BLM’s Planning for Recreation and Visitor Services Handbook H-8320-1

H-8320-1 – RECREATION AND VISITOR SERVICES PLANNING
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Table of Contents
CHAPTER I – RECREATION PLANNING WITHIN THE BLM’S LAND USE
PLANNING PROCESS .......................................................................................................
A. Recreation and the Public Land Manager ...........................................................................
B. Purpose of the Handbook.....................................................................................................
C. Recreation Planning Overview ............................................................................................
D. Recreation Planning Framework .........................................................................................
E. Outcomes-Focused Management .........................................................................................
F. Recreation Planning .............................................................................................................
G. Recreation Planning Process ...............................................................................................
H. Data and Data Collection.....................................................................................................
I. Recreation Setting Characteristics ........................................................................................
J. Mapping Recreation Setting Characteristics.........................................................................
K. Evaluating Potential Recreation Management Areas ..........................................................
CHAPTER II – RECREATION AND VISITOR SERVICES PLANNING
DECISIONS..........................................................................................................................
A. Goals and Objectives ...........................................................................................................
B. Identifying the Desired Recreation Setting Characteristics .................................................
C. Interdisciplinary Land Use Plan-Level Management Actions and Allowable Use
Decisions ........................................................................................................................
D. Making Land Use Plan and Implementation Decisions in the Same Planning
Effort ..............................................................................................................................
CHAPTER III – LAND USE PLANNING PROCESS ...........................................................
A. Public Laws and Presidential Proclamations .......................................................................
B. Creating a Range of Alternatives .........................................................................................
C. Alternative Development .....................................................................................................
D. Alternatives Considered but Eliminated from Detailed Analysis .......................................
E. Affected Environment Description ......................................................................................
F. Effects Analysis ...................................................................................................................
G. Defining Environmental Effects ..........................................................................................
H. Analyzing Environmental Effects .......................................................................................
I. Direct, Indirect, and Cumulative Effects Analyses ...............................................................
J. Qualitative and Quantitative Analysis ..................................................................................
K. Quantitative Analysis of Recreation Setting Characteristics ..............................................
L. Specific Effects Analysis Considerations for Recreation and Visitor Services ...................
M. Development of the Preferred Alternative ..........................................................................
N. Publish the Draft Resource Management Plan/Environmental Impact Statement
and Provide a Public Comment Period ..........................................................................
O. Responding to Comments....................................................................................................

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P. Prepare and Analyze a Proposed Land Use Plan/Final Environmental
Impact Statement ............................................................................................................
Q. Publish the Notice of Availability for the Proposed Land Use Plan, Provide a
30-Day Protest Period, and Resolve Protests .................................................................
R. Record of Decision/Approved Land Use Plan.....................................................................
CHAPTER IV – LAND USE PLAN IMPLEMENTATION ..................................................
A. Land Use Plan Implementation ...........................................................................................
B. Types of Recreation Actions ...............................................................................................
C. Recreation Management ......................................................................................................
D. Recreation Administration...................................................................................................
E. Information and Education ..................................................................................................
F. Monitoring............................................................................................................................
Glossary of Terms and Acronyms ............................................................................................
Illustration 1 – Example of a Small Group Discussion Script .................................................
Illustration 2 – Example of a Questionnaire .............................................................................
Illustration 3 – Recreation Management Area Comparison Table ...........................................
Illustration 4 – Actions to Maintain or Enhance Recreation Setting Characteristics ...............
Illustration 5 – Examples of Effects Analysis ..........................................................................
Illustration 6 – Examples of Monitoring Forms for Social Recreation Setting
Characteristics ................................................................................................................
Illustration 7 – Example of a Basic Monitoring Strategy for a Recreation Management Area/
Recreation Management Zone.......................................................................................
Appendix 1 – Land Use Planning Checklist for Recreation and Visitor Services ...................
Appendix 2 – Experience and Benefit Checklist......................................................................
Appendix 3 – Recreation Setting Characteristics Matrix .........................................................
Appendix 4 – Special Recreation Management Area Template ..............................................
Appendix 5 – Extensive Recreation Management Area Template ..........................................
Bibliography .............................................................................................................................

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CHAPTER I - RECREATION PLANNING WITHIN
THE BLM’S LAND USE PLANNING PROCESS
A. Recreation and the Public Land Manager.
Over the years, many definitions of recreation have differed in their particular emphasis but have
shared a common core. The common concept in these definitions is that recreation is a behavior
that individuals choose to engage in for the purpose of realizing experiences and personal
benefits, such as renewal or refreshment. The visitor attains experiences and benefits by
participating in preferred recreation activities in preferred recreation settings.
Visitors to public lands seek satisfying recreation experiences. The goal of the public land
manager is to provide opportunities for visitors to obtain desired experiences. The manager
accomplishes this goal by planning for and managing the physical, social, and operational
settings and the activities that occur within them.
B. Purpose of the Handbook.
The purpose of this handbook is to assist in the planning and management of recreation and
visitor services (R&VS) on public lands and adjacent waters. This handbook provides planning
guidance at the land use plan (LUP) and implementation level. This handbook also supports the
policies in BLM Manual 8320, “Planning for Recreation and Visitor Services,” and related
program guidance in BLM Handbook H-1601-1, “Land Use Planning.”
C. Recreation Planning Overview.
Recreation resources and uses are allocated through the land use planning process. Land use
planning includes consideration of various management scenarios for all resources that are
present within a geographic area to achieve management goals and objectives. Some form of
recreation use and associated recreation resources are typically present on the lands and waters
managed by Bureau of Land Management (BLM) field offices. As such, the need for recreation
planning emerges.
D. Recreation Planning Framework.
1. Three significant changes in managing recreation and leisure services are:
a. A growing recognition of how much recreation contributes to the quality of life.
b. Changing public values and expectations of land management agencies.
c. Advances in recreation management knowledge.
2. Advances in recreation knowledge and practices have been responsible for the evolution
from activity-based management to experience-based management and, recently, benefitsbased management. Each transition built on the management framework of the previous.
Within the BLM, benefits-based management has further transitioned to outcomesfocused management.

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E. Outcomes-Focused Management.
Outcomes-focused management is defined as an approach to park and recreation management
that focuses on the positive outcomes gained from engaging in recreational experiences.
1. Experiences and Benefits. Positive recreation outcomes consist of experiences and
benefits and are defined by the BLM as:
a. Experiences. Immediate states of mind resulting from participation in recreation
activities that result in benefits.
b. Benefits. The results of a satisfying recreation experience that improve or maintain a
desired condition. These accrue from recreation participation, are both short and long
term, and are realized onsite and offsite. Benefits are identified in one of four
categories and are described as:
(1) Personal/Individual Benefits. Accrued when recreation and leisure activities
contribute to personal well-being and human development, as well as improved
physical fitness and mental health, for individuals.
(2) Social/Community Benefits. Accrued when recreation activities contribute to the
quality of life within communities by encouraging positive lifestyle choices,
building social skills, reducing crime, and fostering a sense of community pride
and involvement.
(3) Economic Benefits. Accrued when investments in recreation represent an
investment to diversify economies by attracting new businesses and by generating
employment opportunities.
(4) Environmental Benefits. Accrued when participation in recreation and outdoor
education programs can help protect the quality of the environment through
improved understanding and stewardship of natural, cultural, and historic
resources.
2. Onsite and Offsite Benefits of Outcomes-Focused Management. The fundamental
concept of outcomes-focused management is that benefits endure beyond the onsite
recreation experience attained by individuals. Those experiences and onsite benefits stay
with the individual when they leave the recreation area and cumulatively lead to offsite
beneficial outcomes to communities, economies, and the environment. This linkage
between experiences and outcomes can be viewed as a chain as illustrated in Figure 1.

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Figure 1 – Linkage Between Experiences and Onsite and Offsite Benefits

3. Outcomes-Focused Management Framework. An individual’s ability to obtain specific
recreational outcomes is highly dependent on the presence of the physical, social, and
operational recreation setting characteristics (RSCs) that support those outcomes. In order
to incorporate outcomes-focused management into recreation planning, it is critical to
understand the relationship between outcomes, recreation settings, actions, and decisions.
Understanding this relationship as a production process provides a useful framework for
recreation planning. This framework establishes a basis for determining the allowable uses
and management actions required to produce desired RSCs. Figure 2 illustrates the
framework by showing how actions and decisions interact with physical, social, and
operational settings to provide recreational opportunities and ultimately facilitate the
attainment of targeted outcomes.
Figure 2 – Outcomes-Focused Management Framework

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4. How Outcomes-Focused Management Helps the BLM’s Recreation Program. The
outcomes-focused management framework helps the BLM understand and meet the
public’s expectations, allowing recreation managers to explicitly plan and manage
recreation settings and better provide visitor services. Outcomes-focused management
helps provide direction for recreation planning, budgeting, organization, staffing, and
training, leading to a more efficient, cost-effective, and accountable recreation program.
5. How Outcomes-Focused Management Helps BLM Visitors. Recreationists are aware
of which characteristics contribute to a quality experience. Outcomes-focused
management defines and describes these characteristics so that the public is able to
understand which experiences will be emphasized, where on the landscape they will be
provided, and how they will be protected over time. Planning with outcomes in mind helps
recreation managers create and sustain the quality recreational opportunities most desired
by our visitors.
6. How Outcomes-Focused Management Facilitates Working with Partners. The BLM
is not a sole-source provider of recreation opportunities. Therefore, the BLM must
collaboratively engage stakeholders, industry, tribes, and other governmental agencies as
partners in order to offer recreation opportunities. Outcomes-focused management
provides a framework to engage collaborating partners and stakeholders to better and
more effectively manage BLM lands. Outdoor recreation should be planned in a regional
context and involve recreation providers at all levels. Partners and stakeholders are a
primary source of information to determine which recreation opportunities to offer and
which outcomes to target. In addition, some recreation opportunities are offered only with
the help of partners. Managing for outcomes opens the door to building and strengthening
community-based partnerships.
7. How Outcomes-Focused Management Improves Implementing, Monitoring, and
Evaluating the Performance of the Recreation and Visitor Services Program. The
BLM must monitor recreation activities, recreation settings, and outcomes to deliver a
quality recreation opportunity while protecting resources. Outcomes-focused management
provides standards and indicators to monitor performance in terms of the positive
outcomes achieved. Monitoring allows the BLM to evaluate and assess management
strategies and implementation actions for effectiveness. Monitoring also provides the basis
for determining which management changes, if any, are necessary to achieve the outcome
objectives.
F. Recreation Planning.
The LUP establishes allocations for all resources and resource uses that are present, including
recreation, and must ensure all program goals and allocations are complementary. The BLM
plans for R&VS to address issues, concerns, and potential recreational opportunities identified by
BLM staff, other agencies, organizations, or the general public. Decisions on the allocation of
resources to reach recreation management goals and objectives are documented in LUPs or LUP
amendments.

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1. Land Use Plan Decisions. The two decision levels of planning are land use and
implementation. Land use planning decisions are usually made on a broad scale and
customarily guide subsequent site-specific implementation decisions. LUP decisions are
made in conjunction with an environmental review pursuant to National Environmental
Policy Act (NEPA) procedural requirements. The environmental review helps identify and
disclose potential impacts associated with proposed LUP decisions. The environmental
review follows a process that includes public participation. Process requirements are
described in both BLM Handbook H-1601-1, “Land Use Planning,” and BLM Handbook
H-1790-1, “National Environmental Policy Act.”
a. Land use planning decisions for public lands fall into two categories: desired outcomes
(goals and objectives); and allowable uses and actions (including restricted or
prohibited uses and actions) anticipated to achieve desired outcomes.
b. The required LUP decisions for R&VS are to:
(1) Designate recreation management areas (RMAs).
(2) Establish R&VS objectives for each RMA.
(3) Identify LUP-level supporting management actions and allowable uses for each
RMA.
c. Recreation Management Area Designation. The BLM designates RMAs for
managing R&VS, and the areas are classified as either a SRMA or an ERMA. Both
types of areas are recognized as producing quality recreation opportunities and
offering beneficial outcomes for recreation participants, recreation-tourism partners,
visitor service providers, and communities. R&VS objectives in RMAs are recognized
as a primary resource management consideration, and specific management is required
to protect the recreation opportunities. The RMA designation is based on recreation
demands and issues, RSCs, resolving use/user conflicts, compatibility with other
resource uses, and resource protection needs. There is no requirement to designate all
lands as RMAs.
RMAs identify where the BLM generally prioritizes the expenditure of funding.
However, in undesignated areas, addressing visitor health and safety, resource
protection, and use and user conflicts may be of equal or greater importance.
d. Special Recreation Management Areas. A SRMA is an administrative unit where
existing or proposed recreation opportunities and RSCs are recognized for their unique
value, importance, and/or distinctiveness, especially as compared to other areas used
for recreation.
(1) Management Focus. A SRMA is managed to protect and enhance a targeted set

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of activities, experiences, benefits, and desired RSCs. The LUP may subdivide a
SRMA into recreation management zones (RMZs) to further delineate specific
recreation opportunities. Within a SRMA, R&VS management is recognized as
the predominant LUP focus, where specific recreation opportunities and RSCs are
managed and protected on a long-term basis.
(2) Requirements.
(a) Establish measurable, outcome-focused objectives for SRMAs/RMZs. These
objectives must define specific recreation opportunities (i.e., activities,
experiences, and benefits derived from those experiences) that will become
the focus of R&VS management.
(b) Identify LUP management actions and allowable use decisions for
SRMAs/RMZs.
(c) Identify necessary management actions and allowable use decisions for
R&VS and other programs to achieve SRMA/RMZ objectives.
(d) Within the R&VS program, identify supporting management actions and
allowable use decisions to accomplish the following:
Sustain or enhance recreation objectives.
Maintain or enhance the desired physical, social, and operational RSCs.
Constrain uses, including noncompatible recreation activities that are
detrimental to meeting recreation objectives.
Address visitor health and safety, resource protection, and use and user
conflicts (e.g., areas closed to target shooting, camping limitations).
Address the type(s), activities, and locations where special recreation permits
(SRPs) will and will not be issued.
(3) Within other resource programs, establish terms, conditions, or special
considerations necessary to achieve SRMA/RMZ objective(s) (e.g., stipulations
on mineral or other development, designations for all types and modes of travel,
areas available for livestock grazing, or visual resource management classes). All
actions must conform to applicable program policy, regulations, and valid existing
rights.
e. Extensive Recreation Management Areas. An ERMA is an administrative unit that
requires specific management consideration in order to address recreation use,
demand, or R&VS program investments.
(1) Management Focus. An ERMA is managed to support and sustain principal

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recreation activities and associated qualities and conditions. Management of
ERMAs is commensurate with the management of other resources and resource
uses. While generally unnecessary, ERMAs may be subdivided into RMZs to
ensure R&VS are managed commensurate with other resources and resource uses.
(2) Requirements.
(a) Establish measurable objectives for ERMAs. These objectives must define
the recreation activities and associated qualities and conditions that will
become the focus of R&VS management.
(b) Identify LUP management actions and allowable use decisions for ERMAs.
(c) Identify management actions and allowable use decisions for R&VS and
other programs to achieve ERMA objectives. Ensure all decisions are
compatible with other resource objectives. Supporting management actions
and allowable use decisions must facilitate the visitor’s ability to participate
in outdoor recreation activities and protect associated qualities and conditions
of specific targeted RSC attributes. For example, specific attributes within
the physical RSC component under the visitor facility category might include
maintained and marked trails, simple trailhead developments, and basic
toilets.
(d) Within the R&VS program, identify supporting management actions and
allowable use decisions to accomplish the following:
Facilitate visitor participation in the identified outdoor recreation activities.
Maintain particular RSCs.
Restrict or constrain uses, including incompatible recreation activities that
are detrimental to achieve interdisciplinary objectives.
Address visitor health and safety, resource protection, and use and user
conflicts (e.g., areas closed to target shooting, camping limitations).
Address the type(s), activities, and locations where SRPs will or will not be
issued.
(3) Within other resource programs, establish terms, conditions, or special
considerations necessary to achieve ERMA objectives (e.g., stipulations on
mineral or other development, designations for all types and modes of travel,
areas available for livestock grazing, or visual resource management classes). All
actions must conform to applicable program policy, regulations, and valid
existing rights.
f. Public Lands Not Established as Recreation Management Areas.
(1) Management Focus. Public lands that are not designated as RMAs are managed

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to meet basic R&VS and resource stewardship needs. Recreation is not
emphasized on these lands; however, recreation activities may occur, except on
those lands closed to public use. The R&VS are managed to allow recreation uses
that are not in conflict with the primary uses of these lands.
(2) Requirements. Management actions and allowable use decisions may still be
necessary to address basic R&VS and resource stewardship needs, such as:
(a) Visitor health and safety.
(b) Use and user conflicts.
(c) The type(s), activities, and locations where SRPs will or will not be issued.
(d) Mitigation of recreation impacts on cultural and natural resources.
2. Implementation Decisions. Implementation decisions allow site-specific actions to
achieve LUP decisions (see BLM Handbook H-1601-1, “Land Use Planning,” Chapter IV,
Implementation). If implementation-level decisions are included in the land use planning
document to achieve R&VS program objectives, they must have site-specific NEPA
analysis (see BLM Handbook H-1601-1, “Land Use Planning,” Chapter IV,
Implementation; and BLM Handbook H-1790-1, “National Environmental Policy Act,”
Chapter 6.8) and be clearly distinguished as implementation decisions that are appealable
to the Interior Board of Land Appeals. For example, a planning decision to establish
designated areas for camping is protestable. Implementation decisions addressing specific
site locations, sizes, and amenities are appealable. Making implementation decisions as
part of the planning process does not change the administrative remedies or the timing of
those remedies.
a. Implementation decisions include these four categories:
(1) Management. Includes recreation management actions, such as commitment of
resources, services to be offered to visitors, and the development and provision of
facilities (e.g., recreation sites, roads and trails, and concessions).
(2) Administration. Includes regulatory actions, such as the implementation of
allocation systems, permits, fees, use restrictions, and partnership agreements, as
well as business plans or fiscal accountability systems and data management
protocols.
(3) Information and Education. Includes information and education actions, such as
providing maps, brochures, websites, outreach efforts, events, interpretation,
environmental education, signs, and other visitor information delivery services.
(4) Monitoring. Includes monitoring recreation resources and human use, such as

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visitor use and use patterns; recreation-caused resource effects or impacts; visitor
satisfaction; and effectiveness or attainment of outcomes-focused management
objectives, RSCs, standards, and indicators.
b. Implementation actions are used to achieve LUP decisions and generally require
additional NEPA analysis. Implementation actions may be proposed and approved
through:
(1) A LUP.
(2) An interdisciplinary plan.
(3) A recreation area management plan (RAMP).
(4) A project plan.
(5) A case-by-case basis (e.g., a proposed action in an environmental analysis).
3. Implementation Plans. Implementation plans for recreation areas are completed as
necessary to implement the decisions in the LUP. Subsequent specific recreation planning
includes:
a. Recreation Area Management Plan. Complex R&VS issues may require an
implementation-level RAMP, which provides specific direction for on-the-ground
implementation of the LUP over a discrete management unit. RAMPs may precede
project plans and must address the four implementation categories: management,
administration, information and education, and monitoring.
b. Project Plan. Project plans identify the site and facility design requirements for
construction.
G. Recreation Planning Process.
1. Outdoor Recreation Planner’s Role.
a. A successful recreation program requires a firm foundation. This foundation is
obtained through the recreation decisions made in the LUP and the other LUP program
decisions affecting the recreation opportunities and setting characteristics. Quality
LUP decisions can only occur if the recreation planner is engaged in the process and
fully understands the process, their role in the process, and the ramifications of other
program decisions. For recreation preplan requirements, refer to Appendix 1 - Land
Use Planning Checklist for Recreation and Visitor Services.
b. When time is invested to develop clearly defined and specific goals, objectives,

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management actions, and allowable uses in a LUP, then these decisions direct
subsequent implementation actions. After the LUP is completed, the BLM outdoor
recreation planner implements the planning decisions. Thoroughly addressing the
recreation program in the LUP will help focus implementation actions.
c. Recreation planning begins with the end in mind, and application of the outcomesfocused management framework provides a logical pathway to develop critical
decisions associated with a LUP (see Figure 3). First, work with interested public land
stakeholders to decide which outcomes and recreation opportunities are to be targeted
(recreation objectives). Then, determine how best to produce those outcomes and
recreation opportunities by identifying (1) desired recreation settings and (2)
supporting management actions and allowable use decisions.
Figure 3 – Application of the Outcomes-Focused Management Framework
to Recreation Planning

2. Overview of the Land Use Planning Process for Recreation and Visitor Services.
a. The application of outcomes-focused management requires recreation planners to
consider and address all components of producing recreation opportunities, such as:
(1) Experiences and outcomes.
(2) Recreation activities.
(3) RSCs.
(4) LUP-level management actions and allowable uses.
(5) Implementation actions.
b. Therefore, planning for recreation requires:
(1) Planning with greater specificity.

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(2) Responding to customer demand.
(3) Working collaboratively with partners.
(4) Participating proactively during the planning process by (1) being aware of and
engaging in interdisciplinary issues and (2) understanding how recreation
decisions affect other resources and conversely how other resource decisions
affect recreation.
c. In order to plan with greater specificity and respond to customer demand, BLM
recreation planners must:
(1) Determine both the supply of existing physical, social, and operational RSCs and
the demand for activities, experiences, and benefits.
(2) Identify RMAs based on recreation demand, available recreation settings, and the
ability to manage recreation resources.
(3) Write objectives for SRMAs that define the specific recreation opportunities (i.e.,
activities, experiences, and benefits derived from those experiences) which
become the focus of R&VS management; and write objectives for ERMAs that
define the recreation activities and the associated qualities and conditions which
become the focus for R&VS management.
(4) Write objectives for all BLM lands within the planning area that address resource
or use/user conflicts and visitor health and safety, and mitigate recreation impacts
on cultural and natural resources.
(5) Identify/implement management actions and allowable use decisions necessary to
achieve objectives and RSCs for the R&VS program and other programs.
(6) Monitor/evaluate the success of management actions, allowable use decisions,
and site-specific implementation actions to achieve R&VS program objectives
and maintain RSCs.
3. The Planning Cycle and Adaptive Management. The land use planning process is
cyclic, allowing for adaptions if monitoring and evaluation indicates that goals and
objectives are not being achieved (see Figure 4). Adaptations encompass (1) changing
recreation implementation actions or practices, (2) revising supporting recreation
management actions and allowable use decisions, or (3) fine tuning the desired RSCs.
Over the long term, recreation planning within an adaptive management framework means
staying committed to achieving the recreation objectives established in the LUP but being
flexible enough in the management approach to achieve those objectives.

