Environmental Assessment

Transcription

1 Environmental Assessment United States Department of Agriculture Forest Service Southwestern Region January 2012 Tonto National Forest Motorized Travel Management For more information, contact: Genevieve Johnson 2324 E. McDowell Rd Phoenix, AZ

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3 The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of race, color, national origin, age, disability, and where applicable, sex, marital status, familial status, parental status, religion, sexual orientation, genetic information, political beliefs, reprisal, or because all or part of an individual's income is derived from any public assistance program. (Not all prohibited bases apply to all programs.) Persons with disabilities who require alternative means for communication of program information (Braille, large print, audiotape, etc.) should contact USDA's TARGET Center at (202) (voice and TDD). To file a complaint of discrimination, write to USDA, Director, Office of Civil Rights, 1400 Independence Avenue, SW, Washington, D.C , or call (800) (voice) or (202) (TDD). USDA is an equal opportunity provider and employer. Printed on recycled paper January 2012 i

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5 Table of Contents Chapter 1 ~ Introduction 1 Document Structure... 1 Background... 1 Purpose and Need for Action Proposed Action Tonto Forest Plan Direction Scope of the Analysis Decision Framework Public Involvement Public Issues Chapter 2 ~ Alternatives to be Studied in Detail, Including the Proposed Action 17 Alternatives Common to all Action Alternatives Monitoring and Mitigation Measures Comparison of Alternatives Alternatives Considered but Eliminated from Detailed Study Chapter 3 ~ Environmental Consequences 49 Transportation Facilities Air Quality Resources Archaeological, Historical, and Cultural Resources Contemporary Indian Uses Hydrology and Watersheds Soils Noxious or Invasive Weeds Wildlife Social and Economic Resources Climate Change Scenic Quality Recreation Appendices Appendix A Road Maps for Alternative 1 Appendix B Road Maps for Alternative 2 Appendix C Road Maps for Alternative 3 Appendix D Road Maps for Alternative 4 Appendix E Travel Management Forest Plan Amendments Appendix F Adaptive Management Mitigation Measures Appendix G Proposed Route Changes for Alternatives 2 through 4 Appendix H Proposed Motorized Trails for Alternatives 2 through 4 Appendix I Description of Unauthorized Routes for Alternatives 2 through 4 Appendix J Scoping Comment Report Appendix K Wildlife Tonto National Forest Motorized Travel Management Environmental Assessment iii

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7 Chapter 1 ~ Introduction Document Structure The Forest Service has prepared this Environmental Assessment (EA) in compliance with the National Environmental Policy Act (NEPA) and other relevant Federal and State laws and regulations. This Environmental Assessment discloses the direct, indirect, and cumulative environmental impacts that would result from the proposed action and alternatives. The document is organized into four parts plus appendices: Introduction: The section includes information on project background, purpose of and need for the project, and the agency s proposal for achieving that purpose and need. This section also details how the Forest Service informed the public of the proposal and how the public responded. Description of Alternatives, including the Proposed Action: This section provides a detailed description of the agency s proposed action, as well as alternative methods for achieving the stated purpose. These alternatives were developed based on significant issues raised by the public and other agencies. This discussion also includes possible mitigation measures. Finally, this section provides a summary table of environmental consequences associated with each alternative. Environmental Consequences: This section describes environmental effects of implementing the proposed action and other alternatives. Within each resource section, the affected environment is described first, followed by effects of the No Action Alternative that provides a baseline for evaluation and comparison of other alternatives that follow. Agencies and Persons Consulted: This section provides a list of preparers and agencies consulted during the development of the environmental assessment. Appendices: Appendices provide more detailed information to support analyses presented in the environmental assessment. Additional documentation may be found in the project record located at the Supervisor s Office of the Tonto National Forest at 2324 E. McDowell Road, Phoenix, Arizona Background On November 9, 2005, the Forest Service published final travel management regulations governing off-highway vehicles (OHVs) and other terrestrial motorized vehicles on National Forest System (NFS) lands. The regulations amended part 212, subpart B of part 251, subpart A of part 261, and removed part 295 of Title 36 of the Code of Federal Regulations (CFR). These regulations are referred to collectively as the Travel Management Rule (Rule). The Rule was developed in response to the substantial increase in use of OHVs on National Forest System lands and subsequent damage to forest resources caused by unmanaged OHV use over the past 30 years. Regulations implement Executive Order (E.O.) 11644, Use of Off-road Vehicles on the Public Lands (1977), and E.O , which amended E.O (1977). The Travel Management Rule provides for a system of NFS roads, NFS trails, and areas on NFS lands that are designated for motor vehicle use. Motor vehicle use off designated roads and trails and outside of designated areas is prohibited (36 CFR ). This designation will include class of vehicle and, if appropriate, time of year for motor vehicle use. Therefore, under the Rule, forests that do not already restrict motorized travel to designated roads, trails, and areas must do so. The restriction on motor vehicle use off the designated system goes into effect once a forest Tonto National Forest Motorized Travel Management Environmental Assessment Page 1 of 275

8 Chapter 1 ~ Introduction had a designated system of roads, trails, and areas open to motor vehicle use and has published a Motor Vehicle Use Map (MVUM). The following vehicles and uses are exempted from designations: 1) aircraft, 2) watercraft, 3) over snow vehicles, 4) limited administrative use by the Forest Service, 5) use of any fire, military, emergency, or law enforcement vehicle for emergency purposes, 6) authorized use of any combat or combat support vehicle for national defense purposes, 7) law enforcement response or emergency needs, and 8) motor vehicle use that is specifically authorized under a written authorization issued under Federal law or regulation (36 CFR (a)). Exemptions under number 8) may include uses such as: access to range improvements, firewood cutting, gathering other forest products, ceremonial gathering by tribes, outfitter and guide services, maintenance of utility corridors, administrative use by other state or federal agencies, and special use permit events. Additionally, the Rule allows for including in designations the limited use of motor vehicles within a specified distance of certain designated routes, and if appropriate within specified time period, solely for purposes of motorized big game retrieval and motorized dispersed recreation (see 36 CFR ). The rule further states that the responsible official may incorporate previous administrative decisions regarding travel management made under other authorities, including designations and prohibitions of motor vehicle use, in designating NFS roads, trails, and areas (36 CFR (b)). Nothing requires reconsideration of previous administrative decisions that allow, restrict, or prohibit vehicle use on NFS roads, trails or in areas and that were made under other authorities. On the other hand, responsible officials may choose to reconsider past decisions, with public involvement, as necessary to achieve the purposes of the regulations (Federal Register, vol. 70, no. 216, p ). This means that all roads, trails, and areas that have been identified in the past for motorized use do not have to be reconsidered. Therefore, this analysis concerns only proposed changes to current NFS roads and trails. The following definitions come from the regulations at 36 CFR A road is a motor vehicle route over 50 inches wide, unless identified and managed as a trail. A road is managed for use by vehicles over 50 inches wide. A trail is defined as a route 50 inches or less in width, or a route over 50 inches in width that is identified and managed as a trail. A motorized trail is managed for use by vehicles 50 inches or less wide. A forest road or trail means a road or trail wholly or partly within, or adjacent to, and serving the National Forest System that the Forest Service determines is necessary for protection, administration, and utilization of National Forest System land and use and development of its resources. An unauthorized road or trail is either not a forest road or trail, or is a temporary road or trail that was meant to be closed after its intended use and that is not included in a forest road inventory. The term route is used in this document to encompass all roads and motorized trails. An area is a discrete, specifically delineated space that is smaller, and in most cases much smaller, than a ranger district. Motorized vehicles can travel on roads, trails, or cross-country within a designated area. In accordance with Subpart B of the Rule, following a decision on this proposal, the Tonto National Forest (NF) will publish a Motor Vehicle Use Map (MVUM) identifying all National Forest System (NFS) roads, trails, and areas that are designated for motor vehicle use. The Page 2 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

9 Chapter 1 ~ Introduction MVUM will specify classes of vehicles and, if appropriate, times of year for which use of each route is designated. Upon publication of the MVUM, possession or operation of a motor vehicle on NFS lands other than in accordance with those designations will be prohibited. The MVUM will be available to the public at the Supervisor s Office and Ranger Districts of the Tonto NF, as well as on the Forest s website. Designations may be revised as needed to reflect changing conditions and shall be reflected on a MVUM (212.54), which will be reprinted to reflect any changes made after appropriate environmental analysis. Motorized Travel on the Tonto National Forest The Tonto NF covers nearly three million acres (2,964,676) in central Arizona and is the fifth largest national forest in the National Forest System. The Tonto NF spans a range of ecosystems from the Sonoran Desert through a variety of chaparral and piñon pine/juniper up to the mixed conifer and ponderosa pine of the Mogollon Rim. Tonto NF abuts the northern edge of the Phoenix metropolitan area, which has a population of more than four million people. The city of Phoenix itself has a population of over 1.5 million (U.S. Census estimate, 2006), making it the fifth largest city in the United States. The Phoenix area is a popular destination for conferences, conventions, and tourism with its warm and sunny year-round climate, wide variety of business, cultural, and recreational offerings, serviced by many direct flights from most major U.S. cities. These factors combine to make the Tonto NF one of the most heavily-visited national forests, with nearly six million recreational visitors annually (English, et al., 2004). Many of these visitors drive through the Tonto NF sightseeing or on their way to other destinations such as the Grand Canyon or other northern, high-elevation locations to escape the Phoenix valley s summer heat. Others come for the variety of water-based recreation such as fishing, boating, water skiing, swimming, and rafting, or to picnic near picturesque desert lakes and rivers. Finally, many come to ride and explore the Tonto NF using a variety of recreational vehicles, including OHVs. During the past ten years, OHV use has increased dramatically across the nation and on millions of acres of public land in the western U.S. In Arizona, OHV use has increased by 347 percent since 1998 (Arizona State Game and Fish Department (AZGFD), 2008), outpacing existing funding to manage that growth, protect natural resources, and maintain safe and reasonable recreational access. Some of this OHV use has occurred off authorized routes, in sensitive riparian areas, around and over heritage sites, in threatened or endangered species habitat, into designated wilderness areas, through streams and up stream banks, and across highly erodible slopes. Managing motorized recreation is particularly challenging on the Tonto NF with its fragile desert ecosystems and high demand for motorized access. The Tonto NF is the most heavily-used national forest for motorized recreation, with nearly a million visitors using OHVs on the Forest annually (English, et al., 2004). The Tonto NF is comprised of six ranger districts: Cave Creek, Globe, Mesa, Payson, Pleasant Valley, and Tonto Basin (figure 1). Each of these ranger districts experiences high numbers of motorized recreational use, varying in intensity and type, as well as by season. The particular issues and concerns regarding motorized use also vary by ranger district. Because of these variations, travel route evaluations, public involvement processes, and identification of potential routes and areas for motorized travel were performed by each ranger district and then combined into a single forestwide proposal. Tonto National Forest Motorized Travel Management Environmental Assessment Page 3 of 269

10 Chapter 1 ~ Introduction Payson RD Cave Creek RD Pleasant Valley RD Tonto Basin RD Mesa RD Globe RD Figure 1. Tonto National Forest and its six ranger districts (shaded areas). Page 4 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

11 Chapter 1 ~ Introduction Existing Conditions Existing conditions describe the current management situation and environmental conditions. The topic areas below represent broad-scale features associated with a forestwide road, area, and trail system. Additional discussions can be found in Chapter 3 ~ Environmental Effects. National Forest System (NFS) Roads and Trails Existing Condition Currently, motor vehicles may drive on any open road across the Tonto NF. The Forest Service uses five maintenance levels (ML) to classify roads, ranging from ML 1 indicating a road closed to all motorized use, to ML 5, indicating a high degree of user comfort and convenience (see Glossary). This report will refer to passenger car roads (ML 3, 4, and 5) that a typical sedan could drive on, and high-clearance vehicle roads (ML 2) that are maintained and managed for highclearance vehicles. In addition, motorized trails refer to routes available to vehicles 50 inches or less in width. There are approximately 5,523 miles of roads on the Tonto NF managed under Forest Service jurisdiction. Of these, approximately 1,205 miles of road are ML 1 and officially closed to all motorized use. There are approximately 2,308 miles of high clearance vehicle roads (ML 2) and 1,050 miles of passenger car roads (ML 3 to 5) available for motorized use by the public. In addition, there are about 960 miles of ML 2 roads that are not available for motorized use by the public, but are maintained for administrative access only (such as accessing a monitoring site or water tank). There are also roads on the Tonto NF that are not under Forest Service jurisdiction and are managed by state, county or local agencies, or private parties. It should be noted that while these roads will be important for describing the social and environmental effects of changes to the existing Tonto NF road and trail system, they will not be considered for management actions in this analysis. Trail classifications define how and for what uses the trail is managed, including signage, width, and surface condition. Some trails are managed for non-motorized uses and some for motorized uses. Trails may also be managed for single-track motorized use (motorcycle) or two-track motorized use (OHV). The Tonto NF does not currently manage trails for motorized use. Motorized Cross-country Travel Existing Condition In the 1985 Forest Plan, about 700,004 acres of forest were open to cross-country travel in the Payson and Pleasant Valley ranger districts (primarily in piñon-juniper and ponderosa pine ecosystems) and over 2,170,000 acres were closed to cross-country OHV travel on the southern Cave Creek, Mesa, Globe, and Tonto Basin ranger districts (U.S. Forest Service, 1985). Motorized cross-country travel is prohibited in the four southern ranger districts, unless posted open. Other restricted areas across all ranger districts are closed to cross-country travel, totaling about 623,970 acres. These areas have been closed by the Forest Plan, previous Forest Closure Orders and/or legislative actions (e.g., congressionally-designated wilderness). Unauthorized Routes Existing Condition In addition to National Forest System (NFS) roads and trails, there is a proliferation of usercreated or unauthorized roads and trails. These roads were not designed or built by the Forest Tonto National Forest Motorized Travel Management Environmental Assessment Page 5 of 269

12 Chapter 1 ~ Introduction Service, and therefore are not kept in the Forest Service roads inventory and do not receive maintenance to ensure environmental impacts are minimized. The number of unauthorized routes continues to grow as more and more visitors use the area and travel off road. There are many reasons that people operate motor vehicles cross-country or off NFS roads and trails. In some cases, users are unaware of which routes are authorized for motorized travel and which are not. Sometimes signs have been destroyed or removed. In other situations, there is a difference in motorized use policies between land management agencies, between national forests, and between ranger districts within national forests and it is often confusing to the public to know where cross-country travel is allowed and where it is not. Sometimes people who have residences that border the Tonto NF create routes to access the Forest directly from their property. Finally, some motorized users are either unaware or unconcerned about safety issues, conflicts, and resource damage that often result from traveling off authorized routes. Seasonal Restrictions on NFS Roads (special order closures) Existing Condition Until recently, travel restrictions could only be enacted through two means on National Forests: the 36 Code of Federal Regulations (CFR) 261 Subpart A (restrictions or general prohibitions), and the 36 CFR 261 Subpart B (prohibitions that are created through special order). Most travel restrictions that historically prohibited some sort of travel on the forest were implemented through the 36 CFR subpart B authority for special orders that permit the agency to prohibit certain uses of roads and trails to limit use to specific vehicle types and to prohibit off road travel. There are several existing special order closures existing on the Tonto NF that result in seasonal restrictions on roads. These restrictions currently affect about 6 miles of NFS roads. Cross-country Travel Areas Existing Condition The Rule defines cross-country travel areas as spaces where motorized vehicles can travel crosscountry. In the past, the terminology area was used to identify locations where there is highly concentrated use by motorized vehicles, such as the existing Bulldog OHV Area. However, under the Rule s definition, there are no cross-country travel areas currently designated on Tonto NF. Areas of concentrated use are mainly in ranger districts adjacent to heavily populated areas and are places where the public has found motorized recreation most accessible and enjoyable. Some areas of concentrated use are severely degraded. A variety of approaches for managing motor vehicle use in these locations have been implemented, such as limiting or restricting access, and using locked gates with access by permit only (for example, in the Bulldog Canyon Permit Zone). These and other management approaches may be implemented for future motorized area designations. OHV Permit Zone Existing Condition The existing Bulldog OHV area (figure 2) will be renamed an OHV permit zone because crosscountry travel was never allowed within the designated boundaries. Within a permit zone, vehicles are required to stay on designated roads and trails. Motorized users are required to obtain a permit and a gate combination code from the forest before accessing these zones. Motorized travel in the existing Bulldog Canyon OHV Permit Zone was restricted by Forest Order No due to considerable environmental damage occurring from uncontrolled vehicle use. The Order was signed by the Forest Supervisor on March 19, 1997, after completion Page 6 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

13 Chapter 1 ~ Introduction of an Environmental Assessment. Findings of the analysis showed that uncontrolled vehicle use in Bulldog Canyon was contributing to significant soil and vegetation resource damage, but total closure was undesirable due to its proximity to the Phoenix metropolitan area. Motorized vehicles are required to stay on 26 miles of high-clearance vehicle NFS roads and 4 miles of passenger car NFS roads (a total of 30 miles of open NFS roads). Because a person needs written authorization to use a motorized vehicle on the roads and trails within permit zones, these routes will be considered administrative use only and will not be depicted on the Motor Vehicle Use Map (MVUM). Therefore, permit zones and the resulting restrictions on routes within these zones are analyzed in this EA to provide a clearer explanation of each alternative and its effects on the environment and the public. Tonto National Forest Motorized Travel Management Environmental Assessment Page 7 of 269

14 Chapter 1 ~ Introduction Figure 2. Existing Bulldog OHV Permit Zone on the Mesa Ranger District, Tonto NF Page 8 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

15 Chapter 1 ~ Introduction Appendix A ~ Road Maps for Alternative 1 shows the existing Tonto NF road and trail system, including those roads not under Forest Service jurisdiction managed by state, county or local agencies, or private parties. Motorized Dispersed Camping - Existing Condition Use of motor vehicles off NFS roads to access campsites is a popular activity on the Tonto NF. The Responsible Official may include in the designation the limited use of motor vehicles within a specified distance of certain designated routes, and if appropriate within specified time periods, solely for the purposes of dispersed camping. (36 CFR (b)). This is optional and at the discretion of the Responsible Official. Opportunities for dispersed camping exist across the Tonto NF. Sometimes people park at trailheads or roadside locations and hike to their camping spots. Others will drive cross-country to their camping spot, often with a recreational vehicle or camping trailer. On the northern two ranger districts (Payson and Pleasant Valley), driving off-road has been legal. On the four southern ranger districts, driving off road is prohibited unless posted open and campers have been cited for driving off roads illegally. Frequently-used dispersed campsites, where evidence of past use exists, are located along both NFS and unauthorized roads throughout the Forest. Some frequently-used dispersed campsites have a short (100 to 300 feet) unauthorized spur road leading to them from a designated NFS road. In summer, dispersed camping is popular in the cooler, higher elevations. During hunting season, dispersed camping is prevalent in hunting units and near streams and lakes. Some popular camping locations may have once had archaeological or historic sites or artifacts, but in most cases these have long since been altered or removed. Some sites may be located where they contribute erosion or pollution to nearby waterways or are situated in otherwise sensitive locations. Motorized Big Game Retrieval Existing Condition For purposes of motorized off-road big game retrieval on the Tonto NF, big game is defined to include black bear, elk, and mule deer. These species represent animals that may require a vehicle to retrieve, where other game species, such as javelin or white-tailed deer, are typically retrievable without aid of motor vehicles. The Responsible Official may include in the designation the limited use of motor vehicles within a specified distance of certain designated routes, and if appropriate, within specified time periods solely for purposes of retrieval of a downed big game animal by an individual who has legally taken that animal (36 CFR (b)). This would apply only to retrieval of a downed animal. Motorized off-road travel for other hunting activities, such as scouting or accessing a favorite hunting site would be prohibited by the Rule. Any game retrieval that is not specifically provided for in the Decision would require non-motorized methods. The Arizona Game and Fish (AZGFD) estimates that less than 15 percent of hunters require substantial assistance in the form of using a vehicle to retrieve a downed big game animal, such as a white-tailed deer (Wong, 2011, Feb. 11). Likely less than 5 percent of hunters would use a vehicle to retrieve a downed big game animal, such as a mountain lion and less than 1 percent of hunters would use a vehicle to retrieve smaller animals, such as turkey, bobcat or javelin (Wong, 2011, Feb. 11). By talking with biologists and hunters on the Forest, it was determined that a Tonto National Forest Motorized Travel Management Environmental Assessment Page 9 of 269

16 Chapter 1 ~ Introduction conservative estimate for hunters using a vehicle to retrieve downed big game would be approximately 30 percent (Wong, 2011, Feb. 11). Additionally, while trucks are used to retrieve downed game, most (80 percent) of motorized game retrieval is done using an ATV/UTV and almost all (99 percent) of hunters that go crosscountry to retrieve game would use the same route to return to a FS road because it is the easiest method (Wong, 2011, Feb. 11). This means that the actual number of big game animals, retrieved by motorized vehicle, is less than the number of animals harvested because some are retrieved via non-motorized methods. The number of hunting licenses issued and number of animals harvested also varies year to year due to factors such as animal populations, weather, and game management objectives. The threeyear average (2006 to 2008) for big game hunting permits on the Tonto NF is approximately 4,157 with harvest data averaging approximately 1,150 animals (AZGFD, 2009). Multiplying the number of animals harvested (1,150) by 30 percent means that there was an opportunity for approximately 345 motorized trips off NFS roads between 2006 and 2008 (or an average of 115 trips per year) across the entire Tonto NF. While some hunters retrieve big game using motorized vehicles, others have stated that use of motor vehicles during hunting season has resulted in unsuccessful hunting because noise associated with motorized vehicles typically scares game away from their tree stand or hunting spot (AZGFD, 2007). Shooting is not allowed from roads, nor is it allowed from a motorized vehicle traveling off road. On Payson and Pleasant Valley ranger districts, unless otherwise posted, motorized vehicles are allowed to travel off-road for the purpose of retrieving any downed game animal, because there is no restriction on cross-country motorized travel. In remaining ranger districts, cross-country motorized travel is prohibited and the current Forest Plan does not address a need for motorized game retrieval. As a result, motorized vehicles are not allowed to travel off-road for the purpose of retrieving downed game animals in Cave Creek, Mesa, Globe, or Tonto Basin ranger districts, although hunters may still unknowingly travel on unauthorized roads to retrieve game. Purpose and Need for Action The purpose of this project is to comply with the Travel Management Rule by providing a system of roads, trails, and areas designated for motor vehicle use by class of vehicle and time of year on the Tonto National Forest. After comparing existing NFS roads and current motorized uses on the Tonto NF with 36 CFR parts 212, 251, and 261, the following needs were identified. There is a need to: Determine which, if any, unauthorized routes should be added to NFS trails and roads. Determine which, if any, authorized NFS roads that are currently open should be closed to motorized travel. Determine which, if any, authorized NFS roads that are currently closed should be open to motorized travel. Identify any restrictions on allowed uses, classes of vehicles, and/or seasons of use for specific routes. Page 10 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

17 Chapter 1 ~ Introduction Amend the Forest Plan to prohibit motor vehicle use off designated NFS roads, trails, and areas on two ranger districts (Payson and Pleasant Valley) except as shown on the Motor Vehicle Use Map (MVUM) and to revise wording for consistency regarding definition to comply with Travel Management Rule, 36 CFR Amend the Forest Plan to reflect changes in Recreation Opportunity Spectrum (ROS) classes as a result of designating roads and motorized trails. Determine if, when, where, and how far motor vehicles may be driven off designated roads for the sole purpose of motorized dispersed camping or big game retrieval. Proposed Action A Travel Analysis Process (TAP) was completed for the Tonto NF (U.S. Forest Service, 2011). It identifies opportunities for National Forest System (NFS) roads and trails to meet current and future management objectives and provides information that allows integration of ecological, social, and economic concerns into route recommendations. The intent of the TAP is to capture and organize comprehensive site-specific data, enabling the Responsible Official to make informed decisions. In designating NFS roads, trails, and areas for motor vehicle use, the Responsible Official shall consider effects on natural and cultural resources, public safety, provision of recreational opportunities, access needs, conflicts among uses of NFS lands, the need for maintenance and administration of NFS routes that would arise, if uses under consideration are designated, and availability of resources for that maintenance and administration (36 CFR ). The scale of this analysis includes all National Forest System roads and motorized trails on lands located within each ranger district on the Tonto NF. In addition, where appropriate, unauthorized roads identified prior to and during the route evaluation process were analyzed. Forest Service resource specialists assembled to evaluate routes based upon localized, site-specific resource risks (i.e., potential impacts to cultural resources and wildlife/habitat, etc.) and benefits (administrative needs, access to commercial facilities, recreational opportunities, etc.). The Interdisciplinary (ID) Team also considered risks and benefits from a larger landscape perspective (i.e., beyond the route by route perspective to consider the collective effects of recommended NFS routes). All routes suggested for decommissioning will be removed from the NFS roads database, but not physically changed on the ground until future site-specific analysis is completed. Throughout the TAP, feedback from various forest visitor groups, commercial users, cooperating agencies, and the public was solicited and received. Additionally, during February and March of 2007, several public meetings occurred in response to the Tonto NF Plan Revision. Another public meeting was held in October of 2009 and comments collected mirrored those collected during the 2007 meetings. Several recreation, motorized recreation management, and access concerns were brought forward through public comments as well as input from Forest Service personnel at these meetings and during the TAP. Public concerns were also captured during a series of public meetings held forestwide on the Tonto NF in response to the pending implementation of the Travel Management Rule. The TAP also identified the minimum road system, as directed by the Rule at 36 CFR (b). The minimum road system is the system needed for safe and efficient travel and for administration, utilization, and protection of National Forest System lands. In determining the minimum road system, the responsible official must incorporate a science-based roads analysis at the appropriate scale and, to the degree practicable, involve a broad spectrum of interested and Tonto National Forest Motorized Travel Management Environmental Assessment Page 11 of 269

18 Chapter 1 ~ Introduction affected citizens, other state and federal agencies, and tribal governments. The minimum system is the road system determined to be needed to meet resource and other management objectives adopted in the relevant land and resource management plan (36 CFR part 219), to meet applicable statutory and regulatory requirements, to reflect long-term funding expectations, to ensure that the identified system minimizes adverse environmental impacts associated with road construction, reconstruction, decommissioning, and maintenance. Through the TAP, the Tonto NF recommended a minimum road system that included some unauthorized routes. This recommendation was presented to the public as the proposed action during scoping (October 22 to December 4, 2009). A summary of the Proposed Action is listed below: Close approximately 101 miles of roads currently open to high-clearance and passenger vehicles. Open approximately 442 miles of currently closed roads for high-clearance and passenger vehicles. Open approximately 57 miles of currently closed roads for motorcycle and ATV trails. Convert approximately 33 miles of roads currently open to high-clearance vehicles to passenger vehicle roads. Convert approximately 27 miles of roads currently open to high-clearance vehicles to motorcycle and ATV trails. Convert approximately 80 miles of roads currently open to passenger vehicle to roads open to high-clearance vehicles. Restrict approximately 99 miles of high-clearance vehicle roads and 6 miles of passenger car roads to seasonal use. Convert approximately 96 miles of currently closed (maintenance level 1) roads to administrative use only roads (maintenance level 2). 1 Convert approximately 157 miles of roads currently open to high-clearance vehicles to administrative-use only roads, which would close these roads to general motor vehicle use. Restrict 315 miles of road across the Forest by special recreation permit only in the Bulldog Canyon existing OHV permit zone, The Rolls, Sycamore, and St. Claire zones. Add approximately 291 miles of unauthorized routes to NFS roads and trails (1 mile as a passenger vehicle road, 129 miles as high-clearance vehicle roads, 22 miles as administrative use only roads, and 139 miles as motorized trails). Of these, restrict about 3 miles of high-clearance vehicle roads and 4 miles of motorized trails to seasonal use. Restrict motorized cross-country travel to 1,417 acres. 1 About 960 miles of existing ML1 roads were considered administrative use only under a previous decision, but were classified as operational maintenance level 2; objective maintenance level 1 routes in our routes database (Infra) prior to the Travel Management Rule. With regional guidance, it was determined that an objective maintenance level should be used to classify routes. As a result, Tonto NF was required to change objective maintenance levels to correspond with previous operational maintenance levels. In other words, all administrative routes were previously categorized as operational level 2, objective level 1 and are now categorized as operational level 1, objective level 2. This is an administrative change to our database that does not result in a change in public use. Motorized use on administrative use only roads is permitted by written authorization only. Page 12 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

19 Chapter 1 ~ Introduction Limit motorized retrieval of big game (elk and bear) to 200 yards off either side of NFS roads and motorized trails on all open roads and motorized trails in GMU 21, 22, 23, 24A, and 24B (not extending into wilderness areas or inventoried roadless areas). The Forest Plan would be amended to state Motor vehicle use off the designated system of roads is prohibited, except as identified on the Motor Vehicle Use Map. The Forest Plan would be amended to make Recreation Opportunity Spectrum (ROS) consistent with NFS roads and motorized trails. Tonto Forest Plan Direction The Tonto National Forest Land Management Plan (U.S. Forest Service, 1985) also provides general guidance on managing Tonto NF roads and trails: Provide a serviceable road and trail system to meet public access, land management, and resource protection needs (p. 21). [In Northern goshawk habitat] Manage road densities at the lowest level possible (p ). Prohibit OHV use in research natural areas and proposed natural areas as defined under management areas 2E, 3E, 3G, 3H, 4E, 5F, 6D, and 6E (p. 84, 103, 109, 110, 137, 163, 177 and 178). Scope of the Analysis This proposal is not intended to revisit previous decisions that resulted in the current NFS road and trail system. This proposal is narrowly focused on changes in designation of roads, trails and areas for motor vehicle use in accordance with 36 CFR Part 212, Subpart B, through publication of an MVUM. The infrastructure of a national forest will always have room for improvement. Many suggestions for improving NFS roads and trails were received during public scoping. Those suggestions that did not focus on proposed changes in designation of roads, trails, and areas have been captured by the Tonto NF and may be considered in future programs of work. In addition, roads suggested for decommissioning will be removed from the NFS roads database, but not physically changed on the ground until future site-specific analysis is completed. Decision Framework The Forest Supervisor for the Tonto National Forest will be the Responsible Official. The Responsible Official will decide whether to adopt and implement the Proposed Action, an alternative to the Proposed Action, or a combination of the alternatives presented, including changes to the language and content of the Tonto National Forest Plan, or whether further analysis is needed through preparation of an Environmental Impact Statement (EIS). This proposal is focused on implementing 36 CFR 212 Subpart B of the Travel Management Rule. Previous administrative decisions concerning development of existing NFS roads and trails, road construction, road reconstruction, motorized trail construction, and land suitability for motorized use on existing NFS roads and trails are outside of the scope of this analysis. Tonto National Forest Motorized Travel Management Environmental Assessment Page 13 of 269

20 Chapter 1 ~ Introduction Public Involvement As the Tonto NF began developing its proposed action, each ranger district implemented a public involvement strategy consistent with local conditions and opportunities. Ranger districts held public meetings and attended meetings sponsored by other agencies or organizations. District rangers and staff met with individuals and representatives of various organizations to explain the designation process, identify user preferences, gather information on current conditions, and share information on a variety of travel management related topics. Forest Service employees also involved American Indian Tribes, elected officials, other agencies, organizations, and members of the public to share information and initiate dialog about route and area designation objectives and process. The proposal was listed in the Schedule of Proposed Actions on June 10, The proposal was provided to the public and other agencies for comment during scoping on October 22, A scoping letter was mailed to approximately 1,227 addressees and posted on the Forest s Worldwide Web page. Scoping information was also provided to various newspaper and media contacts, including Copper Country News, Payson Roundup, Arizona Silver Belt, Arizona Republic, Scottsdale Republic, Tonto Basin News, and Tucson Citizen. Scoping meetings were held with organizations, agencies, and individuals to provide the public with information about proposed travel management actions and to receive comments and address concerns. The Forest Service held a total of seven public open houses (table 1) as described in the scoping letter and in response to public request. Table 1. Scoping open houses Ranger District Meeting Location Date # of Attendees Tonto Basin Tonto Basin Elementary School 445 South Old Hwy 188, Punkin Center Nov. 4, Globe Old High School Auditorium 401 High Street, Globe Nov. 5, Cave Creek Black Mountain Elementary School N. 60th Street, Scottsdale Nov. 9, Pleasant Valley Pleasant Valley Community Center Hwy 288, Young Nov. 12, Mesa Broadway Recreation Center 59 E Broadway Rd, Mesa Nov. 17, Payson Julia Randall Elementary School 601 S Greenway Parkway, Payson Nov. 18, Superior Superior Senior Center 360 Main Street, Superior Dec. 1, Written (mail/ ) and verbal (in person/phone) comments were accepted through December 4, Public input scoping and previous public input efforts (during TAP) were used to identify issues and develop alternatives to the proposed system. Using comments from the public, other agencies, non-governmental organizations, and tribes, the interdisciplinary team developed a list of issues to address. Page 14 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

21 Chapter 1 ~ Introduction Public Issues The Forest Service reviewed 288 comment letters, with 385 unique and substantively different comments. The majority of comment letters contained site-specific road and trail comments received in regards to the Proposed Action. Each comment received during scoping was considered and evaluated to determine whether the concern(s) were already resolved through land use designations, implementation of Forest Plan standards and guidelines and Best Management Practices (BMPs), project-specific design criteria or mitigation measures, through processes or analyses routinely conducted by the Interdisciplinary Team (IDT or ID Team), or beyond the scope of the project. All concerns that fell within these categories were considered resolved. Issues that would drive (or partially drive) an alternative are listed below. They are used to develop and compare alternatives, prescribe mitigation measures, and analyze environmental effects. Issue 1: Motorized big game retrieval off designated roads and trails would negatively affect natural resources and invite conflict with non-motorized users. Indicator: Acres of NFS lands available for motorized big game retrieval off system roads. Issue 2: The designation of cross-country travel areas would negatively affect the natural resources and are unsafe. Indicator: Acres of NFS lands designated for cross-country motor vehicle use. Issue 3: The designation in the proposed action does not adequately provide for motorized use. Alternative 4 was developed, in part, to respond to concerns raised over not providing enough motorized opportunities. Indicator: Miles of road and motorized trail open to motor vehicle use. Indicator: Miles of unauthorized routes added to the system and designated for motor vehicle use. Issue 4: The access proposed in the proposed action provides more motorized use than is necessary. Alternative 3 was developed, in part, to respond to concerns raised over the environmental impact of too much motorized access allowed in Proposed Action. It carries forward some of the road closure recommendations presented in the Center for Biological Diversity (CBD), Grand Canyon Chapter of the Sierra Club, Grand Canyon Wildlands Council, Arizona Wilderness Coalition, Arizona Rivers, Arizona Zoological Society, Public Employees for Environmental Responsibility, White Mountain Conservation League and the Wilderness Society scoping letter submitted December 4, Some suggestions for road closure were not included, because roads were open by a previous decision or roads were necessary for access to private property, range improvements, or needed for other rights-of-way or management activities. Reasons for not closing specific roads in alternative 3 are listed in the response to public scoping comments (appendix J). Tonto National Forest Motorized Travel Management Environmental Assessment Page 15 of 269

22 Chapter 1 ~ Introduction Indicator: Miles of road and motorized trail open to motor vehicle use. Indicator: Miles of unauthorized routes added to the system and designated for motor vehicle use. Concern Some public comments did not result in specific issues that created alternatives, because they were not specific enough to include in an alternative or were outside the scope of this project. However, the Tonto NF has grouped these public comments into themes that allow us to use some information in the comments to analyze each alternative and provide further information to the public. These concerns are listed below. Impacts of roads and trails on riparian areas and streams endanger wildlife and unique botanical values. Indicator: Miles of roads and motorized trails designated for motor vehicle use within 300 feet of riparian areas. Prohibiting cross-country travel and closing dead-end spur routes would result in a loss of motorized dispersed camping opportunities. Indicator: Percentage of known, dispersed-camping sites that will remain accessible by motor vehicles under each alternative. Roads and motorized trails in and near wilderness and inventoried roadless areas (IRAs) impact non-motorized users and wildlife, as well as future designation for wilderness. Indicator: Miles of road open for motor vehicle use within ¼ mile of wilderness and IRA boundaries. The designation of roads and trails for motorized use may affect cultural resources. Indicator: Miles of road and motorized trail open to motor vehicle use. Indicator: Miles of unauthorized routes added to the system and designated for motor vehicle use. Indicator: Acres of NFS lands designated for motorized big game retrieval. Closing roads and trails to motor vehicle use may negatively affect local economies. Indicator: The socioeconomic effects will be analyzed qualitatively. Page 16 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

23 Chapter 2 ~ Alternatives to be Studied in Detail, Including the Proposed Action This chapter describes alternatives developed to meet the purpose and need for action and address issues identified in chapter 1. The Travel Analysis Process (TAP) was used to rank roads on the Tonto NF according to their benefits and risks by resource. Rankings were used to recommend whether roads should remain open or be closed. A TAP report was developed for each ranger district, which identified the minimum road system needed for administration, utilization and protection of the National Forest and incorporated public input (TAP Appendix L Route Reports). This identified system was carried into the original Proposed Action scoped in the fall of Resulting public comments were used to develop two alternatives and to modify the Proposed Action (alternative 2) in accordance with 36 CFR part 220, which clarifies that alternative(s), including the proposed action, may be modified through an incremental process. In total, four alternatives are being considered in this EA. Each action alternative is comprised of one or more of the following actions: Prohibition of cross-country travel: Motor vehicle travel off designated NFS roads, motorized trails, and areas would be prohibited except as allowed by permit or other authorization. Changes to NFS roads related to vehicle class: The action alternatives include limited changes to the vehicle class allowed on existing NFS roads. Vehicle class indicates the type of vehicle (passenger car, motorcycle, all-terrain vehicle, etc.) allowed to operate on a road or trail. Because proposed changes in vehicle class for existing NFS roads are primarily based on existing tread width and characteristics, this action will align current and intended management of these roads as either higher or lower maintenance roads and trails. This should not require actively changing the characteristics of the road. For site-specific information about maintenance levels of existing roads and inventoried unauthorized trails on the forest, see Objective Maintenance Level and Operational Maintenance Level in appendix L of the TAP report. Changes to NFS roads related to administrative use: The action alternatives propose limited changes in motorized access to existing NFS roads currently used for the administration and management of the Forest, including Forest Service recreation facilities, authorized special uses, and legal rights of access. This action responds to the need to support Forest management and administrative activities by limiting public access on certain roads as listed in Appendix G Proposed Route Changes for Alternatives 2 through 4. For site-specific information about administrative uses of existing roads and inventoried unauthorized trails on the forest, look under Access/Uses in appendix L of the TAP report. Changes to NFS roads related to season of use: Alternatives 2, 3, and 4 propose restricting motorized use on designated roads and trails during specific times of the year (referred to as seasonal closures). This action responds to the need to provide motor vehicle access to dispersed recreation opportunities and to provide a diversity of motorized recreation opportunities while minimizing impacts to forest resources. Additions to NFS roads: Alternatives 2 and 4 propose to add unauthorized routes to the system as roads. Proposed additions include the vehicle class (e.g., passenger car, high-clearance vehicle, etc.) allowed to operate on the road and, in some cases, the season of use. Additions are considered in order to respond to the need to provide motor vehicle access to dispersed recreation opportunities and to provide a diversity of motorized recreation opportunities. Each road addition, Tonto National Forest Motorized Travel Management Environmental Assessment Page 17 of 269

24 Chapter 2 ~ Alternatives to be Studied in Detail including any proposed mitigation measures to minimize damage to forest resources, is individually listed in Appendix I Description of Proposed Action Unauthorized Routes. For site-specific potential impacts of unauthorized routes (as well as existing roads) on the Forest, look under Special Resources in appendix L of the TAP report. Because proposed additions to the transportation system are primarily based on existing tread width and characteristics, this action will align intended management of these unauthorized routes, and should not require actively changing the characteristics of the road on the ground. Addition to the NFS motorized trails: Alternatives 2 and 4 propose to add unauthorized routes to the system as motorized trails. Proposed additions include the trail type (e.g., motorcycle or ATV) allowed to operate on the trail and, in some cases, the season of use. Additions are considered in order to respond to the need to provide motor vehicle access to dispersed recreation opportunities and to provide a diversity of motorized recreation opportunities. Each trail addition, including any proposed mitigation measures to minimize damage to forest resources, is individually listed in Appendix H Proposed Motorized Trails for Alternatives 2 through 4. Look under Special Resources in appendix L of the TAP report for site-specific route information. Because proposed additions to the transportation system are primarily based on existing tread width and characteristics, this action will align intended management of these unauthorized routes, and should not require actively changing the characteristics of the trail on the ground. Designations of roads and trails include all terminal facilities, trailheads, parking lots, and turnouts associated with the road or trail. Designation assumes the width of the road or trail surface and the necessary width for vehicles to pass safely without damaging resources or facilities. The designation also allows for parking a motor vehicle on the side of the road within one vehicle length of the road edge when it is safe to do so without causing damage to NFS resources or facilities, unless prohibited by state law, a traffic sign, or an order. Designation of areas: Alternatives 2 and 4 propose designated areas open to cross-country motorized use. Motorized cross-country areas are considered in order to respond to the need to provide a diversity of motorized recreation opportunities, which are currently unavailable on the Forest. Designation of Permit Zones: Alternatives 2, 3, and 4 propose restricting motorized use on designated roads and trails within designated permit zones. Motor vehicles would be required to stay on designated roads and users would need to obtain written authorization to enter the area. Because a person needs written authorization to access the roads and trails within permit zones, these routes will be considered administrative use only and will not be depicted on the Motor Vehicle Use Map (MVUM). Therefore, permit zones and the resulting restrictions on routes within these zones are analyzed in this EA to provide a clearer explanation of each alternative and its effects on the environment and the public. Motorized Big Game Retrieval: Alternatives 2 and 4 propose allowing motorized big game retrieval 200 yards off designated system roads and trails. According to communication with Arizona Game and Fish Department, most motorized retrieval of big game occurs within 200 yards of a road (Klabunde, 2009). Motorized Dispersed Camping Corridors: No motorized dispersed camping corridors are proposed in the action alternatives. During scoping, the forest did not receive public comments that indicated a need for motorized dispersed camping corridors. However, the forest did consider Page 18 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

25 Chapter 2 ~ Alternatives to be Studied in Detail access to dispersed camping sites when proposing designated roads and trails. For site-specific information related to uses for each road and inventoried unauthorized route on the forest, look under Public Uses in appendix L of the TAP report. Opportunities to access dispersed camping sites are analyzed in chapter 3 s recreation section. Forest Plan Amendment: A Forest Plan Amendment would be included for each Action Alternative that states Motor vehicle use off the designated system of roads is prohibited, except as identified on the Motor Vehicle Use Map. Alternatives Alternative 1 ~ No Action The No Action alternative was developed as a benchmark against which the agency can evaluate the proposed action and alternatives. The No Action alternative would continue current management of Forest s road and trail system. That is, this alternative would not implement the Travel Management Rule; it would not further restrict motor vehicle use or make any changes to the NFS road and trail system. NFS Roads and Trails The existing 3,358 miles of NFS roads that are currently open to motorized vehicle use on the Tonto NF would remain open (table 2). There are also 1,205 miles of existing NFS roads that are closed to motor vehicle use by previous NEPA decisions and would remain closed See figures for NFS roads, trails, and areas in Appendix A ~ Road Maps for Alternative 1. No trails are currently managed for motorized use. Table 2. Alternative 1 - NFS roads and trails mileage 2 Ranger District Closed Open to Passenger Vehicles Open to Highclearance Vehicles Trails Open to Vehicles 50 or Less in Width Open Motorcycle Trail Total Cave Creek Globe Mesa Payson Pleasant Valley Tonto Basin Forest Total 1,205 1,050 2, ,564 2 Mileages are derived from GIS data (May 2010) and are approximate. As a result, errors in mileages between alternatives and statistical analyses may occur. There is a known margin of error between the No Action alternative and the action alternatives of up to approximately 11 percent. Additionally, mileage has been rounded, therefore numbers may not add up to exact total amount. Tonto National Forest Motorized Travel Management Environmental Assessment Page 19 of 269

26 Chapter 2 ~ Alternatives to be Studied in Detail NFS Roads related to administrative use In addition, there are approximately 960 miles of existing NFS roads that are used for administrative purposes. 3 See figures for NFS roads, trails, and areas in Appendix A ~ Road Maps for Alternative 1 and table 3 below. Table 3. Alternative 1 - NFS administrative roads mileage Ranger District Cave Creek Globe Mesa Payson Pleasant Valley Tonto Basin Miles NFS Roads related to season of use There are currently six miles of NFS roads restricted by season of use to protect biological resources. Addition to NFS Roads and Motorized Trails No unauthorized routes would be added to the transportation system. However, it is likely that motor vehicle use of unauthorized routes would continue, and possibly even increase in number. Approximately 590 miles of unauthorized routes have been inventoried. Designation of Areas There are no designated cross-country travel areas on the Tonto NF; however, motorized crosscountry travel would continue in the Payson and Pleasant Valley ranger districts on approximately 700,004 acres of the Forest. Designation of OHV Permit Zones Motorized access to the existing Bulldog Canyon OHV Permit Zone (figure 2) would continue to require a gate combination code and a free permit from the Forest. Motorized vehicles would continue to be required to stay on designated open NFS roads and trails (table 4). Table 4. Alternative 1 OHV permit zones Vehicle Class Miles of Road Restricted to Permitted Use Mesa Ranger District: Bulldog Canyon Permit Zone Passenger 4 High-clearance 26 3 These routes were classified as operational maintenance level 2; objective maintenance level 1 routes in our routes database (Infra) prior to the Travel Management Rule. With regional guidance, it was determined that the objective maintenance level should be used to classify routes. As a result, the Tonto NF was required to change objective maintenance levels to correspond with previous operational maintenance levels. In other words, all administrative routes were previously categorized as operational level 2, objective level 1 and are now categorized as operational level 1, objective level 2. This is an administrative change to our database that does not result in a change in public use. Motorized use on these routes is permitted by written authorization only. Page 20 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

27 Chapter 2 ~ Alternatives to be Studied in Detail Vehicle Class Miles of Road Restricted to Permitted Use Motorized Trail (ATV) 0 Motorized Trail (single-track) 0 Total Miles 30 Motorized Big Game Retrieval and Dispersed Camping Motorized dispersed camping and big game retrieval would remain unchanged from the current condition. Cross-country travel for the purpose of motorized dispersed camping and big game retrieval would continue in the Payson and Pleasant Valley ranger districts on approximately 700,004 acres. Roadside parking and utilization of short spur routes for motorized dispersed camping would continue on the remaining ranger districts. Travel off NFS roads and trails for purposes of big game retrieval in Cave Creek, Mesa, Tonto Basin, and Globe ranger districts would remain prohibited. Forest Plan Amendment A Forest Plan Amendment would not be included under the No Action Alternative to prohibit cross-country travel or to make ROS classes consistent with existing NFS roads and Plan language would remain unchanged. This is needed for comparison of effects, however would not be consistent with the Rule. Alternative 2 - Proposed Action To meet the Purpose and Need for Action, the following actions are proposed under Alternative 2 Proposed Action (see Appendix G Proposed Route Changes for Alternatives 2 through 4 for specific road details). This alternative was modified from the Proposed Action submitted for public scoping on October 22, 2009, based on public comments received during the scoping period, administrative review of the decision to correct errors, and consultation with agencies such as Arizona Game and Fish Department and U.S. Fish and Wildlife Service. Route mileage for alternative 2 is listed by type and ranger district in table 5 below. Changes to NFS Roads Related to Vehicle Class Close approximately 98 miles of roads currently open to high-clearance vehicles. 4 Close approximately 3 miles of roads currently open to passenger vehicles. Open approximately 441 miles of currently closed roads for high-clearance vehicles. Open approximately 1 mile of currently closed roads for passenger vehicles. Convert approximately 33 miles of roads currently open to high-clearance vehicles to passenger vehicle roads. Convert approximately 80 miles of roads currently open to passenger vehicles to highclearance vehicle roads. Restrict approximately 143 miles of high-clearance vehicle roads and 6 miles of passenger car roads to seasonal use. 4 All roads suggested for decommissioning will be removed from the NFS roads database, but not physically changed on the ground until future site-specific analysis is completed. Tonto National Forest Motorized Travel Management Environmental Assessment Page 21 of 269

28 Chapter 2 ~ Alternatives to be Studied in Detail Changes to NFS Roads Related to Motorized Trails Open approximately 7 miles of currently closed roads for motorcycle trails. Open approximately 61 miles of currently closed roads for motorized trails. Convert approximately 1 mile of roads currently open to high-clearance vehicle to motorcycle trails. Convert approximately 26 miles of roads currently open to high-clearance vehicle to ATV trails. Restrict approximately 1 mile of ATV trail and 3 miles of motorcycle trails to seasonal use. Changes to NFS Roads Related to Administrative Use Convert approximately 157 miles of roads currently open to high-clearance vehicle roads to administrative use only roads, which would close these roads to general motor vehicle use. Convert approximately 51 miles of roads currently closed roads to administrative use only roads, which would close these roads to general motor vehicle use. Table 5. Alternative 2 NFS Route mileage by type and ranger district. Ranger District Closed Cave Creek Open to Passenger Vehicles Open to Highclearance Vehicles Trails Open to Vehicles 50 or Less in Width Open Motorcycle Trail Admin. Only Total Globe Mesa Payson Pleasant Valley Tonto Basin , Total 525 1,010 2, ,169 5,325 Addition to NFS Roads Through the TAP, the Tonto NF identified and analyzed approximately 590 miles of unauthorized routes. Approximately 152 miles of unauthorized routes are proposed to be added to NFS roads. A summary of these routes is shown by ranger district in table 5. Add 1 mile of unauthorized routes to the system as a road open to passenger cars. Add 129 miles of unauthorized routes to the system as a road open to high clearance vehicles. Add 22 miles of unauthorized routes as administrative use only roads. Addition to NFS Motorized Trails Approximately 138 miles of unauthorized routes are proposed to be added to NFS trails. A summary of these routes is shown by ranger district in table 6 below. Page 22 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

29 Chapter 2 ~ Alternatives to be Studied in Detail Add 79 miles of unauthorized routes to the system as a motorized ATV trail open to vehicles 50 inches in width or less. Add 59 miles of unauthorized routes to the system as a road open to motorcycles (single track vehicles). Table 6. Alternative 2 Unauthorized route mileage by type and ranger district Ranger District Open to Passenger Vehicles Open to Highclearance Vehicles Trails Open to Vehicles 50 or Less in Width Open Motorcycle Trail Admin. Only Total Cave Creek Globe Mesa Payson Pleasant Valley Tonto Basin Total Total Route Mileage for Alternative 2 Total NFS road and motorized trail mileage, including unauthorized routes, under alternative 2 is shown in table 7. Table 7. Alternative 2 Total NFS route mileage by type and ranger district (including unauthorized routes) Ranger District Open Passenger Car Open High-clearance Vehicle Closed Motorized ATV Trail Motorcycle Trail Admin Only Total Cave Creek Globe Mesa Payson Pleasant Valley ,190 Tonto Basin ,004 Total 1,010 2, ,191 5,616 Designation of Areas Designate approximately 1,417 acres as Areas 5 that would allow for unrestricted cross-country within each area s boundaries. The following Areas are proposed, as shown in table 8. 5 The Pipeline OHV area proposed under the original proposed action was removed from alternative 2 due to cultural resource and public safety concerns. The Camp Creek OHV area proposed under the original proposed action was also removed from alternative 2 due to biological resource concerns. Tonto National Forest Motorized Travel Management Environmental Assessment Page 23 of 269

30 Chapter 2 ~ Alternatives to be Studied in Detail Table 8. Alternative 2 Areas by ranger district Ranger District Areas Approximate Acreage Mesa Sycamore Tot Lot 3 Mesa The Rolls Tot Lot 6 Globe Golf Course OHV Area 17 Mesa Sycamore OHV Area 1,391 Forestwide Total 1,417 Designation of OHV Permit Zones In addition to the Bulldog Canyon existing OHV permit zone, The Rolls, Sycamore, and St. Claire zones would be managed by permit. Vehicles would be required to stay on designated roads and trails and obtain a gate combination code and permit from the Forest. A total of 315 miles of road across the Forest will be open to motorized use by special recreation permit only (table 9). Approximately 206miles of roads previously unrestricted to motorized travel in The Rolls, Sycamore, and St. Claire permit zones would become restricted by special recreation permit. Table 9. Alternative 2 Permit zone mileage by ranger district zone and vehicle class. Vehicle Class Miles of Road restricted to permitted use Mesa Ranger District: Bulldog Canyon Permit Zone Passenger 4 High-clearance 29 Motorized Trail (ATV) 0 Motorized Trail (single-track) 0 Total Miles 32 Mesa Ranger District: Sycamore Permit Zone Passenger 7 High-clearance 67 Motorized Trail (ATV) 19 Motorized Trail (single-track) 40 Total Miles 132 Mesa Ranger District: The Rolls Permit Zone Passenger 9 High-clearance 63 Motorized Trail (ATV) 0 Motorized Trail (single-track) 0 Total Miles 71 Cave Creek Ranger District: St. Claire Permit Zone Passenger 21 High-clearance 43 Motorized Trail (ATV) 9 Motorized Trail (single-track) 7 Page 24 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

31 Chapter 2 ~ Alternatives to be Studied in Detail Vehicle Class Miles of Road restricted to permitted use Total Miles 80 Forestwide Total 315 See figures for NFS roads, trails and areas in Appendix B ~ Road Maps for Alternative 2. Motorized Big Game Retrieval Motorized retrieval of big game (elk and bear) would be limited to 200 yards off either side of NFS roads and motorized trails (400 yards total) to retrieve a downed elk and bear by an individual who has legally taken an animal. This would occur on all open roads and motorized trails in GMU 21, 22, 23, 24A, and 24B, but would not extend into wilderness areas or inventoried roadless areas (see figure 3, Arizona Game Management Units below). The decision to limit motorized big game retrieval to 200 yards off either side of NFS roads and motorized trails (400 yards total) to retrieve a downed elk and bear in GMU 22 includes approximately 920 acres of the Coconino National Forest. Tonto National Forest Motorized Travel Management Environmental Assessment Page 25 of 269

32 Chapter 2 ~ Alternatives to be Studied in Detail Figure 3. Arizona game units within the Tonto NF Page 26 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

33 Chapter 2 ~ Alternatives to be Studied in Detail Alternative 3 To meet the Purpose and Need for Action, the following actions are proposed under alternative 3 (see appendix C for specific road details). Changes to NFS Roads Related to Vehicle Class Close approximately 105 miles of roads currently open to high clearance vehicles. 6 Close approximately 14 miles of roads currently open to passenger vehicles. Open approximately 428 miles of currently closed roads for high clearance vehicles. Open approximately 1 mile of currently closed roads for passenger vehicles. Convert approximately 33 miles of roads currently open to high clearance vehicle to passenger vehicle roads. Convert approximately 58 miles of roads currently open to passenger vehicle roads to roads open to high clearance vehicles. Restrict approximately 103 miles of high-clearance vehicle roads and 6 miles of passenger car roads to seasonal use. Changes to NFS Roads Related to Motorized Trails Open approximately 3 miles of currently closed roads for motorcycle trails. Open approximately 29 miles of currently closed roads for motorized trails. Convert approximately 1 mile of roads currently open to high clearance vehicle to motorcycle trails. Convert approximately 9 miles of roads currently open to high clearance vehicle to ATV trails. Changes to NFS Roads Related to Administrative Use Convert approximately 158 miles of roads currently open to high clearance vehicle roads to administrative use only roads, which would close these roads to general motor vehicle use. Convert approximately 34 miles of roads currently open to passenger vehicle roads to administrative use only roads, which would close these roads to general motor vehicle use. Convert approximately 69 miles of roads currently closed roads to administrative use only roads, which would close these roads to general motor vehicle use. Addition to NFS Roads and Motorized Trails No unauthorized routes analyzed in the TAP would be designated as open for motorized use under this alternative. Approximately 590 miles of inventoried unauthorized routes would be decommissioned. Total Route Mileage for Alternative 3 Total NFS road and motorized trail mileage under alternative 3 is shown in table 10 below. 6 All roads suggested for closure and/or decommissioning will be removed from the NFS roads database, but not physically changed on the ground until future site-specific analysis is completed. Tonto National Forest Motorized Travel Management Environmental Assessment Page 27 of 269

34 Chapter 2 ~ Alternatives to be Studied in Detail Table 10. Alternative 3 Route mileage by type and ranger district Ranger District Closed Open to Passenger Vehicles Open to Highclearance Vehicles Trails Open to Vehicles 50 or Less in Width Open Motorcycle Trail Admin Only Total Cave Creek Globe Mesa Payson Pleasant Valley ,053 Tonto Basin Total , ,221 5,287 Designation of Areas No Areas would be designated on the Tonto NF. Designation of OHV Permit Zones In addition to the Bulldog Canyon existing OHV permit zone, The Rolls, Sycamore, and St. Claire zones would be managed by permit. Vehicles would be required to stay on designated roads and trails and obtain a gate combination code and permit from the Forest. A total of 314 miles of road across the Forest will be open to motorized use by special recreation permit only, as listed in table 11. Approximately 206miles of roads previously unrestricted to motorized travel in The Rolls, Sycamore, and St. Claire permit zones would become restricted by special recreation permit. Table 11. Alternative 3 Permit zone mileage by ranger district zone and vehicle class Vehicle Class Miles of Road Restricted to Permitted Use Mesa Ranger District: Bulldog Canyon Permit Zone Passenger 4 High-clearance 29 Motorized Trail (ATV) 0 Motorized Trail (single-track) 0 Total Miles 32 Mesa Ranger District: Sycamore Permit Zone Passenger 7 High-clearance 66 Motorized Trail (ATV) 19 Motorized Trail (single-track) 40 Total Miles 131 Mesa Ranger District: The Rolls Permit Zone Passenger 9 High-clearance 63 Motorized Trail (ATV) 0 Page 28 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

35 Chapter 2 ~ Alternatives to be Studied in Detail Vehicle Class Miles of Road Restricted to Permitted Use Motorized Trail (single-track) 0 Total Miles 71 Cave Creek Ranger District: St. Claire Permit Zone Passenger 21 High-clearance 43 Motorized Trail (ATV) 9 Motorized Trail (single-track) 7 Total Miles 79 Forestwide Total 314 See figures for NFS roads, trails, and areas in Appendix C ~ Road Maps for Alternative 4. Motorized Big Game Retrieval No off-road motorized game retrieval would be permitted, including approximately 920 acres in GMU 22 on the Coconino National Forest. Alternative 4 To meet the Purpose and Need for Action, the following actions are proposed under alternative 4 (see appendix D for specific road details). Route mileage for alternative 4 is listed by type and ranger district in table 12. Changes to NFS Roads Related to Vehicle Class Close approximately 74 miles of roads currently open to high clearance vehicles. 7 Close approximately 3 miles of roads currently open to passenger vehicles. Open approximately 493 miles of currently closed roads for high clearance vehicles. Convert approximately 33 miles of roads currently open to high clearance vehicles to passenger vehicle roads. Convert approximately 81 miles of roads currently open to passenger vehicles to roads open to high clearance vehicles. Restrict approximately 101 miles of high-clearance vehicle roads and 6 miles of passenger car roads to seasonal use. Changes to NFS Roads Related to Motorized Trails Open approximately 3 miles of currently closed roads for motorcycle trails. Open approximately 50 miles of currently closed roads for ATV trails. Convert approximately 3 miles of roads currently open to high clearance vehicles to motorcycle trails. Convert approximately 16 miles of roads currently open to high clearance vehicles to ATV trails. 7 All roads suggested for decommissioning will be removed from the NFS roads database, but not physically changed on the ground until future site-specific analysis is completed. Tonto National Forest Motorized Travel Management Environmental Assessment Page 29 of 269

