to assure that essential raptor 

habitat remains in public ownership, to facilitate sound and effective planning and management, to 

provide for effective public interpretation and education, to ensure continued study of the 

relationship of humans and these raptors, to preserve the unique and irreplaceable habitat of the 

conservation area, and to conserve and properly manage the other natural resources of the area in 

concert with maintenance of this habitat. 

(10) An ongoing research program funded by the Bureau of Land Management and the 

National Guard is intended to provide information to be used in connection with future decision 

making concerning management of all uses, including continued military use, of public lands within 

the Snake River Birds of Prey Area. 

(11) Public lands in the Snake River Birds of Prey Area have been used for domestic 

livestock grazing for more than a century, with resultant benefits to community stability and 

contributions to the local and State economies. It has not been demonstrated that continuation of 

this use would be incompatible with appropriate protection and sound management of raptor habitat 

and the other resource values of these lands; therefore, subject to the determination provided for in 

section 460iii-3(f) of this title, it is expected that such grazing will continue in accordance with 

applicable regulations of the Secretary and the management plan for the conservation area. 

(12) Hydroelectric facilities for the generation and transmission of electricity exist within 

the Snake River Birds of Prey Area pursuant to a license(s) issued by the Federal Energy 

Regulatory Commission, or its predecessor, the Federal Power Commission. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 1. NCA Enabling Legislation A-3

Section 2. Definitions 

As used in this Act: 

(1) The term ''Secretary'' means the Secretary of the Interior. 

(2) The term ''conservation area'' means the Snake River Birds of Prey National 

Conservation Area established by section 3. 

(3) The term ''raptor'' or ''raptors'' means individuals or populations of eagles, falcons, 

owls, hawks, and other birds of prey. 

(4) The term ''raptor habitat'' includes the habitat of the raptor prey base as well as the 

nesting and hunting habitat of raptors within the conservation area. 

(5) The term ''Memorandum of Understanding'' means the Memorandum of Understanding 

#ID-237, dated May 1985, between the State of Idaho Military Division and the Bureau of Land 

Management. 

(6) The term ''Orchard Training Area'' means that area generally so depicted on the map 

referred to in section 3(b) of this title, and as described in the Memorandum of Understanding as 

well as the air space over the same. 

(7) The term ''Impact Area'' means that area which was used for the firing of live artillery 

projectiles and is used for live fire ranges of all types and, therefore, poses a danger to public safety 

and which is generally so depicted on the map referred to in section 3(b). 

(8) The term ''Artillery Impact Area'' means that area within the Impact Area into which 

live projectiles are fired, which is generally described as that area labeled as such on the map 

referred to in section 3(b) of this title. 

(9) The term ''the plan'' means the comprehensive management plan developed for the 

conservation area, dated August 30, 1985, together with such revisions thereto as may be required 

in order to implement this Act. 

(10) The term ''hydroelectric facilities'' means all facilities related to the generation, 

transmission, and distribution of hydroelectric power and which are subject to, and authorized by, a 

license(s), and any and all amendments thereto, issued by the Federal Energy Regulatory 

Commission. 

Section 3. Establishment of National Conservation Area 

(a) Establishment and Purposes – (1) There is hereby established the Snake River Birds of 

Prey National Conservation Area (hereafter referred to as the ''conservation area''). 

(2) The purposes for which the conservation area is established, and shall be managed, 

are to provide for the conservation, protection, and enhancement of raptor populations and 

habitats and the natural and environmental resources and values associated therewith, and of 

the scientific, cultural, and educational resources and values of the public lands in the 

conservation area. 

(3) Subject to the provisions of subsection (d) of this section and section 4, uses of the 

public lands in the conservation area existing on August 4, 1993, shall be allowed to 

continue. 

(b) Area Included – The conservation area shall consist of approximately 482,457 acres of 

federally owned lands and interests therein managed by the Bureau of Land Management as 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-4 Appendix 1. NCA Enabling Legislation

generally depicted on the map entitled ''Snake River Birds of Prey National Conservation Area'', 

dated November 1991. 

(c) Map and Legal Description – As soon as is practicable after August 4, 1993, the map 

referred to in subsection (b) of this section and a legal description of the conservation area shall be 

filed by the Secretary with the Committee on Natural Resources of the House of Representatives 

and the Committee on Energy and Natural Resources of the Senate. Each such map shall have the 

same force and effect as if included in this Act; except that the Secretary may correct clerical and 

typographical errors in such map and legal description. Each such map shall be on file and available 

for public inspection in the office of the Director and the Idaho State Director of the Bureau of 

Land Management of the Department of the Interior. 

(d) Withdrawals – Subject to valid existing rights, the Federal lands within the 

conservation area are hereby withdrawn from all forms of entry, appropriation, or disposal under 

the public land laws; and from entry, application, and selection under the Act of March 3, 1877 (Ch. 

107, 19 Stat. 377, 43 U.S.C. 321 et seq.; commonly referred to as the ''Desert Lands Act''), section 4 

of the Act of August 18, 1894 (Ch. 301, 28 Stat; U.S.C. 641; commonly referred to as the “Carey 

Act”), the Act of July 3, 1890 (Ch. 656, 26 Stat. 215; commonly referred to as the ''State of Idaho 

Admissions Act''), section 2275 of the Revised Statutes, as amended (43 U.S.C. 851), and section 

2276 of the Revised Statutes, as amended (43 U.S.C. 852). The Secretary shall return to the 

applicants any such applications pending on August 4, 1993, without further action. Subject to valid 

existing rights, as of August 4, 1993, lands within the Birds of Prey Conservation Area are 

withdrawn from location under the general mining laws, the operation of the mineral and 

geothermal leasing laws, and the mineral material disposal laws, except that mineral materials 

subject to disposal may be made available from existing sites to the extent compatible with the 

purposes for which the conservation area is established. 

Section 4. Management and Use 

(a) In General – (1)(A) Within 1 year after August 4, 1993, the Secretary shall make any 

revisions in the existing management plan for the conservation area as necessary to assure its 

conformance with this Act, and no later than January 1, 1996, shall finalize a new management plan 

for the conservation area. 

(B) Thereafter, the Secretary shall review the plan at least once every 5 years and shall 

make such revisions as may be necessary or appropriate. 

(C) In reviewing and revising the plan, the Secretary shall provide for appropriate public 

participation. 

(2) Except as otherwise specifically provided in section 3(d) of this title and 

subsections (d), (e), and (f) of this section, the Secretary shall allow only such uses of lands in 

the conservation area as the Secretary determines will further the purposes for which the 

Conservation Area is established. 

(b) Management Guidance – After each review pursuant to subsection (a) of this section, 

the Secretary shall make such revisions as may be needed so that the plan and management 

program to implement the plan include, in addition to any other necessary or appropriate 

provisions, provisions for – 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 1. NCA Enabling Legislation A-5

(1) protection for the raptor populations and habitats and the scientific, cultural, and 

educational resources and values of the public lands in the conservation area; 

(2) identifying levels of continued military use of the Orchard Training Area 

compatible with paragraph (1) of this subsection; 

(3) public use of the conservation area consistent with the purposes of this Act; 

(4) interpretive and educational opportunities for the public; 

(5) a program for continued scientific investigation and study to provide information to 

support sound management in accordance with this Act, to advance knowledge of raptor 

species and the resources and values of the conservation area, and to provide a process for 

transferring to other areas of the public lands and elsewhere this knowledge and management 

experience; 

(6) such vegetative enhancement and other measures as may be necessary to restore or 

enhance prey habitat; 

(7) the identification of levels, types, timing, and terms and conditions for the 

allowable nonmilitary uses of lands within the conservation area that will be compatible with 

the protection, maintenance, and enhancement of raptor populations and habitats and the 

other purposes for which the conservation area is established; and 

(8) assessing the desirability of imposing appropriate fees for public uses (including, 

but not limited to, recreational use) of lands in the conservation area, which are not now 

subject to fees, to be used to further the purposes for which the conservation area is 

established. 

(c) Visitors Center – The Secretary, acting through the Director of the Bureau of Land 

Management, is authorized to establish, in cooperation with other public or private entities as the 

Secretary may deem appropriate, a visitors center designed to interpret the history and the 

geological, ecological, natural, cultural, and other resources of the conservation area and the 

biology of the raptors and their relationships to man. 

(d) Visitors Use of Area – In addition to the Visitors Center, the Secretary may provide for 

visitor use of the public lands in the conservation area to such extent and in such manner as the 

Secretary considers consistent with the protection of raptors and raptor habitat, public safety, and 

the purposes for which the conservation area is established. To the extent practicable, the Secretary 

shall make available to visitors and other members of the public a map of the conservation area and 

such other educational and interpretive materials as may be appropriate. 

(e) National Guard Use of Area – (1) Pending completion of the ongoing research 

concerning military use of lands in the conservation area, or until the date 5 years after August 4, 

1993, whichever is the shorter period, the Secretary shall permit continued military use of those 

portions of the conservation area known as the Orchard Training Area in accordance with the 

Memorandum of Understanding, to the extent consistent with the use levels identified pursuant to 

subsection (b)(2) of this section. 

(2) Upon completion of the ongoing research concerning military use of lands in the 

conservation area, the Secretary shall review the management plan and make such additional 

revisions therein as may be required to assure that it meets the requirements of this Act. 

(3) Upon completion of the ongoing research concerning military use of lands in the 

conservation area, the Secretary shall submit to the Committees on Natural Resources and 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-6 Appendix 1. NCA Enabling Legislation

Merchant Marine and Fisheries of the House of Representatives and the Committee on 

Energy and Natural Resources of the Senate a report of the results of such research. 

(4) Nothing in this subchapter shall preclude minor adjustment of the boundaries of the 

Orchard Training Area in accordance with provisions of the Memorandum of Understanding. 

(5) After completion of the ongoing research concerning military use of lands in the 

Orchard Training Area or after the date 5 years after August 4, 1993, whichever first occurs, 

the Secretary shall continue to permit military use of such lands, unless the Secretary, on the 

basis of such research, determines such use is not compatible with the purposes set forth in 

section 3(a)(2). Any such use thereafter shall be permitted in accordance with the 

Memorandum of Understanding, which may be extended or renewed by the Secretary so long 

as such use continues to meet the requirements of subsection (b)(2) of this section. 

(6) In accordance with the Memorandum of Understanding, the Secretary shall require 

the State of Idaho Military Division to insure that military units involved maintain a program 

of decontamination. 

(7) Nothing in this subchapter shall be construed as by itself precluding the extension 

or renewal of the Memorandum of Understanding, or the construction of any improvements 

or buildings in the Orchard Training Area so long as the requirements of this subsection are 

met. 

(f) Livestock Grazing – (1) So long as the Secretary determines that domestic livestock 

grazing is compatible with the purposes for which the conservation area is established, the 

Secretary shall permit such use of public lands within the conservation area, to the extent such use 

of such lands is compatible with such purposes. Determinations as to compatibility shall be made in 

connection with the initial revision of management plans for the conservation area and in 

connection with each plan review required by subsection 4(a)(1)(B). 

(2) Any livestock grazing on public lands within the conservation area, and activities the 

Secretary determines necessary to carry out proper and practical grazing management 

programs on such lands (such as animal damage control activities) shall be managed in 

accordance with the Act of June 28, 1934 (43 U.S.C. 315 et seq.; commonly referred to as the 

''Taylor Grazing Act''), section 402 of the Federal Land Policy and Management Act of 1976 

(43 U.S.C. 1752), other laws applicable to such use and programs on the public lands, and the 

management plan for the conservation area. 

(g) Cooperative Agreements – The Secretary is authorized to provide technical assistance 

to, and to enter into such cooperative agreements and contracts with, the State of Idaho and with 

local governments and private entities as the Secretary deems necessary or desirable to carry out the 

purposes and policies of this Act. 

(h) Agricultural Practices – Nothing in this subchapter shall be construed as constituting a 

grant of authority to the Secretary to restrict recognized agricultural practices or other activities on 

private land adjacent to or within the conservation area boundary. 

(i) Hydroelectric Facilities – Notwithstanding any provision of this Act, or regulations and 

management plans undertaken pursuant to its provisions, the Federal Energy Regulatory 

Commission shall retain its current jurisdiction concerning all aspects of the continued and future 

operation of hydroelectric facilities, licensed or relicensed under the Federal Power Act (16 U.S.C. 

791a et seq.), located within the boundaries of the conservation area. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 1. NCA Enabling Legislation A-7

Section 5. Additions 

(a) Acquisitions – (1) The Secretary is authorized to acquire lands and interests therein 

within the boundaries of the conservation area by donation, purchase with donated or appropriated 

funds, exchange, or transfer from another Federal agency, except that such lands or interests owned 

by the State of Idaho or a political subdivision thereof may be acquired only by donation or 

exchange. 

(2) Any lands located within the boundaries of the conservation area that are acquired by 

the United States on or after August 4, 1993, shall become a part of the conservation area and 

shall be subject to this Act. 

(b) Purchase of Lands – In addition to the authority in section 318(d) of Federal Land 

Policy and Management Act of 1976 (43 U.S.C. 1748) and notwithstanding section 7(a) of Land 

and Water Conservation Fund Act of 1964 (16 U.S.C. 4061-9(a)), monies appropriated from the 

Land and Water Conservation Fund may be used as authorized in section 5(b) of the Endangered 

Species Act of 1973 (16 U.S.C. 1534(b)), for the purposes of acquiring lands or interests therein 

within the conservation area for administration as public lands as a part of the conservation area. 

(c) Land Exchanges – The Secretary shall, within 4 years after August 4, 1993, study, 

identify, and initiate voluntary land exchanges which would resolve ownership related land use 

conflicts within the conservation area. 

Section 6. Other Laws and Administrative Provisions 

(a) Other Laws – (1) Nothing in this subchapter shall be construed to supersede, limit, or 

otherwise affect administration and enforcement of the Endangered Species Act of 1973 (16 U.S.C. 

1531 et seq.) or to limit the applicability of the National Trails System Act (16 U.S.C. 1241 et seq.) 

to any lands within the conservation area. 

(2) Except as otherwise specifically provided in this subchapter, nothing in this 

subchapter shall be construed as limiting the applicability to lands in the conservation area of 

laws applicable to public lands generally, including but not limited to the National Historic 

Preservation Act (16 U.S.C. 470 et seq.), the Archaeological Resources Protection Act of 

1979 (16 U.S.C. 470aa et seq.), or the Native American Graves Protection and Repatriation 

Act (25 U.S.C. 3001 et seq.). 

(3) Nothing in this subchapter shall be construed as by itself altering the status of any 

lands that on August 4, 1993, were not managed by the Bureau of Land Management. 

(4) Nothing in this subchapter shall be construed as prohibiting the Secretary from 

engaging qualified persons to use public lands within the conservation area for the 

propagation of plants (including seeds) to be used for vegetative enhancement of the 

conservation area in accordance with the plan and in furtherance of the purposes for which 

the conservation area is established. 

(b) Release – The Congress finds and directs that the public lands within the Snake River 

Birds of Prey Natural Area established as a natural area in October 1971 by Public Land Order 

5133 have been adequately studied and found unsuitable for wilderness designation pursuant to 

section 603 of the Federal Land Policy and Management Act of 1976. Such lands are hereby 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-8 Appendix 1. NCA Enabling Legislation

released from further management pursuant to section 603(c) of Such an Act and shall be managed 

in accordance with other applicable provisions of law, including this Act. 

(c) Existing Administrative Withdrawal Terminated – Public Land Orders 5133 dated 

October 12, 1971, and 5777 dated November 21, 1980, issued by the Secretary are hereby revoked 

subject to subsections (d)(3) and (d)(4). 

(d) Water – (1) The Congress finds that the United States is currently a party in an 

adjudication of rights to waters of the Snake River, including water rights claimed by the United 

States on the basis of the reservation of lands for purposes of conservation of fish and wildlife and 

that consequently there is no need for this Act to effect a reservation by the United States of rights 

with respect to such waters in order to fulfill the purposes for which the conservation area is 

established. 

(2) Nothing in this Act or any action taken pursuant thereto shall constitute either an 

expressed or implied reservation of water or water rights for any purpose. 

(3) Nothing in this Act shall be construed as effecting a relinquishment or reduction of 

any of the water rights held or claimed by the United States within the State of Idaho or 

elsewhere on or before August 4, 1993. 

(4) The Secretary and all other officers of the United States shall take all steps 

necessary to protect all water rights claimed by the United States in the Snake River 

adjudication now pending in the district court of the State of Idaho in which the United States 

is joined under section 208 of the Act of July 10, 1952 (66 Stat. 560; 43 U.S.C. 666; 

commonly referred to as the “McCarran Amendment”). 

Section 7. Authorization of Appropriations 

There are authorized to be appropriated such sums as may be necessary to carry out this Act. 

Approved August 4, 1993. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 2. Idaho Standards for Rangeland Health and 

Guidelines for Livestock Grazing Management 

A-9

APPENDIX 2. IDAHO STANDARDS FOR RANGELAND HEALTH AND 

GUIDELINES FOR LIVESTOCK GRAZING MANAGEMENT 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

Appendix 2. Idaho Standards for Rangeland Health and 

Guidelines for Livestock Grazing Management

A-10 
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Guidelines for Livestock Grazing Management 

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Guidelines for Livestock Grazing Management

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Guidelines for Livestock Grazing Management 

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Guidelines for Livestock Grazing Management

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Guidelines for Livestock Grazing Management 

A-15
 Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management

A-16 
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Guidelines for Livestock Grazing Management 

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 Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management

A-18 
Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management 

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 Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management

A-20 
Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management 

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 Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management

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Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management 

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 Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management

A-24 
Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management 

A-25
 Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management

A-26 
Snake River Birds of Prey NCA 

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Guidelines for Livestock Grazing Management 

A-27
 Snake River Birds of Prey NCA 

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Appendix 2. Idaho Standards for Rangeland Health and 

Guidelines for Livestock Grazing Management

A-28 

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Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 3. Special Status Animal Species in the NCA A-29

APPENDIX 3. SPECIAL STATUS ANIMAL SPECIES IN THE NCA 

Endangered 

• None 

Threatened Species 

• None 

Candidate Species 

• Yellow-billed cuckoo (Coccyzus americanus) 

Range-wide/Globally Imperiled Species 

• Pygmy rabbit (Brachylagus idahoensis) • American white pelican 

 (Pelecanus erythrorhynchos) 

Regional/State Imperiled Species 

• Spotted Bat (Euderma maculatum) • Olive-sided flycatcher (Contopus cooperi)

• Piute ground squirrel (Spermophilus mollis)

• Trumpeter Swan (Cygnus buccinator)

• Loggerhead shrike (Lanius ludovicianus)

• Brewer’s sparrow (Spizella beweri)

• Peregrine falcon (Falco peregrinus) • Sage sparrow (Amphispiza belli)

• Prairie falcon (Falco mexicanus) • Longnose snake (Rhinocheilus lecontei)

• Northern Goshawk (Accipiter gentiles)

• Ferruginous hawk (Buteo regalis)

• Black tern (Chlidonias niger)

• Mojave black-collard lizard (Crotaphytus

bicinctores)

• Ground snake (Sonora semiannulata)

• Calliope hummingbird (Stellula calliope) • Common garter snake (Thamnophis sirtalis)

• Lewis’ woodpecker (Melanerpes lewis) • Western toad (Bufo boreas)

• Willow flycatcher (Empidonax traillii) • Woodhouse’s toad (Bufo woodhousii)

Idaho Watch List 

• Yuma myotis (Myotis yumanensis) 

• Western pipistrelle (Pippistrellus hesperus) 

• Cordilleran flycatcher (Empidonax occidentalis) 

• Green-tailed towhee (Pipilo chlorurus) 

• Western small-footed myotis (Myotis 

ciliolabrum) 

• Grasshopper sparrow (Ammodramus 

savannarum) 

• Barrow’s goldeneye (Bucephala islandica) • Red-napped sapsucker (Sphyrapicus nuchalis) 

• Swainson’s hawk (Buteo swainsoni) • Sage thrasher (Oreoscoptes montanus) 

• Long-billed curlew (Numenius americanus) • Brewer’s blackbird (Euphagus cyanocephalus) 

• Wilson’s phalarope (Phalaropus tricolor) • Cassin’s finch (Carpodacus cassinii) 

• Short-eared owl (Asio flammeus) • Night snake (Hypsiglena torquata) 

• Burrowing owl (Speotyto cunicularia) 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-30 Appendix 3. Special Status Animal Species in the NCA

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Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 4. BLM Special Status Plant Species in the NCA A-31

APPENDIX 4. BLM SPECIAL STATUS PLANT SPECIES IN THE NCA 

Soil type and habitat descriptions are for each species across their range. Location and threats are for 

those known to occur in the NCA. 