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Figure 4 – Adaptive Management

For a detailed description of the BLM’s land use planning process, refer to BLM
Handbook H-1601-1, “Land Use Planning,” and/or BLM Handbook H-1790-1, “National
Environmental Policy Act.” For information on adaptive management, refer to “Adaptive
Management: The U.S. Department of the Interior Technical Guide.”
H. Data and Data Collection.
Collecting and analyzing data is essential to recreation planning, implementation, monitoring,
and evaluation. Data provides a necessary foundation to yield quality recreation opportunities.
Anecdotal information is an inadequate substitute. Just as a professional wildlife biologist needs
data on habitat condition, species requirements, and populations, the recreation planner requires
data on RSCs, outcomes, and use levels.
The BLM’s recreation customers know what contributes to a quality recreation experience. The
BLM needs to understand stakeholder concerns about protecting the quality of the recreation
settings and the resulting outcomes that are realized. R&VS data regarding what contributes to a
quality recreation opportunity must be obtained from visitors, communities, and other recreation
providers. Collecting and analyzing data begins the process to allow managers to create the
quality recreational opportunities most desired by stakeholders and visitors.
Assessments, inventories, monitoring records, and other forms of data collection are used to
understand recreation uses and resources in the planning area. These data may include
information on the use of and/or demand for public land recreation opportunities and existing
and desired RSCs.

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Data assembled to support all planning phases must be sufficient to address the nature and
complexity of existing and potential issues or concerns. It is generally unnecessary to collect
recreation-related data for the entire planning area. Site-specific data should only be collected in
areas that are currently designated or have the potential to be designated as RMAs, areas that
have high use, or where use/user issues exist.
This area/site-specific information will then be used when identifying alternatives, management
actions, allowable uses, and their associated impacts. These data help to establish alternatives
and objectives, as well as to analyze and focus implementation actions.
1. Data Collection and the Land Use Planning Process.
a. Data should be collected and used during the following steps of the LUP process:
(1) Issue Identification.
(2) Planning Criteria Development.
(3) Data Collection and Inventory.
(4) Analysis of the Management Situation.
(5) Alternative Formulation.
(6) Impact Analysis.
b. Data are also used in implementation of the LUP. Specifically, data are used to
monitor and evaluate recreation objectives, goals, and the effectiveness of
management actions. During development and implementation of the LUP, data
specifically help to:
(1) Provide baseline information.
(2) Describe the existing situation.
(3) Establish objectives, analyze alternatives, and support planning decisions.
(4) Determine progress in achieving goals and objectives.
(5) Determine if objectives are being met over the life of the plan.
(6) Determine if management approaches should be adapted to better achieve
planning objectives.

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2. Considerations Related to the Collection and Protection of Data. Federal statutes and
regulations have established requirements about collecting data. Of particular note are the
restrictions under the Federal Advisory Committee Act, the Paperwork Reduction Act, and
the Privacy Act. The use of data collection techniques must be in compliance with these
statutes and the Office of Management and Budget information collection guidelines.
a. Federal Advisory Committee Act. As a federal agency, the BLM must adhere to the
Federal Advisory Committee Act and all associated guidelines. Collecting qualitative
data regarding recreation use may require many face-to-face encounters with
stakeholders. Persons collecting these data must be aware of and adhere to Federal
Advisory Committee Act rules and guidelines to ensure the legality of the data
collection effort. In doing so, the BLM may:
Meet with a number of persons collectively to obtain their individual views.
Listen to and record individuals’ opinions and their sharing of information.
Obtain advice from representatives of various existing organizations where each
representative individually provides advice on behalf of their organization.
Return the discussion to the original format of the meeting (i.e., individual
advice) when it appears that the audience is moving toward consensus or a
common point of view.
The BLM may not:
Solicit consensus or a common point of view from the assemblage of
individuals.
Receive advice or recommendations from the assemblage “as a group.”
b. Paperwork Reduction Act. The Paperwork Reduction Act of 1995 requires
agencies to obtain approval from the Office of Management and Budget before
requesting most types of information from the public. "Information collections"
include forms, interviews, and recordkeeping requirements. The approval process has
specific requirements that often take a year to complete. Planners should consult
managers if they anticipate using any of the techniques covered under this law.
c. Privacy Act. As a general rule, avoid collecting any information that can be associated
with a particular individual, as this information must be protected and kept
confidential. The Privacy Act of 1974 protects records that can be retrieved by
personal identifiers such as a name, social security number, or other identifying
numbers and symbols. An individual is entitled to access his or her records and to
request correction of these records if applicable.
3. Opportunities for Assistance in Data Collection. When collecting data for planning
purposes, it is important to document how and where the data were collected. This
information becomes part of the administrative record.

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a. Federal Advisory Committee Act-Chartered Committees. Consistent with the
Federal Advisory Committee Act, consider using Resource Advisory Committees or
other committees chartered by the Federal Advisory Committee Act as a source of
information and to assist with data gathering. The act provides specifically chartered
committees with the authority to provide recommendations to the BLM. Guidelines for
working with advisory committees can be found in 43 CFR 1784.
b. Assistance from Partners. Work with colleges, universities, recreation districts, or
other institutions that already routinely collect recreation, travel, and tourism data as
part of their ongoing research. These entities can often provide relevant data to
complement and enhance the data collected by the BLM.
c. Assistance from Cooperating Agencies. Cooperating agency status provides a formal
framework for governmental units—local, state, tribal, or federal—to engage in active
collaboration with the BLM to implement the requirements of NEPA. The cooperating
agency relationship is distinctive, moving beyond consultation to engage officials and
staff of other agencies in a working partnership. Cooperating agencies can often share
skills and resources to help shape BLM LUPs to better reflect the policies, needs, and
conditions of their jurisdictions and the citizens they represent.
4. Understanding Qualitative Versus Quantitative Data. Data are classified as either
qualitative or quantitative. Both types of data are useful to understand social situations and
interaction, as well as people’s values, perceptions, motivations, and reactions. Gathering
data is a form of social science research that is critical to the management of recreation
resources.
a. Qualitative Data.
(1) Data that deals with descriptions, values, and interests.
(2) Qualitative data are presented in narrative form and are rich in detail and describe
people’s attitudes and opinions.
(3) These data can be observed, not measured.
(4) These data are subjective.
b. Quantitative Data.
(1) Data that can be measured.
(2) Deals with numbers.
(3) Presented in numerical form including quantities, percentages, and statistics.

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(4) These data are less subjective.
5. Supply and Demand. Data are collected to understand recreation supply and visitor
demand. Understanding the relationship between supply and demand through the visitor’s
perspective is critical. There is a direct relationship between an individual’s ability to
obtain specific experiences/benefits (i.e., demand) and the setting characteristics
associated with the experiences/benefits (i.e., supply). In the past, recreation planners were
diligent in collecting data about visitor use levels and recreation activities, and while this
is useful, it is incomplete. To offer quality recreation opportunities, we must understand
why people choose to recreate in a particular location.
a. Assessing Demand. Demand information includes people’s desired activities,
experiences, benefits, and settings. Identifying demand requires the collection of data
to determine which recreation activities and accompanying experiences and benefits
are desired by the visitor. It is also necessary to identify the RSCs required to produce
those experiences and benefits. Collect this information geographically in order to tie
visitor preferences for recreation opportunities to the landscape.
b. Identifying Recreation Trends. Trend data demonstrate national, regional, and/or
local changes in demand for certain recreation activities and outcomes. Trend data are
used to determine changes in the type and degree of recreation activities occurring in
specific areas. Awareness of these changes helps determine future demand for
recreation opportunities. Information sources include:
RMA monitoring data.
BLM field office staff professional knowledge.
Recreation Management Information System data.
U.S. Forest Service National Visitor Use Monitoring data.
National Survey on Recreation and the Environment.
Concessionaire and outfitter and guide data.
State fish and game agency data on hunting, fishing, and wildlife viewing.
State comprehensive outdoor recreation plan.
Neighboring jurisdiction information.
Survey data.
U.S. Census Bureau data.
Private sector data (e.g., Outdoor Industry Association).
Economic Profile System (Headwaters Institute/BLM planning tool).
State, regional, and local tourism agencies.
State, regional, and local recreation businesses.
State, regional, and local chambers of commerce.
6. Collecting Qualitative Data Concerning Activities, Experiences, and Benefits.
Qualitative data documents the experiences and benefits associated with a quality
recreation opportunity. These data help the BLM understand the who, what, when, where,

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and why people recreate in specific areas (outcomes) and what influences these outcomes
(setting characteristics). The experience and outcome data allow the BLM to better plan
for, offer, and measure what visitors consider quality recreation opportunities.
Collecting these data requires a dialogue between the BLM and existing and potential
visitors, residents, partners, community leaders, and other stakeholders to determine:
What activities are preferred?
What experiences are realized when participating in these preferred activities?
What individual, social, economic, and/or environmental benefits are attained
onsite?
What benefits stay with the individual when they leave the recreation area, and
what benefits cumulatively lead to offsite beneficial outcomes to communities,
economies, and the environment?
What RSCs support the desired experiences and benefits?
Various techniques can be used to ask these questions and document responses. These are
discussed later in this section.
When collecting qualitative data, use the Experience and Benefit Checklist found in
Appendix 2 as a foundation to facilitate data collection. This checklist is used as a tool to
help the planner understand and describe the outcomes (i.e., experiences and benefits) that
recreationists realize from participating in specific activities. When collecting data for an
existing or proposed RMA, the relationship between an identified location and the
activity, experiences, and benefits must be retained. These data do not have to be collected
for the entire planning area but must be collected for existing RMAs that are proposed for
retention and for potential new RMAs.
7. Communication Methodologies. The following techniques are used to gather
information from stakeholders. Regardless of which technique is used, when collecting
data for an existing or proposed RMA, the relationship between an identified location and
the activity, experiences, and benefits must be retained.
a. Reframing. Reframing is changing the way a question is asked to determine the
stakeholder’s interests. The objective is to communicate with stakeholders to
understand their issues by discovering what is important to them. How does the issue
interfere with what they value? In this case, interest is interpreted as which activities,
settings, experiences, and outcomes our stakeholders are interested in and where they
recreate.
b. Appreciative Inquiry. Ask positive questions to learn what an individual values in a
place, activity, or experience. By asking our stakeholders positive questions, the BLM
engages them in the process and fosters positive relationships.
c. Facilitation. When formally meeting with the public and stakeholders, it is

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recommended to use a facilitator to ensure that the discussion flows in a constructive
direction and manner. Facilitators introduce ground rules and use various other
techniques to assist facilitating the group discussion. Proper facilitation does not lead
the group to certain conclusions or consensus but rather ensures that a variety of
opinions are expressed and documented. When choosing a facilitator, it is important
that their skills and training are equivalent to the complexity of the issues to be
discussed. A recorder should also be present to accurately capture and document the
discussion. In some cases, the facilitator may also have to serve as the recorder.
d. Informal Discussions. Document these discussions when used during a planning
effort. This information may supplement survey and/or small group discussion results.
The information is also valuable when developing a small group discussion script or
survey questions.
Figure 5 provides examples of how to frame questions during informal conversations
with onsite visitors, local service providers, or small groups. Expand the discussion
beyond a dialogue about activity participation to obtain outcome and recreation setting
information. Document the discussions immediately after talking with the person or
group. Always remember to “think like a visitor.”
Figure 5 – Sample Questions for Obtaining Outcome and Recreation Setting Information
Geographic Location

Where do you usually recreate, and how did you
find out about this area?

Activities

What kind of activities do you participate in
while in the area?

Recreation Experiences and Benefits

Why do you recreate here? What kinds of
experiences or benefits do you or the local
community receive through recreating here? (Be
familiar with the Experience and Benefit
Checklist found in Appendix 2 to help
understand the types of experiences and
outcomes expressed.)

Recreation Setting Characteristics

Are the qualities and conditions of the recreation
area correct, or do changes need to be made to:
(1) the landscape, (2) the way people use the
area, (3) the numbers of visitors, (4) the level of
management, or (5) the level of visitor services?

Land Use Plan or Implementation
Actions

If you were the boss, what kinds of management
actions would you do to improve qualities and
conditions of the recreation area?

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8. Techniques for Gathering Data.
a. Small Group Discussions. These discussions involve a small group of people (usually
6 to 10) who are interviewed at the same time to collect qualitative and quantitative
data. A skilled facilitator guides participants through a “script” that encourages
participants to express their values and opinions relating to specific preferences for
activities, experiences, benefits, settings, and desired visitor services. See Illustration 1
for an example of a small group discussion script.
Group members must share a common interest, which encourages open and free
communication and creates an environment to share distinct values, attitudes, and
perceptions. These common interests include individual activities (e.g., hiking),
groupings of activities (e.g., nonmotorized uses), or a place (e.g., Bennett Hills).
Consensus building is not a goal of the small group discussion technique.
b. Scoping Meetings. Scoping meetings are a form of public involvement and are
commonly used in preparing LUPs. The R&VS program should take advantage of
these meetings by posing recreation-related questions to those who attend. Providing
participants with a map allows them to associate their responses with specific areas.
Typical questions may include: where do you recreate, what activities do you
participate in, and why is the area important? Responses provide specific information
that helps the BLM understand public interests.
c. Questionnaires and Surveys. Questionnaires and surveys can range from very simple
to quite complex. The terms questionnaire and survey are often used interchangeably.
A questionnaire is a list of questions people answer. See Illustration 2 for an example
of a questionnaire. A survey is the process used to gather data and may include
questionnaires and face-to-face and telephone interviews. Some additional factors to
consider when using questionnaires and surveys include:
(1) Any survey instrument and methodology done by or for the BLM must be
approved in advance through an information collection request to the Office of
Management and Budget.
(2) The BLM can work in conjunction with universities and other agencies that may
need or want similar data.
(3) More indepth studies are sometimes desired for heavily visited or high-profile
recreation attractions.
(4) Onsite visitor surveys provide an opportunity to collect nonresident data.
(5) Surveys and questionnaires must be properly designed, administered, and

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analyzed if they are to provide valid information. Surveys and questionnaires
should be focused to better understand land use planning issues and desired
outcomes.
(6) Data collected in small group discussions should be used to determine the need
for a subsequent visitor survey. If a visitor survey is desired, use the data collected
in small group discussions to design the questionnaire.
(7) Depending on the specialist’s knowledge of the area and activities, informal
discussions and professional knowledge may be used to help prepare
questionnaires.
(8) When preparing survey questions, use the Experience and Benefit Checklist (see
Appendix 2).
9. Collecting Data Concerning Desired Recreation Setting Characteristics. Collect data
to identify which recreation settings best enhance the preferred activities, experiences, and
benefits respondents desire in a particular location. Ask questions about which
components of the recreation setting (physical, social, and operational) are highly valued.
If, for example, the naturalness characteristic is highly valued, ascertain the visitor
preference for (1) making the area more naturally appearing, (2) leaving the area as is, or
(3) allowing more manmade landscape alterations.
Answers to these questions will help the recreation planner determine existing and desired
RSCs and understand which RSCs should be supported by interdisciplinary management
actions and/or allowable uses. Identifying and discussing RSCs is important to the land
use planning process because they:
Provide information that can be used to relate and display characteristics that
comprise the recreation setting.
Move recreation management/planning beyond thinking only about activities.
Provide baseline information about existing recreation settings (supply) and the
desired recreation settings (demand).
Offer a credible, systematic approach to analyze the consequences of resource
decisions on recreation opportunities.
Help identify management actions and allowable use decisions that are necessary
to address the protection of recreation settings in RMAs.
I. Recreation Setting Characteristics.
Visitors seek a diverse range of setting-dependent outdoor recreation opportunities. They choose
to recreate in different areas based on the qualities and conditions of the area and because they
desire to have distinct recreation experiences. For example, primitive camping in a backcountry
valley by a remote lake offers a different set of outcomes than camping in a highly developed
campground adjacent to a rural reservoir. Engaging in the same activity in different settings can
produce different recreation outcomes.

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By combining various RSCs, the BLM can produce different recreation opportunities. Since it
can be challenging to determine and manage the appropriate outdoor recreation settings that
produce desired recreation outcomes, the BLM has a tool to meet this challenge, the Recreation
Opportunity Spectrum (ROS).
1. Recreation Opportunity Spectrum. The ROS was developed to provide a guide for
recreation inventory, evaluation, management, planning, and decisionmaking. The
framework describes the mix of possible outdoor recreation settings that produce
recreation experiences. To make the ROS easy to use, the spectrum was subdivided into
ROS classes ranging from primitive to urban (see Figure 6 – Recreation Opportunity Class
Spectrum). The classes are named only to help describe a recreation setting spectrum for
recreation management. For example, the “primitive” class is not exclusive to wilderness,
wilderness study areas, or lands with wilderness characteristics and may be used
elsewhere.
Figure 6 – Recreation Opportunity Class Spectrum

The continuum of classes can be characterized by three components—physical, social, and
operational qualities and conditions of the recreation area. The BLM refers to these
components as RSCs (see Figure 7 – Components and Characteristics of a Recreation
Setting). Each component is further defined by characteristics such as remoteness, group
size, and management controls. This provides a way to describe a geographical location’s
recreational qualities and conditions.

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Figure 7 – Components and Characteristics of a Recreation Setting

2. Recreation Setting Characteristics. Traditionally, the ROS process mapped the physical,
social, and operational RSCs separately and then combined all maps into one final
composite map. This often resulted in inconsistencies between the physical, social, and
operational recreation settings. The conflicts were resolved by emphasizing the physical
character of the landscape or averaging the differences. Unfortunately, this often resulted
in a misrepresentation of the social and operational qualities of the recreation area, making
the ROS difficult to understand and implement. In response, the BLM has modified the
application of the ROS by not requiring the integration of the physical, social, and
operational RSCs into one final composite map. Modifying ROS allows the existing and
desired recreation setting components and characteristics to be displayed and described
individually.
a. Considering recreation setting components and characteristics separately:

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(1) Eliminates the need to resolve inconsistencies between classes.
(2) Accurately depicts the current recreation settings.
(3) Displays the complexity of the recreation setting.
(4) Provides clear implementation direction.
(5) Creates adaptive and useful planning products.
b. To describe the recreation setting of a particular place or area, the classes, components,
and characteristics can be:
(1) Described through a narrative.
(2) Illustrated in matrix form (see Appendix 3 – Recreation Setting Characteristics
Matrix).
(3) Illustrated on maps.
c. These formats are used to:
(1) Delineate and classify existing RSCs.
(2) Identify the desired RSCs for recreation areas.
d. As with the ROS, this concept can be customized to meet the following planning
needs:
(1) Classes can be added, split, or merged.
(2) Characteristics can be added or deleted.
(3) Class names can be changed.
(4) Class descriptions can be modified.
(5) However, the concept of a spectrum must remain intact.
3. Inventorying and Describing Recreation Setting Characteristics. Recreation supply
consists of RSCs. The RSCs are used to: (1) inventory recreational resources, (2) describe
a recreation setting for a geographic location, (3) match settings and experiences
recreationists desire with available recreation opportunities within the planning area, (4)
estimate the consequences of proposed management decisions on recreational

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opportunities, and (5) provide the basis for considering recreation values in the land use
planning process.
Collecting detailed recreation setting data for the entire planning area is generally
unnecessary. Such data should be collected where recreation may be considered a primary
resource management consideration. However, inventorying RSCs outside existing or
potential RMAs can offer useful data to support other LUP decisions. At a minimum, the
existing physical, social, and operational RSCs should be described in a narrative format,
based on the descriptions in the RSC matrix (see Appendix 3) for existing or potential
RMAs. RSCs can also be described in a matrix or map format.
a. Narrative Format. The narrative format (see Figure 8 for an example) may be the
most useful format to succinctly describe the existing settings in documents that are
addressing numerous and complex RMAs. The narrative should describe the existing
physical, social, and operational RSCs for existing and potential RMAs. This
information is based primarily on field staff observations, monitoring data, and
existing management plans and amendments.
Figure 8 – Narrative Format Example Describing Existing RSCs
Existing Physical RSCs for Black Mountain SRMA
Remoteness: Almost all BLM lands are within ½ mile of primitive roads and motorized trails.
Naturalness: The existing natural landscape has been retained. The few landscape modifications are not
visually obvious or evident. The recreational developments are within the existing character of the landscape.
Visitor Facilities: Simple/basic recreation developments at trailheads, along with maintained/marked trails are
found onsite.
Existing Social RSCs for Black Mountain SRMA
Contacts (avg.): During the high season (May – Oct), participants encounter a season average of up to 6
encounters per day away from trailheads. During the low season, participants encounter a season average of
up to 3 encounters per day away from trailheads.
Group Size (avg.): Participants encounter a season average of up to 6 people per group.
Evidence of Use: A few small localized areas of vegetation alteration and compacted/bare soils. Surface
vegetation is showing some wear and bare soils. Sounds of people occasionally heard along routes.
Existing Operational RSCs for Black Mountain SRMA
Access (types of travel): Public recreational access is by mountain bike on the mesa tops and by off-highway
vehicle in the canyon bottoms. The area is not accessible by low-clearance vehicles.
Visitor Services/Info: No brochure/map is available. General information is available on the field office website.
Minimum directional signs are installed on routes. BLM staff is rarely present to provide onsite visitor
assistance.
Management Controls: A moderate degree of visitor and land use controls are exercised through camping and
travel management restrictions. Basic user regulations posted at trailheads.

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b. Matrix Format. The advantage of using the matrix format is that it provides a
description of existing RSCs and is a visual tool to display existing RSCs for
documents and public/staff discussions. This complements RSC narratives by
displaying the range of classes that exist in the RMA. The matrix format is useful
since some RSCs are difficult to map (e.g., group size, evidence of use, visitor
services, and management controls). The classes for each RSC can be highlighted to
graphically show the supply of existing recreation settings (see Figure 9 for an
example).