36 Chapter 2 ~ Alternatives to be Studied in Detail Convert approximately 18 miles of roads currently open to passenger vehicles to ATV trails. Restrict approximately 3 miles of motorcycle trail and 1 mile of ATV trail to seasonal use. Changes to NFS Roads Related to Administrative Use Convert approximately 81 miles of roads currently open to high clearance vehicle roads to administrative use only roads, which would close these roads to general motor vehicle use. Convert approximately 15 miles of roads currently open to passenger vehicle roads to administrative use only roads, which would close these roads to general motor vehicle use. Convert approximately 37 miles of currently closed roads to administrative use only roads, which would close these roads to general motor vehicle use. Table 12. Alternative 4 Route mileage by type and ranger district Ranger District Cave Creek Closed Open to Passenger Vehicles Open to Highclearance Vehicles Trails Open to Vehicles 50 or Less in Width Open Motorcycle Trail Admin Only Total Globe Mesa Payson Pleasant Valley Tonto Basin , Total , ,093 5,287 Addition to NFS Roads Approximately 180 miles of unauthorized routes are proposed to be added to NFS roads as follows (table 13): Add 1 mile of unauthorized route to the system as a road open to passenger cars. Add 158 miles of unauthorized routes to the system as a road open to high clearance vehicles. Add 21 miles of unauthorized routes to the system as administrative use only roads. Addition to NFS Motorized Trails Approximately 170 miles of unauthorized routes are proposed to be added to NFS trails as follows: Page 30 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

37 Chapter 2 ~ Alternatives to be Studied in Detail Add 77 miles of unauthorized routes to the system as a motorized ATV trail open to vehicles 50 inches in width or less. Add 93 miles of unauthorized routes to the system as a road open to motorcycles (single track vehicles). Table 13. Alternative 4 Unauthorized routes by type and ranger district Ranger District Open to Passenger Vehicles Open to Highclearance Vehicles Trails Open to Vehicles 50 or Less in Width Open Motorcycle Trail Admin Only Total Cave Creek Globe Mesa Payson Pleasant Valley Tonto Basin Total Total Route Mileage for Alternative 4 Total NFS road and motorized trail mileage, including unauthorized routes, under alternative 4 is shown in table 14 below. Table 14. Alternative 4 Total route mileages by type and ranger district (including unauthorized routes) Ranger District Open Passenger Car Open High Clearance Vehicle Closed Motorized ATV Trail Motorcycle Trail Admin Use Total Cave Creek Globe Mesa Payson Pleasant Valley ,152 Tonto Basin ,004 Total 972 2, ,113 5,637 Designation of Areas: Areas would be the same as under alternative 2. Designation of OHV Permit Zones In addition to the Bulldog Canyon existing OHV permit zone, The Rolls, Sycamore, and St. Claire zones would be managed by permit. Vehicles would be required to stay on designated roads and trails and obtain a gate combination code and permit from the Forest. Tonto National Forest Motorized Travel Management Environmental Assessment Page 31 of 269

38 Chapter 2 ~ Alternatives to be Studied in Detail A total of 353 miles of road across the Forest will be open to motorized use by special recreation permit only, as shown in table 15. Approximately 206 miles of roads previously unrestricted to motorized travel in The Rolls, Sycamore, and St. Claire permit zones would become restricted by special recreation permit. Table 15. Alternative 4 Permit zone mileage by vehicle class Vehicle Class Miles of Road restricted to permitted use Mesa Ranger District: Bulldog Canyon Permit Zone Passenger 4 High-clearance 29 Motorized Trail (ATV) 0 Motorized Trail (single-track) 0 Total Miles 32 Mesa Ranger District: Sycamore Permit Zone Passenger 7 High-clearance 74 Motorized Trail (ATV) 16 Motorized Trail (single-track) 56 Total Miles 152 Mesa Ranger District: The Rolls Permit Zone Passenger 9 High-clearance 77 Motorized Trail (ATV) 0 Motorized Trail (single-track) 0 Total Miles 86 Cave Creek Ranger District: St. Claire Permit Zone Passenger 21 High-clearance 45 Motorized Trail (ATV) 10 Motorized Trail (single-track) 8 Total Miles 83 Forestwide Total 353 See figures for NFS roads, trails, and areas in Appendix D ~ Road Maps for Alternative 4. Motorized Big Game Retrieval Motorized retrieval of big game (mule deer, elk, and bear) would be limited to 200 yards off either side of NFS roads and motorized trails (400 yards total) to retrieve a downed mule deer, elk, or bear by an individual who has legally taken an animal. This would occur on all open roads and motorized trails in GMU 21, 22, 23, 24A, 24B, and 37B, but would not extend into wilderness areas or inventoried roadless areas (see figure 3, Game Management Units above). Page 32 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

39 Chapter 2 ~ Alternatives to be Studied in Detail The decision to limit motorized big game retrieval to 200 yards off either side of NFS roads and motorized trails (400 yards total) to retrieve a downed mule, deer, elk and bear in GMU 22 includes approximately 920 acres of the Coconino National Forest. Common to all Action Alternatives Forest Plan Amendment The Forest Plan would be amended to state Motor vehicle use off the designated system of roads is prohibited, except as identified on the Motor Vehicle Use Map. This would be consistent with the language and intent in 36 CFR 212. (See Appendix E Travel Management Plan Amendment for specific changes to Forest Plan). The Forest Plan would be amended to make Recreation Opportunity Spectrum classes consistent with the proposed NFS road and trail network (see Appendix E Travel Management Plan Amendment for specific changes to Forest Plan). General Information Collection of Forest Products and Other Permitted Uses The collection of forest products such as firewood would continue to be managed under the terms of a permit Permitted activities, including where motorized vehicles would be allowed, would be defined in the terms of the permit and are not considered in this analysis. Driving cross-country off the designated road system to collect forest products would be allowed only with a valid permit issued for the specific forest product collection activity. Motorized Dispersed Camping and Big Game Retrieval Roadside parking up to one-vehicle length from the edge of the road (FSM ) would continue for purposes of dispersed motorized camping, but motor vehicle use off designated roads and trails for purposes other than dispersed camping would not be allowed. Motorized activities associated with hunting such as scouting for game, driving to a dispersed camp site, and hunting from a vehicle (legal only for participants of the state s CHAMP program for disabled hunters), would be limited to NFS roads and trails. Only one vehicle would be allowed for motorized big game retrieval (MBGR) per harvested animal. A minimum number of trips are to be used to accomplish retrieval, and the route is to be safe and relatively direct, minimizing negative resource impacts. Motorized big game retrieval would not be allowed in existing off-road travel restricted areas, or when conditions are such that travel would cause damage to natural and/or cultural resources. Motorized vehicles would not be permitted to cross riparian areas, streams, or rivers except at hardened crossings or crossings with existing culverts. Monitoring and Mitigation Measures Monitoring Monitoring is critical for evaluating the effectiveness of management decisions and accuracy of analysis assumptions and conclusions. Monitoring of effects of motor vehicle use on designated roads and trails and in designated areas is required by 36 CFR If monitoring determines additional resource damage is occurring, steps to prevent further damage may be taken. If Tonto National Forest Motorized Travel Management Environmental Assessment Page 33 of 269

40 Chapter 2 ~ Alternatives to be Studied in Detail mitigation is not effective or is not possible, additional road or trail closures may be required and would require additional NEPA analysis. In addition to effectiveness monitoring related to the actions of this project, many other forms of monitoring and data collection take place on the Forest. These include ongoing monitoring that is already prescribed, such as surveys of roads and trails for infrastructure condition, monitoring of cultural resource sites, noxious weed spread, rare plants, or wildlife surveys. Some of this monitoring may directly or indirectly assess effects of motor vehicle use on roads or trails on resources, as well as generally assessing conditions of roads for stability and maintenance. While these monitoring efforts are not prescribed in this Travel Management EA, these data will also be used whenever possible, in either assessing the effectiveness of proposed actions or in adjusting future travel management actions. Mitigation Restrict use of any type of motor vehicle on Forest Development roads and trails within The Rolls, Bulldog, St. Claire, and Sycamore permit zones to those with written authorization by a Forest officer which specifically authorizes the activity (i.e., install controlled-access gates and implement a permitting system). Delineate boundaries of cross-country areas with signage, fencing, and other means, utilizing easily identifiable topographic features, such as roads and washes. Install informational signs and kiosks. Delineate parking areas with pipe rail, boulders, signage, or other materials. Utilize volunteer groups to conduct peer education outreach. Provide visitors information on methods to minimize impact on Forest resources. Prioritize closure of unauthorized routes going directly up hillslopes. Increase signage, effectiveness of closures and official presence at locations where routes come close to wilderness areas. Monitor closed and restored routes to ensure measures taken are effectively mitigating impacts to Forest resource. Designate site-specific locations for motorized camping that are more than a car-length off an NFS road, as time permits and resource clearance are completed. Comparison of Alternatives This section provides a summary of alternatives and effects of implementing each alternative. Information in the tables is focused on activities and effects where different levels of effects or outputs can be distinguished quantitatively or qualitatively among alternatives. Table 16 below compares miles of open and closed roads and motorized trails, acres of areas designated for motor vehicle use, and corridors for motorized big game retrieval and dispersed camping by alternative. Table 16. Alternative comparisons of miles by category Page 34 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

41 Chapter 2 ~ Alternatives to be Studied in Detail Category Description Miles of NFS roads maintained for passenger vehicles Miles of NFS roads maintained for highclearance vehicles Miles of NFS roads restricted for administrative use only Miles of motorized trails open to vehicles 50 wide or less (ATV trails) Miles of motorized trails open to singletrack (motorcycle trails) Miles of NFS roads and trails restricted by season of use Miles of unauthorized roads added to the NF system as roads maintained for passenger vehicles Miles of unauthorized roads added to the NF system as roads maintained for highclearance vehicles Miles of unauthorized roads added to the NF system as open to vehicles 50 wide or less (ATV trails) Miles of unauthorized roads added to the NF system as open to single-track (motorcycle trails) Miles of unauthorized roads and trails added to the system and restricted by season of use Acres of areas for motorized cross-country travel Miles of roads that will be restricted by permit (permit zones) Total NFS road and trail mileage (including unauthorized routes added to the system) Total NFS road and trail mileage (including roads for administrative use only and unauthorized routes added to the system) Acres/corridors open for motorized dispersed camping (open to cross-country travel in alternative 1) Alt. 1 No Action Alt. 2 Proposed Action Alt. 3 Alt. 4 1,050 1, ,308 2,528 2,418 2, ,169 1,221 1, ,704 1, , ,358 3,900 3,432 4,044 4,318 5,091 4,653 5, , Tonto National Forest Motorized Travel Management Environmental Assessment Page 35 of 269

42 Chapter 2 ~ Alternatives to be Studied in Detail Category Description Acres open to motorized big game retrieval (open to cross-country travel in alternative 1) Miles of NFS roads and trails to motorized big game retrieval (open to cross-country travel in alternative 1) Alt. 1 No Action Alt. 2 Proposed Action Alt. 3 Alt , , ,926 1,150 3, ,801 Table 17 provides a comparison summary of each alternative s effects on resources and/or uses as described in chapter 3. Page 36 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

43 Chapter 2 ~ Alternatives to be Studied in Detail Table 17. Alternative Effects comparison summary Action: Changes and additions to NFS roads and motorized trails (including unauthorized routes) Resource Alternative 1 Alternative 2 Alternative 3 Alternative 4 Adverse effects to air quality (i.e., effects that would cause or significantly contribute to air quality Air Quality impairment beyond the existing conditions) are not anticipated. Air Quality - General Conformity Archaeological Contemporary Indian Uses Good watershed ratings for route density Good watershed ratings for proximity to streams Miles of routes within 300 feet of riparian areas Acres of weed infestations along open NFS routes Miles of NFS roads maintained for passenger vehicles Miles of NFS roads maintained for high-clearance vehicles Value for PM-10 emission is less than the de minimis emission level of 70 tons per year. Actions conform to state implementation plan requirements for attaining ambient air quality standards. Continued damage from uncontrolled off-road travel. Continued damage to sacred sites and traditional use areas which may inhibit or limit the use of such areas. Reduces effects by employing protection measures identified in the Protocol for any newly designated route. Lower road mileage under alternative 3 reduces monitoring and protection opportunities relative to alternatives 2 and 4. Increased mileage may result in additional opportunities to access collection sites and other areas necessary for ceremonial activities and other traditional uses. The most access would be provided for under alternative miles 84 miles 76 miles 89 miles 2,089 acres 3,100 acres 3,064 acres 3,100 acres 1,050 miles 1,010 miles 971 miles 972 miles 2,308 miles 2,657 miles 2,418 miles 2,813 miles Tonto National Forest Motorized Travel Management Environmental Assessment Page 37 of 269

44 Chapter 2 ~ Alternatives to be Studied in Detail Miles of motorized trails open to vehicles 50 or less in width Miles of unauthorized routes added to the transportation system Miles of NFS roads and trails in SPNM ROS Miles of NFS roads and trails within ¼ mile of wilderness and IRA boundaries Number of known dispersedcamping sites within 100 feet of open route Miles of NFS routes with moderate and high erosion risk Miles of NFS routes with low to moderate soil strength Number of NFS routes with known erosion scars Number of NFS routes subject to erosion Transportation System Maintenance Costs Miles of NFS roads and trails in Retention VQO Miles of NFS roads and trails in Partial Retention VQO 0 miles 233 miles 42 miles 259 miles 0 miles 291 miles 0 miles 350 miles 476 miles 609 miles 609 miles 614 miles 262 miles 267 miles 255 miles 280 miles ,061 miles 2,731 miles 2,646 miles 2,883 miles 2,190 miles 2,016 miles 1,960 miles 2,033 miles $12,996,206 $16,749,144 $14,808,227 $16,624, miles 888 miles 860 miles 903 miles 2,174 miles 2,273 miles 2,088 miles 2,305 miles Page 38 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

45 Chapter 2 ~ Alternatives to be Studied in Detail Federally-listed Species Forest Sensitive Species Management Indicator Species No effect No effect Action: Designation of motorized cross-country areas May effect, not likely to adversely affect for most species. May effect, likely to adversely affect Southwestern willow flycatcher and Mexican spotted owl May effect May effect May effect, but the size of the impact should never reach the scale where a population is affected. No effect No effect No effect No effect Resource Alternative 1 Alternative 2 Alternative 3 Alternative 4 Archaeological Contemporary Indian Uses Uncontrolled off-road travel will result in continued damage to heritage resources. Uncontrolled off-road travel will result in continued damage to sacred sites and traditional use areas and may inhibit or limit the use of such areas. Reduces effects by restricting cross-country travel and employing protection measures identified in the Protocol for any newly designated area. Effects reduced the most under alternative 3. Reduces effects to sacred sites and traditional use areas by restricting crosscountry travel and by employing protection measures identified in the Protocol, however, may also restrict some access to these sites. Effects reduced the most under alternative 3. Tonto National Forest Motorized Travel Management Environmental Assessment Page 39 of 269

46 Chapter 2 ~ Alternatives to be Studied in Detail Hydrology & Watersheds Acres of weeds open to vehicular access in OHV areas Acres of areas designated for motorized cross-country use Impacts include disturbance to vegetation, exposure and compaction of soils, rutting and gullying of routes, disruption of natural drainage patterns, and disturbance to riparian areas and stream channels. Eliminating motorized cross-country travel would allow disturbed areas to recover over time. Impacts would continue to occur on 1,417 acres. Eliminating motorized cross country travel Same as alternative 2. would result in the most reduction of impacts. 21,694 acres 0 acres 0 acres 0 acres 700,704 acres 1,417 acres 0 acres 1,417 acres Acres of areas designated for motorized cross-country use 253,916 acres 4 acres 0 acres 4 acres within SPNM ROS Percent of impaired or unsatisfactory soils in motorized cross-country 65% Less than 10% 0% Same as Alternative 2 travel areas Percent of motorized crosscountry travel acres with moderate to high erosion 15 to 20% Less than 0.1% 0% Same as Alternative 2 risks Area Maintenance Costs $72,000,000 $142,000 $0 $142,000 Acres of areas designated for motorized cross-country use in Retention VQO 99,929 acres 39 acres 0 acres 39 acres Page 40 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

47 Chapter 2 ~ Alternatives to be Studied in Detail Acres of areas designated for motorized cross-country use in Partial Retention VQO Federally-listed Species Forest Sensitive Species Management Indicator Species Action: Designation of permit zones 296,811 acres 681 acres 0 acres 681 acres No effect No effect May effect, not likely to adversely affect for most species. May effect, likely to adversely affect Southwestern willow flycatcher and Mexican spotted owl May effect May effect May effect, but the size of the impact should never reach the scale where a population is affected. No effect No effect No effect No effect Resource Alternative 1 Alternative 2 Alternative 3 Alternative 4 Archaeological No measurable effect Contemporary Indian Uses Hydrology & Watersheds Requiring a permit for motorized access may reduce opportunities for resource gathering, visitation of sacred and other traditionally significant sites on about 30 miles of road. Continued operation should prevent an increase in adverse watershed effects. Requiring a permit for motorized access may reduce opportunities for resource gathering, visitation of sacred and other traditionally significant sites on 314 to 353 miles of road and trail. Designating additional permit zones should reduce or eliminate the proliferation of new unauthorized routes, providing for some recovery of watershed conditions through improved vegetative ground cover and reduced soil compaction. Tonto National Forest Motorized Travel Management Environmental Assessment Page 41 of 269

48 Chapter 2 ~ Alternatives to be Studied in Detail Noxious or Invasive Weeds Miles of NFS roads and trails within a permit zone Soils Miles of NFS roads and trails in a permit zone and in Retention VQO Miles of NFS roads and trails in a permit zone and in Partial Retention VQO Federally-listed Species Forest Sensitive Species Management Indicator Species No change in effects. Increasing the number of permit zones will allow the Forest to increase education about methods for prevention of spread of noxious weeds compared to the current condition. 30 miles 315 miles 314 miles 353 miles Motorized users in permit zone tend to be more aware of restrictions and are more likely to stay on designated routes, which is an overall benefit to soil conditions. Designating additional permit zones will increase benefits to soil conditions compared to the current condition. 15 miles 90 miles 85 miles 96 miles 12 miles 161 miles 122 miles 177 miles No effect No effect May effect, not likely to adversely affect for most species. May effect, likely to adversely affect Southwestern willow flycatcher and Mexican spotted owl May effect May effect May effect, but the size of the impact should never reach the scale where a population is affected. No effect No effect No effect No effect Page 42 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

49 Chapter 2 ~ Alternatives to be Studied in Detail Action: Decisions regarding motorized big game retrieval Resource Alternative 1 Alternative 2 Alternative 3 Alternative 4 Archaeological Contemporary Indian Uses Hydrology & Watersheds Acres of weed infestations within big game motorized retrieval corridors Recreational Uses Soils Visual Quality Federally-listed Species Forest Sensitive Species Management Indicator Species All Actions Uncontrolled off-road travel will result in continued damage to heritage resources. Minimal effects. Minimal effects. Motorized big game retrieval opens up some areas previously closed to cross-country travel and increases the potential for damage. Reduces effects by restricting MBGR more than all other alternatives. Motorized big game retrieval opportunities allow for more acreage and increase the potential for damage to heritage resources compared to alternative 2, though less than the current condition. 21,694 acres 6,086 acres 0 acres 8,347 acres Minimal effects. Minimal effects. Minimal effects. Negligible effects. Negligible effects. Negligible effects. Resource Alternative 1 Alternative 2 Alternative 3 Alternative 4 Climate Change No measurable effects. Environmental Justice No potential to contribute incrementally toward cumulative impacts on minority and low-income populations. Tonto National Forest Motorized Travel Management Environmental Assessment Page 43 of 269

50 Chapter 2 ~ Alternatives to be Studied in Detail Social & Economic Resources Minimal economic effect. Unmanaged offroad motorized use may result in users no longer attaining desired experience. Minimal economic effect. May be some social conflict as motorized users become aware of new restrictions and opportunities. Page 44 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

51 Chapter 2 ~ Alternatives to be Studied in Detail Alternatives Considered but Eliminated from Detailed Study Some public comments received in response to the Proposed Action provided suggestions for alternative methods for achieving purpose and need and were incorporated into alternatives analyzed in detail. Some comments were outside the scope of the designation of roads, trails, and areas for motorized travel and prohibition of cross-country travel on the Tonto NF; were duplicative of alternatives considered in detail; or were determined to be components that would cause unnecessary environmental harm. These comments were analyzed, but dismissed from detailed consideration. Other comments provided suggestions for achieving the purpose and need but were dismissed from detailed consideration for reasons summarized below. Minimum Road System Public comments proposed that the Forest analyze the minimum road system, as identified in the Travel Analysis Process (TAP) reports, as an alternative. The minimum road system identified in the TAP was the original proposed action made available for scoping in October, Resulting public comments were used to develop two alternatives and modify the Proposed Action (alternative 2) in accordance with 36 CFR part 220, which clarifies that alternative(s), including the proposed action, may be modified through an incremental process. Alternative 2, the modified Proposed Action, replaces this original proposal for detailed consideration. Special Area Protection An alternative was proposed that would reflect the desire for adequate resource protection in specific special areas (Center for Biological Diversity, et al., 2009). This alternative emphasized closures and motorized travel restrictions within or adjacent to wilderness areas, impaired waters and outstanding Arizona Waters, aquatic and riparian habitats, Mexican spotted owl protected activity centers (MSO PACs) and critical habitat; northern goshawk post-fledging family areas (PFAs); bald eagle wintering areas; southwestern willow flycatcher habitat; pronghorn habitat; mule deer core habitat; neo-tropical migratory bird nesting, foraging, and roosting habitats; mountain lion core habitat; black bear core habitat; elk summer, winter, and calving habitat; inventoried roadless areas; research natural areas; primitive and semi-primitive non-motorized areas; existing and potential wild and scenic rivers; and other special areas such as wildlife linkage corridors (Center for Biological Diversity, et al., 2009). As a whole, this alternative was eliminated from detailed study, because it would not provide for proper administration of managing the Forest and the collective recommendations were beyond the scope of this project. For example, some recommendations including closing roads that were needed to access private property or range improvements, and restricting such access is outside the scope of travel management. When specific route closure recommendations focused on roads within the scope of this analysis, they were considered on a case-by-case basis and included in either the Proposed Action or alternative 3 (see responses to public scoping comments in appendix J for details). Because alternative 3 took into consideration specific route closure recommendations, it was decided not to fully incorporate all the general recommendations because this had the effect of creating and/or buffering special areas identified in the scoping letter. The protection and existence of special areas presented are important, but creation and designation of these areas are best addressed at the Forest Plan level. Decommissioning Tonto National Forest Motorized Travel Management Environmental Assessment Page 45 of 269

52 Chapter 2 ~ Alternatives to be Studied in Detail It was proposed that Forest Service decommission all routes not assigned a high value for access. This suggestion to decommission all routes was not included as part of an alternative because it is beyond the scope of this project. While many roads are suggested for decommissioning in the TAPs, decommissioning all routes not assigned a high value for access goes beyond the purpose of the project which is to improve the management of motorized vehicle use on National Forest System lands on the Tonto National Forest in accordance with the Travel Management Rule (36 CFR 212, 251 and 261). The Forest recognizes the need to reduce adverse resource impacts caused by roads; however, this action would be an action far greater than that needed to achieve the purpose and need. Rather, as a practical approach, the Forest will emphasize decommissioning, when it is determined necessary because of resource issues and when decommissioning would be more feasible, like in association with future actions and site specific projects where heavy equipment will be used (such as a vegetation management project). Add All Unauthorized Routes to the System Several commentors suggested that the Forest analyze an alternative that would add all unauthorized routes to the NFS. This alternative was not analyzed in detail because it would not meet the Purpose and Need or Travel Management Rule Criteria (36 CFR ). Existing unauthorized routes were developed without environmental review or analysis, and without regard to whether a route was a needed component of the forestwide road and trail network. This means that some are poorly located and cause unacceptable environmental impacts that cannot reasonably be mitigated. Others may be in an acceptable location, but have little or no recreational value in that they have no known opportunity, do not enhance connectivity of NFS roads and trails, or are duplicative or redundant. Unauthorized routes that were considered during the Travel Analysis Process and that the public requested to be open for motorized travel during the scoping period are considered under alternative 4. See responses to public scoping comments in appendix J for details about specific routes. Reasonably Affordable System It was proposed to designate NFS roads and trails that the Tonto NF could reasonably afford to maintain with existing and reasonably foreseeable funding for route maintenance. Priorities for route designation would have been based on routes for vital administrative access and additional routes to key recreation sites. This alternative was eliminated from further consideration because it would not be sufficient for safe and efficient travel and for administration, utilization and protection of NFS lands as required per 36 CFR (2) (b) of the Rule and FSM (1) (c), which states... while important, the scarcity or abundance of resources to maintain and administer designated roads, trails, and areas should not be the only consideration in developing travel management proposals. Existing Road System with Motorized Cross-country Travel Prohibited It was proposed that in order to comply with the Rule, the Tonto NF prohibit cross-country travel in Payson and Pleasant Valley ranger districts and make no changes to the current road system. Some roads on the Forest are poorly located, cause extensive resource damage, or are no longer passable by motor vehicles (see travel analysis process for each district). Also, the existing system of roads on the Tonto National Forest is no longer sufficient for managing resources or recreational uses, and so this alternative did not meet criteria stated in the Travel Management Rule of minimizing damage to natural resource and reducing user conflict. This alternative was Page 46 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

53 eliminated from further consideration because current NFS roads are not sufficient for safe and efficient travel and for administration, utilization and protection of NFS lands as required per 36 CFR (2) (b) of the Rule and as identified in the travel analysis process (TAP). Tonto National Forest Motorized Travel Management Environmental Assessment Page 47 of 269

54

55 This chapter summarizes the physical, biological, social, and economic environments that are affected by the proposed action and alternatives and the effects (or consequences) that would result from implementation of those alternatives. The effects disclosed in this chapter provide the scientific and analytical basis for comparison of benefits and risks of alternatives. The Affected Environment section under each resource topic describes existing or baseline conditions against which environmental effects were evaluated and from which progress toward achieving desired condition can be measured. Environmental consequences form the scientific and analytical basis for comparison of alternatives, including the proposed action, through compliance with standards set forth in the 1985 Tonto National Forest Plan, as amended, and monitoring required by the National Environmental Policy Act of 1969 (NEPA) and National Forest Management Act of The environmental consequences discussion centers on direct, indirect, and cumulative effects, along with applicable mitigation measures. Unless specifically noted under each resource topic, spatial bounds for analysis of direct and indirect effects align with the boundary of the Tonto NF, because this is the area that will be affected by implementation of the decision. These terms are defined as follows: Direct effects are caused by the action and occur at the same place and time as the action. Indirect effects are caused by the action and are later in time, or further removed in distance, but are still reasonably foreseeable. Cumulative effects are those that result from the incremental impact of the action when added to other past, present, and reasonably foreseeable future actions. For the purposes of this analysis, the terms effects, impacts, and consequences are used interchangeably. Effects of the No Action alternative include all existing unauthorized routes, even though those routes will not be added to NFS roads and trails. Effects of action alternatives include only those unauthorized routes added to NFS roads and trails in that alternative. Permitted activities are outside the scope of travel management with the exception of permit zones, which are being discussed in the analysis. Analysis Process This environmental analysis was done at the forest scale. Effects are based on site-specific analysis of unauthorized routes and changes in maintenance levels of NFS roads that impact the availability of those roads or trails for motor vehicle use. In addition, analysis focuses on designation (or non-designation) of areas and opportunities for dispersed motorized camping, and motorized big game retrieval. Analysis of Cumulative Effects According to the Council on Environmental Quality (CEQ) NEPA regulations, cumulative impact is impact on the environment which results from the incremental impact of the action when added to other past, present, and reasonably foreseeable future actions regardless of what agency (Federal or non-federal) or person undertakes such actions (40 CFR ). The cumulative effects analysis area is described under each resource, but at a minimum includes the entire Tonto National Forest. Temporal bounds for this cumulative effects analysis continue Tonto National Forest Motorized Travel Management Environmental Assessment Page 49 of 269

56 from past projects that are currently affecting conditions on the ground through This time period is expected to capture time needed for effects of the majority of known ongoing or reasonably foreseeable future projects to recover to the point where they are no longer measurable. Speculative and unforeseeable future projects, demographic changes, and resource responses to climate change make assumptions about anticipated effects beyond this period increasingly speculative. For all resources, past activities are considered part of existing condition and are discussed under each resource. This is because existing conditions reflect the aggregate impact of all prior human actions and natural events that have affected the environment and might contribute to cumulative effects. The cumulative effects analysis does not attempt to quantify effects of past human actions by adding up all prior actions on an action-by-action basis. There are several reasons for not taking this approach. First, a catalog and analysis of all past actions would be impractical to compile and unduly costly to obtain. Current conditions have been impacted by innumerable actions over the last century (and beyond), and trying to isolate individual actions that continue to have residual impacts would be nearly impossible. Second, providing details of past actions on an individual basis would not be useful to predict cumulative effects of the proposed action or alternatives. In fact, focusing on individual actions would be less accurate than looking at existing conditions, because there is limited, or no, information on environmental impacts of specific past actions and one cannot reasonably isolate each and every action over the last century that has contributed to current conditions. By looking at current conditions, we are sure to capture all residual effects of past human actions and natural events, regardless of which particular action or event contributed those effects. However, there are some past management actions that are likely to continue to cumulatively impact resources, because they are current actions that will carry forward into the future. As a result, these are highlighted for consideration in the cumulative effects analysis. Relevant past, present and reasonably foreseeable future activities considered in the cumulative effects analysis are listed below. Activities such as vegetation management, fuels management, livestock grazing, recreational activities, and other management activities (e.g., weeds treatments) have occurred in the past, are occurring, and are planned (e.g., reasonably foreseeable actions) on the Forest. Past actions that should be considered in cumulative effects include eagle closures, geese closures, and closures due to fire and/or mining activities (i.e., partial closures for BART and Sinclair Fires, Carlotta Mine, V Mine, and Barrett Mine). Management of currently designated wilderness would continue. Volunteer activities that have occurred in the past, are occurring, and are expected to continue in the future (e.g., TRAL, RockStars). Urban development and wildland interface growth will continue on private lands (i.e., Doll Baby, Ponderosa Spring, Haigler Preserve, Colcord Estates, and Las Cendas). Motorized and non-motorized recreational activities are expected to continue to increase on the Forest. In response to air quality concerns, city/town, county, and state restrictions are in place for use of recreational vehicles on unpaved roads and vacant lots in regions of Maricopa and Pinal counties that are failing to attain Federal Air Quality Health Standards set by the Environmental Protection Agency. Page 50 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

57 Reasonably foreseeable future actions include construction of Cragin Pipeline and Water Treatment Plant, Tonto Creek Bridge, future mineral exploration such as Resolution Copper pre-feasibility road work and drill pad, land exchanges such as Cartwright, Tangle Creek, Carlotta Mine, Diamond Point, and Camp Tatatee, and utility construction such as the Mazatzal Substation. Future access through or required by other land jurisdictions may impact public access on the Tonto NF. Major road projects under construction or soon to be under construction before fiscal year (FY) 2011 include: o SR 88 - Apache Trail Retaining Walls (Mesa RD) o SR 87-4 Peaks to DOS S (Mesa RD) o SR 87 - Strawberry to Pine (Payson RD) o SR Little Green Valley (Payson RD) o SR Doubtful Canyon (Payson RD) o SR Milepost 164 road realignment (Globe RD) Major road construction projects planned for FY2011 thru FY 2015 include: o Forest Road (FR) 64 - Control Road (Payson RD) o US 60 - Silver King (Globe RD) o US 60 - Oak Flat (Globe RD) Major road construction projects planned for after FY 2015 include: o US 60 - Superior to Globe (Globe RD) o State Road (SR) Lion Springs (Payson RD) Reasonably foreseeable future recreation projects include development at Seven Springs Day Use Area, Recreation Resident Permits, Needle Rock Recreation Area, and Roosevelt Marina Project. Each resource area may also identify past, present, and reasonably foreseeable future actions relevant to the discussion of cumulative effects for that resource. Relevant actions are those expected to generate effects on a resource that will occur at the same time and in the same place as effects from the proposed action or alternatives. Assumptions and Limitations The following assumptions and limitations provide the foundation for analysis of effects for all resources: Once a Motor Vehicle Use Map (MVUM) is produced for public use, a higher number of violations (i.e., travel off designated routes) may occur during the first few years. Publication of the MVUM combined with signage, user education programs, and enforcement will increase the public s understanding of the restrictions, thereby increasing compliance and limiting most motorized use to designated routes. No further analysis or decision is necessary to continue motor vehicle use of approximately 4,200 existing miles of NFS roads. These decisions were made previously. NEPA analysis is required for any change to current restrictions or prohibitions regarding motorized travel (e.g., prohibiting cross-country travel, changing vehicle class or season of use, and any additions or deletions of roads, trails or areas to the NF system). Changing maintenance levels on existing roads that does not result in changes to current restrictions or prohibitions regarding motorized travel by the public is an administrative decision not subject to NEPA analysis. Tonto National Forest Motorized Travel Management Environmental Assessment Page 51 of 269

58 Proposals to add unauthorized routes to the NF road and trail system require a NEPA decision, regardless of when or how these routes were established. Existing Maintenance Level 2 (i.e., low standard high clearance) roads classified for administrative use only in the action alternatives would not revegetate although use levels are expected to be light. Resource effects from use of various motor vehicle types whether street-legal or not are similar in type and intensity. Unauthorized routes not added to the NFS of roads and trails are assumed to naturally decompact and revegetate at varying rates, which will depend upon site-specific conditions. Full restoration (e.g., decommissioning) or converting routes to other uses will be analyzed as site-specific proposals in the future. Existing NFS roads meet acceptable standards, unless information exists to the contrary. Most NFS roads were either constructed with engineering design and have had maintenance in the past, or treatments have been implemented when problems have been identified. Unauthorized routes added to the NFS will meet standards prior to availability for motor vehicle use. They will be scheduled for maintenance as resource concerns and maintenance needs are identified. Dispersed recreation activities (i.e., activities that occur after the motor vehicle stops, such as camping, hunting, fishing, hiking, etc.) are not part of the scope of the proposed action. The action and analysis focus on motor vehicle use. Attempting to quantify effects associated with potential future unauthorized crosscountry travel is speculative at best; because it is impossible to predict exactly where, when, or how such use would occur. It is therefore assumed for purposes of this analysis that visitors will stay within designated areas or on designated routes. All roads suggested for decommissioning will be removed from the NFS roads database, but not physically changed on the ground until future site-specific analysis is completed. The following assumptions are specific to describing the short- and long-term effects of Alternative 1 - No Action, which represents current management on the Forest. Analysis of this alternative is used to provide a baseline for comparison with the action alternatives (alternatives 2, 3, and 4). Although unauthorized routes would have no status or authorization as NFS facilities, motor vehicle use of existing unauthorized routes would continue under the no action alternative. The Payson and Pleasant Valley ranger districts would not be protected by a permanent prohibition on cross-country motorized vehicle travel. However, it is understood that some areas are less vulnerable to motorized cross-country travel due to terrain, vegetation, and other factors. It is currently prohibited for drivers to operate vehicles off NFS roads in a manner that damages or unreasonably disturbs the land, wildlife, or vegetative resources (36 CFR (h)). Because allegations of resource damage are difficult to substantiate using this prohibition, current difficulties associated with prosecuting users for traveling crosscountry would continue under alternative 1. In contrast, the action alternatives would aid enforcement by prohibiting all motorized use off designated National Forest System roads, trails, and areas, except as displayed on the MVUM, or as authorized by permit. Page 52 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

59 Transportation Facilities This section discussed the effects of the alternatives on management and maintenance of NFS roads and trails (i.e., transportation facilities). It addresses the extent to which the alternatives respond to direction related to transportation facilities in the Tonto National Forest Plan and considers if changes to these facilities provide for adequate public safety and result in a sustainable, affordable system. Affected Environment The current National Forest transportation system has developed over time and to some extent reflects the history of the area. Initially, roads were mainly wagon tracks to reach ranches, farms, and mining claims. With the dawn of the 20th Century and the advent of the automobile, new road and highway construction added to the network of existing roads, and provided improved access to the area. After World War II, cheap 4 wheel drive (4WD) vehicles became available to the public and were initially used by farmers, ranchers, hunters, and fishermen. The 1960s saw more and more 4WD vehicles offering greater comfort and other improvements. Widespread availability of off-road vehicles of various types caused a shift from transportation for purposes of commerce and access to transportation for recreation and exploring. Cross-country or off-route travel is not permitted within Cave Creek, Globe, Tonto Basin, or Mesa ranger districts. In addition, some areas are closed to cross-country travel by previous Forest Order or legislative actions to protect sensitive resources. The Forest Service uses five maintenance levels (ML) to classify roads (see table 18). This analysis refers to passenger car roads (ML 3 to 5) that a typical sedan could drive on and high-clearance roads (ML 2) that are maintained for higher clearance vehicles. Table 18. Road maintenance level (ML) and mileage ML Description Current mileage 1 Closed to vehicular traffic 2, Roads open for use by high-clearance vehicles. Passenger car traffic, user comfort, and user convenience are not considerations. Roads open and maintained for travel by a prudent driver in a standard passenger car. User comfort and convenience are not considered priorities. Roads that provide a moderate degree of user comfort and convenience at moderate travel speeds. Most roads are double lane and aggregate surfaced. Roads that provide a high degree of user comfort and convenience. These roads are normally double lane, paved facilities. 2, Total Forest Service Jurisdiction 5,520 Forest staff utilize the transportation system for a variety of administrative purposes, including resource management (timber, range, recreation, and heritage), law enforcement, and facilities management (e.g., utility, telecommunication, and mining facilities). Ranching, utility, Tonto National Forest Motorized Travel Management Environmental Assessment Page 53 of 269

60 telecommunication and mining permittees and operators depend on the transportation system to maintain their permitted operations. Most remaining roads on the Forest are moderately used by hunters and OHV recreationists. Motor vehicles, particularly OHVs are typically used by hunters for transportation during the hunt and for camping and game retrieval. One such example is FR 203 on Pleasant Valley and Tonto Basin ranger districts, also known as Cherry Creek Road. This road, like many others on the Forest, is a main trunk route with many smaller and lesser traveled routes stemming off it. Many spur roads and old mining roads are commonly found along these trunk routes. Some are decommissioned, others closed, and some are left open and are used as level 2 roads. There are several cases of routes that are classified on the existing road system as level 2 roads that are actually roads that are not used, rarely traveled, and are being naturally reclaimed. Contrarily, there are other routes that are classified as level 1 roads, but are frequently used. Forest Roads 71, 449, 143, 524, 184, which are all level 2 or 3 roads, are examples of trunk lines. On FR 203, the above described discrepancy between existing road system classifications and the on-the-ground situation is quite apparent. The public also travels on some unauthorized routes, as well as system roads that are closed to such use. The Forest has identified and inventoried approximately 590 miles of these routes (see Travel Analysis Process reports for site-specific information (U.S. Forest Service, 2011). The number of unauthorized routes continues to grow as more visitors use the area and travel off road. The Forest Plan identified areas on the Forest which are closed to motor vehicle use, such as designated wilderness areas. The plan also restricted motorized travel within the Sierra Ancha Experimental Forest and the Three Bar Wildlife Area to system roads. All other areas on Cave Creek, Mesa, Globe, and Tonto Basin ranger districts were closed to motorized vehicle use unless posted open. All other areas on Payson and Pleasant Valley ranger districts were open to motorized vehicle use unless posted closed. This analysis will fulfill the 2005 Motorized Travel Rule requirements of review and public involvement for each of the action alternatives and no action. Upon publishing the MVUM for the selected alternative, the new 2005 Motorized Travel Rule regulations will become enforceable on the Forest (36 CFR ). The MVUM would display those routes open to motorized travel by the public, along with types of vehicles and seasons of use. The Forest intends to post route number signs on open routes to correspond with numbers shown on the MVUM. These actions are expected to greatly enhance the ability to enforce travel management decisions. Regulatory requirements for posting prohibitions will no longer be applicable, and problems associated with implementing and maintaining extensive prohibition posting will be eliminated. Hard-copy and electronic versions of the MVUM will be available to forest users and will identify those roads and trails available for motorized use by the public. This is expected to reduce confusion about where motorized vehicle use is legal. In addition, law enforcement officials and forest protection officers will have clear authority for issuing citations for violations of motorized travel management decisions. Although new travel restrictions may be less complex, the changes would require a period of adjustment for forest visitors. Inadvertent violation of new travel restrictions is expected initially, but is also expected to diminish over the first several years after implementation. Having a clear, enforceable travel plan will facilitate the Forest s ability to involve groups and individuals that have expressed interest in assisting the Forest with volunteer patrols to provide an additional presence in the field. Volunteers can provide forest visitors with information about legal Page 54 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

61 motorized use, avoiding activities that have adverse impacts on natural and cultural resources, and reporting violations when they are observed. NFS Road and Trail Maintenance The Travel Management Rule (36 CFR ) requires consideration of the need for maintenance and administration of the designated transportation system. Costs associated with administration of transportation facilities include costs for needed maintenance work that has not been completed for various reasons (deferred maintenance) and costs of maintenance that should be performed routinely to maintain facilities to their current standard (annual maintenance). Routine maintenance includes items like repair of drainage features, such as water bars and repair and/or replacement of signage. Deferred maintenance is work that can be deferred, without loss of road or motorized trail serviceability. Deferred maintenance is incurred when either routine maintenance items or high value items, such as replacing a bridge or culvert, is deferred due to funding constraints. There may be additional costs associated with proposed changes to the transportation system (implementation costs). These costs may be for improving unauthorized routes that will be added to the NF transportation system, costs for proposed safety and resource improvements, costs for changing maintenance levels, and costs for closing routes to use by motor vehicles. The majority of the Forest s annual road maintenance budget goes to maintenance of roads for passenger vehicles (Maintenance Levels 3 to 5). Roads maintained for passenger vehicles bring expectations from the public of greater comfort, speed, and safety. High-clearance vehicle roads are managed as Maintenance Level 2, where the focus is on preventing or mitigating resource damage rather than maintaining roads for public comfort or speed. Because maintenance level (and not permitted use) is used to determine the maintenance budget, restrictions such as season of use and permit zones have no impact measureable impact on maintenance budgets and so will not be discussed further in this analysis. Motorized trail maintenance differs from road maintenance in that the mechanized equipment that can be used for such maintenance is limited due to the narrower width of the trail and the terrain over which the equipment must travel. Therefore, motorized trails require considerable hand work and more time to maintain than an equivalent mile of road. It is important to note that reduction of maintenance costs was not used in evaluating roads and trails for the proposed action or development of action alternatives in this analysis. Funding for road and trail maintenance varies from year-to-year and was determined an unsuitable filter for determining routes that should or should not be designated for public motorized use. The following table shows the funding required to perform routine and periodic maintenance for all existing system roads on an annual basis (table 19). It does not show actual funding. Annual costs shown below would maintain roads in their current condition and begin to address the backlog of deferred maintenance. Because no motorized trails exist on the Forest, no costs are associated with maintaining them. Tonto National Forest Motorized Travel Management Environmental Assessment Page 55 of 269

62 Table 19. Routine and deferred maintenance cost estimates for existing NFS roads by maintenance level Maintenance Level # of Miles Annual Maintenance Needs per mile Annual Cost $12,303 $ 5,757, $ 9,029 $ 1,282, $ 3,357 $ 1,604, ,391 $ 1,949 $ 4,660, ,044 $ 0 $0 Totals 5, $13,304,627 Annual maintenance costs do not reflect the way the Forest actually maintains its road system. Every mile of road does not need to be maintained every year. Rather, roads are maintained on a cyclic basis and in response to safety hazards and situations where resource damage may occur. There are some high-use roads that receive maintenance every year to repair winter and storm run-off damage and damage due to heavy traffic loads. Other roads do not require more than periodic inspection and occasional maintenance to repair damage to the road surface and its structures, eliminate traffic hazards, and prevent resource damage. This is true of most existing roads maintained for high-clearance vehicles (ML 2) and roads and motorized trails proposed for addition to the system under the action alternatives. Table 20 shows how many miles of road received annual maintenance from FY 2001 to FY Maintenance costs for motorized trails are zero because the Forest does not currently have any motorized trails designated. Table 20. Summary of road miles receiving annual maintenance by maintenance level (ML) ML FY 2001 FY 2002 FY 2003 FY 2004 FY 2005 FY ,011 1, , Total 1,538 1, ,666 The average annual road maintenance budget is $2,422,800 (based on FY 2008 to FY 2012). It is important to note that while the annual maintenance budget is insufficient for supporting the Forest s annual maintenance needs, not every mile of NFS road or trail requires yearly maintenance. As shown in table 5, only a percentage of the 3,479 total miles of ML 2 to 5 roads are maintained each year. Therefore, the difference between the annual maintenance budget and annual needs is not as drastic as it appears. For example, in 2003, the estimated annual cost to maintain all NFS roads to standard was about $4.8 million (Cates, et al., 2003). While this amount still exceeds the annual budget of approximately $2.4 million, this is a drastically smaller annual difference. Cooperative maintenance agreements between Gila and Maricopa counties and the Forest help to address our combined road maintenance needs. Approximately 514 miles of NFS roads (264 miles of ML 2 roads, 193 miles of ML 3 roads, 44 miles of ML 4 roads, and 13 miles of Page 56 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

63 ML 5 roads) are included in cooperative maintenance agreements with these counties, for an average yearly cost of $72,175 to the Tonto NF (personal communication with Christine Crawford, 8/19/2011). When we take into account agreements for maintenance with the counties, cost to Tonto NF is reduced by $1,713,477 from $13,304,627 to about $11,591,150 (see table 21). This adjusted average cost still exceeds the average annual road maintenance budget of $2,422,800, though to a lesser degree. Table 21. Adjusted average annual road maintenance costs Category Total Miles on Forest Miles maintained by counties Savings to Tonto NF (difference between maintenance cost per mile & cost paid to county) ML $ 157,339 ML $ 388,916 ML $ 619,686 ML2 2, $ 547,536 Total 3, $ 1,713,477 Total Annual Costs $13,304,627 Adjusted Annual Costs $11,591,150 There are no motorized trails or cross-country areas currently on Tonto NF, so there is no known actual maintenance cost associated with maintaining these facilities. However, for purposes of comparing alternatives, the Tonto NF will use values from other sources. The $6,000 per mile cost for maintaining motorized trails is taken from the Recreation and Scenic Resources Report for the Sandia Ranger District Travel Management Project (Brunswick, 2007). Compliance with Regulatory Direction In compliance with Travel Management regulations at 36 CFR (a) (b) and (c), effects on public safety were considered in developing road and trail additions proposed in all action alternatives. The need for and availability of resources for maintenance and administration of designated roads, trails, and areas were considered, as well as conflicts among different classes of motor vehicle uses on National Forest System lands or neighboring Federal Lands (see Travel Analysis Process route reports for site specific information about each road on every ranger district). Environmental Effects All Alternatives The cost of NFS road maintenance would vary by alternative (table 22, includes roads, motorized trails, and unauthorized routes added to the system as NFS roads and trails). Alternative 2 increases maintenance costs more than any alternative. Alternative 3 would increase annual maintenance needs by approximately $716,000 per year compared to alternative 1, which is the closest annual road maintenance cost to alternative 1. Alternative 4 would be similar to alternative 2. Tonto National Forest Motorized Travel Management Environmental Assessment Page 57 of 269

64 Table 22. Maintenance cost estimates by alternative for NFS roads and trails (based on 2006 figures) Maintenance Level # of Miles Annual Maintenance Needs per mile Annual Cost Adjusted Annual Cost (including savings for county maintenance) Alternative 1 ML $12,303 $5,560,956 $ 5,397,504 ML $ 9,029 $1,236,973 $ 846,337 ML $ 3,357 $1,550,934 $ 930,569 ML 2 2,308 $ 1,949 $4,498,292 $ 3,950,756 Administrative Use Only 960 $ 1,949 $1,871,040 $ 1,871,040 Motorized Trails 0 $ 6,000 $0 $0 Totals 4, $14,718,195 $12,996,206 Alternative 2 ML $12,303 $ 5,868,531 $ 5,705,572 ML $ 9,029 $ 1,318,234 $ 1,156,724 ML $ 3,357 $ 1,302,516 $ 1,146,435 ML 2 2,657 $ 1,949 $ 5,178,493 $ 5,021,154 Administrative Use Only 1,191 $ 1,949 $ 2,321,259 $ 2,321,259 Motorized Trails 233 $ 6,000 $ 1,398,000 $ 1,398,000 Totals 5, $17,387,033 $16,749,144 Alternative 3 ML $12,303 $ 5,597,865 $ 5,439,853 ML $ 9,029 $ 1,209,886 $ 1,055,744 ML $ 3,357 $ 1,282,374 $ 1,125,558 ML 2 2,418 $ 1,949 $ 4,712,682 $ 4,555,343 Administrative Use Only 1,221 $ 1,949 $ 2,379,729 $ 2,379,729 Motorized Trails 42 $ 6,000 $ 252,000 $ 252,000 Totals 4, $15,434,536 $14,808,227 Alternative 4 ML $12,303 $ 5,536,350 $ 5,373,709 ML $ 9,029 $ 1,209,886 $ 1,055,744 ML $ 3,357 $ 1,302,516 $ 1,146,299 ML 2 2,813 $ 1,949 $ 5,482,537 $ 5,325,198 Administrative Use Only 1,113 $ 1,949 $ 2,169,237 $ 2,169,237 Motorized Trails 259 $ 6,000 $ 1,554,000 $ 1,554,000 Totals 5, $17,254,526 $16,624,187 Page 58 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

65 All action alternatives would create maintenance funding shortfalls to a greater degree than alternative 1, mostly because of adding motorized trails to the transportation system. Not performing routine annual maintenance on time may increase the amount of deferred maintenance. If annual maintenance was fully funded, it would still leave a large amount of deferred maintenance that would be prioritized for completion upon identification of danger to the public or potential for severe resource damage. There are also costs associated with managing cross-country travel areas. While the Forest Plan currently allows for cross-country travel in Payson and Pleasant Valley ranger districts, there are no areas currently designated on the Forest to direct cross-country motorized travel to specific locations. Although the Tonto NF does not currently incur costs associated with managing OHV areas, adopting alternative 1 under the travel management rule would require the Forest to incur costs associated with cross-country travel in these districts. Therefore, costs are also estimated for alternative 1. To facilitate this analysis, costs for managing OHV areas are derived from estimates provided during public scoping and are used only to compare potential costs associated with each alternative (see table 23) (Center for Biological Diversity, 2009). This information does not reflect actual costs. Table 23. Maintenance cost estimates by alternative for OHV areas (all alternatives) Alternative Acres allowed for crosscountry travel Annual Maintenance Needs per acre Annual Cost Alternative 1 720,000 $100 $72,000,000 Alternative 2 1,420 $100 $ 142,000 Alternative 3 0 $100 $0 Alternative 4 1,420 $100 $ 142,000 Alternative 1 No Action: Direct and Indirect Effects Alternative 1 would not add any new facilities to the existing transportation system. Maintenance, signing, and improvements of unauthorized routes would not occur because appropriated road and trail maintenance funds are restricted to expenditure for system roads and trails. Initially this alternative requires the lowest expenditure of funds. However, it has potential to increase the need for resource funding to repair damage and degradation caused by continued motorized use of existing unauthorized routes and increase creation of new unauthorized routes through continued cross-country travel, especially in Payson and Pleasant Valley ranger districts where crosscountry travel is not prohibited. Costs associated with this use, although not currently incurred, are estimated to be about $72 million (see table 23 above). Alternative 2 Proposed Action: Direct and Indirect Effects Alternative 2 decreases the mileage of ML3 to 5 roads by 40 miles compared to the current condition. However, cost savings associated with maintenance of these roads would be offset by maintaining an additional 349 miles of ML2 road, 233 miles of motorized trail, and 231 miles of administrative use only road (table 8). Alternative 2 converts 94 miles of existing roads (27 miles from ML2 to 5 and 68 miles from ML1) to motorized trails in transportation system. Additional costs associated with converting existing NFS roads to motorized trails to the system are $517,377 (see table 24). Tonto National Forest Motorized Travel Management Environmental Assessment Page 59 of 269

66 Table 24. Alternative 2 - Maintenance costs associated with motorized trails Category Miles converted to motorized trail ML3 to 5 Roads ML 2 Roads ML1 Roads Administrative Use Only Roads Proposed trail maintenance cost N/A $162,000 $408,00 0 N/A Current maintenance cost N/A $52,623 0 N/A Cost difference N/A $109,377 $408,00 0 Total Additional Cost N/A $517,377 Alternative 2 adds 152 miles of unauthorized routes as roads and 139 miles of unauthorized routes as motorized trails Additional costs associated with adding unauthorized routes to the system are $1,125,656 (see table 25). Table 25. Alternative 2 - Maintenance costs associated with adding unauthorized routes to the transportation system Maintenance Level proposed ML3 to 5 ML2 Administrative Use Only Motorized Trail Miles Total Additional Cost Maintenance cost $3,357 $251,421 $42,878 $828,000 $1,125,656 When looking at the overall adjusted annual costs of maintaining NFS roads and trails as proposed under this alternative, estimated annual road and motorized trail maintenance costs are just over $16.7 million, which is 29 percent greater than the current condition for roads and motorized trails (see table 22 previous). Decommissioning of unauthorized routes is not being considered under this study; therefore, costs associated with decommissioning are not calculated. The additional 773 miles of roads and motorized trails maintained under this alternative will further increase the maintenance return cycle (i.e., roads that are maintained once every five years may be maintained only once every 10 years). Over time, roads may develop public safety or resource damage issues and may need to be evaluated for closure to public motorized use. Major repairs such as resurfacing or new bridges would continue to be funded by special appropriations outside of the Forest s budget. Cross-country motorized travel would be allowed on approximately 1,420 acres, with an estimated annual maintenance cost of $142,000. This is a 99 percent reduction in potential costs compared to alternative 1 ($72 million), if costs were incurred from managing continued crosscountry travel on Payson and Pleasant Valley ranger districts. Alternative 3: Direct and Indirect Effects Alternative 3 decreases the mileage of ML3 to 5 roads by 79 miles compared to the current condition. However, cost savings associated with maintenance of these roads would be partially Page 60 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

67 offset by maintaining an additional 110 miles of ML2 road, 42 miles of motorized trail, and 261 miles of administrative use only road. Alternative 3 converts 42 miles of existing roads (10 miles from ML2 and 32 miles from ML1) to motorized trails in the transportation system (table 26). Additional costs associated with converting existing NFS roads to motorized trails to the system are $235,536, which is about 54 percent less than alternative 2 (see table 26). Table 26. Alternative 3- Maintenance costs associated with motorized trails Converted to motorized trail Proposed trail maintenance cost Current maintenance cost ML3 to 5 Roads ML 2 Roads ML1 Roads Administrative Use Only Roads Total Additional Miles/Cost N/A $60,000 $195,026 N/A N/A $19,490 0 N/A Cost difference N/A $40,510 $195,026 N/A $235,536 No unauthorized routes are proposed to be added to the transportation system, therefore, no maintenance costs would be incurred from these routes under alternative 3. When looking at the overall adjusted annual costs of maintaining NFS roads and trails as proposed under this alternative, estimated annual road and motorized trail maintenance costs are approximately $14.8 million, 14 percent greater than the current condition for roads and motorized trails (see table 22 previous). Decommissioning of unauthorized routes is not being considered under this study; therefore, costs associated with decommissioning are not calculated. The additional 333 miles of roads and motorized trails maintained under this alternative will increase the maintenance return cycle as described under alternative 2, but to a lesser degree. No cross-country motorized travel would be permitted under this alternative, so no costs associated with managing these areas would be incurred. This is a 100 percent reduction in costs compared to alternative 1. Alternative 4: Direct and Indirect Effects Alternative 4 decreases the mileage of ML3 to 5 roads by 79 miles compared to the current condition. However, cost savings associated with maintenance of these roads would be offset by maintaining an additional 505 miles of ML2 road, 259 miles of motorized trail, and 153 miles of administrative use only road. Alternative 4 converts 90 miles of existing roads (37 miles from ML2 to 5 and 53 miles from ML1) to motorized trails in transportation system Additional costs associated with converting existing NFS roads to motorized trails to the system are $438,492 which is about 15 percent less than alternative 2 (see table 27). Tonto National Forest Motorized Travel Management Environmental Assessment Page 61 of 269

68 Table 27. Alternative 4- Maintenance costs associated with motorized trails Miles converted to motorized trail Proposed trail maintenance cost Current maintenance cost ML3 to 5 Roads ML 2 Roads ML1 Roads Administrative Use Only Roads $108,000 $108,000 $318,000 N/A $60,426 $35,082 0 N/A Total Additional Cost Cost difference $47,574 $72,918 $318,000 N/A $438,492 Alternative 4 adds 180 miles of unauthorized routes as roads and 171 miles of unauthorized routes as motorized trails. Additional costs associated with adding unauthorized routes to the system are $1,378,228, the largest amount of any action alternative (see table 28). Table 28. Alternative 4- Maintenance costs associated with adding unauthorized routes to the transportation system Maintenance Level proposed ML3 to 5 ML2 Administrative Use Only Motorized Trail Miles Total Additional Cost Maintenance cost $3,357 $307,942 $40,929 $1,026,000 $1,378,228 When looking at the overall adjusted annual costs of maintaining NFS roads and trails as proposed under this alternative, estimated annual road and motorized trail maintenance costs are over $16.6 million, 28 percent greater than the current condition for roads and motorized trails (see table 22 previous). Decommissioning of unauthorized routes is not being considered under this study; therefore, costs associated with decommissioning are not calculated. As described under alternative 2, the additional 838 miles of roads and motorized trails maintained under this alternative will further increase the maintenance return cycle, more than all action alternatives. Impacts of cross-country travel would be the same as alternative 2. Cumulative Effects All Alternatives Reasonably foreseeable projects proposed on the Tonto NF are listed at the beginning of Chapter 3 ~ Environmental Consequences in the EA. Potential effects on the road system from activities such as urban development, increased visitation, mineral exploration and other construction activities could include temporary increases in the amount of traffic and road use by OHV vehicles and larger vehicles, primarily construction trucks. Much of the cost of any additional road maintenance needed as a result of commercial activities proposed with these future projects would be borne by the purchaser of the commercial product, and any temporary road needed to access the product would be constructed and then decommissioned by the purchaser, when no longer needed. Page 62 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

69 The effects of cumulative activities, when added to the effects of the activities proposed with this project, would result in additional current maintenance needs. There is also potential for increased conflict between commercial and noncommercial road users. Some roads and trails being designated as open for motor vehicle use could have an increased concentration of traffic, while other roads and trails could experience a decreased concentration of traffic. Potential for conflict would be mitigated by the appropriate use of signing and traffic control during implementation of activities. Air Quality Resources Affected Environment The Phoenix metropolitan area, along with parts of Tonto National Forest, falls within the boundaries of Maricopa County. This area has been declared to be in serious non-attainment for PM-10 (inhalable particulate matter having a diameter of 10 micrometers or less). In addition, Senate Bill 1552 defines Area A as: the greater Phoenix metropolitan area, a portion of Apache Junction and a portion of Yavapai County. Area A includes eight-hour ozone, carbon monoxide, and PM-10 nonattainment areas (see figure 4). Tonto National Forest Motorized Travel Management Environmental Assessment Page 63 of 269

70 Figure 4. Air quality non-attainment area in the Tonto NF (only Maricopa County) Page 64 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