Plant Type1 Soil Type and Habitat Location Threats2

Mulford’s milkvetch 

(Astragalus mulfordiae) 

2 Sandy slopes in alluvial 

deposits 

Con Shea Basin/ Halverson Lakes, to 

Grandview. 

A, B, C, D 

Snake River milkvetch 

(Astragalus purshii var. 

ophiogenes) 

5 Fine alluvial sand in big 

sagebrush-grass-fourwing saltbush zone 

Halverson Lakes/ 

Con Shea Basin to 

Wilkins Gulch/ 

Eagle Cove West. 

None 

Desert pincushion 

(Chaenactis stevioides) 

4 Coarse sand in salt 

desert shrub-Wyoming 

big sagebrush habitat 

Dorsey Butte/Chattin 

Hill to West Rabbit 

Creek. 

A, B, C 

Greeley’s parsley 

(Cymopterus acaulis var. 

greeleyorum) 

3 Heavy clay soils Near Bruneau Dunes 

State Park to west of 

Chalk Gulch. 

C 

Shining flat sedge 

(Cyperus rivularis) 

5 Streambanks or other 

wet places in the valleys 

and lowlands, tolerant 

of alkali 

Occurs along the 

Snake River 

B, C, D 

White eatonella 

(Eatonella nivea) 

4 Dry sandy or volcanic 

soil 

Near the mouth of 

Sinker Creek, Fossil 

Butte, Waterhouse 

Gulch, Lower Squaw 

Creek, and East of 

Wildhorse Butte 

B, C 

Matted cowpie buckwheat 

(Eriogonum shockleyi var. 

shockleyi) 

3 Gravel benches in 

lakebed sediments in 

Wyoming big 

sagebrush-rabbitbrushIndian ricegrass habitat, 

desert pavement 

Halverson Lakes to 

Bruneau Dunes 

A, C 

Packard’s cowpie 

buckwheat (Eriogonum 

shockleyi var. packardae) 

2 Gravel benches in 

lakebed sediments in 

Wyoming big 

sagebrush-rabbitbrushIndian ricegrass habitat, 

desert pavement 

Halverson Lake to 

Swan Falls and the 

Bruneau Valley rim 

A, C 

White-margined wax plant 

(Glyptopleura marginata) 

4 Sandy soils, loose ash, 

and cinders 

Guffey Butte to Castle 

Butte 

A, C 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-32 Appendix 4. BLM Special Status Plant Species in the NCA

Plant Type1 Soil Type and Habitat Location Threats2

Spreading ipomopsis 

(Ipomopsis polycladon) 

3 Loamy, sandy, or 

chalky soils of lakebed 

origin 

Castle Butte/Big Foot 

Bar to Wilkins Gulch 

SE 

C 

Davis peppergrass 

(Lepidium davisii) 

3 Hard bottomed playas in 

Wyoming and mountain 

big sagebrush, salt 

desert shrub habitats 

North of the Snake 

River Swan Falls to 

Mountain Home 

A, B, C, D 

Slickspot peppergrass 

(Lepidium papilliferum) 

2 Bare, open nitric 

(slickspot) sites in 

Wyoming big sagebrush 

habitat 

Kuna to Hammett A, B, D 

Rigid threadbush 

(Nemacladus rigidus) 

4 Sandy, cindery, or ashy 

soils 

Near Wildhorse Butte 

to Castle Butte 

B, C 

Janish’s penstemon 

(Penstemon janishiae) 

3 Clay soils derived from 

volcanic ash or lake bed 

sediment in sagebrush 

communities 

Chalk Hills, Historic 

populations only 

known from the NCA 

A, B, C, D 

Annual or Turtleback 

brittlebrush 

(Psathyrotes annua)

3 Gravely or cindery soils 

in Wyoming big 

sagebrush-salt desert 

shrub-habitat 

Sinker Creek to 

Wildhorse Butte 

C 

Malheur prince’s plume 

(Stanleya confertiflora) 

2 Clay soils usually 

facing north 

Near the Rye Patch 

Ranch 

C, D 

American wood sage 

(Teucrium canadense var. 

occidentale) 

3 Along streams, 

riverbanks, and in moist 

bottomlands 

Guffey Butte and 

Halverson Lake 

upstream to Big Foot 

Bar 

D 

Woven-spore lichen 

(Texosporium 

sancti-jacobi) 

2 Loamy soils in 

Wyoming big 

sagebrush-green 

rabbitbrush-Sandberg 

bluegrass habitat 

Northern Ada County 

to Cinder Cone Butte, 

Orchard Southwest, 

A, C, D 

1 Type 2-4 are BLM Sensitive; Type 5 is watch, not BLM Sensitive; Type 1 species are not known to occur in 

the NCA. 2 A = fire related factors including loss of habitat, post-fire rehabilitation, fire breaks, and competition with 

 introduced species; 

 B = grazing related activities including livestock and/or wildlife herbivory, trampling, rangeland 

 management projects; 

 C = off road vehicle use including recreational use and military training activities; and 

 D = competition with invasive species.
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 5. Grazing Allotments in the NCA A-33

APPENDIX 5. GRAZING ALLOTMENTS IN THE NCA

Allotment Name 

Admin. 

Office 

Allotment 

Number 

Authorized 

AUMs1 

Authorized 

Season of Use 

Kind of 

Livestock 

Castle Butte ID-111 00359 102 03/15 – 04/15 Cattle 

White Butte* ID-110 00386 44 04/01 – 05/01 Cattle 

Joyce FFR * (p) ID-130 00487 34 11/01 – 02/28 

04/01 – 07/31 

Cattle 

Horse 

Rabbit Creek/Peters Gulch * (p) 

 Pastures 1 & 2 

ID-130 00517 558 11/01 – 02/28 Cattle 

Fossil Butte ID-130 00535 1624 10/01 – 02/28 Cattle, Horse 

Con Shea * (p) ID-130 00571 1085 10/15 – 02/28 Cattle 

Sinker Butte ID-130 00578 723 10/20 – 01/07 Cattle 

Montini FFR ID-130 00654 672 03/01 – 02/28 Cattle 

Battle Creek Pasture 8B ID 111 00802 0 Closed to grazing Cattle 

Pole Creek Individual ID-120 00806 54 11/01 – 01/31 Cattle 

Mountain Home Sub-Unit (p) ID-110 00813 3009 04/01 – 09/30 

10/15 – 12/31 

Cattle 

Chalk Flat (p) ID-110 00821 2,009 03/1 – 04/30 

10/01 – 02/28 

Cattle 

Sunnyside Spring/Fall* (p) ID-111 00825 6,256 04/01 – 06/30 

10/15 – 12/16 

Cattle, Sheep 

Sunnyside Winter* ID-111 00826 11,280 12/16 – 02/28 Cattle, Sheep 

Rattlesnake Seeding*(p) ID-111 00827 2,022 11/01 – 02/28 

03/01 – 06/30 

Cattle 

Crater Rings* (p) ID-111 00828 509 04/05 – 05/31 Cattle 

Rattlesnake Creek* ID-111 00834 137 

83 

04/01 – 06/15 

10/01 – 11/16 

Cattle 

Rabbit Springs* ID-111 00837 42 

42 

04/15 – 04/29 

08/15 – 08/29 

Cattle 

Melba Seeding* ID-111 00868 217 

117 

04/01 – 06/30 

11/01 – 12/15 

Cattle 

Reverse* (p) ID-111 00873 886 

1069 

03/01 – 05/31 

11/10 – 02/28 

Cattle 

Chattin Hill* ID-111 00875 833 12/16 – 02/28 Cattle 

Squaw Creek * (p) ID-111 00886 1581 

767 

04/01 – 06/30 

11/01 – 01/05 

Cattle 

Simco* (p) ID-111 00887 175 04/01 – 06/30 Cattle 

Clover Hollow (p) ID-110 00888 25 

17 

04/01 – 06/30 

10/16 – 12/15 

Cattle 

Medbury Hill* ID-111 00899 201 

95 

04/01 – 05/31 

11/16 – 12/14 

Cattle 

Airbase* ID-111 00896 3352 11/05 – 02/28 Cattle 

Hammett No. 3 (p) ID-110 01035 104 

85 

04/01 – 04/30 

08/01 – 11/30 

Horse 

Bruneau Arm (p) ID-210 01052 479 11/01 – 02/28 Cattle 

Browns Gulch*(p) ID-210 01053 3380 03/31 – 02/28 Cattle 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-34 Appendix 5. Grazing Allotments in the NCA

Allotment Name 

Admin. 

Office 

Allotment 

Number 

Authorized 

AUMs1 

Authorized 

Season of Use 

Kind of 

Livestock 

Flat Iron ID-210 01060 72 

131 

45 

04/16 – 10/15 

04/16 – 10/31 

05/01 – 09/30 

Cattle 

West Saylor Creek (p) ID-210 01137 136 

53 

35 

04/01 – 11/30 

03/16 – 06/15 

10/16 – 12/15 

Cattle 

Sheep 

Sheep 1 For allotments only partially located within the NCA, the listed AUM values reflect the approximate number of AUMs associated 

with that portion of the allotment located within the NCA. 

* S&G assessment and determination has been completed. 

(p) Denotes allotments only partially located within the NCA. 

Note: AUMs shown in this table do not reflect actual use or any specific grazing management system. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 6. Mineral Material Sites in the NCA A-35

APPENDIX 6. MINERAL MATERIAL SITES IN THE NCA 

Location Name/Operator Commodity1 Acres 

Active Mineral Sites 

T1S, R2E, S34 Idaho Department of Military C 5.0 

T2S, R4E, S28 Idaho National Guard C 40.0 

T3S, R2W, S26 Owyhee County Rd & Bridge S&G 10.0 

T3S, R4E, S5 Idaho National Guard C 87.0 

T3S, R1W, S22&29 Idaho Dept. of Transportation S&G 5.0 

T4S, R2E, S25&30 Owyhee County Rd & Bridge S&G 36.4 

T4S, R2E, S34 Grandview Irrigation District S&G 10.0 

T4S, R4E, S31 Chattin Hill Community Pit Cl 5.0 

T5S, R3E, S12 Elmore Community Pit S&G 17.5 

T5S, R6E, S19 Rattlesnake Community Pit S&G 120.0 

T5S, R6E, S28 Glenns Ferry Highway District S&G 40.0 

T5S, R8E, S23 Idaho Dept. of Transportation S&G 40.0 

T5S, R8E, S33 Hammett Community Pit S 10.0 

T6S, R4E, S11 Little Valley Community Pit Cl 5.0 

T6S, R4E, S11 Owyhee County Rd & Bridge S&G 5.0 

T6S, R6E, S7 Owyhee County Rd & Bridge S&G 10.0 

Inactive Mineral Sites 

T1N, R1W, S11 Inactive S&G 10.0 

T1N, R1W, S11 Inactive S&G 5.0 

T1N, R1W, S29 Inactive C 5.0 

T2S, R2E, S34 Inactive C 2.0 

T2S, R1W, S6 Inactive S&G 5.0 

T3S, R2E, S14 Inactive C 80.0 

T3S, R4E, S35 Inactive S&G 5.0 

T3S, R1W, S29 Inactive S&G 5.0 

T3S, R2E, S25 Inactive S&G 5.0 

T4S, R1E, S21 Inactive S&G 5.0 

T4S, R3E, S30 Inactive S&G 5.0 

T4S, R4E, S14, 23 Inactive Cl 20.0 

T4S, R4E, S2 Inactive S&G 5.0 

T4S, R4E, S28 Inactive Bldg St 5.0 

T4S, R7E, S14, 15 Inactive B 50.0 

T4S, R8E, S20 Inactive S&G 5.0 

T5S, R4E, S7 Inactive S&G 10.0 

T5S, R6E, S20 Inactive S&G 10.0 

T5S, R6E, S20 Inactive S&G 10.0 

T5S, R6E, S28 Inactive S&G 5.0 

T5S, R7E, S10 Inactive S&G 5.0 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-36 Appendix 6. Mineral Material Sites in the NCA

Location Name/Operator Commodity1 Acres 

T5S, R7E, S13 Inactive S&G 5.0 

T5S, R7E, S14 Inactive S&G 5.0 

T5S, R7E, S15 Inactive S&G 5.0 

T5S, R7E, S24 Inactive S&G 5.0 

T5S, R7E, S27 Inactive S&G 5.0 

T4S, R7E, S14, 15 Inactive B 20.0 

T5S, R8E, S7 Inactive S&G 5.0 

T6S, R6E, S18 Inactive S&G 10.0 

T6S, R7E, S10 Inactive B 5.0 

T6S, R7E, S10 Inactive B 5.0 

T5S, R6E, S29&21 Inactive S&G 80.0 

1 B = Basalt; Bldg St = Building Stone; C = Cinders; Cl = Clay; S&G = Sand & Gravel 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-37

APPENDIX 7. SLICKSPOT PEPPERGRASS CONSERVATION 

MEASURES FROM THE 2003 CCA 

Note: The conservation measures contained herein come directly out of the 2003 Slickspot 

Peppergrass (LEPA) Candidate Conservation Agreement (CCA). Only those conservation measures 

that affect the NCA are included. 

With the exception of fire that is universal throughout the area of consideration and varies only in the 

frequency of starts and reasons for starts, the presence and severity of an activity or threat varies 

throughout the species’ range. Therefore, different approaches are needed to reduce, mitigate, and 

eliminate the threats. To accomplish this, conservation measures have been developed to address 

concerns at three interrelated levels: the LEPA Consideration Zone (all areas that may or do contain 

LEPA); specified LEPA management areas; and specific priority element occurrences. 

Figure 1. Explanation of Conservation Measures. 

LEPA Consideration Zone 

Measures that BLM will apply 

within the LEPA 

Consideration Zone and 

additional voluntarily 

measures that occur on state

and private land through 

MOUs with the Office of 

Species Conservation 

 Management Areas 

Additional measures that 

apply to federal and state land 

within individual 

Management Area 

boundaries

 

All Priority Element 

Occurrences 

Measures that apply within the 

priority element occurrences 

that are the most critical to 

reducing the extinction of 

LEPA

The Federal Land Policy and Management Act of 1976 (FLPMA) as amended, 43 U.S.C. 1701 et 

seq., provides the authority for the BLM land use planning. The BLM’s Planning Regulations (43 

CFR 1600) and the National Environmental Policy Act (NEPA) as well as BLM Manual (1600) and 

Handbook provide direction. The land use planning process resulting in Resource Management Plans 

is the key tool used by the BLM, in coordination with interested publics, to protect resources and 

designate uses on federal lands managed by BLM. The BLM Manual and Handbook provide 

guidance for plan preparation, revision, amendments and subsequent implementation-level plans. The 

three Resource Management Plans directing management of the public lands encompassed by this 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-38 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

conservation agreement will be amended to incorporate the conservation agreement and direct its 

implementation. 

BLM regulations (CFR Title 43, subpart 4130) provide the authority to issue grazing permits or leases 

to qualified applicants to authorize use of public lands managed by the BLM that are designated as 

available for livestock grazing through Resource Management Plans. Permits or leases specify the 

types and levels of livestock grazing use authorized as well as terms and conditions, which will assist 

in achieving management objectives. Grazing permittees are prohibited from violating special terms 

and conditions incorporated in permits and leases. Failure to comply with the terms and conditions of 

the grazing permit can result in the termination of the permit. Grazing permits or leases for allotments 

encompassed by this conservation agreement will, through the annual grazing authorizations linked to 

permit/lease terms and conditions, require compliance with the conservation measures identified in 

this conservation agreement. 

BLM regulations also address authorizations for use of public lands. Regulations (CFR Title 43, 

subpart 2800) address rights-of-way authorizations and temporary use permits that regulate, control 

and direct the use of rights-of-way on public lands through requirements that are designed, in part, to 

protect the natural resources associated with public lands. BLM has the discretion to issue special use 

permits for commercial use, competitive events and organized events (CFR Title 43, subpart 2932) 

and can include stipulations intended to protect natural resources associated with public lands. BLM 

may amend, suspend, or cancel these permits, given due process, if permit stipulations are violated or 

if necessary to protect public safety and health or the environment. BLM rights-of-way 

authorizations, temporary use permits, and special use permits will comply with the conservation 

measures identified in this conservation agreement. 

LEPA Consideration Zone Conservation Measures 

.01 BLM and Fire Cooperators will expand on and continue to provide special status plant and 

habitat awareness training to fire resource advisors, Incident Commanders, Engine Operators 

and Fire Operations Supervisors. Training will be formalized through issuance of an 

Instruction Memorandum by May 1, 2004. 

.02 BLM and Fire Cooperators will make protection of known Element Occurrences (EO’s) a 

priority over the surrounding Management Area on wildfires. Fire management standard 

operating procedures for LEPA will be issued in an Instruction Memorandum by May 1, 2004 

.03 BLM will refine and formalize Standard Operating Procedures (SOP’s) that address 

conservation of LEPA to be incorporated into Fire Management Plans. The Lower Snake 

District Fire Management Plan will be completed by September 30, 2004. Fire management 

standard operating procedures for LEPA will be issued in an Instruction Memorandum by 

May 1, 2004. 

.04 BLM will evaluate, create and maintain fuel breaks along areas where frequent fires can 

threaten occupied and suitable habitat (for schedule see Table 2). 

.05 Aggressive fire suppression tactics will be utilized in management areas when priority EO’s 

are threatened. Fire management standard operating procedures for LEPA will be issued in an 

Instruction Memorandum by May 1, 2004. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-39

.06 BLM will utilize stationary and mobile vehicle wash points for BLM vehicles and equipment 

to reduce transport of undesirable plant material. General management standard operating 

procedures for LEPA will be issued in an Instruction Memorandum by December 31, 2003. 

.07 BLM and Fire Cooperators will distribute maps and inform fire crews on locations of 

Management Areas and element occurrences to maximize fire protection and to avoid or 

minimize impacts from fire prevention and/or suppression activities. Fire management 

standard operating procedures for LEPA will be issued in an Instruction Memorandum by 

May 1, 2004. 

.08 BLM will use seeding techniques that minimize soil disturbance such as no-till drills and 

rangeland drills equipped with depth bands when rehabilitation and restoration projects have 

the potential to impact occupied and suitable habitat. Rehabilitation and restoration standard 

operating procedures for LEPA will be issued in an Instruction Memorandum by December 

31, 2003. 

.09 BLM will continue to rest rehabilitated areas from land use activities to meet rehabilitation 

management objectives, defined through the Emergency Stabilization and Restoration plans. 

"Interagency Burned Area Emergency Stabilization and Rehabilitation Handbook", Version 

2.0 Draft, currently being revised, Department of Interior, Departmental Policy Guidance 

(manual). 

.10 BLM will use native plant materials and seed if available (see conservation measure .11) 

during restoration and rehabilitation activities unless use of non-native, non-invasive species 

would contribute beneficially to maintenance and protection of occupied and suitable habitat. 

Fire rehabilitation standard operating procedures for LEPA will be issued in an Instruction 

Memorandum by December 31, 2003. 

.11 If native plant materials and seed are not available, BLM will avoid use of invasive nonnative species for restoration or rehabilitation activities. Restoration and rehabilitation 

standard operating procedures for LEPA will be issued in an Instruction Memorandum by 

December 31, 2003. 

.12 BLM will include forbs in seed mixes to increase diversity and pollen sources for insect 

pollinators. Restoration and rehabilitation standard operating procedures for LEPA will be 

issued in an Instruction Memorandum by December 31, 2003. 

.13 Private landowners and permit holders will coordinate with BLM to increase participation in 

fire prevention, suppression, planning and rehabilitation. 

.14 BLM will authorize organized recreation activities only in areas free of occupied and suitable 

habitat. General management standard operating procedures for LEPA will be issued in an 

Instruction Memorandum by December 31, 2003. 

.15 BLM will educate recreationists on special status species & invasive weeds focusing on 

occupied and suitable habitat areas (for schedule see Table 2). 

.16 BLM, in cooperation with Cooperative Weed Management Areas (CWMA) cooperators, will 

establish voluntary OHV wash points for dispersed recreationists at key locations. 

.17 BLM will require the use of equipment wash for organized recreation events where invasive 

or noxious weed introduction could pose a threat to occupied or suitable habitat. General 

management standard operating procedures for LEPA will be issued in an Instruction 

Memorandum by December 31, 2003. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-40 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

.18 BLM will require complete botanical survey using USFWS Rare Plant Inventory Guidelines 

within occupied and suitable habitat prior to actions that entail soil disturbance 

authorizations. General management standard operating procedures for LEPA will be issued 

in an Instruction Memorandum by December 31, 2003. 

.19 BLM will require that all authorizations contain weed control measures. General management 

standard operating procedures for LEPA will be issued in an Instruction Memorandum by 

December 31, 2003. 

.20 BLM will increase the frequency of compliance inspections associated with land use permits 

in occupied and suitable habitat areas. General management standard operating procedures 

for LEPA will be issued in an Instruction Memorandum by December 31, 2003. 