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Figure 9 – Matrix Format Example Depicting Existing RSCs for a SRMA/RMZ

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c. Map Format. Mapping is an optional format for displaying RSCs in a LUP. Maps
depict the: (1) qualities of the landscape (physical), (2) qualities associated with use
(social), and (3) conditions created by management (operational) (see Figures 10, 11,
and 12). Mapping allows for quantitative analysis, which is used for statistical or
numerical comparison of alternatives. RSC maps may be developed for existing and
potential SRMAs, all RMAs, or the entire planning area. Mapping the entire planning
area offers useful data to support other LUP decisions, such as identifying nonwilderness study area lands with wilderness characteristics, travel management areas,
and route designations. Use the RSC narrative and/or the RSC matrix to help construct
physical, social, and operational maps.
Figure 10 – Map Format Example Displaying Existing Physical RSCs

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Figure 11 – Map Format Example Displaying Existing Social RSCs

Figure 12 – Map Format Example Displaying Existing Operational RSCs

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J. Mapping Recreation Setting Characteristics.
This section explains how to map the physical, social, and operational setting components of
existing RSCs. The social and operational components often receive less attention; however, the
social and operational recreation setting strongly impacts a visitor’s recreation experience.
Building physical, social, and operational RSC maps is a geographic information system (GIS)
exercise that requires the location of the following types of information:
Roads, primitive roads, and trails.
Airstrips.
Infrastructure or developments (i.e., power lines, fences, stock ponds, pipelines,
communication sites, and canals).
Navigable lakes, rivers, and waterways.
Travel designations.
Visitor density/contacts.
Operational restrictions on modes of travel.
The following are additional considerations for mapping RSCs:
When mapping RSCs, involve other BLM staff, interdisciplinary team members,
and the public who have local knowledge of the planning area.
Map the RSCs that have been identified as determinative (i.e., having the most
influence on the desired recreation opportunities).
Map the RSCs without regard to land ownership. Mapping all lands is critical
because RSCs on adjacent federal, state, local government, tribal, and private lands
influence settings on public lands. Display the RSCs only on public lands to avoid
conveying any perception that the BLM will be making decisions for lands not
under its jurisdiction.
The planner and the GIS specialist must coordinate when creating maps. The GIS
specialist is best able to determine which GIS tools to use. The planner is best able
explain the RSC matrix and to describe which data should be displayed.
Document all assumptions in the metadata, and consistently use these assumptions
through all phases of planning.
Label maps by listing the incorporated attributes. For example, a physical RSC
map includes remoteness, naturalness, and visitor facilities attributes, and a
physical RSC map includes a remoteness attribute.
If physical, social, or operational characteristics change by season, it may be
necessary to make maps based on the season of use (i.e., summer, hunting season,
and winter).
1. Creating the Physical Recreation Setting Map. Mapping the physical recreation setting
displays the attributes of remoteness, naturalness, and visitor facilities.
a. Remoteness Characteristic. Mapping the remoteness characteristic displays the

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remoteness from human modifications associated with roads or trails. The resulting
map is considered the base physical map. Creating the physical map requires travel
management data on trails, primitive roads, roads (e.g., BLM, county, state, federal,
and possibly private), and route designations. Creating the map also involves
delineating class boundaries (e.g., primitive to urban) using distance criteria from
routes in the RSC matrix (i.e., backcountry - within ½ mile of mechanized routes). See
Figure 13 for an example of a remoteness diagram. For the RSC matrix, see Appendix
3. The distance criteria can be adjusted based on topography or vegetation. For
example, if the area is forested or mountainous, the distances can be reduced to better
display existing conditions. This may require manually digitizing class boundaries
using topographical data or aerial photos. Refine the base physical map as additional
route data become available or as route systems are revised during the planning
process. The physical recreation setting map may be completed for the entire planning
area or just for RMAs based on planning and analysis needs.
Figure 13 – Remoteness and Naturalness Diagrams

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b. Naturalness Characteristic. The naturalness of an area considers human
modifications that were not captured when mapping the remoteness characteristic. By
including naturalness attributes in the physical recreation setting map, the base
physical map is more inclusive of all human modifications and not just the impacts of
modifications associated with routes. Human modifications can include areas of
industrial development, utilities, rights-of-way, livestock structures, fences, habitat
treatments, or private land developments. Although the final product more accurately
depicts the physical recreation setting, it requires more time and more resource
information. Also, consider whether some nonnatural features (e.g., water guzzlers or
stock ponds) or landscape alterations (e.g., wildlife habitat treatment) may or may not
affect the visitor’s experience. The decision to refine the base physical map is a matter
of professional judgment and the extent of issues that are being addressed in the LUP.
See Figure 13 for an example of a naturalness diagram.
c. Visitor Facilities Characteristic. The physical attributes of visitor facilities (e.g.,
recreation developments) can also be considered to refine physical class boundaries.
As with the naturalness component, refinements of the physical map should reflect the
area where the visitor’s experience is influenced by the facility.
2. Creating the Social Recreation Setting Map. Mapping the social recreation setting
displays the social attributes of a recreation area, including visitor density and visitor
impacts.
a. Contacts Characteristic. Develop the base social map by using the contacts
characteristics in the RSC matrix (see Appendix 3). The number of other groups
contacted can give an indication of visitor density and crowding, which strongly affect
the visitor’s experience. This information is essential when considering recreation
carrying capacities in an attempt to create quality recreation experiences. The numbers
of contacts are usually estimated using professional knowledge when visitor use data
are not available. This represents the base social map.
b. Group Size and Evidence of Use Characteristics. Average group sizes and evidence
of use characteristics can also be considered to refine social class boundaries. Use the
class descriptions in the RSC matrix (see Appendix 3).
Social data is important, but it is often overlooked. Overall visitor use estimates are
not sufficient to create RSC maps or make accurate decisions concerning how to
manage social recreation settings. A specific effort should be made to begin collecting
social contact data 1-2 years in advance of the planning process. When this is not
possible, make estimates from the best available data. Sources include:
(1) Basic observation/professional knowledge.
(2) Small group discussions.

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(3) Surveys.
(4) Monitoring (vehicle counters, fee envelopes, sign-in sheets, BLM patrol logs).
(5) User groups and commercial outfitters.
3. Creating the Operational Recreation Setting Map. Mapping the operational setting
displays the managerial attributes for an area encompassing public access, visitor services,
and management controls/regulations. Creating the operational RSC map requires route
designation data and any additional route/access restrictions.
a. Access Characteristic. Develop the base operational map by mapping the types of
public access allowed, as described in the RSC matrix (see Appendix 3). The public
access characteristic displays the type of public access allowed on routes, not the
physical type of route on the ground as used in the remoteness characteristic. This
creates the base operational map.
The resulting operational recreation setting map may be similar to the physical
recreation setting map when using the same class distance criteria for both maps. The
contrast between the physical and operational maps emerges when the type of routes
on the ground are different than the type of public access permitted to use those routes.
For example, motorized two-track routes may physically exist on the ground because
of administrative access provided to a right-of-way holder, but that same route is only
operationally open to public foot travel.
b. Visitor Services and Management Controls Characteristics. Visitor service
characteristics and management control characteristics can be utilized to refine
operational class boundaries. Use the class descriptions in the RSC matrix (see
Appendix 3).
K. Evaluating Potential Recreation Management Areas.
Consider an area’s eligibility and manageability before proposing it for designation. This process
considers specific factors.
1. Step 1 – Consider Eligibility Factors. The first step assesses to what extent the
RMA eligibility factors are met in a geographically defined area. If the RMA eligibility
factors are not met, the area is not eligible to be designated as an RMA and further
assessment is not required. The following eligibility factors should be considered:
a. Demand for recreation opportunities.
b. Existing recreation use.
c. Demand for new recreation opportunities.

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d. Supply of RSCs.
e. The unique value, importance, and/or distinctiveness of RSCs, especially compared to
other areas used for recreation.
f. Current or needed R&VS program investments and infrastructure.
2. Step 2 – Manageability Considerations. If RMA eligibility factors are met, the area is
next assessed to determine its manageability as an RMA. Address manageability
considerations when formulating proposed RMA alternatives through the planning
process. Not all manageability considerations must be met since each RMA proposal is
unique. The following manageability considerations should be assessed:
a. Capability to manage recreation resources and uses.
b. The amount of certainty that proposed or competing land uses or other resource values
do not preclude providing the desired recreation opportunities or protecting the RSCs.
c. Ability to establish interdisciplinary management actions and allowable uses to
support desired recreation opportunities.
d. Necessary recreation management actions and allowable uses that will be needed to:
(1) Support and facilitate targeted recreation activities.
(2) Maintain or enhance RSCs.
(3) Mitigate recreation impacts to cultural and natural resources.
(4) Address use and user conflicts.
(5) Gain public support for managing specific recreation opportunities.
(6) Gain existing and/or potential partners/volunteers that demonstrate a commitment
and capacity to help the BLM manage specific recreation opportunities and
setting characteristics on a sustained long-term basis.
3. Step 3 – Determine the Recreation Management Area Type. The differences between
SRMAs and ERMAs must be considered when developing alternatives in a LUP. See
Illustration 3 to compare and contrast the differences between SRMAs, ERMAs, and
undesignated lands.
a. SRMAs are managed:
(1) For their unique value, importance, and/or distinctiveness, especially as compared

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to other areas used for recreation.
(2) To protect and enhance a targeted set of activities, experiences, benefits, and
desired RSCs.
(3) As the predominant LUP focus.
(4) To protect specific recreation opportunities and RSCs on a long-term basis.
b. ERMAs are managed:
(1) To address recreation use, demand, or existing R&VS program investments.
(2) To support and sustain the principal recreation activities and the associated
qualities and conditions.
(3) Commensurate with the management of other resources and resource uses.
4. Identifying Recreation Management Zones within SRMAs/ERMAs. A SRMA may be
subdivided into RMZs to further delineate specific recreation opportunities. These zones
provide an optional management tool to manage recreation resources. Field offices can
manage for a range of recreation opportunities within a SRMA, but in complex situations
where many recreation opportunities are provided, the SRMA can be divided into RMZs.
When this division is made, each RMZ has a discrete objective and provides for specific
recreation opportunities. Where RMZs are established, identify the necessary management
action and allowable use decisions needed to achieve the RMZ objectives. Establishing
RMZs and associated objectives are LUP decisions. While generally unnecessary, ERMAs
may be subdivided into RMZs to ensure R&VS are managed commensurate with the
management of other resources and resource uses.
An example of a SRMA subdivided into RMZs may be an area that offers two different
types of recreation opportunities, such as land based and water based. The Chena Lake
SRMA is popular for both hiking and fishing, yet both activities share the same
parking/trailhead. Therefore, the Chena Lake hiking RMZ objective would address the
hiking opportunities within the area, and the Chena Lake fishing RMZ objective would
address the fishing opportunities associated with the lake.
5. Overlapping Land Use Plan Designations. The rationale for recreation designations (and
lands not designated for recreation) must be based in planning guidance and the need to
achieve R&VS LUP decisions. Overlapping designations can be problematic because
objectives for other special designations (i.e., wilderness areas, wilderness study areas,
areas of critical environmental concern, wild and scenic rivers, etc.) may be inconsistent
with RMA designations. Therefore, LUPs should not universally overlap special
designations with RMA designations.

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Overlapping RMA designation with other designations may be appropriate if determined
necessary to facilitate the visitor’s ability to participate in outdoor recreation activities and
protect the associated qualities and conditions of the area. For example, if a popular river
corridor flows through a wilderness area and has management considerations (e.g.,
recreation facilities upstream and downstream in the wilderness area, hiking trails along
the river corridor) it may be appropriate to designate the river corridor as an RMA but not
necessarily the entire wilderness area. RMA designations should be applied rationally,
thoughtfully, and predictably within the interdisciplinary basis of which the BLM plans
and manages.

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CHAPTER II – RECREATION AND VISITOR SERVICES
PLANNING DECISIONS
A. Goals and Objectives.
1. Land Use Plan Goals. Goals are broad qualitative statements of desired outcomes for the
planning area. Goals are developed during the land use planning process and not during
implementation planning. Sources may include departmental recreation goals, strategic
plans, LUP planning themes, and LUP alternative themes. Depending on the structure of
the LUP or amendment, goals may be interdisciplinary (e.g., maintain ecosystem health
and productivity, promote community stability, ensure sustainable development) or
recreation specific.
The terms goal and objective are often used interchangeably. However, a goal ideally is
made up of many shorter-term objectives. Goals are broad statements of desired outcomes,
and objectives describe specific desired outcomes for resources. See Figure 14 for the
differences of goals and objectives. By understanding the differences between goals and
objectives, the R&VS program can achieve better results.
Figure 14 – Comparison between Goals and Objectives*

Meaning:

GOAL
Broad statements of desired outcomes
intended to be attained.

Principle:

Broad-based, general, and qualitative.

Measure:
Time frame:

May not be measurable.
Generally longer term, not always with
established timeframes.

OBJECTIVE
Specific description of desired outcomes
to be achieved for resources/resource
uses.
Focused, precise, specific, and
quantitative.
Must have measurable results.
Short to long term, with established
timeframes.

* This figure is based on BLM Handbook H-1601-1, “Land Use Planning.”

a. Writing Land Use Plan-Level Goals for Recreation and Visitor Services. Link
recreation goals to the BLM’s mission statement and strategic program goals. Avoid
focusing on the desired management activities of the recreation program and staff. To
keep the process simple, write a goal to answer the following question: Over the life of
the LUP, what will be the general results or accomplishments of the recreation
program? An example of an answer to this question might be: The recreation program
will produce a diversity of quality recreational opportunities that add to the recreation
participant’s quality of life while contributing to local economies.
2. Land Use Plan Objectives. Objectives are quantifiable statements that are developed
during the LUP process. They establish management direction for the RMA. Objectives
play a critical role in identifying LUP management actions and allowable uses and set the
stage for subsequent implementation planning. They should be practical and geared
toward achieving a benefit for the visitor or the resource. All objectives must use SMART

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objective principles: specific, measurable, achievable, results oriented, and time bound.
a. Writing SRMA Objectives. Outcome-focused recreation objectives for a SRMA and
for RMZs within a SRMA identify the specific outcomes (experiences and benefits) to
be produced or realized and recreation activities to be emphasized. Objectives portray
the link between activities, experiences, and benefits. Determine the targeted activities,
experiences, and benefits by using recreation data collected earlier in the planning
process (see Chapter 1H) or by involving stakeholder groups. See Figure 15 for an
example of a SRMA objective. When developing SRMA objectives, use the Special
Recreation Management Area Template (see Appendix 4).
(1) Activities. When determining activities, consider:
Their compatibility and sustainability over the life of the plan, while recognizing
resource, social, and political constraints.
Their compatibility with other activities. Activities that are not compatible with
the targeted activities may need to be constrained or eliminated.
(2) Experiences. Once the activities are determined, the land use planning process
focuses on identifying and retaining the links between activities, experiences, and
benefits. Participation in targeted activities leads to multiple experiences. When
identifying the experiences:
Target the most important experiences.
Use the Experience and Benefit Checklist (Appendix 2) as a guide to consistently
describe comparable experiences.
Use language that denotes the desirability or satisfying nature of the experience
(e.g., enjoying, learning).
(3) Benefits. Experiences lead to multiple personal, social, environmental, and
economic benefits. When identifying the benefits:
Ensure the targeted experiences can produce the targeted benefits.
Distinguish between onsite and offsite benefits.
Use active verbs (e.g., reduce, improve, restore) to describe the beneficial
condition to be maintained or improved.

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Figure 15 – Example of a SRMA Objective
Within the Black Mountain SRMA, by the year 2015 and thereafter, participants in recreation
assessments will report an average 4.0 realization of the targeted experiences and benefits (4.0 on a
probability scale, where 1.0 equals not realized and 5 equals totally realized).
Activities
Experiences
Benefits
Personal:
Mountain
Releasing or reducing mental
Improved physical fitness/better health
Biking
tension
maintenance
Camping
Enjoying frequent access to
Restored mind from stress/tension/anxiety
outdoor physical activity
Improved outdoor recreation skills
Developing skills and abilities
Living a more outdoor-oriented lifestyle
For the challenge or sport
Improved balance of work and play
Community/Social:
Lifestyle improvement or maintenance
Environmental:
Preserve the special landscape character of this
place
Economic:
Greater value-added local services
Increased desirability as a place to live or retire

(4) After writing the objective, put yourself in the position of the participant and ask
whether or not you could personally receive the determined benefits from
recreating in the area. Well-written objectives require an affirmative answer to
this question. If uncertain, verify the links between the identified activities,
experiences, and benefits with individual users and stakeholders.
One benefit of writing objectives in this format is that the activities, experiences,
and benefits are used to monitor the realization of the outcomes and achievement
of the SRMA objective. The monitoring process is described in detail in Chapter 4
of this handbook.
b. Writing ERMA Objectives. Objectives for an ERMA and for RMZs within an
ERMA define the recreation activities and associated qualities and conditions that will
become the management focus for R&VS. ERMA objectives portray the link between
the principal recreation activities and particular RSCs. Use recreation data collected
earlier in the planning process (see Chapter 1H) to assist in the determination of
desired recreation activities and the particular RSCs that are important to maintain.
Because R&VS are managed commensurate with other resources and resource uses,
managers must recognize the constraints imposed by other management priorities. See
Figure 16 for examples of ERMA objectives. When developing ERMA objectives, use
the Extensive Recreation Management Area Template in Appendix 5.

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Figure 16 – Examples of ERMA Objectives
Example 1. Through the life of the land use plan, the Swampy Lake ERMA offers visitors the
opportunity to participate in primitive and unconfined recreation activities where the existing natural
and physical character of the landscape is modified only by primitive trail developments.
Example 2. The Cedar Mountain ERMA offers mountain bikers the opportunity to participate in
challenging, close-to-home, single-track trail riding in a partially modified physical recreation
setting with predominantly nonmotorized public use.

c. Writing Objectives for Undesignated Lands. Recreation is not emphasized outside
RMAs. However, recreation activities occurring outside designated RMAs may
require management direction to address basic R&VS and resource stewardship needs.
In these situations, R&VS objectives are focused on resource protection, human health
and safety, and use/user conflicts. These types of objectives can also be applied to all
BLM lands within the planning area. See Figure 17 for examples of objectives outside
RMAs.
Figure 17 – Examples of Objectives for Resource Protection, Visitor Health and Safety,
and Use/User Conflict for Areas Outside a Recreation Management Area
Resource Protection Objective: Increase awareness, understanding, and a sense of stewardship
in recreation participants so their conduct safeguards cultural and natural resources as defined by
Standards for Public Land Health in Colorado or area-specific (e.g., areas of critical
environmental concern, wild and scenic rivers, etc.) objectives.
Visitor Health and Safety Objective: Ensure that visitors are not exposed to unhealthy or
unsafe human-created conditions (defined by a repeat incident in the same year, of the same type,
in the same location, due to the same cause).
Use/User Conflict Objective: Manage the recreation and visitor services program to achieve a
minimum level of conflict to: 1) allow other resources/programs to achieve their resource
management plan objectives, 2) curb illegal trespass and property damage, and 3) maintain a
diversity of recreation activity participation.

B. Identifying the Desired Recreation Setting Characteristics.
After creating an RMA objective, identify and describe the desired RSCs, which are the desired
conditions of the recreation settings that are expected to result if objectives are achieved and
LUP and implementation decisions are executed. Desired RSCs are used to help determine the

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LUP-level management actions and allowable use decisions necessary to support the recreation
objective.
Determine the RSCs that portray the conditions necessary to achieve the RMA objective. The
relationship between objectives and RSCs may be simple and direct or complex and indirect. Use
the existing RSC inventory (see Figure 9) to determine what setting changes need to be made to
achieve the RMA objective. The RSCs must be logically related (e.g., cause and effect) to attain
the targeted recreation opportunities. Determining the logical connections between RSCs and
activities and outcomes requires understanding visitor preferences for the RMA as previously
discussed in Chapter 1H.
Some activities and outcomes depend on the physical, social, and operational RSCs in different
ways. Therefore, it is important to consider the physical, social, and operational components and
their characteristics individually because the existing RSCs may be different than the desired
RSCs. Some activities and outcomes depend on the maintenance of physical RSCs, such as the
remoteness of the area, the naturalness of the area, or the type/amount of recreation facilities.
Other activities and outcomes depend more on the social RSCs, such as the amount of encounters
with others, the group size, or the evidence of other users. Still other activities and outcomes are
dependent on the operational characteristics, including the presence or absence of access (types
of travel allowed), the level of visitor and information services, or management controls.
1. Describing Desired Recreation Setting Characteristics in a Narrative. At a minimum,
the LUP must describe the desired physical, social, and operational RSCs for RMAs in a
narrative format (see Figure 18 for an example). The desired conditions must be realistic,
achievable, sustainable, and, at a minimum, qualitatively measureable.

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Figure 18 –Narrative Format Example Describing Desired RSCs for a SRMA
Desired Physical RSCs for Pine Ridge SRMA
Remoteness: Retain current remoteness along main motorized travel corridors, but create areas
specifically for mountain biking use only on the east and west sides of the SRMA.
Naturalness: The existing natural landscape is mostly retained. New, nonrecreational modifications
(e.g., rights-of-way, fences, ponds) are consistent with the landscape character in the particular portion
of the SRMA.
Visitor Facilities: Simple/basic recreation developments (e.g., parking lot, kiosk, and restroom) are at
access points along County Road 836. Well-maintained and marked trails are within the SRMA.

Desired Social RSCs for Pine Ridge SRMA
Contacts (avg.): Participants encounter a seasonal average of up to 15 encounters per day along
mountain bike trails and encounter higher levels of visitor contact in motorized travel areas and along
County Road 836 on the south side of the SRMA.
Group Size (avg.): Participants encounter a seasonal average of up to 12 people per group in
foot/horse areas.
Evidence of Use: Sounds of other people are occasionally heard outside the trailhead area. A few small
localized areas of vegetation alteration and compacted/bare soils are acceptable near the trailhead and
at campsites. Impacts from inappropriate recreation use are rehabilitated.

Desired Operational RSCs for Pine Ridge SRMA
Access: Motorized public recreational access is reduced, creating areas specifically for mountain bike
use. However, administrative use is permitted throughout the SRMA on designated routes.
Visitor Services/Information: Area brochures/maps assist visitors. Directional signs are installed on
routes. Staff are present on weekends to offer onsite visitor assistance mainly at trailheads.
Management Controls: Rules, regulations, and ethics are clearly posted at trailheads. A moderate
degree of visitor and land use controls are exercised.

2. Illustrating Desired Recreation Setting Characteristics in a Matrix. The existing and
desired RSCs can be illustrated within documents using an RSC matrix, which is useful in
public and staff discussions. The RSC matrix complements the RSC narrative for each
RMA. The matrix format is useful since some RSCs are difficult to map (e.g., group size,
evidence of use, visitor services, and management controls) and since it portrays
relationships between existing and desired RSCs. See Figure 19 for an example of a
matrix format showing existing and desired RSCs.

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Figure 19 – Matrix Format Example Depicting Existing and Desired RSCs for a SRMA

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3. Illustrating Desired Recreation Setting Characteristics on Maps. Maps can portray
both the desired and existing RSCs, and they can graphically support both the narrative
and matrix format along with supporting quantitative analysis. Maps for documents can
also illustrate where changes from the existing RSCs to the desired RSCs will occur based
on proposed and/or final management actions and allowable use decisions. See Figure 20
for an example of a map displaying desired RSCs.
Figure 20 – Map Format Example Displaying Desired Social RSCs

4. Monitoring Desired Recreation Setting Characteristics. Subsequently, the individual
RSCs can be used as recreation setting monitoring indicators. The desired classifications
become the recreation setting monitoring standards that describe the acceptable or
appropriate qualities and/or conditions within the RMA. Recreation setting indicators and
standards are not objectives but are desired qualities or conditions of the RMA used to
guide LUP-level decisions and implementation-level actions. See Figure 21, which

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highlights indicators (headings) and standards (descriptions). Also, see Chapter 4F,
Monitoring.
Figure 21 – Recreation Setting Monitoring Indicators and Standards
Remoteness: Within ½ mile of four-wheel drive vehicle, all-terrain vehicle, and motorcycle
routes (middle country classification).
Group Size (avg.): Year round average of 7-12 people per group (middle country
classification).
Access: Mountain bikes and perhaps other mechanized use, but all use is nonmotorized (back
country classification).
C. Interdisciplinary Land Use Plan-Level Management Actions and Allowable Use
Decisions.
After establishing objectives and identifying desired RSCs, identify management actions and
allowable uses for each alternative needed to achieve recreation goals and objectives.
Management actions and allowable use decisions are generally described as LUP-level decisions
needed to achieve program objectives or constrain noncompatible activities. Within the R&VS
program and other programs, supporting management actions and allowable uses are selected in
terms of their ability to help achieve the recreation objectives, maintain or enhance the recreation
settings, or guide recreation implementation.
For example, it may be necessary to limit access by uses (types and modes of travel) that have
the potential to impact the targeted recreation opportunity. Therefore, if the targeted activity is
mountain biking and the desired recreation setting is nonmotorized, then the travel designations
need to be revised accordingly to create the desired recreation setting. See Figure 22 for a more
detailed example.

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Figure 22 – Example of a Management Action Prescribed to Achieve the Desired
Operational Setting
EXISTING
OPERATIONAL RSC
The recreation
management area is
open to four-wheel
drive vehicles, allterrain vehicles, dirt
bikes, and
snowmobiles, in
addition to
nonmotorized,
mechanized use.