71 Topography and weather patterns determine the extent to which airborne particulate matter accumulates within a given area. Weather patterns strongly influence air quality through pollutant dispersion. From an air quality perspective, topography and meteorology of the Forest combine such that local conditions predominate in determining effect of emissions in the area. Regional airflows are affected by surrounding mountains, hills and valleys, which direct surface air flows, cause shallow vertical mixing, and create areas of high pollutant concentrations by hindering dispersion. Inversion layers, where warm air overlays cooler air, frequently occur and trap pollutants close to the ground. Air quality across the Forest is generally considered good due to low population density within the Forest and the remote nature of forested areas. However, the close proximity of Forest boundaries to a major metropolitan area allows for pollutants that are emitted from adjacent areas to be transported onto the Tonto NF. Air quality can also be severely impacted by particulate matter (PM) and other pollutants during seasonal activities, such as large wildfires and seasonal thunder storms that produce strong winds having the potential to transport large amounts of dust onto the Forest from adjacent areas. Fugitive Dust Atmospheric dust arises from mechanical disturbance of granular material exposed to moving air. Dust generated from these open sources is termed fugitive, because it is not discharged to the atmosphere in a confined flow stream. Common sources of fugitive dust include native surface roads, agricultural tilling operations, aggregate storage piles, and heavy construction operations. In the project area, native surface roads are the most common source of fugitive dust on days without wind. The extent of fugitive dust movement with vehicular traffic, on days without much wind, is localized. On moderate-to-high wind days fugitive dust mixes higher into the atmosphere and travels horizontally to a greater extent when any dry soil not adequately vegetated or paved, whether from a roadway or not. Fugitive road dust is a result of motor vehicle use when road surfaces are dry; the force of wheels moving across native surfaces causes pulverization of surface material. Dust is lofted by rolling wheels, as well as by the air turbulence caused by moving vehicles. This air turbulence can persist for several seconds after vehicles pass. The quantity of dust emissions from a given segment of native surface road varies linearly with the volume, and speed, of traffic. Variables, which influence the amount of dust produced, include average vehicle speed, average vehicle weight, the average number of wheels per vehicle, road surface parent material and texture, the fraction of road surface material which is classified as silt (particles less than 75 microns in diameter), and moisture content of the road surface. The impact of a fugitive dust source on air quality depends on the quantity, duration, and drift potential of dust particles injected into the atmosphere. In addition to large dust particles that settle out near the source, considerable amounts of fine particles may also be emitted and dispersed over much greater distances from the source. Theoretical drift distance, as a function of particle diameter and mean wind speed, has been computed for fugitive dust emissions. Results indicate that, for a typical mean wind speed of 10 mph, particles larger than about 100 microns in aerodynamic diameter are likely to settle out within 20 to 30 feet from the edge of routes or other point of emission. Particles that are 30 to 100 microns in diameter are likely to undergo impeded settling. These particles, depending upon the extent of atmospheric turbulence, are likely to settle within a few hundred feet of Tonto National Forest Motorized Travel Management Environmental Assessment Page 65 of 269

72 the route. Smaller particles, (particularly Inhalable Particles, PM-10, and Fine Particles), have much slower gravitational settling velocities and are much more likely to have their settling rate retarded by atmospheric turbulence. In direct response to the inability of Maricopa County to achieve attainment for PM-10, Maricopa County promulgated Fugitive Dust Rule 310 and Maricopa Counties fugitive dust program is a major component of the PM-10 State Implementation Plan for Maricopa County (ADEQ, 2010). Inhalable Particles (PM-10) Sources of PM-10 emissions include wood burning stoves from residential areas; smoke from prescribed burning, and wildfires; re-suspended road dust; vehicle exhaust; and area sources (land clearing, disturbed vacant lots, and agricultural activities). Many PM-10 emissions in the Forest s air basins are due to close proximity to the Phoenix Metropolitan Area and anthropogenic emissions that are associated with windblown dust caused by outflow from seasonal thunderstorms. There are currently two federal non-attainment areas located within the analysis area, Maricopa County and the Hayden Area (formerly Miami/Hayden PM-10 Non-attainment area). The Hayden PM-10 SIP was submitted to EPA on Oct. 16, 1989, and was reviewed and given limited approval in Hayden area monitoring data has shown the area is currently in compliance and has not had an exceedance of the Federal standards since The Maricopa County PM-10 Non-attainment Area was reclassified as a serious PM-10 non-attainment area on June 10, In February 2000, the state submitted a revised State Implementation Plan (SIP) based on new most stringent measures, and requested a five-year extension on the attainment date. Despite the most stringent measures and best available control measures adopted under the revised plan, the area failed to attain federal standards set by the Federal Clean Air Act. This failure triggered a special requirement under section 189(d) of the Clean Air Act that SIP revisions provide for annual reductions of PM-10 of not less than five percent of the most recent emission inventory, until standards are met. There are also two attainment with maintenance plan areas located on private land holdings within Forest boundaries: Payson and Miami. Payson is currently in compliance for PM-10. The Miami area was originally part of the Hayden PM-10 Non-attainment Area. On March 28, 2007, EPA approved ADEQ s request to divide the area and in the same rule EPA determined that the Miami Nonattainment Area met Federal PM-10 standards and qualified for redesignation. On July 25, 2008, ADEQ submitted the Miami Moderate Area PM-10 Limited Maintenance Plan and Request for Redesignation to Attainment. EPA action is pending (ADEQ, 2010). Ozone The Tonto National Forest extends into Maricopa County, which is part of the Phoenix Nonattainment Area for Ozone eight hour according to federal standards. Maricopa Association of Governments completed and submitted the Eight-hour Ozone Plan for the Maricopa County Area June 14, 2005, and EPA action is still pending. Carbon Monoxide In June 1996, EPA classified Maricopa County as a serious CO non-attainment area. On October 9, 2001, EPA determined the Serious Area Carbon Monoxide Plan complete and found that the Phoenix Page 66 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

73 area has obtained the carbon monoxide air quality standards. Approval of plan is pending (ADEQ, 2010). Existing Conditions in Class I Airsheds Tonto National Forest has four Class I areas within its boundaries: Pine Mountain Wilderness, Mazatzal Wilderness, Sierra Ancha Wilderness, and Superstition Wilderness. In July 1999, the EPA adopted the Regional Haze Rule that set a 60-year timeline for states to improve visibility within mandatory Federal Class I areas. This timeline used visibility monitoring data collected from the years 2000 to 2004 to set a baseline and set the goal of Natural Condition by the year All Class I areas located within the analysis area are currently within parameters to meet their 2064 Natural Conditions target. Implications to Tonto NF 1. A portion of Cave Creek and Mesa ranger districts are within Area A, the PM-10 Nonattainment Area, and OHV Program Area. 2. As neighboring cities and land management agencies restrict OHV access and use there will be more pressure on Tonto NF for OHV recreation. 3. Increased OHV use translates into creation of additional unauthorized roads, trails, parking areas, and more dust, and track out (dirt being transported onto the roadway) concerns. 4. It can be anticipated that public complaints will increase in urban interface. 5. To be responsive to ADEQ and Maricopa County air quality rules, increased funding will be necessary for dust abatement treatments on parking areas and to redefine or develop a new forest order with further restrictions. 6. Travel management planning and route designation must be completed. Route (road and trail) designation should consider ADEQ and Maricopa County rules to avoid user and agency citations. 7. Under current ordinances and rules, OHV users could be cited for air quality violations; however, if a user is on an identified route for vehicular travel, the land management agency can be cited for the violation. Environmental Effects Methodology Effects of the alternatives are analyzed to determine potential for motor vehicle travel to cause or contribute to violations of National Ambient Air Quality Standards (NAAQS), degrade air quality, affect Class I areas, or to cause or contribute to visibility impairment beyond the existing conditions. Effects of the alternatives are analyzed to determine potential for motor vehicle travel to cause or contribute to violations of National Ambient Air Quality Standards (NAAQS), degrade air quality, affect Class I areas, or to cause or contribute to visibility impairment beyond the existing conditions. There are no effects anticipated from decisions regarding motorized dispersed camping or motorized game retrieval because the occurrences of these activities is minimal (i.e., 345 motorized big game retrieval trips per year throughout the forest of less than 200 yards) and so effects would not be measurable. There are no additional effects from decisions to designate permit zones or seasonal closures because the effects associated with these routes are already discussed in total mileage for each alternative (see rationale below). Tonto National Forest Motorized Travel Management Environmental Assessment Page 67 of 269

74 Measurement indicators are used to describe existing conditions for the Forest. Measurement indicators will be used in the analysis to quantify and describe how well the proposed action and alternatives meet project objectives and address resource concerns. The following indicators are used to evaluate direct, indirect, and cumulative effects of the proposed action and the alternatives. 1. Miles of routes designated for motorized use in Maricopa County and Hayden PM-10 Nonattainment areas. 2. Miles of routes available to the public for motorized use within Maricopa County Ozone- Eight-Hour Non-attainment Area (Maricopa County area of the Tonto NF). 3. Miles of routes available for motor vehicle use within a one mile buffer area of Class I airsheds. Rationale: Motor vehicles generate dust (particulate matter) and ozone-forming emissions. Miles of routes available for motor vehicle use within or adjacent to air quality-impaired areas are used to compare the emission potential of each alternative to existing levels (for PM-10 non-attainment areas and Class I airsheds). For the ozone eight-hour non-attainment area (Phoenix area), miles of routes are used to evaluate the relative contribution of vehicle emissions to ozone production levels. In this analysis only mileage of roads and trails available to the public were considered. Routes proposed to be restricted to administrative use only were not included. Roads and trails designated for administrative use only were not considered, because route usage is extremely limited and would not result in measurable adverse cumulative effects for particulate matter or ozone-forming emissions. Roads and trails that were proposed to be closed were not considered because only the contribution of emissions generated by motor vehicles is being analyzed. Proposed changes to existing NFS roads, trails (such as changes in vehicle class and season of use), and areas will not be considered further in this analysis. Motorized vehicles already use NFS roads, trails, and areas (i.e., cross-country use is currently occurring in OHV areas even though they are not designated). Allowing or prohibiting use of those roads and areas by different types of vehicles will have no direct, indirect, or cumulative effect on air quality. The PM-10 Attainment Areas with Maintenance Plans listed above (Payson and Miami) and the Maricopa County CO Non-attainment Area will also not be analyzed further. EPA has found that these areas have obtained attainment and the proposed actions are not anticipated to cause or significantly contribute to air quality impairment beyond the existing conditions. All Alternatives: Direct and Indirect Effects The number of vehicle miles traveled annually by forest users is not expected to change in any of the alternatives. As a result, adverse effects to air quality (i.e., effects that would cause or significantly contribute to air quality impairment beyond the existing conditions) are not anticipated for any of the alternatives. Route mileage open for motor vehicle use in the PM-10 Non-attainment Area is listed for each alternative in table 29. This determination is based on the following: None of the proposed alternatives would result in a significant increase or change in concentration of use. The addition of previously unauthorized routes to the NF roads and trails system will redirect motor vehicle users to routes that are maintained to ensure environmental impacts are minimal. Within PM-10 non-attainment areas, motorized vehicle use of native surface unauthorized routes would continue to produce dust at or below current levels. All action alternatives Page 68 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

75 would reduce unauthorized miles of surface routes on the Forest, which would reduce fugitive dust and PM-10 production from current levels. Although emissions from unpaved roads are contributors, they are not a primary source of PM-10 in the Maricopa County PM-10 non-attainment area. Table 17 displays the miles of routes available for motor vehicle use in the Non-attainment Area for each alternative. Table 29 does not include mileage for routes to be closed or available for authorized administrative use only. Table 29. PM-10 Non-attainment Area route mileage open for motor vehicle use by alternative Area Alt. 1 Alt. 2* Alt. 3 Alt 4* Maricopa County Hayden Area Total Mileage * Routes include previously unauthorized roads and motorized trails Adjacent to Class I airsheds, motorized vehicle use of native surface unauthorized routes would continue to produce dust and emissions at or below current levels. These airsheds include Pine Mountain Wilderness, Sierra Ancha Wilderness, Superstition Wilderness, and Mazatzal Wilderness. Table 30 displays the miles of routes available for motor vehicle use within one mile of the Class 1 airsheds; this table does not include mileage for routes proposed to be closed or available for authorized administrative use only. The relative contribution of any alternative to visibility concerns within Class I airsheds is expected to be negligible due to little, if any, change in mileage. Table 30. Route mileage within 1 mile of Class 1 Airshed boundaries for motor vehicle use by alternative Wilderness Area Alt. 1 Alt. 2* Alt. 3 Alt. 4* Pine Mountain Sierra Ancha Superstition Mazatzal Total Mileage * Routes include previously unauthorized roads and motorized trails The Tonto National Forest extends into Maricopa County, which is part of the Phoenix Nonattainment Area for Ozone Eight Hour according to federal standards. Table 31 displays the miles of routes available for motor vehicle use in the Nonattainment Area for each alternative. This table does not include mileage for routes to be closed or available for authorized administrative use only. The increases in mileage shown in the alternatives are the result of the inclusion of previously unauthorized routes into NFS roads and trails. No increase in usage is anticipated by the inclusion of these proposed additions. For all alternatives, direct and indirect effects of vehicle emissions on air quality, specifically ozone generating pollutants, are not anticipated to result in measurable variations from current conditions. Tonto National Forest Motorized Travel Management Environmental Assessment Page 69 of 269

76 Table 31. Ozone non-attainment area route mileage open for motor vehicle use by alternative Alternative 1 Alternative 2* Alternative 3 Alternative 4* * Routes include previously unauthorized roads and motorized trails All Alternatives: Cumulative Effects Present and reasonably foreseeable future actions within the project area that affect local air quality (particulate matter and visibility) include smoke from wildland and prescribed fires and wood burning, dust and pollution from urban development, windblown dust caused by outflow from seasonal thunderstorms, and emissions from motorized vehicle use. In reviewing the Maricopa County promulgated Fugitive Dust Rule 310 and 310.0, the MAG 2007 Five Percent Plan for PM-10 for the Maricopa County Nonattainment Areas and the Eight-hour Ozone Plan for the Maricopa County Area, it was found that fugitive dust currently generated by travel on all unpaved roads (i.e., NF system roads, unauthorized routes) within nonattainment areas is a contributable source of emissions, but not comparable to larger sources of emissions that come from anthropogenic sources from nearby metropolitan areas. Due to the fact that the Tonto NF is the most heavily-used national forest for motorized recreation managing motorized use is particularly difficult. The addition of unauthorized routes into inventoried NFS roads is essential for maintenance and to ensure environmental impacts are minimized. In the foreseeable future, reclassification of routes, restriction of motorized big game retrieval to 200 yards off either side of NFS roads, and elimination of motorized dispersed camping corridors within the Tonto National Forest may result in slight decreases in emissions in dust from the Forest. Recreational OHV use is the primary present and foreseeable future activity within the Maricopa County area (non-attainment for ozone 8 hour) relevant to this discussion of cumulative effects to air quality. Although the Tonto NF is a popular destination for recreational OHV use, the relative contribution of ozone forming emissions in Maricopa County (Phoenix Area Ozone-8-hour Nonattainment Area) is considered to be low because: 691,368 acres out of almost 3 million acres of the Tonto NF are located within the northeastern portion of the Phoenix Ozone Eight Hour Nonattainment Area in Maricopa County. During April through October (the period when ozone most frequently forms) the predominant wind pattern for the Phoenix area is winds out of the southwest. A number of recorded ozone exceedances have been attributed to transport of NOx, VOCs, and CO emissions from locations outside the Phoenix metro area. The majority of the Tonto NF is located to the east and northeast of the ozone nonattainment area, as a result the contribution of ozone forming emissions from motorized vehicle travel within the project area is expected to be minimal (Sherron, 2011). Proposals to add previously unauthorized routes to the NF road and trail system would not result in measurable adverse cumulative effects for ozone production in the non-attainment area, given the addition of routes is not expected to change vehicle miles driven for recreational OHV use. Page 70 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

77 Compliance with Forest Plan and Travel Management Regulations (36 CFR ) All action alternatives comply with the Forest Plan based on the following determination: In compliance with 36 CFR (a) and 36 CFR (b), effects on air quality were considered in the development of proposed alternatives 2, 3, and 4. This determination is based on the following: 1. No action alternative would produce fugitive dust beyond current levels. All of the action alternatives would reduce miles of unauthorized native surface routes on the Forest, which would reduce fugitive dust and PM-10 production from current levels. Therefore, designation of motorized trails and areas would minimize impacts to air resources compared to current conditions. 2. No alternative is anticipated to increase vehicle usage or vehicle miles driven annually, as a direct result there will be no increase in production of PM-10 or ozone forming emissions from current levels. 3. Predominant weather patterns within Maricopa County would result in fugitive dust and vehicle emissions transporting away from the Phoenix and Maricopa County non-attainment areas. General Conformity The Clean Air Act has specific requirements in relation to approving activities on federal lands. The Federal Environmental Protection Agency issued final rules in November 1993 to implement the law. These rules are under the title of Determining Conformity of General Federal Actions to State or Federal Implementation Plans and are found in 40 CFR Part 93. Rules under 40 CFR Part (Prohibitions) establish that: (a) No department, agency, or instrumentality of the Federal Government shall engage in, support in any way, or provide financial assistance for, license, or permit, or approve any activity which does not conform to an applicable implementation plan. (b) A Federal agency must make a determination that a Federal action conforms to the applicable implementation plan in accordance with the requirements of this section before the action is taken. This means that some sort of determination is necessary for deciding if actions proposed in this EA conform to the State s implementation plan. Because actions proposed in this EA are not related to federal transportation plans, programs or projects developed, funded, or approved under title 23 U.S.C or the Federal Transit Act (49 U.S.C et seq.), we are not required to comply with Transpiration Conformity Regulations (applicable to highways and mass transit). Instead, we are complying with the General Conformity Regulations. General Conformity Regulations play an important role in helping states and Tribes improve air quality in those areas that do not meet the National Ambient Air Quality Standards. Some Federal actions are exempt from General Conformity Regulations. These actions include actions covered by transportation conformity, actions with clearly de minimis emissions, actions specifically listed in rule, or actions covered by a Presumed to Conform demo (approved list). The Tonto National Forest Motorized Travel Management Environmental Assessment Page 71 of 269

78 actions in this EA are not covered by transportation conformity, are not listed in the Rule, and are not on the approved list. However, the actions proposed in this EA have clearly de minimis emissions. This means that our actions are so small, or minimal in difference, that it does not matter or the law does not take it into consideration. This section shows how our proposed actions are determined to be de minimis. Additionally, although the Air Quality Conformity analysis and determination process required by the Clean Air Act is separate from the EA process required under the National Environmental Policy Act, these two processes may be and have been combined within this document. The public may comment not only on the EA, but on this conformity analysis process as well. A conformity determination is required for each criteria pollutant or precursor where the total direct and indirect emissions of the criteria pollutant or precursor in a nonattainment or maintenance area caused by a Federal action would equal or exceed any of the rates in paragraphs (b) (1) or (2) or of the General Conformity Rule (1990 Clean Air Act Amendments) (Section 176 (c) of the Clean Air Act (part 51, subpart W, and part 93, subpart B). For two non-attainment areas in Maricopa County, ozone and carbon monoxide, the State Implementation Plans list emissions from dust and OHVs as non-significant. Direct and indirect ozone and carbon monoxide emissions that would result from implementation of alternatives 1, 2, 3, or 4 are considered insignificant by applicable State implementation or maintenance plans, so they are presumed to conform, and no formal conformity determination is necessary. Maricopa County is in a serious non-attainment area for ozone PM-10, and so we use rates in paragraph (b) (1). For this pollutant, in a serious non-attainment area, the conformity de minimis emission level is 70 tons per year. This means that actions that contribute less than 70 tons per year of PM-10 are considered insignificant, are presumed to conform, and no formal conformity determination is necessary. All PM-10 nonattainment or maintenance areas that encompass the Tonto NF are presumed to conform to applicable state implementation or maintenance plans by paragraph (c)(1) of of the General Conformity Rule. This paragraph states that a conformity determination is not required for Actions where the total of direct and indirect emissions is below the emissions levels specified in paragraph (b) of this section. Emissions of PM-10 were calculated for alternative 4 in the Maricopa County Serious Nonattainment Area. Alternative 4 was chosen to determine conformity, because it has the most miles of roads and trails open to motorized vehicle use within the nonattainment area. Therefore, for purposes of this analysis, it is assumed that fewer miles of roads available for motorized travel in alternatives 1, 2, and 3 will result in fewer emissions and if alternative 4 conforms, then so will the remaining alternatives. The following calculations 8 were used to determine Annual PM-10 emissions for the Maricopa County PM-10 Serious Nonattainment Area. First, the size-specific emissions factor determined by vehicle weight in pounds divided by vehicle miles traveled (E) was determined by the following equation: 8 From AP 42 Chapter 13, Miscellaneous Sources Page 72 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

79 E = k(s/12) a (S/30) d -C (M/0.5) c The variable (or letters) in this equation have specific measurements or values, as shown below. Variable Definition k s a S d M c = Empirical constant taken from AP-42, Compilation of Air Pollutant Emission Factors, U.S. EPA, Table Constants for Equations 1b. For PM-10, this value is 1.8. = Surface material silt content of the soil. The average silt content based on the Terrestrial Ecosystem Unit Inventory (TEUI) for Tonto National Forest lands in Maricopa County is 22.3 percent or = Empirical constant taken from AP-42, Compilation of Air Pollutant Emission Factors, U.S. EPA, Table Constants for Equations 1b. For PM-10, this value is 1. = Mean vehicle speed. Estimated at 45 mph, an estimate taken from Review of General Air Quality Conformity Applicability by the Bureau of Land Management, Aqua Fria National Monument and Bradshaw-Harquahala Resource Management Plans and Environmental Impact Statement (11/2009). The assumption of each vehicle traveling 45 mph is likely very high (most vehicles travel slower than this on unpaved roads), resulting in a conservative value for the air quality calculation. = Empirical constant taken from AP-42, Compilation of Air Pollutant Emission Factors, U.S.EPA, Table Constants for Equations 1b. For PM-10, this value is 0.5. = Surface material moisture content of the soil. The average surface moisture content from 8 sample locations for the Tonto National Forest lands in Maricopa County is 4.3 percent or = Empirical constant taken from AP-42, Compilation of Air Pollutant Emission Factors, U.S. EPA, Table Constants for Equations 1b. For PM-10, this value is 0.2. C = Emission factor for 1980's vehicle fleet exhaust, brake wear and tire wear (0.0047) from AP-42, Compilation of Air Pollutant Emission Factors, U.S. EPA, Therefore: E = 1.8(0.223/12) 1 (45/30) (0.043/0.5) 0.2 AP estimates re-suspended dust coming from the tires of a light 4-wheeled off-highway vehicles. Since off-road motorcycles only have two wheels, the value for E was divided by two for ORM. Next, the value for E was entered into this equation: Tonto National Forest Motorized Travel Management Environmental Assessment Page 73 of 269

80 E (ATV + ORM) * Dailey VMT (ATV + ORM) * 365 days PM-10 tons/yr = 2,000 lbs The variable (or letters) in this equation are defined as follows: Variable E = Definition Size-specific emissions factor determined by vehicle weight in pounds divided by vehicle miles traveled (from previous equation). ATV = All-terrain vehicles ORM = Off-road motorcycles VMT = Vehicle miles traveled. Daily VMT (VMT D) is determined by multiplying the average daily number of OHVs by the distance traveled. Daily VMT = ADT * D The variable (or letters) in this equation are defined as follows: Variable Definition ADT = Average daily number of off-road vehicles (4.06 ATVs per day off-road motorcycles per day). D = Off-road vehicle distance traveled miles (25 miles, from an ADEQ field observation and considered to be an upper limit). For ADT, numbers are derived from National Visitor Use Monitoring (NVUM) for the Tonto National Forest fiscal year (FY) The NVUM reported 5.7 million visitors for FY 2008 with 2.4 visitors per vehicle. According to ADEQ field observations, for every 1,100 vehicles, there are 14 ATVs and 8 off-road motorcycles. This means that there were 2,375,000 vehicles visiting the Forest in FY 2008 or 6,506 vehicles daily transporting 83 ATVs and 47 off-road motorcycles. Using the ratio of total miles publicly accessible in the Tonto NF (5,500 miles) in alternative 4 and the miles of roads and trails open for motorized use in the Maricopa County PM-10 Serious Nonattainment Area (271.6 miles) under this alternative, the assumption was made that 4.9 percent of the total daily vehicles are using roads within the PM-10 Nonattainment Area. This means that of the daily 83 ATVs and 47 off-road motorcycles, 4.06 ATVs and 2.30 off-road motorcycles are assumed to be within the PM-10 Serious Nonattainment Area. Page 74 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

81 Therefore, Daily VMT is: = 4.06 * 25 (ATVs) 57.5 = 2.30 * 25 (off-road motorcycles) Referring back to the original equation for PM-10 tons/year: PM-10 tons/year for ATVs = PM-10 tons/year for ORMs = 2.66 * * 365 days 2,000 lbs 1.33 * * 365 days 2,000 lbs PM-10 tons/year = PM-10 tons/year ATV PM-10 tons/year ORM This value for PM-10 emission is less than the de minimis emission level of 70 tons per year. Therefore, the alternatives have been analyzed under section 176 (c) of the Clean Air Act and all actions have been determined to conform with applicable state implementation plan requirements for attaining applicable ambient air quality standards. In addition, cumulative air quality impacts are not anticipated to result in, or contribute to, exceedances of National Ambient Air Quality Standards (see discussion under cumulative effects for air quality). Emissions from all of the alternatives will be minimal. No alternative exceeds the de minimis emission levels and therefore, no formal conformity determination is necessary. Archaeological, Historical, and Cultural Resources Affected Environment The Forest currently contains 5,523 miles of existing roads, many of which, owing to high archaeological site density on the Tonto NF, have inevitably impacted a variety of cultural resources. Many sites on the Forest have already been damaged by OHV cross-country travel and dispersed motorized camping, evidenced by unauthorized roads, trails, tire tracks, fire rings, and trash being present. Many of these roads and trails originated in the late 19 th century and have been in continual use ever since. Many more were built prior to the passage of the National Historic Preservation Act of 1966, and so were constructed without regard for their potential impacts to archaeological or historic sites. As a result, hundreds of archaeological sites on the Tonto NF have been damaged by past road construction and maintenance activities. The Programmatic Agreement between the Advisory Council on Historic Preservation, Forest Service Region 3 and the State Historic Preservation Officers of New Mexico, Texas, Oklahoma, and Arizona (U.S. Forest Service,1994, as amended 2003, hereafter referred to as the Programmatic Agreement or R3PA) recognizes this situation and accepts that continued use and routine maintenance of roads and motorized trails, even where there are known historic properties or cultural resources does not constitute an adverse effect to these properties; because the proposed work is clearly to be confined to previously disturbed contexts. Tonto National Forest Motorized Travel Management Environmental Assessment Page 75 of 269

82 Any maintenance or modification outside of their existing prisms or that would increase the existing disturbance is subject to Section 106 of the National Historic Preservation Act and so must avoid or mitigate any additional damage. Existing roads, even those currently classified as Level 1 (closed) but proposed for reclassification at a higher maintenance level as open, are covered under the R3PA. As such, reclassification of existing roads will not be addressed in this analysis. This includes reclassification of vehicle class and maintenance levels, assignment of roads to administrative only status, assignment of roads to permitted use only in restricted access zones, and transition from an existing NFS road to a motorized trail. A protocol for Travel Management Route Designation was developed in 2006 in consultation with the Tribes, SHPOs and Advisory Council as Appendix I to the Programmatic Agreement: Standard Consultation Protocol for Travel Management Route Designation hereafter referred to as the Protocol (U.S. Forest Service, 2006a). It holds that a decision to designate a system of roads and trails already open for motor vehicle use will have little or no potential to affect historic properties. New roads, trails, and other vehicular access-related facilities and areas not already incorporated into the designated NF road system, such as unauthorized routes, are to be treated as new construction and are therefore subject to inventory, evaluation, consultation with Tribes and the State Historic Preservation Officer (SHPO), and requirements to avoid or mitigate such impacts under Section 106. For cultural resources, then, the application of the rules of the Protocol serves to implement the minimization criteria of the Travel Management regulations at 36 CFR (a) and (b) by reducing or eliminating impacts prior to designation and inclusion in the MVUM. Prior to enactment of the Archaeological Resources Protection Act of 1979 (ARPA) and creation of the Arizona Site Stewards volunteer monitoring program in the 1980s, vandalism and looting of archaeological sites in central Arizona was widespread and highly destructive, but was considered acceptable behavior. At least half the archaeological sites in the recorded inventory of the Tonto National Forest have suffered to one extent or another, some to the point of having been virtually destroyed by looters. However, since then, enforcement of the new law and its stiff penalties and the widespread use of the Site Stewards program have decreased vandalism and looting considerably, almost to the point of being eliminated, at least in heavily-visited parts of the Forest. Occasional incidents continue to be reported and investigated, but now tend to be located in more remote parts of the Forest and almost always involve casual, unfocused digging in sites that have already been extensively looted. Many years of working with the Arizona Site Stewards program and our own law enforcement officers have demonstrated that vehicular access near or to archaeological sites greatly contributes to their protection, as does frequent visitation by the public. Vandalism to sites within a few hundred meters of existing roads continues sporadically, but today many of those same roads, including those originally pioneered by pothunters, are used to monitor and protect those sites from further damage. Archaeological survey, conducted in 2010 under contract for this analysis (Roberts & Mitchell, 2010), has been completed for a 50 foot (15 meters) wide corridor along 170 unclassified, unauthorized routes proposed at that time for designation as system roads and motorized trails, along with three cross-country travel areas proposed for designation on Globe and Mesa ranger districts. This inventory was conducted under the guidelines established by the Protocol. It identified a total of 86 archaeological sites ranging in size and complexity from simple artifact scatters to multi-room masonry structures. Included were several historic sites and one or two that may reflect the use of the area by Yavapai and/or Apache in the last several centuries, but the vast majority was prehistoric, Page 76 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

83 related to the Hohokam archaeological culture and dating to various times between approximately 800 and 1400 A.D. Environmental Effects Access can be both beneficial and detrimental depending on what aspects of preservation, management, and use of cultural resources are under discussion. The relationship between cultural resources archaeological and historic sites, sacred sites and traditional use areas and motorized access routes has always been one of balancing costs and benefits. The costs can be direct impacts from the construction or use of a road or trail or they can be indirect, resulting from activities allowed or enhanced by motorized access. In turn, these can be foreseeable and legitimate such as hunting and camping, or unforeseeable and illegal, such as the vandalism and looting of archaeological sites. The benefits are generally indirect, and derive from the enhanced ability to monitor, manage, and protect archaeological and historic sites and provide access for Tribal people to sacred and traditional use sites. The primary distinction between different kinds of routes in this analysis is between roads and motorized trails. In many ways, the physical distinction between them is minor, a dichotomy between routes that are more or less than fifty-inches wide. In terms of their direct impacts on resources, the distinction can also be very minor. However, when analyzing the differences between them in terms of indirect impacts, they become quite distinct. A road provides a means of transportation for vehicles of various sizes and capacities, vehicles that allow their operators to take supplies and equipment with them that are related to needs other than just driving on the road. Roads take you places and allow you to engage in other activities camping, hunting, rockhounding, prospecting, wood cutting, etc. Because of this, roads carry with them a wider zone of indirect impact. Motorized trails, on the other hand, are recreational facilities in and of themselves. The vehicles used on motorized trails are small and have very limited capacity for taking along the supplies and equipment needed for other activities not directly associated with operating the vehicle on the trail. These small vehicles are also quite personal, and being unenclosed, offer limited capability to secure any additional equipment that may be strapped or otherwise attached to them. Recreationists that operate on motorized trails generally consider that activity to be the recreation experience. Their destination is the trail and once on the trail their concerns are focused on enjoying the ride and getting back to the parking lot safely. They don t use the trails to go places or to accomplish other recreational or economic activities and they don t stray far on foot from their vehicles, if they do stop along the way. Because of this more focused use of motorized trails as recreational facilities and not as access routes, they tend to carry a much-lower risk and a much-narrower zone of indirect impact. Nevertheless, without use restrictions, motorized trails have a tendency over time to become roads, especially since the advent of the UTV or side-by-side OHV vehicles that bridge the gap in size between ATVs and Jeeps. A road can take you to a destination. A dedicated motorized trail is a destination. Therefore, roads tend to bring more potential impacts to cultural resources than trails, while at the same time also offer greater potential for monitoring, protection, and management. Unrestricted off-road motorized travel involves physical contact of tires or other vehicle components traveling over or through archaeological sites or traditional use areas, altering the ground surface and any archeological materials on the site. Repeated and even single episode cross-country excursions Tonto National Forest Motorized Travel Management Environmental Assessment Page 77 of 269

84 may crush, displace, and/or destroy cultural materials (i.e., artifacts, features, and traditionally-used plants), and damage or destroy significant information that may contribute to our understanding of history. OHV use in areas with sensitive or erosive soils can create tracks and ruts that may in turn lead to rill and gully formations, which could further damage sites. Similar effects can also occur both from the construction and use of designated roads and trails and from the physical closing of such routes, particularly closing established routes that have already impacted archaeological sites when they were originally constructed. Impacts from use or closure of designated routes, however, are considerably less that those associated with unrestricted motorized travel simply because they are known and defined and their use is confined and subject to laws, protocols, and mitigation. With unrestricted cross-country motorized travel, none of these protections can be enforced. In the case of cultural resources which are considered eligible for inclusion in the National Register of Historic Places, direct effects can also include alterations of a property's setting or context. Unrestricted and uncontrolled motorized vehicular use off NFS roads that results in erosion and changes in vegetative composition and density is an example of how recreational use can alter the setting and geographic context of sites. In the case of traditional cultural properties and sacred places, additional considerations may include alterations in the presence or availability of particular plant species. Direct impacts from motor vehicle recreation are generally considered to be those resulting from construction, use, and maintenance of facilities, such as campgrounds, picnic areas, roads, and parking lots. In this context, that would include the designation of an unauthorized route into the NF road and trail system and the use of that road or trail, if it passes through the boundary of an archaeological or historic site or a traditional use or sacred place. It would also include designation of areas which allow cross-country motorized travel, unlike designated routes. Without some form of protective measures such as those identified in the Protocol, any cultural resource within a designated area would be subject to damage up to and including its total destruction either from the direct effect of vehicular impacts or indirectly from erosion. Given the overall site density on the Forest, any area of any size will likely contain archaeological sites and/or other cultural resources that would be impacted, if they were to be designated. Impacts associated with changing road maintenance levels, changing an existing road to a motorized trail, changing a road to administrative use only, or restricting access by season of use or by permit zone are not considered sufficiently different to warrant separate analyses for each category outside of the discussion of total road and motorized trail mileage. Indirect impacts to cultural resources from construction, use, or designation of motorized travel routes can include modern trash contamination and removal and displacement of surface artifacts, looting, and vandalism. These effects are also seen in areas where no motorized access is allowed. It is often stated as an assumption that increased motorized access to an area always results in increased looting and vandalism of archaeological sites. Initial analysis of unauthorized routes proposed for designation reflected this assumption, including categories of concern based on proximity to roads with the further assumption that sites closer to roads are more at risk than those at a greater distance (see appendix L of the TAP Report). However, increased visitation and access by both heritage professionals and law enforcement officers, not to mention volunteer monitors from the Arizona Site Stewards program, has brought about a sharply Page 78 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

85 reduced incidence of looting and vandalism of archaeological sites on the Tonto National Forest since the passage of ARPA in In 2010, a condition and damage assessment of 96 previously-recorded archaeological sites on the Tonto National Forest was conducted as a volunteer project for the Forest by the Center for Desert Archaeology (CDA) to provide data for this analysis. The sites selected for this study were primarily Priority Heritage Assets (PHA), a subset of the 10,000 site Forest inventory of sites that are monitored by the Forest on a regular basis owing to their scientific value, extensive past damage from natural forces and, especially, from vandalism and looting, and their needs for stabilization and repair. The analysis indicated that 80 percent of the vandalized sites were located within 200 meters of a Forest System road. The study went on to recognize the mitigative effects of public education, monitoring, law enforcement, and signage and the changes that have taken place over the years relative to vehicular access to archaeological sites. In concluding, it recommended roads and routes located within 200 meters of a significant archaeological site (e.g., National Register of Historic Places listed property or designated Priority Heritage Asset) should be closed. However, looking at the Forest inventory of archaeological sites for two ranger districts, Cave Creek and Mesa, which have the highest levels of vehicular use and highest density of unauthorized routes combined with extensive wilderness areas, it would appear that a correlation between vehicular accessibility and vandalism is not as straightforward as the CDA conclusions might indicate. The archaeological site inventory files were examined to identify sites comparable to those listed as Priority Heritage Assets that are located either within designated wilderness or more than a mile from any roads. Even in designated wilderness areas and in places far from motorized access, as much as 75 percent of those sites have been vandalized. Apparently, the key to predicting vandalism and looting is not motorized access per se, but the size and visibility of the archaeological site itself. Given this history and the conclusion from the CDA study that most of the vandalism they observed was decades old, it would appear that both concepts of accessibility and attitudes toward vandalism and looting archaeological sites have changed over the years. Sites have been looted everywhere on the Forest, even in those areas perceived as inaccessible today, regardless of the presence of motorized access. Likewise, during the period when looting was most rampant on the Forest, the original motorized access to sites was usually cross-country travel to sites that attracted pothunters and thus attracted road building to gain access to them. In the last 30 years, the only new road we have found that was created specifically to access an archaeological site was not created by looters, but by teenagers looking for a secluded place to party that just happened to have an archaeological site present. Despite any apparent correlation between roads and vandalism and despite a strong association between the two in the past, the fact remains that cross-country travel has always been and remains a much greater threat to archaeological sites than established roads. As for motorized trails, they tend to be the focus of the recreational activity associated with them motorcycle and ATV riders use the trails for their recreation experience rather than using the trails to access other areas. As long as they are confined to established motorized trails rather than unrestricted cross-country travel, indirect effects to archaeological sites are minimized. Indirect effects from the closing of motorized routes can include a reduction in the agency s ability to protect sites from vandalism and looting. They can also reduce accessibility of traditional resources and sacred areas to Tribal people. All four of the alternatives examined here involve closing some existing routes. Alternatives 2, 3, and 4 all include designation of previously unauthorized routes and alternatives 2 and 4 further include Tonto National Forest Motorized Travel Management Environmental Assessment Page 79 of 269

86 authorization of areas where motorized use would be concentrated and not restricted to specific routes. While potential direct and indirect effects are discussed below, by applying guidelines established by the Protocol, it is not expected that there will be any adverse effects to cultural resources. Indeed, all of the alternatives provided, except the No Action Alternative, greatly reduce the risk of damages to cultural resources from off-road vehicles. To comply with the Protocol, all newly designated roads, trails, corridors, and areas must be inventoried for cultural resources. If any are found, the protection measures identified in the Protocol must be considered to mitigate any impacts. Documentation that either the route does not encounter any heritage resources or that any adverse effects have been resolved requires a signed archaeological clearance, just like any other ground-disturbing activity under the terms of the R3PA. Under the terms of the Protocol, before any route can be added to the MVUM, any impacts that route may have inflicted on cultural resources will need to be mitigated and their protection established by an archaeological clearance signed by the Forest Supervisor. Any routes or areas that affect cultural resources and that have not had those effects resolved by protection measures of the Protocol will not appear on the MVUM and thus will not be open to the public. Mitigation of impacts to cultural resources resulting from the designation of motorized routes is best accomplished by avoidance. It can also be achieved by maximizing opportunities to localize recreational activities, especially those involving motor vehicle use, to those areas where cultural resources are least likely to be affected. Specific recommendations regarding particular routes will be developed upon analysis of the survey data and field inspection of site locations; routes may be realigned and relocated to avoid sites or they may, if potential impacts are too great or the terrain does not effectively allow relocation, be dropped from the proposal. Protection measures identified in the Protocol are as follows: Dropping proposed motorized road, trail or area designations to avoid or reduce direct or indirect effects on historic properties; in fact, routes identified by archaeological survey as having adverse effects on cultural properties will not be identified on the MVUM as being available for motorized use. Re-routing or modifying designated roads or trails to protect historic properties. Rerouting or modifying roads will be subject to Section 106 compliance prior to ground disturbance, as provided for in the Programmatic Agreement. Use of temporary emergency closures, if needed, while unacceptable effects on historic properties are addressed. Revision of designations, if determined necessary to protect historic properties from adverse effects. Monitoring to ensure that impacts to historic properties are not occurring or that protection measures are working. Leaving roads, trails, areas off the map distributed to the public until after all Section 106 compliance needs are met. Implementation of the Protocol will protect cultural resources from direct impacts. Protection from some of the unforeseeable and often contradictory aspects of the indirect impacts that may attach to motorized access requires some additional consideration. Therefore, in addition to specific Page 80 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

87 requirements of the Protocol, known archaeological sites throughout the Forest are monitored periodically during the day-to-day activities of Forest personnel. They will continue to monitor sites throughout the Forest, with priority being given to sites listed on the National Register, sites identified as Priority Heritage Assets, recognized Traditional Cultural Properties, sites subject to high visitation, sites with erosion problems, and sites near areas of intensive public use such as concentrated areas of dispersed camping. The volunteer program run by Arizona State Parks Department known as the Arizona Site Stewards, also routinely monitors sites on the Forest, reporting to both the Forest Archaeologist and Forest law enforcement officers. Where appropriate and as funding allows, sites may also be signed with ARPA warnings and notices that they are under Site Steward surveillance; such signs are already in place on many sites throughout the Forest. Roadside Parking for Motorized Dispersed Camping Roadside parking is allowed under all alternatives. Despite the fact that impacts from motorized dispersed camping activities may be significant depending on the type of site and its environmental context, roadside parking is exempted under the Protocol. This has been the traditional way that forest users have camped on the majority of the Tonto NF. Because this activity typically takes place in heavily disturbed areas along edges of existing roads, there are few new threats to cultural resources. However, if areas are found during routine monitoring where roadside parking is damaging cultural resources, then those areas may be designated as closed to parking. Unauthorized routes that are to be designated can also be closed to parking, if archaeological inventory identifies the potential for impacts that cannot be resolved under the protection measures established in the Protocol. Therefore, since the impacts and procedures for mitigating them are the same across all alternatives and have been exempted by the Protocol, they will not be discussed further in this analysis. Motorized Big Game Retrieval Although specific documentation of impacts to sites due to motorized big game retrieval is not readily available, it is unlikely that this activity in and of itself will have a significant effect on archaeological sites. The short-term and non-repetitive nature of the impact, relatively few permits issued, limited duration of hunting seasons, and typically low hunter success rates on the Tonto NF, combined with a natural tendency to avoid riding or driving over difficult obstacles such as collapsed prehistoric masonry walls, suggests that the probability of damage to archaeological sites resulting from this activity would be low. Nevertheless, unrestricted cross-country motorized travel always has a potential for impacting archaeological sites, degrading traditional use areas, and disrupting traditional activities. Though it may be difficult to accurately quantify, motorized big game retrieval as an activity, is a potential source of impact, especially where it opens up areas to legal cross-country motorized travel that were previously restricted. Alternative 1 - No Action: Direct and Indirect Effects Current conditions include a total of 3,358 miles of Forest system roads maintained for both high clearance and passenger vehicles with cross-country motorized travel restricted to the higher elevation Payson and Pleasant Valley ranger districts. There are also 960 miles of administrative use only roads and 590 miles of unauthorized routes that have been inventoried across the Forest, many of which are currently in use. Continued cross-country travel on Payson and Pleasant Valley ranger districts will result in continued damage to cultural resources. Enforcement of restrictions on Tonto National Forest Motorized Travel Management Environmental Assessment Page 81 of 269

88 uncontrolled motorized travel off system roads on other ranger districts will reduce impacts to cultural resources. The capability of the Forest to monitor and protect archaeological sites from vandalism and looting and access to traditional resources and places of significance to Tribes will remain unchanged. Alternative 2 - Proposed Action: Direct and Indirect Effects Designations of unauthorized routes and proposed cross-country areas are undertakings subject to compliance with the inventory, consultation, and protection requirements of the Protocol as described previously. Under this alternative, approximately 291 miles of unauthorized roads and trails (356 routes) would be added to the system and designated for motor vehicle use as described in table 1 above. The resulting motorized route system would total 3,900 miles of NFS roads and trails (plus an additional 1,191 miles of roads for administrative use only) and would restrict cross-country travel to designated areas totaling 1,417 acres. In addition, cross-country travel would be permitted for motorized big game retrieval within a 400-yard corridor along 3,377 miles of NFS roads and 231 miles of NFS trails (418,432 acres). Approximately 157 miles (154 routes) of 50-foot wide corridors along those unclassified routes proposed for designation as roads or motorized trails in this alternative were inventoried by archaeological survey (Roberts & Mitchell, 2010). An additional 134 miles (202 routes) still require inventory and evaluation before they can be added to the MVUM. This additional archaeological survey, under the terms of the Protocol, will be phased in as funding becomes available. The surveyed routes were predominantly proposed for motorized trails rather than roads (113 trails and 41 roads). About 27 percent of the road surveys encountered sites; only about 16 percent of the trail surveys did. This is largely due to the fact that the bulk of the proposed motorized trail routes are in the low desert areas, where site density is particularly low for the Tonto National Forest. These routes will also be held from inclusion in the MVUM pending further analysis and the application of protective measures or they will be eliminated from the proposal, if no suitable mitigation is feasible. The actual incidence of damage to sites identified by the survey is fairly low (only about 13 percent of the surveyed routes impacted archaeological sites), with most of the vehicular impacts associated with those routes that began as cross-country ATV and motorcycle trails. Since many of these routes have been in use for years, this does not suggest that their presence has led to any marked increase in vandalism. It is unlikely that designation of the proposed unauthorized routes will have a significant direct impact on cultural resources, particularly once protective measures are applied or the affected routes are dropped from consideration. The proposed action also includes designating four areas 9 where vehicular access would not be confined to specific routes, but would allow cross-country use on: two small tot lots (small 9 The Pipeline area location identified in the original Proposed Action sent out for scoping in the fall of 2009 was also surveyed (Roberts & Mitchell, 2010; Howe & Nez, 2010). The survey identified 28 sites. Given the nature of cross-country motorized travel, avoidance of sites would be impossible. As a result of the survey, the Pipeline area was removed from the original proposed action made available for public comment in October Page 82 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

89 unrestricted areas primarily used for parent-supervised ATV riding by children or for new operators to be trained and practice their skills before heading out on their own) on Mesa RD (3-acre Sycamore tot lot and 6-acre Rolls tot lot), a 17-acre Golf Course area on Globe RD, and a 1,391-acre Sycamore area on Mesa RD. Archaeological survey has been completed on the tot lots and the Golf Course area. No archaeological or historic sites were found within the APE for the tot lots or the Golf Course area. Sycamore OHV area will require archaeological survey, at least of those portions that are not active wash channel. As a result, it will not be available for inclusion on the first published MVUM, until the survey and any necessary mitigation is complete. Restriction or reduction of uncontrolled cross-country motorized travel will reduce impacts to cultural resources. Decommissioning unauthorized routes is outside the scope of this analysis. The inclusion of authorized cross-country travel corridors for motorized big game retrieval allows the practice to continue on the high elevation ranger districts, at least to a certain extent (the 400-yard corridors along the roads during elk and bear seasons); but while the overall area in acres may be reduced for the Forest as a whole, it allows legal cross-country travel on parts of the low elevation ranger districts that were previously restricted from such use. The proposed motorized big game retrieval corridors have not been inventoried for cultural resources. Since they are designated as areas wherein cross-country travel is allowed, they are subject to the same requirements as the proposed designated OHV areas. As a result, they will not be available for inclusion on the first published MVUM, until they have been surveyed and any necessary mitigation is complete or they will be eliminated from the proposal, if no suitable mitigation is feasible. This alternative, therefore, reduces direct and indirect effects to cultural resources by restricting crosscountry motorized travel and by employing the protection measures identified in the Protocol. There is some potential for unforeseeable indirect impact to sites (e.g., illegal vandalism and looting), but increasing the number of roads available for access also provides the best potential for protection based on efficient monitoring of archaeological site condition and law enforcement and provides the best potential for access to traditional resources and places of significance for Tribes. In addition, designating nearly half of the unclassified routes proposed for adoption as motorized trails rather than roads (which would include many routes currently being used as roads) may help to reduce the potential for vandalism. Alternative 3: Direct and Indirect Effects Like the Proposed Action, this alternative is subject to terms of the Protocol. Under this alternative, no unauthorized roads and trails would be added to the system. The resulting motorized route system would total approximately 3,432 miles (plus an additional 1,221 miles of roads for administrative use only) and would eliminate all cross-country travel other than roadside parking. Compared to the current condition, by prohibiting travel off designated routes and closing all unauthorized routes, this alternative will reduce direct and indirect effects to cultural resources. Any restriction or reduction of uncontrolled off-road travel will reduce impacts to cultural resources. It 2009 and will not be considered until further analysis, redesign, and the application of protective measures can ensure the protection of the cultural resources there. Tonto National Forest Motorized Travel Management Environmental Assessment Page 83 of 269

90 differs from the Proposed Action primarily by closing all unauthorized routes and eliminating all cross-country travel areas, including motorized big game retrieval. In terms of the total number and nature of routes, effects on cultural resources from this alternative are reduced compared to the current condition. By eliminating all cross-country travel, including that for motorized big game retrieval, it affords more protection to cultural resources from the direct effects of unregulated vehicular impacts than any other alternative. Alternative 4: Direct and Indirect Effects Like the Proposed Action, this alternative is subject to the terms of the Protocol. Under this alternative, approximately 350 miles of unauthorized roads and trails (410 routes, see table 2) would be added to the system and designated for motor vehicle use (180 miles of roads, 170 miles of motorized trails). The resulting motorized route system, including upgraded system roads, would total 4,044 miles (plus an additional 1,113 miles of roads for administrative use only) and would restrict cross-country motorized travel to designated areas as in alternative 2. Cross-country motorized travel would be permitted for motorized big game retrieval within a 400 yard corridor along 3,543 miles of NFS roads and 258 miles of NFS trails (533,926 acres). This alternative increases the number of roads and motorized ATV and motorcycle trails that would be designated (55 percent roads, 45 percent motorized trails), and opens up motorized big game retrieval to additional species and hunting units. As with the Proposed Action, any restriction or reduction of uncontrolled off-road travel will reduce impacts to cultural resources compared to the current condition. Many of the unclassified routes proposed for designation under this alternative were also covered by the archaeological survey (Roberts & Mitchell, 2010). An additional 185 miles (251 routes) still require inventory and evaluation before they can be added to the MVUM. This additional archaeological survey, under the terms of the Protocol, will be phased in as funding becomes available. The surveyed routes were predominantly proposed for motorized trails rather than roads (116 trails and 43 roads). About 26 percent of the road surveys encountered sites; only about 16 percent of the trail surveys did. This is largely due to the fact that the bulk of the proposed motorized trail routes are in the low, desert areas where site density is particularly low. Of the routes surveyed, twenty-one were encumbered by archaeological sites. These routes will be held from inclusion in the MVUM pending further analysis and the application of protective measures or they will be eliminated from the proposal, if not suitable mitigation is feasible. The actual incidence of damage to sites identified by the survey is fairly low (only about 13 percent of the surveyed routes impacted archaeological sites), with most of the vehicular impacts associated with those routes that began as cross-country ATV and motorcycle trails. Since many of these routes have been in use for years, this does not suggest that their presence has led to any marked increase in vandalism. It is unlikely that designation of the proposed unauthorized routes will have a significant direct impact on cultural resources, particularly once protective measures are applied or the affected routes are dropped from consideration. Page 84 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

91 Like the Proposed Action, alternative 4 will reduce direct and indirect effects to cultural resources by restricting cross-country travel and by employing the protection measures identified in the Protocol, as compared to the current condition. Overall, while there are differences in specific routes to be included in this alternative from those of the Proposed Action, overall effects on cultural resources from this alternative are similar to those of the Proposed Action. However, by expanding the area open to cross-country travel for big game retrieval, it affords somewhat less protection to cultural resources from the direct effects of unregulated vehicular impacts. All Alternatives: Direct, Indirect, and Cumulative Effects Allowing unrestricted cross-country travel to continue on any part of the Forest will result in an increase in the cumulative effect on cultural resources. Based on the results of archaeological survey for this analysis (see tables 32 and 33 below), at least one out of every eight new unauthorized routes arising from cross-country motorized travel will impact at least one archaeological site. Applying standards and protection measures in the Protocol and Programmatic Agreement to road management may help to reduce effects of future management, but overall this alternative represents a significant increase in cumulative effects to cultural resources on the Tonto National Forest relative to other alternatives. Table 32. Allocation of unclassified routes by alternative in miles Alternative Roads Motorized Trails Administrative Use Only Total Alternative Alternative Alternative Table 33. Archaeological survey results for unauthorized routes Category Alternative 2 Alternative 3 Alternative 4 Number of unclassified routes proposed for 356 routes 0 routes 410 routes designation as roads or motorized trails Miles of unclassified routes proposed for designation Number of unauthorized routes inventoried by archaeological survey Number of miles inventoried by archaeological survey 291 miles 0 miles 350 miles 154 N/A miles N/A 165 miles Number of archaeological sites identified 29 N/A 30 Number of routes encumbered by sites 20 N/A 21 Percentage of surveyed routes with archaeological sites 13% N/A 13% Number of routes remaining to be surveyed 202 N/A 251 Number of miles remaining to be surveyed 134 miles N/A 185 miles Archaeological sites are, by their very nature, previously affected, reduced by the transformation processes of erosion and decay from their original pristine state. Any effect to such sites, therefore, is Tonto National Forest Motorized Travel Management Environmental Assessment Page 85 of 269

92 cumulative. Many have also been affected by historic and recent human activity, including management activities undertaken by the Forest and resource use and extraction projects undertaken prior to the implementation of Section 106 of the National Historic Preservation Act. Reasonable foreseeable actions that can affect cultural and historical and Tribally significant resources represent a continuation of the land use practices of the past are listed at the beginning of chapter 3. While these activities can directly and indirectly affect cultural and historical and Tribally significant resources as well as cause destruction or modification to their environmental contexts, these actions are planned to minimize (and when possible, to eliminate) effects to these properties and have measures designed to mitigate disturbance that may occur from project implementation. By applying the standards and protection measures in the Protocol and by eliminating cross-country travel and reducing the amount of land subject to ground disturbance by vehicle use, it is not expected that any of these alternatives will result in any significant increase in cumulative effects associated with cultural resources on the Tonto National Forest. Illegal activities such as vandalism and looting by pothunters clearly affect cultural and historical and Tribally significant resources. Since these activities are illegal, they cannot be predicted and so in the strictest sense are not foreseeable in any legal sense. Still, since these activities have been reduced in recent years but not entirely eradicated, they can be expected to continue at some level. They can be reduced by monitoring and law enforcement. Contemporary Indian Uses Affected Environment The Tonto National Forest recognizes that several area Tribes have cultural ties to and knowledge about lands now managed by the Forest Service. Many tribal members regularly visit the Forest to harvest traditional plant resources such as acorns, piñon nuts, arrowweed, agave, willow, cattails, and beargrass, to collect medicinal plants and mineral resources for personal and ceremonial uses, to collect firewood, and to visit traditional cultural properties and sacred sites. These are activities that require motorized access, particularly for Tribal elders, who make up the majority of traditional practitioners. The Tribes, therefore, share an interest in protecting important natural and cultural resources from damage, including that caused by construction of new roads and trails and by uncontrolled cross-country motor vehicle traffic. Roads on Cave Creek, Mesa, Globe, Payson, and Pleasant Valley ranger districts also access Tribal land adjacent to the Forest. Access to (including restrictions on seasonal use or use in permit zones) and maintenance of these roads is, therefore, a concern. Some general locations used by Tribal members to conduct traditional activities, such as plant collection and religious rites on the Forest are known, but no specific locations were identified during scoping that are within the area of potential effect (APE) for this analysis, though it is known that Tribal members utilize both designated and unauthorized routes to access traditional resource gathering areas and sacred sites on the Tonto National Forest, typically using trucks and other fullsized vehicles rather than ATVs or motorcycles. Such small scale, low-frequency uses of the Forest by Tribal members are currently allowed without requiring permits. The Tribal consultation process for the Forest is guided through a variety of laws, Executive Orders, Memorandums, and case law. Some of those laws include: National Historic Preservation Act Page 86 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

93 (NHPA) and subsequent amendments, Archaeological Resources Protection Act, American Indian Religious Freedom Act, National Environmental Policy Act, and National Forest Management Act. Executive Orders and Memorandum include 1994 Government-to-Government Relations with Native American Tribal Governments, E.O Accommodations of Sacred Sites, and E.O Environmental Justice. Depending on the specific location of an undertaking, the Forest routinely consults between nine and thirteen Tribes regarding proposed projects and management policies. These are: Apache (San Carlos Apache Tribe, Tonto Apache Tribe, White Mountain Apache Tribe, and Yavapai-Apache Nation), four southern Tribes (Salt River Pima-Maricopa Indian Community, Gila River Indian Community, Ak Chin Indian Community, and the Tohono O odham Nation), Hopi Tribe, Pueblo of Zuni, and Yavapai (Yavapai-Prescott Tribe, Fort McDowell Yavapai Nation, and Yavapai-Apache Nation). Consultation with these Tribes regarding Travel Management is continuing. Environmental Effects Significant Tribal places, whether sacred sites or resource collecting areas, or places associated with clan or Tribal histories, are located throughout the Forest, though their specific locations often remain known only to Tribal members. They can be archaeological or historic sites, landmarks, or simply places on the landscape used for traditional activities. Direct effects to sacred sites and traditional use areas can be generally defined as anything that results in removal of, displacement of, or damage to the physical features of the landscape associated with the traditional use or alteration of the vegetative composition of the area in the case of collecting sites. Unrestricted motorized travel off system roads has the potential to create those kinds of impacts, as does the repeated use of unauthorized routes. Direct effects can include alterations of a sacred site s setting or context, sometimes to the extent that they are no longer recognizable and the various landscape features associated with their past use cannot be relocated. Unrestricted and uncontrolled motorized vehicular use that results in erosion and changes in vegetative composition and density or alterations in the presence or availability of particular plant species can be especially damaging to traditional collecting areas. Indirect impacts can include modern trash contamination, introduction of noise and light pollution, and the presence of people and activities that may be seen as degrading to either the sacred nature of a place or to the experience of conducting traditional activities there. They can also take the form of conflicts with other recreational or economic uses that affect the ability of traditional practitioners to access these areas. For sacred sites and traditional use areas, the application of rules similar to those of the Protocol for archaeological sites will serve to implement the minimization criteria of the Travel Management regulations at 36 CFR (a) and ( b) by reducing or eliminating impacts prior designation and inclusion in the MVUM. Protection measures identified in the Protocol that are applicable to significant tribal places as well as archaeological and historical sites are as follows: Dropping proposed motorized road, trail or area designations to avoid or reduce direct or indirect effects on sacred places or traditional gathering areas. Re-routing or modifying designated roads or trails to protect sacred or traditional places or reduce disruption of traditional activities resulting from conflicting recreational uses. Tonto National Forest Motorized Travel Management Environmental Assessment Page 87 of 269

94 Use of temporary closures to public access, if needed, to protect traditional activities from disruption. Authority to issue such closures to protect the privacy of tribal activities for traditional, religious, and cultural purposes also derives from the American Indian Religious Freedom Act (42 USC 1996), Executive Order 13007, Accommodation of Sacred Sites, and the Food, Conservation and Energy Act of 2008 P.L , Title VIII, Section Revision of designations, if determined necessary to protect sacred and traditional places from adverse effects. Monitoring to ensure that impacts to sacred or traditional places are not occurring or that protection measures are working. Implementation of these protective measures will protect sacred and traditional places from direct impacts. It will also provide protection from many of the indirect impacts that may attach to motorized access. In addition to specific requirements of the Protocol, upon request from the Tribes, specific sacred and traditional places throughout the Forest can be monitored periodically during the day-to-day activities of Forest personnel entrusted with confidential information regarding their locations. Alternative 1 - No Action: Direct and Indirect Effects Access to areas that Tribal people have historically visited would not change under this alternative. Most traditional practitioners typically use full-sized vehicles rather than ATVs or motorcycles and occasionally drive them cross-country to facilitate resource gathering, especially for elderly traditional practitioners. Tribal people needing access to collection sites necessary for ceremonial activities and other traditional uses would continue to have the same opportunities to drive to collection sites. No Tribe has indicated that the current road system is inadequate for their continued use of the Forest. Retaining the road system as it is currently used would continue to provide necessary access and allow traditional practitioners to continue to use the area. However, uncontrolled off-road travel will result in continued damage to sacred sites and traditional use areas and may inhibit or limit the use of such areas. Likewise, the potential remains for trespass onto reservation lands from uncontrolled and unclassified routes. Alternative 2 - Proposed Action: Direct and Indirect Effects Except for the inclusion of motorized big game retrieval, which reduces forestwide acreage where cross-country motorized travel is allowed but introduces it into areas where it was previously restricted, this alternative greatly reduces direct and indirect effects to sacred sites and traditional use areas by restricting cross-country travel, reducing the potential for trespass onto Tribal lands, and by employing protection measures identified in the Protocol for any newly designated route, corridor, or area. In particular, restricting motorized vehicles to designated routes will reduce the potential for disruption of traditional cultural or religious activities. However, closure of some existing roads and/or restrictions on roads (seasonal and permit zone restrictions) may reduce opportunities for resource gathering, visitation of sacred and other traditionally significant sites and increase the need for non-motorized travel for elderly traditional practitioners. Likewise, eliminating cross-country motorized travel on the northern ranger districts and reducing the number of available access routes throughout the Forest by closing unauthorized existing roads could reduce access to areas that Tribal people have historically visited without restraint. Tribal people needing access to collection sites necessary for ceremonial activities and other traditional uses related to subsistence (e.g., medicinal or Page 88 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