.21 BLM will increase research on elimination and control of invasive species. 

.22 BLM will require portable wash racks at agency authorized construction sites. General 

management standard operating procedures for LEPA will be issued in an Instruction 

Memorandum by December 31, 2003. 

.23 BLM and CWMA cooperators will train weeds staff on LEPA and occupied and suitable 

habitat recognition. General management standard operating procedures for LEPA will be 

issued in an Instruction Memorandum by December 31, 2003. 

.24 BLM will require complete botanical surveys for LEPA and its habitat prior to authorizing 

herbicide use. General management standard operating procedures for LEPA will be issued in 

an Instruction Memorandum by December 31, 2003. 

.25 BLM will opportunistically acquire occupied and suitable habitat in land exchanges. 

.26 BLM will strive to conserve remaining stands of sagebrush or native vegetation in making 

land management and project level decisions. General management standard operating 

procedures for LEPA will be issued in an Instruction Memorandum by December 31, 2003. 

.27 BLM will require that new, renewing or amending right of way holders or other related 

permit holders to establish 40 – 60% perennial cover depending on the location of the project 

after all ground disturbing activities. General management standard operating procedures for 

LEPA will be issued in an Instruction Memorandum by December 31, 2003. 

.28 BLM will incorporate requirements that new, renewing or amending right of way holders 

contact the Land Management Agency for ground disturbing activities in occupied and 

suitable habitat, pre and post construction. General management standard operating 

procedures for LEPA will be issued in an Instruction Memorandum by December 31, 2003. 

.29 BLM and Law Enforcement Cooperators will modify agreements to increase Law 

Enforcement patrols to improve adherence to access management requirements and to 

discourage trespass (see Table 2). 

.30 BLM will train permittees on LEPA and occupied and suitable habitat recognition. 

.31 The BLM will conduct periodic compliance inspections during soil disturbance projects and 

increased inspections during use periods to prevent impacts on occupied and suitable habitat. 

General management standard operating procedures for LEPA will be issued in an Instruction 

Memorandum by December 31, 2003. 

.32 The Slickspot Peppergrass Conservation Team, through the State of Idaho Conservation Data 

Center (CDC) will conduct annual monitoring within all EO’s in all MA’s 1-11 to assess the 

effectiveness of the conservation measures. Protocols that expand the existing Habitat 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-41

Integrity Index (HII) to encompass the monitoring required by this CCA will be in place by 

May, 2004. 

.33 BLM, FWS, and the state will continue to survey lands within the LEPA Consideration Zone 

and report survey information to the CDC and incorporate the information into the CCA 

adaptive management strategy. 

.34 BLM in cooperation with the US Department of Agriculture (USDA) Plant Protection and 

Quarantine (PPQ) will aggressively work to minimize the risk of insect (i.e. Mormon crickets 

and grasshoppers) herbivory when outbreaks occur that may threaten existing element 

occurrences. 

.35 BLM will provide USDA PPQ with the location of Lepidium papilliferum habitat. Mormon 

cricket and grasshopper control in Lepidium papilliferum habitat will only include those 

methods that do not significantly impact the plant’s pollinators. 

Management Area Conservation Measures 

The development of management areas provides an organizational structure that facilitates the 

management of slickspot peppergrass in distinct segments across its range. Each management area 

has specific conservation measures for the multiple element occurrences located within it. The 

conservation measures for the management area are designed to eliminate, reduce or mitigate the 

impacts of site-specific activities and threats and to maintain or restore the sagebrush–steppe habitat. 

The use of this concept promotes management of slickspot peppergrass habitat across its range that is 

based on location or site-specific characteristics and issues. Consideration of administrative 

boundaries, specifically grazing allotment boundaries, private, state, or federal land was also factored 

into the designation of the management areas. 

Priority Element Occurrence Conservation Measures 

In addition to the conservation measures for management areas, selected “priority” element 

occurrences have been identified within each management area listed below for additional, sitespecific conservation measures. These element occurrences were designated based on criteria 

including: existing habitat quality, geographic location relative to other existing occurrences to 

promote connectivity for the species, minimal land-use activities, the absence or presence of 

resources to address threats, the need to preserve enough element occurrences throughout the species 

range to prevent extinction in case of a catastrophic event. 

The conservation measures are designed to reflect even greater priority on protection and restoration 

of the habitat within the element occurrences. 

Kuna Management Area 

This MA is located south of Kuna, extending from the Kuna Butte area southward for approximately 

seven miles to south of Initial Point. The MA contains six (018, 019, 024, 025, 042, 057) known 

slickspot peppergrass occurrences. All of the occurrences are located on BLM land. All but one 

occurrence is located fully or partially within the Snake River Birds of Prey National Conservation 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-42 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

Area. Element occurrences 018 and 057 are priority occurrences. A series of wildfires have swept 

through this area in the past ten years and the great majority of the original shrub-steppe vegetation 

has been converted to annual grassland or crested wheatgrass seedings. All but one of the known 

slickspot peppergrass occurrences in the MA are located in areas that have burned. A few small 

remnant shrub stands are all that remain within these occurrences. The one occurrence that has not 

burned is surrounded by cheatgrass-dominated burned habitat. Most of the slickspot peppergrass 

occurrences within this MA are relatively large, 20 acres or more. The extensive Initial Point 

occurrence (019), covering over 1000 acres, once supported abundant slickspot peppergrass scattered 

over a series of subpopulations. Slickspot peppergrass is now rare over this large, burned area. Most 

of the other occurrences within this MA were also known to support relatively large slickspot 

peppergrass numbers in the past. 

The primary threats and activities that impact the species in this management area include: fire, 

recreation, invasion of nonnative plant species, livestock trampling and land use authorizations and 

land exchanges. 

The following conservation measures will be implemented within the management area: 

 Fire 

Fire management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by May 1, 2004, that incorporates the following measures: 

6.1 Potential impacts to known locations of occupied LEPA habitat, in contrast to potential 

benefits of more immediate fire suppression, will be considered by Land Managers, 

specifically BLM and the State (IDL), in granting authorization to use heavy ground moving 

equipment for fire suppression. 

6.2 BLM will provide adequate fire suppression coverage at all stations that respond to this 

management area with the intent to meet management objectives to suppress ninety (90%) of 

all fires to less than 100 acres (reduced from the current suppression target of less than 200 

acres). 

6.3 Land management agencies will protect remnant blocks of native vegetation, especially late 

seral sagebrush-steppe habitats. Fire suppression tactics and prevention/suppression strategies 

will be specified in Fire Management Plans to be completed by September 2004. 

6.4 BLM in coordination with fire management cooperators will implement Minimum Impact 

Suppression Tactics in fire suppression to minimize ground disturbance impacts to slickspot 

peppergrass, where feasible. 

Recreation 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-43

6.5 BLM and the State will manage OHV recreation to minimize impacts to occupied and 

suitable habitat. 

6.6 BLM will develop and install educational signage at entry points and key recreational points 

regarding the biology and conservation of this species and other special status species. 

Invasive Nonnative Plants Species 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 

6.7 BLM in conjunction with the CWMA cooperators require weed spraying control measures 

including, spraying when wind conditions are less than 7 miles per hour, using large droplet 

spray only, with reduced pump pressure, and spot spraying. 

6.8 BLM will assign priority to treatment of nonnative invasive or weed species with emphasis 

on treating the immediate EO 18 and 57. 

6.9 BLM and the State will require restoration and rehabilitation to native conditions in trespass 

cases damaging occupied LEPA habitat. 

Land Use Authorizations and Land Exchanges 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 

6.10 BLM and the State will require temporary or permanent project fencing to protect habitat 

adjacent to construction activities. 

Livestock Trampling 

BLM shall change the terms and conditions of all grazing permits within this management area to 

reflect and include the conservation measures for this management area and the priority occurrences 

within it. 

6.11 Permittees will supplement federal and state agency surveys and monitoring by surveying 

their allotments for slickspots and plants, including existing occurrences, during their normal 

course of business. 

6.12 Permittees will report survey information to the Conservation Data Center for the purposes of 

aiding monitoring efforts and contributing to the CCA adaptive management strategy. 

6.13 Permittees shall place salt/supplements to minimize trampling of LEPA and of slickspots, 

respectively. Supplements will be placed at least 1/2 mile, preferably 3/4 mile from 

occurrences. Supplement placing shall be considered in the annual LEPA tour with the BLM 

range specialist, based on the experience in the previous year's grazing season. Supplements 

that are attractants should be placed so that cattle will not trail through an element occurrence 

to the supplement or a water source. Attractants should be placed so that cattle are drawn 

away from the area of the element occurrence. Terms and Conditions within a permit will be 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-44 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

adjusted to reflect the distance necessary for supplements from existing element occurrences 

and slickspots; however, requirements for maximum distance from water may be waived for 

a compelling reason involving minimizing impact on a slickspot or the plant. If the 

aforementioned is not possible, then existing sites will be examined by BLM and the 

permittee to determine the best available location. 

6.14 Permittees will not trail livestock through element occurrences within the management area 

when soils are saturated. 

6.15 Grazing for this management area will be limited to the fall and winter grazing season, 

beginning approximately on October 1, which ever comes first. Permittee will herd livestock 

away from priority occurrences if the soils become moist and will relocate livestock if soils 

become saturated and penetrating trampling is likely to occur to one of three alternative sites, 

(two of the alternative sites are fenced), away from existing priority element occurrences. If 

soils are likely to become saturated permittee will also relocate livestock away from the 

vicinity of existing element occurrences by moving livestock to one of three alternative sites, 

(two of the alternative sites are fenced). 

6.16 Permittees within the management area will use only existing roads and tracks for vehicle 

travel. 

6.17 Sheep grazing permits will be modified to restrict bedding, trailing or watering herds within 

1⁄2 mile of EO’s. 

The following conservation measures will be implemented within EO 18. These measures will be 

included in Instruction Memorandums covering general, fire and rehabilitation standard operating 

procedures to be issued by December 31, 2003 or through the permittee’s annual authorization and/or 

through modification of grazing permits. 

• BLM will not issue new land use authorizations. 

• BLM, the permittee, and CWMA cooperators will use only hand sprayers for herbicide. 

• BLM will require control of invasive non native or weed species on new, renewing or amending 

right of way authorizations. 

• BLM will establish 10 ft spray buffer zones around slickspots for weed control activities. 

• Within 10 ft no spray buffer zones, weeds will only be treated by hand. 

• BLM will evaluate the need for and implement as appropriate motorized vehicle restrictions. 

The following conservation measures will be implemented within EO 57. These measures will be 

included in Instruction Memorandums covering general, fire and rehabilitation standard operating 

procedures to be issued by December 31, 2003 or through modification of grazing permits. 

• BLM will not issue new land use authorizations. 

• BLM, the permittee, and CWMA cooperators will use only hand sprayers for herbicide. 

• BLM will require control of invasive non native or weed species on new, renewing or amending 

right of way authorizations. 

• BLM will establish 10 ft spray buffer zones around slickspots for weed control activities. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-45

• Within 10 ft no spray buffer zone, weeds will only be treated by hand. 

• BLM will evaluate the need for and implement as appropriate motorized vehicle restrictions. 

Gowen Field/Orchard Training Area Management Area 

This MA is located approximately 20 miles south-southeast of Boise, on BLM land within the Snake 

River Birds of Prey National Conservation Area. The MA is located within the Orchard Training 

Range and used by the Idaho Army National Guard for training purposes. Contiguous portions of the 

Orchard Training Area occur to the south of the MA, while a mix of BLM, State, and private lands 

extend to the north. The MA contains seven (027, 028, 035, 041, 053, 059, 067) known slickspot 

peppergrass occurrences. Three of them (027, 028, 067) are located within large stands of intact 

sagebrush habitat. These stands cover several thousand acres and represent the largest blocks of 

unfragmented sagebrush habitat remaining along the western Snake River Plain, north of the Snake 

River. Several of the occurrences within the MA support relatively large numbers of slickspot 

peppergrass. They represent some of the largest occurrences rangewide. Element occurrences 027 and 

028 are priority element occurrences. Large sections of Orchard Training Range located south of the 

MA contain burned annual grassland or mosaic burned habitats. The Idaho Army National Guard has 

implemented a number of conservation measures on behalf of slickspot peppergrass within the 

training range. They have also sponsored much of the life history and other research completed or 

ongoing for slickspot peppergrass. 

The primary threats and activities that impact the species in this management area include: fire, 

recreation, invasion of nonnative plant species, livestock trampling, military training and land use 

authorizations and land exchanges. 

The following conservation measures will be implemented within the management area: 

Fire 

Fire management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by May 1, 2004, that incorporates the following measures: 

7.1 Known locations of occupied LEPA habitat will be considered by Land Managers, 

specifically BLM and the State, in granting authorization to use heavy ground moving 

equipment for fire suppression. 

7.2 BLM will provide adequate fire suppression coverage at all stations that respond to this 

management area to meet management objectives with the intent to suppress ninety percent 

(90%) of fires to less than 100 acres (reduced from the current suppression target of less than 

200 acres). 

7.3 Land management agencies will protect remnant blocks of native vegetation, especially late 

seral sagebrush-steppe habitats. Fire suppression tactics and prevention/suppression strategies 

will be specified in Fire Management Plans to be completed by September 2004. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-46 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

7.4 BLM in coordination with fire management cooperators will implement Minimum Impact 

Suppression Tactics in fire suppression to minimize ground disturbance impacts to slickspot 

peppergrass, where feasible. 

Recreation 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 

7.5 BLM and the State will manage OHV recreation to minimize impacts to occupied and 

suitable habitat. 

7.6 BLM will develop and install educational signage at entry points and key recreational points 

regarding the biology and conservation of this species and other special status species. 

7.7 BLM will evaluate the need for and implement as appropriate motorized vehicle restrictions. 

Invasive Nonnative Plants Species 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 

7.8 BLM in conjunction with the CWMA cooperators require weed spraying control measures 

including, spraying when wind conditions are less than 7 miles per hour, using large droplet 

spray only, with reduced pump pressure, and spot spraying. 

7.9 BLM will assign priority to treatment of nonnative invasive or weed species with emphasis 

on treating EO 27 and EO 28. 

7.10 BLM and the State will require restoration and rehabilitation to native conditions in trespass 

cases damaging occupied LEPA habitat. 

Land Use Authorizations and Land Exchanges 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 

7.11 The BLM and the State will require temporary or permanent project fencing to protect 

occupied habitat adjacent to construction activities. 

Livestock Trampling 

BLM shall change the terms and conditions of all grazing permits within this management area to 

reflect and include the conservation measures for this management area and the priority occurrences 

within it. 

7.12 Permittees will supplement federal and state agency surveys and monitoring by surveying 

their allotments for slickspots and plants, including existing occurrences, during their normal 

course of business. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-47

7.13 Permittees will report survey information to the Conservation Data Center for the purposes of 

aiding monitoring efforts and contributing to the CCA adaptive management strategy. 

7.14 Permittees shall place salt/supplements to minimize trampling of LEPA and of slickspots, 

respectively. Supplements will be placed at least 1/2 mile, preferably 3/4 mile from 

occurrences. Supplement placing shall be considered in the annual LEPA tour with the BLM 

range specialist, based on the experience in the previous year's grazing season. Supplements 

that are attractants should be placed so that cattle will not trail through an element occurrence 

to the supplement or a water source. Attractants should be placed so that cattle are drawn 

away from the area of the element occurrence. Terms and Conditions within a permit will be 

adjusted to reflect the distance necessary for supplements from existing element occurrences 

and slickspots; however, requirements for maximum distance from water may be waived for 

a compelling reason involving minimizing impact on a slickspot or the plant. If the 

aforementioned is not possible, then existing sites will be examined by BLM and the 

permittee to determine the best available location. 

7.15 Permittees will not trail livestock through element occurrences within the management area 

when soils are saturated. Permittees when directed by the BLM will move livestock to an 

alternate area either outside of the management are or to private land to avoid penetrating 

trampling during periods when soils are saturated. 

7.16 Permittee will delay turnout, when soils are saturated. 

7.17 Confine vehicle use to existing roads and tracks where element occurrences are present. 

7.18 Sheep grazing permits will be modified to restrict bedding, trailing or watering herds within 

1⁄2 mile of EO’s. 

Military Training 

The following conservation measures were developed with the Idaho Army National Guard 

(IDARNG) and will be implemented under the 2004-2008 Gowen Field/Orchard Training Area 

Integrated Natural Resource Management Plan (INRMP). Preparation and implementation of the 

INRMP is required by law under the Sikes Act. See 16 U.S.C. § 670 et seq. The responsibilities of the 

IDARNG under the CCA are limited to funding and implementing the following conservation 

measures, in accordance with its INRMP, on the Gowen Field/Orchard Training Area (GFTA). 

7.19 Continue to prevent damage to and fragmentation of the late seral sagebrush-steppe habitat in 

which slickspot peppergrass occurs on the Orchard Training Area by controlling IDARNG 

vehicle traffic through “off limit” areas and restricted travel. 

7.20 Continue to annually monitor vegetation trends in the late seral sagebrush habitat to 

determine if the vegetation composition remains stable under current uses and management. 

7.21 Continue to monitor previously established transects and Habitat Integrity Index plots. 

7.22 Continue to use only native species and broadcast seeding methods for any habitat restoration 

projects. 

7.23 Continue to manage military activities to protect slickspot peppergrass populations and 

surrounding habitat from training damage. 

7.24 Continue to review plans for military training exercises in the management area and position 

them so they do not affect slickspot peppergrass populations and surrounding habitat. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-48 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

7.25 Continue to require troops to view environmental briefings before training and emphasize the 

importance or protecting slickspot peppergrass. 

7.26 Continue to install and maintain signs designating population centers. 

7.27 Continue to monitor the management area to ensure off-limits areas have been respected. 

7.28 Continue to minimize opportunities for the introduction of invasive and noxious plants on the 

Orchard Training Area by requiring pre-washing of non-local military vehicles entering the 

area. 

7.29 Continue to report to BLM areas of invasive and noxious plants as they are located. 

7.30 Continue to cooperate with BLM in the control of non-native noxious weeds. 

7.31 Continue to disallow the development of new roads through slickspot peppergrass habitat. 

7.32 Continue the mutual support agreement with BLM for the suppression of wildfires in the 

National Conservation Area. 

7.33 Continue to inform firefighters of the location of important slickspot peppergrass habitat and 

implement minimum impact suppression tactics in those areas. 

7.34 Continue to provide a high level of rapid response fire protection during fire season when 

military activities are occurring on the Orchard Training Area. 

7.35 Continue to implement the Integrated Natural Resources Management Plan (INRMP) for the 

Orchard Training Area. 

The following conservation measures will be implemented within EO 27 and EO 28. 

• BLM will not issue new land use authorizations. 

• BLM, the permittee, and CWMA cooperators will use only hand sprayers for herbicide. 

• BLM will require control of invasive non native or weed species on new, renewing or amending 

right of way authorizations. 

• BLM will establish 10 ft spray buffer zones around slickspots for weed control activities. 

• Within 10 ft no spray buffer zones, weeds will only be treated by hand. 

• All supplements and water sources will be placed a mile away from the vicinity of these priority 

occurrences. 

• Permittee will graze within these element occurrences when the soils are dry. If precipitation 

occurs causing the soil to become tracking wet and the ten day forecast predicts more rain the 

livestock will be removed from the vicinity of the priority element occurrences. 

Mountain Home Management Area 

Occurrences in this MA are located near the northwestern, eastern, and southern outskirts of 

Mountain Home, and also further west to the Crater Rings area, and further south to within a few 

miles northwest of Hammett. The MA contains eight occurrences (002, 010, 021, 029, 050, 051, 061, 

and 062). Element occurrences 021 and 051 are priority element occurrences. They are located 

predominately on BLM lands, although one occurrence extends onto adjacent State land. Private land 

occurs in close proximity to several occurrences. Large areas of public and private land in the 

Mountain Home region have burned in the past and are now dominated by annual grassland 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-49

vegetation. Most occurrences in the MA are located within remnant sagebrush stands. These stands 

vary in size from less than one to over 100 acres, and are generally surrounded by burned habitat. 

The primary threats and activities that impact the species in this management area include: fire, 

recreation, invasion of nonnative plant species, livestock trampling and land use authorizations and 

land exchanges. 

The following conservation measures will be implemented across the management area: 

Fire 

Fire management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by May 1, 2004, that incorporates the following measures: 

9.1 Potential impacts to known locations of occupied LEPA habitat, in contrast to potential 

benefits of more immediate fire suppression, will be considered by Land Managers, 

specifically BLM, in granting authorization to use heavy ground moving equipment for fire 

suppression. 