MANAGEMENT
ACTION
Establish
nonmotorized
travel designations
within the area.

DESIRED
OPERATIONAL RSC
All types and modes of
public travel are
nonmotorized.
Mountain bikes and
other mechanized use
is permitted.

1. Land Use Plan-Level Management Actions and Allowable Use Decisions for SRMAs.
Within SRMAs, R&VS management is recognized as the predominant LUP focus, where
specific recreation opportunities and RSCs are managed and protected on a long-term
basis. Therefore, it is necessary to establish a framework of management actions and
allowable use decisions to:
a. Facilitate the targeted recreation opportunities.
b. Maintain or enhance the desired physical, social, and operational RSCs.
c. Address visitor health and safety, resource protection, and use and user conflicts.
d. Address the type(s), activities, and locations where SRPs will or will not be issued.
e. Limit noncompatible recreation activities that are detrimental to meeting recreation or
other critical resource objectives.
f. Identify the terms, conditions, or special considerations for other resource programs
necessary to achieve SRMA objective(s).
2. Land Use Plan-Level Management Actions and Allowable Use Decisions for ERMAs.
ERMAs are managed to support and sustain the principal recreation activities and the
associated qualities and conditions. Since management of ERMAs is commensurate with
the management of other resources and resource uses, all R&VS decisions must be
compatible with other resource objectives. Therefore, it is necessary to establish a
framework of management actions and allowable use decisions to:

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a. Facilitate visitor participation in the principal outdoor recreation activities.
b. Maintain particular RSCs.
c. Address visitor health and safety, resource protection, and use and user conflicts.
d. Address the type(s), activities, and locations where SRPs will or will not be issued.
e. Identify the terms, conditions, or special considerations for other resource programs
necessary to achieve ERMA objective(s).
3. List of Management Action Decisions, Allowable Use Decisions, and Best
Management Practices to Maintain or Enhance RSCs. Illustration 4 lists possible LUPlevel management action decisions, LUP-level allowable use decisions, and best
management practices that can be proposed and implemented to help achieve recreation
objectives through maintaining or enhancing the desired physical, social, and operational
RSCs of the RMA.
D. Making Land Use Plan and Implementation Decisions in the Same Planning Effort.
1. The focal point of the land use planning process is making interdisciplinary LUPlevel decisions. However, it may also be advantageous to resolve implementation-level
R&VS issues through the land use planning process. Including implementation decisions
in the LUP may be an efficient approach for LUPs covering relatively small geographic
areas or where a number of activity-level (implementation) projects are being addressed
simultaneously.
a. Level of Analysis. When a single NEPA process is being used to make both LUP
and implementation decisions, implementation decisions must have site-specific
NEPA analysis that is more detailed than the NEPA analysis used for LUP-level
decisions. This is because the LUP represents the BLM’s final approval and decision
to proceed with the implementation action. Any changes to the decision would require
subsequent NEPA analysis.
b. Administrative Remedies. Making implementation decisions part of the land use
planning process and analyzing them concurrently with LUP decisions does not
change their administrative remedies or the timing of those remedies. Implementation
decisions that are part of the land use planning process should be clearly distinguished
as implementation decisions that are not protestable but subject to the appeals process
(i.e., appealable to the Interior Board of Land Appeals under 43 CFR 4.410) or other
administrative review as prescribed by the specific resource program regulations.
2. Best Management Practices. Best management practices, such as visitor services actions,

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can also be presented in the LUP. Best management practices are a suite of techniques that
guide, or may be applied to, management actions to aid in achieving desired outcomes.
Best management practices are often developed in conjunction with LUPs, but they are
not considered a LUP decision unless the LUP specifies that they are mandatory. They
may be updated or modified without a plan amendment if they are not mandatory.
3. Addressing Recreation-Related Issues. LUP-level decisions and implementation-level
decisions can result in direct or indirect actions.
a. Indirect Actions. These actions are more lighthanded and subtle, designed to
influence or modify visitor behavior and land uses, and retain the visitor’s freedom to
choose. These actions have a smaller degree of control of recreation use and other
programs. Most, but not all, indirect actions are considered implementation actions or
best management practices.
(1) Examples of indirect actions within the R&VS program include:
Promote Leave-No-Trace camping ethics.
Recommend group sizes.
Provide self-registration stations for areas or trails.
Promote safe-shooting ethics.
Advertise specific attributes of an area or underused areas.
(2) Examples of indirect actions within other programs include:
Voluntary seasonal trail closures/restrictions.
Post travel management guidelines regarding user conflicts.
Develop livestock waters and salt away from high-use recreation areas.
Develop best management practices for surface-disturbing activities.
Develop conditions of approval to protect recreation values under mineral
material regulations.
Identify right-of-way avoidance areas with special terms or conditions.
b. Direct Actions. These actions are more heavyhanded and overt, designed to control
visitor behavior and land uses, and restrict the choices of visitors. These actions have a
larger degree of control of recreation use and other programs. Most, but not all, direct
actions are considered LUP management actions or allowable use decisions.
(1) Examples of direct actions within the R&VS program include:
Require recreation use permits.
Require reservations.
Zone incompatible uses spatially.
Limit use to access points only.

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Limit size of groups, number of horses, vehicles, etc.
Limit camping to designated sites.
Limit length of stay.
Restrict recreation activities such as target shooting, hunting, or fishing.
(2) Examples of direct actions within other programs include:
Close an area or trail to motorized use.
Date specific trail/area closures.
Close the area to livestock grazing.
Apply a no surface occupancy stipulation for surface-disturbing activities.
Close areas to mineral material sale (disposal).
Identify right-of-way exclusion areas.
c. Typically, LUPs contain a complementary mix of direct and indirect actions.
Evaluate the application of indirect versus direct recreation actions because the
operational RSCs created by each approach affect the visitor’s experience. Consider
the following when evaluating the type of action(s) to propose:
(1) The amount of change or control that is needed to manage recreation use.
(2) The effectiveness of helping to achieve the recreation objective and RSCs.
(3) Staffing and management costs.
(4) Public support of recreation decisions.
d. Application to Adaptive Management. The LUP should establish criteria
that will guide subsequent site-specific use decisions (see BLM Handbook H-1601-1,
“Land Use Planning,” Chapter 2, Section B2) by establishing monitoring standards
and indicators for adaptive recreation management strategies. For example, an
adaptive recreation management strategy could apply indirect types of actions with the
understanding that if RMA standards and indicators are not being achieved, more
direct types of decisions/actions would then be implemented.

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CHAPTER III – LAND USE PLANNING PROCESS
A. Public Laws and Presidential Proclamations.
The LUP must conform to applicable laws and other legislative or proclamation requirements.
For example, a national monument is established under a Public Law or Presidential
proclamation. The LUP covering this area must conform to requirements set forth in the law or
proclamation and any additional legislative requirements provided in the committee reports.
Review the applicable legislation and associated reports of an area to ensure that the LUP
decisions comply with all legislative requirements.
B. Creating a Range of Alternatives.
The phrase "range of alternatives" refers to different management scenarios analyzed through the
NEPA process. Planning regulations (43 CFR Part 1610.4-5) require developing a "range of
reasonable resource management alternatives,” which must include a no action alternative (i.e.,
the continuation of current management). A range of alternatives offers different responses to
both the major issues identified in scoping and the management opportunities addressed in the
analysis of the management situation. Developing alternatives may involve the collaboration of
cooperating agencies and resource advisory councils.
1. The No Action Alternative. The no action alternative proposes the continuation of
current management. The no action alternative is usually a viable alternative. However, it
may not respond to the purpose and need of the planning process (e.g., new legislation).
Regardless, it provides a useful baseline to compare the effects of implementing the action
alternatives. For externally generated proposals, the no action alternative means to reject
the proposal. For internally generated implementation actions, the no action alternative
means not to take the action.
2. Descriptions of Alternatives (or Alternative Themes). When R&VS are determined to
be a key issue, recreation program staff should provide input in the general narrative
description for each alternative. While preparing a narrative description, it may be
beneficial to diagram a range or variation of possible alternatives (see Figure 23). For the
no action alternative narrative, describe the existing R&VS direction, which may be taken
from the analysis of the management situation. For “action” alternatives, describe the
proposed R&VS program emphasis.

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Figure 23 – Diagram Showing a Range of Alternatives for Recreation and Visitor Services
Recreation and Visitor Services
How will recreation be managed and what recreation opportunities will be offered?
No Action Alternative
Action Alternative
Action Alternative
Action Alternative
No Change
Conservation
Mixed Emphasis
Resource Use and
from Existing Plans
Emphasis
Development
Emphasis
Recreation management
and administration will
be directed by decisions
in the existing LUP, LUP
amendments, and
RAMPs. Recreation
management will
generally emphasize the
continued availability of
dispersed and
unstructured outdoor
recreation
opportunities,
interpretation, and
visitor health and safety.

Recreation
opportunities will be
emphasized that are in
concert with sustaining
the biological integrity
of habitats for plant,
wildlife, and fish
species. In ecologically
sensitive areas,
recreation use will be
limited. R&VS
management will be
recognized as the
predominant land use
focus in few areas.

Strategically emphasize
a variety of recreation
opportunities along with
the protection of
natural and cultural
resources. R&VS
management will be
recognized as the
predominant land use
focus where the existing
or proposed recreation
opportunities and RSCs
are recognized for their
unique value and
distinctiveness or where
R&VS require specific
management
consideration in order
to address recreation
use/investments.

Emphasize managing
BLM lands for a variety
of structured and
dispersed recreational
opportunities in a
manner favorable to
accommodate the
maximum amount of
recreation use in
combination with other
BLM land uses in order
to produce social and
economic benefits.
R&VS management will
be recognized as the
predominant land use
focus in many areas.

C. Alternative Development.
Each alternative includes a different suite of potential planning decisions (e.g., desired outcomes,
management actions, allowable uses). However, individual R&VS decisions may be common to
multiple or even all alternatives. All proposed LUP decisions within each alternative must be
compatible, but may vary across alternatives. See BLM Handbook H-1601-1, “Land Use
Planning,” and BLM Handbook H-1790-1, “National Environmental Policy Act,” for more
information on alternative development.
1. R&VS LUP decisions must:
a. Designate RMAs and their boundaries.
b. Establish RMA objectives (e.g., targeted activities, experiences, or benefits).
c. Identify LUP-level supporting management actions and allowable uses for each RMA.

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2. Varying the number, type, size, and management of RMAs has the greatest impact on the
range of alternatives. The same area can be proposed as a SRMA in one alternative, an
ERMA in another alternative, and an undesignated area in a third alternative. Alternatives
may also vary by changing the RMA objective or changing supporting management
actions and allowable uses. An example of alternatives in which the number and types of
RMAs vary can be found in Figure 24.
Figure 24 – Example of Varying Alternatives by Number and Type
of Recreation Management Area
No Action Alternative

Alternative A

Alternative B

Alternative C

Continue to manage the
seven existing SRMAs:
Black Mtn. (# acres)
Calf Gulch (# acres)
Shallow Creek (#
acres)
Granite Hills (# acres)
Trout Lake (# acres)
Blue Hill (# acres)
Whymee River (#
acres)

Designate six SRMAs:
Black Mtn. (# acres)
Trout Lake (# acres)
Queen Mtn. (# acres)
Blue Hill (# acres)
Crow’s Nest (# acres)
Whymee River (#
acres)

Designate two SRMAs:
Blue Hill (# acres)
Whymee River (#
acres)

Designate seven SRMAs:
Black Mtn. (# acres)
Fish Creek (# acres)
Whiskey River (#
acres)
Blue Hill (# acres)
Crow’s Nest (# acres)
Tom’s Creek (# acres)
Whymee River (#
acres)

Manage the remaining
BLM lands as part of the
Cisco Field Office
ERMA.

Designate six ERMAs:
Hawk River (# acres)
Fish Creek (# acres)
Whiskey River (#
acres)
Old Castle (# acres)
Dirt Mesa (# acres)
Tom’s Creek (# acres)

Designate nine ERMAs:
Same areas as
Alternative A, plus the
following:
Trout Lake (# acres)
Queen Mtn. (# acres)
Crow’s Nest (# acres)

Designate five ERMAs:
Hawk River (# acres)
Trout Lake (# acres)
Queen Mtn. (# acres)
Old Castle (# acres)
Dirt Mesa (# acres)

3. An example of varying supporting management actions and allowable uses can be found
in Figure 25. In this example, the camping closures are common across all four
alternatives. Camping limits are common to all action alternatives (Alternatives A, B, and
C). Land use stipulations vary across the alternatives from no stipulations on surface use,
to controlled surface use, to no surface occupancy.

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Figure 25 – Example of Varying Supporting Management Actions and Allowable Uses
No Action

Alternative A

Alternative B

Alternative C

Camping Closures. Close BLM lands within ¼ mile of Dead Fish Creek, Tom’s Creek, Hawk River,
and Trout Lake to camping and overnight use outside designated campsites and developed
campgrounds.
Camping Limits.
None.

Camping Limits. In areas open to camping and overnight use, implement a 14day camping limit on BLM lands from September 1 to March 31. From April 1
to August 31, implement a 7-day camping limit. Campers must relocate at least
a 30-mile radius away and may not return within 30 days to a previous
campsite.

Land Use
Stipulation. None.

Land Use Stipulation.
Apply a controlled
surface use stipulation—
moderate constraint—on
surface occupancy and
surface-disturbing
activities in the
following recreation
management areas:
Black Mountain
Trout Lake
Queen Mountain
Blue Hill
Crow’s Nest
Upper Wyoming River
Hawk River
Dead Fish Creek

Land Use Stipulation.
Apply a controlled
surface use stipulation—
moderate constraint—on
surface occupancy and
surface-disturbing
activities in the
following recreation
management areas:
Blue Hill
Upper Wyoming River
Hawk River
Dead Fish Creek
Whiskey River
Old Castle
Dirt Mesa

Land Use Stipulation.
Apply a no surface
occupancy stipulation—
major constraint—on
surface occupancy and
surface-disturbing
activities in the
following recreation
management areas:
Black Mountain
Dead Fish Creek
Whiskey River
Blue Hill
Crow’s Nest
Tom’s Creek
Upper Wyoming River

D. Alternatives Considered but Eliminated from Detailed Analysis.
As alternatives are considered, some will be developed for detailed analysis, while others will be
considered but not analyzed in detail and eliminated from detailed analysis. If an alternative is
considered during the environmental impact statement (EIS) process but is not analyzed in detail,
briefly explain why it was eliminated from detailed analysis (40 CFR 1502.14). Rationale must
be provided for any R&VS alternative or proposal that was considered but eliminated from
detailed analysis. Rationale for eliminating alternatives from detailed analysis includes:
1. Ineffective response to the purpose and need.
2. Not technically or economically feasible (consider whether implementation of the
alternative is likely given past and current practice and technology; this does not require
cost-benefit analysis or speculation about an applicant’s costs and profits).
3. Inconsistent with the basic policy objectives for the management of the area, such as not

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in conformance with the LUP.
4. Implementation is remote or speculative.
5. Substantially similar in design to an alternative that is analyzed.
6. Substantially similar effects to an alternative that is analyzed.
E. Affected Environment Description.
Describing the affected environment provides the basis for identifying and interpreting potential
impacts. Discuss the existing management, conditions, issues, and trends. Be concise and limit
the description to what is needed to understand the issues, environmental consequences, and
goals and objectives. Most of this information will come from the analysis of the management
situation. Within this section:
1. Describe the present condition of the affected resources within the identified geographic
scope, and provide a baseline for the cumulative effects analysis.
2. Describe applicable supply and demand information (e.g., user preferences; demand for
particular recreation activities, recreation settings, experiences or benefits).
3. Describe the physical, social, and operational RSC conditions.
4. Explain pertinent recreation management, administration, information, and monitoring
direction (e.g., type, volume, and location of recreation use; recreation management plans;
existing closures and restrictions; existing infrastructure; types and volume of SRPs; fee
program; tourism; and partnerships).
F. Effects Analysis.
NOTE: Use the information in this section in conjunction with BLM Handbook H-1790-1,
“National Environmental Policy Act,” and the “BLM NEPA Web Guide.”
The effects analysis predicts the degree to which a resource or resource use will be affected by
the proposed actions of each alternative. The analysis is conducted to help decisionmakers and
the public understand how a resource will be affected. Once a range of alternatives have been
identified, BLM Handbook H-1601-1, “Land Use Planning,” requires the analysis of the effects
(social, economic, and environmental impacts) of the alternatives. The effects analysis must
demonstrate that the BLM took a “hard look” at the impacts of the action and/or alternatives. A
“hard look” is defined as a reasoned analysis containing quantitative or detailed qualitative
information. The level of detail must be sufficient to support reasoned conclusions by comparing
the amount and the degree of change (impact) caused by the proposed action and alternatives.
Data and analyses must be commensurate with the importance of the impact; less important
material may be summarized, consolidated, or simply referenced.

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G. Defining Environmental Effects.
1. Describe the Analytical Assumptions and Methodology for the Effects Analysis.
a. Assumptions. The effects analysis should state the analytical assumptions, including
the geographic and temporal scope of the analysis (which may vary by issue), the
baseline for analysis, as well as the reasonably foreseeable future actions. When
information and/or data critical to the analysis are incomplete or unavailable, it must
be explained in this section.
The following paragraph is an example of an analytical assumption:
The Cisco Field Office visitor study and public comments indicated that an important
contribution to the realization of desired recreation experiences is retaining the current
naturalness of BLM lands, along with maintaining the existing degree of remoteness
and access. These RSCs are considered to have a determinative effect on activity
participation and the realization of recreation outcomes in all alternatives.
b. Methodology. The effects analysis must describe the analytical methodology
sufficiently so that the reader can understand how the analysis was conducted and why
the particular methodology was used (40 CFR 1502.24). This explanation must include
a description of any limitations inherent in the methodology. If there is substantial
dispute over models, methodology, or data, recognize the opposing viewpoint(s) and
explain the rationale for the chosen method of analysis. Discussions of methodology
may be placed in the text or in the appendix of the document. To the extent possible,
the analysis of impacts should be quantified.
The following is an example of analytical methodology:
SRMAs were previously identified where BLM lands were experiencing heavy
recreation use or where the BLM planned to make large investments in staff, funding,
facilities, or time. All remaining BLM lands were identified as part of a large
nonspecific ERMA called the Cisco Field Office ERMA and custodially managed.
The no action alternative proposes to continue the management direction set forth in
existing documents, resulting in the current prevailing RSCs and trends. In contrast to
the no action alternative, the designation and management direction for alternatives B,
C, and D apply BLM Instruction Memorandum No. 2011-004 and BLM Manual 8320,
“Planning for Recreation and Visitor Services,” which clarifies and refines land use
planning guidance for R&VS. The recreation planning decision guidance establishes
three potential classifications for R&VS—SRMAs, ERMAs, and undesignated lands
with revised definitions, management focuses, and requirements.
H. Analyzing Environmental Effects.
Effects analysis predicts the degree to which the resource/resource use will be affected. Data
incorporated into the affected environment and alternatives provides the basis for identifying and

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interpreting potential impacts. Impact analysis should be concise, clear, and to the point so it is
easily understood. Descriptions of the affected environment must be no longer than is necessary
to understand impacts of the alternatives. The data and analyses statement must be
commensurate with the importance of the impact; less important material may be summarized,
consolidated, or simply referenced (40 CFR 1502.15). Proposed land use and resource decisions
deemed to have no or only negligible impacts to R&VS under any alternative may not require
detailed analysis.
The R&VS impact analysis has several dimensions. The analysis must address the direct,
indirect, and cumulative effects of the proposed decisions in each alternative. Analysis must
include:
1. Impacts of other proposed resources/resource uses on existing and proposed recreation
opportunities.
2. Impacts of the proposed recreation alternatives on the existing recreation opportunities.
I. Direct, Indirect, and Cumulative Effects Analyses.
Environmental assessments and EISs must analyze and describe the direct and indirect effects of
the LUP alternatives. The value of analyzing both direct and indirect effects is to make certain
that no effects are overlooked. When uncertain which effects are direct and which are indirect, it
is helpful to describe the effects together. Both direct and indirect effects are weighted the same;
do not consider an indirect effect less important than a direct effect in the analysis. The analysis
should: (1) provide a comparative summary of the direct and indirect effects to R&VS
associated with each alternative, (2) explain the effects that are not known but are "reasonably
foreseeable," and (3) provide a sufficient analysis to support all conclusions.
1. Direct and Indirect Impacts.
a. Direct Impacts. Direct impacts are impacts caused directly by the proposed action and
are the easiest and most certain to predict because they occur at the same time and
place as the proposed action. Address impacts in terms of context, intensity, duration,
and timing.
(1) Long-Term Direct Impacts. Long-term direct impacts occur after the proposed
action(s) has been completed and/or as the action is in operation. For example:
Issue: Anticipating the demand for transmission corridors, the draft LUP
proposes a specific corridor for future transmission lines that will bisect the Blue
River Valley SRMA.
Long-Term Direct Effects Analysis: The transmission line will substantially and
permanently change the desired physical qualities of the landscape, which
contributes to the quality of the recreation opportunities and the attainment of the
recreation objectives. Currently, that portion of the SRMA is a naturally

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appearing landscape with a few land use modifications that are in harmony with
the surroundings and not visually obvious (e.g., stock ponds, trails). Authorizing
the transmission line will impact the physical RSCs of remoteness and naturalness
through road construction, placement of power poles, and stringing of
transmission lines. The result will be a physical RSC change of 6,000 acres (onethird of the SRMA) from a back country classification to a front country
classification, as opposed to the no action alternative, which will maintain the
current physical RSCs of remoteness and naturalness.
(2) Short-Term Direct Impacts. Short-term direct impacts are likely impacts that
will occur from proposed action(s) but will not be long lasting. Usually, shortterm impacts are caused during construction and/or implementation of a selected
alternative. For example:
Short-Term Direct Effects Analysis: To protect visitor health and safety and
reduce interference with construction activities, recreation activities will be
disrupted or excluded from portions of the project area during construction of the
transmission line and roads.
b. Indirect or Secondary Impacts. Indirect or secondary impacts are reasonably
foreseeable effects caused by the proposed action that occur at a different time or
place. For example:
Indirect Effects Analysis: Maintaining local tourism revenue for communities in the
Blue River Valley was the rationale for designating the Blue River Valley SRMA. The
recreation tourism attraction for visitors to the SRMA is the ability to recreate in a
scenic, naturally appearing landscape during the day and to enjoy the nearby
community amenities afterward. A substantial change in the naturally appearing
physical RSCs of the SRMA by a large transmission line and road construction will
likely reduce visitation and indirectly impact local recreation-based tourism and
revenue that supports community businesses and amenities in the Blue River Valley.
2. Cumulative Impacts. Cumulative impacts are the aggregate impacts that result from the
incremental impact of the proposed action added to other past, present, and reasonable
foreseeable future actions, regardless of what agency or person undertakes such other
actions. Cumulative impacts can result from individually minor, but collectively
significant, actions occurring over an extended period.
Address the cumulative impact of each alternative, and, if feasible, draw a conclusion
about each alternative and compare the conclusions against each other. Do not simply
restate the direct and indirect impacts of the alternatives. If the proposed action and
alternatives will have no direct or indirect effects on a resource, cumulative effects on that
resource do not need to be analyzed.