95 food plant gathering or fuelwood cutting) may have fewer opportunities to drive to collection sites with this alternative. Mitigation of this potential restriction may be found in issuing free-use permits for gathering forest products. Activities authorized under separate NEPA decisions may be exempted from restrictions of the Travel Management Rule and an authorized Forest officer can allow specific limited-use authorization for cross-country motorized access or use of a road closed to the public under the terms of a permit for collection of such products. Alternative 3: Direct and Indirect Effects By excluding motorized big game retrieval, this alternative further reduces direct and indirect effects to sacred sites and traditional use areas by restricting cross-country travel, reducing the potential for trespass onto Tribal lands, and by employing protection measures like those identified in the Protocol for any newly designated route, corridor, or area. However, closure of some existing roads and/or seasonal restrictions on roads may reduce opportunities for resource gathering, visitation of sacred and other traditionally significant sites and increase the need for non-motorized travel for elderly traditional practitioners. Likewise, eliminating cross-country travel on the northern ranger districts and reducing the number of available access routes throughout the Forest by closing unauthorized routes could reduce access to areas that Tribal people have historically visited without restraint. Tribal people needing access to collection sites necessary for ceremonial activities and other traditional uses related to subsistence (e.g., medicinal or food plant gathering or fuelwood cutting) may have fewer opportunities to drive to collection sites with this alternative. Generally, then, effects on Tribal access to traditional resources and significant places under this alternative would be similar to what they would be under the Proposed Action with the same potential for mitigative action through permitting where access may be reduced as a result of this decision. Alternative 4: Direct and Indirect Effects Except for the inclusion of motorized big game retrieval, this alternative greatly reduces direct and indirect effects to sacred sites and traditional use areas by restricting cross-country travel, by adding no unauthorized routes to the Forest transportation system, and by employing protection measures similar to those identified in the Protocol for any newly designated route, corridor, or area. This Alternative, with the most proposed motorized access, particularly in regards to roads, would have the most potential for providing Tribal access to sacred and traditional places and resources. By the same token, it also has greater potential than the other alternatives for road-based recreational activities to disrupt traditional activities sensitive to public intrusion. Otherwise, effects on Tribal access to traditional resources and significant places under this alternative would be similar to what they would be under the Proposed Action with the same potential for mitigative action through permitting where access may be reduced as a result of this decision. All Alternatives: Cumulative Effects From the time that control of those lands now comprising the Tonto National Forest left tribal hands, there has been a diminution of the number and quality of significant Tribal places throughout the Forest. Everything from homestead entry patents and land exchanges to mine development to reservoir inundation has reduced Tribal access to the land and its sacred and traditional places and in Tonto National Forest Motorized Travel Management Environmental Assessment Page 89 of 269

96 many cases destroyed them. Forest management activities from timber harvesting to livestock grazing to campground construction to road building have altered the landscape and vegetation of many of these areas, often eliminating the specific resources on which traditional uses were focused. Recreational use has had similar effects and introduced new conflicts with other user groups and further restrictions of access to traditional places. As these areas continue to disappear under reservoirs, into open pit mines, and under highways and campgrounds, preservation of those remaining areas and continued vehicular access to them, particularly for elder practitioners has become paramount. Foreseeable Forest uses will differ little in the future from what they have been in the past and so will continue to reduce the number and quality of these places, though a renewed Forest Service commitment to protect sacred sites and traditional use areas may mitigate these losses somewhat. Therefore, despite the reduction in physical destruction under alternatives 2, 3, and 4 and the potential improvement of access under some circumstances, the cumulative effect under all alternatives is the continued reduction or restriction of access to traditional lands and resources by Tribal members. Hydrology and Watersheds Affected Environment Protection of water quantity and quality is an element of the Forest Service mission and strategic plan (U.S. Forest Service, 2007, Jul.). Management activities on National Forest lands must be planned and implemented to protect hydrologic functions of forest watersheds, including volume, timing, and quality of stream flow. Use of roads, trails, and other areas on national forests by motor vehicles has potential to affect these hydrologic functions through interception of runoff, compaction of soils, damage to vegetation and stream channels, and detachment of sediment. Management decisions to eliminate cross-county motorized travel, add new routes and areas to national forest system (NFS) roads and trails, and make changes to existing NFS roads and trails must consider effects on watershed functions. Water resources and their existing conditions are analyzed on a sixth HUC watershed basis in terms of road density. The proximity of roads to streams and other water bodies is analyzed on a HUC6 basis. Other units of measure used to analyze effects of roads on water resources include: numbers of stream crossings, proximity to impaired water bodies, miles of roads within designated and potentially eligible wild and scenic river segment corridors, and miles of roads within riparian areas. GIS information was used for the majority of the analysis. GIS data considered in the analysis includes: National Forest system and non-system roads Perennial, intermittent, and ephemeral stream systems Impaired water bodies Streams designated as wild and scenic rivers and those considered potentially eligible for inclusion in the Wild and Scenic River System Riparian and wetland areas Lakes Page 90 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

97 Water Quality Water quality in the state is assessed by the Arizona Department of Environmental Quality (ADEQ). Water quality has been assessed in major perennial stream reaches and lakes on the Forest. Streams and water bodies on the Tonto NF that are listed on the State of Arizona s impaired waters (303d) list for 2006/2008 are displayed in figure 5 below. A fish consumption advisory was recently added to Roosevelt Lake in response to high mercury levels found in some species of fish by ADEQ. Roosevelt Lake has been included in the assessment of impaired water bodies. Please see the hydrologist specialist report in the project record for more detailed information about water quality. Figure 5. Tonto NF impaired (303d list) streams and water bodies 10 Water bodies impaired for sediment/turbidity within the Tonto National Forest are the Salt River from the confluence with Pinal Creek to Roosevelt Lake and the Verde River from West Clear Creek to Fossil Creek. The Verde River has a completed Total Maximum Daily Load (TMDL) assessment that is currently being implemented. This means that ADEQ has devised a plan to bring the impaired 10 The impaired water bodies map displays formally designated impaired water bodies on the Tonto. Macroinvertebrate data collected by ADEQ identifies a number of additional streams that have aquatic habitat issues that are not formally designated as impaired. ADEQ also proposes to issue new fish consumption advisories for streams on the Tonto that are also not formally designated as impaired in the current listing of 303d water bodies. Tonto National Forest Motorized Travel Management Environmental Assessment Page 91 of 269

98 water body into compliance with the states water quality standards and that it is taking steps to implement the plan. Other impaired water bodies on the Forest are primarily impaired by pollutants such as copper, selenium, low dissolved oxygen, phosphorous, nitrogen, E. Coli, arsenic, and boron. The primary pollutant generated by roads is sediment/turbidity. Roads are not a primary source of the other pollutants listed above. Wild and Scenic Rivers The Verde River from Beasley Flat on the Prescott National Forest to the confluence with Red Creek on the Tonto National Forest was designated as a Wild and Scenic River in A comprehensive plan for management of the river was completed in 2004 in a combined effort by the Prescott, Coconino and Tonto national forests. This plan is currently being implemented. Fossil Creek from the confluence of Sandrock and Calf Pen canyons on the Coconino National Forest to its confluence with the Verde River was designated as a Wild and Scenic River in A Comprehensive River Management Plan is currently being prepared for management of the Wild and Scenic Area. The Fossil Creek CRMP will include decisions about roads within the Wild and Scenic corridor that may differ from those in the TMR process. Riparian Areas and Stream Condition National Wetland Inventory (NWI) maps provide the best source of data for estimating the extent of riparian acres on the Tonto National Forest. Please see the hydrologist specialist report in the project record for more detailed information about riparian areas. Stream Condition Assessment Based on assessments completed to date, 19 percent of assessed streams are stable, 49 percent are impaired, and 32 percent are unstable. Where springs or stock ponds support riparian vegetation in patches large enough to be included in the National Wetland Inventory maps, they are included in the assessment of road mileage within riparian areas. Table 34 displays road density of National Forest System roads by ranger district. Table 34. Road density by ranger district Ranger District Road Miles Ranger District Area (Sq Miles) Road Density (Mi/Sq Mi) Cave Creek Globe Mesa Payson Pleasant Valley Tonto Basin Total 5,073 4, Please see the hydrologist specialist report in the project record for more detailed information about road density. The recently completed Watershed Condition Assessment on the Forest uses road density as one of twenty-three attributes for assessing the condition of the Forest s watersheds. The road density attribute is rated good, fair, or poor depending on road density per square mile within a Page 92 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

99 watershed. The road density rating is good, if road density is less than 1 mile per square mile, fair if road density ranges from 1 to 2.4 miles per square mile, and poor if road density is greater than 2.4 miles per square mile. This attribute was rated good on 41 watersheds, fair on 116 watersheds, and poor on 18 watersheds. Environmental Effects Methodology 1. Water quality/sediment load (forestwide). The potential for roads to affect water quality and aquatic habitats is assessed by identifying the number of miles of roads hydrologically connected to streams and water bodies. Hydrologic connectivity occurs where there is a continuous flow path from roads to streams and water bodies. Examples include ditches that convey road derived or intercepted runoff to stream channels, cross drain features such as waterbars or dips, that discharge sufficient water to create a gully, sediment plume, or both that extend to a stream channel, and fillslopes that encroach on stream channels. Proximity of roads to streams and water bodies and the number of road stream crossings can be used to indicate connectivity (Wemple, 1994 in Gucinsky, 2000; U.S. Forest Service, 1999). Roads within 300 feet of a stream channel are considered hydrologically connected to the adjacent stream or water body. The 300 foot distance is based on guidance provided in the Forest Service Watershed Condition Classification Technical Guide used to assess the condition of 6 th HUC watersheds on National Forests throughout the country (U.S. Forest Service, 2010). Units of measure are: a. Number of crossings of perennial streams, and ephemeral and intermittent streams. Stream crossings provide a direct route for sediments and other contaminants to be delivered to channels and are themselves a source of disturbance to channels. b. Miles of roads within 300-feet of perennial streams and water bodies, and ephemeral and intermittent streams (proximity). Miles of roads within 300 feet of all streams will also be assessed by HUC6 watershed. The rating process used for proximity to water in the Forest Service Watershed Condition Classification Technical Guide (U.S. Forest Service, 2010) will be used to identify the number of HUC6 watersheds falling within the condition class ratings used in the Technical Guide for each alternative. c. Miles of roads within the quarter-mile corridor of designated Wild and Scenic Rivers, as well as those identified as potentially eligible for inclusion in the Wild and Scenic River System. d. Miles of roads within 300 feet of impaired streams and water bodies (proximity). Some duplication of road mileages will occur by including miles of roads within the 300-foot buffer distance of perennial, intermittent, and ephemeral streams, impaired streams and water bodies, and within the one-quarter mile corridor of potentially eligible wild and scenic rivers and designated wild and scenic rivers, but helps to display impacts by various categories of resource sensitivity. 2. Riparian areas. Units of measure are miles of roads within riparian areas. 3. Density. Road density will be assessed using the criteria in the Technical Guide (U.S. Forest Service, 2010) by HUC6 watershed. The number of HUC6 watersheds falling within the condition class ratings identified in the Technical Guide will be identified for each alternative. Tonto National Forest Motorized Travel Management Environmental Assessment Page 93 of 269

100 Types of roads included or excluded from analysis are identified below. 1. Roads in the watershed assessment process include roads that are within the Forest Proclamation Boundary, but are not administered by the Forest Service. These include federal, state, county, and private roads as well as roads administered by the Bureau of Indian Affairs (BIA), Bureau of Land Management (BLM), and Bureau of Reclamation (BOR). These roads are included in the analysis, because they affect watershed condition, even though they are not managed by the Tonto NF. 2. Other routes evaluated in the assessment include Maintenance Level 1 through 5 roads. Level 1 roads are included in the analysis because although technically closed they are available for reopening when needed and the road prism remains on the ground. Roads for administrative use only and motorized trails are also included in the analysis. The mileages of the various categories of roads have been summed for the impact analysis. Differences in impacts are not considered sufficiently different to warrant separate analyses for each category of road. 3. Changes in administrative use of roads and restrictions on season of use are expected to have a negligible effect on watershed conditions. The setting of roads has a much larger impact on watersheds than the type of use. Therefore, changes in allowable access (i.e., from a closed or open road to an administrative use road or season of use) were not considered in assessing effects. However, it is acknowledged that seasonal restrictions on roads and trails in the Pleasant Valley Ranger District during winter months when the ground is wet will mitigate some effects of roads on watersheds. 4. Motorized trails are considered separately from roads and include motorcycle and ATV trails. Motorcycle and ATV trails have a smaller footprint on the landscape but have impacts similar to other motor vehicles; disturb vegetation, disrupt drainage patterns, and compact soils (although compaction may be less than other motor vehicles). Differences in impacts are considered small and the effects of motorized trails are added to those for other motorized routes for summarizing impacts of alternatives. 5. Unauthorized routes are considered separately in the analysis process for the No Action Alternative (existing conditions). These are not officially recognized as roads and are not intended to be maintained in the travel management base. Total length of these roads is unknown, but 590 miles have been inventoried. The impacts of unauthorized routes added to the transportation system in alternatives 2 and 4 are combined with those of other motorized roads and motorized trails in the assessment of these alternatives. General Road Effects Roads directly affect natural sediment and hydrologic regimes by altering stream flow, sediment loading, sediment transport and deposition, channel morphology, channel stability, substrate composition, stream temperatures, water quality, and riparian conditions in a watershed (Gucinsky, et al., 2000). The hydrologic effect of roads depends on several factors, including location of roads on side slopes, characteristics of the soil profile, subsurface water flow and groundwater interception, design of Page 94 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

101 drainage structures (ditches, culverts) that affect the routing of flow through watersheds, and the proportion of the watershed occupied by roads (Gucinsky, et al., 2000). Roads have three primary effects on hydrologic processes. They intercept rainfall directly on the road surface and road cut and fill slopes, and intercept subsurface water moving down the hillslope; they concentrate flow either on the surface or in an adjacent ditch or channel; and they divert or reroute water from natural flow paths (Gucinsky, et al., 2000; U.S. Forest Service, 1999). By intercepting road runoff as well as natural surface runoff and subsurface flow, and concentrating and diverting it into ditches, gullies, and channels, road systems effectively increase the density of streams in the landscape, thereby altering timing of peak flows and hydrograph shape (Gucinsky, et al., 2000). Small increases in peak flows may also result from roads in watersheds. Based on studies of small watersheds, effect of roads on peak flows is detectable, but relatively modest for most storms (Gucinsky, et al., 2000). Roads contribute more sediment to streams than any other land management activity (Gucinsky, et al., 2000). Large increases in the amount of sediment delivered to the stream channel can greatly impair or even eliminate fish and aquatic invertebrate habitat and alter the structure and width of stream banks and adjacent riparian zone (MacDonald, 1991). The amount of sediment can affect channel shape, sinuosity, and relative balance between pools and riffles. Indirect effects of increased sediment loads may include increased stream temperatures and decreased intergravel dissolved oxygen (DO) (MacDonald, 1991). Fine sediments tend to fill interstices between coarser particles, which reduce habitat space for small fish, invertebrates, and other organisms. Intrusion of fine particles into bed material also reduces the permeability of bed material, which often results in a decline in concentration of intergravel DO. Some invertebrate species are very sensitive to even small declines in DO (MacDonald, 1991). Excess sediments can cause widening of the stream channel, filling in of the channel thalweg (the deepest portion of the channel), increasing bed elevation (channel aggradation), and declining cross sectional area. Net deposition of sediment usually results in more extreme stream temperatures, a decrease in the amount and quality of fish cover. Other changes may include changes in quality of spawning habitat, a possible reduction in habitat space for algae and macroinvertebrates, increased bank erosion, and an increased likelihood of flooding (MacDonald, 1991). Road derived sediments originate from a number of sources. These include: Surface erosion of the road surface, and cut and fillslopes, Erosion of roadside ditches from concentrated runoff, Excess runoff from roads can overload ephemeral channels, resulting in significant channel downcutting. Surface flow paths can be altered, so water is concentrated and diverted onto unchanneled upland areas resulting in incision (gullying) of these areas. Capacity of undersized culverts may be exceeded or entrances may become blocked and water can be diverted from one sub-watershed to another also resulting in channel erosion or severe ditch erosion. Road-stream crossings can be a major source of sediment to streams, resulting from channel fill around culverts and subsequent road-crossing failures. Tonto National Forest Motorized Travel Management Environmental Assessment Page 95 of 269

102 Roads can alter the physical dynamics of stream channels. Stream channels migrate across their historic floodplains, eroding the bed and banks in one location, while aggrading the bed and building new banks in other locations. They also transport the water, sediment, and debris of their attendant watershed. Large pieces of woody debris and fine organic matter transported by streams provide physical structure and diverse aquatic habitat. When roads encroach directly on stream channels, these processes can be modified. Wood and sediment can be trapped behind stream crossings, reducing downstream sediment transport and increasing risk of crossing failure. Unnatural channel widths, slope, and stream-bed form are found upstream and downstream of stream crossings. Road alignment and road fills can isolate floodplains, constrict the channel, constrain channel migration, and simplify riparian and aquatic habitat (U.S. Forest Service, 1999). Water Quality The effects of roads on water quality can include sedimentation (deposited solids), turbidity (suspended solids), and pollutants within affected watersheds. Turbidity reduces in-stream photosynthesis and results in reduced food supply and aquatic habitat. Roads increase nutrient delivery to streams by removing vegetation, re-routing water flow paths, and increasing sediment delivery. Nutrients discharged into aquatic systems can cause algal blooms, which reduce water clarity and deplete oxygen (ADOT, 1995). Pollutants associated with leaks and spills of petroleum products may be adsorbed to sediments, absorbed by plant material, or dissolved in runoff; once mobilized, these contaminants may enter aquatic systems (Ouren, et. al., 2007). Roads can lead to water temperature changes by removal of streamside vegetation where roads encroach on channels, and alter streamflow regimes through processes described earlier. Water quality can also be adversely affected when fugitive dust and contaminants enter aquatic systems. Airborne dust and contaminants adsorbed to dust particles raised by OHV traffic may eventually settle directly onto wetlands. General Off-highway Vehicle Effects The primary effects of OHV activity on soils and overall watershed function include altered soil structure (soil compaction in particular), destruction of soil crusts (biotic and abiotic) and erosion pavements (gravel surfaces) that would otherwise stabilize soils, and soil erosion. As soil compaction increases, the soil s ability to support vegetation diminishes, because resulting increases in soil strength and changes in soil structure (loss of porosity) inhibit growth of root systems and reduce infiltration of water. As vegetative cover, water infiltration, and soil stabilizing crusts are diminished or disrupted, precipitation runoff rates increase, and soil erosion accelerates, leading to formation of rills, gullies, and other surface changes (Ouren, et al., 2007). Effects of OHV activities on water quality can include sedimentation (deposited solids), turbidity (suspended solids), and pollutants within affected watersheds. Sedimentation increases because compacted soils, disrupted soil crusts, and reduced vegetation cover can lead to increased amounts and velocities of runoff; in turn, this accelerates the rates at which sediments and other debris are eroded from OHV-use areas and flushed to down slope aquatic systems. Pollutants associated with deposition of OHV emissions and spills of petroleum products may be adsorbed to sediments, absorbed by plant material, or dissolved in runoff; once mobilized, these contaminants may enter aquatic systems (Ouren, et al., 2007). Where slope is a factor, extensive networks of OHV routes can proliferate across landscapes and serve as conduits that intercept and alter direction of natural surface flow pathways. These conduits Page 96 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

103 may be eroded to form gullies that channel dislodged sediments and contaminants into stream systems. Where OHV activity occurs, networks of OHV routes proliferate. The generally impervious nature of soils compacted by OHV traffic enhances gully formation in these conduits, thus promoting additional flows of sediments and suspended solids into stream systems, effectively extending the drainage network of a given watershed, and potentially changing the timing of peak runoff flows (Ouren, et al., 2007). Riparian Effects Roads in riparian areas have many of the same effects as those in upland sites; however they compound these effects by disrupting many of the natural beneficial functions provided by riparian areas. Roads directly remove the riparian vegetation that provides shade and bank stability for stream channels, filtering of sediments and nutrients from upland runoff and overbank floods, and roughness to channels and floodplains that reduces velocity of overbank flows and encourages recharge of alluvial aquifers. Roads in riparian areas compact soils, which reduces infiltration and contributes to additional reductions in recharge of alluvial aquifers. These roads are also often in close proximity to stream channels and are hydrologically connected to channels, thereby contributing disproportionate amounts of sediments and other pollutants to stream channels. Riparian roads remove the site occupied by the road from production of riparian vegetation, which has disproportionate importance for wildlife habitat. Riparian areas are popular recreation sites because of the cool and shady environment they provide in an otherwise hot and arid area. Recreational use of riparian areas disturbs many of the same functions of these areas that are also disturbed by roads. Roads in riparian areas facilitate recreational access to these areas which compounds the effects of the roads themselves. While other uses also disturb riparian areas, this discussion is focused on recreation because recreational use of riparian areas is heavily dependent on roads for providing access to them. Motorized Big Game Retrieval Average big game harvest for the past 3 years has been 1,150 animals. Not all harvested animals are retrieved by motorized means and most motorized travel for retrieval occurs within 200 yards of a road. We estimate that approximately 30 percent of these animals are retrieved using a vehicle. Most motorized game retrieval also involves a single trip with a vehicle (typically an ATV). Webb (1983) found that after a single pass, annual plants on an OHV route remained intact, but most were destroyed after ten passes. We expect perennial plants to be more robust, and therefore perennial plants are likely to also sustain one to two passes. Minimal impacts on vegetative ground cover and soil compaction are expected from motorized retrieval of big game. Based on the low number of trips required for big game retrieval, short distance needed for retrieval, and low number of OHV crossings of a site, motorized big game retrieval has minimal effects on water resource conditions and will not be discussed further in this analysis. Motorized Dispersed Camping Although motorized dispersed camping can have moderate impacts to watershed conditions at popular dispersed campsites; the limited extent of motorized dispersed camping on a forestwide basis results in only minimal effects to water resource conditions and so will not be discussed further in this analysis. Tonto National Forest Motorized Travel Management Environmental Assessment Page 97 of 269

104 Alternative 1 - No Action: Direct and Indirect Effects Roads Existing locations of roads in terms of selected water resources features are displayed in tables below. Table 25 displays the number of miles of roads either within a 300-foot buffer on each side of perennial streams and water bodies, intermittent and ephemeral streams, and impaired water bodies, or within the one-quarter mile corridor on each side of existing wild and scenic rivers and streams identified as potentially eligible for inclusion in the Wild and Scenic River System. Roads within the 300-foot buffer distance have a greater potential to be hydrologically connected to streams than those beyond the 300-foot buffer distance. Roads hydrologically connected to stream channels and water bodies can provide greater quantities of sediments and other pollutants directly to these features. Hydrologic connectivity is dependent on a number of factors including slope, soil erodibility, vegetative ground cover, and climatic conditions. A 300-foot buffer provides a reasonable distance for capturing the majority of roads that would have direct pathways for delivering road derived pollutants to water bodies. The quarter-mile corridor identified for designated and potentially eligible wild and scenic rivers is used for identifying roads potentially affecting these sites because the Wild and Scenic Rivers Act identifies protection of water quality in these rivers as one key responsibility of river administrators. Roads considered in tables 35 and 36 include roads in the existing forest road system and those operated by other government jurisdictions such as the state or counties. A total of 5,073 miles of roads were included within the analysis. A total of 590 miles of unauthorized (unauthorized) routes have been inventoried on the Forest. Many miles of additional unauthorized routes also occur on the Forest, but have not been inventoried. Unauthorized routes were not considered in the tables below. These routes contribute to effects on watershed, stream channel, and riparian conditions in the same manner as existing system roads and roads managed by other jurisdictions because in some instances the impacts of unauthorized routes are greater than those of maintained routes and vice versa. Table 35. Existing conditions - no action Tonto NF Roads Within Buffer Zones 1 or Corridors 2 of Selected Water Features Perennial Streams (mi) Intermittent and Ephemeral Streams (mi) Impaired Water Bodies (mi) Wild and Scenic Rivers 2 (mi) Potentially Eligible Wild and Scenic Rivers 2 (mi) Total 102 1, Buffer zone distances are 300 feet 2 Includes roads within the 1/4 mile corridor on each side of river There are approximately 620 miles of perennial streams within the Tonto NF. Based on table 35, up to sixteen percent of perennial stream mileage could be affected by roads within 300 feet of the stream channel (total affected mileage of perennial streams is less than the miles of roads identified in the second column of table 35 because more than one road or segments of the same road may exist within the 300-foot buffer along a reach of perennial stream). There is also an estimated 12,630 miles of ephemeral and intermittent stream channels within the Forest. Up to fourteen percent of these channels could be affected by roads within 300 feet of the channel. Page 98 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

105 Impaired water bodies on the Forest are primarily impaired by pollutants (copper, selenium, low dissolved oxygen, phosphorous, nitrogen, E. Coli, arsenic, and boron) that would be only minimally affected by roads. The only water bodies impaired for sediment/turbidity are the Salt River from the confluence with Pinal Creek to Roosevelt Lake and the Verde River from West Clear Creek to Fossil Creek. The Salt River from the confluence with Pinal Creek to Roosevelt Lake (impaired water body) has approximately 1 mile of road within the 300-foot buffer distance of the river. More than half of this mileage is State Route 288 (which is a paved road) where it approaches and crosses the Salt River. The impact of these roads on water quality in the Salt River is small in comparison to the watershed area contributing to the impaired reach (4,306 square miles at the U.S. Geological Survey gauge at the Hwy 288 crossing). Small localized impacts to water quality occur during periods of rainfall runoff. The Verde River from West Clear Creek to Fossil Creek is also impaired for sediment/turbidity, but has a completed total maximum daily load (TMDL) assessment that is currently being implemented. Less than 0.1 mile of road within the Tonto NF is within the 300-foot buffer distance of the impaired Verde River reach. The impact of this road on water quality in the Verde River is negligible due to the short length of the road segment. Small localized impacts to sediment and turbidity occur during rainfall runoff and during vehicle crossings of the Verde River. Approximately four miles of roads lie within quarter mile corridors of the existing wild and scenic rivers within the Forest (Verde River and Fossil Creek). Approximately 71 miles of roads lie within quarter-mile corridors of potentially eligible wild and scenic river reaches within the Forest. These roads affect up to 30 percent of potentially eligible corridors as described under general roads effects. These roads are not necessarily hydrologically connected to potentially eligible stream channels because they can be up to a quarter mile from the channel but do represent a disturbance within the corridor and may have the potential for water quality affects within the corridor. Table 36 displays miles of roads within riparian areas, and number of crossings of, perennial streams, and intermittent and ephemeral streams. Table 36. Existing conditions no action alternative Tonto NF Roads in Riparian Areas (miles) Perennial Streams Number of Stream Crossings Intermittent and Ephemeral Streams Total ,321 Totals may not add due to rounding Based on approximately 22,000 acres of mixed broadleaf riparian vegetation on the Tonto NF, 87 miles of roads in riparian areas results in a road density of 2.5 miles per square mile in riparian areas. There are approximately 1,100 miles of linear stringers of riparian vegetation mapped in the National Wetland Inventory in addition to the acreage listed above. Many of the stream crossings of perennial and intermittent streams are likely to cross through these linear riparian features in addition to the stream channels identified above. The number of perennial stream crossings results in a crossing density of one crossing for every 2.6 miles. Crossing density of intermittent and ephemeral streams would be one crossing every 1.5 miles. Vehicles on routes in or across stream channels, particularly perennial streams, can increase turbidity, break down stream banks, and have direct effects on aquatic habitat. Vehicle crossings can also disturb the armor layer of gravels, cobbles, and Tonto National Forest Motorized Travel Management Environmental Assessment Page 99 of 269

106 boulders that develop on the bed and banks of many stream channels that help to resist the erosive effects of stream flows. Disturbances to this armor layer make the channel vulnerable to increased erosion and down cutting. Road Density is assessed by HUC6 watershed and displayed in table 37. Road density is rated good, fair, or poor based on whether road density is less than 1 mile per square mile (good), from 1 to 2.4 miles per square mile (fair) or more than 2.4 miles per square mile (poor) (U.S. Forest Service, 2010). Under existing conditions 41 HUC6 watersheds would receive a good rating for the road density attribute, 116 HUC6 watersheds would receive a fair rating, and 18 watersheds a poor rating. Table 37 displays these summary ratings as well as the number of HUC6 watersheds in each of the density rating classes when inventoried unauthorized routes are included in the total road mileage. Road proximity (within 300 feet) to streams is also assessed by HUC6 watershed. Ratings for proximity to streams are good if no more than 10 percent of road length within a watershed is within 300 feet of streams, fair if road length ranges from 10 to 25 percent of the road miles within a watershed, and poor if road length is greater than 25 percent of road mileage (U.S. Forest Service, 2010). Table 37 displays summary ratings for HUC6 watershed condition as well as the number of HUC6 watersheds in each of the density rating classes when inventoried unauthorized routes are included in the total road mileage. Table 37. Alternative 1 Watershed ratings for road density and proximity to streams attributes Existing Condition HUC6 Condition Road Density Proximity to Streams Rating Motorized Routes Motorized Routes + Unauthorized Motorized Routes Motorized Routes + Unauthorized Good Fair Poor The primary impact of roads on watershed conditions on the Tonto NF is disruption of natural drainage patterns, delivery of abnormal amounts of sediment to stream channels, and displacement of riparian vegetation. These impacts can be high in areas of high road density, areas of heavy OHV use and areas where there is high connectivity between roads and streams. Guidance provided in the Watershed Condition Classification Technical Guide (U.S. Forest Service, 2010) identifies road density, road proximity to water, and road and trail maintenance as responsible for 15 percent of the overall watershed condition rating. On this basis, the ratings for road density and proximity to water discussed above would have a small impact on overall watershed condition on the Forest. Motorized Trails Motorized trails are not currently designated in the Forest s road management system. Unauthorized Routes Approximately 590 miles of unauthorized routes have been inventoried on the Tonto NF. The number of miles of inventoried unauthorized routes within 300 feet of perennial streams and lakes, Page 100 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

107 intermittent and ephemeral streams, impaired water bodies, and within the one-quarter mile corridor of potentially eligible wild and scenic rivers is displayed in table 38 below. There are no inventoried unauthorized routes within a quarter mile of designated Wild and Scenic Rivers. Table 38. Alternative 1 Inventoried unauthorized routes within buffer zones and corridors of streams, lakes, impaired water bodies, and potentially eligible wild and scenic rivers Category Perennial Streams & Lakes (mi) Intermittent & Ephemeral Streams (mi) Impaired Water Bodies (mi) Potentially Eligible Wild & Scenic Rivers 2 (mi) Total Miles Buffer zone distances are 300 feet 2 Includes motorized trails within the 1/4 mile corridor on each side of river The number of miles of unauthorized routes within areas of riparian vegetation and the number of stream crossings by unauthorized routes is displayed in table 39 below. Table 39. Alternative 1 Inventoried unauthorized routes within riparian areas and numbers of stream crossings by unauthorized routes Riparian areas (mi) Number of Crossings Perennial Streams Intermittent and Ephemeral Streams Totals ,762 Totals may not add due to rounding Use of these routes is likely to continue under this alternative and continue to impact stream channels, riparian areas, road density, and miles of roads hydrologically connected to channels. Including inventoried unauthorized roads in the road density ratings for each HUC6 watershed reduces the number of watersheds rated good for this attribute by 8 to 33, the number of watersheds rated fair for this attribute increases by one, and the number of watersheds rated poor increases by 7 to 25. These values are displayed in table 37 (previous). Including unauthorized routes in the proximity to streams ratings for each HUC6 watershed reduces the number of watersheds rated good for this attribute by two watersheds to a total of four remaining watersheds rated good, the number of watersheds rated fair is increased by one to a total of 30, and the number of watersheds rated poor for this attribute increases by one to a total of 141. These values are also displayed in table 37. Motorized Cross-country Travel Motorized cross-country travel is permitted on 700,004 acres in Payson and Pleasant Valley ranger districts. Although motorized cross-country travel is not an authorized activity in four southern ranger districts, this activity occurs in a number of areas in close proximity to the Phoenix Metropolitan Area. Areas of particularly heavy OHV use occur in the lower Sycamore Creek area on Mesa Ranger District and the lower Camp Creek area on Cave Creek Ranger District. The streams most affected by heavy OHV use include Lower Camp Creek in the Cave Creek Ranger District, and Lower Sycamore Creek and Cottonwood Creek in the Mesa Ranger District. These streams support riparian vegetation Tonto National Forest Motorized Travel Management Environmental Assessment Page 101 of 269

108 and Sycamore Creek has reaches of perennial flow. Other ephemeral and intermittent stream channels also occur in the areas of heavy use. Impacts to water resources are occurring in these areas from disturbance to vegetation, exposure and compaction of soils, rutting and gullying of routes, disruption of natural drainage patterns, and disturbance to riparian areas and stream channels. These effects result in increased runoff, erosion, and sedimentation, as well as direct disturbance to sensitive riparian and aquatic ecosystems. Increasing impacts are anticipated into the future due to growing population in the Phoenix Metropolitan Area and increasing OHV sales. Heavy cross-country travel in close proximity to stream channels and within stream channels would affect channels and water quality more than the same level of use at a greater distance from these areas. Similar affects would occur where cross-country travel occurs in riparian areas. Areas with only incidental OHV use have minimal watershed effects. Impacts to natural drainage patterns, riparian areas, and stream channels and increases in erosion are occurring in these areas and are described under general roads effects. OHV Permit Zones The only currently permitted OHV Zone is the Bulldog Canyon OHV Permit Zone on Mesa Ranger District. This zone was created to control heavy OHV use that was damaging soil and vegetation resources. Vehicle use is restricted to existing roads and requires motorized users to obtain written authorization (a free special use permit from the ranger district) to enter the area. Continuation of Bulldog Canyon Permit Zone under this alternative should continue to prevent proliferation of unauthorized routes that occurred prior to designation and that is occurring in other heavily-used areas. The main benefit of the designation is that the proliferation of new routes that has occurred in other nearby heavy use areas has not occurred in this area. Routes open prior to designation are still being used so vegetative recovery that would improve watershed conditions has not occurred. For the most part watershed conditions have not degraded further. Continued operation should prevent an increase in adverse watershed effects (accelerated runoff, erosion, sedimentation, and disturbance to channels and riparian areas) associated with OHV uses off designated roads. Alternative 2: Direct and Indirect Effects Roads Table 40 displays number of miles of roads in alternative 2 either within a 300-foot buffer of ephemeral, intermittent and perennial streams and lakes, and impaired water bodies or within the onequarter mile corridor on each side of streams identified as potentially eligible for inclusion in the Wild and Scenic River System. No change in roads within the quarter-mile corridor of existing wild and scenic rivers is proposed in this alternative. This table also displays change in road mileage within various buffer categories between alternative 2 and existing conditions. Page 102 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

109 Table 40. Alternative 2 Roads within buffer zones 1 or corridors 2 of selected water features Category (mi) Perennial Streams Change (mi) The net effect of this alternative on a forestwide basis is a small decrease in miles of roads within buffer distances or corridors of selected water resources features. Changes from existing conditions include a less than one percent decrease in miles of roads within the 300-foot buffer distance of perennial streams, a five percent decrease in miles of roads within the 300-foot buffer of intermittent and ephemeral channels, a ten percent decrease in miles of roads within the quarter mile corridor of potentially eligible wild and scenic rivers, and a two percent increase in road mileage within 300 feet of impaired water bodies. The changes in road miles described above represent a minor decrease in water resource impacts over those in the No Action Alternative. Table 41 displays miles of roads within riparian areas, and number of stream crossings of perennial, intermittent and ephemeral streams. It also displays change in road miles in riparian areas and road crossings of streams in this alternative from existing conditions. Table 41. Alternative 2 roads within riparian and stream areas Roads in riparian areas (miles) Intermittent and Ephemeral Streams (mi) Change (mi) Perennial streams (number of crossings) Potentially Eligible Wild and Scenic Rivers 2 (mi) change (mi) (mi) Number of Stream Crossings Impaired Water Bodies Intermittent and ephemeral streams (number of crossings) Alt 2 Change Alt 2 Change Alt 2 Change Total , Change (mi) Total , Buffer zone distances are 300 feet 2 Includes roads within 1/4 mile corridor on each side of river Totals may not add due to rounding The effect of this alternative on a forestwide basis is a small decrease in miles of roads within riparian areas, a small increase in the number of crossings of perennial streams, and a small decrease in the number of crossings of intermittent and ephemeral channels. On an overall basis these changes represent almost a six percent decrease in road mileage within riparian areas, a two percent increase in road crossings of perennial streams, and a four percent decrease in number of crossings of intermittent and ephemeral channels. These changes represent a minor decrease in water resources impacts from the No Action Alternative. Table 42 displays the number of HUC6 watersheds rated good, fair, or poor for road density and road proximity to streams, and the change in number of watersheds ratings from existing conditions. Tonto National Forest Motorized Travel Management Environmental Assessment Page 103 of 269

110 Table 42. Alternative 2 watershed condition ratings for road density and proximity to streams attributes HUC6 Condition Rating Proposed Action Road Density Change from Existing Conditions Proposed Action Proximity to Streams Change from Existing Conditions Good Fair Poor The number of HUC6 watersheds rated good for the road density attribute improves slightly from existing conditions under this alternative. The number of HUC6 watersheds improving for the proximity to streams attribute improves slightly with five watersheds moving from the poor category to the fair category. Motorized Trails There are 233 miles of motorized trails proposed in this alternative. Of these, 27 miles are being converted from roads maintained for high-clearance vehicles, 57 miles are being converted from closed roads, and 139 miles are being added to the system from inventoried unauthorized routes. Motorized trails are assessed in the same manner as roads in terms of proximity to water resources, crossings of water resource features, and miles within riparian areas. Tables 43 and 44 display these assessments. Table 43. Alternative 2 Motorized trails within 300 feet of selected water resource features, and within corridors of potentially eligible Wild and Scenic Rivers, within riparian areas, and number of motorized trail crossings of streams Intermittent and Potentially eligible Perennial streams Impaired water Category ephemeral streams Wild and Scenic and lakes (mi) bodies (mi) (mi) Rivers (mi) Total Table 44. Alternative 2 Miles of motorized trails in riparian areas and number of crossings of perennial, intermittent and ephemeral streams Riparian Areas Crossings of Perennial Crossings of Intermittent and Category (mi) Streams (no.) Ephemeral Streams (no.) Total Impacts from motorized trails should be less than those of motorized roads due to a smaller footprint on the land; however, impacts from motorized trails would still occur. These include disturbance to vegetation, disruption of drainage patterns, and compaction of soils (although soil compaction is probably reduced due to lighter vehicle weights). These disturbances increase runoff and erosion. Due to similar types of effects, impacts of motorized trails are combined with those of other motorized routes in the summary table below. Table 45 displays forestwide changes of the combined effects of motorized trails and other motor vehicle routes on selected water resources features compared to the existing condition. These include the change in miles of motorized trails and motorized roads within Page 104 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

111 the 300-foot buffer distance of perennial streams and lakes, intermittent and ephemeral streams, and impaired water bodies; the change in miles within the quarter mile corridors of potentially eligible wild and scenic rivers; the change in number of miles within riparian areas; and the change in number of crossings of perennial, and intermittent and ephemeral stream channels. There is no change in motorized route miles within the corridors of designated wild and scenic rivers from the existing conditions in this alternative. Table 45. Alternative 2 - Forestwide changes from existing conditions within buffer zones and corridors of water resource features and changes in number of stream crossings from combined motorized trails and roads Perennial streams & lakes (mi) Intermittent & Ephemeral Streams (mi) Potentially eligible wild & scenic rivers (mi) Impaired water bodies (mi) Riparian areas (mi) Crossings perennial streams Crossings intermittent & ephemeral streams Combining motorized trails with motorized roads results in small increases in effects on several water resource features. Miles of motorized trails and routes within 300 feet of both perennial streams and lakes, and intermittent and ephemeral streams increases by less than two percent, and miles of motorized routes within 300 feet of impaired water bodies increases by almost ten percent. Miles of motorized trails and routes within the corridors of potentially eligible wild and scenic rivers decreases by about seven percent and miles of routes within riparian areas decreases by about three percent. Motorized route crossings of both perennial streams, and intermittent and ephemeral streams increases by about seven percent. The effects of combining motorized trails with motorized roads on the road density and proximity to water rating attributes from the Forest watershed condition assessment process for HUC6 watersheds are displayed in table 46 below. Table 46. Alternative 2 Effects of combining motorized trails with motorized road on road density and proximity to water for HUC6 HUC6 Condition Rating Proposed Action Road Density Change from Existing Conditions Proposed Action Proximity to Streams Change from Existing Conditions Good Fair Poor Existing conditions include motorized routes + unauthorized routes The number of watersheds rated good for the road density attribute improves slightly from existing conditions under this alternative, while the number of watersheds rated good for the Proximity to Streams attribute remains unchanged. The number of watersheds rated poor for both attributes decreases slightly. The overall effect of roads and motorized trails on watershed conditions in this alternative is a slight decrease in the impacts from existing conditions. The reduction in impacts helps meet criteria for minimizing damage to watershed resources. Tonto National Forest Motorized Travel Management Environmental Assessment Page 105 of 269

112 Unauthorized Routes Under alternative 2, 291 miles of inventoried unauthorized routes would be added to the transportation system, 130 miles as system roads (ML2 to 5), 22 miles as administrative use only roads (ML2), and 139 miles as motorized trails. The impacts of these routes are incorporated into the analysis of roads and motorized trails described in this alternative. Changes in impacts from roads and motorized trails would be reduced from those displayed under alternative 1, if unauthorized routes were included in the data used for assessing existing conditions. These tables consider changes from the existing designated transportation system on the Forest. Remaining inventoried unauthorized routes were not added to the transportation system for a variety of reasons including adverse impacts on watershed conditions. Motorized Cross-country Travel Motorized cross-country travel on 700,004 acres within Payson and Pleasant Valley ranger districts, currently open to this activity, would be closed under this alternative. A total of 1,417 acres in Cave Creek, Globe and Mesa ranger districts would be designated as open to motorized cross-country travel (see Chapter 2 ~ Description of Alternatives for more information). Eliminating motorized cross-country travel in areas of heavy OHV use on Payson and Pleasant Valley ranger districts would allow disturbed areas to recover over time. Enforcement of restrictions on motorized cross-country travel in other ranger districts outside of designated areas should also permit recovery of watershed conditions over time. Recovery in particularly fragile areas (areas with sensitive or erodible soils, or slow vegetative recovery such as the Sonoran Desert) may not return watershed conditions to predisturbance levels. Sycamore OHV Area occupies 1,391 acres and includes an ephemeral wash that is tributary to Lower Sycamore Creek. FR 403 lies within the wash bottom until it joins Sycamore Creek. Approximately 4.5 miles of the channel of Sycamore Creek, extending upstream from the boundary with Fort McDowell Indian Reservation, are included in the area. This OHV area includes uplands adjacent to the ephemeral tributary to Sycamore Creek and adjacent to Sycamore Creek. The ephemeral wash is characterized by a multiple channel bed (braided channel) consisting of unconsolidated sand and gravel, and xeroriparian vegetation consisting primarily of mesquite that occupies terrace and floodplain features. Travel in wash bottoms has a small potential to introduce contaminants to ground and surface waters from spills and leaks of fuels and oils. Travel in wash bottoms can also damage riparian vegetation, particularly younger age classes. Sycamore Creek is characterized as an intermittent system that flows following significant winter precipitation and during snowmelt. Much of the stream flow that reaches the alluvial basin, which begins near the upper end of the OHV area, infiltrates into the bed of the creek (Thomsen & Schumann, 1968). The channel through the alluvial basin is dry most of the year. OHV impacts in the area include a small potential to introduce contaminants to ground and surface waters from spill of fuels and oils. OHV impacts can also disturb armor layers of channel bottom material that form during periods of high flow making the channel more susceptible to erosion. Golf Course OHV Area is a relatively small flat upland area of 17 acres just south of Superior. Watershed impacts at this site would be small and would consist primarily of increased runoff and erosion from compaction and rutting of soils and reduced vegetative ground cover. Page 106 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

113 Two tot lots are proposed. One is located in the Rolls Permit Zone (six acres) and one in the Sycamore OHV area (three acres). These areas would have minimal watershed impacts other than local increases in runoff and erosion from compaction of soils and removal of vegetative ground cover at the sites themselves. OHV Permit Zones Three permit zones in addition to the existing Bulldog Canyon Permit Zone would be created that would encompass about 112,814 acres and require the public to obtain a special use permit for accessing about 315 miles of roads and motorized trails in these zones. Vehicles would be required to stay on designated roads and motorized trails. The effects of designated roads and motorized trails authorized in these areas have been included in the tables displaying the overall watershed effects of this alternative. Unauthorized use of designated roads and trails is currently occurring in these areas. The primary effect of designating the Bulldog Canyon Permit Zone has been to reduce the proliferation of unauthorized routes that is occurring in nearby non-permit areas. Designating additional permit zones should also reduce or eliminate the proliferation of new unauthorized routes. Restricting use to designated roads and trails should reduce effects of cross-country travel and use of unauthorized routes and provide for some recovery of watershed conditions through improved vegetative ground cover and reduced soil compaction. Vegetative recovery in Sonoran Desert areas occurs slowly. A permit system also allows for user education and filters out most irresponsible users. It provides a first impression that the area is under management. Alternative 3: Direct and Indirect Effects Roads Table 47 displays the number of miles of roads in alternative 3 either within a 300-foot buffer of ephemeral and intermittent streams, perennial streams and lakes, and impaired water bodies or within the one-quarter mile corridor on each side of streams identified as potentially eligible for inclusion in the Wild and Scenic River System. No change in roads within the quarter mile corridor of existing Wild and Scenic Rivers is proposed in this alternative. The table also displays the change in road mileage within the various buffer categories between alternative 3 and existing conditions. Table 47: Alternative 3 Road within buffer zones or corridors of selected water features Tonto NF Perennial streams & lakes (mi) Change (mi) Intermittent & Ephemeral Streams (mi) Change (mi) Potentially Eligible Wild & Scenic Rivers (mi) Change (mi) Impaired Water Bodies (mi) Change (mi) Total , The net effect of this alternative on a forestwide basis is a small decrease in road miles within buffer distances or corridors of selected water resources features. Changes from existing conditions include a ten percent decrease in roads within a 300-foot buffer distance of perennial streams and lakes, a nine percent decrease in road mileage within the buffer distance of intermittent and ephemeral streams, a fifteen percent decrease in road mileage within the one quarter mile corridor of potentially Tonto National Forest Motorized Travel Management Environmental Assessment Page 107 of 269

114 eligible wild and scenic rivers, and a two percent decrease in road miles within the 300-foot buffer of impaired water bodies. These changes represent a small decrease in water resource impacts from those in the No Action Alternative. Table 48 displayed below identifies miles of roads within riparian areas, and number of stream crossings of perennial, and intermittent and ephemeral streams. It also displays the change in road miles and road crossings in this alternative from existing conditions. Table 48. Alternative 3 roads within riparian and stream areas Tonto NF In Riparian areas (miles) Perennial streams (number of crossings) Number of Stream Crossings Intermittent & ephemeral streams (number of crossings) Alt 3 Change Alt 3 Change Alt 3 Change Total , The forestwide effect of this alternative is a decrease in miles of roads within riparian areas, and a decrease in number of stream crossings by roads. Overall, these changes represent a fourteen percent decrease in road mileage within riparian areas, an eight percent decrease in road crossings of perennial streams, and a ten percent decrease in the number of crossings of intermittent and ephemeral channels. These changes represent a small decrease in miles of roads in riparian areas and a small decrease in water resources impacts from the No Action Alternative. Table 49 displays the number of HUC6 watersheds rated good, fair, or poor for road density and road proximity to streams attributes used in the Forest s watershed condition assessment process, and the change in number of watershed ratings for these attributes from existing conditions. Table 49. Alternative 3 Motorized road density & proximity to stream ratings for HUC6 watersheds HUC6 Condition Rating Road Density Proximity to Streams Change from Alternative 3 Existing conditions Alternative 3 Good Fair Poor Change from Existing conditions The number of HUC6 watersheds rated good for the road density attribute improves slightly from existing conditions under this alternative with ten watersheds improving to good, mostly from watersheds rated fair under existing conditions. The number of HUC6 watersheds improving for the proximity to streams attribute improves slightly with seven watersheds moving from the poor category to the fair category. The net effect is a small improvement in watershed impacts from those under existing conditions. The reduction in impacts contributes to the objective of designating roads and trails that minimize damage to watershed resources. Page 108 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

115 Motorized Trails There are 42 miles of motorized trails proposed in this alternative. This is 191 fewer miles than proposed in alternative 2. Motorized trails are assessed in the same manner as roads in terms of proximity to water resources, crossings of water resource features, and miles within riparian areas. Tables 50 and 51 below display these assessments. Table 50. Alternative 3 Motorized trails within 300 feet of selected water resource features, and within the corridors of potentially eligible Wild and Scenic Rivers Perennial Intermittent and Impaired water Potentially eligible Category streams & lakes ephemeral streams bodies Wild & Scenic Rivers Total Table 51. Alternative 3 Miles of motorized trails within riparian areas, and number of motorized trail crossings of streams Miles of trails within Trail crossings of Trail crossings of intermittent Category riparian areas perennial streams and ephemeral streams Total Impacts from motorized trails should be less than those of roads due to a smaller footprint on the land, although impacts still occur as described under alternative 2. Due to similar types of effects impacts of motorized trails are combined with those of roads in the summary table below. Table 52 displays the forestwide changes from existing conditions of the combined effects of motorized trails and roads on selected water resources features. There is no change in motorized route miles within the corridors of designated wild and scenic rivers from the existing conditions in this alternative. Table 52. Alternative 3 Forestwide changes from existing conditions within buffer zones and corridors of water resource features and changes in number of stream crossings from combined motorized trails and roads Perennial streams & lakes (mi) Intermittent & ephemeral streams (mi) Potentially eligible wild & scenic rivers (mi) Impaired water bodies (mi) Riparian areas (mi) Crossings perennial streams Crossings intermittent & ephemeral streams Combining motorized trails with roads still results in small decreases in motorized route mileages in terms of all water resource features. Miles of motorized routes within 300 feet of perennial streams and lakes decreases by about nine percent. Miles of motorized routes within 300 feet of intermittent and ephemeral streams decreases by almost eight percent. Miles of motorized trails and roads within the corridors of potentially eligible wild and scenic rivers decreases by approximately eleven percent. Miles of routes in riparian areas decreases by about fourteen percent. The number of crossings of perennial, and intermittent and ephemeral streams decreases by about six and nine percent respectively. The effects of combining motorized trails with motorized roads on the road density and proximity to water rating attributes for HUC6 watersheds are displayed in table 53 below. Tonto National Forest Motorized Travel Management Environmental Assessment Page 109 of 269

116 Table 53. Alternative 3 Effects of combining motorized trails with motorized roads on road density & proximity to water Motorized Roads Plus Motorized Trails Rating Attribute Road Density Proximity to Streams HUC6 Condition Rating Alternative 3 Change from Existing conditions Alternative 3 Change from Existing conditions Good Fair Poor Existing conditions include motorized routes + unauthorized routes The number of watersheds rated good for the road density attribute improves by eight watersheds with an equal amount of the change attributed to improvements resulting from a reduction in watersheds rated both fair and poor under existing conditions. The number of watersheds rated good for the proximity to streams attribute remains unchanged while the number rated fair for this attribute improves by six watersheds. The improvement comes from a reduction in the number of watersheds rated poor under existing conditions. The overall effect of roads and motorized trails on watershed conditions in this alternative is a small decrease in the impacts from existing conditions. The reduction in impacts helps meet criteria for minimizing damage to watershed resources. Unauthorized Routes No unauthorized routes are proposed to be added to the system under alternative 3. The changes (decreases) in impacts displayed in the tables above would be greater, if the miles of inventoried unauthorized routes were added to the mileage totals for the existing condition motorized routes. Motorized Cross-country Travel No motorized cross-country travel would be permitted under this alternative. Travel would be restricted to designated roads and trails only. Enforcement of this designation would eliminate impacts where unauthorized cross-country travel is currently occurring. Eliminating these impacts would allow watershed conditions to recover over time. Recovery in particularly fragile areas (areas of sensitive or erodible soils, or slow vegetative recovery) may not return watershed conditions to pre-disturbance levels. In some areas active restoration efforts may be needed to reduce watershed impacts. Eliminating motorized cross country travel would result in reduced impacts to watershed conditions from those under existing conditions. OHV Permit Zones Impacts of this alternative on watershed conditions would be the same as alternative 2 because acreage of permit zones and mileage of open roads and trails would be similar. Page 110 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

117 Alternative 4: Direct and Indirect Effects Roads Table 54 displays the number of miles of roads in alternative 4 either within a 300-foot buffer of ephemeral and intermittent streams, perennial streams and lakes, and impaired water bodies or within a one-quarter mile corridor on each side of streams identified as potentially eligible for inclusion in the wild and scenic river system. No change in roads within a quarter mile corridor of existing wild and scenic rivers is proposed in this alternative. The table also displays change in road mileage within various buffer categories between alternative 4 and existing conditions. Table 54. Alternative 4 - Roads within buffer zones or corridors of selected water features Category Perennial streams & lakes (mi) Change (mi) Intermittent & ephemeral streams (mi) Change (mi) Potentially eligible wild & scenic rivers (mi) Change (mi) Impaired water bodies Total , Totals may not add due to rounding. (mi) Change (mi) The net forestwide effect of this alternative is no change in road miles within buffer distances of perennial streams and lakes, and a small decrease of road miles within the buffer distances or corridors of other water resources features from the No Action Alternative. Changes from existing conditions include; a two percent decrease in road mileage within the buffer distance of intermittent and ephemeral streams, a ten percent decrease in road mileage within the one-quarter mile corridor of potentially eligible wild and scenic rivers, and a five percent increase in road miles within the 300- foot buffer of impaired water bodies. These changes represent a minor decrease in water resource impacts from those in the No Action Alternative. Table 55 displays miles of roads within riparian areas, and number of stream crossings of perennial, and intermittent and ephemeral streams. It also displays change in road miles and road crossings in this alternative from existing conditions. Table 55. Alternative 4 - Roads within riparian and stream areas Category In Riparian Areas (miles) Perennial Streams (no. of crossings) Number of Stream Crossings Intermittent and Ephemeral Streams (no of crossings) Alt 4 Change Alt 4 Change Alt 4 Change Total , The forestwide effect of this alternative is essentially no change in miles of roads within riparian areas, and an increase in number of road stream crossings. Forestwide, these changes represent a three percent increase in road crossings of perennial streams and a two percent increase in number of crossings of intermittent and ephemeral channels. These changes represent a minor increase in water resources impacts from the No Action Alternative. Tonto National Forest Motorized Travel Management Environmental Assessment Page 111 of 269

118 Table 56 displays the number of HUC6 watersheds rated good, fair, or poor for road density, road proximity to streams, and the change in number of watersheds rated for these conditions from existing conditions. Table 56. Alternative 4 - Motorized route density and proximity to streams ratings for HUC6 watersheds HUC6 Condition Rating Road Density Proximity to Streams Change from Alternative 4 Existing conditions Alternative 4 Good Fair Poor Change from Existing conditions The number of HUC6 watersheds rated good for the road density attribute improves slightly from existing conditions under this alternative with five watersheds improving to good from those rated for this attribute under existing conditions. The number of watersheds improving for the proximity to streams attribute improves slightly with four watersheds moving from the poor category to the fair category. The net effect would be a slight reduction in watershed impacts from those under existing conditions. Motorized Trails There are 259 miles of motorized trails proposed in this alternative. Of these, 36 miles are being converted from existing roads (ML 2 to 5), 53 miles are being converted from closed roads (ML1), and 170 miles are being added to the system from inventoried unauthorized routes. This is 26 miles more than are proposed in alternative 2 and 217 miles more than proposed in alternative 3. Motorized trails are assessed in the same manner as roads in terms of proximity to water resources, crossings of water resource features, and miles within riparian areas. Tables 57 and 58 display these assessments. Table 57. Alternative 4 - Motorized trails within 300 feet of selected water resource features, within riparian areas, and number of motorized trail crossings of streams Perennial Intermittent & Impaired water Potentially eligible wild Category streams & lakes ephemeral streams bodies & scenic rivers Total Table 58. Alternative 4 - Miles of motorized trails within riparian areas, and number of motorized trail crossings of streams Miles of trails within Trail crossings of Trail crossings of intermittent & Category riparian areas perennial streams ephemeral streams Total Impacts from motorized trails should be less than those of other motorized routes due to a smaller footprint on the land as described under alternative 2. Table 59 displays the forestwide changes from existing conditions of the combined effects of motorized trails and other motor vehicle routes on Page 112 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

119 selected water resources features. There is no change in motorized route miles within the corridors of designated wild and scenic rivers from the existing conditions in this alternative. Table 59. Alternative 4 - Forestwide changes from existing conditions within buffer zones and corridors of water resource features and changes in number of stream crossings from combined motorized trails and other motorized routes Perennial streams & lakes (mi) Intermittent & ephemeral streams (mi) Potentially eligible wild & scenic rivers (mi) Impaired water bodies (mi) Riparian areas (mi) Crossings perennial streams Crossings intermittent & ephemeral streams Combining motorized trails with other motorized routes results in small increases in motorized route impacts in terms of effects on most water resource features and a small decrease in effects on potentially eligible wild and scenic rivers. Miles of motorized routes and trails within the 300 foot buffer distances of perennial, and intermittent and ephemeral streams increases by about two percent and five percent respectively, miles of motorized roads and trails within 300 feet of impaired water bodies increases by about twelve percent and miles of motorized routes and trails in riparian areas decreases by about one percent. The number of crossings of perennial, and intermittent and ephemeral streams increases by nine percent and twelve percent respectively. The number of miles of motorized roads and trails within the corridors of potentially eligible wild and scenic rivers decreases by seven percent. The effects of combining motorized trails with motorized roads on the road density and proximity to water rating attributes for HUC6 watersheds are displayed in table 60 below. Table 60. Alternative 4 - Effects of combining motorized trails with motorized roads on road density & proximity to water Motorized roads plus motorized trails HUC6 Condition Rating Alternative 4 Road Density Change from existing conditions Proximity to Streams Alternative 4 Change from existing conditions Good Fair Poor Existing conditions include motorized routes + unauthorized routes Very little change occurs in the numbers of watersheds changing condition class for the road density and proximity to water attributes under this alternative. A small decrease in the number of watershed rated poor for the proximity to water attribute is the only real difference. Unauthorized Routes Approximately 351 miles of inventoried unauthorized routes would be added to the transportation system, 159 miles as system roads (ML2 to 5), 21 miles as administrative use only roads (ML2), and 170 miles as motorized trails. The remaining inventoried unauthorized routes would be decommissioned. The impacts of these routes are incorporated into the analysis of roads and Tonto National Forest Motorized Travel Management Environmental Assessment Page 113 of 269