9.2 BLM will provide adequate fire suppression coverage at all stations that respond to this 

management area to meet management objectives with the intent to suppress ninety percent 

(90%) of fires to less than 100 acres (reduced from the current suppression target of less than 

200 acres). 

9.3 Land management agencies will protect remnant blocks of native vegetation, especially late 

seral sagebrush-steppe habitats. Fire suppression tactics and prevention/suppression strategies 

will be specified in Fire Management Plans to be completed by September 2004. 

9.4 BLM with fire management cooperators will implement Minimum Impact Suppression 

Tactics in fire suppression to minimize ground disturbance impacts to slickspot peppergrass, 

where feasible. 

Recreation 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures. 

9.5 BLM will manage OHV recreation to minimize impacts to occupied and suitable habitat. 

9.6 BLM and the State will develop and install educational signage at entry points and key 

recreational points regarding the biology and conservation of this species and other special 

status species. 

Invasive Nonnative Plants Species 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-50 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

9.7 BLM in conjunction with the CWMA cooperators require weed spraying control measures 

including, spraying when wind conditions are less than 7 miles per hour, using large droplet 

spray only, with reduced pump pressure, and spot spraying. 

9.8 BLM will assign priority to treatment of nonnative invasive or weed species with this 

management area. 

9.9 BLM and the State will require restoration and rehabilitation to native conditions in trespass 

cases damaging sagebrush-steppe habitat. 

Land Use Authorizations and Land Exchanges 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 

9.10 The BLM and the State will require temporary or permanent project fencing to protect 

occupied habitat adjacent to construction activities. 

Livestock Trampling 

BLM shall change the terms and conditions of all grazing permits within this management area to 

reflect and include the conservation measures for this management area and the priority occurrences 

within it. 

9.11 Permittees will supplement federal and state agency surveys and monitoring by surveying 

their allotments for slickspots and plants, including existing occurrences, during their normal 

course of business. 

9.12 Permittees will report survey information to the Conservation Data Center for the purposes of 

aiding monitoring efforts and contributing to the CCA adaptive management strategy. 

9.13 Permittees shall place salt/supplements to minimize trampling of LEPA and of slickspots, 

respectively. Supplements will be placed at least 1/2 mile, preferably 3/4 mile from 

occurrences. Supplement placing shall be considered in the annual LEPA tour with the BLM 

range specialist, based on the experience in the previous year's grazing season. Supplements 

that are attractants should be placed so that cattle will not trail through an element occurrence 

to the supplement or a water source. Attractants should be placed so that cattle are drawn 

away from the area of the element occurrence. Terms and Conditions within a permit will be 

adjusted to reflect the distance necessary for supplements from existing element occurrences 

and slickspots; however, requirements for maximum distance from water may be waived for 

a compelling reason involving minimizing impact on a slickspot or the plant. If the 

aforementioned is not possible, then existing sites will be examined by BLM and the 

permittee to determine the best available location. 

9.14 Permittees will not trail livestock through element occurrences within the management area 

when soils are saturated. 

9.15 Confine vehicle use to existing roads and tracks where element occurrences are present. 

9.16 No grazing will be conducted in the area containing EO 50. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-51

The following conservation measures will be implemented within EO 21. These measures will be 

included in Instruction Memorandums covering general, fire and rehabilitation standard operating 

procedures to be issued by December 31, 2003 or through the permittee’s annual authorization and/or 

through modification of grazing permits. 

• BLM will use aerial seeding and/or no-till drill. 

• BLM will not issue new land use authorizations within occupied and suitable habitat. 

• Idaho Department of Lands will mitigate impacts to slickspot habitat resulting from authorized 

land use activities conducted after this agreement is signed. 

• BLM, the permittee, and the CWMA cooperators, along with the State will use only hand 

sprayers for weed control activities. 

• BLM and the State will require control of invasive non native or weed species on all existing 

right of way authorizations. 

• BLM and the State will establish 10 ft spray buffer zones around slickspots in this EO. 

• Within 10 ft no spray buffer zones, weeds will only be treated by hand. 

• The State will establish a closure to off road motorized recreational activities within occupied and 

suitable habitat. 

• Grazing is prohibited on this EO. 

• Private land owner will incorporate 160 acres of private land (NW1⁄4 Sec. 17, T. 3 S., R. 5 E.) 

within a currently fenced area to be maintained by BLM to prevent livestock from grazing within 

the vicinity of this element occurrence. This land will remain excluded from grazing until such 

time as the owner sells it.

The following conservation measures will be implemented within EO 51. These measures will be 

included in Instruction Memorandums covering general, fire and rehabilitation standard operating 

procedures to be issued by December 31, 2003 or through modification of grazing permits. 

• BLM will use aerial seeding and/or no-till drill only. 

• BLM will not issue new land use authorizations with occupied and suitable habitat. 

• BLM, the permittee, and the CWMA cooperators, along with the State will use only hand 

sprayers for weed control activities. 

• BLM will require control of invasive non native or weed species on all existing right of way 

authorizations. 

• BLM will establish 10 ft spray buffer zones around slickspots. 

• Within 10 ft no spray buffer zones, weeds will only be treated by hand. 

• Permittee will herd livestock away from slickspots during the 2004 grazing season 

• As soon as possible BLM will install a fence and the permittee will maintain the fence, creating a 

pasture containing this element occurrence, which will not be grazed during periods when the 

soils are saturated. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-52 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

Glenns Ferry/Hammett Management Area 

This MA is located northwest of Glenns Ferry. Occurrences in the MA represent the eastern 

distribution limit of slickspot peppergrass on the western Snake River Plain. The MA contains four 

known element occurrences (008, 026, 058, 063), all located on BLM land. Element occurrences 008, 

026 and 058 are priority element occurrences. One of these (063) is small and occurs within a large 

block of burned, annual grassland-dominated habitat. The other three occurrences are much larger, 

varying from approximately 300 to 900 acres, and characterized by unburned sagebrush habitat over 

most of their extent. These sagebrush blocks are some of the largest remaining in the western Snake 

River Plain, north of the Snake River. Part of one occurrence (008) initially burned in the 1980s, but 

still contains some slickspot peppergrass. 

The primary threats and activities that impact the species in this management area include: fire, 

recreation, invasion of nonnative plant species, livestock trampling and land use authorizations and 

land exchanges. 

The following conservation measures will be implemented across the management area: 

Fire 

Fire management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by May 1, 2004, that incorporates the following measures: 

10.1 Potential impacts to known locations of occupied LEPA habitat, in contrast to potential 

benefits of more immediate fire suppression, will be considered by Land Managers, 

specifically BLM, in granting authorization to use heavy ground moving equipment for fire 

suppression. 

10.2 BLM will provide adequate fire suppression coverage at all stations that respond to this 

management area to meet management objectives with the intent to suppress ninety percent 

(90%) of fires to less than 100 acres (reduced from the current suppression target of less than 

300 acres). 

10.3 Land management agencies will protect remnant blocks of native vegetation, especially late 

seral sagebrush-steppe habitats. Fire suppression tactics and prevention/suppression strategies 

will be specified in Fire Management Plans to be completed by September 2004. 

10.4 BLM with fire management cooperators will implement Minimum Impact Suppression 

Tactics in fire suppression to minimize ground disturbance impacts to slickspot peppergrass, 

where feasible. 

Recreation 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-53

10.5 BLM and the State will manage OHV recreation to minimize impacts to occupied and 

suitable habitat. 

10.6 BLM will develop and install educational signage at entry points and key recreational points 

regarding the biology and conservation of this species and other special status species. 

Invasive Nonnative Plants Species 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 

10.7 BLM in conjunction with the CWMA cooperators and the State will require weed spraying 

control measures including, spraying when wind conditions are less than 7 miles per hour, 

using large droplet spray only, with reduced pump pressure, and spot spraying. 

10.8 BLM will assign priority to treatment of nonnative invasive or weed species with EO 8, EO 

26, and EO 58. 

10.9 BLM will require restoration and rehabilitation to native conditions in trespass cases 

damaging sagebrush-steppe habitat. 

Land Use Authorizations and Land Exchanges 

General management standard operating procedures for LEPA will be issued in a BLM Instruction 

Memorandum by December 31, 2003, that incorporates the following measures: 

10.10 The BLM will require temporary or permanent project fencing to protect occupied habitat 

adjacent to construction activities. 

Livestock Trampling 

BLM shall change the terms and conditions of all grazing permits within this management area to 

reflect and include the conservation measures for this management area and the priority occurrences 

within it. 

10.11 Permittees will supplement federal and state agency surveys and monitoring by surveying 

their allotments for slickspots and plants, including existing occurrences, during their normal 

course of business. 

10.12 Permittees will report survey information to the Conservation Data Center for the purposes of 

aiding monitoring efforts and contributing to the CCA adaptive management strategy. 

10.13 Permittees shall place salt/supplements to minimize trampling of LEPA and of slickspots, 

respectively. Supplements will be placed at least 1/2 mile, preferably 3/4 mile from 

occurrences. Supplement placing shall be considered in the annual LEPA tour with the BLM 

range specialist, based on the experience in the previous year's grazing season. Supplements 

that are attractants should be placed so that cattle will not trail through an element occurrence 

to the supplement or a water source. Attractants should be placed so that cattle are drawn 

away from the area of the element occurrence. Terms and Conditions within a permit will be 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-54 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

adjusted to reflect the distance necessary for supplements from existing element occurrences 

and slickspots; however, requirements for maximum distance from water may be waived for 

a compelling reason involving minimizing impact on a slickspot or the plant. If the 

aforementioned is not possible, then existing sites will be examined by the BLM and the 

permitee to determine the best available location. 

10.14 Permittees will not trail livestock through element occurrences within the management area 

when soils are saturated. 

10.15 Confine vehicle use to existing roads and tracks where element occurrences are present. 

10.16 Sheep grazing permits will be modified to restrict bedding, trailing or watering herds within 

1⁄2 mile of element occurrences. 

The following conservation measures will be implemented within EO 08. These measures will be 

included in Instruction Memorandums covering general, fire and rehabilitation standard operating 

procedures to be issued by December 31, 2003 or through the permittee’s annual authorization and/or 

through modification of grazing permits. 

• BLM will use aerial seeding and/or no-till drill only.

• BLM will not issue new land use authorizations. 

• BLM will address restoration of the sagebrush-steppe habitat if degradation is found to be 

associated with authorized uses. 

• BLM, permittees, and the CWMA cooperators will use only hand sprayers for herbicide 

applications. 

• BLM will require control of invasive non native or weed species on new, renewing or amending 

right of way authorizations. 

• BLM will establish 10 ft spray buffer zones around slickspots for weed control activities. 

• Within 10 ft no spray buffer zones, weeds will only be treated by hand. 

• BLM will maintain closure to motorized recreational activities. 

• The portion of this EO that is currently fenced within the Hammett 2 allotment north of the Old 

Oregon Trail Road and west of the Rye Grass Road will not be grazed for the 2004 grazing 

season. 

• The permittee will erect a temporary electric fence before the beginning of the 2004 grazing 

season to keep cattle out of the vicinity of the priority element occurrence when the soils are 

saturated. 

• The permittee, in conjunction with the BLM, will fence the west side of the Hammett Hill Road, 

from the southern allotment fence, north to the Old Oregon Trail Road. This fenced area will not 

be grazed when soils are saturated. The permittee will maintain the fence. 

The following conservation measures will be implemented within EO 26. These measures will be 

included in Instruction Memorandums covering general, fire and rehabilitation standard operating 

procedures to be issued by December 31, 2003 or through modification of grazing permits. 

• BLM will use aerial seeding and/or no-till drill only.

• BLM will not issue new land use authorizations. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA A-55

• BLM will address restoration of the sagebrush-steppe habitat if degradation is found to be 

associated with authorized uses. 

• BLM, permittees, and the CWMA cooperators will use only hand sprayers for herbicide 

applications. 

• BLM will require control of invasive non native or weed species on new, renewing or amending 

right of way authorizations. 

• BLM will establish 10 ft spray buffer zones around slickspots for weed control activities. 

• Within 10 ft no spray buffer zones, weeds will only be treated by hand. 

• BLM will maintain closure to motorized recreational activities.

• The permittee, with the assistance of BLM, will fence the northwest corner of pasture 1 within 

Lower Alkali allotment, south of the Old Oregon Trail Road. This portion of fenced pasture will 

be maintained by the permittee and will not be grazed when soils are saturated.

The following conservation measures will be implemented within EO 58. These measures will be 

included in Instruction Memorandums covering general, fire and rehabilitation standard operating 

procedures to be issued by December 31, 2003 or through modification of grazing permits. 

• BLM will use aerial seeding and/or no-till drill. 

• BLM will maintain existing exclosure in southern portion of EO 58 to preclude grazing. 

• BLM will not issue new land use authorizations. 

• BLM will address restoration of sagebrush-steppe habitat if degradation is found to be associated 

with authorized uses. 

• BLM, permittees, and the CWMA cooperators will use only hand sprayers for herbicide 

applications. 

• BLM will require control of invasive non native or weed species on new, renewing or amending 

right of way authorizations. 

• BLM will establish 10 ft spray buffer zones around slickspots for weed control activities. 

• Within 10 ft no spray buffer zones, weeds will only be treated by hand. 

• BLM will maintain closure to motorized recreational activities within exclosure in southern 

portion of EO 58. 

• Pasture 3, south of the Old Oregon Trail Road will be used to trail cattle through only in the fall if 

dry conditions exist, otherwise this pasture is fenced and grazing will not occur when the soil is 

saturated. 

• Allotment containing this EO will be deferred to fall grazing and livestock will be herded away 

from the southern portion of the allotment where the EO exists during periods when soils are 

saturated. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-56 Appendix 7. Slickspot Peppergrass Conservation Measures from the 2003 CCA

THIS PAGE INTENTIONALLY LEFT BLANK. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA) A-57

APPENDIX 8. 2006 SLICKSPOT PEPPERGRASS CONSERVATION 

AGREEMENT (CA) 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-58 Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA)
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA) A-59
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-60 Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA)
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA) A-61
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-62 Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA)
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA) A-63
Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA) A-64 
Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA) A-65
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Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA) A-85
Appendix 8. 2006 Slickspot Peppergrass Conservation Agreement (CA) A-86 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 9. Conservation Measures for Listed Species A-87

APPENDIX 9. CONSERVATION MEASURES FOR LISTED SPECIES 

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

Special Status 

Animal and Plant 

Management 

Note: Common 

to All Programs 

The conservation measures contained throughout 

this table implement important elements for 

yellow-billed cuckoo conservation. The 

conservation measures reflect BLM’s 

commitment to support species conservation. 

1) In cooperation with Idaho Department of Fish 

and Game (IDFG), U.S. Fish and Wildlife Service 

(USFWS), and others: 

a) Continue to cooperate in determining the 

distribution of known populations and suitable 

habitats. 

b) Following current monitoring protocols, 

continue to cooperate in monitoring for species 

presence on a regular basis. 

c) Participate in research essential to conservation 

of the species. Cooperate in determining specific 

limiting factors in terms of habitat needs and 

characteristics. 

d) Cooperate in the management and 

improvement of suitable habitat to promote 

species conservation. 

e) Working with other agencies, compile a 

general list of BMPs that would apply to all 

programs, to the extent that such a list would 

assist with species and habitat conservation. The 

intent of implementing BMPs is to avoid or 

minimize negative impacts. 

2) Ensure that ongoing Federal actions support or 

do not preclude species conservation. 

The implementation actions reflect BLM’s 

commitment to support species conservation. 

Actions apply to BLM lands and activities only. 

1) Following actions to be completed in 

cooperation with others: 

a) Mapping and data inventory: 

i) Use IDFG, CDC, USFWS, and other data to 

identify, record, and map known populations and 

suitable habitat on BLM lands. 

ii) Maintain a spatial database of species 

population and habitat information for BLM 

lands. 

iii) Participate in surveys and map new 

populations as found. Systematic inventories will 

continue to be conducted in cooperation with 

other agencies. 

b) Cooperate with IDFG and USFWS to conduct 

regular monitoring of populations on BLM lands. 

Assist in documenting whether cuckoos are using 

habitats and the type of use. 

c) BLM will participate as funding allows. 

d) Where appropriate, update or develop 

management plans for suitable habitat, 

particularly in areas with known populations, as 

well as in restoration areas. 

e) BMPs: 

i) SO to coordinate development of BMPs with 

FO, District Office (DO), USFWS, and IDFG. 

Instruction memorandum to be issued by SO. 

ii) FO to implement BMPs. 

2) Ongoing BLM activities: 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-88 Appendix 9. Conservation Measures for Listed Species

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

3) Ensure that new Federal actions support or do 

not preclude species conservation. 

4) Implement adaptive management as needed to 

achieve conservation objectives. 

5) Support conservation easements, cooperative 

management efforts, and other programs on 

adjacent non-Federal lands to support 

conservation of the yellow-billed cuckoo. 

a) Review ongoing activities in locations with 

known populations. 

b) Determine if direct or indirect negative impacts 

to the species or its habitat are occurring as a result 

of ongoing discretionary BLM actions. If so, 

modify the activity to avoid or minimize negative 

impacts and, where feasible, promote species 

conservation. 

3) New BLM activities: 

a) Project-level inventories will be completed in 

suitable habitat during project planning if 

inventory information is not available or 

adequate. SO will issue instruction memorandum 

concerning special status species project-level 

inventories and assessment. 

b) If direct or indirect negative impacts to the 

species or its habitat are anticipated as a result of 

new BLM actions, modify the activity to avoid or 

minimize negative impacts and, where feasible, 

promote species conservation. 

c) Avoid implementing activities that have the 

potential to disturb or displace known populations 

of cuckoos during the breeding season (May 

through September). 

4) Conduct site-specific implementation and 

effectiveness monitoring. Adjust management as 

needed to ensure that management objectives are 

met. 

5) Take advantage of opportunities as they arise. 

Air Resources None None 

Soil and Water 

Resources: 

Riparian/Wetland 

Areas (includes 

weed 

management) 

1) Activities within the Soil and Water Resources: 

Riparian/Wetland Areas (includes weed 

management) program will implement relevant 

conservation measures as described in the Special 

Status Animal and Plant Management program 

section to promote conservation. As a part of 

conservation, the goals are to promote multi-tiered 

forested riparian habitat development and 

maintenance in suitable habitat and restoration 

areas, to avoid negative impacts, or to minimize 

impacts if avoidance is not possible. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management

program section at the beginning of this table. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 9. Conservation Measures for Listed Species A-89

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

2) Projects involving the application of pesticides 

(herbicides, insecticides, etc.) that may affect the 

species will be analyzed at the project level and 

designed such that pesticide applications will 

support conservation and minimize risks of 

exposure. 

3) Where needed and feasible, coordinate with 

adjacent landowners and local governments 

regarding control of invasive plants in riparian 

areas through cooperative weed management 

programs. 

4) Conserve riparian vegetation in suitable habitat 

(for example, healthy willow stands and 

cottonwood trees) to maintain their integrity for 

use by yellow-billed cuckoos, and initiate 

management in restoration areas. 

2) Site-specific stipulations will be developed 

locally using the following criteria: 

a) Evaluate the benefits and risks of vegetation 

treatment, including the following: application 

methods; pesticides, carriers, and surfactants 

used; needed treatment buffers; and use of nonchemical weed control (for example, bio-controls, 

hand pulling). If management objectives can be 

effectively accomplished using non-chemical 

methods, such is the preferred alternative. 

b) Apply appropriate spatial and temporal buffers 

to avoid species’ exposure to harmful chemicals. 

c) Implement appropriate revegetation and weed 

control measures to reduce the risks of non-native 

species infestations following any ground/soil 

disturbing actions in or near suitable habitat. 

3) Take advantage of opportunities as they arise. 

4) Management actions: 

a) Emphasize eradication of non-native invasive 

species in riparian areas that compete with willow 

and cottonwood tree regeneration. Continue to 

identify problem areas (such as areas infested with 

tamarisk, Russian olive, and false indigo) and 

implement appropriate weed control measures. 

b) Avoid issuing commercial firewood cutting 

permits in suitable habitats in riparian forests. If 

permits are issued, ensure that such activities are 

consistent with the long-term maintenance of 

suitable habitat and enhancement of restoration 

areas. 

c) As needed, close suitable habitat in riparian 

forests to non-commercial firewood cutting and 

post the closure. 

Upland 

Vegetation 

Management: 

Rangelands 

(includes weed 

management) 

1) Activities within the Upland Vegetation 

Management: Rangelands (includes weed 

management) program will implement relevant 

conservation measures as described in the Special 

Status Animal and Plant Management program 

section to promote conservation. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management

program section at the beginning of this table. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-90 Appendix 9. Conservation Measures for Listed Species

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

2) Projects involving the application of pesticides 

in uplands adjacent to suitable yellow-billed 

cuckoo habitat or in restoration areas will be 

designed and implemented in accordance with the 

approach described in the Soil and Water 

Resources: Riparian/Wetland Areas (includes 

weed management) program section. 