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The analysis must consider other BLM actions, other federal actions, and nonfederal
(including private) actions (40 CFR 1508.7) that are not part of the proposed set of
alternatives. Including assumptions about possible future actions may increase the
longevity of the document and expand its value for subsequent tiering to implementationlevel planning.
It is recommended that you describe the geographic scope and the timeframe for each
cumulative effects issue. The geographic scope will often be different for each cumulative
effects issue. The geographic scope of cumulative effects will often extend beyond the
scope of the direct effects, but not beyond the scope of the direct and indirect effects of the
proposed action and alternatives. Timeframes, like geographic scope, can vary by
resource. Base these timeframes on the duration of the direct and indirect effects of the
proposed action and alternatives, rather than the duration of the action itself.
See the “BLM NEPA Web Guide” for more information on cumulative effects analysis.
J. Qualitative and Quantitative Analysis.
The impact analysis must qualitatively discuss and also, to the degree feasible, quantitatively
estimate the consequences of proposed decisions on R&VS. The type and quality of existing data
determines if impacts can be analyzed qualitatively and/or quantitatively. Where possible,
quantify both beneficial and detrimental impacts of each alternative to support conclusions. In
the absence of quantitative data, use professional judgment to qualitatively analyze the impacts
of each alternative. Figure 26 provides an indepth example of qualitative and quantitative
analysis of a proposed action on a SRMA.

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Figure 26 – Example Illustrating the Differences between
Qualitative and Quantitative Analysis
Qualitative Analysis

Quantitative Analysis

The targeted recreation activities within the
Aloha Springs Mountain SRMA are hunting,
fishing, camping, and hiking. They will be
negatively impacted by Alternative B due to
increase in noise and access points, which
most likely will displace the targeted users.

Based on 2010 Recreation Management
Information System data, the Aloha Springs
Mountain SRMA received an estimated
17,500 visitors, and a visitor study conducted
by the University of Idaho in 2009 indicated
that 64% of visitors participated in hunting,
48% participated in fishing, 37% participated
in camping, and 29% participated in hiking
activities. Comments received related to
Alternative B indicate that approximately 50%
of users will choose to not use the area if
motorized use is allowed to increase.

RSC

Increased motor vehicle access, as proposed
by Alternative B, will cause the physical
RSCs of naturalness and remoteness to
change over time from the existing back
country classification to front country.

Increased motor vehicle access, as proposed
by Alternative B, will convert 6,000 acres of
back country physical recreation setting
classification to front country.

Outcome

Alternative B will negatively impact the
Aloha Springs Mountain SRMA by
displacing the targeted recreation
opportunities that emphasize physical
exercise and development of outdoor skills
and abilities leading to personal, community,
and economic benefits, such as improved
physical fitness/ better health maintenance,
lifestyle improvement or maintenance, and
increased desirability as a place to live or
retire.

Participants in visitor assessments in the Aloha
Springs Mountain SRMA report an average
4.5 realization of the targeted experiences and
a 4.3 realization of the targeted personal,
community, and economic benefits (on a
probability scale where 1 equals not realized
and 5 equals totally realized). Therefore,
changing the physical recreating class and
displacing users will affect the BLM’s ability
to meet the Aloha Springs SRMA objective.

Commercial special recreation permitees are
currently operating for upland hunting. The
proposed action of opening the area to
motorized vehicles in Alternative B will
negatively impact special recreation
permitees that offer backcountry hunting
opportunities and associated experiences.

In the Aloha Springs Mountain SRMA, the
BLM authorizes 8 commercial upland hunting
special recreation permitees, averaging 480
visitor use days. This accounts for 15% of the
overall visitor use in the SRMA. Comments
received from permitees indicate concerns that
the proposed action will negatively influence
their ability to offer clients a quality
backcountry hunting experience.

Use/Activity

SRPs

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1. Sequential Steps to Analyze Impacts. Use the following sequential steps to analyze and
describe the type and nature of the impacts. While this process is somewhat repetitive, this
method ensures accuracy, uniformity, and consistency in describing the impacts and their
cause(s).
a. Summarize the factors/elements that will cause the impact. For example: This will
designate 2,500 acres to off-highway vehicle use.
b. Describe the impact qualitatively, including appropriate linkages and consequences of
the action. For example: Designating off-highway vehicle routes typically improves
vegetation condition outside the routes by eliminating vegetation crushing caused by
vehicles.
c. Quantify the level of impact (severity) using the appropriate indicator. For example:
This will protect 1,000 acres of sagebrush steppe and 1,500 acres of salt desert shrub
habitat.
d. Describe the context of the impact in relation to the existing condition described in the
affected environment, using the appropriate indicator. For example: These 2,500 acres
represent 30 percent of the available sagebrush steppe and salt desert shrub habitat in
the study area.
e. Compare impacts in the action alternatives to the impacts in the no action alternative
and the other action alternatives. For example: This will protect 500 more acres of
sagebrush steppe and 1,000 more acres of salt desert shrub than the no action
alternative.
f.

Incorporate the big picture. In other words, provide the analytical conclusion
interpreting the results, especially when you are unable to quantify the data. For
example: Therefore, this will maintain the connectivity between seasonal habitats for
mule deer.

K. Quantitative Analysis of Recreation Setting Characteristics.
It may be necessary to quantitatively analyze the broad-scale impacts of LUP alternatives on
RSCs. Figures 27 and 28 display the impacts of two LUP alternatives on the physical RSC of
remoteness across a planning area.

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Figure 27 – Example of Maps Displaying the Differences between Alternatives A and B for
the RSC of Remoteness in a Planning Area

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Figure 28 – Example of a Table Displaying the Differences in Acres for the RSC of
Remoteness between Alternatives A and B in a Planning Area

Primitive
Alt A
Alt B

65,731
104,739

RSC Classification - Remoteness
Back
Middle
Front
Rural
Country
Country
Country
15,854
132,808
208,602
53,634
15,729
93,926
208,602
53,634

Urban
28,885
28,885

L. Specific Effects Analysis Considerations for Recreation and Visitor Services.
For each alternative, analyze the effects (including beneficial effects) of proposed R&VS
program decisions and the effects of proposed decisions by other programs on R&VS.
Considerations for the R&VS analysis should be built around planning decision guidance found
in BLM Handbook H-1601-1, “Land Use Planning,” Appendix C, page 15. Considerations and
examples of effects analysis for R&VS are provided in Illustration 5.
1. Analyzing the Effects of the No Action Alternative. Analyzing and quantifying the
existing conditions of the affected resources within the identified geographic scope
provides a baseline for impacts analysis. For the no action alternative, describe the
consequences as if there were no change in existing management (implementation actions,
settings, or outcomes). This analysis should identify any actions that, if continued, are not
in compliance with existing laws, regulations, and policy. Continuing to manage every
BLM acre as either a SRMA or ERMA is no longer required. For an example, see
Illustration 5.
2. Effects Analysis Considerations for SRMAs. The effects analysis should recognize that
SRMAs are designations where the existing or proposed recreation opportunities and
RSCs are acknowledged for their unique value, importance, and/or distinctiveness,
especially as compared to other areas used for recreation. SRMAs are managed to protect
and enhance a targeted set of activities, experiences, benefits, and desired RSCs. Within
SRMAs, R&VS management is recognized as the predominant LUP focus, where specific
recreation opportunities and RSCs are managed and protected on a long-term basis. For
examples of effects analysis considerations regarding SRMAs, see Illustration 5.
3. Effects Analysis Considerations for ERMAs. The effects analysis should recognize that
ERMAs are administrative units that require specific management consideration in order
to address recreation use, demand, or R&VS program investments. ERMAs are managed
to support and sustain principal recreation activities and associated qualities and
conditions. Management of ERMAs is commensurate with the management of other
resources and resource uses. For examples of effects analysis considerations regarding
ERMAs, see Illustration 5.

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4. Effects Analysis Considerations for Lands Not Designated as a Recreation
Management Area. The effects analysis should recognize that public lands not
designated as RMAs are managed to meet basic R&VS and resource stewardship needs.
Although recreation is not emphasized, recreation activities may occur. Recreation uses
that are not in conflict with the primary uses of these lands are allowed. The R&VS
program adaptively implements actions as necessary to address basic R&VS and resource
stewardship needs. For an example of an effects analysis consideration for land not
designated as an RMA, see Illustration 5.
M. Development of the Preferred Alternative.
By evaluating the alternatives in the EIS, the BLM must determine which combination of
potential planning decisions contained in the alternatives best meets the multiple-use and
sustained yield principles of Section 103(c) of FLPMA (43 U.S.C. 1702(c)). In the judgment of
management, the preferred alternative best resolves the planning issues and promotes balanced
multiple use.
N. Publish the Draft Resource Management Plan/Environmental Impact Statement, and
Provide a Public Comment Period.
The draft resource management plan (RMP)/EIS describes the purpose and need for the LUP, the
affected environment, the alternatives for managing public lands within the planning area
(including the preferred alternative), the environmental impacts of those alternatives, and the
consultation and coordination in which the BLM engaged in developing the plan. The BLM must
provide at least 90 days for the public to comment on the draft RMP (amendment) and draft EIS.
This public comment period officially starts when the Environmental Protection Agency
publishes a notice of availability in the Federal Register (43 CFR 1610.2(e)). The BLM also
publishes a notice of availability in the Federal Register to provide information about the project,
comment period, contact information, and other supplemental information not contained in the
Environmental Protection Agency’s notice of availability.
O. Responding to Comments.
The R&VS lead evaluates public comments received on the draft LUP/EIS related to the R&VS
program. Public comments may be submitted in a variety of forms, including written, electronic,
and oral. The BLM must assess and consider all comments received. However, similar or “like”
comments may be grouped for analysis. Although the BLM is not required to write to individual
commenters to explain how their comments were addressed, the BLM is required to respond to
substantive comments and include the response in the proposed RMP (amendment) and final
EIS. The BLM responds to public comments by one of the following ways (40 CFR 1503.4(a)):
1. Modifying alternatives, including the proposed action.
2. Developing and evaluating alternatives not previously given serious consideration.
3. Supplementing, improving, or modifying analysis.
4. Making factual corrections.

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5. Explaining why comments do not warrant further response, citing the sources, authorities,
or reasons that support the agency’s position, and, if appropriate, indicating those
circumstances that would trigger reappraisal or further response.
P. Prepare and Analyze a Proposed Land Use Plan/Final Environmental Impact
Statement.
The proposed RMP/final EIS builds on the draft RMP/draft EIS. The R&VS lead will likely
work with cooperating agencies, resource advisory councils, and partners in an interdisciplinary
format to arrive at the proposed RMP. The proposed RMP/final EIS should clearly display LUP
decisions versus implementation decisions and should clearly distinguish between the two types
of decisions. See Chapter 2D for more information regarding making LUP decisions and
implementation decisions in the same planning effort.
Q. Publish the Notice of Availability for the Proposed Land Use Plan, Provide a 30-Day
Protest Period, and Resolve Protests.
Issuance of the proposed RMP (amendment)/EIS officially occurs when the Environmental
Protection Agency publishes a notice of availability in the Federal Register. The BLM publishes
a notice of availability as well, which contains information about the project, protest period and
filing instructions, contact information, and other supplemental information not contained in the
Environmental Protection Agency’s notice of availability. A 30-day public protest period is held
after the final EIS/proposed RMP is finished to allow for public input before the decisions are
finalized in the record of decision. The R&VS lead may have to help resolve protests.
Individuals and entities have 30 days from the publication of the Environmental Protection
Agency’s notice of availability of the document to file a protest with the BLM Director. The
protest period cannot be extended. The BLM must resolve any protests on a proposed RMP
(amendment)/final EIS before issuing a record of decision, and the R&VS lead may have to help
resolve protests. A record of decision may be issued on any portion of the proposed RMP not
protested, in coordination with the BLM Washington Office.
1. Governor’s Consistency Review. In addition to a 30-day protest period, the BLM must
also provide a 60-day review period to the Governor of the state in which the RMP
(amendment) is being proposed to ensure consistency with state and local plans, policies,
and programs. The protest period and the Governor’s review period usually occur
simultaneously in order to save time.
2. Resolve Protests. The protest letters and comments from the Governor could result in the
need to significantly modify the proposed RMP (amendment)/final EIS. If the change is
significant, the BLM must announce the intended changes to the public and provide
another 30-day comment period. Without this step, the public would not have an
opportunity to understand and respond to the potential change (43 CFR 1610.5-1(b) and
40 CFR 1505.2). The BLM must then respond to the comments as described in Chapter 3,
Section O.

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R. Record of Decision/Approved Land Use Plan.
The record of decision is the final step in the EIS process. The record of decision includes the
alternatives analyzed and factors considered in reaching the decisions and the final decision(s). If
the LUP (amendment) makes monitoring and evaluation decisions or adopts mitigation
measures, they must be included in the record of decision. The R&VS lead may be asked to (1)
document rationale for consideration of RMAs or other recreation program decisions and (2)
identify LUP versus implementation R&VS decisions. RMA designation rationale may include:
1. Meeting recreation demand for recreation opportunities.
2. Recognizing unique, important, or distinct recreation values.
3. Maintaining existing or enhancing desired RSCs.
4. Recognizing R&VS program investments.
5. Addressing recreation issues.
6. Resolving use and user conflicts.
7. Compatibility with other resource uses or resource protection needs.

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CHAPTER IV – LAND USE PLAN IMPLEMENTATION
A. Land Use Plan Implementation.
Once the LUP has been approved, the BLM initiates implementation of LUP decisions.
Implementation is the foundation of outcomes-focused management because implementation
actions (management, administration, information and education, and monitoring) interact with
recreation settings to produce recreation opportunities and facilitate outcomes (see Figure 29).
Figure 29 – The Production of Recreation Opportunities and Outcomes

1. Implementation by Design, Not Default. Indicators that will be used to define a quality
recreation visit for a RMA or RMZ are based on the recreation activities and outcomes
included in the RMA objective. The objective then becomes the focus of all
implementation actions. Implementation actions that focus on achieving the objective limit
unanticipated and unacceptable changes to RSCs or negative affects to recreation
opportunities. Implementation actions that do not have a functional purpose should not be
undertaken. The need, appropriateness, or relevance of each implementation action must
be evaluated by its ability to:
a. Support the RMA objective.
b. Maintain or enhance desired physical, social, or operational RSCs.
c. Comply with allowable uses and management action decisions identified in the LUP.
d. Support LUP decisions where SRPs will be issued, and/or mitigate
visitor health and safety issues, recreation impacts on natural and cultural resources,
and use or user conflicts.
B. Types of Recreation Actions.
When identifying a suite of possible implementation actions, it may be helpful to evaluate
each proposed implementation action for its need, appropriateness, or relevance. See Figure 30
for an example of rationale for implementation actions. LUP decisions and implementation
decisions result in actions that can have an indirect or direct influence on visitors. See Figure 31
for types of indirect and direct recreation actions.

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Figure 30 – Example of Rationale for Implementation Actions
Rationale for Implementation
Supports the
recreation
management
area objective

Maintains or
enhances
desired
physical, social,
or operational
recreation
setting
characteristics

Complies with
land use plan
allowable use
or management
action decisions
in the land use
plan

Supports land
use plan
decisions where
special
recreation
permits will be
issued

Mitigates
health and
safety,
resource, or
use/user issues.

Implementation
Action
1. Rehabilitate Rocky
Road and construct the
single-track mountain
bike trail.
2. Limit tour companies
to 15 clients per group
in the Mack Ridge
Recreation
Management Zone.
3. Develop a
programmatic
environmental
assessment for the
issuance of special
recreation permits.
4. Expand the parking
area to accommodate
horse trailers.
5. Designate campsites
along the Black Ridge
access road.
6. Close six high-use
recreation areas to
target shooting.

1. Indirect Actions. These actions are more lighthanded and subtle, designed to influence or
modify visitor behavior and land uses, and retain the visitor’s freedom to choose.
2. Direct Actions. These actions are more heavyhanded and overt, designed to control
visitor behavior and land uses, and restrict the choices of visitors.

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Figure 31 – Types of Recreation Actions
Types of Recreation Actions
INDIRECT
ACTIONS
(emphasis on
influencing or
modifying visitor
behavior;
individual retains
freedom to choose;
smaller degree of
control of
recreation use and
other programs)

Within the R&VS program:
- Charge entrance fees.
- Improve (or not) access to and through a recreation area.
- Improve (or not) campsites and other facilities.
- Improve (or not) fish and wildlife populations (e.g., stocking fish).
- Advertise specific attributes of an area or underused areas.

DIRECT
ACTIONS
(emphasis on
regulation of
visitor behavior;
individual choice
restricted; larger
degree of control
of recreation use
and other
programs)

Within the R&VS program:
- Require permits.
- Require reservations.
- Zone incompatible uses spatially.
- Assign campsites.
- Limit use via access points.
- Limit size of groups, number of horses, vehicles, etc.
- Limit camping to designated sites.
- Limit length of stay.
- Restrict recreation activities, such as target shooting, hunting, or fishing.

Within other programs:
- Develop livestock waters and salt away from high-use recreation areas.
- Develop best management practices for surface-disturbing activities in
RMAs.
- Develop conditions of approval to protect recreation values under
mineral material regulations.
- Identify right-of-way avoidance areas with special terms or conditions.

Within Other Programs:
- Close the area to livestock grazing.
- Apply a no surface occupancy stipulation for surface-disturbing
activities.
- Close areas to mineral material sale (disposal).
- Identify right-of-way exclusion areas.

(Manning 2010)
3. Indirect vs. Direct. Managers must evaluate the application of indirect versus direct
recreation actions because the types of management actions and management controls
(i.e., operational RSCs) affect the visitor’s experience in different ways. Considerations
include:

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a. The amount of change or control that is needed to manage recreation use.
b. The effectiveness of helping achieve the recreation objective and RSCs.
c. Staffing and management costs.
d. Public support of the type of recreation decisions.
4. Many indirect types of recreation actions (e.g., visitor services) are not LUP-level
decisions and can be incorporated into the LUP as best management practices or identified
during implementation. Most direct types of recreation actions (e.g., visitor use limitations
or restrictions) are LUP-level decisions. Typically, LUPs will contain a complementary
mix of direct and indirect actions.
5. Application to Adaptive Management. Recreation managers can also use the LUP to
establish criteria that will guide subsequent site-specific use decisions (reference BLM
Handbook H-1601-1, “Land Use Planning,” page 13) by establishing monitoring standards
and indicators for adaptive recreation management strategies. For example, an adaptive
recreation management strategy can apply indirect types of actions with the understanding
that if RMA standards and indicators are not being achieved, more direct types of
decisions/actions will then be implemented.
C. Recreation Management.
Recreation management is defined as on-the-ground management of resources, visitors, and
facilities, including the regulation of other resource program actions that impact recreation
opportunities and recreation settings. Subsequent recreation management can involve RAMPs
and project plans. These implementation-level plans are completed, as necessary, to implement
the decisions in the LUP.
1. Recreation Area Management Plan. RMAs with complex implementation issues may
require a subsequent plan to: 1) address implementation issues not addressed in a LUP or
2) provide specific direction for on-the-ground implementation of the LUP over a discrete
management unit. RAMPs should outline actions, roles, and responsibilities for the BLM
and, perhaps, other collaborating community recreation-tourism providers who affect
RSCs or the kinds of recreation opportunities being produced. They also may include
other actions necessary to achieve interdisciplinary LUP objectives. RAMPs may be
developed for an RMA, multiple RMAs, or areas with connected recreation actions.
RAMPs may precede project plans.
a. General RAMP Document Format. BLM recreation planning guidance affords the
recreation planner considerable discretion in developing the format of a RAMP.
While the general format of a RAMP is not rigidly defined, all RAMPs must address
the four implementation categories—management, administration, information and
education, and monitoring—as outlined in BLM Handbook H-1601-1, “Land Use
Planning,” Appendix C.

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b. Sample RAMP Format.
(1) Section 1 – Introduction.
(a) Executive summary.
(b) Purpose of the RAMP.
(c) Relationship to other documents (e.g., LUP management direction, policy
documents).
(d) Area overview (e.g., resources, topography, land ownership, planning issues,
opportunities).
(e) Objectives. (Note: RAMPs may have objectives. However, at this level of
planning, they are classified as implementation objectives (see Figure 32).
Implementation objectives support and are tiered to LUP decisions and RMA
objectives. While LUP objectives are broader in scope, implementation
objectives describe how RMA objectives will be achieved within the
parameters established in the LUP. Implementation objectives are more sitespecific and usually begin with a “to do” action verb, such as provide, build,
perform, manage, maintain, develop, create, or evaluate.).
Figure 32 – Examples of Implementation Objectives
Land Use Plan Objective for the Salmon Lake ERMA: Through the life of the plan, the Salmon Lake ERMA
offers visitors the opportunity to participate in fishing and boating in an area where the existing natural physical
character of the lakeshore is modified only by a few new recreation developments.
Implementation Plan Objectives for the Salmon Lake ERMA
Management Objective: By 2014, develop a project plan that includes a boat launch, parking area, and fish
cleaning station at the Eastside Campground with “Fishing is Fun” funding.
Administration Objectives: Within 6 months of plan approval, develop and publish supplementary rules that
describe conditions of use, including hours of operation, prohibition of target shooting, and penalties for
noncompliance.
Once recreation sites are developed, evaluate recreation sites to determine if appropriate fees are charged in
accordance with the Federal Lands Recreation Enhancement Act.
Information and Education Objective: By 2016, develop an information and education plan with the state game and
fish office that targets local elementary and middle schools, girl and boy scouts, and similar youth organizations,
regarding the fishing opportunities available at Salmon Lake.
Monitoring Objective: Coordinate with local law enforcement agencies (e.g., BLM, county sheriff, USFS, local
game and fish department) to perform daily visitor use monitoring during the peak seasons to ensure compliance
with supplementary rules and regulations.

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(2) Section 2 - Management.
(a) Commitment of resources.
(b) Services to be offered to visitors.
(c) Concessions.
(d) Development of facilities (e.g., developed recreation sites, roads and trails,
trailheads).
(e) Access.
(f) Visitor health and safety.
(g) Other management requirements.
(3) Section 3 - Administration (Regulatory Actions).
(a) Implementation of allocation systems.
(b) Permits/permit systems.
(c) Fees.
(d) Use restrictions.
(e) Partnership agreements.
(f) Business plans or fiscal accountability systems.
(g) Data management protocols.
(h) Timelines.
(i) Priorities for implementation.
(j) Cost estimates of implementation projects.
(4) Section 4 - Information and Education.
(a) Map and brochure development.
(b) Website development.

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(c) Outreach efforts.
(d) Marketing.
(e) Events.
(f) Interpretation.
(g) Environmental education.
(h) Sign placement.
(i) Other visitor information delivery services.
(5) Section 5 - Monitoring (Recreation Resources and Human Use).
(a) Visitor use and use patterns.
(b) Recreation-caused resource effects or impacts.
(c) Law enforcement role.
(d) Visitor satisfaction.
(e) Effectiveness or attainment of outcomes-focused management objectives,
RSCs, standards, and indicators.
2. Project Plan. Project plans identify the site and facility design requirements for
construction. A field office may conduct site-specific planning and NEPA analysis on a
project-by-project basis. Project-specific implementation planning and NEPA analysis
must be tiered to the LUP and support RMA objectives.
3. Implementation Planning and Design Process. The planning and design process is a
systematic sequence of planning, design, and construction steps that, when followed, will
produce a quality facility. See Figure 33 for an illustration of the planning and design
process. It is imperative that an interdisciplinary team be involved throughout the planning
and design process and should include resource specialists, partner organizations, user
groups, and other interested parties. For a detailed description and examples of the BLM’s
planning and design process, refer to “BLM Guidelines for a Quality Built Environment,”
December 2010. The purpose of using these guidelines is to help ensure all BLM facilities
meet the same high standard and the needs of visitors.