120 motorized trails described in this alternative. Changes in impacts between existing conditions and the alternative 4 would be reduced from those described in the preceding tables, if the data from the unauthorized routes displayed in alternative 1 were included in the assessment of changes. The tables above consider only changes from the existing designated transportation system on the Forest. Remaining inventoried unauthorized routes were not added to the system for a variety of reasons including adverse impacts on watershed conditions. Motorized Cross-country Travel Impacts would be the same as alternative 2 OHV Permit Zones Impacts would be similar to alternative 2 because acreage within the permit zones would be the same, although miles of NFS roads and motorized trails would increase by 38 miles. All Alternatives: Summary Effects In summary, alternatives 2, 3, and 4 would result in minimal changes to the existing condition for forest watersheds based on decisions for designating roads, trails, OHV areas, permit zones, motorized big game retrieval, and motorized dispersed camping corridors. Table 61 below provides a summary of the total miles and percent change in road and trail mileage for selected water features for each alternative. Table 61. Summary of roads within buffer zones or corridors of selected water features Category Alternative 1 Alternative 2 Alternative 3 Alternative 4 Selected % % % % water Miles Miles Miles Miles change change change change feature Perennial streams & lakes Intermittent & ephemeral 1, , , , streams Wild & scenic rivers Potentially eligible wild & scenic rivers Impaired water bodies In riparian areas Page 114 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

121 Category Alternative 1 Alternative 2 Alternative 3 Alternative 4 No. of crossings % change No. of crossings % change No. of crossings % change No. of crossings % change Perennial streams Intermittent & ephemeral streams 8, , , , HUC6 Road Density Assessment No. of watersheds Change No. of watersheds Change No. of watersheds Change No. of watersheds Change Good Fair Poor HUC6 Proximity to Water Assessment No. of watersheds Change No. of watersheds Change No. of watersheds Change No. of watersheds Change Good Fair Poor Travel Management Rule In compliance with 36 CFR (a) and (b), effects to water resources and potential damage to watershed condition were considered in the development of the road and trail additions proposed in alternatives 2, 3, and 4. The objective was to minimize impacts, as demonstrated by the following: 1. Site-specific information regarding the nature and location of routes causing sedimentation and affecting riparian areas was used in the development of the alternatives in an interdisciplinary setting to determine route-specific recommendations, identify mitigations, and estimate potential effects. The objective was to avoid off-route sedimentation and negative effects to riparian areas. 2. On some routes avoidance could not be achieved because of the need to balance resource impacts with access needs. In those cases, Best Management Practices (BMP s) will help to minimize effects (U.S. Forest Service, 2011, Draft). 3. Routes with off-site erosion and sedimentation concerns and routes that adversely affect riparian areas that could not be mitigated to acceptable levels were not proposed for addition to NFS roads and motorized trails. 4. Travel off of designated routes will be prohibited after roads and trails have been designated, further minimizing effects to off-site soil erosion, sedimentation, and riparian areas. For site-specific information related to roads, motorized trails, and unauthorized routes, see the Travel Analysis Process route reports for each district (U.S. Forest Service, 2011). Tonto National Forest Motorized Travel Management Environmental Assessment Page 115 of 269

122 All Alternatives: Cumulative Effects Vegetation and fuels management are planned to have a net, long-term improvement to soil and water conditions although there may be short-term negative impacts during implementation. Mitigation measures and Best Management Practices are designed to mitigate any short-term impacts that may occur from project implementation. Livestock grazing activities (past and ongoing) have impacted riparian and water resource conditions but re-authorizations of grazing permits are designed to minimize impacts to these resources. Route realignment, reconstruction, or decommissioning may occur with future projects and access through or required by other land jurisdictions may impact the Forest. The extent of these changes cannot be predicted or quantified. Future changes to routes will be planned and mitigated to reduce impacts. Urban development and interface growth will continue on private lands. These will not directly affect National Forest land, but runoff from urban development can cause an increase in erosion and affect water quality on downstream NFS lands. Future mineral exploration, land exchanges, and utility construction are either planned or likely to occur. Disturbance can be relatively minor in some cases such as small utility constructions, but in mineral exploration disturbance can be extensive. Visitor access to The Rolls, St. Claire, and Sycamore sites may be restricted in the future. Restrictions may prevent continued proliferation of unauthorized routes and prevent additional impacts to soil and watershed conditions. In response to air quality concerns, city/town, county, and state restrictions are in place for use of recreational vehicles on unpaved roads and vacant lots in regions of Maricopa and Pinal counties that are failing to attain Federal Air Quality Health Standards set by the Environmental Protection Agency. Measures implemented on NFS lands to reduce air quality impacts such as road paving, hardening of OHV parking areas, enforcing speed limits on unsurfaced roads, and placing limits on user numbers may also reduce watershed impacts. A number of major road construction projects are planned by other government entities well into the future. Road construction can have short term impacts on water quality, but impacts are minimized through implementation of BMPs. Over the long term, additional paved surfaces can increase runoff, erosion, and introduction of contaminants into waterways. Construction of the Tonto Creek Bridge may result in reduced watershed impacts if one or more of the current low water crossings are closed and the site is allowed to revegetate. Soils Affected Environment This section describes relevant existing conditions of soil resources that would affect or that would be affected by an alternative, if it was implemented. Soil resources and their existing conditions will be analyzed forestwide by ranger district. Soil condition, soil erosion risks, soil strength, known erosion scars, and road density were units of measure used to analyze effects associated with roads. Page 116 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

123 Table 62 illustrates the estimated current soil condition (from Sustainability Analysis of the Tonto National Forest, Ambos, 2007b). Satisfactory soil conditions have soil productivity maintained under current use. Unsatisfactory and Impaired soil conditions indicate a loss of soil function and soil productivity (FSH , R3 Supplement No , 1999). About 22.5 percent of the Forest has soils that are Inherently Unstable. Another 40 percent has soils that are Impaired and Unsatisfactory. About 37.5 percent are Satisfactory. Soils that are impaired, unsatisfactory, or inherently unstable are generally more sensitive to impacts from cross-country travel or unauthorized roads than soils that are in satisfactory condition. Table 62. Soil Condition on the Tonto National Forest Soil Condition Class Acres* Current Percent Satisfactory 1,061, % Impaired 633, % Unsatisfactory 496, % Inherently Unstable 636, % Totals 2,828, % *Totals do not include large areas of private land within the Tonto NF proclamation boundary. Soils with high erosion risks intersect 1,940 miles of system roads (see table 63). These soils are susceptible to erosion from concentrated runoff off of road surfaces. In these areas, roads with native surfaces are at a high risk of having those surfaces eroded. An unknown number of unauthorized routes also occur on these soils. Erosion in these areas is often high, since unauthorized routes often occur on steep slopes and have no engineering designs that would reduce erosion. Table 63. Erosion Risks on Tonto National Forest - existing roads Ranger District Erosion Risk (Miles of Roads*) Percent High Mod Low Total High Mod Low Cave Creek % 31% 47% Globe % 25% 35% Mesa % 1% 73% Payson % 9% 19% Pleasant Valley % 17% 50% Tonto Basin % 17% 52% Total 1, ,218 5,017 39% 17% 44% * Includes private lands, State and County Highways, and local roads, does not include decommissioned roads. Total by ranger district does not include miles of roads with no erosion data. The total of roads with no data for the Forest is 58 miles. Table 64 illustrates soil strength on the Forest. Soils with low-to-moderate strength amount to about 40 percent of the Forest. Travel on wet soils with low strength has been known to rut soil and cause accelerated soil erosion in as little as one pass. Motorized cross-country travel on sensitive soils risks impairing soil productivity. Tonto National Forest Motorized Travel Management Environmental Assessment Page 117 of 269

124 Table 64. Soil Strength on Tonto National Forest existing roads Ranger District Soil Strength (Miles of Roads*) Percent Low Mod High Total Low Mod High Cave Creek % 15% 65% Globe % 23% 72% Mesa % 2% 97% Payson % 41% 51% Pleasant Valley % 57% 18% Tonto Basin % 11% 70% Total 678 1,351 2,920 4,949 14% 27% 59% * Includes private lands, State and County Highways, and local roads, does not include decommissioned roads. Total by ranger district does not include miles of roads with no erosion data. The total of roads with no soil strength data for the Forest is 123 miles. Known erosion scars are rills and gullies within road prisms or directly adjacent to roads where runoff from roads has created erosion problems where, because of road layout or surrounding topography, roads are likely to be washed out or become impassable after storm events. The rating of roads subject to erosion differs from the rating of roads occurring on soils with high erosion risks, which occur on soils than tend to be erosive. Erosion factors, along with all other factors, were considered when evaluating the status of a road (table 65). Table 65. Erosion Scars on Tonto National Forest existing roads Ranger District Known Erosion Scars Subject to Erosion Cave Creek 21 No data Globe Mesa Payson 4 3 Pleasant Valley 40 5 Tonto Basin 47 0 Total Roads contribute more sediment to streams than any other land management activity (Gibbons & Salo, 1973). Therefore road density can be used as a measure of the impacts of roads on erosion. The Tonto National Forest currently has a road density of 1.10 miles per square mile of all roads on all lands within the Forest proclamation boundary (table 66 includes roads on private lands, state and county highways, and local roads). Table 66: Existing Routes within Forest Boundary Jurisdiction Miles Forest Service 5,523 Non FS Total* 580 Total 6,130 * Includes private lands, State and County Highways, and Local Roads. Page 118 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

125 The Forest Service Watershed Condition Classification Technical Guide (U.S. Forest Service, 2010) recommends a density of one mile per square mile, but stresses that increasing road density has been correlated with increasing sediment yield in many studies nationwide. However, numerous other factors including soils, geology, slope, and road condition also influence sediment yield. The result is that road density is not a perfect predictor of impacts to sediment yield. While there are no absolute thresholds for acceptable road densities, generally fewer miles of roads/mi2 will have a lighter impact. Types of Routes and their use in this soil assessment procedure: 1. Routes considered to affect soil conditions include the following Objective Maintenance level roads: all Maintenance Level 1 (closed to motor vehicles), Level 2(maintained for high-clearance vehicles), Level 3 (suitable for passenger cars), Level 4 (moderate degree of user comfort), and Level 5 (high degree of user comfort). 2. In addition, roads within the Forest Proclamation Boundary, but not administered by the Forest Service were included in this assessment, because they influence runoff and soil conditions. They are State, County, private, and local roads. There are about 580 miles of roads within this category. Therefore, all discussions of alternatives include cumulative impacts from roads not administered by the Forest. 3. Motorized trails (both ATV and motorcycle) are likely to have slightly less of an impact on soil conditions than roads because of a smaller footprint. However, differences are not measurable at the scale of this analysis because of limited extent of motorized trails compared to roads. Therefore, for the purpose of this assessment, roads and motorized trails were assumed to have similar impacts. 4. Routes not considered to impact soil conditions include decommissioned roads (planned for removal from the system) and roads converted to another use (normally non-motorized trails). Non-motorized trails are outside the scope of the travel management decision. 5. Unauthorized routes are not part of the officially recognized transportation system. It is recognized that unauthorized routes impact soils and it is expected that they will continue to be used by the public under the current condition. Therefore, impacts of unauthorized routes were considered in analyzing overall impacts of roads and motorized trails. Approximately 590 miles of unauthorized routes have been inventoried. Site-specific information related to these routes conditions can be found in the Travel Analysis Process route reports (U.S. Forest Service, 2011). 6. Changes in administrative use of roads and restrictions on season of use are expected to have a negligible effect on soil conditions. The setting of roads has a much larger impact on soils than the type of use. Therefore, changes in allowable access (i.e., from a closed or open road to an administrative use road or season of use) were not considered in assessing effects to soils. However, it is acknowledged that seasonal restrictions on roads and trails in the Pleasant Valley Ranger District during winter months when the ground is wet will mitigate some effects of roads on soils (see Appendix G Proposed Route Changes for Alternatives 2 through 4 for specific road information). Tonto National Forest Motorized Travel Management Environmental Assessment Page 119 of 269

126 7. Changes in vehicle class of road (or maintenance level) are expected to have a negligible effect on soil conditions. Changing road maintenance levels may impact soils conditions, but generally impacts are small and may not be measurable in the scale of this analysis. It is also difficult to predict how different maintenance levels affect soil conditions. A lower maintenance level road may have a lesser impact than a higher level road and vice versa depending on location or engineering. Therefore changes in maintenance level were not considered in assessing effects to soils. Roads and, to a lesser extent, motorized trails have three primary effects that can affect erosion: They intercept rainfall directly on road surface and road cutbanks and intercept subsurface water moving down the hillslope; They concentrate flow, either on the surface or in an adjacent ditch or channel; and They divert or reroute water from flowpaths that it would otherwise take, if the road were not present. Concentrated flow can result in an increase in rill and gully erosion. Most hydrologic and geomorphic consequences of roads result from one or more of these processes. For example, by intercepting surface and subsurface flow, and concentrating and diverting it into ditches, gullies, and channels, road systems effectively increase stream density in the landscape, thereby changing the amount of time required for water to enter a stream channel, altering timing of peak flows and hydrograph shape (King & Tennyson, 1984; Wemple, et al., 1996). Roads directly affect natural sediment and hydrologic regimes by altering streamflow, sediment loading, sediment transport and deposition, channel morphology, channel stability, substrate composition, stream temperatures, water quality, and riparian conditions in a watershed (Gucinski, et al., 2000). Components Analyzed and Units of Measure: Effects to the following environmental components were analyzed as units of measure for Forest activities proposed by alternative (see table 67 Comparison of Alternatives for Soil Conditions). 1. Motorized cross-country travel. a. Total acres open to cross-country travel. b. Acres of concentrated OHV use. c. Acres by soil condition open to cross-country travel. d. Acres by erosion risk open to cross-country travel. 2. Miles and number of system roads by soil parameters: a. Soil Erosion Risk b. Soil Strength c. Known Erosion Scars d. Routes Subject to Erosion 3. Miles of unauthorized routes by soil parameters: a. Soil Erosion Risk b. Soil Strength c. Known Erosion Scars d. Routes Subject to Erosion 4. Length and Density (Roads/Mile 2 ) of roads. 5. Acres open to big game retrieval. 6. Acres open to motorized dispersed camping. 7. Number and Acres of OHV Permit Zones. Page 120 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

127 Travel Management Rule Soil resource components identified in the Tonto National Forest Travel Analysis Process (TAP) that are at risk from motorized travel on both established roads and cross country travel are the following (appendix F): Soil productivity due to road location or cross-country travel Soils with moderate-to-high erosion risks or low-to-moderate strength at risk due to road locations or cross-country travel Road segments and associated motorized traffic that intersected the soil resources with moderate-tohigh risks were identified and listed as posing possible risks to soil resources. These possible impacts to soil were one factor in deciding if a route was a candidate for closure. Other resource areas (wildlife, archaeology, invasive weeds, timber, and watershed) also identified routes most at risk from motorized vehicle use. These were combined with the soil risks mentioned above to develop a proposed action road network where high risk routes were proposed closed to motor vehicle use and high benefit routes remained open for necessary motorized access. In compliance with 36 CFR (a)(b), effects to soil erosion and soil quality were considered in the development of the road and trail additions in alternatives 2, 3, and 4. The objective was to minimize impacts, as demonstrated by the following: 1. Site-specific information regarding the nature and location of routes with both on-site and off-site erosion concerns was used in developing alternatives in an interdisciplinary setting to determine route-specific recommendations, identify mitigations, and estimate potential effects. The objective was to minimize off-route erosion and avoid route expansion. See Travel Analysis Process route reports for site-specific information (U.S. Forest Service, 2011). 2. On some routes, avoidance could not be achieved because of the need to balance resource impacts with access needs. In those cases, Best Management Practices (BMPs) will help to minimize effects (U.S. Forest Service, 2011, draft). 3. Travel off designated routes will be prohibited after roads and motorized trails have been designated, further minimizing effects to soil productivity. Environmental Effects Alternative 1 - No Action: Direct and Indirect Effects NFS Roads and motorized trails The Tonto National Forest currently has a road density of 1.10 miles per square mile of all official roads within the Forest boundary and an unknown number of unauthorized routes (see Table 67 - Comparison of Alternatives for Soil Conditions). Alternative 1 has an undetermined amount of unauthorized routes that have an impact on sensitive soils. If known unauthorized routes that occur under alternative 1 (at least 590 miles) are considered, alternative 1 has density of around 1.2 mi/mi 2. Miles of routes by soil parameters are shown in table 67 Comparison of Alternatives for Soil Conditions. This has contributed to the current condition as described in the affected environment section. Tonto National Forest Motorized Travel Management Environmental Assessment Page 121 of 269

128 Motorized cross-country travel Under the No Action Alternative, unrestricted, cross-country travel could continue to adversely affect soil condition and soil productivity on 700,004 acres of Payson and Pleasant Valley ranger districts where cross-country travel is not prohibited by existing closure. Repeated tracking by OHV use directly impacts soil by removing the protective vegetation layer to bare soil and loosening soil aggregates through tire churning, rutting, and soil displacement, thus exposing soil to accelerated erosion resulting in loss of soil productivity. The impacts are most pronounced during periods when soil is wet. OHV use indirectly causes accelerated erosion and transport to connected streams following storm events. Repeated OHV travel on soils with moderate or high erosion risk is most likely to cause accelerated erosion, runoff and sediment delivery into connected stream courses, posing a risk to long-term soil productivity. On soils with slight erosion risk, the direct impact of OHV activity is lower, but could cause a loss of soil productivity when vegetative ground cover is removed, soil is compacted, or rutting occurs. About 65 percent of the portions of Payson and Pleasant Valley ranger districts that are open to crosscountry travel contain soils with moderate and high erosion risks and low and moderate strength (see table 67 Comparison of Alternatives for Soil Conditions). These soils are vulnerable to motorized vehicle travel. Motorized vehicle use could result in accelerated soil erosion on areas where repeated OHV use occurs and soils have moderate and high erosion risk. Soil condition on areas open to cross-country travel contain about 25 to 30 percent of soils considered to be unsatisfactory or impaired from past disturbances. Continued repeated cross-country motorized travel on these soils would cause accelerated erosion and contribute to reduced long-term soil productivity and vegetative cover. There are several areas where unauthorized concentrated OHV use is occurring. Approximately 2,500 acres have been disturbed, primarily in the Desert Vista area of Cave Creek Ranger District and the Lower Sycamore area of Mesa Ranger District. Resource damage has occurred in these areas including loss of vegetation, rutting of slopes, and gully erosion. Unless motorized use in these areas is managed, these areas may expand. Motorized dispersed camping Under the No Action Alternative, continued, unrestricted motorized dispersed camping would occur on Payson and Pleasant Valley ranger districts where driving off road is permitted by the Forest Plan and in very limited areas of the southern four ranger districts where off road driving is posted open. In these areas, motorized travel would continue to cause localized impacts to soils, but would be restricted to areas minor in extent. The greatest amount of watershed damage appears to occur from activities commonly associated with camping, including repeated cross-country travel. Where repeated cross-country travel occurs or even single passes on wet soils, soil damage has been observed including rutting and accelerated erosion on steeper slopes and loss of soil productivity. Although very limited in extent, motorized dispersed camping could have adverse effects to soil resources where roads provide access to sensitive soils and riparian areas. On wet soils where repeated cross-country travel continues or even where single passes occur, soil damage has been observed and would continue under this alternative. Dispersed camping has the direct effect of disturbing vegetative ground cover, exposing bare soil, causing soil compaction and rutting on wet Page 122 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

129 soils, and causing accelerated sheet and rill erosion. Although motorized dispersed camping can have moderate impacts to soil conditions at popular dispersed campsites, the limited extent of dispersed camping on a forestwide basis results in only minor impacts overall. Motorized big game retrieval Under the No Action Alternative, continued, unrestricted game retrieval would occur only in areas of Payson and Pleasant Valley ranger districts, unless otherwise posted. Approximately 700,004 acres could be affected. About 65 percent of the area available for motorized big game retrieval has moderate-to-high erosion risks and 25 to 30 percent of that area has impaired or unsatisfactory soils. It is likely that some motorized big game retrieval occurs in ranger districts outside of posted open areas. Average big game harvest for the past three years has been 1,150 animals. Not all harvested animals are retrieved by motorized means and most motorized travel for retrieval occurs within 200 yards of a road. We estimate that approximately 30 percent of these animals are retrieved using a vehicle. Most motorized game retrieval also involves a single trip with a vehicle (typically an ATV). Webb (1983) found that after a single pass, annual plants on an OHV route remained intact, but most were destroyed after ten passes. We expect perennial plants to be more robust, and therefore perennial plants are likely to also sustain one to two passes. Minimal impacts on vegetative ground cover and soil compaction are expected from motorized retrieval of big game. Based on the low number of trips required for big game retrieval, short distance needed for retrieval, and low number of OHV crossings of a site, motorized big game retrieval has minimal effects on soil conditions. Big game retrieval on upland soils under conditions of dry soils would not be expected to appreciably affect vegetation, soil condition, and productivity. Localized impacts would be most pronounced where motorized traffic occurred on wet soils, which could cause soil compaction and loss of vegetation. Unauthorized routes There are currently 590 inventoried miles. It is likely that public use of unauthorized routes would continue and possibly even increase in number. Unauthorized routes present a special problem for soil conditions for several reasons. The roads are not properly engineered, do not have proper drainage and erosion control built into them, often occur on steep, erosive soil, and many are located in sensitive areas such as riparian areas. A large number of routes in Desert Vista and Lower Sycamore Creek areas have known erosion scars. The existence and proliferation of unauthorized routes will have negative effects on soil condition. OHV Permit Zone The existing Bulldog Canyon OHV Permit Zone (figure 2) would continue to require a gate combination code and a free permit from the Forest. This zone totals 34,720 acres and affects 30 miles of roads. It is likely that there is little difference between soil conditions within and outside of these Permit Zones with the exception that users of the Permit Zones tend to be more aware of restrictions and are more likely to stay on designated routes, which is an overall benefit to soil conditions. Tonto National Forest Motorized Travel Management Environmental Assessment Page 123 of 269

130 Alternative 2 - Proposed Action: Direct and Indirect Effects NFS Roads and motorized trails Under alternative 2, the density of roads and motorized trails (including those being converted from unauthorized routes) would be 1.10 miles per square mile. When taking into account unauthorized routes, this would be a slight decrease (about 8 percent) in density compared to current condition of around 1.2 mi/mi 2, therefore also decreasing impacts to soils. Miles of routes by soil parameters are shown in table 67 Comparison of Alternatives for Soil Conditions. There would be a very difference in negative soil parameters compared to existing roads in alternative 1. When known unauthorized routes are considered, there would be a net overall decrease in negative soil parameters. Motorized cross-country travel Under alternative 2, motorized cross-country travel would be reduced to designated motorized crosscountry areas allowing unrestricted cross-country travel on 1,417 acres or less than 0.1 percent of the Forest. The designated areas have been heavily impacted in the past from concentrated OHV use. The direct effect will be continued erosion and loss of vegetation in these areas. About one-quarter of the Sycamore area has steep slopes on erosive soil. Other areas are considerably flatter with a lower risk of erosion. An indirect effect may be less off-road OHV use in other parts of the Forest as OHV users may spend more time in designated areas. Less than 10 percent of areas open to cross-country travel contain soils with moderate and high erosion risks and low and moderate strength, a reduction of 55 percent compared to current condition (see table 67 Comparison of Alternatives for Soil Conditions). About 90 percent of soils on areas open to cross-country travel are considered to be unsatisfactory or impaired from past disturbance; however, this represents less than 0.1 percent of impaired and unsatisfactory soils forestwide. Continued repeated cross-country motorized travel on these soils in cross-country travel areas would cause accelerated erosion and contribute to reduced long-term soil productivity and vegetative cover. The net result of this alternative would likely be continued heavy impacts to OHV areas covering less than 0.1 percent of the Forest, while lessening impacts to soils forestwide. Motorized dispersed camping As under alternative 1, roadside parking one car length from roads could still occur. Closing Payson and Pleasant Valley ranger districts to motorized cross-country travel would reduce disturbance from cross-country travel that occurs to access dispersed camping sites in these ranger districts. Impacts to soils would be localized and very minor in extent, but could occur if parking repeatedly occurs in the same area or if soils are wet. The net effect of eliminating motorized cross-country travel to dispersed campsites would be a negligible reduction in impacts, when compared to the No Action Alternative. Motorized big game retrieval Motorized, big game retrieval could occur within 200 yards either side of NFS roads and motorized trails (400 yards total) for retrieval of elk and bear. This would cover about 418,432 acres. About 60 to 65 percent of the area available for motorized big game retrieval has moderate-to-high erosion risks and 55 percent of that area has impaired or unsatisfactory soils. Erosion risk per acre is similar to Page 124 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

131 alternative 1, but there are fewer total acres. There are slightly more acres of impaired and unsatisfactory soils that could be potentially impacted. This alternative, however, has much less area open to retrieval than alternative 1 (700,004 acres). Motorized travel would continue to directly cause localized impacts to soils and riparian areas and be most pronounced where motorized traffic occurred on wet soils. Motorized traffic on wet soils would cause soil compaction and loss of vegetation. However, big game retrieval on upland soils under conditions of dry soils would not be expected to appreciably affect vegetation, soil condition and productivity. The overall impacts would be small and localized. Unauthorized routes The Forest has inventoried about 590 miles of unauthorized routes. Under alternative 2, 152 miles of these routes would be added to the transportation system as roads and 139 miles as motorized trails (291 miles total). Routes not added to the system would not be physically changed on the ground until future site-specific analysis is completed. Effects of adding unauthorized roads to the system are evaluated by looking at the total resulting road density as described under NFS roads and trails above. Miles of unauthorized routes by soil parameters are shown in table 67 Comparison of Alternatives for Soil Conditions. Overall, there would be a decrease in impacts compared to alternative 1 because routes added to the system would require proper mitigation measures and following Best Management Practices (BMPs). OHV Permit Zone Under alternative 2, four OHV Permit Zones covering 122,814 acres would be established. Motorized users would need to acquire a permit from the Forest to access these zones. These zones restrict motorized public access on 241 miles of roads and 75 miles of trails. About 35 percent of permit zones have moderate to high erosion risks, compared to 20 percent under alternative 1. About 70 to 75 percent of permit zones have impaired or unsatisfactory soils, compared to 55 to 60 percent under alternative 1. Although impacts to soils within these areas would be similar to impacts to soils outside of these Permit Zones where cross-country travel is restricted, increased zone acreage will result in a net benefit to soil resources, because users of Permit Zones tend to be more aware of restrictions and are more likely to stay on designated routes. As a result impacts to soils in Permit Zones would likely be slightly less than in areas outside of these zones. Alternative 3 NFS Roads and motorized trails Under alternative 3, density of roads and motorized trails (including those being converted from unauthorized routes) would be 1.01 miles per square mile. When taking into account unauthorized routes, this would be a decrease in density (almost 16 percent) compared to current condition of around 1.22 mi/mi2, therefore also decreasing impacts to soils. Miles of routes by soil parameters are shown in table 67 Comparison of Alternatives for Soil Conditions. Tonto National Forest Motorized Travel Management Environmental Assessment Page 125 of 269

132 There would be an overall decrease in negative soil parameters compared to existing roads in alternative 1. When known unauthorized routes are considered, there would be a large net overall decrease in negative soil parameters. Motorized cross-country travel Under alternative 3, motorized cross-country travel would be completely eliminated and would not contribute to degradation of erodible, unsatisfactory, impaired, or inherently unstable soils. Soil productivity and functions would improve on impacted soils, both short-term and long-term. The net result of this alternative would be to reduce impacts to designated areas; however without these areas, OHV users may increase impacts to other areas of the Forest. Motorized dispersed camping Impacts would be similar to alternative 2. Motorized big game retrieval Under alternative 3, motorized big game retrieval would not occur and so would not contribute to degradation of erodible, unsatisfactory, impaired, or inherently unstable soils. Unauthorized routes Under alternative 3, no unauthorized routes would be added to the system. Potential impacts from adding these routes to the transportation system would not occur. OHV Permit Zone Impacts would be similar to alternative 2. Alternative 4 NFS Roads and motorized trails Under alternative 4, density of roads and motorized trails (including those being converted from unauthorized routes) would be 1.12 miles per square mile. When taking into account unauthorized routes, this would be a slight decrease in density (about 7 percent) compared to current condition of around 1.22 mi/mi2, therefore also decreasing impacts to soils. Miles of routes by soil parameters are shown in Table 67 Comparison of Alternatives for Soil Conditions. There would be a very slight overall increase in negative soil parameters compared to existing roads in alternative 1. When known unauthorized routes are considered, there would be a net overall decrease in negative soil parameters. Motorized cross-country travel Impacts would be similar to alternative 2. Page 126 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

133 Motorized dispersed camping Impacts would be similar to alternative 2. Motorized big game retrieval Motorized, big game retrieval could occur within 200 yards either side of NFS roads and motorized trails (400 yards total). Under alternative 4, deer, in addition to bear and elk could be retrieved which could affect about 533,926 acres. Effects of game retrieval would be similar to alternative 2, with more area affected in alternative 4 than in alternative 2. About 50 percent of the area available for motorized big game retrieval has moderate-to-high erosion risks and 55 percent of that area has impaired or unsatisfactory soils. Erosion risk per acre is slightly lower than alternative 1 and there are fewer total acres. There are slightly more acres of impaired and unsatisfactory soils that could be potentially impacted. This alternative has much less area open to retrieval than alternative 1 (700,004 acres). Unauthorized routes The Forest has inventoried about 590 miles of unauthorized routes. Under alternative 4, 180 miles of these routes would be added to the transportation system as roads and 170 miles as motorized trails (350 miles total). Routes not added to the system would not be physically changed on the ground until future site-specific analysis is completed. Effects of adding unauthorized roads to the system are evaluated by looking at the total resulting road density as described under NFS roads and trails above. Miles of unauthorized routes by soil parameters are shown in table 67 Comparison of Alternatives for Soil Conditions. Overall, there would be a decrease in impacts compared to alternative 1, because routes added to the system would require proper mitigation measures and following Best Management Practices (BMPs). OHV Permit Zone Under alternative 4, impacts from establishing four OHV Permit Zones covering 122,814 acres and restricting motorized public access on 265 miles of roads and 89 miles of trails would be similar to alternative 2. Tonto National Forest Motorized Travel Management Environmental Assessment Page 127 of 269

134 Comparison between Alternatives Comparisons between alternatives were completed by identifying routes whose status would change from existing, analyzing if those changes would affect soil conditions, identifying the effects of those changes, and comparing these changes between alternatives as shown in table 67. Based on the units of measure described, overall impacts to soil would be least in alternative 3. Impacts under alternative 2 would be greater than alternative 3, but less than or equal to impacts from alternatives 1 and 4. Alternative 4 would have more impacts than other action alternatives, but less than No Action Alternative 1. Alternative 1 would adversely affect soil condition and productivity more than all other alternatives because motorized cross-country travel would continue on about one-third of the Forest and unauthorized routes would likely continue to be used and increase in extent. Table 67. Comparison of Alternatives for Soil Conditions Action & Units of Measure (1) Motorized Cross-Country Travel Acres Open to Cross-Country Travel Acres of Unauthorized Concentrated OHV Use Alternative 1 (No Action) 700,004 acres of Payson and Pleasant Valley RD Approximately 2,500 acres and expanding Alternative 2 (Proposed Action) 1,417 acres (four designated areas) Alternative 3 Alternative 4 0 acres Same as Alternative 2 No unauthorized use Percent of Motorized Cross-Country Travel acres with Moderate to High Erosion Risks 65% Less than 10% 0 Same as Alternative 2 Percent of Motorized Cross-Country Travel acres with Impaired or Unsatisfactory Soils 25 to 30% 90% (increase is due to decrease in crosscountry acreage) 0 Same as Alternative 2 Total Percent of all Impaired or Unsatisfactory Soils in Motorized Cross-Country Travel Areas 15 to 20% Less than 0.1% 0 Same as Alternative 2 (2) Miles and Number of Routes (Roads and Motorized Trails, including unauthorized routes) by Soil Parameters Total Miles and Number of Routes (Roads and Motorized Trails) by Soil Parameters Page 128 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

135 Action & Units of Measure Miles of Routes with Moderate and High Erosion Risk Alternative 1 (No Action) Alternative 2 (Proposed Action) Alternative 3 Alternative 4 3,061 Miles 2,731 Miles 2,646 Miles 2,883 Miles Miles of Routes with Low to Moderate Strength 2,190 Miles 2,016 Miles 1,960 Miles 2,033 Miles Number of Routes with Known Erosion Scars Number of Routes Subject to Erosion Total Miles and Number of Roads by Soil Parameters Miles of Roads with Moderate and High Erosion 2,799 Miles* 2,597 2,620 2,736 Risk Miles of Roads with Low to Moderate Strength 2,031 Miles* 1,942 1,940 1,957 Number of Roads with Known Erosion Scars 222* Number of Roads Subject to Erosion 47* Total Miles and Number of Motorized Trails by Soil Parameters Miles of Motorized Trails with Moderate and High Erosion Risk Miles of Motorized Trails with Low to Moderate Strength Number of Motorized Trails with Known Erosion Scars Number of Motorized Trails Subject to Erosion (3) Estimated miles of unauthorized routes. Miles of unauthorized routes Miles of Routes with Moderate and High Erosion Risk 590 miles. These roads likely would continue to be used. 291 miles added to system (152 miles as system roads and 139 miles as motorized trails). 0 miles 350 miles added to system (180 miles as system roads and 170 miles as motorized trails) Tonto National Forest Motorized Travel Management Environmental Assessment Page 129 of 269

136 Action & Units of Measure Alternative 1 (No Action) Alternative 2 (Proposed Action) Alternative 3 Alternative 4 Miles of Routes with Low to Moderate Strength Number of Routes with Known Erosion Scars Number of Routes Subject to Erosion (4) Density of Roads and Motorized Trails (Miles/Mile 2 ) Total Length and Density of Roads and Motorized Trails per alternative Total Length and Density of Roads per alternative Total Length and Density of Motorized Trails per alternative 1.10 Mi/Mi Mi/Mi Mi/Mi Mi/Mi Mi/Mi Mi/Mi 2 ) 1.00 Mi/Mi Mi/Mi Mi/Mi Mi/Mi Mi/Mi 2 (5) Motorized Big Game Retrieval (MBGR) and Relative Impact Acres Subject to Retrieval Disturbance 700,004 acres 418,432 acres 0 acres 533,926 acres Percent of Motorized Big Game Retrieval acres with Moderate to High Erosion Risks Percent of Motorized Big Game Retrieval acres with Impaired or Unsatisfactory Soils (6) Motorized Dispersed Camping Acres likely to be disturbed. Percent of Motorized Dispersed Camping acres with Moderate to High Erosion Risks Percent of Motorized Dispersed Camping acres with Impaired or Unsatisfactory Soils (7a) Acres of OHV Permit Zones 65% 60 to 65% 0% 50% 25 to 30% 55% 0% 55% Unrestricted on 700,004 acres or more. Roadside parking only 65% Minimal acres disturbed 25 to 30% Minimal acres disturbed Page 130 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

137 Action & Units of Measure Number and Acres of OHV Permit Zones by Alternative Percent of OHV Permit Zones with Moderate to High Erosion Risks Percent of OHV Permit Zones with Impaired or Unsatisfactory Soils (7b) Miles of Routes in OHV Permit Zones Alternative 1 (No Action) Alternative 2 (Proposed Action) Alternative 3 Alternative 4 1 zone (34,720 acres) 4 zones (122,814 acres) 20% 35% 55 to 60% 70 to 75% (due to increased zone acreage) Miles of Motorized Trails 0 miles 75 miles 75 miles 89 miles Miles of Roads 30 miles 241 miles 240 miles 264 miles *Does not include approximately 590 miles of unauthorized routes. Tonto National Forest Motorized Travel Management Environmental Assessment Page 131 of 269

138 Cumulative Effects for all Alternatives For all resources, past activities were considered part of existing condition and are discussed in Affected Environment (Existing Conditions) and Environmental Consequences in each resource section. A partial list of past, present, and reasonably foreseeable actions that are relevant to soil conditions is shown below. (See Cumulative Effects in chapter 3 for a project list.) Broad scale activities such as vegetation management, fuels management, and livestock grazing activities have occurred in the past, are occurring, and are reasonably foreseeable actions on the Forest. Vegetation and fuels management are planned to have a net, long-term improvement to soil conditions, although there may be short-term negative impacts during implementation. Mitigation measures and Best Management Practices have been designed to mitigate any shortterm impacts that may occur from project implementation. Livestock grazing activities (past and ongoing) have impacted soil conditions, but re-authorizations of grazing permits are designed to minimize impacts to soil conditions. Urban development and interface growth will continue on private lands. These will not directly affect National Forest land, but runoff from urban development can cause an increase in erosion on National Forest lands downstream. Future mineral exploration, land exchanges, and utility construction are either planned or likely to occur. Disturbance can be relatively minor in some cases, such as small utility constructions, but disturbance in mineral exploration can be extensive. Major road projects may add miles of roads to the Forest and remove soil from production. Although new roads are designed to minimize and mitigate impacts, newly constructed roads have been known to produce significant erosion and impact soil condition offsite. Various recreation projects are planed or are likely to occur. Implementing these projects may cause localized, short-term soil disturbance, but are likely to reduced long-term impacts to soils from uncontrolled recreation. Noxious or Invasive Weeds Affected Environment These plant species are invasive non-native plants that possess one or more of the characteristics of an invasive weed and are undesirable on Tonto National Forest lands. Based on Executive Order 13112, issued by the President in 1999, a species is considered invasive if it: 1) is nonnative to the ecosystem under consideration and 2) its introduction causes or is likely to cause economic or environmental harm or harm to human health. Noxious weed species considered in this analysis are listed in the noxious weeds specialist report located in the project record. There are 52 invasive weeds that are known to occur on the Tonto National Forest. Another 14 species occur nearby and could be growing on the Tonto NF at this time or in the future. By July 2011 approximately 24,376 acres of weed infestations were documented and mapped on the Tonto NF. Most of this acreage is one large site of weeping lovegrass that was seeded on the entire Dude Fire area in 1990 (21,436 acres). The remainder is 51 different species of weeds in 1,089 different infestations. The great majority of these infestations are less than 5 acres in size. Page 132 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

139 Roads and motorized trails are known to be effective vectors for transporting invasive plant seeds. Recreational vehicles, such as two- or four-wheel drive vehicles, ATVs, or motorcycles can bring weed seeds and plant parts onto the Forest from other sources. They can also spread existing infestations into new sites. For example, ATVs are commonly driven in the right-of-way along State Route 188. Much of this right-of-way has had a Malta starthistle infestation for nearly twenty years. When ATVs move from the right-of-way onto the Forest road network or are driven cross-country, they can spread Malta starthistle throughout the Tonto Basin area. Environmental Effects Effects Analysis Methodology Assumptions specific to noxious weed assessment: 1. This project is a ground-disturbing activity requiring a weed risk assessment. This analysis constitutes the risk assessment. 2. Without specific prevention and/or control measures, existing noxious weed infestations will likely spread and the rate of spread will be increased by vehicular activity. Infestations located along routes with motorized use may spread further along the route or to other sites accessed from the route. Motorized vehicles may bring weed seeds and propagules from outside the Forest s boundary. 3. Areas with motorized cross country travel (OHV areas and big game motorized retrieval corridors) are analyzed by acreage, assuming vehicles may drive on all parts of the area. 4. For analysis of big game motorized retrieval corridors, number of annual retrievals for each species, by game management unit was taken from the wildlife section. Hunt dates are from the latest (AZGFD, 2011 to 2012) Arizona Hunting and Trapping Regulations. 5. The distance where the effects of vehicle travel may occur is estimated to be approximately 100 feet from existing routes. This includes effects that could potentially promote invasive species and/or affect habitat, such as erosion, sedimentation, vegetation cover. Weed occurrences 100 feet away from designated routes are not likely to be spread by vehicles, nor will suitable weed habitat be created further than 100 feet from designated routes according to a study conducted by the Inyo National Forest in The risk of introduction or spread from this project was considered low, if existing inventories demonstrated that weed populations are not present along the route or along routes used to access that particular route, or if infestations are present and the route is not proposed for designation. 7. Because any vehicle four-wheel-drive truck, motorcycle, or passenger car - can transport weed propagules, this analysis does not differentiate between the impacts of different road types or trails. 8. In many cases, weed propagules do not originate on the Forest, but in nearby populated areas, which will continue to occur as population increases along the Forest boundary. 9. This analysis does not address differences in public or administrative use of roads and trails or seasonal restrictions. While there may be a reduced chance of weed transport by administrative vehicles due to more awareness of weed issues or reduced travel on roads due to administrative or seasonal restrictions, there is no data to support this assumption. 10. There are no impacts from dispersed motorized camping that differ from those described under cross-country motorized use; therefore impacts from motorized dispersed camping will not be discussed separately. Tonto National Forest Motorized Travel Management Environmental Assessment Page 133 of 269

140 Effects Common to All Alternatives In heavily infested areas, weeds directly compete with native plants and can cause their displacement. Some weeds are toxic to wildlife and livestock. Weeds affect ecosystems at landscape levels. Potential impacts include alteration of disturbance regimes (such as wildfire), changes in wildlife food base and cover, soil erosion, changes in soil moisture patterns, and altered recreational or aesthetic values. Indirect effects caused by replacement of native plants include impacts to microbial flora and fauna and insect pollinators, all of which contribute to normal ecosystem function. Road corridors can be prolific sources of weed seeds that may be carried to other locations, or that may colonize adjacent vulnerable habitats (Tyser & Worley, 1992). Motor vehicle use is known to enhance weed introduction and establishment in a number of ways, including transportation of weed propagules (seeds, root and shoot fragments), and alteration of soil conditions and other habitat factors (Trombulak & Frissell, 2000). Motor vehicles can carry weed seed and plant parts from place to place on their tires, and/or on the vehicle body. A study in Kakadu National Park in Australia found that weed seed was transported into the park on tourist vehicles and was more likely to be transported by four-wheel drive vehicles that had been driven cross-country (Lonsdale & Lane, 1994). A study from Montana State University showed that a four-wheel drive truck picked up, on average, 176 seeds per 50-mile trip on dry unpaved road in June. ATVs were found to pick up 15 times more seeds off-trail than on-trail. ATVs were capable of picking up as many as 200,000 seeds over 48 miles of travel (about 4,200 seeds per mile), out of which roughly 750 were from noxious weeds (Rew & Pollnac, 2010). It is not unusual to find new weed infestations on the Forest. They are often along travel corridors (motorized and non-motorized). Even if a new infestation were found along a road or trail, the conclusion as to what particular vector caused its spread may not be clear. This determination is not necessary if an infestation of a species that is a prolific seeder is found on a route. In that situation it may be deemed prudent to close or limit travel on that route until that particular weed is brought under control, in order to prevent spread caused by vehicles. Plant parts moved about during road maintenance can spread weed infestations nearly as effectively as seed, as many invasive plants can propagate themselves with root or stem fragments (Ferguson, et al., 2003). Vehicles and construction and maintenance operations transport invasive plant seeds into uninfested areas, and provide prime sites for seed germination and seedling establishment. Road maintenance activities may enhance germination of weed seeds by increasing exposure of weed seeds to sunlight (Jensen, 1995). Presence of invasive exotic plant species has been highly correlated with sunlit soil and frequent, severe disturbances, such as those resulting from road traffic and road maintenance activities (Pauchard & Alaback, 2006). These disturbed areas create edges within plant communities. Edges are recognized as potential starting points for invasion of weeds into less disturbed areas (Gucinski, et al., 2001). Effects from invasive species will continue to occur under all alternatives, including the proposed action. In general, alternatives with fewer routes open for motor vehicle use, especially those that exclude routes that are currently weed-infested, provide a reduced risk for transport of seeds by motorized vehicles, a reduction in habitats susceptible to weed invasion, and a reduced opportunity for spread of weeds to uninfested areas of the Forest. Page 134 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

141 Compliance with Forest Plan and Other Direction All action alternatives comply with the Forest Plan, the travel management regulations, and other regulatory direction. These alternatives would make progress toward desired conditions outlined in the Forest Plan. In compliance with the travel management regulations at 36 CFR (a) and (b), effects on noxious and invasive plants were considered in the following manner: 1. Adaptive management will apply mitigation measures should introduction and/or spread of invasive plants become an issue caused by motorized travel on trails or in areas. 2. Site specific information regarding the nature and location of the routes to noxious and invasive plants was used to estimate potential effects (see analysis above). 3. Travel off designated routes (with the exception of designated areas) will be prohibited after roads and trails have been designated, further minimizing effects to introduction and spread of noxious and invasive plants. Executive Order states that a federal agency shall not authorize, fund, or carry out actions that it believes are likely to cause or promote the introduction or spread of invasive species in the United States or elsewhere unless, pursuant to guidelines that it has prescribed, the agency has determined and made public its determination that the benefits of such actions clearly outweigh the potential harm caused by invasive species; and that all feasible and prudent measures to minimize risk of harm will be taken in conjunction with the actions. Mitigation measures in appendix F will be used to comply with this order. Alternative 1- No Action: Direct & Indirect Effects The current rate of spread of existing noxious and invasive exotic weeds and current rate of introduction of new weeds would continue. The current road system would continue to be available for motorized travel (table 68). Approximately 1,205 miles of road are currently closed to motor vehicle travel. As Forest recreation motor vehicle use increases in the future, rate of introduction and spread of weeds would probably increase. Increased populations of weeds may increase soil erosion, reduce wildlife and livestock forage, reduce wildlife habitat, displace native plants, reduce biodiversity, increase fire risk and reduce scenic and natural beauty. Table 68. Alternative 1 Miles of motorized routes Roads maintained for passenger vehicles Roads maintained for high clearance vehicles Motorized trails Administrative only roads Total mileage 1,050 2, ,318 Under this alternative, use of about 590 miles of unauthorized routes would likely continue. These routes run through 38 acres of invasive weed infestations, increasing their potential for spread. Motorized cross-country travel would continue on approximately 700,004 acres of Payson and Pleasant Valley ranger districts (including motorized big game retrieval and motorized dispersed camping activities). Motorized vehicles traveling off existing roads can crush and kill native vegetation, drive through existing populations of noxious and invasive weeds, create ruts, rills and bare patches of soil, cause soil erosion, and spread weed seed onto freshly denuded soil. The most vulnerable areas include gentle slopes, riparian areas and areas that collect runoff water and sites that receive occasional ground disturbance. Approximately 21,694 acres of invasive Tonto National Forest Motorized Travel Management Environmental Assessment Page 135 of 269

142 weed infestations are open to vehicular travel due to motorized cross-country travel on Payson and Pleasant Valley ranger districts. Under this alternative, a total of 23,821 acres of noxious weeds would be open to vehicular access. Most of this acreage is on the Payson Ranger District, in the area of the 1990 Dude Fire. There are no designated motorized trails in the No Action alternative, although this use does occur on both system roads and unauthorized routes. While the Tonto National Forest Plan does not specifically address invasive plant management, implementation of alternative 1 (No Action) would affect invasive plant populations, such that the Forest would not meet Forest Plan goals of management of resources to prevent or reduce serious long-lasting hazards, maintenance and enhancement of visual resource values, wildlife species diversity, wildlife habitat improvement, and rangeland restoration. Alternative 2 - Proposed Action: Direct & Indirect Effects NFS Roads and Trails There would be 5,091 miles of motorized road under this alternative as described in chapter 2 and summarized in table 69 below. This is 733 more miles, or 18 percent more, than are currently designated. There would be 233 miles of motorized trail under this alternative these trails were either already in the system as an existing road (27 miles), were closed under a previous decision (57 miles), or are being brought into the system as previously unauthorized route (139 miles). Almost two acres of weed infestations have been surveyed in the effect zone (within 100 feet) of these trails. Most of these trails have not been surveyed for weeds, so this may be a low estimate but is the best available information. No net change in impacts would occur from the 27 miles of existing NFS roads being converted to trails, 157 miles being converted to administrative use only, or 113 miles changing maintenance levels compared to alternative 1, because all of these roads are currently available for motorized travel which can transport weed propagules. Under this alternative, 525 miles of existing road would be closed to motor vehicle use compared to alternative 1 (1,205 miles), thereby increasing the potential spread of invasive weeds by motor vehicles. However, with the designation and restriction of motorized travel to these roads, the potential for spreading of noxious and invasive weeds may offset this increase compared to the uncontrolled use that currently occurs. Table 69. Alternative 2 Miles of motorized routes Roads maintained for passenger vehicles Roads maintained for high clearance vehicles Motorized trails Administrative only roads Total mileage 1,010 2, ,191 5,091 Unauthorized Routes Of the total mileage proposed in alternative 2, 291 miles of unauthorized routes would be designated as NFS roads (152 miles, including 22 miles of administrative use only roads) and motorized trails (139 miles) (table 70). Ultimately, this action adds those routes to the transportation system that do not create resource problems. Those routes not adopted will not be Page 136 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

143 added to the transportation system or to the MVUM and so will not be available for motorized travel. Designation and restriction of motorized travel to these roads will improve the situation from uncontrolled use that currently occurs. Table 70. Alternative 2 Unauthorized routes converted to NFS roads and motorized trails Unauthorized Routes converted to roads (ML 2 to 5) Unauthorized Routes converted to motorized trails* Unauthorized Routes converted to administrative use only Total Miles 130 miles 139 miles 22 miles 291 *Note: this mileage is discussed in the total mileage of 233 miles for motorized trails in previous section Designation of Areas Cross-country motor vehicle travel in designated areas on three of the lower elevation ranger districts is likely to subject those areas to higher levels of weed spread, than if vehicles were restricted to travel ways. These areas are in the vicinity of populations of Malta starthistle and Saharan mustard, which are winter annuals that are in their seed dispersal phase at the time of year when use of these areas is high (spring). Sycamore OHV area is also near fountain grass and buffelgrass infestations on the Beeline Highway. These are perennial bunch grasses that produce seed much of the year. Golf Course OHV area is immediately adjacent to an infestation of Malta starthistle. However, because these areas are currently being impacted by heavy OHV use, designation as cross-country travel areas will allow the Forest to target users with education about methods for preventing spread of noxious weeds and so overall, weed spread may decrease compared to current condition. Designation of Permit Zones Creation of permit zones that will allow motorized use by permit only will increase the burden of weed spread prevention responsibility for drivers in these high-use areas. The Forest will be able to educate permit holders about methods for prevention of spread of noxious weeds. Motorized Big Game Retrieval Motorized big game retrieval on 418,432 acres of the Forest (corridors 400 yards wide along all open roads and motorized trails in Game Management Units 21, 22, 23, and 24A) will likely decrease spread of weed infestations on Payson and Pleasant Valley ranger districts compared to the current situation of allowing off-road travel on these two districts. An estimated 5,525 acres of weed infestations is within these corridors on the Payson and Pleasant Valley ranger districts. However, portions of four of the lower elevation districts will be opened to motorized big game retrieval for bear and elk. This will expose an additional 561 acres of weed infestations to transport by motor vehicles on the lower elevation districts. Overall, expected vehicle trips for motorized big game retrieval are low (approximately 185 trips annually, see Noxious or Invasive Weeds specialist report for details). Most use does not coincide with fruiting season of most local invasive weeds and so impacts are likely minimal; however, it does have the potential to disturb ground through the entire 400-yard wide corridor. Tonto National Forest Motorized Travel Management Environmental Assessment Page 137 of 269

144 Alternative 3: Direct & Indirect Effects NFS Roads and Trails There would be 4,653 miles of motorized road under this alternative as described in chapter 2 and summarized in table 71 below. This alternative has the fewest miles of roads of the action alternatives. This is 335 more miles, or 8 percent more, than are currently designated. About 3,064 acres of weed infestation are crossed by open roads in this alternative. There would be 42 miles of motorized trail under this alternative these trails were in the system as an existing road (10 miles) or were closed to motor vehicles by a previous decision (32 miles). No inventoried weed sites are crossed by these motorized trails. However, as with the proposed action, many trails have not been surveyed for weeds, so this may be a low estimate but is the best available information. No net change in impacts would occur from the 42 miles of existing NFS roads being converted to trails, 261 miles being converted to administrative use only, or 91 miles changing maintenance levels compared to alternative 1 because all of these roads are currently available for motorized travel which can transport weed propagules. Under this alternative, 633 miles of existing road would be closed to motor vehicle use compared to alternative 1 (1,205 miles), thereby increasing the potential spread of invasive weeds by motor vehicles, although to a lesser degree than alternative 2. Table 71. Alternative 3 Miles of motorized routes Roads maintained for passenger vehicles Roads maintained for high clearance vehicles Motorized trails Administrative only roads Total mileage 971 2, ,221 4,653 Unauthorized Routes No unauthorized routes are added to the system under this alternative, removing the potential for introduction and spread of weeds associated with inventoried unauthorized routes. Designation of Areas No cross-country motorized vehicle areas would be designated under this alternative. This lowers the potential for introduction and spread of weeds. Designation of Permit Zones Impacts would be the same as under alternative 2. Motorized Big Game Retrieval There is no big game retrieval under this alternative. This lowers the potential for introduction and spread of weeds. Page 138 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

145 Alternative 4: Direct & Indirect Effects NFS Roads and Trails There would be 5,157 miles of road open to motorized travel under this alternative, as described in chapter 2 and summarized in table 72 below. This alternative has more open roads than any alternative. This is 839 more miles, or 19 percent more, than are currently designated. About 3,748 acres of weed infestation are crossed by open roads in this alternative. There would be 259 miles of motorized trail under this alternative these trails were either already in the system as an existing road (36 miles), were closed to motor vehicles under a previous decision (53 miles), or are unauthorized routes proposed for addition to the transportation system (170 miles). Almost two acres of weed infestations have been surveyed in the effect zone (within 100 feet) of these trails. Most of these trails have not been surveyed for weeds, so this may be a low estimate, but is the best information available. No net change in impacts would occur from the 89 miles of existing NFS roads being converted to trails, 133 miles being converted to administrative use only, or 114 miles changing maintenance levels compared to alternative 1 because all of these roads are currently available for motorized travel which can transport weed propagules. Under this alternative, 480 miles of existing road would be closed to motor vehicle use compared to alternative 1, thereby increasing the potential spread of invasive weeds by motor vehicles more than the other alternatives. Table 72. Alternative 4 Miles of motorized routes Roads maintained for passenger vehicles Roads maintained for high clearance vehicles Motorized trails Administrative only roads Total mileage 972 2, ,113 5,157 Unauthorized routes Of the total mileage proposed in alternative 4, 351 miles of currently unauthorized route are added to the system. Ultimately, this action adds those routes to the transportation system that do not create resource problems. Those routes not adopted will not be added to the transportation system or to the MVUM and so not available for motorized travel. Designation and restriction of motorized travel to these roads will improve the situation as compared to alternative 1 but less so than alternatives 2 and 3. Designation of areas Designation of motorized cross-country travel areas and their effects on weed introduction and spread would be the same as for the proposed action. Designation of permit zones Impacts would be the same as under alternative 2, although more miles of roads and trails would be available for motorized use in this alternative (353 miles compared to 315 miles). Tonto National Forest Motorized Travel Management Environmental Assessment Page 139 of 269

146 Motorized big game retrieval Motorized big game retrieval would be allowed on the greatest number of acres (533,926) of the action alternatives, but less than current condition (700,004 acres). Motorized big game retrieval would be allowed on roads and trails in Game Management Units 21, 22, 23, 24A, 24B and 37B. Unit 24B is on the Globe, Mesa and Tonto Basin ranger districts; Unit 37B is the far southwestern corner of the Globe Ranger District. Overall, expected vehicle trips for motorized big game retrieval are low (approximately 342 trips annually compared185 trips in alternative 2, see Noxious or Invasive Weeds specialist report for details). Most use does not coincide with fruiting season of most local invasive weeds and so impacts are likely minimal; however, it does have the potential to disturb ground through the entire 400 yard wide corridor. Additionally, inclusion of deer in big-game motorized retrieval increases number of trips off-road, and consequently increases chances of introduction and spread of invasive plants. Impacts would be highest to lower elevation ranger districts that currently do not allow off-road motorized big-game retrieval, and where many deer are harvested. Alternative Comparison Table 73 summarizes effects of the alternatives to introduction and spread of noxious weeds. Table 73. Summary of effects of introduction and spread of noxious weeds on alternatives Category Acres of weeds open to vehicular access in OHV areas Acres of weed infestations along open roads (ML2 to 5) Acres of weed infestations along open motorized trails Miles of unauthorized routes still being used Acres of weed infestations along unauthorized routes Acres of weed infestations within big game motorized retrieval corridors Alternative 1 Alternative 2 Alternative 3 Alternative 4 21, ,089 3,098 3,064 3, N/A (mileage of unauthorized routes added to the system is captured under open roads and trails) 0 N/A (mileage of unauthorized routes added to the system is captured under open roads and trails) 21,694 6, ,347 All Alternatives: Cumulative Effects The boundary for this cumulative effects analysis is the Tonto National Forest. This discussion includes management actions related to noxious or invasive weeds since Prior to 2003, occurrences and distribution of noxious or invasive weeds on the Forest were largely unknown. Page 140 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

147 Beginning in 2003, the Tonto NF began surveying and documenting noxious or invasive weed occurrences. Weed maps are documented in the Forest s Natural Resource Information System (NRIS) database and on a noxious weed layer in the Forest s GIS system. In 2003, the Southwestern Region of the Forest Service completed the Environmental Assessment for Management of Noxious Weeds and Hazardous Vegetation on Public Roads on National Forest System Lands in Arizona. The decision, which followed in 2004, allows treatment of noxious or invasive weeds along state and federal highway rights-of-way through all National Forests in Arizona, including the Tonto NF. Arizona Department of Transportation (ADOT) and their contractors and subcontractors have conducted several herbicide control projects along State Routes 77, 87, 88, 188, 260, and U.S. 60 on the Tonto National Forest in the last five years. For the last several years, the Tonto NF and ADOT have included weed control and prevention measures in highway construction projects. ADOT contractors now write a Noxious Species Control Plan, and use both herbicide and manual methods to control weeds along rights-of-way inside project limits. There are typically at least two major highway construction projects occurring on the Tonto NF at any time. For the next 5 years, construction projects are scheduled for State Routes 87, 88, 177, 260, and U.S. Highway 60. The Tonto National Forest is completing an Environmental Assessment for Integrated Treatment of Noxious or Invasive Plants. The Forest is waiting for a Biological Opinion from the U.S. Fish & Wildlife Service. A decision is expected in the fall of This will allow the Tonto NF to use the full range of tools to manage invasive weed infestations, including manual, mechanical, prescribed fire, biological control, and herbicides. At this time, the Forest is limited to herbicide use only in certain areas, and controls weeds primarily by manual means. Of numerous activities occurring on the Forest, both casual and permitted, most have some potential to introduce and spread invasive plants. Such activities include livestock grazing, special use permits involving use of livestock, hiking, fishing, hunting, wildlife watching, mining, horseback riding, and all types of recreational driving. Road management agencies such as county public works departments and Arizona Department of Transportation will continue to maintain and upgrade roads and highways through the Tonto NF. Highway construction projects will doubtless continue, because the Forest works with all of these agencies to prevent spread of noxious weeds during these activities. The Forest itself conducts activities that have potential to spread weeds: road maintenance, fire fighting and use of prescribed fire, post-fire rehabilitation including revegetation of burned and bladed sites, and creation of new recreation sites. Where permits are involved, the Forest includes permit clauses appropriate to the activity to prevent spread of weeds. The Forest includes Best Management Practices in its own activities for the same purpose. The wildland urban interface will continue to be a source of invasive weed infestation for the Tonto NF. The Forest program of public education and awareness of invasive weeds somewhat mitigates this, but this source of weed spread is largely outside of our control. At current funding levels, it is expected that the Forest will be able to eradicate weeds classified as Category A (those with limited distribution in Arizona, or as yet unrecorded in the state, which pose a serious threat, such as camelthorn, musk thistle, or Canada thistle). Weed species classified as Category B will most probably be contained or eliminated in some areas, but will continue to spread in many areas. Class B weeds are of limited distribution in Arizona, common in some places in the state. Management s goal is to contain their spread, decrease population size, then eliminate. Class C weeds have spread beyond our capability to eradicate them. The management Tonto National Forest Motorized Travel Management Environmental Assessment Page 141 of 269