2) See Soil and Water Resources: 

Riparian/Wetland Areas (includes weed 

management) program section. 

Forest and 

Woodland 

Management 

(includes weed 

management) 

1) Activities within the Forest and Woodland 

Management (includes weed management)

program will implement relevant conservation 

measures as described in the Special Status 

Animal and Plant Management program section 

to promote conservation. 

2) Projects involving the application of pesticides in 

forested areas and woodlands adjacent to suitable 

yellow-billed cuckoo habitat or in restoration areas 

will be designed and implemented in accordance 

with the approach described in the Soil and Water 

Resources: Riparian/Wetland Areas (includes 

weed management) program section. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) See Soil and Water Resources: 

Riparian/Wetland Areas (includes weed 

management) program section.

Wildlife and 

Wildlife Habitat 

Management 

1) Activities within the Wildlife and Wildlife 

Habitat Management program will implement 

relevant conservation measures as described in the 

Special Status Animal and Plant Management 

program section to promote conservation. 

2) In restoration areas, cooperate in creating 

opportunities for yellow-billed cuckoo occupancy 

by enhancing habitat. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management

program section at the beginning of this table. 

2) Consider planting or other habitat enhancement 

measures to improve yellow-billed cuckoo habitat 

value. 

Fish and Aquatic 

Habitat 

Management 

1) Activities within the Fish and Aquatic Habitat 

Management program will implement relevant 

conservation measures as described in the Special 

Status Animal and Plant Management program 

section to promote conservation. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

Livestock 

Grazing 

Management: 

Permits and 

Leases 

1) Activities within the Livestock Grazing 

Management: Permits And Leases program 

will implement relevant conservation measures as 

described in the Special Status Animal and 

Plant Management program section to promote 

conservation. 

2) Manage livestock grazing and trailing to 

promote growth and recruitment of healthy 

riparian vegetation communities (for example, 

willows and cottonwood trees). Maintain and 

promote suitable habitat and restore areas for the 

yellow-billed cuckoo while implementing 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) Permit or lease renewal actions: 

a) For review of ongoing actions, see Special 

Status Animal and Plant Management program 

section item (2). 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 9. Conservation Measures for Listed Species A-91

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

rangeland health standards and guidelines 

(S&Gs). 

3) Promote restoration of suitable habitat 

following fire, fire rehabilitation, restoration 

treatments, or other major disturbances. 

4) Maintain regular compliance checks on grazing 

allotments with known populations to identify 

problems as soon as possible and take immediate 

corrective measures. 

b) For new actions, see Special Status Animal 

and Plant Management program section 

item (3). 

c) As appropriate to avoid or minimize negative 

impacts, modify livestock grazing permits and 

leases. 

3) As needed, protect disturbed areas using 

temporary closures or other measures until the 

willow shrubs and cottonwood saplings (or other 

target riparian species) are re-established and selfsustaining. 

4) Ongoing, day-to-day BLM action. 

Livestock 

Grazing 

Management: 

Livestock 

Management 

Facilities 

1) Activities within the Livestock Grazing 

Management: Livestock Management 

Facilities program will implement relevant 

conservation measures as described in the Special 

Status Animal and Plant Management program 

section to promote conservation. 

2) Manage livestock facilities to promote healthy 

riparian vegetation communities (for example, 

willows and cottonwood trees). Maintain and 

promote suitable habitat and restore areas for the 

yellow-billed cuckoo while implementing 

rangeland health S&Gs. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) For review of ongoing actions, see Special 

Status Animal and Plant Management 

program section item (2). For new actions, see 

Special Status Animal and Plant Management 

program section item (3). As appropriate to 

avoid or minimize negative impacts, modify 

existing and avoid placement of new livestock 

facilities. 

Wild Horse 

Management 

1) Activities within the Wild Horse 

Management program will implement relevant 

conservation measures as described in the Special 

Status Animal and Plant Management program 

section to promote conservation. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

Recreation 

Management 

1) Activities within the Recreation Management 

program will implement relevant conservation 

measures as described in the Special Status 

Animal and Plant Management program 

section to promote conservation. 

2) Developed facilities (boat access, paved 

campgrounds, vault toilets, interpretive kiosks, 

etc.): Manage existing and new recreation 

facilities so as not to preclude species habitat 

conservation. This includes management of the 

physical facilities, as well as disturbances to the 

species resulting from human uses. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) Management of existing and new facilities: 

a) For review of existing facilities, see Special 

Status Animal and Plant Management program 

section item (2). As appropriate to avoid or 

minimize negative impacts, modify existing 

facilities. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-92 Appendix 9. Conservation Measures for Listed Species

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

3) Dispersed use areas (informal areas, including 

camping areas and tie-up areas for pack animals 

and boats): Manage dispersed use sites so as not 

to preclude species habitat conservation. This 

includes limiting disturbances to the species 

resulting from human uses. 

4) Commercial and noncommercial recreation 

permits, including outfitter camps: Issue 

commercial and noncommercial recreation 

permits in accordance with goals for promoting 

species habitat conservation. This includes 

management of physical facilities (such as 

camps), as well as disturbances to the species 

resulting from human uses. 

5) Coordinate with the IDFG to educate 

recreation users at boat ramps and at designated 

camp areas about the need to conserve yellowbilled cuckoo habitat. 

b) For new facilities, or for expansion of uses or 

seasons of use at existing facilities, see Special 

Status Animal and Plant Management program 

section item (3). In addition, avoid development 

of new recreation facilities or expansion of 

existing facilities in suitable habitat, if negative 

impacts are anticipated. 

3) For review of ongoing actions, see Special 

Status Animal and Plant Management program 

section item (2). In addition, minimize human 

activity in suitable habitat if negative impacts are 

occurring. Close areas, either seasonally or yearround, as needed to protect the species and its 

habitat, and post and monitor the closure. 

4) Issuance and review of existing and new 

permits: 

a) For review of existing permits, see Special 

Status Animal and Plant Management program 

section item (2). If needed, modify existing 

permits that conflict with achieving or 

maintaining suitable habitat conditions. 

b) For new permits, see Special Status Animal 

and Plant Management program section item 

(3). Avoid issuing recreation permits if negative 

impacts are expected. Consider the seasonal 

nature of the proposed activities, and whether this 

conflicts with yellow-billed cuckoo conservation 

needs. In particular, avoid permitting new 

recreation activities in suitable habitat. If a 

recreation permit is to be issued, apply 

stipulations to the permit to support or to not 

preclude species conservation. 

5) Take advantage of opportunities as they arise. 

Recreation 

Management: 

Travel 

Management 

1) Activities within the Recreation 

Management: Travel Management program 

will implement relevant conservation measures as 

described in the Special Status Animal and 

Plant Management program section to promote 

conservation. 

2) Manage roads, off-highway vehicle (OHV) 

routes and areas, as well as non-motorized trails, 

so as not to preclude species habitat conservation. 

This includes management of physical facilities, 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) Review of existing and new roads, OHV 

routes, and areas and non-motorized trails: 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 9. Conservation Measures for Listed Species A-93

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

as well as disturbances to the species resulting 

from human uses. 

3) Maintain regular compliance checks on OHV 

closures to protect known populations and to 

identify problems as soon as possible and take 

immediate corrective measures. 

a) For existing roads, designated OHV routes and 

areas, and designated non-motorized trails, see 

Special Status Animal and Plant Management 

program section item (2). Modify routes in 

locations with known populations, if negative 

impacts are occurring. Evaluate the need for 

seasonal OHV use restrictions in suitable habitat 

and, if needed, implement restrictions to reduce 

disturbance to the species and its habitat. Seek 

opportunities to close and revegetate OHV routes 

or non-motorized trails and use areas in suitable 

habitat, if negative impacts are occurring. 

b) For new roads, OHV routes and areas, and 

trails, see Special Status Animal and Plant 

Management program section item (3). Avoid 

constructing new roads, trails, routes, and areas if 

negative impacts are expected. Consider the 

seasonal nature of the proposed activities, and 

whether this conflicts with yellow-billed cuckoo 

conservation needs. In particular, avoid opening 

new roads, trails, routes, and areas in suitable 

habitat. 

3) Ongoing, day-to-day BLM activities. 

Visual Resource 

Management 

None None 

Special 

Designation Area 

Management 

1) Activities within the Special Designation 

Area Management program will implement 

relevant conservation measures as described in 

the Special Status Animal and Plant 

Management program section to promote 

conservation. 

2) Explore the potential for new designations that 

would enhance species conservation, such as goodcondition cottonwood/willow riparian forest. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) Take advantage of opportunities as they arise. 

Fire 

Management: 

Fire Suppression 

1) Activities within the Fire Management: Fire 

Suppression program will implement relevant 

conservation measures as described in the Special 

Status Animal and Plant Management program 

section to promote conservation. Human life and 

firefighter safety and property take priority over 

species protection. 

2) Fire suppression efforts will be conducted, as 

possible, to protect yellow-billed cuckoo habitat. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) Fire management activities: 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-94 Appendix 9. Conservation Measures for Listed Species

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

3) Coordinate with U.S. Forest Service, Idaho 

Department of Lands, or other applicable agency 

personnel regarding fire suppression activities in 

or near suitable habitat. 

a) Review Fire Management Plan for adequacy in 

addressing conservation measures. Modify the 

plan if needed. 

b) Apply minimum impact suppression tactics 

(MIST) in suitable habitat, as appropriate. 

Consult with resource advisors to determine 

where MIST tactics should be applied to avoid or 

minimize negative impacts. 

c) Do not locate fire base camps, staging areas, 

and fueling areas in suitable habitat. Avoid 

locating these and other related activities in 

suitable habitat. 

3) Ongoing interagency coordination. 

Fire 

Management: 

Emergency 

Stabilization and 

Rehabilitation 

1) Activities within the Fire Management: 

Emergency Stabilization and Rehabilitation 

program will implement relevant conservation 

measures as described in the Special Status 

Animal and Plant Management program 

section to promote conservation. 

2) Implement Emergency Stabilization and 

Rehabilitation (ES&R) activities to promote 

yellow-billed cuckoo habitat rehabilitation. 

3) Fire rehabilitation projects involving the 

application of pesticides in or adjacent to 

suitable habitat areas will be analyzed and 

implemented in accordance with the approach 

described in the Soil and Water Resources: 

Riparian/Wetland Areas (includes weed 

management) program section. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) ES&R activities: 

a) If needed and if natural recovery would not 

achieve habitat objectives, implement ES&R 

activities to promote rehabilitation of suitable 

habitat. Plant locally appropriate trees and shrubs, 

if natural recovery of such vegetation is doubtful. 

b) As needed, protect disturbed areas using 

temporary closures or other measures until the 

cottonwood saplings (and other target tree and 

shrub species) are re-established and selfsustaining. 

3) See Soil and Water Resources: 

Riparian/Wetland Areas (includes weed 

management) program section. 

Fire 

Management: 

Wildland Fire 

Use 

1) Activities within the Fire Management: 

Wildland Fire Use program will implement 

relevant conservation measures as described in 

the Special Status Animal and Plant 

Management program section to promote 

conservation. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management

program section at the beginning of this table. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 9. Conservation Measures for Listed Species A-95

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

2) Wildland fire use projects (where allowed) will 

be designed to conserve suitable yellow-billed 

cuckoo habitat. 

2) When developing wildland fire use plans, 

avoid burning suitable habitat, and develop 

appropriate burn prescriptions that maximize the 

conservation of suitable habitat. 

Fire 

Management: 

Prescribed Fire 

1) Activities within the Fire Management: 

Prescribed Fire program will implement relevant 

conservation measures as described in the Special 

Status Animal and Plant Management program 

section to promote conservation. 

2) Prescribed fire projects will be designed to 

conserve suitable yellow-billed cuckoo habitat 

and restoration areas. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management

program section at the beginning of this table. 

2) When developing and implementing prescribed 

fire plans, avoid or minimize negative impacts to 

suitable habitat, and use prescribed fire as a tool 

for enhancing restoration areas. 

Fire 

Management: 

Non-Fire Fuels 

Management 

1) Activities within the Fire Management: NonFire Fuels Management program will 

implement relevant conservation measures as 

described in the Special Status Animal and 

Plant Management program section to promote 

conservation. 

2) Implement projects involving the application 

of pesticides in or adjacent to suitable habitat or 

restoration areas in accordance with the approach 

described in the Soil and Water Resources: 

Riparian/Wetland Areas (includes weed 

management) program section. 

3) Promote establishment of vegetation needed to 

achieve suitable yellow-billed cuckoo habitat. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management

program section at the beginning of this table. 

2) See Soil and Water Resources: 

Riparian/Wetland Areas (includes weed 

management) program section. 

3) Incorporate conservation actions into the fuels 

projects, as needed. For example, design seed 

mixes that will enhance or promote the growth of 

willows, cottonwoods, or other target shrub and 

tree species. 

Fire 

Management: 

Community 

Assistance 

1) Activities within the Fire Management: 

Community Assistance program will implement 

relevant conservation measures as described in 

the Special Status Animal and Plant 

Management program section to promote 

conservation. 

2) Follow all measures included throughout the 

Fire Management program sections. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) See actions within Fire Management program 

sections. Incorporate into community assistance 

agreements. 

Lands and Realty 

Management: 

Land Tenure 

Adjustment (land 

sale, exchanges, 

withdrawals, 

etc.) 

1) Activities within the Lands and Realty 

Management: Land Tenure Adjustment (land 

sale, exchanges, withdrawals, etc.) program will 

implement relevant conservation measures as 

described in the Special Status Animal and 

Plant Management program section to promote 

conservation. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-96 Appendix 9. Conservation Measures for Listed Species

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

2) Where feasible and funding is available, 

acquire through land exchange or purchase 

private lands that support known populations or 

could enhance habitat for yellow-billed cuckoo. 

3) Retain yellow-billed cuckoo habitat in Federal 

ownership to the extent possible, while balancing 

other needs. 

2) Take advantage of opportunities as they arise. 

Priority should be given to lands that are adjacent 

to or near public lands. 

3) Review each land tenure decision in terms of 

species habitat. Retain suitable habitat in public 

ownership unless compelling circumstances 

necessitate the land tenure adjustment. If property 

with suitable habitat is to be transferred out of 

Federal ownership, permanent conservation 

easements may be attached to the transfer that 

would result in equal or greater protection than 

under Federal management. Such measures must 

be approved by the State Director. 

Lands and Realty 

Management: 

Land Use 

Permits and 

Leases 

1) Activities within the Lands and Realty 

Management: Land Use Permits and Leases 

program will implement relevant conservation 

measures as described in the Special Status 

Animal and Plant Management program section 

to promote conservation. 

2) Issue new land use permits and leases and 

review existing permits and leases at renewal so 

as not to preclude species habitat conservation. 

This includes management of physical facilities, 

as well as disturbances to the species resulting 

from human uses. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) For new permits and renewal of existing 

permits, see Special Status Animal and Plant 

Management program section item (3). Avoid 

issuing new permits or leases, or renewing 

existing permits or leases, in suitable habitat if 

negative impacts are expected. Consider the 

seasonal nature of the proposed activities, and 

whether this conflicts with yellow-billed cuckoo 

conservation needs. If a permit or lease is to be 

issued or re-issued in suitable habitat, apply 

stipulations to the permit that support or do not 

preclude species conservation and that avoid or 

minimize negative impacts. 

Lands and Realty 

Management: 

Rights-of-Way 

1) Activities within the Lands and Realty 

Management: Rights-of-Way program will 

implement relevant conservation measures as 

described in the Special Status Animal and 

Plant Management program section to promote 

conservation. 

2) Issue new rights-of-way and review existing 

rights-of-way at renewal so as not to preclude 

species habitat conservation. This includes 

management of physical facilities, as well as 

disturbances to the species resulting from human 

uses. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) For new rights-of-way and renewal of existing 

rights-of-way, see Special Status Animal and 

Plant Management program section item (3). 

Avoid issuing rights-of-way, or renewing existing 

rights-of-way, in suitable habitat if negative 

impacts are expected. Consider the seasonal 

nature of the proposed activities, and whether this 

conflicts with yellow-billed cuckoo conservation 

needs. If a right-of-way is to be issued or re-
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 9. Conservation Measures for Listed Species A-97

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

issued in suitable habitat, apply stipulations to the 

right-of-way that support or do not preclude 

species conservation and that avoid or minimize 

negative impacts. 

Mineral 

Management: 

Locatable 

Minerals 

1) Activities within the Mineral Management: 

Locatable Minerals program will implement 

relevant conservation measures as described in 

the Special Status Animal and Plant 

Management program section to promote 

conservation. 

2) Approve plans of operations or allow notice 

level operations so as not to preclude species 

habitat conservation. This includes management 

of physical facilities, as well as disturbances to 

the species resulting from human uses. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) Approval of plans of operations and noticelevel operations: 

a) For review of existing plans of operation and 

notice-level operations, see Special Status 

Animal and Plant Management program 

section item (2). To the extent allowed by law, 

modify plans of operation or notice-level 

operations that conflict with yellow-billed cuckoo 

management objectives in suitable habitat. For 

notice-level operations, notify the operator that 

modifications to proposed activities will be 

required to avoid negative impacts. 

b) For new plans of operation and notice-level 

operations, see Special Status Animal and Plant 

Management program section item (3). To the 

extent allowed by law, avoid approving plans of 

operation or notice-level operations that conflict 

with yellow-billed cuckoo management 

objectives in suitable habitat. Consider the 

seasonal nature of the proposed activities, and 

whether this conflicts with yellow-billed cuckoo 

conservation needs. For notice-level operations, 

notify the operator that modifications to proposed 

activities will be required to avoid negative 

impacts. If a plan of operations is to be approved 

in suitable habitat, apply stipulations to support or 

to not preclude species conservation. A notice 

will require modification by the operator until 

BLM determines that it will not result in undue or 

unnecessary degradation. 

Mineral 

Management: 

Saleable and 

Leasable 

Minerals 

1) Activities within the Mineral Management: 

Saleable and Leasable Minerals program will 

implement relevant conservation measures as 

described in the Special Status Animal and 

Plant Management program section to promote 

conservation. 

2) Approve development of saleable or leasable 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

2) Approval of saleable and leasable minerals: 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-98 Appendix 9. Conservation Measures for Listed Species

Yellow-Billed Cuckoo (Coccyzus americanus): 

LUP Programs 

Evaluated Conservation Measures BLM Implementation Actions 

minerals so as not to preclude species habitat 

conservation. This includes management of 

physical facilities, as well as disturbances to the 

species resulting from human uses. 

a) For review of existing mineral leases, see 

Special Status Animal and Plant Management 

program section item (2). Modify existing 

mineral leases if negative impacts are occurring. 

b) For new sales or leases, see Special Status 

Animal and Plant Management program 

section item (3). Avoid development of saleable 

or leasable minerals in suitable habitat if negative 

impacts are expected. Consider the seasonal 

nature of the proposed activities, and whether this 

conflicts with yellow-billed cuckoo conservation 

needs. If a minerals lease or sale is to be issued in 

suitable habitat, apply stipulations to support or to 

not preclude species conservation. 

Cultural 

Management 

1) Activities within the Cultural Management

program will implement relevant conservation 

measures as described in the Special Status 

Animal and Plant Management program 

section to promote conservation. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 

Paleontology 1) Activities within the Paleontology program 

will implement relevant conservation measures as 

described in the Special Status Animal and 

Plant Management program section to promote 

conservation. 

1) Apply relevant conservation measures from the 

Special Status Animal and Plant Management 

program section at the beginning of this table. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-99

APPENDIX 10. SNAKE RIVER WILD & SCENIC RIVER EVALUATION 

REPORT 

Eligibility, Classification, & Suitability 

I. Introduction 

As part of the planning process for the Snake River Birds of Prey National Conservation Area (NCA) 

Resource Management Plan (RMP), a BLM interdisciplinary (ID) team completed a Wild and Scenic 

Rivers (WSR) study under Section 5(d)(1) of the Wild and Scenic Rivers Act (WSRA). This study 

reviews BLM-administered public land along the 82 miles of the Snake River, evaluates and makes 

determinations regarding eligibility, makes preliminary classifications to those river segments found 

eligible, and makes suitability recommendations for all eligible segments. 

This report is the official record of the eligibility and suitability determinations made by the ID Team. 

This report: 1) discusses the definition of free-flowing and whether or not the Snake River fits that 

definition; 2) describes the criteria for evaluating outstandingly remarkable values; 3) describes and 

assesses resource values, and determines if specific resource values are outstandingly remarkable; 4) 

determines preliminary classification for all eligible river segments; and 5) determines suitability 

recommendations for all eligible river segments. 