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Figure 33 – Planning and Design Process

D. Recreation Administration.
Recreation administration consists of regulatory actions, including planning and analysis and the
implementation of allocation systems, permits, fees, use restrictions, and partnership agreements,
as well as business plans or fiscal accountability systems and data management protocols.
1. Permits and Fees. The BLM’s recreation permit and fee policy is outlined in BLM
Manual 2930, “Recreation Permits and Fees,” and is further discussed in BLM Handbook
H-2930-1, “Recreation Permit Administration.” The objectives of the BLM’s recreation
permit and fee policy are to:
a. Standardize administrative procedures for the issuance and management of recreation
permits, and be as consistent as possible with other federal agency policies.
b. Manage permits, recreation fees, and commercial services in a way that is business
oriented, efficient, and accountable.
c. Establish a permit and fee program that supports the emphasis of resource-dependent
recreation opportunities, while responding to demonstrated needs for recreation
programs and facility development that protect resource values and public health and
safety.

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d. Establish a permit and fee program that provides needed public services and satisfies
recreation demand within allowable use levels, while minimizing user conflicts and
protecting and enhancing public lands, recreation opportunities, and sustainable and
healthy ecosystems. This includes maintaining recreation programs and facilities with
a standard that protects the resource, the public, and their investment and that fosters
pride of public ownership.
e. Assure that recreational users assume an appropriate share of the cost of maintaining
recreation programs and facilities and protecting the resources, by establishing and
assessing equitable fees at appropriate facilities and for certain uses of the public
lands.
f. Assure that the United States is provided a fair return for commercial recreational use
of the public lands. (This does not include maximizing revenue.).
g. Issue recreation permits in an equitable manner for specific recreational uses of the
public lands and related waters as a means to manage visitor use; provide for visitor
health, safety, and enjoyment; minimize adverse resource impacts; and provide for
private and commercial recreation use according to limits or allocations established
through the BLM planning system.
h. Assure that recreation permits are specifically addressed in land use planning. This
includes identifying both the types of recreation permits and activities that support the
management objectives for each RMA and RMZ, as well as identifying recreational
events and activities that will not be permitted. The foundation for recreation
permitting decisions in a LUP is an outcomes-focused management approach as
outlined in “A Unified Strategy to Implement ‘BLM’s Priorities for Recreation and
Visitor Services’ Workplan,” 2007.
2. Allocation Systems. One of the key implementation actions available to recreation
planners to manage recreation settings are the wide variety of recreation use allocation
systems. Recreation use allocation is defined as the deliberate distribution of recreation
use opportunities between the commercially outfitted and the nonoutfitted sectors of the
public. Approaches for allocation between groups include, but are not limited to, historic
use, even split, freedom of choice, temporal and/or spatial zoning, etc. Decisions on
whether to make use of a particular allocation system should be based on whether the
allocation system has a direct relationship to the setting objectives identified in either the
LUP or specific area management plans. That is, land managers should be able to show
that the implementation of a particular allocation system will help achieve and maintain
the desired recreation setting and opportunities and be able to facilitate targeted outcomes.
Adaptive management principles should play a key role in any decision to implement an
allocation system. If monitoring shows a particular allocation system is not working as
intended, recreation planners should be responsive and make adjustments in a timely
manner.

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a. Special Recreation Permits. A key part of recreation use allocation is the issuance of
SRPs. While SRPs are required for all commercial service providers operating on
public lands and waters, the BLM has the authority to deny a permit if it can be shown
that the issuance of a particular permit would (1) negatively impact the recreation
setting or (2) increase conflicts with other SRPs and individual users. The BLM can
also deny a permit if (1) the field office does not have the ability to administer and
monitor SRPs and visitor use or (2) it can be shown there is little to no public demand
for services. Managers should, on a frequent basis, conduct needs assessments to
analyze these factors and make determinations regarding the type and level of SRPs
needed in particular areas that will help achieve the recreational setting goals and
objectives. Managers are encouraged to make use of programmatic environmental
assessments, completed in conjunction with outfitter needs assessments, to streamline
the decisionmaking process pertaining to the issuance of SRPs and to support the
rationale for denying SRPs where appropriate.
3. Use Restrictions and Supplementary Rules. Supplementary rules are established to set
forth rules for the: protection of public lands and resources; protection of the public in its
use of recreation areas, sites, and facilities on public lands; and penalties that may be
imposed for failure to obey the regulations. The rules are designed to augment existing
laws contained in the Code of Federal Regulations. The ability for the BLM to establish
supplementary rules and regulations can be found in 43 CFR 8365.1-6 and 43 U.S.C.
1740, “Rules and Regulations.”
4. Partnerships and Collaboration. Collaboration is a process in which interested
people work together to seek solutions. A partnership is an agreement between two or
more entities, created to achieve or to assist in reaching a common goal. Partnerships may
involve one organization utilizing another’s unique abilities, equipment, or services, or it
may be a sharing of resources (e.g., money, time, knowledge, equipment, etc.) to
accomplish short- or long-term objectives for one or all of the participating partners.
a. The authorities for collaboration include:
(1) Executive Order 13352, “Facilitation of Cooperative Conservation” (August 26,
2004), which has a purpose of ensuring agencies “…implement laws relating to
the environment and natural resources in a manner that promotes cooperative
conservation, with an emphasis on appropriate inclusion of local participation in
Federal decisionmaking, in accordance with their respective agency missions,
policies, and regulations.”
(2) The “Office of Management and Budget and President’s Council on
Environmental Quality Memorandum on Environmental Conflict Resolution”
(November 2005), which further directs agencies to increase the effective use of
environmental conflict resolution and to build institutional capacity for
collaborative problemsolving.

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(3) BLM Handbook H-1601-1, “Land-Use Planning” (March 11, 2005), which
describes the legal authorities for public involvement and collaborative work.
(4) The National Environmental Policy Act, Section 101.
(5) The Department of the Interior’s Environmental Statement Memorandum No.
ESM03-4, “Procedures for Implementing Public Participation and CommunityBased Training.”
(6) The Department of the Interior’s Environmental Statement Memorandum No.
ESM03-7, “Procedures for Implementing Consensus-Based Management in
Agency Planning and Operations.”
(7) BLM Instruction Memorandum No. 2005-237, “New Department of the Interior
Requirements; Use and Further Distribution of A Desk Guide to Cooperating
Agency Relationships.”
b. Consider collaboration with partners if:
(1) The problem is beyond the ability of a single individual or group to handle.
(2) The issues are appropriate. For example:
The identified problem is not so controversial or divisive that stakeholders cannot
at least reasonably discuss it in the current circumstances.
There is general agreement both about the nature of the problem and the means of
solution, but for some reason the needed actions have not been taken.
There is general agreement that a problem exists, but there are uncertainties or
differences of opinion about how it should be addressed.
Although dialogue and debate are critical to the collaborative process, it is also
important that the group takes constructive action, rather than just focus on the
verbal discussions.
(3) The time is right. For example:
Certain events can generate a need for collaborative action (e.g., required revision
of an RMP).
An issue that was too sensitive to handle in the past finally becomes ripe for
collaborative problemsolving; or a skilled facilitator or mediator can be brought in
to deal with contentious issues.
A new, shared concern can bring people together.
Changes in government policies, changes in community or organizational
leadership, and demographic shifts in the community may open the doors for
collaboration.

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(4) Most or all key people/organizations are willing to come to the table.
5. Environmental Assessment of Proposed Actions. Implementation actions proposed by
other programs or project proponents could impact R&VS objectives or management
strategies. Consider the following while evaluating proposed actions:
a. Ensure that the proposed action answers the who, what, when, where, why, and how
questions. The proposed action can be fully evaluated when it is complete.
b. Consider the entire action area, including all areas to be affected directly or indirectly
by the proposed action, not just the immediate area involved in the proposed action.
c. Consider potential interdependent and interrelated activities that are part of the larger
action under consideration (e.g., gravel source or asphalt paving facilities that will be
necessary to support highway construction.).
d. The R&VS analysis should evaluate the:
(1) Proximity of the action to recreation use and facilities.
(2) Type of effects (direct, indirect, and cumulative).
(3) Timing of the effects.
(4) Duration of the effects.
(5) Frequency of effects.
(6) Intensity of effects.
(7) Severity of effects.
e. Many proposed actions are complex, so deconstructing them into constituent parts can
make the analysis easier.
f. Connect the facts to the conclusions by using the “because” connection. For example,
“There is an estimated loss of 2 miles of horseback riding/hiking trail in Garrett Gulch
because of the placement of the highway right-of-way corridor.
g. Applicable RSCs should be used to help evaluate and, when possible, quantify the
impacts to LUP-level R&VS decisions (e.g., the targeted recreation activities,
experiences and benefits, or RSCs).
h. Propose design features and/or mitigation measures based on reducing the impacts to
the LUP-level R&VS decisions.

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i.

If an impact to the LUP-level R&VS decision is recognized as part of the
environmental assessment record of decision, the authorized officer must document in
the record of decision:
(1) The direct, indirect, and/or cumulative impact to the LUP-level R&VS decision.
(2) The rationale for approving the action.
(3) Why the LUP amendment is not necessary if the impact is substantial.

6. Land Use Plan Amendments. Plan amendments (see 43 CFR 1610.5-5) change one or
more of the terms, conditions, or decisions of an approved LUP. The BLM regulations in
43 CFR 1600 and the NEPA process detailed in the Council on Environmental Quality
regulations in 40 CFR 1500 guide preparation of plan amendments.
a. Plan amendments are most often prompted by the need to:
(1) Consider a proposal or action that does not conform to the LUP.
(2) Implement new or revised policy that changes LUP decisions.
(3) Respond to new, intensified, or changed uses on BLM lands.
(4) Consider significant new information from resource assessments, monitoring, or
scientific studies that require changing LUP decisions.
b. Monitoring data should be used to support LUP amendments. R&VS amendments
may include:
(1) The designation of a new RMA or elimination of an existing RMA.
(2) Changes to existing RMA boundaries.
(3) Amending RMA outcome objectives.
(4) Amending LUP-level allowable uses and management actions.
(5) Establishing rules or regulations to control resource damage, use/user conflicts,
and visitor health and safety issues.
E. Information and Education.
Information and education efforts tell the BLM’s customers what kinds of recreation
opportunities are available, how to find them, and how these opportunities can be enjoyed
responsibly and sustainably. This category of implementation actions includes outreach efforts,

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promotion, interpretation, environmental education, and other visitor services. Products include
maps, brochures, websites, signs, and other visitor information delivery services.
1. Maps, Brochures, Websites, and Other Visitor Information Delivery Services.
Calibrate the message for the intended audience, and then select the appropriate media.
Examples of appropriate media may include signs, kiosks, brochures, websites, and social
media. When promoting recreational areas or opportunities targeted to attract local
communities, it may be inappropriate to use websites or nationally distributed magazines.
Conversely, limiting outreach and information efforts to onsite kiosks in areas targeted to
attract and serve international visitors may also be inappropriate.
a. The information and education section must support the RMA objective. The objective
will help the recreation planner design an appropriate information and education
strategy that may address such issues as:
(1) Whether an RMA will be actively promoted or simply identified.
(2) Whether information or education efforts will occur onsite or offsite.
(3) Whether signs or facilities are needed and where they are needed.
(4) Whether the information provided will direct users to specific locations.
b. In ERMAs, recreation is managed commensurately with other resources and uses. This
means that recreation outreach messages must be designed and delivered in ways
sensitive to and compatible with the needs of the commensurate resources.
2. Interpretation and Environmental Education. Information and environmental
education programs are crucial to successfully implement recreation decisions adopted in
the LUP. From a visitor’s perspective, an information and environmental education
strategy helps visitors make better recreational choices by matching them with the
appropriate areas, allowing realization of the high-quality experiences they seek. From a
field manager’s perspective, effective information and education efforts help sustain the
character of the recreation settings and deliver the desired recreation opportunities.
Developing an information and education plan for RMAs should be considered on a caseby-case basis. Work closely with field office staff, local tourism offices, local chambers of
commerce, and external affairs to develop an information and environmental education
plan tailored to the requirements of specific RMAs. Consider the following when
developing an information and environmental education plan:
a. Determine what the public wants to know (e.g., access, maps, facilities, points of
interest).
b. Determine what else the public needs to know (e.g., safety, hazards, restrictions, rules,

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ethics, tolerance for other users, emergency contacts).
c. Identify your target audience (i.e., local, regional, national, international).
d. Design the information and environmental education program so that it matches the
target audience with the available recreation opportunities.
F. Monitoring.
Outcomes-focused management requires the recreation program to have a foundation in
recreation science by making an investment in recreation monitoring and relying less on intuition
and personal judgment.
1. Land Use Plan-Level Monitoring. The regulations in 43 CFR 1610.4-9 require that
LUPs establish intervals and standards for monitoring and evaluations, based on the
sensitivity of the resource decisions involved. LUP monitoring (effectiveness monitoring)
is the process of collecting data and information in order to determine whether or not
desired outcomes (expressed as goals and objectives in the LUP) are being met (or
progress is being made toward meeting them) as the allowable uses and management
actions are being implemented. In BLM Handbook H-1601-1, “Land Use Planning,” each
resource program identifies LUP-level decisions. The use of R&VS effectiveness
monitoring ensures that implementation actions are helping achieve the R&VS objectives
identified in the LUP.
2. Monitoring the Attainment of Outcomes-Focused Management Objectives. R&VS
outcomes-focused management objectives should be monitored on a continual schedule.
Monitoring ensures the long-term ability of the BLM to offer quality recreation
opportunities. RMA outcomes and objectives should be monitored through periodic visitor
assessments (e.g., informal interviews, focus group surveys, and visitor surveys). The
evaluation of the monitoring data should make conclusions about the visitor’s ability to
realize RMA recreation opportunities.
Achieving the standards set by the R&VS objective may take time based on the extent of
change needed to create the desired RSC and the ability to complete key implementation
actions. Monitoring outcome objectives will not provide viable feedback until there has
been substantial progress made through implementation actions to create the desired
RSCs. If monitoring indicates that the participants in the primary activity are not
achieving the targeted outcomes due to conflicts with other recreation activities, then
activities that are not compatible with the targeted recreation activities may need to be
constrained or eliminated.
The benefit of writing objectives in the format identified in Chapter 2A2 is that they then
encompass the standards and indicators used to monitor the realization of the outcomes.
Indicators are what will be measured, and standards are the measures of achievement or
permissible conditions allowed. For example, using the SRMA objective in Figure 34, the

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indicators include the targeted activities, experiences, and benefits, and the standard is “an
average 4.0 realization of the targeted experiences and benefits.”
One benefit of writing objectives in this format is that the activities, experiences, and
benefits are used to monitor the realization of the outcomes and achievement of the
SRMA objectives.
Figure 34 - Indicators and Standards in an Outcome-Based Objective for a SRMA.
Within the Black Mountain SRMA, by the year 2015 and thereafter, participants in recreation
assessments will report an average 4.0 realization of the targeted experiences and benefits (4.0 on a
probability scale, where 1.0 equals not realized and 5 equals totally realized).
Activities
Experiences
Benefits
Personal:
Releasing or reducing mental
Mountain
Improved physical fitness/better health
tension
Biking
maintenance
Enjoying frequent access to
Camping
Restored mind from stress/tension/anxiety
outdoor physical activity
Improved outdoor recreation skills
Developing skills and abilities
Living a more outdoor-oriented lifestyle
For the challenge or sport
Improved balance of work and play
Community/Social:
Lifestyle improvement or maintenance
Environmental:
Preserve the special landscape character of this
place
Economic:
Greater value-added local services
Increased desirability as a place to live or retire

3. Monitoring Recreation Settings. Impacts on physical and social RSCs are inevitable
consequences of human use of BLM lands. Monitoring ensures the long-term protection of
RSCs. The primary emphasis of monitoring recreation settings should be on achieving or
maintaining the desired RSCs. The desired physical, social, and operational RSCs of
SRMAs and the qualities and conditions identified for ERMAs ensure recreation use and
other land uses are consistent with RMA management focus and are maintained at
acceptable levels. While carrying capacities and land use limitations may not be initially
implemented, a good monitoring strategy (e.g., limits of acceptable change strategy) alerts
managers to unacceptable changes/trends over time so managers can enact proactive
implementation actions to protect RSCs.
The monitoring strategy for recreation settings should focus on the specific RSCs
(indicators) and their respective RSC descriptions (standards) that serve to define the
threshold or the "limit of acceptable change." These indicators and standards are found in
the LUP and can be in narrative form, matrix form, or mapped (see Chapter 2B). Since it

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may not be feasible to measure the condition of and change in all RSCs, the most
determinative or influential RSCs should be monitored. Monitoring recreation settings can
be performed by BLM staff, volunteers, or even permittees. Illustration 6 provides
examples of monitoring forms for social RSCs.
4. Implementation Monitoring. Implementation monitoring from a planning prospective is
the process of tracking and documenting the execution (i.e., was it done?) of LUP-level
management actions and allowable use decisions and subsequent implementation
decisions. This report is often done annually. The report should document which R&VS
implementation actions were completed and which further actions are needed to continue
implementing LUP decisions.
5. Monitoring Recreation Implementation Actions. Monitoring R&VS implementation
actions and the results of those actions (i.e., did it do what was expected?) are critical in
determining if the action is helping achieve the RMA objective and desired RSCs. Make
sure all implementation actions are designed and implemented with the intent of
maintaining and/or achieving the desired RSCs.
6. Monitoring Visitor Use and Use Patterns. Monitoring visitor use and use patterns
involves collecting and evaluating site inventory and condition data to establish a baseline
or to identify trends in visitor use and visitor impacts over time. This information is useful
in visitor use management and to reduce resource impacts of recreation use.
7. Adaptive Recreation Management Process. Simply put, adaptive recreation
management is not possible without effective monitoring because monitoring data shows
if progress is being made toward achieving LUP objectives. Since accrued monitoring data
and evaluation is used to improve future implementation actions, monitoring is continual
and never complete. The cyclic process generally includes four phases: planning,
implementation, monitoring, and evaluation.
Adaptive recreation management under outcomes-focused management is a structured,
iterative process for continually improving implementation actions, recreation practices,
and recreation policies, based on monitoring the visitor’s realization of the clearly defined
R&VS objectives established in the LUP. Monitoring is used to determine if
implementation actions and desired recreation settings are helping visitors that participate
in the primary activities realize the targeted outcomes. If not, implementation changes are
made that will best ensure that recreation opportunities are available and outcomes are
realized, met, or reevaluated.
8. Monitoring Plans. A recreation monitoring strategy should be developed that identifies
such items as indicators, standards, protocols, frequency, documentation, who does the
monitoring, and estimated costs. Monitoring plans can also outline the implementation
actions that will be performed if the standards are not met. Monitoring plans do not need
to be complex documents. Illustration 7 provides an example of a basic monitoring
strategy.

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Glossary of Terms
Following are definitions of terms used in this handbook and in BLM Manual 8320, “Planning
for Recreation and Visitor Services.” Also, see definitions for terms used in Section 103 of the
Federal Land Policy and Management Act and the planning regulations in 43 CFR 1601.0-5; this
glossary does not supersede those definitions or those in other laws and regulations.
-Aactivity-based management: Management that focuses on providing activities and the ability of
users to engage in desired activities.
allocation: There are two types of allocation decisions, resource allocation and recreation-use
allocation. Resource allocations are land use plan decisions, and recreation-use allocations are
generally implementation-level decisions.
-Bbenefits: The result of a satisfying recreation experience that leads to (1) an improved condition
or (2) maintenance of a desired condition. These accrue from recreation participation, may be
both short and long term, and may be realized onsite and offsite.
benefits-based management: A recreation and resource planning and management system used
by managers and their collaborating partners to assure an array of benefit opportunities are being
provided and to target and facilitate the realization of one or more specific types of benefits
desired. Benefits-based management is one specialized application of the beneficial outcomes
approach to leisure.
-Ddesignation: The act of indicating or identifying. This may be accomplished in various ways,
including Public Law (e.g., wilderness areas), Presidential proclamation (e.g., national
monuments), or by administrative action through Secretarial designation or the land use plan.
Recreation management areas are designated through the land use plan.
-Eexperience-based management: Management that focuses on the demand for opportunities to
realize desired experiences as well as desired activities.
extensive recreation management area: An administrative unit that requires specific
management consideration in order to address recreation use, demand, or recreation and visitor
services program investments.

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-Ggoal: A broad statement of a desired outcome. Goals are usually not quantifiable and may not
have established timeframes for achievement.
-Iimplementation plan: A site-specific plan written to implement decisions made in a land use
plan. An implementation plan usually selects and applies best management practices to meet land
use planning objectives. Implementation plans are synonymous with activity plans. Examples of
implementation plans include interdisciplinary management plans, travel and transportation
management plans, habitat management plans, recreation area management plans, recreation
project plans, coordinated resource management plans, and allotment management plans.
implementation plan decisions: Decisions that take action to implement land use plan
decisions; generally appealable to the Interior Board of Land Appeals under 43 CFR 4.410.
-Oobjective: Specific desired outcomes for resources. Objectives are usually quantifiable and
measurable and may have established timeframes for achievement (as appropriate).
outcomes-focused management: An approach to park and recreation management that focuses
on the positive outcomes of engaging in recreational experiences. Outcomes are categorized as
individual, social, economic, and environmental.
-Pproject plans: Project plans identify the location of facilities or other development within the
site and address the design requirements for the survey and design phase for construction.
-Rrecreation: Use of leisure time to freely engage in activities in a variety of settings that provide
personal satisfaction and enjoyment and contribute to the renewal and refreshment of one’s body,
mind, and/or spirit.
recreation area management plan: Identifies the specific recreation implementation actions to
be taken to realize the decisions made in the land use plan, including specific recreation
permitting or use allocation decisions. The plan must address the four components of
implementation: management, administration, information and education, and monitoring.
recreation experiences: Immediate states of mind resulting from participation in recreation
opportunities that result in benefits.
recreation management zone: A subdivision of a recreation management area that further
delineates specific recreation opportunities and recreation setting characteristics.

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recreation opportunities: The combination of recreation activities, settings, and experiences
provided by a specific geographic area.
Recreation Opportunity Spectrum: A widely used planning and management framework for
classifying and defining recreation opportunity environments ranging from the primitive to the
urban. This continuum recognizes variation among the components of any landscape’s physical,
social, and operational attributes.
recreation resources: Landscape characteristics found within an area that may include natural
or cultural features, constructed facilities, and infrastructure.
recreation settings: The collective distinguishing attributes (recreation setting characteristics) of
a landscape. Recreation settings determine the production of recreation opportunities.
recreation setting characteristic: Derived from the Recreation Opportunity Spectrum, these
characteristics are categorized as physical, social, and operational components and are further
subdivided into specific characteristics (attributes). These characteristics are categorized across a
spectrum of classes that describe a range of qualities and conditions of a recreation setting, for
example primitive to urban.
-Sspecial recreation management area: An administrative unit where the existing or proposed
recreation opportunities and recreation setting characteristics are recognized for their unique
value, importance, or distinctiveness, especially compared to other areas used for recreation.
-Vvisual resource inventory: The visual resource inventory process provides BLM managers with
a means for determining visual values. The inventory consists of a scenic quality evaluation,
sensitivity level analysis, and a delineation of distance zones. Based on these three factors, BLMadministered lands are placed into one of four visual resource inventory classes.
visual resource management: The inventory and planning actions taken to identify visual
values and to establish objectives for managing those values; and the management actions taken
to achieve the visual management objectives.