148 goal is to contain spread to present size and then decrease the population, if possible. Class C weeds will continue to spread. Wildlife Affected Environment General Wildlife The Tonto NF manages diverse wildlife habitat for an array of wildlife species, which include 310 bird, 94 mammal, 55 reptile, 14 amphibian, 16 native fish, 28 non-native fish, 3 special status invertebrates, and 24 special status plant species. Wildlife habitat within Tonto NF can be divided into 15 wildlife habitat categories based on Tonto National Forest s potential natural vegetation layer. These habitat types represent wildlife habitat that can generally be associated with particular wildlife species and include Colorado Plateau grassland, cottonwood willow riparian forest, desert communities, interior chaparral, Madrean encinal woodland, Madrean pine-oak woodland, mixed broadleaf deciduous riparian forest, mixed conifer with aspen, piñon-juniper chaparral, piñon-juniper grassland, ponderosa pine mild, semi-desert grassland, sparsely vegetated, urban and other, and water. Wildlife habitat type descriptions and acreages are listed in the wildlife specialist report of the project record. Table 74 lists a variety of current road mileages and densities that cross general wildlife habitat types. Page 142 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

149 Length (miles) Density (mi/mi 2 ) Length (miles) Density (mi/mi 2 ) Length (miles) Density (mi/mi 2 ) Length (miles) Density (mi/mi 2 ) Passenger (miles) Highclearance (miles) Mot. trail (miles) Chapter 3 ~ Environmental Consequences Table 74. Existing (baseline) route mileages, densities, and acres open to cross-country across habitat types Unauthorized routes Closed a public roads Open public roads Routes within private land Open to crosscountry travel (acres) Permit zones routes Total/Overall mileage , a Some roads are closed to both public and administrative use, while others are only open to administrative use. Tonto National Forest Motorized Travel Management Environmental Assessment Page 143 of 269

150 Table 75 describes miles of routes near aquatic resources and number of times routes cross perennial streams. Table 75. Existing (baseline) route proximity and crossings to wildlife aquatic habitat Potential aquatic habitat Unauthorized routes Closed a public roads Open public roads Miles of routes within 300 ft. of large water bodies Miles of routes within 300 ft. of a perennial stream Miles of routes within 300 ft. of a spring Number of times routes cross perennial streams a Some roads are closed to both public and administrative use while others are only open to administrative use. Federally-listed Species Federally-listed species are protected under the Endangered Species Act. There are 16 Federallylisted species, 4 designated critical habitats, 3 proposed critical habitats, and 5 candidate species within Tonto NF. All are identified in table 44 of appendix K. For a habitat description and species account of each species, see table TES_SPECIES_ACCOUNT in appendix K of the wildlife specialist report located in the project record. Forest Sensitive Species Forest sensitive species are those species that are not Federally-listed, but the Forest Service is concerned about viability of the species. Tonto NF has 35 animal and 22 plant species that are considered forest sensitive and are listed in table 1 in appendix K of the wildlife specialist report located in the project record. For a habitat description and species account of each species, see table TES_SPECIES_ACCOUNT in appendix K in the wildlife specialist report located in the project record. Management Indicator Species In order to meet the National Forest Management Act s requirement to maintain viable populations of native and desired non-native species, Management Indicator Species (MIS) were selected based on a variety of criteria. Tonto NF has 29 MIS, which consist mostly of birds, to represent 30 habitat features. MIS, vegetation type, habitat indicator, habitat trend, and population trend in Tonto NF can be found in table 2 of appendix K. For more detailed information of each MIS, refer to the Tonto National Forest MIS Report, version 2 (U.S. Forest Service, 2005b). Migratory Birds Species of Concern Forty bird species of concern have been identified within Tonto NF in table 3 in appendix K of the wildlife specialist report located in the project record and have been grouped based on habitat types from Corman and Wise-Gervais (2005). The Audubon Society has designated three important bird areas (IBA) located within Tonto NF. They are Cave Creek IBA, Salt and Verde Riparian Ecosystem IBAs, and the Arnett Creek portion (boundaries not finalized) of the Boyce Page 144 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

151 Thompson-Arnett Creek IBA. Also, Arizona Game and Fish Department designated an overwintering area for waterfowl at Roosevelt Lake. Bald and Golden Eagles Bald and golden eagles occur throughout Tonto NF and are protected under the Bald and Golden Eagle Act. In 2010, Tonto NF has 25 known bald eagle breeding areas. Each bald eagle breeding area can potentially represent a breeding pair. About 10 breeding sites near recreation activities are protected by Forest closure orders. About 5 sites are annually monitored for visitor use impacts by the Bald Eagle Nestwatch Program, which is managed by Arizona Game and Fish. Golden eagle populations within Tonto NF are less studied and known. Environmental Effects Overview Changes in route designations are described by explaining changes relative to the current (baseline) designated route system for each action alternative. That is, routes are described as removed when designated routes are proposed to be removed from the current designated route system and described as added when a route that was not designated will be added to the current designated route system. By describing mileages of route changes relative to the baseline, impacts of these changes are more transparent and easier to analyze. Roads. For the action alternatives (alternatives 2 to 4), impacts are analyzed only for those roads that are proposed to be significantly changed from their original designation. For example, if a road closed to motorized vehicles is now being proposed to be open to motorized vehicles, it is defined as added. Roads that had no proposed designation changes or roads that are proposed to change between maintenance levels 2 to 5 were not considered, because the impact differences are expected to be negligible. Motorized trails. No motorized trails are proposed to be closed, because the motorized trail designation did not exist prior to the Travel Management Rule, therefore all motorized trails are added to the transportation system. Process All action alternatives (2, 3, and 4) would comply with the Forest Plan, Travel Management regulations and other regulatory direction. Site-specific analysis associated with unauthorized routes was used, when evaluating the effects of adding an unauthorized route in Environmental Effects Overview, Process. Refer to Appendix I Description of Proposed Action Unauthorized Routes for the rationale of adding each unauthorized route. Impacts to wildlife and wildlife habitat were minimized in evaluating the addition of motorized trails in Environmental Effects Overview, Process. Refer to Appendix H Proposed Motorized Trails for Alternatives 2 through 4 for the rationale for adding each motorized trail. In compliance with the Travel Management regulations at 36 CFR (a), the following process was used when designating roads, trails, and areas: 1. Site-specific information was used to evaluate effects of removing or adding roads, motorized trails, or areas on wildlife and wildlife habitat, when alternatives were Tonto National Forest Motorized Travel Management Environmental Assessment Page 145 of 269

152 developed. Site-specific wildlife issues for each route can be found in TAP reports. The potential effects of each issue can be found in appendix F. Actions to mitigate potential effects can also be found in appendix F. 2. Roads, motorized trails, and areas with negative impacts to wildlife or wildlife habitat that could not be mitigated to acceptable levels were not proposed for addition to the transportation system. For purposes of this analysis, acceptable level means that the degree of impact from a road, motorized trail, or area does not: a. Result in jeopardy or an adverse modification determination from U.S. Fish and Wildlife Service (USFWS) for a Federally-listed species or designated critical habitat, b. Contribute to the loss of viability forest sensitive species, or c. Trend any Forest sensitive species towards federal listing. In compliance with 36 CFR (b), the effects on wildlife of removing or adding roads, motorized trails, or areas (harassment or disruption of habitat) were considered in all alternatives. Impacts were minimized through the following process: 1. Alternatives were developed in an interdisciplinary setting, with the objective of avoiding impacts to wildlife and wildlife habitat. 2. When impacts from removing or adding a road, motorized trail, or area could not be avoided or mitigated, another designation in another alternative was developed. General Wildlife Habitat Roads and Motorized Trails Roads. Public and administrative roads which are proposed to be removed or added across different types of terrestrial wildlife habitat are summarized in table 76. See wildlife specialist report for specific impacts to each habitat. When impacts to a particular habitat type are described, it is assumed that the impact will affect the wildlife species associated with that particular habitat. The decrease or increase in road densities resulting from removing or adding public and administrative access across different types of terrestrial wildlife habitats is described in table 77. Road density data are presented because road impacts may be masked by total mileages, when not comparing mileages relative to the occurrence of that impacted habitat within Tonto NF. For example, although the total road mileages proposed to be added in riparian forests are small, there are relatively few acres of riparian forests. Consequently, the effects of a road density increase on riparian forest habitat would be relatively higher than the effects on other more abundant wildlife habitats. Page 146 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

153 Removed Added public Added admin. Removed Added public Added admin. Removed Added public Added admin. Removed Added public Added admin. Removed (miles) Added public (miles) Added admin. (miles) Removed (miles) Added public (miles) Added admin. (miles) Removed (miles) Added public (miles) Added admin. (miles) Removed (miles) Added public (miles) Added admin. (miles) Chapter 3 ~ Environmental Consequences Table 76. Roads proposed to be removed or added relative to the baseline across different wildlife habitat types. Removed roads are closed to both public and administrative motorized use Alternative 1 Alternative 2 Alternative 3 Alternative 4 General wildlife habitat Total mileage Table 77. Road densities (mi/mi 2 ) as a result of proposing to remove or add roads across different wildlife habitat types. Removed roads are closed to both public and administrative motorized use Alternative 1 Alternative 2 Alternative 3 Alternative 4 General wildlife habitat Overall density < <0.1 < <0.1 < <0.1 Tonto National Forest Motorized Travel Management Environmental Assessment Page 147 of 269

154 Length (miles) Density (mi/mi 2 ) Length (miles) Density (mi/mi 2 ) Length (miles) Density (mi/mi 2 ) Length (miles) Density (mi/mi 2 ) Removed Added public Added administrative Removed Added public Added administrative Removed Added public Added administrative Removed Added public Added administrative Chapter 3 ~ Environmental Consequences Lakes, reservoirs, rivers, springs, and perennial streams are considered aquatic habitat for fish, amphibians, and invertebrates. Roads within 300 feet of aquatic wildlife habitat or roads crossing perennial streams could potentially impact aquatic wildlife habitat, because road use could disturb channel banks, or the road prism could funnel sediments into aquatic habitat. Road proximity to and crossings of wildlife aquatic resources are described in table 78. The metric of the number of times roads cross perennial streams is meant to give a general and relative assessment of potential road impacts to perennial streams. However, this metric's apparent, absolute impact is misleading and is amplified by the following factors: 1) each crossing does not represent an independent road and perennial stream, because a road may criss-cross the same stream many times throughout its length, thus inflating the metric; and 2) those crossings with protective culverts were not taken into account, therefore causing the metric to overstate the potential impact to perennial streams. Table 78. Proposed removed and added road proximity and crossings to wildlife aquatic habitat Alternative1 Alternative 2 Alternative 3 Alternative 4 Proximity/ crossings to wildlife aquatic habitat Miles of roads within 300 ft. of large water bodies a Miles of roads within 300 ft. of a perennial stream a < Miles of roads within 300 ft. of a spring a <1 3 <1 0 2 <1 <1 <1 <1 Number of times roads cross perennial streams a Motorized trails. The length of all motorized trails across different types of terrestrial wildlife habitat is summarized in table 79. The proposed motorized trails are primarily in two clusters in Cave Creek RD and scattered throughout Pleasant Valley and Payson ranger districts. Tonto NF is not proposing to remove any motorized trails in any of the alternatives because the motorized trail designation is new; therefore, the designation does not exist in previous decisions. See wildlife specialist report for specific impacts to each habitat type. Table 79. Length and density of motorized trail proposed to be added across different types of general wildlife habitat Alternative 1 Alternative 2 Alternative 3 Alternative 4 General wildlife habitat Total/overall mileage < Page 148 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

155 Motorized trail proximity and crossings to wildlife aquatic resources is described in table 80. Table 80. Proposed added motorized trail proximity and crossings to wildlife aquatic habitat Proximity/crossings to wildlife aquatic habitat Miles of motorized trails within 300 ft. of large water bodies Alternative 1 Alternative 2 Alternative 3 Alternative 4 Added Added Added Added Miles of motorized trails within 300 ft. of a perennial stream a 0 2 <1 2 Miles of motorized trails within 300 ft. of a spring a 0 1 <1 1 Number of times motorized a trails cross perennial streams General Effects from Routes Discussion for General Wildlife Habitat Routes and their associated use can have a variety of impacts on wildlife and wildlife habitat. Habitat impacts from routes and their associated use include: habitat degradation (for example, edge effects and spread of non-natives), fragmentation, and increased fire risk. Routes and their associated use can also impact individual animals through impeding movement (barriers), causing mortality (vehicle collisions, diseases), and causing disturbance (for example, noise) to behavioral activities. A more detailed review of the general effects of routes and their associated uses on wildlife and habitat can be found in General effects of routes and their associated uses on wildlife in appendix K. Removing proposed routes would have beneficial impacts to wildlife and wildlife habitat, because the habitat would be allowed to recover and return back to its natural state. Wildlife species that were originally displaced by the motorized route could potentially return, which would increase the population. Adding proposed routes would have no initial negative impact to wildlife or wildlife habitat because all routes, which are proposed to be added to the existing designated route system, already physically exist and are being used. The use is simply being designated and legalized. However, adding proposed routes could have continued impacts that suppress wildlife populations and wildlife habitat quality from reaching their original condition prior to the route s use. Wildlife species that were originally displaced by the motorized route may not be able to return. Consequently, designating open routes could continue depressing wildlife populations that are already vulnerable. Wildlife habitat adjacent to routes could also suffer from continued activities incidental to route use. Continued incidental activities dependent on an open route include roadside parking, wood gathering, and camping. In general, most continued incidental activities are expected to occur within 300 feet of the route. In addition, roads are expected to have more continued incidental impact than motorized trails, because most continued incidental activities require the cargo hold of a full-sized vehicle. These continued incidental activities could continue to prevent habitat adjacent to the route from recovering back to its natural state. Tonto National Forest Motorized Travel Management Environmental Assessment Page 149 of 269

156 In addition to continue suppressing natural recovery of wildlife habitat, designation of routes that already physically exist could further increase future negative impacts in two ways. First, legalized routes may attract considerably more law-abiding users, who once did not use those routes because the routes were unauthorized. Second, motorized users, who in the past once legally traveled cross-country, would have fewer legal areas to travel. Consequently, more of those users may concentrate their use in designated routes. Increased negative impacts to wildlife could occur in the route footprint (increase of direct mortality from vehicle hits) and to individuals adjacent to the route (increase of noise, dust, barrier effects), which could affect an individual s breeding, feeding, resting, or moving behavior. However, it is difficult to predict motorized user behavior. Adding or removing routes and prohibiting cross-country travel may have no effect among the action alternatives, because either voluntary compliance will be ineffective or motorized users would go elsewhere to recreate. Impacts of designating already existing routes are different for aquatic wildlife habitat. These existing routes may not have necessarily already damaged aquatic wildlife resources prior to its proposed designation. Damage to aquatic wildlife resources from the route s sediment runoff may not have occurred yet for several reasons. First, rain events in the Southwest United States are stochastic; therefore, it could take many runoff events or years to impact nearby aquatic habitat. Second, climatic conditions (rainfall events) could change through increasing runoff events, which could damage nearby aquatic habitat in the future. Third, an unmaintained route s negative impact may increase over time, because runoff may deepen gullies within the route prism to form an entrenched system for channeling runoff and depositing sediment in nearby aquatic habitats. Fourth, a route that normally would not negatively impact nearby aquatic habitat could be adversely modified by users during a rain event due to users creating rutted routes that increase runoff velocity and sedimentation to nearby aquatic habitat. Lastly, a grader operator tasked to maintain a route could inadvertently change the entire drainage dynamics of a route simply by a change in grading preferences or techniques. In conclusion, existing routes still have potential to damage nearby aquatic habitat. Although a route could potentially damage aquatic habitat in the future, effects would be mitigated by designating a route as open. As an open route, the Forest Service would maintain the route with proper drainage channels, which could be designed to direct runoff and sediments away from nearby aquatic habitat. Therefore, changing the designation of a previously nonmaintained, unauthorized route to open may benefit nearby aquatic habitat. Consequently, each route is different and designating an open route next to aquatic habitat would not necessarily negatively impact aquatic habitat. Aside from the route prism, frequency of use could impact an aquatic habitat, if the route crosses a perennial stream without a culvert. More vehicles crossing the stream could stir up more sediment and the current could carry more sediment to aquatic habitat downstream. A public route crossing a stream is expected to have more of a negative impact than an administrative route under the same circumstances. Changes to NFS Roads Related to Vehicle Class Roads maintained for passenger vehicles and roads maintained for high-clearance vehicles were grouped together when describing changes, because the differences between these two types of roads are negligible. Page 150 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

157 Besides, over 99 percent of the public roads proposed to be added to the system for all alternatives are for high-clearance vehicles. Consequently, impacts of adding roads will be almost entirely from high-clearance vehicles roads. Seasonal restrictions on added and existing roads may have beneficial effects for wildlife, especially when those roads were identified and timed for seasonal restrictions for a particular species during breeding season (for example, bald eagle). Vehicular traffic and humans would not disturb breeding wildlife on these seasonally restricted roads. However, the majority of these roads were not identified for seasonal restrictions because of wildlife. Rather they were to prevent road damage during winter. The majority of these seasonal closures are clustered around Naegelin Canyon in Pleasant Valley Ranger District. Over half of the miles in all alternatives were located in ponderosa pine mild. The remaining were scattered among other wildlife habitat classifications. Changes to NFS Roads Related to Trails The differences among habitat impacts from full-sized vehicles, ATVs, and motorcycles are considered to be negligible, because these vehicles all had similar impacts to wildlife and wildlife habitat. Consequently, the only conversion considered to have a long-term impact to wildlife and wildlife habitat were those from non-motorized, closed, or unauthorized routes to motorized trails. Seasonal restrictions on motorized trails could benefit wildlife, if the motorized trails were seasonally restricted because of breeding wildlife. However, only four miles (less than three percent) of motorized trails are proposed to be seasonal restricted in all alternatives. Most of these identical four miles fall within two wildlife habitat types; about 66 percent of those seasonally restricted motorized trails are in desert communities, and about 30 percent are located in ponderosa pine. Changes to NFS Roads Related to Administrative Use Action alternatives 2, 3, and 4 propose to change 209, 261, and 133 miles of roads, respectively, to administrative roads from either existing public roads or added public roads. In all action alternatives, about 50 percent of those roads proposed to be administrative occurred in desert communities and piñon-juniper chaparral. These changes are expected to be beneficial to wildlife, because considerably less use from administrative roads is anticipated than from the use of public roads. Consequently, less use means fewer direct impacts (disturbance and mortality vehicle hits) and indirect impacts (habitat degradation due to camping and wood gathering). Unauthorized Route Addition to NFS Roads About 25 percent of public roads and 30 percent of administrative roads proposed to be added are from unauthorized roads in alternatives 2 and 4 (table 81). See wildlife specialist report for specific impacts to each habitat type. The majority of the unauthorized roads are in desert communities and piñon-juniper grassland. Impacts of adding unauthorized roads to wildlife and wild habitat are discussed in the general effects discussion for general wildlife habitat above. Tonto National Forest Motorized Travel Management Environmental Assessment Page 151 of 269

158 Added (public & admin. ) Added (public ) Added (admin.) Added (public ) Added (admin.) Added (public ) Added (admin.) Chapter 3 ~ Environmental Consequences Seasonal restrictions on added roads from unauthorized routes may have beneficial effects for wildlife, if routes were seasonally restricted because of breeding wildlife. However, few roads from unauthorized routes are seasonally restricted; only one to two miles (about one percent) are seasonally restricted in all alternatives. Table 81. Unauthorized routes proposed to be added as roads across different wildlife habitat types General wildlife habitat Alternative 1 Alternative 2 Alternative 3 Alternative 4 Total Unauthorized Route Addition to NFS Motorized Trails In alternatives 2 and 4, about 67 to 81 percent of motorized trails proposed to be added come from unauthorized routes (table 82). See wildlife specialist report for specific impacts to each habitat type. The majority of the unauthorized roads are in desert communities wildlife habitat. Impacts of adding unauthorized roads to wildlife and wild habitat are discussed in the general effects discussion for general wildlife habitat above. Seasonal restrictions on added motorized trails from unauthorized routes may have beneficial effects for wildlife, if routes were seasonally restricted because of breeding wildlife. However, few motorized trails from unauthorized routes are seasonally restricted; only four miles (about two percent) are seasonally restricted in all alternatives. Table 82. Unauthorized routes proposed to be added as motorized trails across different wildlife habitat types Alternative 1 Alternative 2 Alternative 3 Alternative 4 General wildlife habitat Added Added Added Added Total Alternative 1 Route Effects on General Wildlife Habitat In this alternative, there is no proposal to add or remove any routes to the current route system. Consequently, no additional effects to general terrestrial and aquatic wildlife habitat are expected. However, unauthorized routes in Payson and Pleasant Valley RDs are expected to increase relative to the environmental baseline, as a result of the no action alternative. Motorized users would continue to legally travel cross-country in those two ranger districts and further degrade wildlife habitat. Alternative 2 Route Effects on General Wildlife Habitat Roads & general wildlife habitat. This alternative proposes to remove 97 miles of road, add 563 miles of open roads, and add 68 miles of administrative roads. Most future benefits from Page 152 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

159 removing roads may be offset by the hundreds of miles proposed to be added in this alternative. Most of the public roads being added are in the desert communities (144 miles), piñon-juniper chaparral (108 miles), ponderosa pine mild (104 miles), and piñon-juniper grassland (79 miles). The highest densities of public roads proposed to be added are located in mixed broadleaf deciduous riparian forest (0.7 mi/mi 2 ), Colorado Plateau grassland (0.7 mi/mi 2 ), and cottonwood willow riparian forest (0.4 mi /mi2). The impacts to wildlife species in riparian habitats could be disproportionately higher, because many unique wildlife species are concentrated in riparian areas. However, these habitats mentioned above already have high existing road densities of about 2 mi/mi 2 (see open public roads (mi/mi 2 ) column in table 74 in affected environment). Consequently, the road density threshold where wildlife species can no longer persist may have been surpassed long ago. Switalski recommended keeping road densities less than 1.0 mi/mi 2 to ensure healthy wildlife populations (2006). Although density thresholds may have been surpassed, adding individual roads may disturb individual breeding animals that still occasionally occur in the area. Most wildlife populations negatively affected by the use of these roads in these habitats in the past could be continued to be depressed as a result of maintaining the use of these roads. Roads & aquatic wildlife habitat. See above table 78. Most future benefits from removing roads may be offset by the miles of roads proposed to be added in this alternative. Overall, adding roads in this alternative would likely cause more negative impacts to aquatic wildlife habitat relative to the baseline, especially in perennial streams. Motorized trails & general wildlife habitat. About 205 miles of motorized trails are proposed to be added in this alternative. Most of them are located in desert communities (91 miles), piñonjuniper chaparral (42 miles), and ponderosa pine mild (35 miles). The density calculations of motorized trails are all deceptively low, because they are only densities of motorized trials and do not include roads. However, motorized trails and existing roads and their associated uses have many of the same effects. Consequently, the densities of existing open public roads in the affected environment should also be considered in the density analysis. Motorized trails densities are only a small part of the current road densities in all general wildlife habitats. Alternative 3 Route Effects on General Wildlife Habitat Roads & general wildlife habitat. Alternative 3 proposes to remove 116 miles of road, add 367 miles of public roads, and add 53 miles of administrative roads. Most future benefits from removing roads may be offset by the hundreds of miles proposed to be added in this alternative. Most of the public roads proposed to be added are located in desert communities (89 miles), ponderosa pine mild (85 miles), piñon-juniper chaparral (78 miles), and piñon-juniper grassland (47 miles). The highest densities of public roads proposed to be added are located in Madrean pine-oak woodland (0.4 mile/miles 2 ), mixed broadleaf deciduous riparian forest (0.3 mile/miles 2 ), and ponderosa pine - mild (0.3 mile/miles 2 ). The impacts to wildlife species in riparian habitats could be disproportionately higher; because many unique wildlife species are concentrated in riparian areas (see discussion above in alternative 2 regarding impacts to sensitive riparian wildlife species). Tonto National Forest Motorized Travel Management Environmental Assessment Page 153 of 269

160 Most wildlife populations negatively affected by the use of these roads in these habitats in the past could be continued to be depressed, as a result of maintaining the use of these roads. Roads & aquatic wildlife habitat. See above table 78. Most future benefits from removing roads may be offset by the miles of roads proposed to be added in this alternative. Overall, adding roads in this alternative would likely cause more negative impacts to aquatic wildlife habitat relative to the baseline, especially in perennial streams. Motorized trails & general wildlife habitat. This alternative proposes the addition of about 31 miles of motorized trails. Most of them occur in piñon-juniper chaparral (11 miles) and ponderosa pine mild (6 miles). See alternative 2 discussion regarding motorized trail densities. Alternative 4 Route Effects on General Wildlife Habitat Roads & general wildlife habitat. Alternative 4 proposes removing 72 miles of road, adding 643 miles of public roads, and adding 66 miles of administrative roads. Most future benefits from removing roads may be offset by the hundreds of miles proposed to be added in this alternative. Most public roads proposed to be added are located in desert communities (180 miles), ponderosa pine mild (119 miles), piñon-juniper chaparral (116 miles), and piñon-juniper grassland (80 miles). The highest densities of public roads proposed to be added are located in mixed broadleaf deciduous riparian forest (0.7 mi/mi 2 ), Colorado Plateau grassland (0.7 mi/mi 2 ), cottonwood willow riparian forest (0.5 mi/mi 2 ), and ponderosa pine mild (0.4 mi/mi 2 ), Madrean pine-oak woodland (0.4 mi/mi 2 ). The impacts to wildlife species in riparian habitats could be disproportionately higher, because many unique wildlife species are concentrated in riparian areas (see discussion above in alternative 2 regarding impacts to sensitive riparian wildlife species). Most wildlife populations negatively affected by the use of these roads in these habitats in the past could continued to be depressed as a result of maintaining the use of these roads. Roads & aquatic wildlife habitat. See above table 78. Most future benefits from removing roads may be offset by the miles of roads proposed to be added in this alternative. Overall, adding roads in this alternative would likely cause more negative impacts to aquatic wildlife habitat relative to the baseline, especially in perennial streams. Motorized trails & general wildlife habitat. About 239 miles of motorized trails are proposed to be added in this alternative. Most of them are located in desert communities (120 miles), piñonjuniper chaparral (42 miles), and ponderosa pine mild (35 miles). See alternative 2 discussion regarding motorized trail densities. Designation of Areas Table 83 (below) summarizes the number of acres proposed to be designated as new areas for unrestricted, motorized, cross-country travel. All proposed open areas occur in either cottonwood and willow riparian forest or desert communities wildlife habitat types. See wildlife specialist report for specific impacts to each habitat type. Page 154 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

161 Alternative 1 % of habitat within Forest % of habitat within Forest % of habitat within Forest Chapter 3 ~ Environmental Consequences Table 83. Potential impact (acres) to habitat types within areas (cross-country travel) based on alternatives Alternative 2 Alternative 3 Alternative 4 General wildlife habitat Gross Net a Net a Net a Net a Total/Overall 0 1, ,937 N/A -703,351 1, ,937 N/A General Effects from Areas Discussion for General Wildlife Habitat Although users are allowed to travel anywhere within an area designated for unrestricted, motorized, cross-country travel, 100 percent wildlife habitat destruction is not expected, though wildlife may not effectively use the area due to high noise disturbance and edge effects of highdensity routes. Alternative 1 Area Effects on General Wildlife Habitat Although this alternative proposes to add no new areas for unrestricted, motorized, cross-country travel, this alternative would continue to allow cross-country motorized travel in the Payson and Pleasant Valley ranger districts (except wilderness area and private land). Consequently, damage would still continue to occur in wildlife habitat in these two ranger districts (see column entitled open to cross-country travel in table 74 in affected environment). Route proliferation would likely continue and degrade wildlife habitat in piñon-juniper chaparral (279,105 acres), ponderosa pine-mild (182,272), and piñon-juniper grassland (114,105 acres), which consist of over 59 percent of the wildlife habitat available for motorized cross-country travel. Alternative 2 Area Effects on General Wildlife Habitat Adding 1,414 acres of open areas would negatively impact cottonwood and willow habitat, which is more accurately described as braided, desert washes with xeric riparian vegetation. Birds and other wildlife are concentrated in these drainages and desert wash dwelling animals would be negatively impacted by motorized cross-country travel in these areas. However, the overall net effect of this alternative would be beneficial, because this alternative also proposes to remove 703,351 acres of wildlife habitat from motorized, cross-country travel, including 1,334 acres of desert communities and 370 acres of cottonwood and willow habitat. The net effect of this proposal would remove motorized cross-country travel in all wildlife habitat types except cottonwood willow habitat, which would add a net of 546 acres (916 minus 370 acres). Alternative 3 Area Effects on General Wildlife Habitat This alternative proposes to prohibit cross-country motorized travel throughout the entire Forest and does not propose to add any areas designated for unrestricted, motorized cross-country travel. This alternative would best benefit the wildlife and wildlife habitat, because this alternative would remove a total of 703,351 acres of wildlife habitat from motorized, cross-country travel. Tonto National Forest Motorized Travel Management Environmental Assessment Page 155 of 269

162 All routes Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Alternative 1 a Chapter 3 ~ Environmental Consequences Alternative 4 Area Effects on General Wildlife Habitat This alternative is identical to alternative 2. See write-up under alternative 2 for this alternative. Designation of Permit Zones Table 84 below lists the types and lengths of routes crossing wildlife habitat within permit zones. Habitat types impacted by permit zones include cottonwood willow riparian forest, desert communities, semi-desert grassland, and water. The same permit zones are proposed to be implemented for each alternative. The differences among the alternatives results from the differences in lengths of public routes designated within the permit zones. Table 84: Types and lengths of routes crossing wildlife habitat within proposed permit zones (permitted designated route use) General wildlife habitat Alternative 2 Public routes within proposed permit zones (miles) Alternative 3 Public routes within proposed permit zones (miles) Alternative 4 Public routes within proposed permit zones (miles) Total public routes within permit zones (miles) a No new permit zones are proposed in the no action alternative and therefore no routes will be within proposed permit zones. General Effects from Permit Zones Discussion for General Wildlife Habitat Routes within permit zones are expected to have less of a negative impact to adjacent wildlife and wildlife habitat, because there appears to be reduced illegal activity (for example, dumping or driving off designated routes) in permitted zones relative to non-permitted zones. The decreased impact has been observed in our current Bulldog Permit Zone. Visitors may feel more accountable after giving their identification to the Forest Service or environmentally responsible visitors are correlated with those individuals who would spend the extra energy to plan and obtain a permit. Although there are clear benefits to wildlife habitat within permit zones, it is less clear how the resultant permit zones would impact neighboring non-permitted zones. Motorized vehicle users may simply shift illegal use that damages habitat elsewhere. However, illegal use is outside the scope of this analysis. Motorized Big Game Retrieval Several considerations determine where and how many acres are potentially impacted by motorized big game retrieval: 1) where hunters are allowed to hunt (game management units), 2) Page 156 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

163 proposed and existing public roads, 3) the distance hunters would be allowed to drive crosscountry to pick-up their harvest (400-yard corridor), and 4) elk, bear, and mule deer habitat. Table 85 lists the potential acres within motorized big game retrieval corridor. Table 85. Big game habitat within the motorized big game corridor potentially impacted by motorized big game retrieval by alternative. Big game habitats overlap each other Proposed big game Acres allowed for motorized big game retrieval Alternative 1 Alternative 2 Alternative 3 Alternative 4 Bear 0 205, ,881 Elk 0 136, ,501 Mule Deer ,465 Although potential acreages for impact are extensive, the actual impacts would be far less because 100 percent of these areas are not expected to be driven over by hunters retrieving their harvests in motorized vehicles. Instead, 0 to 27 acres (table 86) are expected to be impacted annually in the action alternatives based on harvest data from 2006 to 2010 and a series of assumptions obtained from Arizona Game and Fish Department (Wong, 2011, Feb. 11). Table 86. Estimated annual impacts (miles and acres) from proposed cross-country motorized big game retrieval by alternative Alternative 1 Alternative 2 Alternative 3 Alternative 4 (miles) (acres) (miles) (acres) (miles) (acres) (miles) (acres) Assumptions: Harvests for Game Management Units (GMU) 21, 24A, 37B are assumed to represent only 66 percent, 75 percent, 5 percent of harvests, respectively, within Tonto NF because GMU 21 and 24A cover only 66 percent, 75 percent, 5 percent respectively, of the Forest. About 30 percent of hunters are expected to use a motorized vehicle to retrieve elk, bear, and mule deer harvests. ATV/UTVs consist of 80 percent of motorized retrievals. The remaining 20 percent consists of 4X4s. The average impact width of an ATV/UTV is 4.5 feet The average impact width of a 4X4 vehicle is 7 feet A hunter will drive the full 200 yards to retrieve their harvest About 99 percent of hunters are expected to use the same route to return, because it is easier to travel in a previously created route. Alternative 2: a total of 791 annual harvests that include elk (735) and bear (56) within Tonto NF (annual harvest averages from 2006 to 2010 in GMU 21 (66 percent of harvests), 22, 22N, 22S, 23, 23N, 23S, 24A (75 percent of harvests), 24B) Alternative 4: a total of 1,408 annual harvests that include elk (735), bear (56), and mule deer (524) within Tonto NF (annual harvest averages from 2006 to 2010 in GMU 21 (66 percent of harvests), 22, 22N, 22S, 23, 23N, 23S, 24A (75 percent of harvests), 24B, 37B (5 percent of harvests)) Formula used for acreage calculations for alternatives 2 & 4: # of harvests*0.3*200yd*1.01*((0.8*1.5yd)+(0.2*2.33yd)) * 1 ac/4,840 sq yd=acres impacted Tonto National Forest Motorized Travel Management Environmental Assessment Page 157 of 269

164 Location of impact. It is difficult to predict exactly where the impact from motorized big game retrieval will happen each year. However, the number of annual motorized retrievals is expected to be low (see table 87). Figure 6 depicts the locations of GMU, including subunits, relative to Tonto National Forest ranger districts, elk, and bear habitat. Mule deer habitat occurs across the entire Forest except in urban areas. Page 158 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

165 Figure 6. Game Management Units (GMU) and potential annual impact (mi) from motorized big game retrieval of elk, bear, and deer (mule). Mule deer occur throughout the Forest. Tonto National Forest Motorized Travel Management Environmental Assessment Page 159 of 269

166 Table 87. Expected number of annual motorized retrieval of elk, bear, and mule deer harvests # of Annual motorized harvests Elk Bear Mule deer Miles # of Annual motorized harvests Miles # of Annual motorized harvests Miles General Effects from Motorized Big Game Retrieval Discussion for General Wildlife Habitat A quick recovery is anticipated on the limited acreages impacted by motorized big game retrieval, because hunters are expected to make only one to two passes through a route to retrieve big game. One to two passes is not likely to kill many annual plants. Webb found that after a single pass, annual plants on an OHV route remained intact, but most were destroyed after ten passes (1983). Perennial plants are expected to be more robust and therefore are also likely to sustain one to two passes. The habitat will likely recover from one or two passes from a motorized vehicle. However, if motorized big game retrievals occur at faster rate than the habitat can recover, the impacts from motorized big game retrieval will accumulate and have negative impacts on wildlife habitat. This scenario is especially true in drier habitats, where it will take longer for the habitat to recover from the impacts of motorized big game retrieval. Alternative 1 Area Effects on General Wildlife Habitat In this alternative, no new cross-country motorized use corridors are proposed, consequently there would be no change from the current environmental baseline. However in this alternative, crosscountry motorized travel in Payson and Pleasant Valley ranger districts would still be allowed. Therefore, cross-country big game motorized retrieval would continue in these two ranger districts. Alternative 2 Area Effects on General Wildlife Habitat The location of 16 acres of impact from the 27 miles of cross-country travel will largely depend on where the elk and bear live. Because 93 percent of those motorized retrievals will be for elk, most of the impact is expected to occur in elk habitat, which is located primarily in Payson and Pleasant Valley RDs (GMU 22N, 23, 23N). Habitat types within this area consist of piñon-juniper chaparral, ponderosa pine mild, mixed conifer w/aspen, and mixed broadleaf deciduous riparian forest. Consequently, the negative impact would not be much different relative to the baseline, because the Payson and Pleasant Valley ranger districts are currently open to cross-country travel in all areas to all users (except for wilderness areas and inventoried roadless areas). Alternative 2 would benefit the wildlife habitat in Payson and Pleasant Valley ranger districts by restricting retrieving harvests to 200 yards from a designated public road, alternative 2 would protect over 535,823 of the 703,351 acres (76 percent of Payson and Pleasant Valley ranger districts) that is currently open to cross-country travel. But when comparing alternative 2 with the baseline, new negative impacts would result when hunters retrieve their harvests outside of Payson and Pleasant Valley ranger districts. Black bears Page 160 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

167 are primarily associated with the chaparral, pine-oak woodlands, and the pine/mixed conifer habitat types. During some years, black bears can be located in the desert scrub habitat, where thick stands of prickly pear cactus are found. Desert scrub habitat is likely to take longer to recover than higher-elevation habitat, when travelling cross-country in desert scrub to retrieve bear harvests. Alternative 3 Area Effects on General Wildlife Habitat Because motorized big game retrieval is not proposed for this alternative, no impacts relative to the environmental baseline are expected from designating motorized big game retrieval. Alternative 4 Area Effects on General Wildlife Habitat The location of 27 acres of impact from the 45 miles of cross-country travel will largely depend on where the elk, bear, and mule deer live. Because a combined 95 percent of those motorized retrievals will be for elk (55 percent) and mule deer (40 percent), most of the expected impact will occur in elk and mule deer habitat. Elk habitat is located primarily in the northern portions of Payson and Pleasant Valley ranger districts (GMU 22N, 23N). Habitat types within this area consist of piñon-juniper chaparral, ponderosa pine mild, mixed conifer w/aspen, and mixed broadleaf deciduous riparian forest. Mule deer habitat occurs throughout Tonto National Forest. Alternative 4 would benefit the wildlife habitat in Payson and Pleasant Valley ranger districts by restricting retrieving harvests to 200 yards from a designated public road, alternative 4 would protect over 535,823 of the 703,351 acres (76 percent of Payson and Pleasant Valley ranger districts) that is currently open to cross-country travel. However when comparing alternative 4 with the baseline, new negative impacts would result when hunters retrieve their prey outside of Payson and Pleasant Valley ranger districts. Impacts would result primarily from motorized big game retrieval of mule deer, because mule deer harvests compose about 40 percent of all motorized big game retrieval. In addition, mule deer can occur in more arid regions of the Forest, therefore the habitat recovery rate may be slower than the rate impacts are generated. Federally-listed Species Roads and Motorized Trails Roads. Public and administrative roads proposed to be removed or added across a variety of Federally-listed species habitats, special designations, or individual observations are summarized in table 88. Species analyzed include lesser long-nosed bat, Southwestern willow flycatcher, Mexican spotted owl, Yuma clapper rail, Chiricahua leopard frog, Gila chub, Colorado pikeminnow, desert pupfish, spikedace, razorback sucker, Gila topminnow, Arizona cliffrose, and Arizona hedgehog cactus. See wildlife specialist report for specific impacts to each species. A detailed list describing each of these wildlife data layers are listed in table WILDLIFE_LAYERS in appendix K of the wildlife specialist report located in the project record. Tonto National Forest Motorized Travel Management Environmental Assessment Page 161 of 269

168 Added or removed Removed Removed Removed Chapter 3 ~ Environmental Consequences Table 88. Proposed removed or added roads across Federally-listed and proposed species habitat, observations, and proposed or designated critical habitat by alternatives Threatened, endangered, & proposed species, & critical habitat Added Added Added Public Admin. Public Admin. Public Admin. Total mileage Motorized trails. Motorized trails proposed to be added across a variety of Federally-listed species habitat, special designations, or individual observations are summarized in table 89. Species analyzed include lesser long-nosed bat, Southwestern willow flycatcher, Mexican spotted owl, Chiricahua leopard frog, Gila chub, Colorado pikeminnow, razorback sucker, and Gila topminnow. See wildlife specialist report for specific impacts to each species. Table 89. Proposed added motorized trails across Federally-listed and proposed species habitat, observations, and proposed or designated critical habitat by alternatives General wildlife habitat Alternative 1 Alternative 2 Alternative 3 Alternative 4 Added Added Added Added Total mileage For specific motorized trail number identification crossing this habitat, designation, or observation, see tables ALT2_3_4_TETRAILANALYSIS in appendix K. General Effects from Routes Discussion for Federally-listed Species See discussion of effects of routes on Federally-listed species in General effects from routes discussion for general wildlife habitat section. The effects of routes on Federally-listed species are the same on general wildlife. A more detailed review of the general effects of routes and their associated uses on wildlife and habitat can be found in General effects of routes and their associated uses on wildlife in appendix K. Changes to NFS Roads Related to Vehicle Class No distinction was made between high-clearance vehicles and passenger vehicles in this section because: 1) the differences between these two types of road uses are negligible and 2) 99 percent of the changed roads were for high-clearance vehicles. Seasonal restrictions would benefit Federally-listed species, if they coincided with the species breeding seasons. The only Federally-listed species that road use was proposed to be restricted for was the Mexican spotted owl. Alternative 2 seasonally-restricted administrative use outside of MSO breeding season (March 1 to August 31) for 31 miles within MSO protected activity centers. These seasonal restrictions benefit the owl, because it allows the owl to breed without being disturbed by administrative use. A year-round closure order has been issued for the Salt and Tonto arms of Roosevelt Lake for Southwestern willow flycatchers. This closure order prohibits vehicles, fires, and smoking in these sensitive breeding areas for Southwestern willow flycatchers. This closure order benefits Southwestern willow flycatchers, because the closure order: 1) limits disturbance of breeding Page 162 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

169 Added (public & admin.) Added (public) Added (admin.) Added (public & admin.) Added (public) Added (admin.) Chapter 3 ~ Environmental Consequences birds from vehicles, 2) reduces risk of fire to its habitat, and 3) allows regeneration of temporary habitat when the reservoir is low. However, additional roads and trails are proposed to increase recreational opportunities in these areas (see tables 88 and 89), which may adversely affect Southwestern willow flycatchers. Changes to NFS Roads Related to Trails The differences among the habitat impacts from full-sized vehicles, ATVs, and motorcycles are considered to be negligible, because all these vehicles have similar impacts to Federally-listed species and their habitat. Seasonal restrictions on motorized trails in the Naegelin Canyon in alternatives 2 and 4 may incidentally benefit Mexican spotted owl between December 15 and March 31, when the motorized trails are closed. Motorized vehicles would not disturb Mexican spotted owl during the winter. Changes to NFS Roads Related to Administrative Use Action alternatives 2, 3, and 4 propose to change 153, 185, and 114 miles, respectively, to administrative roads from either existing public roads or added public roads. In all action alternatives, about 50 percent of those roads proposed to be administrative occurred in desert communities and piñon-juniper chaparral. These changes are expected to benefit Federally-listed species in these types of habitats, because considerably less use is anticipated from administrative roads than from public roads. Consequently, less use means fewer direct impacts (disturbance and mortality vehicle hits) and indirect impacts (habitat degradation due to camping and wood gathering). Unauthorized Route Addition to NFS Roads Originate About 25 percent of public roads and 30 percent of administrative roads proposed to be added in alternatives 2 and 4 originate from unauthorized roads. Many of these unauthorized routes may affect Federally-listed species. Species analyzed include lesser long-nosed bat, Southwestern willow flycatcher, Mexican spotted owl, Yuma clapper rail, Chiricahua leopard frog, Gila chub, Colorado pikeminnow, desert pupfish, spikedace, razorback sucker, Gila topminnow, Arizona cliffrose, and Arizona hedgehog cactus. Table 90 summarizes the total mileage. See the wildlife specialist report for impacts to specific species. Table 90. Unauthorized routes proposed to be added as roads across Federally-listed species habitat and designations Unauthorized routes proposed Alternative 1 Alternative 2 Alternative 3 Alternative 4 Total mileage Seasonal restrictions on added roads from unauthorized routes will have beneficial effects for wildlife, if the routes were seasonally restricted because of breeding wildlife. However, few roads Tonto National Forest Motorized Travel Management Environmental Assessment Page 163 of 269

170 Added Added Added Added Chapter 3 ~ Environmental Consequences from unauthorized routes are seasonally restricted; only one to two miles (about 1 percent) are seasonally restricted in all alternatives. Unauthorized Route Addition to NFS Motorized Trails About 67 to 81 percent of the motorized trails proposed to be added derive from unauthorized routes for alternatives 2 and 4. See table 91 for summary of mileage affecting Federally-listed species habitats. Species analyzed include lesser long-nosed bat, Southwestern willow flycatcher, Mexican spotted owl, Chiricahua leopard frog, and Gila topminnow. See wildlife specialist report for specific impacts to each species. Seasonal restrictions on added motorized trails from unauthorized routes will have beneficial effects for wildlife, if the routes were seasonally restricted because of breeding wildlife. However, few motorized trails from unauthorized routes are seasonally restricted; only four miles (about two percent) are seasonally restricted in all alternatives. Table 91. Unauthorized routes proposed to be added as motorized trails across different wildlife habitat types Alternative 1 Alternative 2 Alternative 3 Alternative 4 Total mileage Alternative 1 Route Effects on Federally-listed Species and Designations In this alternative, no addition or removal of routes to the current route system are proposed. Consequently, no effects to Federally-listed species or designations are anticipated. However, unauthorized routes in Payson and Pleasant Valley ranger districts are expected to increase relative to the environmental baseline, as a result of the no action alternative. Motorized users would continue to legally travel cross-country in those two districts and further degrade wildlife habitat. Alternatives 2, 4, and 4 Route Effects on Federally-listed Species and Designations Adding routes to the current route system will: 1) continue to disturb breeding individuals, 2) facilitate predators or brood parasites, 3) increase fire risk to habitat, 4) encourage increased use and impact, or 5) prevent the habitat from recovering to support more individuals. See tables ALT2_3_4_TEROADANALYSIS and ALT2_3_4_TETRAILANALYSIS in appendix K for specific routes that may affect Federally-listed species and designations. Designation of Areas Table 92 summarizes the number of acres proposed to be designated as new areas for unrestricted, motorized, cross-country travel in Federally-listed habitat and designations. Species include lesser long-nosed bat, Southwestern willow flycatcher, Mexican spotted owl, Chiricahua Page 164 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

171 leopard frog, Gila chub, Colorado pikeminnow, spikedace, razorback sucker, and Gila topminnow. See wildlife specialist report for specific impacts to each species. Table 92. Federally-listed habitat and designations within areas (cross-country travel) based on alternatives Federally-listed species & designations Alternative 1 Alternative 2 Alternative 4 Alternative 3 Gross Net a Gross Net a Total acreage , , ,479 a Net = Gross - acreages removed from cross-country travel in Payson and Pleasant Valley RDs General Effects from Areas Discussion for General Wildlife Habitat Although users are allowed to travel anywhere within an area designated for unrestricted, motorized, cross-country travel, 100 percent wildlife habitat destruction is not anticipated, though wildlife may not effectively use the area due to high noise disturbance and edge effects of highdensity routes. Alternative 1 Area Effects on Federally-listed Species and Designations Although this alternative proposes to add no new areas for unrestricted, motorized, cross-country travel, this alternative would continue to allow cross-country motorized travel in the Payson and Pleasant Valley ranger districts (except wilderness area and private land). Consequently, damage would still continue to occur to Federally-listed species and designations within these two ranger districts. Alternative 2 Area Effects on Federally-listed Species and Designations Adding 1,414 acres of open areas would impact: 23 acres of potential foraging habitat of lesser-long nosed bat 306 acres of potential Southwestern willow flycatcher habitat 106 acres of potential Gila topminnow habitat The likelihood of any of these species currently occupying habitat within the areas (cross-country travel) is unlikely, because there have been no observations of these three species within the proposed areas. The prohibition of cross-country travel in Payson and Pleasant Valley ranger districts will reduce the impacts to: seven species of Federally-listed species and three designated or proposed critical habitats (table 92). Alternative 3 Area Effects on Federally-listed Species and Designations This alternative proposes to prohibit cross-country motorized travel throughout the entire Forest and does not propose to add any areas designated for unrestricted, motorized cross-country travel. The prohibition of cross-country travel in Payson and Pleasant Valley ranger districts will reduce the impacts to: seven species of Federally-listed species and three designated or proposed critical habitats (table 92). Tonto National Forest Motorized Travel Management Environmental Assessment Page 165 of 269

172 All routes Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Alternative 1 a Chapter 3 ~ Environmental Consequences Alternative 4 Area Effects on Federally-listed Species and Designations This alternative is identical to alternative 2 in its effects on Federally-listed species. Designation of Permit Zones Table 93 below lists the types and lengths of routes crossing wildlife habitat within permit zones. The same permit zones are proposed to be implemented for each alternative. The difference in the alternatives will then be the number of miles of routes designated within the permit zones that is open to the public. Species affected include lesser long-nosed bat, Southwestern willow flycatcher, and Gila topminnow. See wildlife specialist report for specific impacts to each species. Table 93: Types and lengths of routes crossing Federally-listed species and designations within proposed permit zones (permitted designated route use) Federallylisted species and designations Alternative 2 Routes within proposed permit zones (miles) Alternative 3 Routes within proposed permit zones (miles) Alternative 4 Routes within proposed permit zones (miles) Total mileage a No new permit zones are proposed in the no action alternative, therefore no routes will be within proposed permit zones. General Effects from Permit Zones Discussion for Federally-listed Species and Designations See discussion in General effects from permit zones discussion for general wildlife habitat. Proposed permit zones would benefit few Federally-listed species or designations. Lesser longnosed bat, Southwestern willow flycatcher, or Gila topminnow are not likely to occupy the permit zones, because there have been no observations of these three species within the proposed permit zones. Motorized Big Game Retrieval Table 94 below summarizes the acreages of Federally-listed species habitat potentially impacted by motorized big game retrieval. Species affected include lesser long-nosed bat, Southwestern willow flycatcher, Mexican spotted owl, Yuma clapper rail, Chiricahua leopard frog, Gila chub, Colorado pikeminnow, desert pupfish, spikedace, razorback sucker, Gila topminnow, Arizona cliffrose and Arizona hedgehog cactus. See wildlife specialist report for specific impacts to each species. Page 166 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

173 Table 94. Potential Federally-listed species or designations within the area allowed for cross-country motorized big game retrieval Federally-listed species & designations Alternative 1 Alternative 2 Alternative 3 Alternative 4 Total acreage 0 325, ,133 Although potential acreages for impact are extensive, the actual impacts would be far less because 100 percent of these areas are not expected to be driven over by hunters retrieving their harvests in motorized vehicles. Expectations are that 0 to 27 acres from 0 to 45 miles of crosscountry travel will be impacted annually in all alternatives based on harvest data from 2006 to 2010 and a series of assumptions derived from Arizona Game and Fish Department (Wong, 2011, Feb. 11). See motorized big game retrieval discussion in general wildlife habitat discussion. General Effects from Motorized Big Game Retrieval Discussion for Federally-listed Species The limited acreages impacted by motorized big game retrieval are expected to recover quickly, because of the limited number of passes (one to two) a hunter will make through an area to retrieve big game. One or two passes are not expected to kill many annual plants. Webb found that after a single pass, annual plants on an OHV route remained intact, but most were destroyed after ten passes (1983). Perennial plants are expected to be more robust, therefore perennial plants are likely to also sustain one to two passes. The habitat will likely recover from one to two passes from a motorized vehicle. However, if motorized big game retrieval damage is generated faster than the habitat can recover, the impacts from motorized big game retrieval will accumulate and negatively impact wildlife habitat. This scenario is especially true for Federally-listed species residing in drier habitats, where habitat will recover more slowly from the impacts of motorized big game retrieval. Alternative 1 Motorized Big Game Retrieval Effects on Federally-listed Species and Designations In this alternative, no new cross-country motorized use corridors are proposed, consequently there would be no change from the current environmental baseline. However in this alternative, crosscountry motorized travel would still be allowed in Payson and Pleasant Valley ranger districts. Therefore, cross-country big game motorized retrieval would continue to occur in these two ranger districts. Alternative 2 Motorized Big Game Retrieval Effects on Federally-listed Species and Designations The location of 16 acres of impact from the 27 miles of cross-country travel will largely depend on where the elk and bear live. Because 93 percent of those motorized retrievals will be for elk, most of the impact is expected to occur in elk habitat, which is primarily in Payson and Pleasant Valley ranger districts (GMU 22N, 23, 23N). These two ranger districts are already open to crosscountry travel; consequently, proposing motorized big game retrieval corridor (cross-country travel) in these two ranger districts do not constitute a change relative to the environmental baseline. Additionally, effects to Federally-listed species habitat and designations are expected to Tonto National Forest Motorized Travel Management Environmental Assessment Page 167 of 269

174 be insignificant, because habitats are expected to recover quickly after 2 passes over 27 miles of annual cross-country travel spread across 206,626 acres of bear and elk habitat within the motorized big game retrieval corridor. This is equivalent to generating damage at 0.08 mi/mi 2 /year. Alternative 3 Motorized Big Game Retrieval Effects on Federally-listed Species and Designations Because motorized big game retrieval is not proposed for this alternative, no impacts relative to the environmental baseline are expected from designating motorized big game retrieval. Alternative 4 Motorized Big Game Retrieval Effects on Federally-listed Species and Designations The impacts from motorized big game retrieval for elk and bear are similar to alternative 2, even with the addition of motorized big game retrieval of mule deer. Alternative 4 would add an additional 157 motorized retrievals resulting in an additional 18 miles of cross-country travel across 787,603 of mule deer habitat. But because there is so much mule deer habitat across the forest, the likelihood of a hunter killing and retrieving a mule deer in Federally-listed species habitat is very small. In addition, almost all the retrievals will be during the fall, when most Federally-listed species are not breeding. Determinations for Federally-listed Species and Designations as a Result of Designating Routes, Areas, Zones, and Motorized Big Game Retrieval Corridors Table 95 lists the determinations made for Federally-listed species and brief rationales. Table 95. Determinations and rationale for Federally-listed species as a result of designating routes, areas, zones, and motorized big game retrieval corridors Mammals Species Bat, lesser long-nosed Ocelot Birds Alternative 1 NE:NC NE:NC Alternative 2 MAY, NLAA: INS MAY, NLAA: DIS Alternative 3 MAY MAY Alternative 4 MAY MAY Flycatcher, Southwestern willow NE:NC MAY, LAA MAY MAY Flycatcher, Southwestern willow, critical habitat NE:NC MAY, NLAA: INS MAY MAY Owl, Mexican spotted NE:NC MAY, LAA MAY MAY Owl, Mexican spotted, critical habitat NE:NC MAY, NLAA: INS MAY MAY Rail, Yuma clapper NE:NC MAY, NLAA: INS MAY MAY Page 168 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

175 Amphibians Species Frog, Chiricahua leopard Frog, Chiricahua leopard, proposed critical habitat Fish Chub, Gila Chub, Gila critical habitat Minnow, loach Minnow, loach, proposed critical habitat floodplain Pikeminnow, Colorado (experimental non-essential) Pupfish, desert Spikedace Spikedace, proposed critical habitat floodplain Sucker, razorback Sucker, razorback, critical habitat Topminnow, Gila Woundfin Plants Cliffrose, Arizona Hedgehog cactus, Arizona Alternative 1 NE:NC NE:NC NE:NC NE:NC NE:NC NE:NC Alternative 2 MAY, NLAA: DIS MAY, NLAA: INS MAY, NLAA: INS MAY, NLAA: INS MAY, NLAA: HABNOSP MAY, NLAA: INS Alternative 3 MAY MAY MAY MAY MAY MAY Alternative 4 MAY MAY MAY MAY MAY MAY NE:NC MAY, NLJ MAY MAY NE:NC NE:NC NE:NC NE:NC NE:NC NE:NC NE:NC NE:NC MAY, NLAA: INS MAY, NLAA: HABNOSP MAY, NLAA: INS MAY, NLAA: INS MAY, NLAA: INS MAY, NLAA: INS MAY, NLAA: HABNOSP MAY, NLAA: INS MAY, NLAA: INS MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY MAY Tonto National Forest Motorized Travel Management Environmental Assessment Page 169 of 269

176 Species Alternative 1 Alternative 2 Alternative 3 Alternative 4 BEN beneficial effect (contemporaneous positive effects without any adverse effects to an individual (listed species) or the population (sensitive species); HABNOSP habitat present, but species absent; SSCA small scale relates to the size of the impact and should never reach the scale where a population is affected; MAY may affect/effect; NC no change from the baseline will occur; NE no effect; NOHAB habitat absent, therefore species absent from action area; SSCA small scale relates to the size of the impact and should never reach the scale where a population is affected; UNL unlikely is when the effect is extremely unlikely to occur to affect the population. Forest Sensitive Species Roads and Motorized Trails Roads. Public and administrative roads proposed for addition or removal across a variety of Forest sensitive species habitat, special designations, or individual observations are summarized in table 96. Species and habitat analyzed include bats (colonies, Allen s lappet-brown, pale Townsend s big-eared), desert bighorn sheep, common black hawk, Western yellow-billed cuckoo, bald eagle, Northern goshawk, zone-tailed hawk, Northern Mexican gartersnake, reticulate Gila monster, Morafka s desert tortoise, lowland leopard frog, Western barking frog, Arizona toad, headwater chub, roundtail chub, longfin dace, Colorado pikeminnow, desert sucker, razorback sucker, Gila topminnow, Tonto Basin agave, Blumer s dock, Mogollon fleabane, Eastwood alum root, mapleleaf false snapdragon, and horseshoe deer vetch. See wildlife specialist report for specific impacts to each species. Page 170 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

177 Table 96. Proposed removed or added roads across Forest sensitive species habitat, observations, or designations by alternatives Forest sensitive species and habitat Added or removed Removed Added Removed Added Removed Added Public Admin. Public Admin. Public Admin. Total mileage For specific road number identification crossing habitat, designation, or observation, see tables ALT2_3_4_FSROADSANALYSIS in appendix K. Tonto National Forest Motorized Travel Management Environmental Assessment Page 171 of 269

178 Motorized trails. Public and administrative roads proposed for addition or removal across a variety of forest sensitive species habitat, special designations, or individual observations are summarized in table 97. Species and habitat analyzed include bats (colonies and Allen s lappet-brown), desert bighorn sheep, Western yellow-billed cuckoo, bald eagle, Northern goshawk, Northern Mexican gartersnake, Morafka s desert tortoise, headwater chub, roundtail chub, and Blumer s dock. See wildlife specialist report for specific impacts to each species. Table 97. Proposed added motorized trails across forest sensitive species habitat and observations. Forest Sensitive Species Alternative 1 Alternative 2 Alternative 3 Alternative 4 Habitat Added Added Added Added Total mileage a For specific motorized trail number identification crossing this habitat, designation, or observation, see tables ALT2_3_4_FSTRAILSANALYSIS in appendix K. General Effects from Routes Discussion for Forest Sensitive Species. See discussion of effects of routes on forest sensitive species in General effects from routes discussion for general wildlife habitat section. The effects of routes to forest sensitive species are the same to general wildlife. A more detailed review of the general effects of routes and their associated uses to wildlife and habitat can be found in General effects of routes and their associated uses on wildlife in appendix K. Changes to NFS Roads Related to Vehicle Class High-clearance vehicles and passenger vehicles in this section were not considered separately, because: 1) the differences between these two types of road uses are negligible and 2) 99 percent of the changed roads were for high-clearance vehicles. Seasonal restrictions would benefit forest sensitive species, if they coincided with breeding seasons of forest sensitive species. However, no roads were specifically, seasonally restricted for forest sensitive species. Changes to NFS Roads Related to Trails The differences among the habitat impacts from full-sized vehicles, ATVs, and motorcycles were considered to be negligible, because all these vehicles had similar impacts to forest sensitive species and their habitat. Seasonal restrictions on motorized trails in the Naegelin Canyon in alternatives 2 and 4 may incidentally benefit forest sensitive species between December 15 and March 31 when the motorized trails are closed. Changes to NFS Roads Related to Administrative Use Action alternatives 2, 3, and 4 propose to change 153, 185, and 114 miles, respectively, to administrative roads from either existing public roads or added public roads. In all action Page 172 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