Purpose

The WSR Act, passed by Congress in October 1968, instituted a legislative program to study and 

protect free-flowing river segments by making them part of the National Wild and Scenic Rivers 

System (NWSRS). Congress did not intend to protect every remaining free-flowing river, but rather 

sought to conserve a representative sample of many of our most important natural and recreational 

rivers. 

Directives in BLM Manual 8351 and “The Wild and Scenic River Study Process” technical report 

prepared for the Interagency Wild and Scenic Rivers Coordinating Council, 1999, were followed for 

integrating a wild and scenic river study within the resource management planning process. 

Study Boundary

The study area boundary includes 82 miles of the Snake River from the upstream NCA boundary at 

about river mile 527 downstream to the western NCA boundary at approximately river mile 445 

(Figure 1). Only those river segments that met the initial free flowing criteria were further evaluated 

for outstandingly remarkable values in this report. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-100 Appendix 10. Snake River Wild & Scenic River Evaluation Report

The boundaries of any river proposed for potential addition to the NWSRS, as specified in section 

4(d) of the WSR Act, are usually limited to that area measured within one-quarter mile above the 

ordinary high watermark on each side of the river. The study boundary for this evaluation of the 

Snake River used the one-quarter mile area as a starting point, but in some locations extended this 

distance to 100 feet beyond the canyon rim to include the entire expanse of the Snake River Canyon. 

In evaluating the river’s scenic values, the surrounding background, when viewed from the canyon 

rim, was considered as part of the view shed. 

Figure 1. Snake River Wild & Scenic River Study Area. 

The Snake River’s special values were assessed as to whether they are unique, rare or exemplary 

within the state, region, or nation. For purposes of this report and in order to better define the 

evaluation criteria, “regionally significant” refers to the portion of the United States that includes 

Washington, Oregon, Idaho, western Montana, northern Nevada, northern Utah, and western 

Wyoming. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-101

Overview of the WSR Study Process

The first phase of a WSR study is the eligibility determination, an analysis to see whether the river is 

eligible to be considered for WSR designation. 

To be considered eligible a water course: 

1. Must be a: River – defined as: 

A flowing body of water, or estuary, or section, portion, or tributary thereof, including: 

rivers, streams, creeks, runs, kills, rills, and small lakes. 

2. Must Be: Free flowing – defined as: 

Existing or flowing in a natural condition without impoundment, with exceptions (low 

dams, diversion works, and other minor structures), diversion, straightening, rip-rapping, 

or other modification of the waterway (channelization). 

Can: be any size or length, lie between impoundments or major dams, be non-floatable 

or non-boatable, be intermittent, or non-perennial. 

3. And must possess at least one (1) outstandingly remarkable value, such as: Scenic, 

Recreational, Geologic, Fish and Wildlife, Historic, Cultural, or other similar values 

including Biological, Botanical, Ecological, Hydrological, or Paleontological. 

The second phase of the study is the classification analysis, which determines whether the river 

should be tentatively classified as a recreational, scenic, or wild river if it were designated by 

Congress. This tentative BLM classification is based on the level of development present within the 

river corridor. 

The third phase of the study is the suitability assessment which looks at the possible impacts of 

designation, weighs various elements such as public access, long-term protection of resources, and 

traditional resource uses, and asks the basic question of would this be a worthy addition to the 

National Wild & Scenic River System. 

II. Free Flowing Criteria and Determinations 

Free flowing is defined by Section 16(b) of the Wild and Scenic Rivers Act as: “existing or flowing in 

a natural condition without impoundment, diversion, straightening, rip-rapping, or other modification 

of the waterway”. The existence of low dams, diversion works, or other minor structures at the time 

of evaluation does not automatically disqualify a stream from consideration. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-102 Appendix 10. Snake River Wild & Scenic River Evaluation Report

Swan Falls Dam and C.J. Strike Dam create impoundments at two different locations along the 82 

miles of the Snake River. Swan Falls Reservoir extends 9.5 miles upstream from Swan Falls Dam. CJ 

Strike Reservoir extends 24 miles upstream from CJ Strike Dam. 

These two reservoirs on the Snake River do not meet the initial criteria as free flowing. The 

remaining segments of the Snake River do meet the initial criteria of free flowing (Table 1 and Figure 

2). 

Figure 2. Free flowing segments of the Snake River. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-103

Table 1. Free flowing determinations for the Snake River. 

River Segment Description 

Number of 

Miles 

River Segment 

Name 

Free Flowing 

Criteria Met 

East boundary of the NCA to the 

backwaters of CJ Strike Reservoir 9 Indian Cove Yes 

Backwaters of C.J. Strike Reservoir to 

CJ Strike Dam 24 C.J. Strike Reservoir No 

Downstream of C.J. Strike Dam to the 

backwaters of Swan Falls Reservoir 26.5 Grand View Yes 

Backwaters of Swan Falls Reservoir to 

Swan Falls Dam 9.5 Swan Falls Reservoir No 

Downstream of Swan Falls Dam to the 

west boundary of the NCA 13 Swan Falls Yes 

Findings Summary: Three (3) segments of the Snake River (49 miles total) were found to meet the 

free-flowing criteria. Two (2) segments (33 miles total) did not meet the criteria. 

The 26.5 mile Grand View segment has two distinct characters. The initial 17.5 miles downstream 

from CJ Strike Dam is visually characterized by being a wide valley floor with the canyon rim several 

miles to the north and no canyon rim south of the river. The ownership is predominately private land 

on both sides of the river, being either rural townships or agricultural fields and pasture lands. At the 

end of this segment the river turns north and the surrounding canyon closes back into a river 

characterized by vertical basalt cliffs on the north and broken cliffs and buttes to the south. The 

ownership changes to predominately public lands with some private lands spaced throughout. For this 

reason the Grand View segment will be divided and evaluated as two segments – the Grand View 

Segment and the Jackass Butte Segment. 

The Grand View segment extends from just below CJ Strike Dam at the Strike Dam Road Bridge 

downstream approximately 17.5 miles to Jackass Butte at River Mile 474. The Jackass Butte Segment 

extends from Jackass Butte downstream approximately 9 miles to the backwaters of Swan Falls 

Reservoir (Figure 3). 

These four (4) free flowing segments (Indian Cove, Grand View, Jackass Butte, and Swan Falls) will 

be further analyzed as to their possible outstandingly remarkable values. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-104 Appendix 10. Snake River Wild & Scenic River Evaluation Report

Figure 3. Snake River Eligibility Study Segments. 

III. Outstandingly Remarkable Values (ORVs) 

The determination that a river area contains ORVs is a professional judgment on the part of the interdisciplinary study team (ID team), based on objective, scientific analysis. In order to be assessed as 

outstandingly remarkable, a river-related value must be a unique, rare, or exemplary feature that is 

significant at a comparative state, regional or national scale. Dictionary definitions of the words 

“unique” and “rare” indicate that such a value would be one that is a conspicuous example from 

among a number of similar values that are themselves uncommon or extraordinary. 

The ID team evaluated 49 miles of the Snake River, which met the free flowing criteria, by listing all 

of the river’s special values and then assessing whether they were unique, rare or exemplary within 

the state, region, or nation. Only one such value is needed for a segment to be eligible. Of the 82 

miles of the Snake River in the study area, four segments (49 miles) were identified for further 

analysis for the presence of outstandingly remarkable values and are discussed in greater detail below. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-105

The values, which must be directly river-related or owe their location or existence to the river 

ecosystem, are considered outstandingly remarkable if they are unique or exemplary compared to 

similar values of other rivers within a geographic region of comparison. The regions used for 

comparison in this study are the Northern Great Basin and the Northern Rocky Mountains. 

The following eligibility criteria were used and are intended to set minimum thresholds to establish 

ORVs and are illustrative but not all-inclusive. The “standard” criteria for each resource and the 

Outstandingly Remarkable Value Rating used are from BLM Manual 8351 and are an interagency 

standard for greater consistency within the federal river-administering agencies. 

Discussion of River-Related Values

Scenic (S) 

Criteria for Outstandingly Remarkable Value Rating

The landscape elements of landform, vegetation, water, color, and related factors result in notable or 

exemplary visual features and/or attractions. The BLM Visual Resource Inventory handbook, H4810-1 may be used in addressing visual quality and in evaluating the extent of development upon 

scenic values. The rating must be a scenic quality “A” as defined in the BLM Visual Inventory 

Handbook. When analyzing scenic values, additional factors – such as seasonal variations in 

vegetation, scale of cultural modifications, and the length of time negative intrusions are viewed – 

may be considered. Scenery and visual attractions may be highly diverse over the majority of the river 

or river segment. 

Figure 4. View east of Indian Cove Segment of the Snake River. 

Evaluation of Present Situation 

The general scenic character of the Snake River is one of vertical canyon cliffs interspersed with wide 

expansive views of valley floor and rolling hills leading south toward the Owyhee Mountains. The 

Swan Falls segment is the most enclosed, having cliffs on both sides of the river for the majority of 

the segment. The four segments, while similar, have slightly different visual characteristics. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-106 Appendix 10. Snake River Wild & Scenic River Evaluation Report

The Indian Cove segment begins with canyon cliffs rising 400 feet along both sides of the river and 

then opening to distant views of hills and buttes to the south after approximately 2 miles. The canyon 

closes back in on the river again at approximately 6 miles (Figure 4.). The Grand View segment is 

privately owned land in some form of agricultural development for almost the entire length. This 

segment of the river opens into a large flood plain with the canyon rim typically 2-3 miles from the 

river on the north and no rim to the south (Figure 5). The downstream portion of the segment begins 

to move into open rangelands and the canyon rim comes back to within 1 mile of the river and starts 

to create a more enclosed canyon. At this point, the Jackass Butte segment begins. 

Figure 5. View west of Grand View segment of the Snake River. 

Initially the views in the Jackass Butte segment are limited in distance due to the canyon cliffs and 

rim and the curving of the river. At about three miles the canyon rim again disappears to the south, 

broken only by Castle Butte and Morgan Butte. The north rim fluctuates between being adjacent to 

the river to two miles from the river. At Wild Horse Butte the canyon closes in again and remains this 

way for the remainder of the segment. The Swan Falls segment is a large, one mile wide canyon for a 

majority of its length with cliffs ranging from 300 to 600 feet above the river (Figure 6). 

Figure 6. View west of Snake River Canyon below Swan Falls Dam. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-107

The vertical cliffs and angular talus slopes of all four segments provide straight visual lines of rock 

and low vegetation with a medium texture. Along the Swan Falls, Jackass Butte, and Indian Cove 

segments the cliffs vary in proximity to the river from immediately adjacent to approximately one 

half mile away. The cliffs along the Grand View segment are set back as much as three miles. The 

distance of the canyon rim creates differences in the scale of the canyon and the feeling of openness. 

The Swan Falls segment has the highest vertical cliffs (600 feet) but the canyon does not feel tight 

because the rim to rim distance averages about one mile across. 

The south side of the four segments is a mixture of steep cliffs, buttes, rolling hills, and flood plains. 

The Indian Cove segment initially consists of flood plains slowing rising to low hills. The mixed 

ownership provides a mixture of croplands, groves of mature trees, and desert vegetation. This 

combination of vegetation breaks up the visual form across the landscape. The Grand View segment 

is almost entirely flood plains and rolling hills with no cliffs. The Jackass Butte segment changes 

character as the canyon cliffs come closer to the river to form an initial enclosed canyon that opens up 

after a few miles. 

For the majority of the year the color tends to be dark cliff faces and brown/tan vegetation. The 

exception to this is the irrigated agricultural fields which stay green into the fall and the brief period 

during the spring when vegetation can be a brilliant green. 

The BLM administered lands along the Snake River are categorized as Visual Resource Management 

(VRM) Class I, II, and III. The areas managed under VRM Class I are the north side of the Swan 

Falls segment, (which was classified as such when the Snake River Birds of Prey Natural Area 

received national protection in 1972), and those areas in the Grand View and Indian Cove segments 

along the Oregon National Historic Trail. The remaining segments are a mixture of VRM Class II and 

III. 

Finding

While the visual elements and scenic quality of the Snake River Canyon can be spectacular, they are 

not unlike many other portions of the Snake River through southern Idaho and other areas of volcanic 

activity. Examples of similar scenic views in Idaho include the Snake River Canyon and Lower 

Salmon Falls Creek near Twin Falls. The quality of the scenic values for these four segments of the 

Snake River does not constitute an outstandingly remarkable scenic value when compared to other 

regional scenes. 

Recreational (R) 

Criteria for Outstandingly Remarkable Values Rating 

Recreational opportunities are, or have the potential to be, popular enough to attract visitors from 

throughout or beyond the region of comparison or are unique or rare within the region. Visitors are 

willing to travel long distances to use the river resources for recreational purposes. River-related 

opportunities could include, but are not limited to, sightseeing, wildlife observation, camping, 

photography, hiking, fishing and boating. Interpretive opportunities may be exceptional and attract, or 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-108 Appendix 10. Snake River Wild & Scenic River Evaluation Report

have the potential to attract, visitors from outside the region of comparison. The river may provide, or 

have the potential to provide, settings for national or regional usage or competitive events. 

Evaluation of the Present Situation 

The Snake River Canyon provides a unique opportunity to observe one of the largest concentrations 

of nesting raptors in the world. This opportunity attracts visitors from the local area, the region, the 

nation, and other countries. Feature articles in magazines and newspapers has prompted visitation 

from across the United States. Environmental organizations, such as Hawk Watch International and 

the Audubon Society, routinely bring visitors from throughout the U.S. for the opportunity to view 

birds of prey along this stretch of the Snake River. 

The Snake River Canyon also provides diverse opportunities for additional recreational activities such 

as fishing, camping, float and power boating, hiking, mountain biking, horseback riding, waterfowl 

hunting, and parasailing primarily for local residents. Recreation use occurs year–round with visitor 

use being highest in the spring and early summer months and lowest during winter months. 

Finding 

Opportunities for general river-related recreational activities along the Snake River are similar to 

those that can be found on many western rivers. However, the Snake River Canyon provides a very 

unique raptor watching opportunity found in only a few places in the United States. This opportunity 

is truly an outstandingly remarkable recreational value to the birding community. 

Geology (G) 

Criteria for Outstandingly Remarkable Value Rating 

The river, or the area within the river corridor, contains one or more examples of a geologic feature, 

process or phenomenon that is unique or rare within the region of comparison. The feature(s) may be 

in an unusually active stage of development, represent a “textbook” example, and/or represent a 

unique or rare combination of geologic features (erosional, volcanic, glacial, or other geologic 

structures). 

Evaluation of Present Situation 

The NCA is located in the western Snake River Plain physiographic province, which is the western 

limb of a broad, flat arcuate depression which is concave to the north and extends 400 miles westward 

from northwest Wyoming to the Idaho-Oregon border. The structural depression is fault bounded and 

has an average width of about 35 miles. The western Plain is a north – northwest – trending 10 

million year old basin bounded by normal faults. The surface consists primarily of Quaternary basalt 

flows underlain by Lake Idaho lacustrine sediments over 1000 feet thick and stream deposits derived 

from the Idaho batholith to the north and the Owyhee Mountains to the south. 

Both arms of the Plain appear to have been strongly shaped by extension of the crust on the North 

American Plate during the past 17 million years. This structural formation was triggered by the 

magmatism of the migrating Yellowstone hot spot. In the NCA, the Snake River has cut a deep 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-109

canyon in the lake deposits. The basalts have repeatedly filled the canyon over the past 100,000 years 

and subsequently been eroded by the Snake River forming a new canyon. The canyon is the 

predominant surface feature in the NCA and provides important nesting habitat for the raptor 

populations that inhabit the area. 

The volcanism in the western Snake River Plain region began with extrusion of rhyolitic lavas 

followed by the eruption of basalt and ashflow tuffs. As the plain pulled apart and subsided, a lake, or 

succession of lakes, known as Lake Idaho formed. Volcanic activity occurring when the lake was 

present resulted in many spectacular examples of three major types of phreatomagmatic volcanoes 

(volcanic activity associated with water): emergent, subaqueous, and subaerial. Emergent volcanoes, 

like Sinker Butte, began erupting under water and eventually build a volcanic edifice above the lake 

level. Subaqueous volcanoes erupt under water and never build above the lake level. Finally, 

subaerial volcanoes erupt through a buried aquifer system which produces violent eruptive features. 

All of these volcanic systems contain a significant amount of water, causing a high magma/water 

interaction. Emergent and subaqueous volcanoes usually form gently sloping tuff cones, whereas 

subaerial volcanoes form maars or tuff rings. The western Snake River Plain is an excellent area to 

study phreatomagmatic eruptions and hydrovolcanism. 

Bonneville Flood – As glaciers receded during the last ice age, the inland basin of central Utah slowly 

filled with meltwater, creating Lake Bonneville. This lake covered approximately 20,000 square 

miles. The water level rose and finally crested at the lowest point in the basin – Red Rock Pass, 

Idaho. The lake crested over the pass over a period of 500 to 1000 years before a catastrophic failure 

of the alluvial threshold dropped the lake level by approximately 100 meters during the Bonneville 

flood about 14,500 years ago. Water spilled out of Lake Bonneville and flowed north into the valleys 

of Marsh Creek and the Portneuf River. The deluge entered the Snake River Plain just north of 

Pocatello and flowed west across southern Idaho before turning back north into the Hell’s Canyon 

region. Over an estimated eight week period approximately 380 cubic miles of water passed through 

and over the Snake River Canyon. 

The Snake River and its canyons are the major geographic features across the volcanic plain and 

became the main conduit for the Bonneville flood. The varying topographic features of the Snake 

River produced distinct types of hydraulics. In places where the canyon is deep and constricted, the 

velocity of the water increased tremendously. This increased energy allowed the water to pick up 

talus boulders the size of houses, turn, roll, and smooth out their rough edges, and deposit them many 

miles downstream. When the water entered wide, open stretches, the velocity decreased and the 

energy of the water could not keep the boulders suspended. The rocks settled in the bottom of the 

river and are now exposed on the larger bars along the river. These large, rounded boulders were 

nicknamed “melon gravel” due to the resemblance to big watermelons. 

Dedication Point is an excellent location to view some of the effects of this catastrophic event. The 

river canyon above Swan Falls Dam is narrow and constricted, and widens below the dam. The large 

bar on the north side of the river below Dedication Point is covered with the Bonneville Flood 

boulders. You will notice the boulders on the upstream side of the bar are larger than the boulders on 

the downstream end. This demonstrates how the river lost energy as the canyon widened and was 
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Appendices Resource Management Plan and Record of Decision 

A-110 Appendix 10. Snake River Wild & Scenic River Evaluation Report

unable to hold the larger boulders in suspension. Floodwaters completely filled the canyon in some 

locations and flowed above the canyon rim in other areas. The force of the flood waters scoured the 

canyon in constricted locations. The river carved out many “box” canyons along the cliffs in places 

where large eddies formed. 

Finding

The portion of the Snake River Canyon located within the NCA provides fine examples of canyon 

development and erosional features created by massive flood action, however; similar and in many 

ways much more definitive features can be observed upstream and downstream from the NCA and in 

the Columbia River Gorge and its tributaries. The Bonneville Flood was a single catastrophic event 

that changed the face of the Snake River Canyon, but the Glacial Lake Missoula Flood, of the 

Columbia River drainage was many times larger exploding downstream at a rate 10 times the 

combined flow of all the rivers of the world. Lake Missoula was drained of its estimated 500 cubic 

miles of water in as little as 48 hours. Rebuilding and failure of the ice dam created catastrophic 

flooding perhaps as many as 100 times before the alpine glaciers receded for the last time. The 

geologic resources associated with these four segments of the Snake River, while interesting are not 

unique when compared to regional geologic features and do not meet the criteria as outstandingly 

remarkable. 

Fish (F) 

Criteria for Outstandingly Remarkable Value Rating 

Fish values may be judged on the relative merits of either fish populations, habitat, or a combination 

of these river-related conditions. 

Populations: 

The River is nationally or regionally an important producer of resident and/or anadromous fish 

species. Of particular significance is the presence of wild stocks and/or federal or state listed (or 

candidate) threatened, endangered or sensitive species. Diversity of species is an important 

consideration and could, in itself, lead to a determination of “outstandingly remarkable.” 

Habitat: 

The River provides exceptionally high quality habitat for fish species indigenous to the region of 

comparison. Of particular significance is habitat for wild stocks and/or federal or state listed (or 

candidate) threatened, endangered or sensitive species. Diversity of habitats is an important 

consideration and could, in itself, lead to a determination of “outstandingly remarkable.” 