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Acronyms
BLM – Bureau of Land Management
EIS – environmental impact statement
ERMA – extensive recreation management area
GIS – geographic information system
LUP – land use plan
NEPA – National Environmental Policy Act
RAMP – recreation area management plan
R&VS – recreation and visitor services
RMA – recreation management area
RMP – resource management plan
RMZ – recreation management zone
ROS – Recreation Opportunity Spectrum
RSC – recreation setting characteristic
SRMA – special recreation management area
SRP – special recreation permit

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Illustration 1 – Example of a Small Group Discussion Script
Name of Recreation Management Area:
Describe Participant Group:
Number of Attendees:
Date:
Time:
a.m./p.m.

Facilitator:

Group Script — Recreation Participants:
Assessing Experience, Benefit, and Recreation Setting Character Preferences
I. Sign-in.
The assistant moderator ensures guests sign-in, distributes name tags, and asks each participant
to complete a one-page demographic survey.
II. Introduction (8 minutes)
The moderator introduces self and describes the study.
“The purpose of this study is to better understand the value and importance of
the
Recreation Management Area to recreation participants. This information
is needed to help the BLM and its collaborators more responsively plan and manage the area. This
information will also help collaborating recreation-tourism providers in business and local governments
do a better job working together to meet the needs of visitors and affected area residents, their
communities and economies, and the environment. The aim of this study is to identify your desires for
specific kinds of recreation activities, experiences, and beneficial outcomes, as well as the character of
public lands recreation settings. Another aim of this study is to identify your desires for what the BLM
and collaborating recreation-tourism providers do to manage the area and its use and to serve you as
customers.”
Describe the specific purpose for today’s meeting:

“The specific purpose for today's meeting is to learn what is important to you by focusing our attention on
key issues and giving you the opportunity to interact with one another. We want to create an environment
in this meeting that stimulates your expression. Feel free to say precisely how you feel about how the
area affects you, even if your view differs from someone else’s. Our role as moderators is to be neutral,
keep the discussion focused, give everyone the opportunity to respond, and finish on time.”III. Review
the subject recreation management area, and introduce participants to maps and recreation
management subunits or zones (1 minute).
III. Review the subject recreation management area, and introduce participants to maps and
recreation management subunits or zones (1 minute).
"We want to make sure that each of us has in mind the same area context for our group discussion.
On the wall are maps of the
Recreation Management Area showing
boundaries and several subunits or recreation management zones. These units may be adjusted in
the plan, depending on the kinds of input received. But for now, these zones outline areas that have
some commonality in terms of the types of recreation opportunities presently available, recreation use
patterns, management issues and concerns, and so forth. These kinds of issues often vary widely

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from zone to zone, so we’re going to try to focus our discussion on each of these zones, one at a time.
We’ll try to keep the discussion focused to avoid capturing your ideas and thoughts within the wrong
spatial context."
IV. Describe ground rules of the focus group discussion (1 minute).
"Before we get started, we would like lay out some simple ground rules to help facilitate our discussion.
First, we will be trying to capture your thoughts and ideas on flip charts. Sometimes things come too fast
to get everything down on paper. So to avoid interrupting the flow, we are taping the session to make
sure we don’t miss anything. We want to provide everyone here the opportunity to be heard, so I may call
on some of you to participate in the open discussion. To help focus our dialogue and ensure that each of
these meetings is conducted within the same context, we have a format and schedule for today's focus
group. We will try to stay on schedule so we have time to complete all discussion topics. Last but not
least, we hope you can stay for the complete discussion. We anticipate taking about one-and-a-half hours
to complete this focus group dialogue."

V. Warmup and recreation activities (10 minutes).
"Let's begin by introducing ourselves. Please say your name, what you do, and which organization or
business you are with, and then share with the group the kinds of recreation activities you have engaged
in within the
Recreation Management Area. Be sure to tell us which zone or
zones you are talking about."
Critically important procedural logistics:
Beginning with the above dialogue, the moderator and assistant moderator must ensure that both they
and all participants are on the same contextual page, or results will be jumbled. Most important among
these is (a) the specific zone within the recreation management area being discussed. After that come (b)
activities, (c) experiences, (d) benefits or beneficial outcomes, (e) recreation setting conditions, and (f)
implementing management, marketing, monitoring, and administrative actions. Participants will often want
to talk in generalities, but the moderator must try to anchor the dialogue to a specific recreation
management zone at all times as the group moves through the discussion (i.e., from “b to e”).
Make this as easy as possible for participants to follow. If you can, line up as many flip charts as there are
different components of recreation production. You should begin with activities on the left, then move on
to show experiences for those activities on the second chart, benefits being attained subsequent to those
experiences on the third chart, the necessary setting conditions required/preferred to produce those
opportunities/outcomes on the fourth chart, and finally move on to discuss implementing actions with the
fifth chart. But remember, as you move from left to right, you must stay within the same zonal context.
Alternatively, you could simply affix “Post It Note” or other flip chart paper to the walls and write your way
across each zone. Remember, Aldo Leopold said, “The first rule of intelligent tinkering is to save all the
pieces!” These are all the pieces of recreation. So don’t leave any of them out, but help keep it simple by
the way you moderate and how you arrange flip charts to record participant output. The following graphic
representation will help efficiently set up the focus group meeting:
Activities
Zone
1:________
Zone
2:________
Zone
3:________

Experiences

Benefits

Settings

Actions

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The moderator leads the discussion, and the assistant moderator records the discussion on the
flip chart.
"As a recreation participant, you engage in a variety of recreation activities in your outings within in the
area. Which activities have you participated in or seen other visitors doing?” (Add a new header to the
activities flip chart, indicating that it is for visitors)
VI. Recreation experiences (15 minutes).
"For every recreation outing, participants derive experiences. Experiences are psychological outcomes or
the immediate states of mind that come to us as we engage in recreation.
“We’re now going to hand out an initial checklist of experiences. Do not feel constrained by the items on
this list, but instead use it as a worksheet to make you think about your own experiences and those of
others. For each recreation activity in which you’ve participated, list some of the most enjoyable or
satisfying experiences that go with that activity. If you desire experiences that you don’t see listed, that’s
OK. Just tell us what is important to you.”
The assistant moderator hands out the experience checklist and then pairs the experiences that
come from the discussion with the activities just recorded. (Hint: Devise a numbering system to
track across from the activities to the experiences on the next flip chart.)
VII. Benefits (30 minutes).
“Thus far, we have talked about the importance of the
area to your own
attainment of personal experiences derived from recreation participation. Now, let's talk about the ensuing
benefits or beneficial outcomes that stay with you after your recreation outing. What we mean by
“benefits” are improved conditions, maintained conditions, and the prevention of worse conditions. Done
right, we know that recreation can improve our lives in many ways; but done wrong, it can have the
opposite outcome.”
So, to begin with, we would like to have you think about the more lasting ways in which recreation in this
area improves conditions for individuals. Remember, these are the value-added conditions that you attain
from recreating within the __________________________ Recreation Management Area, and which you
believe other visitors also derive from their own recreation engagements.”
“We’re handing out another checklist, this one on benefits, to help jog your minds about the specific kinds
of beneficial and disbeneficial outcomes most important to you. You’ll notice there are four kinds of
benefits on this list.”
- Individual or personal benefits may include things like improved physical fitness, a restored mind from
unwanted stress, a greater understanding and appreciation of rural values, and the acquisition of new
outdoor skills.
- Social or community benefits may include greater community cohesion, greater involvement in
community affairs, improved family bonding, reduced exposure to at-risk youth, an improved quality of
life, greater cultivation of outdoor-oriented lifestyles, and sustained cultural integrity.
- Economic benefits address such things as greater economic stability, improved job performance,
greater community productivity, and improved opportunities for local business.
- Environmental benefits include improved conditions, such as improved visitor resource stewardship,
greater community involvement in environmental issues, greater stewardship of the land, and
sustainability of a community’s small-town atmosphere.

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“So let us have you start by focusing only on personal benefits. Think about your own previous recreation
outings within the
Recreation Management Area. As you do, take a minute or
two to circle some of the individual or personal benefit items on the benefits checklist worksheet that
you would like to attain, and that you believe others should be able to attain, from recreation outings in
this recreation management area. Once again, be sure to list those things most important to you or to
others.”
“After a couple of minutes of doing this, we will have you share them with one another.”
The assistant moderator hands out the benefits checklist and writes down answers on the third
flip chart or third set of recording sheets on the wall.

“Now, let’s shift gears a bit and think about benefits realized by like households, groups, and even the
entire community. We especially want to focus on the perspectives of those recreation participants who
also live here locally. We want to identify some of the benefits that you believe people who live within the
adjoining community or communities derive from their own outings within this recreation management
area…and the outings of others. So let’s think about what is most important to your own households and
your communities.”
“Before you start, don’t forget that benefits also include prevention of worsened conditions. These are
what we call “disbeneficial outcomes.” So if you can think of some of these that you would like to avoid,
you may want to have us list some of these as well. There is a list of disbenefits on the reverse side of the
handout.”
Now, write down these answers on the flip chart.
“Next, let’s think about the economic benefits that are realized by businesses and the local economy
because of the
Recreation Management Area. Identify some of the economic
benefits that you believe your community should derive or already does from recreation-tourism use of
the recreation management area and associated visits to your community.”
Again, write down these answers on the flip chart.
“Finally, identify some of the environmental benefits that you believe should be accruing to the natural
landscape or to the community environment because of the
Recreation Management
Area.”
Last, write down these answers on the flip chart.
“Now, before we finish this section, take a few minutes to think about the importance of these four
different kinds of benefits as we plan for the future of the
Recreation
Management Area. Then, on the experience and benefits checklist worksheet, rank them in descending
order—most important first. Do a separate ranking of benefits within each category, indicating relative
importance to you and your community.”

Record the rankings on a flip chart (following each of the four benefit categories, include as many
blanks as there are participants in the room).

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Some Possible Probes:
Remind participants to think of personal benefits and benefits to households, the community as a
whole, and the environment.
If the ___________________________ Recreation Management Area was not here, what kinds
of benefits do you think would no longer be realized?
If the ___________________________ Recreation Management Area ceased to exist, are there
any disbenefits that you would look forward to going away?
VIII. Identify important PHYSICAL settings in the Recreation Management Area (10 minutes)
(Refer to the natural resource settings matrix.)
The assistant moderator hands out the natural resource settings matrix.
“In addition to the activities you have identified, now please think about the recreation setting character
of the
Recreation Management Area. “Setting” refers to an area’s distinctive
environmental character. It’s any unit’s distinguishing physical, social, and administrative features. These
features distinguish the area from other management units and define its uniqueness.
“The first of three different categories of setting characteristics is physical. This involves the character of
the land and resources and all manmade facilities. An example might be an area’s remoteness and both
type and location of area roads and trails. Another involves naturalness or the level of development,
including physical evidence of grazing, mining, or other land uses.”
On the settings matrix worksheet, circle the physical setting characteristics that you believe are
essential for producing the kinds of experiences and other beneficial outcomes you identified
earlier for the
Recreation Management Area.
“Notice that setting conditions differ according to the specific kinds of activity, experience, and benefit
opportunities being produced. So, once again, think in terms of individual management units/zones.
The assistant moderator should now move to the fourth flip chart (or wall chart set) to track
st
nd
rd
responses contextually across from activities (1 ), to experiences (2 ), to benefits (3 ), and to
th
settings (4 ).
IX. Identify important SOCIAL settings in the recreation management area (10 minutes).
(Refer again to the natural resource settings matrix.)
“The second setting condition is social. This involves the character of recreation use and types of visitors
using an area. Examples include numbers of other parties or groups encountered in the area and
evidence of other visitors having been in the area.”
“On the settings matrix worksheet, circle the social setting characteristics that you believe are essential
for producing the kinds of experiences and other beneficial outcomes you identified earlier for
the
Recreation Management Area.”
X. Identify important ADMINISTRATIVE settings in the recreation management area (10 minutes).
(Refer again to the natural resource settings matrix.)
“The third setting condition is administrative. This is a bit more difficult to describe, but it involves the
way in which recreation-tourism providers serve visitors, control use, and manage the area. Examples
include the kinds of services provided to accommodate recreation use and to enhance visitor enjoyment.
Another might be the kinds of administrative controls and limits used to protect resources and visitors.”

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“On the settings matrix worksheet, circle the administrative setting characteristics that you believe are
essential for producing the kinds of experiences and other beneficial outcomes you identified
earlier for the
Recreation Management Area.
XI. Begin discussion of implementation actions (25 minutes).

“Producing the right kinds of recreation opportunities (i.e., activities, experiences, and benefits) and
sustaining desired recreation setting characteristics (i.e., physical, social, and administrative) requires
implementing the right kinds of management actions. There was a time when recreation plans began and
ended with this step alone, giving no thought for the positive and negative consequences to settings and
recreation opportunity production. We learned some time ago that this doesn’t work very well. While many
believe that recreation is inherently good, not all recreation ends up adding value to people’s lives unless
it is structured to explicitly achieve those ends.”
“We are now going to ask you to think through each of the paired sets of desired outcomes you have
identified for each zone—as well as your corresponding desires for recreation settings—and identify
some of the most important actions you think must be taken to achieve those ends. Think not just in terms
of what is appropriate for the BLM, but also, perhaps, actions that affect local government and business
partners within the community.”
“We’ve organized our flip charts by four distinct kinds of actions, and we would like you to focus the
discussion on these four categories.”
- Management actions are combined BLM recreation resource, facility, and visitor service actions and
collaborating local government and recreation-tourism service provider business partners.
- Marketing actions are the combined recreation information and education, promotion, interpretation,
and environmental education actions of the BLM and its collaborating local government and
recreation-tourism service provider business partners.
- Monitoring actions are the combined assessment and evaluation actions of the BLM and its
collaborating local government and recreation-tourism service provider partners required to
consistently determine whether management objectives are being met, prescribed setting
characteristics are being sustained, and whether all planned management, marketing, and
administrative actions have been implemented.
- Administrative actions are the combined legislative, legal, data, and budgetary actions of the BLM and
its collaborating local government and recreation-tourism service provider partners required to support
planned management, marketing, and monitoring inputs.
“Let’s begin with zone #1.”
The assistant moderator ensures that the fifth flip chart or set of wall charts for “Implementation
Actions” has these four subheaders penciled in for each zone.
[Total Elapsed Time: 120 minutes]

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Illustration 2 – Example of a Questionnaire
Dear ____________________ Resource Area Visitor:
Thank you for visiting public lands administered by the Bureau of Land Management and for
agreeing to participate in this study. We are conducting this questionnaire to learn more about
public lands visitors so that the BLM can improve their management of the area and enhance
visitor recreation opportunities.
The questionnaire is anonymous, and your participation is voluntary. You have been chosen
randomly to represent visitors to public lands, so your participation is of great importance to us.
Your questionnaire has an identification number so that we can track distribution. All of the
information we collect will be used for statistical purposes and at no time will your name be
identified with any results. You are free to withdraw from the study at any time without any type
of penalty. Returning the questionnaire will be considered your consent to participate.
If you have any questions about the survey, please feel free to contact ____________ at (###)
###-####. Thanks again!
PART 1- First, we would like to begin by asking some questions about your recent visit to the
___________________ Resource Area where you received this survey.
1. Was visiting these BLM public lands the main reason for taking your trip away from home? (please  one)
 Yes
 No
2. What type of overnight accommodations did you use while in the area? (please  all that apply)
 I didn’t stay overnight in the area (go to Question 3)
 Camped in a BLM-designated campground
 Camped on BLM public lands (not a campground)
 Private home
 Commercial campground

 Hotel/motel/resort
 Camped in another public campground
 Camped on other public lands
 Bed and breakfast
 Other (specify)

2a. If you did stay overnight, how many nights did you stay? _________
2b. Where were the above accommodations located? (please  all that apply)
 In the __________ Resource Area
 Eagle
 Denver metro area
 Grand Junction
 Carbondale
 Vail
 Other (please specify)

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3. Which of the following information sources did you use for this trip? First, check all the boxes that apply in
column A. Next, circle how helpful each information source was in column B.
A - Used
B - Helpfulness
Not at all
Slightly
Moderately
Very
Used
helpful
helpful
helpful
helpful

Map(s) of area
1
2
3
4

Public land agency brochure
1
2
3
4

Past personal experience
1
2
3
4

Travel magazines
1
2
3
4

Travel club (AAA, etc.)
1
2
3
4

Travel books/guides
1
2
3
4

Outdoor magazines
1
2
3
4

Newspaper travel section
1
2
3
4

State welcome center
1
2
3
4

Park visitor center
1
2
3
4

Local visitor center/chamber
1
2
3
4

Internet
1
2
3
4

Signs/roadside displays
1
2
3
4

Rangers/BLM staff
1
2
3
4

Commercial guides
1
2
3
4

Local business people
1
2
3
4

Friends/relatives
1
2
3
4

Travel agent
1
2
3
4

Other (specify)
1
2
3
4
4. How many years have you been visiting the BLM public land area where you were contacted for this study?
(If this was your first visit, please enter 1)
year(s)
5. Overall, how satisfied were you with your visit to this BLM public land area? (circle one)
Not at all
Satisfied
1

Slightly
Satisfied
2

Moderately
Satisfied
3

Very
Satisfied
4

Extremely
Satisfied
5

6. To what extent did each of the following contribute to your satisfaction while visiting these BLM public lands?
(circle one number for each)
Contributed
Contributed
Contributed
Some
Most
a. The natural places (e.g., mountains, streams)
1
2
3
4
5
b. The cultural places (e.g., mines, historic sites)
1
2
3
4
5
c. The activities (e.g., four-wheeling, hiking)
1
2
3
4
5
d. The companionship of the people in my group
1
2
3
4
5
e. The towns (e.g., Glenwood Springs, Eagle)
1
2
3
4
5
f. The opportunity to think and reflect
1
2
3
4
5

7. Please estimate the amount of money you and your group spent on your recent trip within 100 miles of these
BLM public lands. (enter the amount for each category):
Lodging (hotels, motels, resorts, campgrounds, etc.)

$

Shopping and gifts (clothing, gifts, souvenirs, etc.)

$

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Food, meals, and drink (restaurants, groceries, taverns, etc.)

$

Tourist services (jeep tours, jeep rentals, museums, outfitters, etc.)

$

Gas and transportation costs

$

Other (please specify)

$

PART 2 - Now we would like to ask you some questions about your favorite part of the public lands
in the _________________ Resource Area and favorite recreation activity.
8. On the map you received while visiting the _______________ Resource Area, you will notice that the land is
divided into zones, and each zone is labeled with a number. Please identify the zone from your map that added
most to your satisfaction during your visit to the ________________ Resource Area by checking the appropriate
box below. (Please check one)










Zone 1 Red Hill - Mushroom Rock
Zone 2 Red Hill - Northside
Zone 3 Hard Scrabble
Zone 4 East Eagle

Zone 5 Bocco Mountain
Zone 6 Castle Peak - East
Zone 7 Castle Peak - Backcountry
Zone 8 Winter Ridge - Pisgah Mountain

9. Estimate the number of other groups of people you saw in your most satisfying zone on this trip:
___________ groups

10. Please circle the number that best represents how crowded you felt during your visit to your most satisfying
zone.
Not at all crowded
1

2

Slightly crowded
3

4

Moderately crowded
5

6

7

Extremely crowded
8

9

11. Please indicate all the activities from the list below in which you participated in your most satisfying zone.
( all that apply)
backpacking
mountain biking
_______ hunting
camping
driving/general sightseeing

___ ATV riding
___ hiking/walking
___ horseback riding
___ motorcycling
___ photography

___ nature study
___ target practice
___ four-wheel driving
___ scouting (for hunting)
___ watching wildlife

12. Next, please write which activity, from the above list, was your most satisfying activity for this visit.
______________________________________
13. How many years have you participated in this activity? _______ year(s)
14. Approximately how many times have you participated in this activity over the past 12 months? _______ times
15. Comparing yourself to others who participate in this activity, how would you evaluate your current level of skill
in this activity on the following scale from one to five? (Please circle one)
Novice/Beginner -- 1

2

3

4

5 -- Highly Skilled

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16. How would you rate this activity as compared with your other leisure pursuits? (Please check one)
 This is my favorite leisure interest.
 This is among of my favorite leisure interests.
 I have other leisure interests that are preferred over this activity.
17. How much money do you have invested in specialized equipment and clothing related to this activity? (Please
provide an approximate estimate) $ ________________

PART 3 - Now we would like to ask you some questions about the experiences and benefits you
received from participating in your favorite activity in your favorite zone while visiting public lands
within the _________________ Resource Area.
18. Managers would like to know more about the experiences you achieve by participating in your most satisfying
activity in your most satisfying zone. First, indicate how desirable each of the following experiences was to you
when you made the decision to take this trip. Then, rate the degree to which you were able to attain each experience
during the trip (circle appropriate numbers for desirability and attainability)
Desirable to You
Not at all
Extremely
desirable
desirable
1
2
3
4
5
1

2

3

4

5

1
1
1
1
1
1
1
1
1

2
2
2
2
2
2
2
2
2

3
3
3
3
3
3
3
3
3

4
4
4
4
4
4
4
4
4

5
5
5
5
5
5
5
5
5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1
1

2
2

3
3

4
4

5
5

1

2

3

4

5

1
1
1
1

2
2
2
2

3
3
3
3

4
4
4
4

5
5
5
5

1

2

3

4

5

Personal experiences
Develop my skills and abilities
Enjoy the area’s wildlife, scenery, views,
and aesthetics.
Enjoy exploring on my/our own
Enjoy risk-taking adventure
Enjoy closeness to family/friends
Enjoy group affiliation and togetherness
Experience the natural surroundings
Learn more about things here
Able to be more contemplative
Get some needed physical exercise
Experience adventure and excitement
Release or reduce some built-up mental
tension
Escape everyday responsibilities for a
while
Enjoy the solitude
Enjoy frequent access to outdoor physical
activity
Gain a greater sense of self-confidence
Test my equipment
Be with others who enjoy the same things
I enjoy
For the challenge or sport
Get needed physical rest
Enjoy a sense of independence
Test my endurance
Reflect on my character and personal
values

Able to Attain
Not at all
Totally
attained
attained
1
2
3
4
5
1

2

3

4

5

1
1
1
1
1
1
1
1
1

2
2
2
2
2
2
2
2
2

3
3
3
3
3
3
3
3
3

4
4
4
4
4
4
4
4
4

5
5
5
5
5
5
5
5
5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1
1

2
2

3
3

4
4

5
5

1

2

3

4

5

1
1
1
1

2
2
2
2

3
3
3
3

4
4
4
4

5
5
5
5

1

2

3

4

5

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19. Managers would like to know more about the benefits you achieve by participating in your most satisfying
activity within your most satisfying zone. First, indicate how desirable each of the following benefits was to you
when you made the decision to visit public lands. Then, rate the degree to which you were able to attain each benefit
as a result of your recreation experience in this zone. (circle appropriate numbers for desirability and attainability)
Desirable to You
Not at all
Extremely
desirable
desirable
1