179 alternatives, about 50 percent of those roads proposed to be administrative occurred in desert communities and piñon-juniper chaparral. These changes are expected to benefit forest sensitive species in these types of habitats, because considerably less use from administrative roads is anticipated than from public roads. Consequently, less use means fewer direct impacts (disturbance and mortality vehicle hits) and indirect impacts (habitat degradation due to camping and wood gathering). Unauthorized Route Addition to NFS Roads About 25 percent of public roads and 30 percent of administrative roads proposed for addition are from unauthorized roads in alternatives 2 and 4. Many of these unauthorized routes may affect forest sensitive species. See summary table 98. Species and habitat analyzed include: bat colonies, desert bighorn sheep, Western yellow-billed cuckoo, bald eagle, Northern goshawk, zone-tailed hawk, Northern Mexican gartersnake, Morafka s desert tortoise, lowland leopard frog, headwater chub, roundtail chub, longfin dace, desert sucker, Tonto Basin agave, Blumer s dock, Eastwood alum root, and horseshoe deer vetch. See wildlife specialist report for specific impacts to each species. Table 98. Unauthorized routes proposed to be added as roads across different forest sensitive habitat types. Forest Sensitive Habitat Alternative 1 Alternative 2 Alternative 3 Alternative 4 Added (public & admin.) Added (public) Added (admin.) Added (public & admin.) Added (public) Added (admin.) Total mileage Seasonal restrictions on added roads from unauthorized routes will have beneficial effects for forest sensitive species, if the routes were seasonally restricted because of breeding forest sensitive species. However, few roads from unauthorized routes are seasonally restricted; only one to two miles (about one percent) are seasonally restricted in all alternatives. Unauthorized Route Addition to NFS Motorized Trails About 67 to 81 percent of the motorized trails proposed to be added are from unauthorized routes in alternatives 2 and 4. See summary table 99. Species and habitat analyzed include bat colonies, Western yellow-billed cuckoo, Northern goshawk, Northern Mexican gartersnake, Morafka s desert tortoise, headwater chub, roundtail chub, bald eagle, and Southwestern willow flycatcher closure. See wildlife specialist report for specific impacts to each species. Seasonal restrictions on added motorized trails from unauthorized routes will have beneficial effects for forest sensitive species, if the routes were seasonally restricted because of breeding wildlife. However, few motorized trails from unauthorized routes are seasonally restricted; only four miles (about two percent) are seasonally restricted in all alternatives. Tonto National Forest Motorized Travel Management Environmental Assessment Page 173 of 269

180 Table 99. Unauthorized routes proposed to be added as roads across different wildlife habitat types Alternative 1 Alternative 2 Alternative 3 Alternative 4 Forest Sensitive Habitat Added Added Added Added Total mileage Alternative 1 Route Effects on Forest Sensitive Species In this alternative, no addition or removal of routes is proposed to the current route system. Consequently, no effects to forest sensitive species or designations are expected. However, unauthorized routes in Payson and Pleasant Valley ranger districts are expected to increase relative to the environmental baseline as a result of the no action alternative. Motorized users would continue to legally travel cross-country in those two districts and further degrade wildlife habitat. Alternatives 2, 3, and 4 Route Effects on Forest Sensitive Species See tables 96 and 97. These tables summarize the miles of overlap and impact to forest sensitive species. Proposed routes in this alternative could impact individuals. However, in all instances, the miles of routes and their impacts would not cause forest sensitive species to 1) lose viability or 2) create significant trends toward federal listing. Although the proposed action may not cause the loss of species viability or create significant trends toward federal listing, analysis of the significance of potential adverse effects on the population or its habitat within the area of concern and on the species as a whole is required. In all instances, the mileages of routes overlap and impact only a small proportion of forest sensitive species habitat when compared the species as a whole. Rangewide species distributions for each forest sensitive species can be found in table TES_SPECIES_ACCOUNT in appendix K of the wildlife specialist report located in the project record A more detailed account for the desert tortoise can be found below for alternative 2. Morafka s desert tortoise. Of the routes proposed to be added in low-to-high tortoise habitat modeled by Tonto NF, 90 percent roads and 70 percent of motorized trails are largely in the Mesa Ranger District surrounding Sugarloaf Mountain (see table ALT2_3_4_FSROADANALYSIS in appendix K for exact road names/numbers). An additional 6 miles of roads and 32 miles of motorized trails are proposed within tortoise habitat near Sugarloaf Mountain. Although this area has a stable population of desert tortoises, legalizing these user-created routes could increase use and degrade desert tortoise habitat. Although adding these motorized trails and roads would likely negatively impact desert tortoises within Tonto NF, this population represents only a small part of the entire species. Designation of Areas Table 100 summarizes the number of acres proposed to be designated as new areas for unrestricted, motorized, cross-country travel. Species and habitat analyzed include bats (colonies, Allen s lappet-brown, pale Townsend s big-eared, pocketed free-tailed, and Western red), desert bighorn sheep, common black hawk, Western yellow-billed cuckoo, bald eagle, golden eagle, American peregrine falcon, Northern goshawk, narrow-headed gartersnake, Northern Mexican Page 174 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

181 gartersnake, reticulate Gila monster, Morafka s desert tortoise, lowland leopard frog, Western barking frog, Arizona toad, headwater chub, roundtail chub, longfin dace, desert sucker, Sonora sucker, netwing midge, fossil springsnail, Arizona bugbane, Fish Creek rock daisy, Blumer s dock, Mogollon fleabane, and Eastwood alum root. See wildlife specialist report for specific impacts to each species. Table 100. Forest sensitive habitat and designations within areas (cross-country travel) based on alternatives. Forest Sensitive species/habitat Alternative 1 Alternative 2 Alternative 3 Alternative 4 Gross Net a Net a Gross Net a Total acreage , , ,479 a Net = Gross - acreages removed from cross-country travel in Payson and Pleasant Valley RDs General Effects from Areas Discussion for Forest Sensitive Habitat Although users are allowed to travel anywhere within an area designated for unrestricted, motorized, cross-country travel, 100 percent wildlife habitat destruction is not expected; though wildlife effectively may not use the area due to high noise disturbance and edge effects of highdensity routes. Alternative 1 Area Effects on Forest Sensitive Species and Designations Although this alternative proposes to add no new areas for unrestricted, motorized, cross-country travel, this alternative would continue to allow cross-country motorized travel in the Payson and Pleasant Valley ranger districts (except wilderness area and private land). Consequently, damage would still continue to occur to forest sensitive species and designations within these two ranger districts. Alternative 2 Area Effects on Forest Sensitive Species and Designations Sycamore OHV area in Mesa Ranger District is the only OHV area that overlaps with forest sensitive species habitat for the yellow-billed cuckoo (306 acres of habitat modeled by AZGFD) and the desert tortoise (47 acres of habitat modeled by Tonto NF). Yellow-billed cuckoo. The 306 acres is likely overstated, because aerial photographs indicate that the area is mostly xeric riparian vegetation. However, there are some areas that may consist of cottonwoods, which could be yellow-billed cuckoo habitat. Although adding this area would likely negatively impact yellow-billed cuckoo within Tonto National Forest, the population within Tonto National Forest represents only a small part of the entire species. In addition, the closure of Payson and Pleasant Valley ranger districts to unrestricted cross-country travel will benefit this species by closing a net of -15,779 acres of similar habitat. Desert tortoise. The 47 acres consists of the northeast portion of the Sycamore OHV area. This area overlaps with desert tortoise habitat southwest of Sugarloaf Mountain. Although adding this area would likely negatively impact desert tortoises within Tonto National Forest, the population within Tonto National Forest represents only a small part of the entire species. Tonto National Forest Motorized Travel Management Environmental Assessment Page 175 of 269

182 All routes Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Alternative 1 a Chapter 3 ~ Environmental Consequences Alternative 3 Area Effects on Forest Sensitive Species and Designations This alternative proposes to prohibit cross-country motorized travel throughout the entire Forest and does not propose to add any areas designated for unrestricted, motorized cross-country travel. Alternative 4 Area Effects on Forest Sensitive Species and Designations This alternative is identical to alternative 2. Designation of Permit Zones Table 101 summarizes the types and lengths of routes crossing forest sensitive habitat within permit zones. The same permit zones are proposed to be implemented for each alternative. The difference in the alternatives will then be the number of miles of routes designated within the permit zones that is open to the public. Species and habitat analyzed include bat colonies, desert bighorn sheep, Western yellow-billed cuckoo, bald eagle, Northern Mexican gartersnake, Morafka s desert tortoise, lowland leopard frog, longfin dace, desert sucker, and Sonora sucker. See wildlife specialist report for specific impacts to each species. Table 101. Proposed added routes within proposed permit zones across forest sensitive species habitat and observations. Forest Sensitive species/habitat Alternative 2 Routes within proposed permit zones (miles) Alternative 3 Routes within proposed permit zones (miles) Alternative 4 Routes within proposed permit zones (miles) Total mileage a No new permit zones are proposed in the no action alternative; therefore, no routes will be within proposed permit zones. General Effects from Permit Zones Discussion for Forest Sensitive Species See discussion in General effects from permit zones discussion for general wildlife habitat. Proposed permit zones overlap with many forest sensitive species. Motorized Big Game Retrieval Table 102 below summarizes the habitat of acreages potentially impacted by motorized big game retrieval. Species and habitat analyzed include bats (colonies, Allen s lappet-brown, pale Townsend s big-eared, pocketed free-tailed, and Western red), desert bighorn sheep, common black hawk, Western yellow-billed cuckoo, bald eagle, golden eagle, American peregrine falcon, Northern goshawk, zone-tailed hawk, Northern Mexican gartersnake, narrow-headed gartersnake, reticulate Gila monster, Morafka s desert tortoise, lowland leopard frog, Western barking frog, Arizona toad, headwater chub, roundtail chub, longfin dace, desert sucker, Sonora sucker, Parker s cyclloepus riffle beetle, netwing midge, fossil springsnail, Tonto Basin agave, Ripley Page 176 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

183 wild buckwheat, Arizona bugbane, Fish Creek rock daisy, Blumer s dock, Fish Creek fleabane, Mogollon fleabane, Pima Indian mallow, Arizona root, Eastwood alum root, mapleleaf false snapdragon, and horseshoe deer vetch. See wildlife specialist report for specific impacts to each species. Table 102. Forest sensitive species habitat and observations within the area allowed for cross-country motorized big game retrieval Forest sensitive species/habitat Alternative 1 Alternative 2 Alternative 3 Alternative 4 Total acreage 0 244, ,399 Although potential acreages for impact are extensive, the actual impacts would be far less, because 100 percent of these areas are not expected to be driven over by hunters retrieving their harvests in motorized vehicles. The number of acres expected to be annually impacted in all alternatives is 0 to 27 acres from 0 to 45 miles of cross-country travel in all alternatives based on harvest data from 2006 to 2010 and a series of assumptions derived from Arizona Game and Fish Department (Wong, 2011, Feb. 11). See motorized big game retrieval discussion in general wildlife habitat discussion. General Effects from Motorized Big Game Retrieval Discussion for Forest Sensitive species. The limited acreages impacted by motorized big game retrieval are expected to recover quickly for each alternative, because it is anticipated that hunters will make only one to two passes through a route to retrieve big game. One to two passes is not expected to kill many annual plants. Webb found that after a single pass, annual plants on an OHV route remained intact, but most were destroyed after ten passes (1983). Perennial plants are expected to be more robust, therefore perennial plants are likely also to sustain one to two passes. The habitat will likely recover from one to two passes from a motorized vehicle. However, if motorized big game retrieval damage are generated faster than the habitat can recovery, the impacts from motorized big game retrieval will accumulate and have negative impacts to wildlife habitat. This scenario is especially true for forest sensitive species residing in drier habitats where it will take longer for the habitat to recover from the impacts of motorized big game retrieval. Determinations for Forest Sensitive Species and Designations as a Result of Designating Routes, Areas, Zones, and Motorized Big Game Retrieval Corridors Table 103 lists the determinations made for forest sensitive species and brief rationales. Table 103. Determinations and rationale for forest sensitive species as a result of designating routes, areas, zones, and motorized big game retrieval corridors Mammals Species Bat, Allen s lappet-brown Alternative 1 NE:NA Alternative 2 MAY, 0: SSCA Alternative 3 MAY, 0: SSCA Alternative 4 MAY, 0: SSCA Tonto National Forest Motorized Travel Management Environmental Assessment Page 177 of 269

184 Alternative Alternative Alternative Alternative Species MAY, 0: MAY, 0: MAY, 0: Bat, California leaf-nosed NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Bat, greater Western mastiff NE:NA SSCA SSCA SSCA Bat, lesser long-nosed (endangered) NE:NA MAY, N/A MAY, N/A MAY, N/A Bat, pale Townsend s big-eared NE:NA NE:NOHAB NE:NOHAB NE:NOHAB MAY, 0: MAY, 0: MAY, 0: Bat, pocketed free-tailed NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Bat, spotted NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Bat, Western red NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Coati, white-nosed NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Sheep, desert bighorn NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Sheep, Rocky Mountain bighorn NE:NA SSCA SSCA SSCA Birds MAY, 0: MAY, 0: MAY, 0: Black hawk, common NE:NA SSCA SSCA SSCA Cuckoo, Western yellow-billed MAY, 0: MAY, 0: MAY, 0: NE:NA (candidate) SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Eagle, bald NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Falcon, American peregrine NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Goshawk, Northern NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Grebe, Clark s NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Hawk, Northern gray NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Hawk, zone-tailed NE:NA SSCA SSCA SSCA Towhee, Abert s Reptiles Gartersnake, Northern Mexican (candidate) Gartersnake, narrow-headed NE:NA NE:NA NE:NA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA Page 178 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

185 Species Monster, reticulate Gila monster Snake, Maricopa leaf-nosed Tortoise, Morafka s desert Amphibians Frog, lowland leopard Frog, Northern leopard Frog, Western barking Toad, Arizona Fish Chub, headwater (candidate) Chub, roundtail (candidate) Dace, longfin Sucker, desert Sucker, Sonora Invertebrates Beetle, Parkers cylloepus riffle Midge, netwing Springsnail, fossil Plants Agave, Hohokam Agave, Tonto Basin Buckwheat, Ripley wild Bugbane, Arizona Alternative 1 NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA NE:NA Alternative 2 MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA Alternative 3 MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA Alternative 4 MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA MAY, 0: SSCA Tonto National Forest Motorized Travel Management Environmental Assessment Page 179 of 269

186 Alternative Alternative Alternative Alternative Species MAY, 0: MAY, 0: MAY, 0: Dock, Blumer s NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Fleabane, Fish Creek NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Fleabane, Mogollon NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Groundsel, Toumey NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Mallow, Pima Indian NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Milkwort, Hualapai NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Phlox, Arizona NE:NA SSCA SSCA SSCA Rock daisy, Fish Creek NE:NA NE:NOHAB NE:NOHAB NE:NOHAB Rock daisy, Salt River NE:NA NE:NOHAB NE:NOHAB NE:NOHAB MAY, 0: MAY, 0: MAY, 0: Root, Arizona alum NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Root, Eastwood alum NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Sage, Galiuro NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Sandwort, Mt. Dellenbaugh NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Sedge, Chihuahuan NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Sedge, Cochise NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Snapdragon, mapleleaf false NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Vetch, horseshoe deer NE:NA SSCA SSCA SSCA MAY, 0: MAY, 0: MAY, 0: Woodfern, Aravaipa NE:NA SSCA SSCA SSCA 0 - actions do not contribute to loss of viability or trends toward Federal listing of any species; BEN beneficial effect (contemporaneous positive effects without any adverse effects to an individual (listed species) or the population (sensitive species); HABNOSP habitat present, but species absent; SSCA small scale relates to the size of the impact and should never reach the scale where a population is affected; MAY may affect/effect; NA no action will occur; N/A determination of viability and trend toward federal listing not applicable because this species is already Federally-listed and viability (similar to jeopardy) is determined by U.S. Fish and Wildlife Service. See biological assessment for detailed analysis for this species; NE no effect; NOHAB habitat absent, therefore species absent from action area; SSCA small scale relates to the size of the impact and should never reach the scale where a population is affected; UNL unlikely is when the effect is extremely unlikely to occur to affect the population. Page 180 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

187 Alternative 1 Removed Added Removed Added Removed Added Chapter 3 ~ Environmental Consequences Management Indicator Species Roads and Motorized Trails Roads. Table 104 summarizes the Management Indicator Species (MIS) habitat quality that would be impacted by road designations based on alternatives. Acreages were derived by assuming that indirect route impacts were 300 feet on either side of the route. Species and habitat analyzed include elk, turkey, pygmy nuthatch, violet-green swallow, Western bluebird, hairy woodpecker, Northern goshawk, Abert s squirrel, ash-throated flycatcher, gray vireo, Townsend s solitaire, juniper titmouse, common flicker, spotted towhee, black-chinned sparrow, savannah sparrow, horned lark, black-throated sparrow, canyon towhee, bald eagle, Bell s vireo, summer tanager, hooded oriole, hairy woodpecker, Arizona gray squirrel, warbling vireo, Western wood pewee, common black hawk, and macroinvertebrates. See wildlife specialist report for specific impacts to each species. The crosswalk between MIS and habitat type is listed in table 2 in appendix K. Table 104. MIS habitat potentially qualitatively impacted by incidental use (e.g., woodcutting, camping, parking) within 300 ft. of removed (positive impact) or added (negative) roads Alternative 2 Alternative 3 Alternative 4 Management Indicator Species Total acreage 0 29, ,601 34, ,190 23, ,796 Motorized trails. Table 105 summarizes the Management Indicator Species (MIS) habitat quality that would be impacted by motorized trail designations based on alternatives. Acreages were derived using the same methodology and rationale described for roads above. Table 105. Management Indicator Species habitat potentially qualitatively and indirectly impacted (300ft buffer) on motorized trails Management Indicator Species Alternative 1 Alternative 2 Alternative 3 Alternative 4 Total acreage 0 75,077 21,403 80,141 General Effects from Routes Discussion for Management Indicator Species. See discussion of effects of routes on species in General effects from routes discussion for general wildlife habitat section. The effects of routes to management indicator species are the same to general wildlife. Changes to NFS Roads Related to Vehicle Class High-clearance vehicles and passenger vehicles were not differentiated in this section because: 1) the differences between these two types of road uses are negligible, and 2) 99 percent of the changed roads were for high-clearance vehicles. Tonto National Forest Motorized Travel Management Environmental Assessment Page 181 of 269

188 Seasonal restrictions would benefit management indicator species, if they coincided with breeding seasons of management indicator species; however, none coincide with management indicator species breeding seasons. Changes to NFS Roads Related to Trails The differences among habitat impacts from full-sized vehicles, ATVs, and motorcycles are considered to be negligible, because these vehicles all had similar impacts to management indicator species and their habitat. Seasonal restrictions on motorized trails in the Naegelin Canyon in alternatives 2 and 4 may incidentally benefit management indicator species between December 15 and March 31, when the motorized trails are closed. Motorized vehicles would not disturb management indicator species during the winter. Changes to NFS Roads Related to Administrative Use Action alternatives 2, 3, and 4 propose to change 153, 185, and 114 miles, respectively, to administrative roads from either existing public roads or added public roads. In all action alternatives, about 50 percent of those roads proposed to be administrative occurred in desert communities and piñon-juniper chaparral. These changes are expected to benefit management indicator species in these types of habitats, because considerably less use is anticipated from administrative roads than from public roads. Consequently, less use means fewer direct impacts (disturbance and mortality vehicle hits) and indirect impacts (habitat degradation due to camping and wood gathering). Unauthorized Route Addition to NFS Roads About 25 percent of public roads and 30 percent of administrative roads proposed to be added originate from unauthorized roads in alternatives 2 and 4. Many of these unauthorized routes may affect management indicator species. See summary of acres in table 106. Species and habitat analyzed include elk, turkey, pygmy nuthatch, violet-green swallow, Western bluebird, hairy woodpecker, Northern goshawk, Abert s squirrel, ash-throated flycatcher, gray vireo, Townsend s solitaire, juniper titmouse, common flicker, spotted towhee, black-chinned sparrow, savannah sparrow, horned lark, black-throated sparrow, canyon towhee, bald eagle, Bell s vireo, summer tanager, hooded oriole, hairy woodpecker, Arizona gray squirrel, warbling vireo, Western wood pewee, common black hawk, and macroinvertebrates. See wildlife specialist report for specific impacts to each species. Table 106. Acres indirectly affected by unauthorized routes proposed to be added as roads across management indicator species habitat Management Alternative 1 Alternative 2 Alternative 3 Alternative 4 Indicator Added (public Added Added Added Added Added Added Species & admin.) (public) (admin.) (public) (admin.) (public) (admin.) Total acreage 0 21,531 6, ,386 5,824 Page 182 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

189 Unauthorized Route Addition to NFS Motorized Trails About 67 to 81 percent of the motorized trails proposed to be added originate from unauthorized routes in alternatives 2 and 4. See summary of acreage in table 107. Species and habitat analyzed include elk, turkey, pygmy nuthatch, violet-green swallow, Western bluebird, hairy woodpecker, Northern goshawk, Abert s squirrel, ash-throated flycatcher, gray vireo, Townsend s solitaire, juniper titmouse, common flicker, spotted towhee, black-chinned sparrow, savannah sparrow, horned lark, black-throated sparrow, canyon towhee, bald eagle, Bell s vireo, summer tanager, hooded oriole, hairy woodpecker, Arizona gray squirrel, warbling vireo, Western wood pewee, common black hawk, and macroinvertebrates. See wildlife specialist report for specific impacts to each species. The majority of the unauthorized roads are located in desert communities wildlife habitat. Ashthroated flycatcher and black-throated sparrow are the two management indicator species that occur in desert communities. The impacts of adding unauthorized roads to wildlife and wildlife habitat are discussed in the general effects discussion for general wildlife habitat above. Seasonal restrictions on added motorized trails from unauthorized routes will have beneficial effects for wildlife, if the routes were seasonally restricted because of breeding wildlife. However, few motorized trails from unauthorized routes are seasonally restricted; only four miles (about two percent) are seasonally restricted in all alternatives. Table 107. Acres indirectly affected by unauthorized routes proposed to be added as motorized trails across management indicator species habitat. Alternative 1 Alternative 2 Alternative 3 Alternative 4 General wildlife habitat Added Added Added Added Total acreage 0 20, ,734 Designation of Areas Table 108 summarizes the number of acres proposed to be designated as new areas for unrestricted, motorized, cross-country travel. Species and habitat analyzed include elk, turkey, pygmy nuthatch, violet-green swallow, Western bluebird, hairy woodpecker, Northern goshawk, Abert s squirrel, ash-throated flycatcher, gray vireo, Townsend s solitaire, juniper titmouse, common flicker, spotted towhee, black-chinned sparrow, savannah sparrow, horned lark, blackthroated sparrow, canyon towhee, bald eagle, Bell s vireo, summer tanager, hooded oriole, hairy woodpecker, Arizona gray squirrel, warbling vireo, Western wood pewee, common black hawk, and macroinvertebrates. See wildlife specialist report for specific impacts to each species. Table 108. Potential impact (acres) to habitat types within areas (cross-country travel) based on alternatives Management Indicator Species Alternative 1 Alternative 2 Alternative 4 Alternative 3 Gross Net a Gross Net a Total acreage 0 4,660-5,683,997-5,688,657 4,660-5,683,997 a Net = Gross - acreages removed from cross-country travel in Payson and Pleasant Valley Ranger Districts. Acreage of habitats overlap. Tonto National Forest Motorized Travel Management Environmental Assessment Page 183 of 269

190 All routes Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Alternative 1 a Chapter 3 ~ Environmental Consequences General Effects from Areas Discussion for Management Indicator Species Habitat Although users are allowed to travel anywhere within an area designated for unrestricted, motorized, cross-country travel, 100 percent wildlife habitat destruction is not anticipated, though wildlife effectively may not use the area due to high noise disturbance and edge effects of highdensity routes. Designation of Permit Zones Table 109 below summarizes the types and lengths of routes crossing management indicator habitat within permit zones. The same permit zones are proposed to be implemented for each alternative. The difference in the alternatives will then be the number of miles of routes designated within the permit zones that is open to the public. Species and habitat analyzed include ash-throated flycatcher, gray vireo, black-throated sparrow, bald eagle, Bell s vireo, summer tanager, and hooded oriole. See wildlife specialist report for specific impacts to each species. Table 109: Types and lengths of routes crossing Management Indicator Species habitat within proposed permit zones (permitted designated route use). General wildlife habitat Alternative 2 Routes within proposed permit zones (miles) Alternative 3 Routes within proposed permit zones (miles) Alternative 4 Routes within proposed permit zones (miles) Total mileage General Effects from Permit Zones Discussion for Management Indicator Species See discussion in General effects from permit zones discussion for general wildlife habitat. Proposed permit zones overlap with only six management indicator species. Motorized Big Game Retrieval Approximately 0 to 27 acres from 0 to 45 miles of cross-country travel are expected to be annually impacted in all alternatives based on harvest data from 2006 to 2010 and a series of assumptions derived from Arizona Game and Fish Department (Wong, 2011, Feb. 11). See motorized big game retrieval discussion in general wildlife habitat discussion. General Effects from Motorized Big Game Retrieval Discussion for Management Indicator Species. The limited acreages impacted by motorized big game retrieval are expected to recover quickly for each alternative, because it is anticipated that hunters will make only one to two passes through a route to retrieve their big game. One to two passes is not expected to kill many annual plants. Webb found that after a single pass, annual plants on an OHV route remained intact, but most were destroyed after ten passes (1983). Perennial plants are expected to be more robust, Page 184 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

191 therefore perennial plants are likely to also sustain one to two passes. The habitat will likely recover from one to two passes from a motorized vehicle. Consequently, all motorized big game retrieval impacts to management indicator species from all alternatives are expected to be negligible. Determinations for Forest Management Indicator Species as a Result of Designating Routes, Areas, Zones, and Motorized Big Game Retrieval Corridors Table 110 on the next page is the net acreage impacts from qualitative impacts (no habitat conversion) from all designations. Closing routes is considered to be a positive impact to MIS habitat, while opening routes and designating open cross-country travel areas is considered to be a negative impact to MIS habitat. Both positive and negative impacts were combined for each alternative resulting in a net impact to MIS habitat. OHV permit zones acreages and motorized big game potential acreages were not considered, because impacts are negligible. Positive impacts from permit areas are not measurable and negative impacts from motorized big game potential acreages were too small (0 to 27 acres) relative to forestwide acreages. These net impacts to MIS habitat were then compared to the total MIS habitat within the entire Forest as a percentage and are described in table 111. These qualitative impacts, listed as percentages, reflect the potential area that would be qualitatively impacted due to incidental use of adjacent habitat resulting from increased or decreased usage of routes and open areas. The biggest designation that pushed most MIS into high and positive changes was the prohibition of cross-country travel in Payson and Pleasant Valley ranger districts. The only exception was the negative impacts to MIS that use cottonwood and willow riparian forests and resulted to a negative impact of 6 to 17 percent change. Although many of the positive and negative impacts appear large, these designations have been determined to have no effect to both forestwide MIS habitat and population trends under all alternatives for several reasons. First, the incidental actions like firewood gathering and camping within 300 ft. of routes do not occur equally throughout the Forest. That is, not all areas within 300 ft. of a route in the Forest have firewood to collect or are attractive for camping. Consequently, a far smaller area is actually impacted relative to all areas throughout the Forest. Most people are likely to use routes without incidentally impacting the 300 ft. of habitat adjacent to the route. Second, incidental firewood gathering and camping is a qualitative change to habitat rather than a quantitative change. That is, these types of activities may degrade the habitat, but do not convert the habitat into an unusable form. MIS are probably still able to use it, despite some small disturbances in those few areas that are used for camping or wood gathering. Evaluation of how actions impact forestwide populations and habitat changes is required and typically requires habitat conversions, rather than limited habitat degradation. The designation of areas is an exception, because open areas may be severely degraded. For example, the MIS for cottonwood and willow habitat decline 6 to 17 percent is a result of designation of areas. However, these changes are actually expected to be much lower, because of vegetation classification errors. The cottonwood and willow habitat designation consists mostly Tonto National Forest Motorized Travel Management Environmental Assessment Page 185 of 269

192 of xeric riparian vegetation (mesquite, baccharis). The majority of the acres of this vegetation classification does not support those MIS representing cottonwood and willow riparian forest. Third, although it appears as though there will be large, positive changes to most MIS species as a result of the prohibition of cross-country travel in Payson and Pleasant Valley ranger districts, not all of the habitat within Payson and Pleasant Valley ranger districts has been degraded as a result of cross-country travel. That is, in most acreages, cross-country travel will likely be prohibited in areas that were not being used for cross-country anyway. In conclusion, it is difficult to accurately quantify acres for MIS. However, designations are not expected to affect MIS population trends or habitat. The impacts from motorized big game retrieval are considered negligible, therefore are not included in the net number of impacted acres. A positive number denotes improving, qualitative MIS habitat condition. Table 110. Current Forestwide Management Indicator Species (MIS) habitat and net qualitative impacts (no habitat conversion) from positive (closed roads, prohibition of cross-country travel in Payson and Pleasant Valley RDs) and negative (added roads, added motorized trails, and added areas) designations MIS Current Forestwide habitat Alternative 1 Alternative 2 Alternative 3 Alternative 4 Elk 423, , , ,121 Turkey 423, , , ,121 Pygmy nuthatch 423, , , ,121 Violet-green swallow 423, , , ,121 Western bluebird 423, , , ,121 Hairy woodpecker 423, , , ,121 Goshawk 423, , , ,121 Abert s squirrel 423, , , ,121 Ash-throated flycatcher 1,403, , , ,494 Gray vireo 1,403, , , ,614 Townsend s solitaire 1,403, , , ,508 Juniper titmouse 1,403, , , ,508 Common flicker 1,403, , , ,508 Spotted towhee 1,403, , , ,508 Black-chinned sparrow 1,403, , , ,508 Savannah sparrow 38, , , ,508 Horned lark 38, , , ,896 Black-throated sparrow 909, , , ,896 Canyon towhee 909, , , ,647 Bald eagle 31, , , ,383 Bell s vireo 31, , ,015 Summer tanager 31, , ,015 Page 186 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

193 MIS Current Forestwide habitat Alternative 1 Alternative 2 Alternative 3 Alternative 4 Hooded oriole 31, , ,015 Hairy woodpecker 10, , ,015 Arizona gray squirrel 10, ,508 10,082 9,412 Warbling vireo 10, ,508 10,082 9,412 Western wood pewee 10, ,508 10,082 9,412 Common black hawk 10, ,508 10,082 9,412 Macroinvertebrates N/A N/A N/A N/A N/A Tonto National Forest Motorized Travel Management Environmental Assessment Page 187 of 269

194 Table 111. Management Indicator Species determinations for qualitative (non-habitat conversions) effects. Management Indicator Species Tonto NF Habitat Trend Tonto NF Population Trend Alternative 1 % change (determination) Alternative 2 % change (determination) Alternative 3 % change (determination) Alternative 4 % change (determination) Elk Static Increase 0% (no effect) 43% (no effect) 43% (no effect) 43% (no effect) Turkey Static Increase 0% (no effect) 43% (no effect) 43% (no effect) 43% (no effect) Pygmy nuthatch Static Increase 0% (no effect) 43% (no effect) 43% (no effect) 43% (no effect) Violet-green swallow Static Increase 0% (no effect) 43% (no effect) 43% (no effect) 43% (no effect) Western bluebird Static Increase 0% (no effect) 43% (no effect) 43% (no effect) 43% (no effect) Hairy woodpecker Static Increase 0% (no effect) 43% (no effect) 43% (no effect) 43% (no effect) Goshawk Static Increase 0% (no effect) 43% (no effect) 43% (no effect) 43%(no effect) Abert s squirrel Static Increase 0% (no effect) 43% (no effect) 43% (no effect) 43% (no effect) Ash-throated flycatcher Static Increase 0% (no effect) 28% (no effect) 29% (no effect) 28% (no effect) Gray vireo Static Decrease 0% (no effect) 28% (no effect) 29% (no effect) 28% (no effect) Townsend s solitaire Static Decrease 0% (no effect) 27% (no effect) 27% (no effect) 27% (no effect) Juniper titmouse Static Decrease 0% (no effect) 27% (no effect) 27% (no effect) 27% (no effect) Common flicker Static Increase 0% (no effect) 27% (no effect) 27% (no effect) 27% (no effect) Spotted towhee Static Increase 0% (no effect) 27% (no effect) 27% (no effect) 27% (no effect) Black-chinned sparrow Static Increase 0% (no effect) 27% (no effect) 27% (no effect) 27% (no effect) Savannah sparrow* Upward/static Increase 0% (no effect) 981% (no effect) 999% (no effect) 979% (no effect) Horned lark* Upward/static Increase 0% (no effect) 328% (no effect) 339% (no effect) 328% (no effect) Black-throated sparrow Downward/ static Increase 0% (no effect) 14% (no effect) 14% (no effect) 14% (no effect) Canyon towhee Downward/ static Increase 0% (no effect) 32% (no effect) 33% (no effect) 31% (no effect) Bald eagle No change Increase 0% (no effect) 957% (no effect) 978% (no effect) 952% (no effect) Bell s vireo No change Increase 0% (no effect) -6% (no effect) 1% (no effect) -6% (no effect) Page 188 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

195 Management Indicator Species Tonto NF Habitat Trend Tonto NF Population Trend Alternative 1 % change (determination) Alternative 2 % change (determination) Alternative 3 % change (determination) Alternative 4 % change (determination) Summer tanager No change Increase 0% (no effect) -6% (no effect) 1% (no effect) -6% (no effect) Hooded oriole No change Increase 0% (no effect) -6% (no effect) 1% (no effect) -6% (no effect) Hairy woodpecker No change Increase 0% (no effect) -17% (no effect) 4% (no effect) -20% (no effect) Arizona gray squirrel No change Increase 0% (no effect) 93% (no effect) 99% (no effect) 92% (no effect) Warbling vireo No change Increase 0% (no effect) 93% (no effect) 99% (no effect) 92% (no effect) Western wood pewee No change Increase 0% (no effect) 93% (no effect) 99% (no effect) 92% (no effect) Common black hawk No change Increase 0% (no effect) 93% (no effect) 99% (no effect) 92% (no effect) Macroinvertebrates N/A N/A N/A N/A N/A N/A Note: positive value represents an increase in habitat quality whereas a negative value represents a decrease in habitat quality. See text for no effect determinations despite apparently large qualitative changes. * These extremely large differences are a result of using different grassland criteria relative to the authors in the 2005 forestwide MIS report. These species probably should be eventually removed from the Tonto NF MIS list, because few horned larks breed in Tonto NF and no savannah sparrows have been recorded breeding in Tonto NF (Corman & Wise-Gervais, 2005). Unfortunately, it is not known how the original grassland acres were calculated in 2005; therefore, a crosswalk to compare between older calculations and current acreage calculations cannot be produced. Tonto National Forest Motorized Travel Management Environmental Assessment Page 189 of 269

196 Added or removed Removed Removed Removed Chapter 3 ~ Environmental Consequences Migratory Birds Roads and Motorized Trails Roads. Table 112 lists roads proposed to be removed or added within important bird areas (IBA) and a geese overwintering area. One IBA boundary is still being determined. Motorized trails. No motorized trails are being proposed within IBAs or the geese overwintering area. Table 112. Proposed removed or added roads across important bird areas and geese overwintering area IBAs and geese overwintering area Added Added Added Public Admin. Public Admin. Public Admin. IBA, Salt and Verde IBA <1 1 1 < <1 IBA, Cave Creek 0 <1 0 0 <1 0 0 <1 0 0 Geese Overwintering Area General Effects from Routes Discussion for Forest Sensitive Species. People who use open routes, habitat adjacent to open routes, and cross-country travel areas could incidentally trample or dislodge nestlings or eggs of some breeding bird species that nest on the ground or shrubs. Alternatives that have more closed routes, fewer open routes, and smaller cross-country travel areas are expected to have less impact to migratory birds. Snags and dead & downed wood. Open routes can lead to more fuelwood harvesting, which could decrease the amount of dead and downed wood. Changes to NFS Roads Related to Vehicle Class High-clearance vehicles and passenger vehicles were not separated into different categories in this section because: 1) the differences between these two types of road uses are negligible and 2) 99 percent of the changed roads were for high-clearance vehicles. Seasonal restrictions would benefit migratory birds, if they coincided with breeding seasons of migratory birds. However, no roads were specifically, seasonally restricted for migratory birds. Changes to NFS Roads Related to Trails No motorized trails are being proposed within IBAs or the geese overwintering area. Page 190 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

197 All routes Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Passenger High Clearance Motorized trail Alt. 1 a Chapter 3 ~ Environmental Consequences Changes to NFS Roads Related to Administrative Use Roads converted to administrative roads are expected to benefit migratory birds, because considerably less use is anticipated from administrative roads than from public roads. Consequently, less use means fewer direct impacts (disturbance and mortality vehicle hits) and indirect impacts (habitat degradation due to camping and wood gathering). Unauthorized Route Addition to NFS Roads Only Salt and Verde Important Bird Area has unauthorized routes proposed to be added as roads (see table 113). Table 113. Unauthorized routes proposed to be added as roads across different wildlife habitat types Alternative 1 Alternative 2 Alternative 3 Alternative 4 Added (public & admin.) Added (public) Added (admin.) Added (public & admin.) Added (public) Added (admin.) IBA, Salt and Verde There are no seasonal restrictions on added roads from unauthorized routes. Unauthorized Route Addition to NFS Motorized Trails No unauthorized routes are proposed to be added as motorized trails in important bird areas or in geese overwintering areas. Designation of Areas No cross-country travel areas or OHV permit zone areas overlap with Cave Creek IBA, Salt- Verde IBA, or the Roosevelt Lake geese overwintering areas. Designation of Permit Zones Only the Salt and Verde Important Bird Area overlaps with a permit zone (see table 114). Table 114. Proposed added routes within proposed permit zones across important bird areas. IBAs Alternative 2 Routes within proposed permit zones (miles) Alternative 3 Routes within proposed permit zones (miles) Alternative 4 Routes within proposed permit zones (miles) IBA, Salt and Verde IBA a No new permit zones are proposed in the no action alternative and therefore no routes will be within proposed permit zones. Tonto National Forest Motorized Travel Management Environmental Assessment Page 191 of 269

198 Motorized Big Game Retrieval Table 115 lists the important bird area and overwintering geese areas potentially impacted within the area allowed for cross-country motorized big game retrieval (appendix K). The actual acres impacted are likely to be less than 27 acres annually, if it is assumed that all motorized retrieval in the Forest would occur in these areas. Actual impact is likely to be magnitudes less, because motorized big game retrieval would occur forestwide. Table 115. Important bird areas and geese overwintering area within the area allowed for cross-country motorized big game retrieval Acres IBA and closure areas Alternative 1 Alternative 2 Alternative 3 Alternative 4 IBA, Salt and Verde IBA 0 3, ,703 IBA, Cave Creek Geese Overwintering Area Closure areas, geese 0 3, ,517 Determinations for migratory birds as a result of designating routes, areas, zones, and motorized big game retrieval corridors Unintentional take (bird, eggs, or nest) may occur more often as a result of more open routes, cross-country travel areas, and motorized big game retrieval. No cross-country travel areas would occur in IBAs or overwintering areas. Some routes are proposed to be open in the Salt & Verde IBA and some potential areas could be exposed to hunters retrieving their harvest on motorized vehicles. But these impacts would not affect bird populations, because impacts are small, relative to bird populations. Some negative effects are expected from open routes to dead and downed wood routes, because route users may harvest dead and downed for fuelwood. Bald and Golden Eagles Some open routes are expected to occur near bald or golden eagles, which could disturb nesting eagles. However, negative effects to bald and golden eagles are expected to be minimized due to closure orders that would be implemented, if it is believed that recreational use would disturb nesting eagles. Page 192 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

199 All Alternatives: Cumulative Effects The affected resources are wildlife species and wildlife habitat. The analysis boundary is the extent of a particular species or its habitat throughout its entire range. Common wildlife species (that is, no special status) populations and habitat within Tonto NF extend across regions, countries, and even continents. It is impossible to consider all cumulative actions on common wildlife species and habitats. Because impacts from route designation on common wildlife would only contribute a small portion of the total impact of all cumulative actions on a particular common species population or habitat, cumulative actions for common wildlife species will not be addressed in detail. However, many of the same effects described in the effects section and the cumulative effects section below can be expected to occur to common wildlife throughout the range of common wildlife, as a result of habitat conversion or habitat fragmentation. Impacts from route designation are likely to have a relatively bigger contribution to impacts to those species and habitat that are rare or declining. Consequently, regional activities will be focused on these species and habitats. These species include all Federally-listed species and their habitat, forest sensitive species, and migratory bird species of concern. Although analysis boundaries for some of these species and habitat may spread across the state, region, or continent; the analysis areas for all practical purposes will be within 50 miles of the Tonto NF s border. Table 116 below lists the impacts, sources, and effects caused by other actions in the past, present, and foreseeable future. More information on some of the cumulative actions can be found in the Analysis of Cumulative Effects section in the beginning of this chapter. Table 116. Cumulative effects past, present, and foreseeable future actions Effects Forest Service BLM State Loss or modification of habitat Curtailment of habitat or range Disturbance Future grazing (-1 flycatcher, tortoise) Mining (-1) Four Forest Initiative (+1) Fuels management (+1) Non-native treatment (+1) Construction activities (-1) Current proposals for road designation (-0.5) Major road construction (-1) Visitor use (-1) Wildlife closures (+1) Outfitter guiding (-1) Visitor restrictions (+1) Future grazing (-1) Mining (-1) Road designation (-1 tortoise) Visitor use (-1) Future grazing(-1) Mining (-1) Non-native fish stockings (-1) Road designation (-1 tortoise) Private landowners or outside agency control SRP Roosevelt Dam Operations (net=0; flycatcher) Resolution Land exchange (-1 Arizona hedgehog cactus) Mining (-1) Drought (-1) Urban development (-1) Major road construction (-1) Tonto National Forest Motorized Travel Management Environmental Assessment Page 193 of 269

200 Effects Forest Service BLM State Direct mortality Disease and predation Road kill (-1) Visitor use (-1) Private landowners or outside agency control The relative impacts are represented by either a - or + for negative or positive effects, respectively. The sign is followed by a number that represents the relative magnitude of effects, which is defined in table 117 (below). Table 117. Relative impacts of alternatives on Federally-listed and sensitive species and on bird species of concern Status Federally-listed species (T&E) Forest Sensitive Species (FS) Tonto NF migratory bird species of concern (birds) Magnitude of Effects Likely to adversely affect for many species, but a jeopardy opinion would be unlikely. Not likely to affect population viability or trend towards federal listing Not likely to affect migratory bird populations Likely to adversely affect for many species and 1 specie could reach a jeopardy opinion May affect population viability or trend towards federal listing for at least 1 specie May affect migratory bird populations Beneficial in short or long term Beneficial in short or long term Beneficial in the short or long term. Designating these routes is expected to have an approximately -0.5 contribution to sensitive wildlife or sensitive wildlife habitat primarily because these routes already exist. Overall, the route designation described in this EA/EIS would have a small additive effect to cumulative effects. More detailed cumulative actions and effects are described below. Past actions. Effects from past actions are already described under affected environment for general wildlife and special status wildlife and plants and alternative 1. Tonto NF foreseeable actions. Reasonable foreseeable actions that can affect wildlife resources are reauthorization of livestock grazing allotments, fuels reduction projects, forest thinning, watershed improvement projects, recreation management (obliteration of social trails and dispersed campsites, designation of trails, and campsites), lands special use permits (new issuances and maintenance on existing structures), personal use activities, and new road construction. While these activities can directly and indirectly affect wildlife species, as well as cause destruction or modification to wildlife and plant habitat, these actions are planned to minimize (and when possible, to eliminate) effects to species and their habitat above current conditions and have mitigation measures and Best Management Practices designed to mitigate disturbance that may occur from project implementation. Page 194 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

201 Legal and illegal personal use activities, particularly fuelwood harvesting, affects wildlife and their habitat. Removal of dead and downed wood can result in loss of habitat for invertebrates, small mammals, and reptiles; all of which are important prey items for wildlife of higher tropic levels. Removal of snags not only can affect prey species like invertebrates and reptiles; it also results in loss of bat roosting habitat and bird nesting and roosting habitat. Illegal fuel wood harvesting has resulted in removal of large, Gambel oak trees, which are also important for birds that nest in their natural cavities. Social and Economic Resources Affected Environment The social and economic effects analysis attempts to identify potential effects that Forest Service management may have on local, county, and regional economic systems and on people using the natural resources the Tonto NF provides. Much of the information in this report is taken from the draft Social and Economic Sustainability Assessment that was prepared for the Tonto National Forest in July, 2009 (U.S. Forest Service, 2009). In particular, would changes in the use of the forest for recreation and the amount of change in the designation of forest roads and trails be large enough or significant enough to cause measurable economic changes? Is the economy of the local area diverse enough and robust enough that the proposed changes will be insignificant or will they be felt in very specific segments of the local economy? Are any minority populations, low-income populations, or Indian tribes present in the area affected by the action, and if so, are there disproportionately high and adverse human health or environmental effects on these populations? Demographics The demographic history of the area surrounding the Tonto NF, and the region as a whole, represents one of sustained and rapid growth. Over the past century, the counties surrounding the Tonto NF have grown from a total of 47,000 residents to over 3.4 million (U.S. Forest Service, 2009). Arizona has grown from 120,000 residents to well over 5 million along with Washington, one of only two states to show such a startling demographic expansion (U.S. Forest Service, 2009). The average age in the state of Arizona has been steadily increasing: 31 percent of the population was under 15 in 1950, but only 22.4 percent is in the under-15 age bracket today. Some of these shifts can be attributed to the region s amenable climate, relatively affordable property values, and the continued importance of area military bases. Long-term population increases are also supported by seasonal visitors wishing to permanently relocate to environs with increased outdoor opportunities (U.S. Forest Service, 2009). Table 118 shows the population growth trends and changes between 1980 and 2000, as well as projected population growth through The data suggest that population growth rates at the county and State level are expected to continue to increase, peaking between 2010 and 2020 before declining by Tonto National Forest Motorized Travel Management Environmental Assessment Page 195 of 269

202 Table to 2030 decennial population & projections for county & state Location Projected 2010 Projected 2020 Projected 2030 Gila Co. 37,080 40,216 51,335 54,603 60,757 66,378 Maricopa Co. 1,509,052 2,122,101 3,072,149 3,709,566 4,516,090 5,390,785 Pinal Co. 90, , , , , ,695 Yavapai Co. 68, , , , , ,426 Analysis Area 1,705,195 2,386,410 3,470,728 4,161,936 5,048,925 5,991,284 Arizona 2,718,215 3,665,228 5,130,632 6,145,108 7,363,604 8,621,114 Location to 2030 Percent Change 1980 to to to to to 2030 Gila Co % 28% 6% 11% 9% Maricopa Co % 45% 22% 22% 19% Pinal Co % 54% 11% 16% 11% Yavapai Co % 55% 18% 22% 16% Analysis Area % 45% 20% 21% 19% Arizona % 40% 20% 20% 17% (U.S. Forest Service, 2009) Race and Ethnic Distribution Table 119 presents data collected on the racial and ethnic composition of the population in the assessment area. Race and ethnicity are defined as separate concepts by the federal government. People of a specific race may be of any ethnic origin, and people of a specific ethnic origin may be of any race. Ethnicity in the proceeding tables are categorized as Hispanic or Non-Hispanic. Race in these tables are categorized into five groups: White, African American, American Indian, Asian or Pacific Islander, and Other. The racial category of other includes those of multiple races. Table 119. Percentage of ethnicity and racial composition of county & state, 1990 to Non- Hispanic Ethnicity Hispanic White African American Racial Group American Indian Asian or Pacific Islander Other Gila Co. 81% 19% 77% 0% 13% 0% 10% Maricopa Co. 84% 16% 85% 3% 2% 2% 8% Pinal Co. 71% 29% 75% 3% 9% 0% 12% Yavapai Co. 94% 6% 96% 0% 2% 0% 2% Analysis Area 83% 17% 85% 3% 2% 2% 8% Arizona 81% 19% 81% 3% 6% 2% 9% 2000 Gila Co. 83% 17% 78% 0% 13% 0% 8% Page 196 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

203 1990 Non- Hispanic Ethnicity Hispanic White African American Racial Group American Indian Asian or Pacific Islander Other Maricopa Co. 75% 25% 77% 4% 2% 2% 15% Pinal Co. 70% 30% 70% 3% 8% 1% 18% Yavapai Co. 90% 10% 92% 0% 2% 1% 6% Analysis Area 76% 24% 78% 3% 2% 2% 14% Arizona 75% 25% 75% 3% 5% 2% 14% (U.S. Forest Service, 2009) The ethnicity and racial composition and distribution do not demonstrate a significant difference, when compared to the state as a whole. The past fifty or sixty years have seen only moderate racial diversification the state. While the Hispanic population of Arizona has increased from 20 percent to 25 percent of the total population since 1940, African Americans, despite an especially rapid influx in the two decades following World War II and an average population growth rate of 49 percent per decade, remained static at 3 percent of the population in 2000, only 0.1 percent above their relative numbers in 1940 (U.S. Forest Service, 2009). Between 1940 and 2005, the Native American population in Arizona grew from 44,076 to 275,321. During that same time, the percentage of Native Americans as part of Arizona s total population declined from 11 percent in 1940 to 4.7 percent in 2005 (U.S. Forest Service, 2009). Although the percentage of Native Americans in the Arizona population has decreased, the absolute number is now greater than six times the 1940 figure. What makes the percentage appear to decrease is the fact that Arizona s total population has grown from 499,261, in 1940, to an estimate of more than 6,000,000, in 2006 (U.S. Forest Service, 2009). Recreational Uses Although recreational use has increased steadily since the establishment of the National Forest Service, the increase in recreation over the past few decades has been particularly dramatic. Arizona in particular (but also the West and the nation in general) has experienced significant demographic changes in recent years, and these demographic trends have likewise influenced recreation trends. In phone surveys conducted by the Arizona State Parks in 1994 and 1998, nearly 50 percent of Arizonans said that they had visited an Arizona national forest within the previous twelve months (U.S. Forest Service, 2009). Access to public lands is considered a major contributor to quality of life by many Arizonans, and many parks and forests are experiencing very high recreational use, even while urban expansion is decreasing the amount of available open space. As a result, this trend of increasing pressure on recreational resources can be expected to continue into the future. The National Visitor Use Monitoring (NVUM) program provides reliable information about recreation visitors to NFS managed lands at the national, regional, and forest levels. The five most popular activities for visitors were viewing natural features (61.6 percent participation), viewing wildlife (53.7 percent), general relaxation (53 percent), hiking/walking (41.3 percent), Tonto National Forest Motorized Travel Management Environmental Assessment Page 197 of 269

204 and driving for pleasure on roads (38.3 percent) (October 2001 through September ). Using off-highway vehicles (OHV), camping in both primitive and developed sites, visiting historic and prehistoric sites, picnicking, and hunting and fishing were also popular (Kocis, et al., 2003). Motorized recreation includes single-track motorcycle riding, OHV riding, 4X4 riding, and general automobile driving along scenic routes. All these forms are popular on the Tonto NF, which has some of the highest recreational motorized vehicle use of any national forest in the nation. According to surveys conducted by the Arizona State Parks, most Arizonans consider the provision of OHV recreation opportunities to be a lower priority than other services, such as the preservation of cultural resources and natural areas. More Arizonans, however, considered management for OHVs to be important in a 1998 survey than in an earlier survey (U.S. Forest Service, 2009). Based on the surveys conducted for Arizona State Parks, motorized route users represent 22 percent, or 1,027,191 adult Arizona residents (defined as those that used a route for motorized use at least once in the last year). Core users represent 10.7 percent, or 511,207 adults (defined as those whose motorized route use accounts for the majority of their recreational trail time) (Arizona State Parks, 2009). A comparison of 2003 and 2008 Arizona Trail Survey results revealed that core motorized route user participation by vehicle type increased significantly: dirt biking increased 45 percent, quad or all-terrain driving increased 30 percent, and dune buggy or sand rail driving increased 17 percent. The most common pursuits for core motorized users on a motorized route were quad or all-terrain vehicle driving (72.2 percent), four wheel driving or other high clearance vehicle driving (71.6 percent), and motorized trail biking/dirt biking (61.1 percent). Trail hiking is the most popular non-motorized trail activity for motorized users (Arizona State Parks, 2009). The Tonto NF also supports a wide range of non-motorized recreation including hiking, backpacking, bicycling, horseback riding, watching and photographing wildlife and scenery, swimming, rafting, geo-caching, hunting, fishing, visiting archaeological and historical sites, and picnicking. Although some of these activities may include motorized travel to access them, the motorized travel is not the main point of the activity. Economic Characteristics Employment Total employment in the four counties of the analysis area was 2,033,020 in Maricopa County, which includes the Phoenix metropolitan area, by far accounts for the largest share (93 percent) of the analysis area employment. The sector providing the largest portion of employment was services, followed by retail trade, and government. Services and retail trade contain industries most likely to be impacted by recreation activities on the Forest (University of Arizona School of Natural Resources, 2005). Unemployment rates in the counties of the analysis area have generally reduced over time from 1980 through The average rate of unemployment over this period has ranged from a high of 11 The full NVUM report is available on the web through the Natural Resource Information System (NRIS) Human Dimensions Module at: NVUM_12/index.shtml. Page 198 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

205 White African American American Indian Asian Native Hawaiian & Other Pacific Islander Other Race Two or More Races Hispanic or Latino Chapter 3 ~ Environmental Consequences 7.4 percent in Gila County to a low of 4.0 percent in Maricopa County. The average in the State over the same period was 5.2 percent (University of Arizona School of Natural Resources, 2005). Income Approximately 12.1 percent of the analysis area s population had incomes below poverty level in 1999, below the average for the State (13.9 percent). Table 120 displays the percentage of the population below poverty level by race across the analysis area in The level of poverty is highest in among American Indian and Alaska Natives, followed by Hispanic or Latino, black or African Americans, and those who indicated some other race. Table 120. Poverty levels by race/ethnicity, 1999 Location Gila Co. 12% 7% 48% 4% 67% 22% 20% 19% Maricopa Co. 9% 20% 26% 11% 15% 25% 17% 24% Pinal Co. 12% 24% 43% 20% 5% 27% 19% 25% Yavapai Co. 11% 38% 28% 20% 41% 22% 24% 23% Analysis Area 9% 20% 31% 11% 15% 25% 17% 24% Arizona 10% 20% 37% 12% 16% 25% 19% 25% U.S. 9% 25% 26% 13% 18% 24% 18% 23% (U.S. Forest Service, 2009) Contribution Analysis Tables 121 and 122 display the estimated annual total direct, indirect, and induced labor income and employment contributions of the recreation and wildlife programs for Tonto NF. These programs are being used in this analysis because the most popular activities as estimated in the NVUM should be captured under recreation and wildlife programs. The total management impact of all programs on the Tonto NF (including grazing, timber, PILT, etc.) is approximately $137,206,000 in 2008 dollars. Recreation and wildlife activities account for over half of this amount. Additionally, the recreation and wildlife programs account for over half of the estimated 3,068 jobs contributed to the analysis area. Table 121. Tonto National Forest estimated annual labor income contribution from recreation and wildlife programs Resource/Impact Recreation Total Program Estimated Impact of the Recreation Activities of Local Residents Program Net of Local Resident Recreation Direct Impact $45,527,000 $36,033,000 $ 9,494,000 Secondary Impact $23,662,000 $18,647,000 $ 5,016,000 % of Total ($137,206) 50% 40% 11% Tonto National Forest Motorized Travel Management Environmental Assessment Page 199 of 269

206 Resource/Impact Wildlife Total Program Estimated Impact of the Recreation Activities of Local Residents Program Net of Local Resident Recreation Direct Impact $14,589,000 $11,805,000 $ 2,784,000 Secondary Impact $ 8,594,000 $ 7,061,000 $ 1,533,000 % of Total ($137,206,000) 17% 14% 3% Total Contribution $92,373,000 $73,546,000 $18,827,000 Percent of Total Labor Income Contributed (U.S. Forest Service, 2009) 67% 54% 14% The employment estimated in table 122 is defined as any part-time, seasonal, or full-time jobs. At 50 percent of labor income and 53 percent of employment, the recreation program area stimulates the greatest level of economic activity among the forest programs. Approximately 67 percent of the total estimated labor income and 71 percent of the total estimated employment are attributed to the recreation and wildlife and fish-related activities of local residents. Recreation impacts are most closely associated with retail trade, accommodation and food services, and the arts, entertainment, and recreation sectors. Jobs and labor income stimulated in these sectors is estimated at 0.5 percent in accommodations and food services; 0.3 percent in arts, entertainment and recreation; and under 0.2 percent in retail trade. While providing recreational opportunities to local residents is an important contribution, the recreation expenditures by local residents do not introduce new money into the local economy. If residents could not recreate on the National Forest, they would likely find other forms of recreation in the area and continue to spend their recreation dollars in the local economy. Therefore, this portion of employment is not necessarily dependent on the existence of the National Forest or the opportunities it provides. Table 122. Tonto National Forest estimated annual number of jobs contributed Resource/Impact Total Program Estimated Impact of the Recreation Activities of Local Residents** Program Net of Local Resident Recreation Recreation Direct Impact 1, Wildlife Secondary Impact % of Total (3,068) 53% 41% 12% Direct Impact Secondary Impact % of Total (3,068) 18% 15% 3% (U.S. Forest Service, 2009) Table 123 shows the estimated employment and labor income generated by activities on the Tonto National Forest relative to the regional economy as a whole. Tonto National Forest Page 200 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

207 activities are estimated to be responsible for 0.14 percent of jobs and 0.12 percent of labor income within the regional economy. Table 123. Current role of Tonto National Forest contributions to local economy Industry Area Totals Employment (Jobs) Tonto NF Related % of Total Labor Income (Thousands of 2008 Dollars) Area Totals Tonto NF Related % of Total Agriculture 16, % $ 571,291 $ 2, % Mining 6, % $ 311,514 $ 9, % Utilities 7, % $ 772,300 $ % Construction 226, % $11,575,129 $ 1, % Manufacturing 141, % $10,145,314 $ 3, % Wholesale Trade 87, % $ 5,965,902 $ 8, % Transportation & Warehousing 78, % $ 3,905,258 $ 4, % Retail Trade 239, % $ 7,384,229 $13, % Information 40, % $ 2,349,240 $ 1, % Finance & Insurance Real Estate & Rental & Leasing Prof. Scientific & Tech. Services Mgmt. of Companies Admin., Waste Mgmt., & Rem. Services Educational Services Health Care & Social Services Arts, Entertain., & Recreation Accommodation & Food Services 130, % $ 7,354,152 $ 3, % 134, % $ 4,877,104 $ 1, % 148, % $ 8,121,154 $ 4, % 20, % $ 1,750,776 $ 1, % 202, % $ 5,968,145 $ 2, % 33, % $ 1,052,588 $ % 182, % $ 8,612,149 $ 6, % 45, % $ 1,178,200 $ 3, % 165, % $ 3,181,141 $15, % Other Services 124, % $ 3,058,552 $ 3, % Government 229, % $13,159,819 $ 38, % Total 2,260,981 3, % $101,293,958 $126, % (U.S. Forest Service, 2009) Tonto National Forest Motorized Travel Management Environmental Assessment Page 201 of 269