Evaluation of Present Situation 

Populations: 

The Snake River’s aquatic habitat is home to 27 species of fish, including white sturgeon, the largest 

fresh water fish in North America. White sturgeon, redband trout and mountain whitefish are the only 

native game fish in the NCA, since the salmon and steelhead runs were blocked by downstream dams. 
Snake River Birds of Prey NCA 

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Appendix 10. Snake River Wild & Scenic River Evaluation Report A-111

Twelve species of exotic game fish have been introduced into the Snake River system. These include 

small-mouth bass, rainbow trout, perch, crappie and channel catfish. Carp, an exotic fish, may be the 

most common large fish in the Snake River. Eleven native fish are considered non-game fish 

including suckers, northern pikeminnow, dace, shiners and sculpin. 

Habitat: 

The Snake River is a large volume, (greater than fifth order), river that is one of the most important 

water resources in the state. The river provides important agricultural, recreational, and wildlife 

resources. In this reach, the river flows through basalt canyons, rangeland, and agricultural land. The 

channel shape varies from being confined in the canyons to wide single channel areas with extensive 

floodplains and meandering channels with island complexes. 

Findings: 

The fish populations and habitat of the Snake River within the NCA are similar to those throughout 

Idaho and of other large volume rivers in the Pacific Northwest and do not constitute an outstandingly 

remarkable value. 

Wildlife (W) 

Criteria for Outstandingly Remarkable Values Rating 

Wildlife values may be judged on the relative merits of either terrestrial or aquatic wildlife 

populations or habitat or a combination of these conditions. 

Populations: 

The river or area within the river corridor contains nationally or regionally important populations of 

indigenous wildlife species. Of particular significance are species considered to be unique, and/or 

populations of federal or state listed (or candidate) threatened, endangered, or sensitive species. 

Diversity of species is an important consideration and could, in itself, lead to a determination of 

“outstandingly remarkable.” 

Habitat: 

The river or area within the river corridor provides exceptionally high quality habitat for wildlife of 

national or regional significance, and/or may provide unique habitat or a critical link in habitat 

conditions for federal or state listed (or candidate) threatened, endangered or sensitive species. 

Contiguous habitat conditions are such that the biological needs of the species are met. The diversity 

of habitats is an important consideration and could, in itself, lead to a determination of “outstandingly 

remarkable”. 
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Appendices Resource Management Plan and Record of Decision 

A-112 Appendix 10. Snake River Wild & Scenic River Evaluation Report

Evaluation of the Present Situation

Populations: 

Two-hundred and eighteen bird, 49 mammal, 14 reptile, 4 amphibian species, and an unknown 

number of invertebrates have been found in the area. Each plays an integral part in the unique 

ecosystem of the Snake River Plain and Canyon. 

While many bird species can be found along the Snake River Canyon, the raptor populations are the 

most distinctive feature. This unique raptor aggregation is the largest concentration of nesting birds of 

prey in North America and is generally believed to be one of the densest in the world. It is for this 

reason the area was congressionally designated a National Conservation Area in 1994. Raptors are 

relatively scarce animals even under the best conditions because they exist at the top of the food chain 

where the amount of energy available will support only small populations. 

This unusual concentration of raptors exists because of the co-occurrence of two factors critical to 

their survival. One is that nest sites are very abundant in cavities, cracks, and ledges in the fractured 

basalt and eroded sandstone that make up the walls of the Snake River Canyon, numerous side 

canyons, and buttes that arise in the Snake River plain. The second factor is the fertile, fine- and 

medium-textured loess soils that support grasses, forbs, and shrubs, which in turn sustain many small 

mammals, birds, reptiles, and invertebrates. These animal populations, especially Piute ground 

squirrels and blacktailed jackrabbits, are prey for the raptors. Thus, the co-occurrence of abundant 

nesting sites and food supplies is the chief factor explaining why so many raptors occur in the NCA. 

Twenty-five raptor species can be found in the NCA at different times of the year. Sixteen species 

nest in the NCA, and the remaining nine occur here during migration or in winter. Prairie falcons, 

golden eagles, red-tailed hawks, northern harriers, and American kestrels are the most common 

diurnal species. Several owl species are also common, including the barn owl, great horned owl, longeared owl, short-eared owl, western screech owl, and burrowing owl. Of the 16 nesting raptor species, 

10 are year-round residents. Winter visitors include the bald eagle, rough-legged hawk, sharp-shinned 

hawk, and Cooper’s hawk. 

Habitat: 

The proximity of the Snake River’s vertical canyon cliffs to the abundant prey of the Snake River 

Plain has created a unique raptor habitat in North America. This one of a kind habitat has been 

recognized by Congress in its designation as a National Conservation Area and by the American Bird 

Conservancy in its designation as a Globally Important Bird Area. 

Raptors use diverse habitats in the NCA, nesting in three distinct zones: the cliffs, the uplands above 

the canyon, and the riparian areas adjacent to the Snake River. Riparian habitats are limited occurring 

in narrow bands along the Snake River and several small streams. Trees in riparian areas are 

important nesting and roosting habitat for several raptors and are hunting habitat for some, including 

species found there only in the winter. Long-eared owls, northern harriers, western screech-owls, and 

saw-whet owls are the raptor species that nest in riparian areas of the Snake River. 
Snake River Birds of Prey NCA 

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Appendix 10. Snake River Wild & Scenic River Evaluation Report A-113

Finding: 

The remarkable wildlife values (birds of prey) associated with this portion of the Snake River has 

been recognized since the 1950’s. These same values lead to its first congressional designation as a 

Natural Area in 1972 and as a National Conservation Area in 1994. The unique raptor habitat and 

population constitutes an outstandingly remarkable wildlife value. 

Cultural/Prehistory (C) 

Criteria for Outstandingly Remarkable Value Rating 

The river, or area within the river corridor, contains a site(s) where there is evidence of occupation or 

use by Native Americans. Sites must have unique or rare characteristics or exceptional human interest 

value(s). Sites may have national or regional importance for interpreting prehistory; may be rare and 

represent an area where a culture or cultural period was first identified and described; may have been 

used concurrently by two or more cultural groups; and/or may have been used by cultural groups for 

rare sacred purposes. Many such sites are listed on the National Register of Historic Places, which is 

administered by the NPS. 

Evaluation of the Present Situation 

The Snake River Canyon corridor contains hundreds of sites that indicate evidence of use or 

occupation by Native Americans. Some of these sites have unique or rare characteristics, and some 

exhibit exceptional human interest values. Many of the cultural resource sites have regional and 

national importance for interpreting prehistory and some are important because they represent where 

a culture or cultural period was first identified or described. A number of sites have indications that 

they were used by more than one cultural group concurrently. It is also believed by researchers that 

some sites contain traditional cultural properties (TCPs) and exist in the corridor for sacred or 

ceremonial purposes. 

The lower elevation and protective walls of the Snake River Canyon provide a milder winter climate 

for both humans and animals than the surrounding Boise and Owyhee Mountains. Spring and fall 

salmon runs once provided a ready food supply for inhabitants. As such, the Snake River Canyon has 

been used by different cultures, dating as far back as 9,000 years, including the Shoshone, Bannock, 

and Paiute Cultures in prehistory and Euro American cultures after 1811. 

The river corridor contains many prehistoric site types including lithic scatters, caves, habitation sites, 

rockshelters, burials, and rock art sites left by Native Americans. 

Wees Bar is a large boulder field in the Swan Falls Segment that contains hundreds of petroglyphs 

etched into the basalt boulders that were deposited by the Bonneville Flood. This petroglyph field is 

one of the largest concentrations in the Pacific Northwest. Like most petroglyph sites, the Wees Bar 

site is considered rare as a site type and exceptional for its size and number of glyphs. Early Euro 

American miners and homesteaders also inscribed names, initials, and dates on some boulders within 

the canyon and at nearby Halverson Bar. 
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A-114 Appendix 10. Snake River Wild & Scenic River Evaluation Report

The Guffey Butte-Black Butte Archaeological District was listed on the National Register of Historic 

Places (NRHP) in 1978 to protect over 200 known prehistoric sites in the area. The Archaeological 

District covers approximately 26,300 acres of public land extending upstream along the Snake River 

Canyon from Guffey Bridge to Grand View, which covers the Swan Falls, Jackass Butte, and a small 

part of the Grand View segments of the Snake River. 

Schellbach Cave, a small cave in the Archaeological District excavated by Louis Schellbach in 1929, 

is recognized as the first archaeological expedition in Idaho. Well preserved artifacts excavated by 

Schellbach emphasized the importance of prehistoric fishing technology and the use of fish by early 

Canyon peoples. 

The Snake River Corridor was probably simultaneously occupied by Shoshone and Northern Paiute 

Tribes. It is unclear just how much interaction or sharing of natural resources occurred. It is likely, 

however, that there were trade relations and intermarriages between the Tribes that helped foster cooperation and mutual sharing of resources. The cooperative relations probably changed as groups 

expanded or contracted based on resources, and personal strengths or personalities of their leaders. 

There was also an overlap of Euro-Americans and Native Americans using the Snake River Canyon 

from exploration in 1811 through the fur trade era, through the immigrant and homestead eras until 

the Indians were placed on the Fort Hall Indian Reservation and the Duck Valley Indian reservation 

by 1880. 

The canyon was explored by the Astoria Party in 1812 after their canoes were capsized near Milner. 

Starting in 1842, thousands of immigrants traveled the South Alternate of the Oregon Trail that 

parallels the south side of the Snake River along the Indian Cove segment and then turns south of the 

Canyon below Grand View. Oregon Trail traffic diminished with the arrival of train tracks in the 

region during the 1870s and 1880s. 

Camp Buford, which existed for less than a year, was established in 1866 as a US Cavalry Post to 

protect the emigrants along the Oregon Trail. The area began as a river crossing point and an 

emigrant camp spot at the confluence of the Snake and Bruneau Rivers. It is near this spot that 

Governor Caleb Lyon signed the Bruneau Indian Treaty of April 12, 1866, which Congress failed to 

ratify. These sites, located near the BLM’s Cove Recreation Site, were later inundated by C.J. Strike 

Reservoir. 

Fur trappers, Oregon Trail emigrants, gold miners, ranchers and homesteaders left traces from the 

19th century and the early part of the 20th century. The site types include cattle and sheep herding 

camps, homesteads, town sites, miners’ cabins, mine tailings and debris, stone monuments, ditches, 

depressions, and graves. Other historic period sites include transportation road networks, trails, ferry 

crossings, irrigation ditches, and historic trash dumps or scatters. At Wees Bar, the stone walls of a 

house built in 1902 still stand along with ruins of a dugout and other mining related artifacts and 

features. 

Priest Ranch, which was the site of a ferry crossing, still exhibits leveled fields, apricot trees, ruins of 

an irrigation system of ditches, and a water wheel. The town site of Guffey was started on the north 
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Appendix 10. Snake River Wild & Scenic River Evaluation Report A-115

bank of the Snake River, but was moved to the south bank one mile downstream from present day 

Celebration Park after the Guffey Railroad Bridge was finished in 1897. The bridge is now owned by 

Canyon County and accommodates foot and equestrian traffic. 

Swan Falls Dam, which was built in 1901, became the first dam on the Snake River and is now listed 

on the National Register of Historic Places. In 1993, the dam was remodeled and continues to 

generate electricity for Idaho Power Company. 

The town of Grand View was established in 1889 as part of an irrigation and settlement project. The 

Grand View ferry operated until 1921 when a bridge was constructed. 

Finding

The Snake River Canyon corridor through the four river segments contains abundant and significant 

evidence of prehistoric and historic cultures and values. However, these same values are replicated 

along other stretches of the Snake River outside of the NCA, and as such, are not considered unique 

or outstandingly remarkable from a regional perspective. 

Other Similar Values 

No other similar values have been identified for these four segments of the Snake River. 

Outstandingly Remarkable Values Summary

The interdisciplinary team determined that the following river-related resources meet the criteria as 

outstandingly remarkable values: Wildlife and Recreation (all segments). 

IV. Eligibility Determinations 

It is the determination of the ID Team that all four river segments of the Snake River currently exist 

in a free-flowing condition and contain at least one outstandingly remarkable value and therefore 

meet the requirements for eligibility as a Wild and Scenic River (Table 2). 

Table 2. Eligibility determination summary for free flowing segments of the Snake River. 

River Segment 

Free Flowing 

Criteria Met 

Outstandingly 

Remarkable Values Eligible Eligible Miles 

Indian Cove Yes W, R Yes 9 

Grand View Yes W, R Yes 17.5 

Jackass Butte Yes W, R Yes 9 

Swan Falls Yes W, R Yes 13 

V. Classification Analysis 

Potential Classifications

The WSR Act and Interagency Guidelines provide the following direction for establishing 

preliminary classifications for eligible rivers. All eligible river segments must be tentatively classified 
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A-116 Appendix 10. Snake River Wild & Scenic River Evaluation Report

and management measures instituted as necessary to ensure appropriate protection of the values 

supporting the eligibility and classification determinations. Actual classification is a Congressional 

determination. 

Classification Categories

Section 2 (b) of the WSRA specifies three classification categories for eligible rivers. Classification is 

based on the type and degree of human developments associated with the adjacent lands as they exist 

at the time of the evaluation. 

Wild rivers (W): Those rivers or sections of rivers that are free of impoundments and 

generally inaccessible except by trail, with watersheds or shorelines essentially primitive and 

waters unpolluted. These represent vestiges of primitive America. 

Scenic rivers (S): Those rivers or sections of rivers that are free of impoundments, with 

shorelines or watersheds still largely primitive and shorelines largely undeveloped, but 

accessible in places by roads. Scenic does not necessarily mean the river corridor has to have 

scenery as an outstandingly remarkable value; however, it means the river segment may 

contain more development than a wild segment and less development than a recreational 

segment. 

Recreational rivers (R): Those rivers or sections of rivers that are readily accessible by road 

or railroad, that may have some development along their shorelines, and that may have 

undergone some impoundment or diversion in the past. Parallel roads or railroads, existence 

of small dams or diversions can be allowed in this classification. A recreational river area 

classification does not imply that the river will be managed or prioritized for recreational use 

or development. 

Preliminary Classifications 

Classification establishes a guideline for management until either a suitability determination or 

designation decision is reached. It is a determination based on existing characteristics of a river area 

resulting from human-caused change or level of development. Classification does not affect land use 

decisions related to private property. 

The four Snake River segments are described below with the preliminary classification and are 

summarized in Table 3. 

Indian Cove Segment (9 miles)

State Highway 78 parallels the initial stretch of the Indian Cove segment. This segment is a mixture 

of private and public lands. The private lands contain residential houses, out buildings, irrigated 

agricultural fields, and pasture lands. The segment is easily accessed at many locations and is 

paralleled, for a short portion, by a gravel road that accesses an irrigation pump station. A three mile 

canyon stretch is primarily a natural setting with road access at the canyon rim at several locations. 
Snake River Birds of Prey NCA 

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Appendix 10. Snake River Wild & Scenic River Evaluation Report A-117

The parallel Highway and other roads, the level of access, and level of human development along this 

segment warrants a tentative classification of “recreational.” 

Grand View Segment (17.5 miles)

The Grand View segment begins where Strike Dam Road crosses the Snake River just downstream 

from C.J. Strike Dam. Several gravel and paved roads parallel the Snake River in places between the 

Strike Dam Bridge and the town of Grand View where the river is crossed by State Highway 67. A 

majority of the land in this portion is privately owned with private residences, barns, and assorted 

outbuildings on the property. Much of the land is irrigated farmlands with evidence of human 

development. Downstream from the Highway 67 bridge paved and gravel roads either parallel the 

river or access the river for the rest of the segment. The south side of the river is all private land with 

human evidence being prominent. This segment meets the criteria for a recreational classification. 

Jackass Butte Segment (9 miles)

The Jackass Butte Segment begins with gravel roads paralleling both sides of the river leading to 

private property. The primary views along this segment are of a natural setting. Although the private 

lands have residences and other developments associated with them, they do not dominate the 

scenery. Beyond this point the shoreline is mostly undeveloped with vehicle access at several 

locations. Additional private lands and developments exist along this segment further downstream. 

Although the level of shoreline development in this segment is less than the upstream Grand View 

segment, the segment does not meet the scenic classification description of “shorelines or watersheds 

still largely primitive and shorelines largely undeveloped...”, therefore, this segment would meet the 

criteria for a tentative classification of “recreational.” 

Swan Falls Segment (13 miles)

Beginning just below Swan Falls Dam, this segment has a maintained gravel road paralleling the 

north shoreline and a dirt road along the south. These roads follow the river for about five miles. This 

stretch of the river has many undeveloped campsites with fire-rings and several vault toilets are 

located at strategic places for recreational users. The four miles below the end of the road are 

managed for nonmotorized experiences and the evidence of human development dates to the early 

1900s. At approximately ten miles the river is again accessed by a gravel road at Celebration Park and 

crossed by an abandoned railroad bridge. Celebration Park is a developed county park with many 

facilities including a small campground, interpretive center, picnic area, and a concrete boat ramp 

with floating docks. Below the railroad bridge the land is primarily privately owned with residential 

houses and other buildings. This river segment is crossed by electric power lines at two locations. 

Although the views in this segment are primarily of natural settings, the level of access by roads, and 

other human developments warrant a tentative classification of “recreational.” 

Classification Summary

All four eligible river segments of the Snake River were determined to have tentative classifications 

as recreational river (Table 3). 
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A-118 Appendix 10. Snake River Wild & Scenic River Evaluation Report

Table 3. Tentative Classification summary for Eligible Segments of the Snake River. 

River Segment Tentative Classification Segment Miles 

Indian Cove Recreational 9 

Grand View Recreational 17.5 

Jackass Butte Recreational 9 

Swan Falls Recreational 13 

VI. Suitability Assessment 

The third component of a WSR study is the suitability assessment. It is designed to identify the 

possible impacts of designation, weighs various elements such as public access, long-term protection 

of resources, and traditional resource uses, and asks the basic question of would this be a worthy 

addition to the National Wild & Scenic River System. Additionally, the willingness of county, state 

and local landowners to participate in river corridor management is considered. 

Criteria for Determining Suitability

In considering suitability, the criteria specified in Section 4(a) of the Wild and Scenic Rivers Act 

(listed below) provide the basis for assessment. 

• Characteristics that do or do not make the river corridor a worthy addition to the WSR 

system 

• Current status of land ownership and uses in the area 

• Reasonably foreseeable potential uses of the land and water that would be enhanced, 

foreclosed or curtailed if the river were designated 

• Public, state, local or other interests in designation or non-designation of the river 

• Estimated costs of acquiring necessary lands and interests in lands, and of administering 

the river if designated 

• Ability of the agency to manage the river and protect identified values 

• Historical or existing rights that would be adversely affected by designation 

• Other issues and concerns identified in the land use planning process 

Indian Cove Segment 

River Values/Characteristics

The Indian Cove segment is visually very characteristic of many sections of the Snake River 

throughout southern Idaho. The north side of the river is flanked by basalt cliffs rising 300-400 feet 

above the river. The south shore is open, flat terrain that has been settled or otherwise modified. At 

the downstream end of this segment a butte on the south creates a three mile long canyon that is 

slightly less than 1⁄2 mile wide (rim-to-rim). Many different species of raptors use the cliffs for nesting 

and forage over the surrounding desert and farmlands. Public access to the river is limited by private 

land on the south and is somewhat limited on the north by topography (i.e. steep cliffs). 
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Appendix 10. Snake River Wild & Scenic River Evaluation Report A-119

Opportunities for viewing raptors and other wildlife within the river corridor are limited by legal 

public access. Raptor viewing is primarily from the main county and state roads which provide few 

safe opportunities to pull to the shoulder. The Indian Cove segment is at the upstream end of the NCA 

where the raptor habitat begins to lose its uniqueness as raptor nesting habitat. 

Land Ownership and Uses

Land ownership is approximately 39 percent private land and 61 percent BLM land (public). Private 

lands are associated with the community of Indian Cove primarily on the south side of the river. The 

public land lies mainly on the more rugged north side of the river. 

Public land use along this segment includes primarily recreational activities such as boat fishing, and 

waterfowl hunting. The canyon cliffs limit the amount of general dispersed recreation that occurs on 

the public land in the area. Several irrigation pump stations, (two located on public land), transport 

river water to adjacent and distant agricultural fields. The private lands are primarily residential farms 

and associated irrigated agriculture or livestock pastures. 

Potential Uses of Land and Water Resources enhanced or foreclosed

This river segment ends at the backwaters of CJ Strike Reservoir and the river gradient is very low. 

These factors make the potential for new hydroelectric facilities not very feasible. However, the 

private lands have potential for new pump systems for local irrigation. Designation would preclude 

any new hydroelectric facilities within this segment and would also preclude any new diversions or 

structures which would impact private landowners. Potential surface disturbing activities would not 

be constrained by designation. Designation would not significantly enhance any land or water 

resources along this segment. 