208 Environmental Justice Executive Order 12898, Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations, provides that each Federal agency shall make achieving environmental justice part of its mission by identifying and addressing, as appropriate, disproportionately high and adverse human health or environmental effects of its programs, policies, and activities on minority populations and low-income populations. The Executive Order provisions also apply to programs involving Native Americans. The Council on Environmental Quality (CEQ) defines a minority as individuals belonging to one of the following groups: American Indian or Alaskan Native; Asian or Pacific Islander; Black, not of Hispanic origin; or Hispanic (CEQ, 1997). Executive Order 12898, a low-income population is determined using annual statistical poverty thresholds from the U.S. Census Bureau (CEQ, 1997). Percentages of minorities in the analysis area are similar to those for the state as a whole. Estimates indicate that a higher percentage of the populations of the analysis area who are American Indian live below poverty level (31 percent) as compared with the United States (26 percent). However, this number is below the percentage for the state (37 percent). Poverty rates for other racial and ethnicities were similar for the analysis area, the state, and the country as a whole. Socioeconomic and Environmental Justice Effects All Alternatives: Direct and Indirect Effects Under alternative 1, there would be no change in the NFS road or trail network (currently 2,308 miles of roads open to high-clearance vehicle and 1,050 miles of roads open to passenger cars). It is possible that economic contributions of motorized recreation could increase as participation in inherently motorized activities on the forest continues to increase, especially as expenditures for trips and for purchasing and maintaining vehicles and equipment increase along with population growth. Any potential effects would likely impact gas stations, convenience stores, and other retail stores in local communities and vehicle sales and repair shops in the analysis area. It is possible that at some time in the future, continued degradation of forest resources as a result of unmanaged off-road motorized use may result in users no longer attaining the experience they desire. Under alternative 2, roads open to high-clearance vehicle use would increase by about 349 miles, while roads open to passenger cars would decrease by about 40 miles. Trails available for motorcycle and ATV use would increase about 223 miles. Of these, 152 miles of unauthorized routes are proposed to be added as NFS roads and 139 miles as NFS motorized trails. Under alternative 3, roads open to high-clearance vehicle use would increase by about 111 miles, while roads open to passenger cars would decrease by about 79 miles. Trails available for motorcycle and ATV use would increase about 42 miles. No unauthorized routes would be added to the transportation system. Under alternative 4, roads open to high-clearance vehicle use would increase by about 505 miles, while roads open to passenger cars would decrease by about 78 miles. Trails available for motorcycle and ATV use would increase about 259 miles. Of these, 180 miles of unauthorized routes are proposed to be added as NFS roads and 170 miles as NFS motorized trails. Changes in social and economic conditions for alternatives 2, 3, and 4 would be minimal in relationship to the overall economy, because actions by the forest contribute less than one percent Page 202 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

209 to area employment and jobs (see social and economic resources specialist report in the project record for more information). Additionally, the inclusion of unauthorized routes in alternatives 2 and 4 would not result in a change to socio-economic conditions, because the majority of these routes are currently being used by the public even though they are not NFS roads. It is possible that economic contributions of motorized recreation could increase for individuals as participation in inherently motorized activities on the forest continues to increase, especially as expenditures for trips and for purchasing and maintaining vehicles and equipment increase. Any potential effects may increase individual revenue for gas stations, convenience stores, and other retail stores in local communities and vehicle sales and repair shops in the analysis area. Seasonal closures on NFS roads and trails in alternatives 2, 3 and 4 (154, 109, and 111 miles respectively) may have some level of impact to the local economy. Yet, this effect is immeasurable in relationship to the overall economy in the area due to the number of miles affected (less than 154 miles) compared to the entire NF road and trail system (up to 5,501 miles). Similarly, the net effect of OHV permit zones in alternatives 2, 3, and 4 would not have a measurable effect on the economic conditions of the analysis area. There would likely be some social conflict in these zones until motorized users become aware of the need for a permit to access each zone. However, many users of the Bulldog Canyon OHV Permit Zone report having a more pleasant OHV experience due to reduced resource damage and other illegal activities. As a result, overall user experiences in these zones could increase over time. The OHV Areas proposed in alternatives 2 and 4 are currently heavily impacted by OHV use. However, the legitimate use of these areas for cross-country travel may impact local social and economic conditions, if the areas attract additional use. Again, any potential effects may impact gas stations, convenience stores, and other retail stores in local communities. The designation of motorized trails and OHV areas would likely suit the increasing number of core motorized route users (as defined by Arizona State Parks), who participate in dirt biking and quad or all-terrain driving. Users who prefer a non-motorized experience would continue to be displaced from heavily-used roads, trails, and areas. Some motorized recreationists may be dissatisfied by temporary displacement from favorite locations during seasonal road closures, while other motorized and non-motorized users may have increased satisfaction from knowing that wildlife is being protected. Increasing the miles of road open for public driving and providing areas for cross-country driving could be seen as too permissive by some people who might then not visit the Forest or may concentrate their use in non-motorized areas, such as designated wilderness. However, it is likely that a large percentage of present forest visitors would continue to come from the Phoenix metropolitan area, including visiting for motorized recreation on the forest to enjoy cooler temperatures and forest scenery, especially during summer months. The general demographic distribution of visitors (age, gender, ethnicity, income) would likely not change as a result of any alternative. Motorized Dispersed Camping Motorized dispersed camping opportunities along NFS roads and trails would increase from the current condition for alternatives 2, 3, and 4 to varying degrees. However, there is current use of unauthorized routes for this activity, which would not be allowed once a decision is implemented and so the overall affect would be a decrease in motorized dispersed camping opportunities from alternative 1. This may have some level of impact to the local economy, which is immeasurable Tonto National Forest Motorized Travel Management Environmental Assessment Page 203 of 269

210 in relationship to the overall economy because it is likely that the levels of motorized dispersed camping will not decrease, but instead the patterns of use (i.e., where or how people camp) may change. Some people may experience dissatisfaction from no longer being able to access favorite camping locations with a vehicle, while others may experience increased satisfaction by accessing and utilizing dispersed campsites by non-motorized means. Motorized Big Game Retrieval Motorized big game retrieval opportunities would increase from the current condition in alternatives 2 and 4 in the Cave Creek, Mesa, Tonto Basin, and Globe ranger districts, but decrease in Pleasant Valley and Payson ranger districts. This is not likely to have an impact on socio-economic conditions, as a decrease in overall hunting activity is not expected. Instead, activity will likely be offset by those who benefit from increased motorized access and those who benefit from decreased motorized access. For example, some hunters may need to retrieve large animals due to physical limitations and so will benefit from increased access. Other hunters have indicated that increased motorized access for game retrieval is unnecessary and may negatively affect their activity. Motorized big game retrieval opportunities would decrease from the current condition in alternative 3. This could potentially decrease hunting opportunities for some users. Other hunters who would rather use non-motorized methods for hunting could view no motorized big game retrieval as adding to their hunting experience, which could encourage their participation in hunting activity. Again, it is not likely to have a measurable impact on socioeconomic conditions. All Alternatives: Cumulative Effects In general, predictions about changes in recreational use that may occur on the Forest are difficult to make and would be highly speculative. The Forest Service believes that under all alternatives, levels of motorized use will continue to increase along with population growth in the urban areas. It is possible that motorized vehicle use patterns may change with time. For example, even though the overall number of available roads and trails may increase or decrease, the same levels of use would simply become more concentrated in areas where mileage is decreased and more dispersed in areas where mileage is increased. Still, motor vehicle use is currently concentrated in many areas of the Forest, so the potential effect of changing user concentration may only be realized at some point when users no longer attain the experience they desire and seek other areas to recreate off NFS lands. The point at which this would occur is speculative. Potentially affected tribes have been consulted and effects considered on their rights and concerns within the analysis of alternatives. American Indian populations will not be disproportionately impacted under any alternative with avoidance of heritage resources, consideration of traditional values, and reasonable access allowed through agreements, permits, and recognition of their sovereignty and legal rights. None of the alternatives would have a disproportionate affect on any minority or low-income communities, as the travel management decisions are spread throughout the forest and do not cause any adverse environmental effect to a particular community. The effects to jobs and income in the impact area studied are a very small portion of the overall jobs and income (less than one percent). Any losses in motorized use are made up for in nonmotorized recreational activities, as it is assumed that these uses are enhanced. All of the impacts considered have no potential to contribute incrementally toward cumulative impacts on minority and low-income populations on a regional basis. In addition, there are no Page 204 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

211 projects planned that would affect these populations. Therefore, any potential impacts to environmental justice considerations would be relatively small and immeasurable. Climate Change The U.S. Environmental Protection Agency (EPA) developed a State of Knowledge paper that outlines what is known and what is uncertain about global climate change (2007). The following elements of climate change are known with near certainty: 1. Human activities are changing the composition of Earth s atmosphere. Increasing levels of greenhouse gases like carbon dioxide (CO 2 ) in the atmosphere since pre-industrial times are well-documented and understood. 2. The atmospheric buildup of CO 2 and other greenhouse gases is largely the result of human activities, such as burning fossil fuels, and natural events, such as volcanic eruptions, etc. 3. An unequivocal warming trend of about 1.0 to 1.7 o F occurred from 1906 to Warming occurred in both Northern and Southern Hemispheres and over oceans 4. Major greenhouse gases emitted by human activities remain in the atmosphere for periods ranging from decades to centuries. It is therefore virtually certain that atmospheric concentrations of greenhouse gases will continue to rise over the next few decades under similar conditions. 5. Increasing greenhouse gas concentrations tend to warm the planet. According to EPA, however, it is uncertain how much warming will occur, how fast warming will occur, and how warming will affect the climate system including precipitation patterns (2007). Given what is and is not known about global climate change, the following discussion outlines the cumulative effects of this project on greenhouse gas emissions and effects of climate change on forest resources. Carbon Dioxide (CO 2 ), Methane (CH 4 ), and Nitrous Oxide (N 2 0) emissions generated by motor vehicle travel on NFS roads and trails are expected to contribute to global concentration of greenhouse gases that affect climate change. Projected climate change impacts include air temperature increases, sea level rise, changes in timing, location, and quantity of precipitation, and increased frequency of extreme weather events such as heat waves, droughts, and floods. The intensity and severity of these effects are expected to vary regionally and even locally, making any discussion of potential site-specific effects (direct and indirect effects) of forestwide motor vehicle travel on global climate change speculative. In addition, effects of global climate change on forest resources are also speculative. Because greenhouse gases from vehicle emissions mix readily into the global pool of greenhouse gases, it is not currently possible to discern the effects of this project from the effects of all other greenhouse gas sources worldwide, nor is it expected that attempting to do so would provide a practical or meaningful analysis of project effects. Potential regional and local variability in climate change effects add to the uncertainty regarding the actual intensity of this project s effects on global climate change. Further, emissions associated with this project are extremely small in the global atmospheric CO 2 context, making it impossible to measure the incremental cumulative impact on global climate from emission associated with this project. In summary, the potential for Tonto National Forest Motorized Travel Management Environmental Assessment Page 205 of 269

212 cumulative effects is considered negligible for all alternatives, because none of the alternatives would result in measurable direct and indirect effects on air quality (see discussion of impacts under air quality section) or global climatic patterns. Scenic Quality Affected Environment The top seven recreational activities on Tonto National Forest according to 2008 National Visitor Use Monitoring (NVUM) are hiking/walking, viewing natural features, relaxing, motorized trail activity, fishing, viewing wildlife, and driving for pleasure. Five out of seven of these activities are directly related to scenic quality. As a result, visitors place a high value on scenic quality and have an interest in and concern about effects to scenic quality. In the Tonto National Forest Land and Resource Management Plan (Forest Plan), the Forest is divided into management areas with assigned prescriptions. Current direction in the Forest Plan includes the following forestwide standards and guidelines for Visual Resource Management (U.S. Forest Service, 1985, p. 38): Manage for Visual Quality Objectives (VQOs) ranging from preservation to maximum modification as defined for each prescription and delineated in the Forest Visual Resource Inventory. Apply design guidelines found in USDA handbooks, National Forest Landscape Management Series. As seen in VQO figure 7 and table 124, the majority of the Forest (43 percent) is in Partial Retention. The second highest amount of lands managed for VQOs is Modification with 23 percent, and then 21 percent with Maximum Modification. The remainder of the Forest lands is managed for Retention, 13 percent, and the least is Preservation with less than 1,000 acres. Table 124. Acreage by recreation opportunity spectrum (ROS) classification VQO Classification Tonto NF Acres % of Tonto NF in each VQO Retention 288,169 13% Partial Retention 953,173 43% Modification 509,837 23% Maximum Modification 465,503 21% Preservation 1,000 Less than 1% Total 2,217, % Forest Plan standards for scenic quality typically require that the result of activities managed by the Forest Service within the foreground of roads and trails, where a high percentage of travelers on those routes have a concern for scenic quality, not be evident to the average observer. Such areas would typically have a Retention (R) visual quality objective. On the Tonto NF, areas managed as Retention are generally located within foreground distance zone of major travel corridors such as SR 87, SR 260, and US 60 as well as along the Upper Salt River and Roosevelt Lake. Evidence of activities on the Forest seen from other routes that have a low volume of traffic or where travelers would typically have less concern for scenic quality should at least be subordinate to the natural characteristics of the surround landscape. Such areas would typically Page 206 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

213 have a Partial Retention (PR) visual quality objective. Partial Retention management areas on the Forest are located within foreground distance zones of SR 188 and 288 travel corridors. Areas away from lakes, river corridors, and sensitive travel corridors are to be managed as Modification and Maximum. These VQOs allow for activities such as roads and trails, which may dominate the characteristic landscape but utilize naturally established form and texture. Tonto National Forest Motorized Travel Management Environmental Assessment Page 207 of 269

214 Figure 7. Visual Quality Objectives (VQOs) for all land on the Tonto NF Page 208 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

215 Environmental Effects Desired Conditions The desired condition for scenery management is to maintain the natural appearance of National Forest Lands with the objective of minimizing intensity of alterations that contrast with the natural character of landscapes. Methodology This analysis was completed using the framework outlined in U.S. Forest Service Handbook, The Visual Management System. The proposed alternatives have the potential to affect both the visual resource itself, as well as the forest visitor s opportunity to view the resource. Roads and trails are most often the platform for viewing the Forest s scenery. On the other hand, the road or trail itself can affect visual quality if seen from another vantage point. Non-characteristic line quality created by high densities of roads, unauthorized routes, or trails has impacts to visual resources. Concentrated use areas can create changes to a naturally appearing landscape by introducing noticeable deviations to the characteristic form, line, color, or texture of a landscape. Landscapes with a dense forested canopy on the northern ranger districts have the capability of masking these alterations better. Sparsely covered desert landscapes on the southern ranger districts have less capability. Since high densities of roads, trails, or concentrated use areas within portions of the forest managed as Retention and Partial Retention have the greatest potential to create uncharacteristic form, line, color, or texture qualities that do not appear natural, these are the two VQO classifications analyzed in this report. Areas managed as Modification and Maximum Modification are not analyzed because these VQOs allow for alterations, such as roads that do not appear natural. Lands managed as Preservation are not addressed, since there are no proposed additions to the NFS road and trail system within these areas. ArcMap GIS was used to analyze the alternatives in regards to VQOs assigned to the area. The Tonto NF VQO Geographic Information System layer, which displays the visual quality objectives on the Forest, was overlaid with travel management alternatives layers to determine if the alternatives meet Forest Plan standards and guidelines. When the Forest s visual resource inventory mapping was completed in 1985, GIS systems did not exist. When the VQO inventory maps were digitized and integrated into the GIS system there were data errors due to differences in digitizing and mapping VQO boundaries, forest boundaries, and wilderness boundaries. As a result, the VQO layer does not exactly match the GIS system forest boundary layer, which creates differences in the total acreages between these two layers. This visuals analysis is based on the 2,217,682 acres with accurate data. The National Visitor Use Monitoring (NVUM) completed in 2001 and 2008 on the Tonto NF were used to determine the popularity of viewing scenery or driving for pleasure on the Forest (U.S. Forest Service, 2008). Assumptions Specific to Scenic Quality In addition to assumptions and limitations discussed in the beginning of this chapter, the following are specific to scenery: Tonto National Forest Motorized Travel Management Environmental Assessment Page 209 of 269

216 Changing existing NFS roads to NFS trails would not affect visual resources because there would be no on-the-ground change in route condition. Therefore, changing roads to trails will not be discussed as separate issues in this analysis. Instead, total miles of NFS trails will be used to show differences in impacts between alternatives. Changing the maintenance level of NFS roads would not affect visuals resources, because there would be no on-the-ground change in route condition. This includes administrative use only roads and seasonal restrictions. Therefore, changes in maintenance level, administrative use, and seasonal restrictions will not be discussed as separate issues in this analysis. Instead, total miles of NFS roads will be used to show differences in impacts between alternatives. Prohibition of cross-country travel would have a beneficial effect on scenery. Most motorized travel for big game retrieval occurs within 200 yards of a road and involves a single trip with a vehicle (typically an ATV). We expect the limited acreages impacted by motorized big game retrieval are to recover quickly, because we expect a hunter to make one to two passes through a route to retrieve big game. Webb (1983) found that after a single pass, annual plants on an OHV route remained intact, but most were destroyed after ten passes. We expect perennial plants to be more robust, and therefore perennial plants are likely to also sustain one or two passes. The habitat will likely recover from one to two passes from a motorized vehicle. As a result, the impact of MBGR on the natural landscape is minimal, so there is negligible impact on scenic quality. Therefore, MBGR will not be discussed further is this analysis. Across the Forest, motorized dispersed camping has not caused physical impositions that are permanent on the landscape; therefore, motorized dispersed camping has a negligible effect on scenic quality and will not be discussed further is this analysis. Alternative 1 No Action: Direct and Indirect Effects Existing Roads & Trails Management of motorized recreation on the Tonto NF would not change from the existing condition. Existing designated system routes would remain open to the public for motorized travel by previous decision. Table 125 below shows existing mileage of roads and trails available for motor vehicle use and their assigned VQO class. Approximately 3,131 miles of the 4,318 miles (72 percent) of existing designated roads are in portions of the Forest managed as Retention and Partial Retention. For site-specific information about administrative uses on existing roads and inventoried unauthorized routes on the Forest, look under Access/Uses in appendix L of the TAP report. Table 125. Alternative 1: Open and Administrative Use Roads & Trails (Miles) Total Existing Retention Partial Retention Roads* Roads Trails Admin only Roads Trails Admin only Forestwide 4, , Total Miles In Each VQO Class 957 2,174 Page 210 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

217 Total Existing Roads* % of NFS roads in each VQO class Retention *includes ML2 to 5 roads, and administrative use only roads Partial Retention Roads Trails Admin only Roads Trails Admin only 22% 50% Motorized Trails The existing road system does not include trails specifically dedicated to ATVs or off-road motorcycles. This lack of a motorized trail system results in conflicts between OHV types because all types are forced to share NFS roads. Due to the unsafe conditions, ATV users and offroad motorcyclists often resort to making their own trails. It is likely this would continue. Proliferation of unauthorized routes, particularly in sparsely covered landscapes, can adversely affect the Forest s scenic resources. Unauthorized Routes In the No Action Alternative, 590 miles of inventoried unauthorized routes would likely continue to be used across the Forest (table 126). Approximately 53 miles are in Retention (9 percent of inventoried unauthorized routes) and 287 miles are in Partial Retention (48 percent of inventoried unauthorized routes). Table 126. Alternative 1 - Inventoried unauthorized routes (miles) Total Inventoried Total Inventoried in Retention Total Inventoried in Partial Retention Total % of Inventoried Routes in each VQO class 9% 48% 57% Evidence of vehicle travel on unauthorized routes is visible from system roads on the Forest. This has the potential to create negative visual impacts by introducing non-characteristic linear features on a non-linear landscape. There are also color contrasts from exposed soils on the routes. In most cases, the visual impact is that of an unimproved road or naturally appearing trail intersecting the road or highway. Often the trail or road is unnoticed due to topographic and vegetative screening (meeting Retention) or briefly seen for short durations, remaining subordinate to the characteristic landscape (meeting Partial Retention). The continued use of these unauthorized routes would not affect visual resources on a route-byroute basis. However, the overall density in some locations tends to detract from the foreground and middleground viewing of the landscape at the forest scale. Many portions of the Forest, such as near the metropolitan areas of Cave Creek and Mesa, consist of braided or crisscrossed patterns of unauthorized routes developed by motorized users. Because the desert is fragile and vegetation is slow to become established, the proliferation of these routes has led to severe degradation of the natural desert landscape. Unauthorized routes in sparely vegetated terrain are particularly visible and would have a negative effect on visual resources through the introduction of uncharacteristic line quality to the landscape. Over the long-term timeframe, the public would notice increased impacts to visual resources from this use. This proliferation of unauthorized Tonto National Forest Motorized Travel Management Environmental Assessment Page 211 of 269

218 routes and damage is likely to continue and increase as influence from nearby populations increases. The overall scenic quality in these locations would possibly continue to decline under this alternative. Concentrated Use Areas Cross-country travel is allowed on Payson and Pleasant Valley ranger districts. On Globe, Mesa, and Tonto Basin ranger districts cross-country travel is not allowed; however, it occurs since it is difficult to enforce. There are no designated cross-country travel areas on the Tonto NF, although in a number of areas in close proximity to the Phoenix Metropolitan Area, there are locations with particularly heavy OHV use. The most intensively used areas, in the southern districts, include: St. Claire on Cave Creek RD; Golf Course on Globe RD; and Sycamore Creek and Rolls on Mesa RD. These areas have documented histories of repeated cross-country travel, where the prohibition on cross-country travel is difficult to enforce. Because the desert is fragile and vegetation is slow to become established, the repetitive passage of vehicles in these concentrated-use areas has created bare ground, hill climbs, and scarred landforms that are quite visible to people traveling through the Forest. The existence of such bare areas tends to diminish the natural appearance of forest lands and, therefore, reduces the scenic quality inherent to a natural appearing forest landscape. While an occasional unauthorized route does not detract from forest scenic quality for most people, concentrations of unauthorized routes on the landscape tend to detract from what most people expect and desire to see in the forest. User-created staging areas continually expand in size, often for tot lots where beginners can develop their OHV skills. Along with the degradation of the natural desert landscape from the proliferation of routes developed by OHV riders in these areas, illegal dumping and excessive trash are common. The foreground of such areas of more concentrated motorized use would typically not meet visual quality objectives defined in the Forest Plan. Degradation of scenic quality of the landscape in these locations would likely continue. Permit Zones The only currently permitted OHV Zone is Bulldog Canyon on Mesa Ranger District. This zone was created to control heavy OHV use that was damaging the natural desert vegetation, eliminate illegal dumping, and reduce excessive trash. Fencing and gates were installed to designate zone boundaries. Vehicle use is restricted to the existing 30 miles of high-clearance vehicle and passenger car roads in the zone and requires motorized users to obtain written authorization (a free special use permit from the ranger district) to enter the area. Table 127: Alternative 1 - Permit zone (acres) Permit Zone Total Total in Retention Total in Partial Retention Bulldog Canyon 34,720 17,496 15,374 Total acreage in each VQO Forestwide 288, ,173 % of VQOs Forestwide 6% 2% Page 212 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

219 Approximately 17,496 acres of the 34,720-acre Bulldog Canyon Permit Zone is in portions of the Forest managed as Retention VQO class and 15,374 is in Partial Retention. This is 6 percent and 2 percent respectively of these objectives forestwide (see table 127 above). The 32 miles of existing roads in the zone include 15 miles in areas managed as Retention and 12 miles in Partial Retention. Designation of the permit zone affects less than 2 percent or less of the total miles of NFS roads in Retention and Partial Retention forestwide (table 128 below). Table 128: Alternative 1 - Roads & trails in permit zones (miles) Total NFS Roads & Total in Retention Total in Partial Retention Trails Roads Trails Total Roads Trails Total Bulldog Canyon Total NFS road miles per VQO Class 957 2,174 % of NFS roads affected by permit zones per VQO class 2% Less than 1% Continuation of Bulldog Canyon Permit Zone under this alternative should continue to prevent proliferation of unauthorized routes that occurred in the zone prior to its establishment and that is occurring in other highly, concentrated use areas. Before creation of the zone, the proliferation of these routes led to severe degradation of the natural desert landscape. However, recovery of the desert landscape would continue to improve gradually over a long period, as would scenic quality of the landscape, because the desert is fragile and vegetation is slow to become re-established. In addition, requiring motorized users to obtain written authorization would continue eliminating illegal dumping and excessive trash, which improves the scenic quality. This continued reduction in the degradation to the natural desert landscapes complies with the Travel Management Rule (b) minimization criteria. See Analysis Framework Section in this report and appendix F mitigation measures summary for more information. Alternative 2: Proposed Action: Direct and Indirect Effects NFS Roads Under this alternative, management of motorized recreation on the Tonto NF would change as described in chapter 2. As seen in table 129, alternative 2 provides the second greatest mileage of NFS roads (5,091 miles) of the action alternatives. The total mileage in Retention and Partial Retention VQO classes would be 3,161 miles of NFS roads and motorized trails (including administrative use only and unauthorized routes proposed as added to the system see summary table 143 at end of section). This is an increase of 30 miles or less than 1 percent compared to the current condition. Therefore, the proposed road system in alternative 2 is not expected to change scenery quality, since there would be no on-the-ground changes from the existing condition. This is due to the fact that no new road construction (disturbance) would occur. Figures in Appendix B ~ Road Maps for Alternative 2 illustrate the proposed road and trail system. Tonto National Forest Motorized Travel Management Environmental Assessment Page 213 of 269

220 Table 129. Alternative 2 - Roads & trails (miles) Total NFS Roads* (Alt. 1) Total Proposed** Roads Trails Admin Only Total Proposed in Retention Roads Trails Admin Only Total Proposed in Partial Retention Roads Trails Admin Only 4,318 3, , , Total Miles 5, ,273 * ML2 to 5 roads, including administrative use only roads. ** Mileage includes miles of unauthorized routes proposed as added to the system as roads and trails. Motorized Trails A 233 mile motorized trail system is proposed in alternative 2, which includes routes for vehicles 50 inches and less in width and single-track (motorcycle) trails. Approximately 86 miles of the proposed trail system were previously existing NFS roads (see table 130 below). Converting existing roads to designated motorized trails would not affect scenery, because there would be no on-the-ground change in route condition. An additional 147 miles of inventoried unauthorized routes are proposed added to the trail system in this alternative. Impacts associated with unauthorized routes are discussed below. Table 130. Alternative 2 - Origin of Motorized Trails Added to System Existing NFS Route Designation Miles of Trails Closed/Decommissioned 57 High-Clearance 29 Unauthorized 147 Total 233 Overall, adding a motorized trail system in this alternative would reduce route proliferation. Much of the route proliferation is caused by frustrated ATV and off-road motorcyclist riders making their own trails to avoid conflicts and safety issues from being forced to share roads with high-clearance and 4X4 vehicles. The majority of this route proliferation occurs on portions of the southern districts near urban communities. Because the desert is fragile and vegetation is slow to become established, the proliferation of these routes has led to severe degradation of the natural desert landscape. This proliferation of routes and damage results in general improvement of visual resources for the long-term timeframe and complies with the Travel Management Rule (b) minimization criteria. See Analysis Framework Section in this report and appendix F mitigation measures summary for more information. Unauthorized Routes: Additions to NFS Roads & Trails Existing unauthorized routes designated as roads and trails in this alternative include all terminal facilities, trailheads, parking lots, and turnouts associated with the road or trail. Designation assumes the width of the road or trail surface and the necessary width for vehicles to pass safely without damaging resources or facilities. The designation also allows for parking a motor vehicle on the side of the road within one vehicle length of the road edge, when it is safe to do so without causing damage to NFS resources or facilities. Since proposed additions to the transportation Page 214 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

221 system are primarily based on existing tread width and characteristics, this action will align intended management of these unauthorized routes, and should not require actively changing the characteristics of the road on the ground. As seen in table 131, a total of 291 miles of inventoried unauthorized routes would be added to the system (139 miles as motorized trails and 152 miles as NFS roads). Approximately 148 miles or 51 percent of unauthorized routes proposed to be added to the system are in portions of the Forest managed as Retention and Partial Retention. This is a reduction of 191 miles or 6 percent compared to alternative 1 (which has 340 miles or 57 percent in these VQOs). Because these unauthorized routes currently exist on the landscape, addition of routes to the system would not change overall scenic quality since there would be no on-the-ground change. This is due to the fact that no new road construction (disturbance) would occur. There are long-term beneficial effects to visual resources when unauthorized routes are closed to public motorized use. Natural revegetation of individual road prisms and decreasing the density of the route network would enhance the natural appearance of the landscape and reduce the contrast between the road bed and the surrounding landscape. However, recovery of the desert landscape would improve gradually over a long period, because the desert is fragile and vegetation is slow to become established. Although, if future projects include obliterating closed roads in areas managed as Retention and Partial Retention, they would eventually revegetate, which would improve the quality of scenery. This reduction in damage to the natural landscape complies with the Travel Management Rule (b) minimization criteria. See Analysis Framework Section in this report and appendix F mitigation measures summary for more information. Each road and trail addition, including any proposed mitigation measures to minimize damage to forest resources, is individually listed in appendix F. For site-specific potential impacts of unauthorized routes (as well as existing roads) on the Forest, look under Special Resources in appendix L of the TAP report. Table 131. Alternative 2 - Unauthorized routes added as Roads & trails (miles) Total Miles of Unauthorized Routes Added to the System Miles Added in Retention Miles Added in Partial Retention Roads* Trails Total Roads* Trails Total Roads* Trails Total % of total unauthorized routes in each VQO class *includes administrative use only roads. 5% 46% Designation of Areas Four cross-country travel areas proposed in alternative 2, which allows unrestricted cross-country travel on Globe and Mesa ranger districts (see table 132 below). They are in locations that have been popular for OHV enthusiasts, due to their proximity to urban cities and varied desert terrain where the prohibition on cross-country travel is difficult to enforce. Tonto National Forest Motorized Travel Management Environmental Assessment Page 215 of 269

222 Table 132. Alternative 2 - Designation of areas (acres) Area Total OHV Area Retention Partial Retention Sycamore Tot Lot Rolls Tot Lot Sycamore Area 1, Golf Course Total 1, % of VQO Acreage Forestwide Less than 1% Less than 1% The repetitive passage of vehicles in these concentrated use areas has created bare ground, hill climbs, and scarred landforms that are quite visible to the casual forest observer. The existence of such damaged areas along with illegal dumping and excessive trash diminishes the natural appearance, therefore, reducing scenic quality. Approximately 39 acres of the 1,417 acres of designated areas are in portions of the Forest managed as Retention VQO class and 681 acres are in Partial Retention. This is less than 1 percent of each objective forestwide (see table 132 above). Scenic quality beyond the boundaries of the four areas may improve by the elimination of motorized cross-country travel by allowing disturbed natural landscapes to recover over time. This meets the Travel Management rule (b) (see Analysis Framework Section for more information). However, it is not likely the fragile desert landscape would fully recover to original conditions. It is not likely the severe degradation of the natural desert vegetation and landforms within the concentrated use areas would recover because the desert is fragile and vegetation is slow to reestablish. The quality of scenery is not expected to change. Designation of Permit Zones Three OHV permit zones are proposed in alternative 2 on Cave Creek and Mesa RDs in addition to the existing Bulldog Canyon. These areas have documented histories of repeated cross-country travel where the prohibition on cross-country travel is difficult to enforce. Sycamore Creek, The Rolls, and St. Claire are ideal locations for additional permit zones, since they are three of the most popular locations for OHV users because of their close proximity to the Phoenix Metropolitan Area and varied desert terrain. Due to their popularity, they receive a particularly heavy amount of OHV use. This intensity of use in small areas creates damaging impacts to the natural landscape. The Mesa RD found an effective approach for managing motor vehicle such locations, which has been implemented in the Bulldog Canyon Permit Zone. As has been demonstrated in Bulldog, the creation of zones would control heavy OHV use that was damaging the natural desert vegetation, eliminate illegal dumping, and reduce excessive trash. Fencing and gates would be installed to designate zone boundaries. Vehicle use would be restricted to designated high-clearance vehicle roads, passenger car roads, and motorized trails in the zone and would require motorized users to obtain written authorization (a free special use permit from the ranger district) to enter the area. Non-motorized users, such as equestrians, would not require a permit and would access the zones through stock/pedestrian gates. The permit zones in alternative 2 would have 122,814 acres as compared to approximately 34,720 acres in alternative 1. Approximately 46,979 acres of the permit zones are in portions of Page 216 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

223 the Forest managed as Retention VQO and 57,658 is in Partial Retention. This is 78,094 more acres or an increase of 69 percent in areas managed as Retention and Partial Retention than alternative 1 (table 133). Table 133: Alternative 2 - Permit zones (acres) Permit Zone Total Total in Retention Total in Partial Retention Bulldog Canyon 34,720 17,496 15,374 Sycamore Creek 39,342 5,129 14,889 Rolls 14,144 24,144 14,281 St. Claire 24, ,114 Total in Permit Zones 122,814 46,979 57,658 % of VQO Acreage Forestwide 16% 6% There would be a total of about 315 miles of roads and trails, including 32 miles in Bulldog Permit Zone, 132 miles in Sycamore Creek, 71 miles in The Rolls, and 80 miles in St. Claire (see table 134 below). The total roads and trails in the permit zones would be approximately 285 miles more than alternative 1. Compared to alternative 1, this would be an 8 percent increase in routes in areas managed as Retention within permit zones and a 7 percent increase in routes in Partial Retention within permit zones. Forestwide, 10 percent of routes within Retention would be in permit zones and 7 percent of routes within Partial Retention would be in permit zones. Table 134: Alternative 2 - Roads & trails in permit zones (miles) Permit Zone Total Roads & Retention Partial Retention Trails Roads Trails Total Roads Trails Total Bulldog Canyon Sycamore Creek Rolls St. Claire Total in Permit Zones Total Miles Roads and Trails in VQOs Forestwide % of NFS roads and trails in each VQO Class affected by permit zones Forestwide 888 2,273 10% 7% Continuation of Bulldog Canyon Permit Zone and the addition of three permit zones under this alternative should prevent proliferation of unauthorized routes, reducing severe degradation of the natural desert landscape within the zones. However, recovery of the desert landscape would continue to improve gradually over a long period, as would scenic quality of the landscape, because the desert is fragile and vegetation is slow to become re-established. In addition, requiring motorized users to obtain written authorization would continue eliminating illegal dumping and excessive trash, which improves the scenic quality. This continued reduction in the degradation to the natural desert landscapes complies with the Travel Management Rule Tonto National Forest Motorized Travel Management Environmental Assessment Page 217 of 269

224 212.55(b) minimization criteria. See Analysis Framework Section in this report and appendix F mitigation measures summary for more information. Alternative 3: Direct and Indirect Effects NFS Roads Under this alternative, management of motorized recreation on the Tonto NF would change as described in chapter 2. As seen in table 135, the total mileage of NFS roads and trails (including administrative use only roads) would be 4,653, an increase of 335 miles compared to alternative 1. In areas managed as Retention and Partial Retention, there would be 2,948 miles of NFS roads and motorized trails. This is a decrease of 183 miles or about 6 percent compared to the current condition of 3,131 miles. The proposed road system in alternative 3 is not expected to change the quality of scenery, since there would be no on-the-ground changes from the existing condition. This is due to the fact that no new road construction (disturbance) would occur. However, if future projects include obliterating closed roads in areas managed as Retention and Partial Retention, they would eventually revegetate, which would improve the quality of scenery. Figures in Appendix C ~ Road Maps for Alternative 3 illustrate the proposed road and trail system. Table 135. Alternative 3: Roads & Trails (Miles) Total NFS Roads* (Alternative 1) Total Proposed Total Proposed in Retention Admin Roads Trails Only Total Proposed in Partial Retention Admin Roads Trails Roads Trails Admin Only Only 4,318 3, , , Total Miles 4, ,088 * ML2 to 5 roads, including administrative use only roads. Motorized Trails A 42-mile motorized trail system is proposed in alternative 3, which includes routes for vehicles 50 inches and less in width and single-track (motorcycle) trails. Because these proposed trails are existing system roads (see table 136 below), converting existing them to designated motorized trails would not affect scenery, because there would be no on-the-ground change in route condition. No unauthorized routes are proposed added to the trail system in this alternative. Table 136. Alternative 3 - Origin of motorized trails added to system Existing Route Designation Miles of Trails Closed/Decommissioned 32 High-Clearance 10 Unauthorized 0 Total 42 Page 218 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

225 As in alternative 2, adding a motorized trail system in this alternative would reduce route proliferation and improve the quality of scenery, though to a lesser extent due to the reduced motorized trail mileage. Unauthorized Routes: Additions to NFS Roads & Trails In alternative 3, no unauthorized routes would be added to the system. There are long-term beneficial effects to visual resources, when unauthorized routes are closed to public motorized use. Natural revegetation of individual road prisms and decreasing the density of the route network would enhance the natural appearance of the landscape and reduce the contrast between the road bed and the surrounding landscape. However, recovery of the desert landscape would improve gradually over a long period, because the desert is fragile and vegetation is slow to become established. If future projects include obliterating closed unauthorized routes in areas managed as Retention and Partial Retention they would eventually revegetate, which would improve the quality of scenery. This alternative would have the greatest beneficial impact on overall scenery forestwide. This reduction in damage to the natural landscape complies with the Travel Management Rule (b) minimization criteria. See Analysis Framework Section in this report and appendix F mitigation measures summary for more information. Designation of Areas No designated cross-country areas are proposed under alternative 3. It is not likely the severe degradation of the natural desert vegetation and landforms within the concentrated use areas would recover, because the desert is fragile and vegetation is slow to re-establish. The quality of scenery is not expected to change. Designation of Permit Zones Impacts of designating permit zones would be the same as alternative 2 for acreage, although mileage in Retention and Partial Retention is slightly reduced compared to alternative 2 (table 137). Table 137: ALT. 3 Roads & Trails in Permit Zones (Miles) Permit Zone Total Roads & Retention Partial Retention Trails Roads Trails Total Roads Trails Total Bulldog Canyon Sycamore Creek Rolls St. Claire Total in Permit Zones Total Miles Roads and Trails in VQOs Forestwide % of NFS roads and trails in each VQO Class affected by permit zones forestwide 860 2,088 10% 6% Tonto National Forest Motorized Travel Management Environmental Assessment Page 219 of 269

226 Alternative 4: Direct and Indirect Effects NFS Roads Under this alternative, management of motorized recreation on the Tonto NF would change as described in chapter 2. As seen in table 138, alternative 4 provides for the most mileage of NFS roads (5,157 miles) of the action alternatives. The total mileage in areas managed as Retention and Partial Retention would be 3,209 miles of NFS roads and motorized trails (including administrative use only and unauthorized routes proposed as added to the system). This is an increase of 78 miles or 2 percent compared to the current condition. Therefore, the proposed road system in alternative 4 is not expected to change the quality of scenery, since there would be no on-the-ground changes from the existing condition. This is due to the fact that no new road construction (disturbance) would occur. Figures in Appendix D ~ Road Maps for Alternative 4 illustrate the proposed road and trail system. Table 138. Alternative 4 - Roads & trails (miles) Total NFS Roads* (Alt. 1) Total Proposed** Total Proposed in Retention Total Proposed in Partial Retention Admin Only Roads Trails Admin Roads Trails Admin Only Only Roads Trails 4,318 3, , , Total Miles 5, ,305 * ML2 to 5 roads, including administrative use only roads. ** Mileage includes miles of unauthorized routes proposed as added to the system. Motorized Trails A 259-mile motorized trail system is proposed in alternative 4, which includes routes for vehicles 50 inches and less in width and single-track (motorcycle) trails. Approximately 89 miles of the proposed trail system were previously existing NFS roads (see table 139 below). An additional 170 miles of inventoried unauthorized routes are proposed added to the trail system in this alternative. Impacts would be similar to alternative 2, although motorized trail mileage would increase slightly by 26 miles. Table 139. Alternative 4 - Origin of motorized trails added to system Existing NFS Route Designation Miles of Trails Closed/Decommissioned Road 53 High-Clearance/Passenger Road 36 Unauthorized Route 170 Total 259 Unauthorized Routes: Additions to NFS Roads & Trails As seen in table 140, 350 miles of inventoried unauthorized routes would be added to the system (180 miles as roads and 170 miles as motorized trails). Impacts would be similar to alternative 2, except 26 more miles of unauthorized routes would be added to the system. Approximately 178 miles or 51 percent of unauthorized routes proposed to be added to the system are in areas Page 220 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

227 managed as Retention and Partial Retention. This is a reduction of 162 miles or about 6 percent compared to alternative 1 (which has 340 miles or 57 percent in these VQOs). Table 140. Alternative 4 - Miles unauthorized routes added as roads & trails Total Added in Retention Total Added in Partial Retention Total Added Tonto NF Roads* Trails Total Roads* Trails Total Roads* Trails Total Miles % of total unauthorized routes in each VQO class *includes administrative use only roads. 7% 44% Designation of Areas Impacts would be the same as described under alternative 2. Designation of Permit Zones Impacts of designating permit zones would be the same as alternative 2 for acreage, although mileage is slightly increased compared to alternative 2 (see table 141). Table 141. Alternative 4 - Roads & trails in permit zones (miles) Permit Zone Total Roads & Retention Partial Retention Trails Roads Trails Total Roads Trails Total Bulldog Canyon Sycamore Creek Rolls St. Claire Total in Permit Zones Total Miles Roads and Trails in VQOs Forestwide % of NFS roads and trails in each VQO Class affected by permit zones forestwide 903 2,305 11% 8% All Alternatives: Summary of Environmental Effects In summary, alternative 1 allows continued use of unauthorized routes and concentrated use areas, which could result in long-term changes to the visual resource. The difference in road and trail mileage affecting VQO compared to alternative 1 ranges from 183 fewer miles under alternative 3 to 77 more miles under alternative 4. Overall, the percentage of roads and trails in Retention and Partial Retention VQO classes decreases by approximately 10 percent in alternatives 2, 3, and 4 even though more miles are included in the overall NF transportation system. A summary of designated roads and trails for each alternative is provided below in table 142. Tonto National Forest Motorized Travel Management Environmental Assessment Page 221 of 269

228 Alternative Chapter 3 ~ Environmental Consequences Table 142. Summary of alternatives (miles of roads and trails)* Retention Roads Trails Total Miles Partial Retention Retention Partial Retention Retention & Partial Retention Total Miles NFS roads and trails % of NFS roads & trails Retention & partial retention , ,131 4,318 72% , ,160 5,091 62% , ,948 4,653 63% , ,208 5,157 62% *Includes administrative use only roads and unauthorized trails proposed to be added to the system. There would be no difference between alternatives 2, 3, and 4 related to acreage in designated permit zones. These alternatives affect acreage of permit zones 10 percent more in Retention and 4 percent more in Partial Retention forestwide than alternative 1. There are slight differences between alternatives 2, 3, and 4 related to mileage of roads and trails added to the system in designated permit zones. The proposed alternatives affect mileage of roads and trails of permit zones an average of 8 percent more in areas managed as Retention and an average of 6 percent more in Partial Retention forestwide than alternative 1. As described under alternative 2, designation of permit zones should improve scenic quality overall. Although alternatives 2 and 4 designate areas for motorized cross-country travel, the impact on visual quality is less than 1 percent of the total Retention and Partial Retention VQO. A summary of designated areas and permit zones in each alternative is provided below in table 143. Table 143. Summary of alternatives (percentage of VQO classes forestwide) Designated Areas (Acres) Permit Zones (Acres) Permit Zones (Miles) Partial Partial Partial Retention Retention Retention Retention Retention Retention Alternative 1 NA NA 6% 2% 2% Less than 1% Alternative 2 Less than 1% Less than 1% 16% 6% 10% 7% Alternative 3 0% 0% 16% 6% 10% 6% Alternative 4 Less than 1% Less than 1% 16% 6% 11% 8% Compliance with Travel Management Rule and Forest Plan Table 144. Travel Management Regulations (36 CFR ) Visual-Specific Concerns Minimize alterations that contrast with the natural character of the landscape Analogous TM Rule Criteria (36 CFR (b)) Minimize damage to natural landscape Measurement Indicators Miles of roads, motorized trails, and unauthorized routes added to the system; acres of designated use areas; and acres and miles in permit zones Page 222 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

229 Given that the significant issue identified in this section is analogous to the recreation criteria identified at 36 CFR (b) (table 144), and that this visual-specific concern resulted in the development of measurement indicators, the minimization of damage to the natural landscape as required by 36 CFR (b) has been explicitly considered throughout the recreation analysis. For site-specific information related to roads, motorized trails, and unauthorized routes, see the Travel Analysis Process route reports for each district (U.S. Forest Service, 2011). Forest Plan In the long-term, alternative 1 would have the most impacts to visual resources, eventually, it is anticipated that the visual effects of unauthorized routes and concentrated use areas would not meet Forest Plan direction for Retention and Partial Retention VQOs. Current Forest Plan direction is to manage for Visual Quality Objectives (VQOs) ranging from preservation to maximum modification as defined for each prescription and delineated in the Forest Visual Resource Inventory. Permit zones proposed in alternatives 2, 3 and 4 that are in Retention and Partial Retention, may need to be amended in the Forest Plan to Modification and Maximum Modification. In addition, designated areas proposed in alternatives 2 and 4 that are in Retention and Partial Retention may need to be amended in the Forest Plan to Modification and Maximum Modification. All Alternatives: Cumulative Effects Vegetation and fuels management are planned to have a net, long-term improvement to natural scenic quality although there may be short-term negative impacts during implementation. Mitigation measures and Best Management Practices are designed to mitigate any short-term impacts that may occur from project implementation. Livestock grazing activities (past and ongoing) have impacted visual quality but re-authorizations of grazing permits are designed to minimize impacts to these resources. Route realignment, reconstruction, or decommissioning may occur with future projects and access through or required by other land jurisdictions may impact the Forest. The extent of these changes cannot be predicted or quantified. Future changes to routes will be planned and mitigated to reduce scenery impacts. Urban development and interface growth will continue on private lands. These will not directly affect National Forest land. Future mineral exploration, land exchanges, and utility construction are either planned or likely to occur. Disturbance can be relatively minor in some cases such as small utility construction, but in mineral exploration disturbance can be extensive. Visitor access to The Rolls, St. Claire, and Sycamore sites may be restricted in the future. Restrictions may prevent continued proliferation of unauthorized routes, preventing additional impacts to scenic quality. A number of major road construction projects are planned by other government entities well into the future, including construction of the Tonto Creek Bridge. Road and bridge construction can Tonto National Forest Motorized Travel Management Environmental Assessment Page 223 of 269

230 have short-term impacts on scenic quality, but impacts are minimized through implementation of BMPs. Recreation Affected Environment National Forest visitors are diverse in their preferences for recreational settings, experiences, and activities. The Forest Service uses the Recreation Opportunity Spectrum (ROS) class system to help guide future development and management to provide the variety of recreation experience desired by the public. The ROS classes include primitive, semi-primitive non-motorized, semiprimitive motorized, roaded natural, rural, and urban. ROS classes helps match visitors with their preferred recreation setting. These objectives are general goals, not standards and guidelines, and do not strictly govern future development. This section describes the existing motorized recreational opportunities, conflicts between uses, public safety, and consistency with the Recreation Opportunity Spectrum (ROS) setting class of Semi-Primitive Non-Motorized (SPNM). Table 145 below displays the acres of the ROS classifications within the Forest. Urban settings occur on the Tonto NF adjacent to developed communities such as Payson, Globe, Pine, Strawberry, and Superior. Rural settings occur on Tonto NF lands extensively modified, typically for residential development. Most areas of the Forest zoned roaded natural occur in state highway and NFS road corridors along the Forest s lakes. Semi-primitive motorized settings occur between areas classified as roaded natural and semi-primitive non-motorized (see description below). Since motorized travel is compatible in urban, rural, roaded natural, and semi-primitive motorized settings, these portions of the Forest will not be changed or affected by any alternative action, so will not be part of this analysis. The majority of the Forest has a semi-primitive, non-motorized (SPNM) ROS class. System roads existed in SPNM areas when the Forest Plan was signed; however, motorized vehicle use is not compatible with this class, so this analysis will focus on the SPNM setting objective. Most Tonto NF lands with primitive settings occur within wilderness areas where motorized travel is not permitted. There is an existing high-clearance road, classified as administrative use only, less than a mile long in the Mazatzal Wilderness area that is necessary for access to private property. This road would not be changed by any alternative action and there are no roads proposed to be added in the wilderness, so primitive settings will not be part of this analysis. Table 145. Acreage by recreation opportunity spectrum (ROS) classification ROS Classification Tonto NF Acres (approximate) Urban 31,325 Rural 41,860 Roaded natural 613,380 Semi-primitive motorized 994,165 Semi-primitive non-motorized 1,007,915 Primitive 260,505 Page 224 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

231 ROS Classification Tonto NF Acres (approximate) Unknown 16,143 The affected environment for ROS on the Tonto NF is shown in figure 8 below. Tonto National Forest Motorized Travel Management Environmental Assessment Page 225 of 269

232 Figure 8. Recreation opportunity spectrum classes (ROS) affected environment Page 226 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

233 Wilderness & Inventoried Roadless Areas (IRAs) Recreation in wilderness is limited to non-motorized and non-mechanized forms. Inventoried roadless areas (IRAs) offer a unique landscape with low road and trail density where recreationists may experience technical trail driving and access to motorized and non-motorized recreation opportunities. Congressionally-designated wilderness on the Tonto NF totals 615,885 acres (approximately 21 percent of the Tonto NF) and 170,175 acres are designated as inventoried roadless areas (approximately 6 percent of the Tonto NF). Current system roads do exist within or adjacent to both wilderness and inventoried roadless boundaries. Many of these existed prior to designation and so were found to have no effect on the characteristics of these areas (see Appendices G Proposed Route Changes for Alternatives 2 through 4, H Proposed Motorized Trails for Alternatives 2 through 4, and I Description of Proposed Action Unauthorized Routes). Public comment was received expressing concern that there are roads within one-quarter mile of wilderness areas and IRAs and this was a conflict between motorized users and non-motorized users. Congress did not allow the establishment of buffers as extensions to designated boundaries of wilderness areas. As a result, roads are allowed within one-quarter mile of wilderness areas. Roads were actually used to establish some wilderness boundaries, such as the Superstition Wilderness. The majority of roads within one-quarter mile typically exist to provide access to trailheads and access points into the wilderness areas; however, since concern was raised regarding this issue, it will be analyzed in each alternative to show differences between alternatives. Roads are also allowed within one-quarter mile of IRAs and even within the boundaries of IRAs. These roads provide a wide range of recreation opportunities. Special Management Areas There are numerous research natural areas discussed in the Forest Plan with the intent to provide non-disruptive research and education along with keep the areas in their natural or unmodified condition. In addition, the Forest Plan discusses natural areas with the intent to protect natural features and vegetation. The plan indicates that OHV use is prohibited in all of these natural and natural research areas. See table 146 below for additional information and figure 8 for the location of special management areas on the Forest. It is recognized in the Forest Plan that the proposed 60-acre Sycamore Creek Natural Area (Management Area 3H) has been heavily impacted by dispersed recreation and OHV use. The plan states Management is directed toward maintaining as nearly as possible existing conditions (U.S. Forest Service, 1985, p. 110). Table 146. Special management area acreages with Forest Plan location Management Area 2E Special Management Area Name Picket Post Mountain Research Natural Area (Proposed) Acreage Forest Plan Citation 1,120 page 84 3E Bush Highway Research Natural Area 488 page 103 Tonto National Forest Motorized Travel Management Environmental Assessment Page 227 of 269

234 Management Area Special Management Area Name Acreage Forest Plan Citation 3G Proposed Desert Botanical Garden 1,200 page 109 3H Proposed Blue Point Cottonwood Natural Area 480 page 110 3H Proposed Sycamore Creek Natural Area 60 page 110 4E Fossil Springs Natural Area (Proposed) 20 page 137 5E Sierra Ancha Experimental Forest 13,371 page 161 5F Upper Forks Parker Creek Research Natural Area (Proposed) 1,288 page 163 6C Three Bar Wildlife Area 29,782 page 175 6D Buckhorn Mountain Research Natural Area 2,810 page 177 6E Haufer Wash RNA 680 page 178 Two additional special management use areas on the Tonto NF include a wildlife area and experimental forest. In Three Bar Wildlife Area (Management Area 6C) and Sierra Ancha Experimental Forest (Management Area 5E), the plan restricts OHV use to system roads (U. S. Forest Service, 1985, pp. 161 and 175). No roads or motorized trails are proposed to be added to the transportation system in any of these special management areas. Therefore, these areas will not be discussed further in this analysis. Forest Description Unmanaged recreation has been identified by the FS as one of four key threats to the nation s forests and grasslands. The use of OHVs is seen as a major component of unmanaged use (U.S. Forest Service, 2005a). During the past ten years, OHV use has increased dramatically across the nation and on millions of acres of public land in the Western United States. In Arizona, OHV use has increased by 347 percent since 1998 (AZGFD, 2008), outpacing existing funding to manage that growth, protect natural resources, and maintain safe and reasonable recreational access. Managing motorized recreation is particularly challenging on the Tonto NF with its fragile desert ecosystems and high demand for motorized access. The Tonto NF is the most heavily-used National Forest for motorized recreation, with nearly a million visitors using OHVs on the Forest annually (English, et al., 2004). With a few exceptions, Payson and Pleasant Valley ranger districts are currently designated as open to motorized cross-country travel yearlong. Crosscountry travel is not allowed on Cave Creek, Globe, Mesa ranger districts; however it is known to occur. OHV use has occurred off authorized routes, in sensitive riparian areas, around and over heritage sites, in threatened or endangered species habitat, into designated wilderness areas, through streams and up stream banks, and across highly erodible slopes. The Arizona Statewide Comprehensive Outdoor Recreation Plan (SCORP) estimates that about nine percent of Arizona s residents participate in OHV use (Arizona State Parks, 2007). SCORP reported that 24 percent of OHV enthusiasts indicated they would like to increase their motorized recreation activities in the future. Thirty-four percent indicate they expect to drive for pleasure more often. With Phoenix and surrounding communities being among the fastest growing population in the State, adjacent forest areas can expect a large increase in visitation. Page 228 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

235 As a result of increasing population, housing development, and OHV use, a comprehensive network of unauthorized routes has been established on the Forest. Forestwide, unauthorized routes are associated with nearly every private parcel of land within or next to the Forest. This shows that motorized access to the Forest is important to the local population for hunting and other recreational opportunities. However, there is a growing contingent of the population, who also live at the Forest s edge, that is distressed by what they view as constant noise, dust, unchecked trespass, and resource damage associated with unmanaged motorized vehicle use. The Tonto NF also supports a wide range of non-motorized recreation including hiking, backpacking, bicycling, horseback riding, watching and photographing wildlife and scenery, swimming, rafting, geo-caching, hunting, fishing, visiting archaeological and historical sites, and picnicking. Although some of these activities may include motorized travel to access them, the motorized travel is not the main point of the activity. Conflicts between Uses Members of the public, Arizona Game and Fish Department, and Arizona Parks and Recreation Department have shared their concerns about unrestricted OHV travel on public lands. Complaints focus on noise, litter, lack of environmental ethics and unsafe acts. In addition, The Non-motorized Arizona Trails 2000 (Arizona State Parks, 1999, p. 58) showed that 82 percent of motorized and 81 percent of non-motorized trail users expressed concern over behavior of other users. While conflicts exist on the Tonto NF between motorized users and non-motorized users such as vehicular trespassing along the non-motorized Arizona Trail and vehicular trespass into wilderness areas, they also exist between various types of motorized recreational vehicles (OHV types). Conflicts between OHV types occur between 4X4 full-sized vehicles, ATVs, and off-road motorcycles because of preferences for width of routes, distance travelled, and speed. Full-sized 4X4 vehicles prefer wide routes and traveling long distances, since they drive in comfort with their supplies and soft seat, along with means to cool or warm themselves. ATV and off-road motorcycles look for narrow, short routes, since they cannot carry supplies and exert more energy riding. In addition, 4X4 full-sized vehicles take corners more slowly because they are larger, heavier, and more difficult to maneuver than the lighter weight ATV and off-road motorcycles that travel fast around corners. Dangerous conditions arise when different classes of motorized recreational vehicles meet at blind corners or narrow passages where there is poor visibility. Existing NFS Roads and Trails Existing NFS roads offer a broad range of recreation opportunities providing access for nonmotorized activities such as: hiking, bicycling, and horseback riding and for motorized activities including OHV riding, dispersed motorized camping, and motorized big game retrieval. Administrative roads in the existing designated system are used for fire management, law enforcement, and facilities management. Permittees also use administrative roads in the NFS road system for access to facilities and uses such as ranching, mining, outfitter/guide services, utility management, and electronic communications sites; recreational residences; other locations used by holders of special-use permits; and for private land access. Tonto National Forest Motorized Travel Management Environmental Assessment Page 229 of 269

236 Administrative Roads Approximately 960 miles (17 percent) of existing NFS roads are currently used for Forest administration and management, including Forest Service recreation facilities, authorized special uses, and legal access rights. Administrative roads support Forest management and administrative activities by limiting public access on certain roads. The impact to SPNM comes from the presence of motorized roads and trails, not whether a road is administrative use only. Therefore, there are no additional impacts to SPNM from administrative roads. Impacts to SPNM are discussed under total NFS roads and trail and unauthorized routes sections in Environmental Effects. Seasonal Roads About seven miles of NFS roads are closed seasonally for protection of resources. The impact to SPNM comes from the presence of motorized roads and trails, not seasonal restriction on these roads. Therefore, there are no additional impacts to SPNM from seasonal roads. Impacts to SPNM are discussed under total NFS roads and trail and unauthorized routes sections in Environmental Effects. Unauthorized Routes In addition to NFS roads, there is a proliferation of unauthorized routes. These roads were not designed or built by the Forest Service, therefore are not kept in the Forest Service roads inventory and do not receive maintenance to ensure natural landscape impacts are minimized. The number of unauthorized routes continues to grow as more visitors use the area and travel off road. There are many reasons that people operate motor vehicles cross-country or off NFS roads. In some cases, users are unaware of which routes are authorized for motorized travel and which are not. Sometimes signs have been destroyed or removed. In other situations, there is a difference in motorized use policies between land management agencies, between National Forests, and between ranger districts within National Forests and it is often confusing to the public to know where cross-country travel is allowed and where it is not. Routes from private land parcels bordering the Forest also contribute to proliferation of unauthorized routes. This phenomenon demonstrates the importance that many residents place on access to the Forest for hunting and motorized recreation. Finally, some motorized users are either unaware or unconcerned about conflicts, safety issues, and natural landscape damage that often result from traveling off authorized routes. Concentrated Use Areas Cross-country motorized travel is currently permitted on the Payson and Pleasant Valley ranger districts. There are also many locations where highly-concentrated motorized use occurs on Cave Creek, Globe, and Mesa ranger districts where the prohibition on cross-country travel is difficult to enforce. These locations are popular places, where the public has found motorized recreational use most enjoyable due to the proximity to the Metropolitan Phoenix Area and the varied desert terrain. Families with young OHV users and beginners, OHV clubs, and small groups of motorized recreation enthusiasts frequent these intensively-used areas. These areas have become informally known as Desert Vista, St. Claire, Pipeline, Golf Course, Hewitt Station, Seven Mile Wash, Sycamore Creek, and The Rolls. Page 230 of 269 Tonto National Forest Motorized Travel Management Environmental Assessment

237 Sycamore Creek is indicative of the use occurring in these concentrated-use areas. Users of this site refer to it as Sycamore OHV area but the Tonto NF has not designated it as a crosscountry travel area. An extensive network of unauthorized routes along with hill climbs can be found in Sycamore Wash, as can be seen in figure 9 (hill climb photo). In addition, illegal activities, such as dumping as can be seen in figure 10 (trash photo). Figure 9. Hill climb/route proliferation at Sycamore Creek concentrated-use area Figure 10. Trash at Sycamore Creek Permit Zones Motorized travel in the existing Bulldog Canyon OHV Permit Zone was restricted by Forest Order No due to considerable environmental damage occurring from uncontrolled vehicle use. Visitors currently receive a free special use permit and gate code from the ranger district to access the permit zone. Motorized vehicles are required to stay on the high-clearance Tonto National Forest Motorized Travel Management Environmental Assessment Page 231 of 269