Interest in Designation

Local and regional environmental and conservation organizations have expressed positive interest in 

including all eligible segments of the Snake River in the National W&S River System. Local 

communities have not expressed interest in federal designation for the river. 

Estimated Costs of Acquisition and Administration

Initial costs associated with designation would include mapping and printing documentation of the 

wild and scenic river process, layout, design, and publication of educational information about the 

new designations including brochures, website updates, and maps. Future costs would depend on the 

level of threats to river-related values and are foreseen to result from the need for regulatory and 

educational signing, patrol and enforcement, and biological or visitor use monitoring. Additional land 

acquisition cost would occur if any private landowners were willing to sell. Currently no parcels have 

been identified for acquisition. 

Ability to Manage/Protect River Values

Current BLM management of the area as an NCA protects a majority of the shoreline miles, 

especially those cliff areas with raptor nest sites. Current limitations on recreation management for 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-120 Appendix 10. Snake River Wild & Scenic River Evaluation Report

wildlife/raptor viewing are from topography and legal public access to the river and would not change 

with designation. Future potential threats to identified river related values are minimal. 

Adverse Effects on Historical/Existing Rights

No adverse effects on historic or valid existing rights are expected as a result of designation of this 

segment as a recreational river. 

Other Issues and Concerns

The intent of designation would be to preserve the identified river related wildlife and recreational 

values along this segment of the Snake River. NCA legislation provides protection for the raptors and 

their habitat. This would not change with or without designation. The major change in management 

would be prohibitions on new hydroelectric facilities and other diversions. 

Grand View Segment 

River Values/Characteristics

The Grand View segment is characterized by a narrow riparian area surrounded by open, rural 

countryside. This area is similar to other stretches along the Snake River throughout southern Idaho. 

Although the distant views of the Owyhee Mountains to the south and canyon rim to the north are 

nice, they are not unique or exceptional. The wildlife values (raptor habitat) associated with this 

segment are mainly foraging habitat and not as nesting habitat. 

The Grand View segment lies in an area where the unique raptor habitat areas move away from the 

river and are generally outside the 1⁄4 mile corridor. Ten miles of this 17.5 mile segment lie outside the 

official boundary of the NCA. The raptor nesting areas on BLM land within the river corridor are 

within the NCA and are currently protected by legislation. 

Land Ownership and Uses

Land ownership is approximately 82 percent private land, 17 percent BLM land (public), and 1 

percent state land. 

Private land is associated with the town of Grand View, Idaho. Private land uses include residential 

houses and farms, irrigated agriculture, gravel pits, and livestock pastures. 

The public land along this segment is situated at three locations – all on the north side or in (island) 

the river. Gold Isle (approximately 118 acres) is located at river mile 487 and was acquired for 

wildlife habitat in a 1996 land exchange. The Ted Trueblood Wildlife Management Area fronts 1.5 

miles of Snake River shoreline. This area is also primarily a wildlife management area where 

waterfowl hunting is allowed. The remaining public land (approximately 600 ac.) gets a variety of 

recreation uses, primarily fishing and hunting. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-121

Potential Uses of Land and Water Resources enhanced or foreclosed

The private land along this segment is a historic floodplain characterized by low, flat farmland and 

pastures. Private lands not currently in irrigated agriculture have potential for new pump systems for 

local irrigation. Designation would preclude any new hydroelectric facilities within this segment and 

would also preclude any new diversions or structures which would impact private landowners. 

Potential surface disturbing activities would not be constrained by designation. Designation would 

not significantly enhance any land or water resources along this segment. 

Interest in Designation

Local and regional environmental and conservation organizations have expressed positive interest in 

including all eligible segments of the Snake River in the National W&S River System. Local 

communities have expressed either no interest or negative interest in designation. Landowners along 

this segment have not expressed interest in national designation for the river and have historically 

opposed any type of national designation. 

Estimated Costs of Acquisition and Administration

Initial costs associated with designation would include mapping and printing documentation of the 

wild and scenic river process, layout, design, and publication of educational information about the 

new designations including brochures, website updates, and maps. Future costs would depend on the 

level of threats to river-related values and are foreseen to result from the need for regulatory and 

educational signing, patrol and enforcement, and biological or visitor use monitoring. Additional land 

acquisition cost would occur if any private landowners were willing to sell. Currently no parcels have 

been identified for acquisition. 

Ability to Manage/Protect River Values

Current BLM management is very limited due to the small amount of public land. Current limitations 

on recreation management for wildlife/raptor viewing are from limited river access due to private 

ownership and would not change with designation. Future potential threats to identified river related 

values are minimal. 

Adverse Effects on Historical/Existing Rights

No adverse effects on historic or valid existing rights are expected as a result of designation of this 

segment as a recreational river. 

Other Issues and Concerns

The intent of designation would be to preserve the identified river related wildlife and recreational 

values along this segment of the Snake River. NCA legislation provides protection for the raptors and 

their habitat on the limited amount of BLM administered lands along this segment. This would not 

change with or without designation. The major change in management would be prohibitions on new 

hydroelectric facilities and other diversions primarily on private lands. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-122 Appendix 10. Snake River Wild & Scenic River Evaluation Report

Jackass Butte Segment 

River Values/Characteristics

The original designation of the Snake River Birds of Prey Natural Area in 1971 (27,000 acres) 

recognized the Snake River canyon as a unique raptor habitat. This designation started at the 

upstream end of the Jackass Butte segment and continued downstream to the end of the Swan Falls 

segment. 

The Jackass Butte segment begins at the downstream end of the very open environment of the Grand 

View segment, and includes a river section bordered by large buttes and canyon rim on the south and 

canyon rim on the north. The many side canyons along this stretch provide abundant nesting 

opportunities for a variety of raptors. Additionally, as one moves downstream, access to this remote 

section of the river is more difficult and provides outstanding opportunities for viewing raptors in a 

more natural habitat with minimal contacts with other people. This combination of high numbers of 

nesting raptors and opportunities for seeing raptors in a natural habitat is not currently represented in 

the National WSR System. 

Land Ownership and Uses

Land ownership is approximately 35 percent private land, 63 percent BLM land (public), and 2 

percent state land. The private lands are primarily associated with several large farms and ranches 

primarily in irrigated agriculture or pasture land. The state land is in an undeveloped, natural 

condition. The public land is undeveloped and is used for a variety of dispersed recreational activities. 

Potential Uses of Land and Water Resources enhanced or foreclosed

This river segment has a very low gradient and no rapids or other river obstacles. This creates 

opportunities for beginner and novice river floaters to experience the river canyon and its unique 

wildlife/raptor viewing opportunities. These opportunities could be further enhanced with the 

additional recognition of designation. This segment ends at the backwaters of Swan Falls Reservoir 

which combined with the low gradient, makes the potential for new hydroelectric facilities not very 

feasible. However, the private lands have potential for new pump systems for local irrigation. 

Designation would preclude any new hydroelectric facilities within this segment and would also 

preclude any new diversions or structures which would impact private landowners. Potential surface 

disturbing activities would not be constrained by designation. 

Interest in Designation

Local and regional environmental and conservation organizations have expressed positive interest in 

including all eligible segments of the Snake River in the National W&S River System. Local 

communities have expressed both positive and negative interest in designation. 

Estimated Costs of Acquisition and Administration

Initial costs associated with designation would include mapping and printing documentation of the 

wild and scenic river process, layout, design, and publication of educational information about the 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-123

new designation including brochures, website updates, and maps. Future costs would depend on the 

level of threats to river-related values and are foreseen to result from the need for regulatory and 

educational signing, patrol and enforcement, and biological or visitor use monitoring. Additional land 

acquisition cost would occur if any private landowners were willing to sell. Currently no parcels have 

been identified for acquisition. 

Ability to Manage/Protect River Values

Current BLM management of the area as a NCA protects a majority of the shoreline miles, especially 

those cliff areas with raptor nest sites. Current recreation management for wildlife/raptor viewing is 

not limited by public access. Future potential threats to identified river related values are minimal. 

Adverse Effects on Historical/Existing Rights

No adverse effects on historic or valid existing rights are expected as a result of designation of this 

segment as a recreational river. 

Other Issues and Concerns

The intent of designation would be to preserve the identified river related wildlife and recreational 

values along this segment of the Snake River. NCA legislation provides protection for the raptors and 

their habitat. This would not change with or without designation. The major change in management 

would be prohibitions on new hydroelectric facilities and other diversions which would detract from 

the users’ river experience. 

Swan Falls Segment 

River Values/Characteristics

The Swan Falls segment is visually similar to several other sections of the Snake River in southern 

Idaho. The river flows within a basalt canyon with cliffs rising between 400 – 600 feet above the river 

with a width varying from 1⁄4 to 1⁄2 mile. 

The original designation of the Snake River Birds of Prey Natural Area in 1971 (27,000 acres) 

recognized the Snake River canyon as a unique raptor habitat. This designation started at the 

upstream end of the Jackass Butte segment and continued downstream to the end of the Swan Falls 

segment. While the NCA as a whole contains the highest concentration of nesting birds of prey in 

North America, the Swan Falls segment has the densest concentration of nesting raptors within the 

NCA. For example, prairie falcons, which normally maintain a nesting territory measured in miles, 

are known to nest within 200 yards of each other. 

The Swan Falls segment also is the most accessible portion of the Snake River canyon to the general 

public. The Western Heritage National Scenic Byway terminates in the Snake River canyon at the 

upstream end of the Swan Falls segment. The combination of consistently high numbers of nesting 

raptors and the high probability of seeing raptors for a large number of visitors creates a unique wildlife and recreational opportunity which is not currently represented in the National WSR System. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-124 Appendix 10. Snake River Wild & Scenic River Evaluation Report

Land Ownership and Uses

Land ownership is approximately 22 percent private land, 74 percent BLM land (public), and 5 

percent state land. 

Private land at the upstream portion of the segment is owned by Idaho Power Company (IPC) and is 

associated with the Swan Falls Dam project. The majority of the IPC land is undeveloped and is 

managed in conjunction with the BLM for raptors and raptor habitat protection. These lands are often 

mistaken for public land. Another private land section contains Celebration Park, which is a county 

park dedicated to interpreting the archeological and cultural history of the river and canyon. Other 

private lands are located at the downstream end of the segment and include residences and open 

pastures. 

The state land along this segment is undeveloped. 

The public land along this segment is important nesting habitat in the cliffs but also provides 

recreational opportunities in the canyon along the river. Recreational uses are typically dispersed in 

nature and include activities such as fishing, camping, and bird watching. 

Potential Uses of Land and Water Resources enhanced or foreclosed

The Western Heritage National Scenic Byway terminates in the Snake River canyon at the upstream 

end of the Swan Falls segment. Designation of this segment could enhance the attention given to and 

the attractiveness for visiting this Scenic Byway. This additional attention could also enhance the 

economic development of the gateway community of Kuna by the increased visitation. 

This river segment begins below Swan Falls Dam and continues to the western NCA boundary. The 

river gradient is very low along this segment. The potential for new hydroelectric facilities does not 

exist. One irrigation pump system exists along this segment which supplies water to a farm 

approximately one mile from the river. The potential for new pump systems for local irrigation do 

exist along the segments of private land. Designation would preclude any new hydroelectric facilities 

within this segment and would also preclude any new diversions or structures which would impact 

private land-owners. Potential surface disturbing activities would not be constrained by designation. 

Interest in Designation

Local and regional environmental and conservation organizations have expressed positive interest in 

including all eligible segments of the Snake River in the National W&S River System. Local 

communities have expressed positive interest in designation. Negative comments for designation have 

been minimal. 

Estimated Costs of Acquisition and Administration

Initial costs associated with designation would include mapping and printing documentation of the 

wild and scenic river process, layout, design, and publication of educational information about the 

new designations including brochures, website updates, and maps. Future costs would depend on the 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-125

level of threats to river-related values and are foreseen to result from the need for regulatory and 

educational signing, patrol and enforcement, and biological or social monitoring. Additional land 

acquisition cost would occur if any private landowners were willing to sell. Currently no parcels have 

been identified for acquisition. 

Ability to Manage/Protect River Values

Current BLM management of the area as an NCA protects a majority of the shoreline miles, 

especially those cliff areas with raptor nest sites. Current recreation management focuses on 

opportunities for wildlife/raptor viewing and dispersed activities along the river. Future potential 

threats to identified river related values are minimal. 

Adverse Effects on Historical/Existing Rights

No adverse effects on historic or valid existing rights are expected as a result of designation of this 

segment as a recreational river. 

Other Issues and Concerns

The intent of designation would be to preserve the identified river related wildlife and recreational 

values along this segment of the Snake River. NCA legislation provides protection for the raptors and 

their habitat. This would not change with or without designation. The major change in management 

would be prohibitions on new hydroelectric facilities and other diversions. 

Suitability Summary 

The uniqueness of the NCA lies in its raptor habitat and the educational opportunities therein. As one 

moves both upstream and downstream from the area, certain elements of the habitat change just 

enough that the unusual concentration of nesting raptors, and the opportunities to see them 

diminishes. 

These characteristics are best exemplified along the Jackass Butte and Swan Falls segments of the 

Snake River which make up what was the original designation of the Snake River Birds of Prey 

Natural Area in 1971. These two river segments provide unique raptor habitat in addition to the 

unique recreational opportunity of easily viewing large numbers of raptors. When the general public 

is asked about the “Bird of Prey Area” it is these river segments that typically come to mind. The 

community of Kuna and many community organizations have expressed positive interest in national 

designations that could potentially assist in the economic development of their community. 

Although the Jackass Butte and Swan Falls segments currently are protected through the 

congressional designation as a national conservation area, these two segments would be worthy 

additions to the National WSR System due to the unique raptor habitat along the Snake River and 

raptor viewing opportunities not currently represented. 

Although much of the land along the Grand View segment is used as foraging habitat by raptors, most 

of this segment lies outside the NCA boundary and is in private ownership. Local communities and 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-126 Appendix 10. Snake River Wild & Scenic River Evaluation Report

landowners have not expressed interest in designation and historically oppose all federal designations. 

This would make management of this segment as a Wild and Scenic river very difficult. 

While a majority of the Indian Cove segment is in public ownership, public access to the river is 

limited by topography in many areas and by private land in others. The unique raptor nesting habitat 

along this stretch has permanent protection under the NCA legislation. Management of this stretch of 

river under the Wild and Scenic Rivers Act would be similar to the Grand View segment. Local 

interest in designation is minimal and opposition to limitations due to designation is a major concern. 

It is the determination of the ID Team that the Jackass Butte and Swan Falls segments of the Snake 

River be recommended suitable for inclusion in the National Wild and Scenic Rivers System. Both 

segments are tentatively classified as recreational. Until Congress decides whether to add these river 

sections to the system, the BLM will manage them to preserve the river-related values identified in 

this report. 

The ID Team has also determined that the Grand View and Indian Cove segments of the Snake River 

be recommended as not suitable for inclusion in the National Wild and Scenic Rivers System. The 

public lands along these two river segments will continue to be managed to protect the unique raptor 

populations and adjacent raptor habitat under the NCA legislation. 

VII. Protective Management for Suitable River Segments 

When a river segment is determined to be eligible and given a tentative classification, its identified 

outstandingly remarkable values shall be afforded adequate protection, subject to valid existing rights, 

and until the eligibility determination is superseded, management activities and authorized uses shall 

not be allowed to adversely affect either eligibility or the tentative classification from a wild area to a 

scenic area or a scenic area to a recreational river area. 

Specific management prescriptions for all eligible river segments will provide protection in the 

following ways: 

1. Free-flowing values: The free-flowing characteristics of the eligible river segments 

cannot be modified to allow stream impoundments, diversions, and/or channelization to 

the extent the BLM is authorized under law. 

2. River Related Values: Each segment shall be managed to protect identified outstandingly 

remarkable values and, to the extent practicable, such values shall be enhanced. 

3. Classification Impacts: Management and development of an eligible river segment and its 

corridor cannot be modified, subject to valid existing rights, to the degree that its 

eligibility or tentative classification would be affected. Should a non-suitable 

determination be made in the RMP process, then the river shall be managed in 

accordance with management objectives as outlined in the resource management plan. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 10. Snake River Wild & Scenic River Evaluation Report A-127

VIII. List of Preparers 

Name Title Responsibility

Larry Ridenhour Outdoor Recreation Planner Recreation, Scenic 

John Doremus Wildlife Biologist Wildlife, Fish 

Dean Shaw Archaeologist Cultural History 

Bob Harrison Geologist Geology 
 Snake River Birds of Prey NCA 

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A-128 Appendix 10. Snake River Wild & Scenic River Evaluation Report

THIS PAGE INTENTIONALLY LEFT BLANK. 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-129

APPENDIX 11. MAPS 

Information and Generation of the NCA RMP Maps 

General Location: The NCA RMP affects public lands in the following general area: 

Between 42 Degrees, 45 Minutes and 43 Degrees, 30 Minutes Latitude. Also between 

-115 Degrees, 22 Minutes, 30 Seconds and -116 Degrees, 45 Minutes Longitude. 

Disclaimer for all the maps in this RMP document: 

No warranty is made by the BLM for use of this data for purposes not intended by BLM. BLM does 

not warranty the accuracy, reliability, or completeness of these data for individual use or aggregate 

use with other data. 

Data Sources: 

• The source data files used in data analysis and map production were collected at 1:24,000 

scale whenever possible. Some exceptions are listed here. Data accuracy adheres to the 

national map accuracy standards. Data at 1:24,000 scale, when compared to the true 

horizontal ground position is +- 40 feet accurate. The differentially corrected GPS data, 

when compared to the true horizontal ground position is +- 17 feet (5 meters) accurate. 

• Background data source files were acquired from several sources. United States 

Geological Survey (USGS) Digital Line Graphs (DLGs) and Digital Raster Graphs 

(DRGs) at 1:24,000 scale were used. Data was assembled in May 2001. Data used was 

the best available to the RMP team and was current at the time the initial maps were 

made. Resource Specialists serving on the RMP team provided expertise and direction for 

the makeup of the digital data that was used for GIS data analysis and the RMP maps. For 

ownership and section lines, BLM Geographic Coordinate Database (GCDB) files 

created at the Idaho State Office were used. Data is current to December 2003. 

• Global Positioning System (GPS) data used was collected using a Trimble Geo 3 unit and 

then differentially corrected before it was converted to GIS data. Data is current to 

December 2003. 

• Vegetation data was created from IKONOS (1 meter resolution) and Landsat (30 meter 

resolution) satellite images from 2000 and 2001. Vegetation was classified using ERDAS 

software. Staff from the Pacific Northwest National Laboratories (PNNL) assembled the 

data. 

• Electric transmission line data was created by the Idaho Power Company and is current to 

May 2001. This data is 1:100,000 scale. 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-130 Appendix 11. Maps

• Special Status Plants data is from the Idaho Fish and Game Department and the 

Conservation Data Center (CDC) database. Data is current to December 2004. 

• Soils data is from the National Resources Conservation Service (NRCS) Soil Survey 

Geographic Database (SURRGO) and is current to September 2003. 

• Slope data is from the USGS National Elevation Dataset (NED) and has a 30-meter 

resolution. Data is current to May 2001. 

• Detailed data within the Orchard Training Area (OTA) was provided by the GIS staff at 

the Idaho National Guard at Gowen Field. 

• Existing Visual Resource Management data was digitized from mylar overlays at 

1:100,000 scale by the Interior Columbia Basin Ecosystem Management Project 

(ICBEMP) in 1994. 

• Town locations were digitized from 1:100,000 scale data at the Boise District. Data is 

current to May 2001. 

• Metadata collected is consistent with the Federal Geographic Data Committee Standard 

(FGDC).
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-131

MANAGEMENT AREA MAP 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-132 Appendix 11. Maps

FIRE MAP 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-133

GRAZING MAPS

Grazing Map 1 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-134 Appendix 11. Maps

Grazing Map 2 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-135

IDAHO ARMY NATIONAL GUARD (IDARNG) MAP 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-136 Appendix 11. Maps

LANDS AND REALTY MAPS 

Lands Map 1 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-137

Lands Map 2 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-138 Appendix 11. Maps

Lands Map 3 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-139

RECREATION MAPS 

Recreation Map 1 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-140 Appendix 11. Maps

Recreation Map 2 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-141

Recreation Map 3 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-142 Appendix 11. Maps

Recreation Map 4 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-143

Recreation Map 5 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-144 Appendix 11. Maps

SOIL MAP 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-145

TRANSPORTATION MAP 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-146 Appendix 11. Maps

VEGETATION MAP 
Snake River Birds of Prey NCA 

Resource Management Plan and Record of Decision Appendices 

Appendix 11. Maps A-147

VISUAL RESOURCE MANAGEMENT (VRM) MAP 
 Snake River Birds of Prey NCA 

Appendices Resource Management Plan and Record of Decision 

A-148 Appendix 11. Maps

WILDLIFE MAP