2

3

4

5

1

2

3

4

5

1
1
1

2
2
2

3
3
3

4
4
4

5
5
5

1

2

3

4

5

1
1

2
2

3
3

4
4

5
5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

Personal Benefits
Restore my mind from
stress/tension/anxiety
Improve physical fitness and health
maintenance
Greater self-reliance
Enhance sense of personal freedom
Improve sense of control over my life
Improve outdoor knowledge and selfconfidence
Live a more outdoor-oriented lifestyle
Restore my body from fatigue
Develop stronger ties with my family or
friends
Greater freedom from urban living
Improve ability to relate to local residents
and their culture
Increase personal accountability to act
responsibly on public lands
Increase appreciation of the area’s
cultural history
Greater respect for private property and
local lifestyles
Closer relationship with natural world
Greater understanding of the importance
of wildlife to my quality of life
Greater aesthetic appreciation
Improve balance of work and play in my
life
Improve outdoor recreation skills
Greater awareness of this community as a
special place
Improve opportunity to view wildlife up
close
Increase opportunity for artistic
expression

Able to Attain
Not at all
Totally
attained
attained
1

2

3

4

5

1

2

3

4

5

1
1
1

2
2
2

3
3
3

4
4
4

5
5
5

1

2

3

4

5

1
1

2
2

3
3

4
4

5
5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

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20. Managers would like to know more about the community, environmental, and economic benefits that are desired
and attained from participating in your most satisfying activity in your most satisfying zone. First, indicate how
desirable each of the following benefits is to you. Then, rate the degree to which you believe that each of these
benefits is actually attained by you and others who visit this zone. (circle appropriate numbers for desirability and
attainability)
Desirable to You
Not at all
Extremely
desirable
desirable
1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1
1

2
2

3
3

4
4

5
5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1
1
1

2
2
2

3
3
3

4
4
4

5
5
5

Community, Environmental, and Economic
Benefits
Greater household awareness of and
appreciation for our cultural heritage
Increase desirability as a place to live or retire
Strengthen relationships with family and
friends
Greater community involvement in recreation
and other land use decisions
Greater family bonding
Lifestyle improvement or maintenance
Maintenance/preservation of distinctive
community atmosphere
Heighten sense of community pride and
satisfaction
Improve respect for privately owned lands
Increase awareness and protection of natural
landscapes
Greater community ownership and
stewardship of recreation and natural
resources
Greater protection of fish, wildlife, and plant
habitat from growth, development, and public
use impacts
Maintenance/preservation of distinctive public
land recreation setting character
Increase work productivity
Increase local tourism revenue
Reduce health maintenance cost

Able to Attain
Not at all
Totally
attained
attained
1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1
1

2
2

3
3

4
4

5
5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1

2

3

4

5

1
1
1

2
2
2

3
3
3

4
4
4

5
5
5

21. For the zone that contributed most to your satisfaction, please indicate your preference for how each of the following
recreation setting conditions should be managed. Please base your answer on the character of the recreation setting
condition that would best enhance the experience and benefits you desire. (please  one answer for each of the 12 setting
conditions)
1. Remoteness:

 Make area more isolated

 Leave as is

 Improve ease of vehicle
access to area

2. Naturalness:

 Make a more natural
appearing area

 Leave as is

 Allow more manmade
landscape alterations

3. Facilities:

 Remove some facilities (e.g.,
roads, trails, restrooms)

 Leave as is

 Develop more facilities (e.g.,
roads, trails, restrooms)

4. Foot Trails:

 Reduce/limit foot and
horseback trails

 Leave as is

 Create/allow more foot and
horseback trails

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5. Bike Trails:

 Reduce/limit mountain
bike trails

 Leave as is

 Create/allow mountain
bike trails

6. Motorized Routes:

 Reduce/limit motorized
routes

 Leave as is

 Create/allow motorized
routes

7. Group Size:

 Reduce the group size allowed

 Leave as is

 Encourage larger group size

8. Contacts:

 Lower interaction with others

 Leave as is

 Allow more use and
interaction with others

9. Evidence of Use:

 Rehab and reduce signs of
other’s use

 Leave as is

 More evidence of other
visitors is OK

10. Visitor Services:

 Reduce services, staff contact,
and assistance

 Leave as is

 Provide more services, staff
contact, and assistance

11. Visitor Information:

 Less maps and brochures

 Leave as is

 Provide more maps and
brochures

12. Management
Control:

 Use a more “hands-off”
management style

 Leave as is

 Exercise more visitor and
land use controls

PART 4 - The final section asks for some background information about you and your household.
This information will be kept in strict confidence and will be used for statistical purposes only.
22. Are you …? ( one)
 Male  Female
23. What year were you born? __________
24. Please indicate the highest level of education you have attained. (please circle one)
Junior High
7

8

High School
9

10

11

Graduate
School

College
12

13

14

15

16

25. What was your employment status during the past year ( all that apply)
 Full-time student
 Part-time student
 Employed part time
 Employed full time
 Unemployed
 Homemaker or caregiver
 Retired
 Other (please specify _________)
26. Do you consider yourself to be Hispanic, Latino, or Latina ( one)
 Yes

 No

17

18+

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27. With which racial group(s) do you identify? (please  all that apply)







American Indian or Alaska Native
Asian
Black or African American
Native Hawaiian or other Pacific Islander
White
Other

28. Which of the following broad categories best describes your total annual household income for the last
calendar year ( one)
 $25,000 or less
 $25,001 – $50,000
 $50,001 – $75,000
 $75,001 – $100,000
 $100,001 – $125,000
 $125,001 – $150,000
 More than $150,000
29. If you have any additional comments or suggestions for managers about your most satisfying zone in the
________________ Resource Area, please write them below:

Thank you for your participation!

101

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Illustration 3 – Recreation Management Area Comparison Table
SRMA
Definition

Management
Focus

Specific
Requirements

Common
Requirements

ERMA

Lands Not Designated as
an RMA

Administrative units where the
Administrative units that
All lands not established
existing or proposed recreation
require specific management
as a SRMA or ERMA.
opportunities and recreation
consideration in order to
setting characteristics are
address recreation use, demand,
recognized for their unique
or recreation and visitor
value, importance, and/or
services program investments.
distinctiveness, especially
compared to other areas used
for recreation.
SRMAs are managed to protect ERMAs are managed to support Recreation is not
and enhance a targeted set of
and sustain the principal
emphasized. However,
activities, experiences and
recreation activities and the
recreation activities may
benefits, and desired recreation
associated qualities and
occur. Recreation and
setting characteristics. Within
conditions of the ERMA.
visitor services are
SRMAs, recreation and visitor
ERMA management is
managed to allow
services management is
commensurate and considered
recreation uses that are
recognized as the predominant
in context with the management not in conflict with the
land use plan focus, where
of other resources and resource
primary uses for these
specific recreation opportunities uses.
lands.
and recreation setting
characteristics are managed and
protected on a long-term basis.
SRMAs/recreation management ERMAs must have measurable
Management actions and
zones must have measurable
objectives. Supporting
allowable use decisions
outcome-focused objectives.
management actions and
may still be necessary to
Supporting management actions allowable use decisions must
address basic recreation
and allowable use decisions are facilitate the visitor’s ability to
and visitor services and
required to: (1) sustain or
participate in outdoor recreation resource stewardship
enhance recreation objectives;
activities and protect the
needs.
(2) protect the desired
associated qualities and
recreation setting
conditions. Noncompatible
characteristics; and (3)
uses, including some recreation
constrain uses, including
activities, may be restricted or
noncompatible recreation
constrained to achieve
activities that are detrimental to interdisciplinary objectives.
meeting recreation or other
critical resource objectives.
All areas are managed to meet statutory requirements to ensure resource protection, ensure
human health and safety, and reduce conflict, as well as achieve other program planning
objectives.

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Illustration 4 – Actions to Maintain or Enhance Recreation Setting Characteristics

Naturalness

Remoteness

Physical
RSCs

Possible Actions
to Enhance or Maintain Physical RSCs










Identify right-of-way avoidance or exclusion areas.
Identify right-of-way corridors.
Identify existing and potential development areas for renewable energy projects.
Apply closure to wood cutting and commercial timber harvest.
Revise travel designations.
Close and rehabilitate roads and trails.
Apply seasonal travel restrictions.
Require administrative use agreements for permittees.









Apply no surface occupancy/no surface-disturbing activity stipulation.
Apply controlled surface use stipulation.
Identify areas open and closed to oil and gas leasing.
Designate visual resource management classes.
Identify areas open or closed to mineral material disposal (salable minerals).
Identify areas open or closed to nonenergy mineral leasing and development.
Recommend areas for closure in accordance with mining laws for locatable
mineral exploration or development.
Propose existing withdrawals to be continued, modified, or revoked.
Identify right-of-way avoidance or exclusion areas.
Identify right-of-way corridors.
Identify existing and potential development areas for renewable energy projects.
Identify areas that are available for timber harvest or special forest product
harvest.
Identify lands available or not available for livestock grazing.
Identify coal lands that are acceptable and not acceptable for further
consideration for coal leasing and development.
Identify the geographic areas that are suitable for wildland fire use.
Identify restrictions on fire management practices.
Identify decisions to protect or preserve wilderness characteristics.









Visitor
Facilities





 Identify the construction or removal of recreation facilities and trails.
 Identify the use of RSCs to guide the type, nature, or form of recreation
facilities.
 Identify decisions to protect or preserve wilderness characteristics.

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Evidence of Use Group Size

Contacts

Social
RSCs

Possible Actions
to Enhance or Maintain Social RSCs
 Establish a permit system.
 Establish a lottery system for permits.
 Identify special area designations for the purpose of individual special
recreation permits.
 Place limitations on commercial, competitive, or organized group special
recreation permits.
 Revise off-highway vehicle area designations.
 Identify timing limitations on other resource uses.
 Establish public group size limitations.
 Issue individual special recreation permits.
 Place group size limitations on commercial, competitive, or organized group
special recreation permits.







Visitor
Services

Access

Operational
RSCs

Establish designated camping areas.
Establish closures to camping.
Establish firearm use restrictions or closures to target shooting.
Require the use of fire pans for campfires.
Require the use of portable stoves (no open fires).
Establish a human waste carry-out requirement.

Possible Actions
to Enhance or Maintain Operational RSCs

 Identify right-of-way avoidance or exclusion areas.
 Identify right-of-way corridors.
 Identify existing and potential development areas for renewable energy
projects.
 Apply closure to wood cutting and commercial timber harvest.
 Revise off-highway vehicle area designations.
 Close and rehabilitate roads and trails.
 Apply seasonal travel restrictions.





Increase field staff.
Start or stop the creation of brochures, maps, etc.
Adjust web-based media.
Install or limit directional or informational signs.

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Management
Controls

Operational
RSCs

Possible Actions
to Enhance or Maintain Operational RSCs








Establish limitations on camping.
Establish firearm use restrictions on target shooting.
Establish or eliminate fees.
Establish a human waste carryout requirement.
Require special recreation permit issuance.
Establish a recreation use permit requirement.

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Illustration 5 – Examples of Effects Analysis
Example of the No Action Alternative
Consideration for Analysis: Describe the consequences as if there is no change in existing
management (implementation actions, settings, or outcomes).
Analysis: Under the no action alternative, the Sunset Mountains will continue to be identified as
part of a field office-wide extensive recreation management area (ERMA) and managed under
direction set forth in the 1986 resource management plan. However, continuing to manage every
BLM acre as either a special recreation management area (SRMA) or ERMA is no longer
required and not in compliance with current policy established by BLM Manual 8320, “Planning
for Recreation and Visitors Services,” and Instruction Memorandum No. 2011-004. Recreation
management will remain focused on providing visitor information, constructing sanitation
facilities, and resolving management issues as they arise. Visitors will continue to participate in a
variety of dispersed recreation activities, including camping, hunting, motorsports, and hula
dancing. This custodial management direction has not appropriately dealt with known visitor use
conflicts and has resulted in the haphazard creation of many small, isolated recreation sites with
toilet facilities that are time consuming to maintain.
Examples of Considerations for SRMAs
Example 1
Consideration for Analysis: Describe impacts to the unique, important, or distinctive recreation
values of the area, especially as compared to other areas used for recreation.
Analysis: Alternative B proposes to designate the Red Table Mesa SRMA in recognition of the
area’s distinctive recreation value as the only year-round technical, single-track motorcycle trail
system in the tricounty area. The regionally popular destination is on a scenic mesa just 5 miles
from the gateway community of Riderville. The proposed SRMA designation found in
Alternative B will best meet the anticipated recreation demand for year-round motorcycling in
the region.
Example 2
Consideration for Analysis: Describe impacts to recreation opportunities (activities, experiences,
and benefits) that the area currently offers or potentially could offer. In some cases, the existing
recreation opportunities may not be the same as the targeted recreation opportunities.
Analysis: Alternative D proposes to create a nonmotorized recreation setting for the target
activity of mountain biking. This activity emphasis will eliminate traditional motorized
recreation activities along with the experiences and benefits derived from motorized recreation
activities.
Example 3
Consideration for Analysis: Describe impacts to physical, social, or operational recreation setting
characteristics (RSCs).

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Analysis: Respondents said that all physical, social, and operational RSCs should generally be
left as is but that more information should be available for visitors. However, Alternative E
places more of an emphasis on land uses, such as oil and gas production, mining, and timber
harvest. The accompanying management actions and additional public land infrastructure will
create physical recreation settings that: (1) are less remote from roads, (2) are less natural
appearing, and (3) contain more land use facilities. For the physical RSC of remoteness, 82,000
acres currently classified as back country will be converted to the front country classification.
Example 4
Consideration for Analysis: Describe impacts of land use plan-level supporting management
actions and allowable uses for recreation and visitor services (R&VS) on SRMAs.
Analysis: The proposed R&VS decisions in Alternative A will maintain the desired social RSCs,
including number of contacts, group size, and evidence of use within the desired middle country
RSC classification in the Lonely River SRMA. It does this by establishing a recreation permit
system that addresses group size limits and requires camping in designated sites.
Example 5
Consideration for Analysis: Describe impacts related to special recreation permits, including the
type(s), activities, and locations where special recreation permits will or will not be issued.
Analysis: No new special recreation permits will be authorized unless they are determined to
help visitors realize the targeted activities, experiences, and benefits. The terms and conditions of
existing commercial special recreation permits will be modified as necessary to comply with the
revised recreation objective, desired RSCs, and recreation restrictions. No competitive events
will be authorized in the SRMA during the peak visitation periods from April through October to
reduce user conflicts.
Example 6
Consideration for Analysis: Describe impacts related to visitor health and safety, resource
protection, and use or user conflicts.
Analysis: All alternatives include specific protective measures and management actions to
protect resources and provide for visitor safety. Protective measures and management actions
include firearm use restrictions, parking restrictions, and camping and overnight use restrictions.
Example 7
Consideration for Analysis: Describe the availability and ability of partners and other recreation
program facility service providers to deliver services or complement management actions.
Analysis: Partnership and cooperative management opportunities exist to double the existing 50mile trail system as well as connect to the longer distance trails that extend to the towns of
Puckett and Danciger.

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Example 8
Consideration for Analysis: Describe beneficial impact to R&VS from establishing terms,
conditions, or special considerations for other resource programs necessary to achieve the
SRMA/recreation management zone objective(s).
Analysis: The existing RSCs of naturalness and remoteness will be retained and protected on a
long-term basis through a variety of proposed management actions and allowable use decisions
(e.g., no surface occupancy stipulations; visual resource management class II designations; rightof-way avoidance area identification; travel designations; and closure to mineral materials sales,
wood cutting, commercial timber management, and nonenergy solid mineral leasing).
Examples of Considerations for ERMAs
Example 1
Consideration for Analysis: Describe impacts to recreation use, demand, or R&VS program
investments that require specific management consideration.
Analysis: Alternatives B and D propose designating the Dry River corridor as an ERMA in
recognition of existing seasonal tourism attraction and the significant R&VS program facility
investments. The small, fragmented parcels of BLM land provide valuable river access but are
not unique or distinctive, especially as compared to other rivers in the region. The ERMA
designation will acknowledge the R&VS program’s administrative and managerial needs, sustain
the principal recreation activities, and maintain the physical and operational qualities and
conditions of the ERMA.
Example 2
Consideration for Analysis: Describe the ability to support and sustain the principal recreation
activities and the associated qualities and conditions of the ERMA.
Analysis: Route designations will maintain the current single-track mountain bike and
motorcycle trail system. However, some routes will be closed due to resource concerns and
trespass on private lands. Protective measures and management actions to protect resource
conditions and provide for visitor safety include firearm use restrictions, parking restrictions, and
camping/overnight use restrictions.
Example 3
Consideration for Analysis: Describe the ability to maintain particular RSCs.
Analysis: The Nepal Mountain visitor study (Hindu et al. 2009) indicated that retaining the
current degree of naturalness of BLM lands was an important contribution to realizing the
recreation experiences and benefits afforded by the area. Application of a recreation-specific
controlled surface use stipulation will help retain the current physical RSCs, such as naturalness,
near existing recreation trails and facilities by requiring surface-disturbing activities that could
negatively impact recreation settings to be moved more than 200 meters away from recreation
trails and facilities.

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Example 4
Consideration for Analysis: Describe the ability to manage recreation commensurate with the
management of other resources and resource uses.
Analysis: Under Alternative C, the principal recreation activities of hiking and horseback riding
are consistent with and will be managed commensurate with the protection of wilderness
characteristics, which emphasize primitive and unconfined recreation opportunities. Management
actions and allowable use decisions to protect wilderness characteristics will indirectly retain the
existing physical RSCs.
Example 5
Consideration for Analysis: Describe beneficial impacts to R&VS from establishing terms,
conditions, or special considerations for other resource programs necessary to achieve the
SRMA/recreation management zone objective(s).
Analysis: The physical RSCs within will be mostly retained through proposed management
actions and allowable use decisions. The application of a controlled surface use stipulation will
be a moderate constraint on surface use, occupancy, and surface-disturbing activities. The
stipulation, along with the accompanying visual resource management class II/III designations
and travel designations, will retain the natural landscape character of the area and the existing
level of remoteness.
Example of Land Not Designated as a Recreation Management Area
Consideration for Analysis: Describe the impacts of not designating recreation management
areas and not managing to meet basic R&VS and resource stewardship needs.
Analysis: BLM lands not included in a recreation management area emphasize other
nonrecreational resource uses. These lands not designated as a recreation management area will
be managed to meet basic R&VS and resource stewardship needs and achieve BLM field officewide recreation objectives. The area does not have recreation opportunities or RSCs that are
unique or distinctive because the recreation settings have been compromised due to intensive oil,
gas, and renewable energy development. No R&VS program investments have been made that
require specific management considerations. Although recreation is not emphasized, a variety of
dispersed recreation activities will continue to occur, including seasonal activities such as big
game hunting. The BLM and its managing partners will monitor recreation use and resources.
Implementation actions will be adaptively performed, as necessary, to address (1) visitor health
and safety; (2) use and user conflicts; (3) the type(s), activities, and locations where special
recreation permits will or will not be issued; and (4) mitigation of recreation impacts on cultural
and natural resources.

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Illustration 6 – Examples of Monitoring Forms for Social
Recreation Setting Characteristics

Colorado River – Social Monitoring Patrol
(Monitoring people and the signs of people)
Patrol by:

Name: __________________________
Date: ____/____/____

Company:_________________________________

Day of Week (circle):

Mon Tue

Wed

Thu

Fri

Sat

Sun

Route Patrolled: Colorado River from Pumphouse to Dotsero
Note: Count shore or floating groups by segments identified below. #4 “Evidence of Use” does not need to be completed each
time.
Pumphouse

- Radium

1. NUMBER of other floating GROUPS
seen while floating
2. NUMBER of other land-based GROUPS
encountered while CAMPING
3. Estimated AVERAGE observed GROUP
SIZE
4. EVIDENCE OF USE (check []
appropriate description):

L
e
s
s






M
o
r
e

Only footprints observed. No noise or
litter.
Footprints/bicycle tracks observed.
Noise and litter infrequent. Slight
vegetation trampling at campsites and
popular areas. Fire rings seen.
Vehicle tracks observed. Occasional
noise and litter. Vegetation and soils
becoming worn at campsites and highuse areas.
Vehicle tracks common. Some
noise/litter. Vegetation and soils
commonly worn at campsites, along
travel routes, and popular areas.
Frequent noise and litter. Large but
localized areas of vegetation damage
and soil compaction.
Unfavorable noise, music, and litter.
Widespread vegetation damage and soil
compaction.

Notes:

Radium Rancho del
Rio

Rancho del
Rio - State
Bridge

State Bridge Catamount

Catamount Burns

Burns Cottonwood

Cottonwood
- Dotsero

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Eagle Area – Social Monitoring Patrol
(Monitoring people and the signs of people)

Patrol by:

Name: ________________________

Date: ___/___/___

Day of Week (circle): Mon Tue Wed Thu Fri Sat Sun

a.m. or afternoon or p.m.
(circle)

Route Patrolled: Eagle Area Loops
Note: Count groups encountered on loops identified below. Begin counting after you depart trailhead. For the
Race Course Loop, count people on private and public lands. #3 “Evidence of Use” does not have to be
completed each time.
East Eagle Loop

1.
2.
3.

NUMBER of other GROUPS seen while TRAVELING
Estimated AVERAGE observed GROUP SIZE
EIDENCE OF USE (check [] appropriate description):
Only footprints observed. No noise filter.
Footprints/bicycle tracks observed. Noise and litter infrequent.
Slight vegetation trampling at campsites and popular areas. Fire
rings seen.
Vehicle tracks observed. Occasional noise and litter. Vegetation
and soils becoming worn at campsites and at high-use areas.
Vehicle tracks common. Some noise/litter. Vegetation and soils
commonly worn at campsites, along travel routes, and at popular
areas.
Frequent noise and litter. Large but localized areas with vegetation
damage and soil compaction.
Unavoidable noise, music, and litter. Widespread vegetation
damage and soil compaction.

Notes:

Hockett Loop

Race Course Loop

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Illustration 7 – Example of a Basic Monitoring Strategy for a
Recreation Management Area/Recreation Management Zone
Indicator

Standard

RMA/RMZ Objective
Conduct
Activities
monitoring of all
known recreation
activities and their
impacts on the
primary activities.

Participants in
visitor assessments
report an average
4.0 realization of
the targeted
experiences and
benefits (4.0 on a
probability scale,
where 1 equals not
realized and 5
equals totally
realized).
Desired Physical RSCs
Remoteness Remoteness from
motorized vehicles
exists throughout
the RMZ.

Outcomes

Purpose

Determine if
other recreation
activities are
impacting the
primary
activities.

Ensure visitor
realization of
the targeted
outcomes.

Determine if
the current
remoteness is
within the
desired RSC
standard.

Naturalness

The existing
natural landscape
is retained. Any
new,
nonrecreational
modifications are
not visually
obvious or evident
from trails.

Determine if
projects,
activities, or
modifications
have altered the
landform,
vegetation,
water, color, or
character of
the landscape.

Visitor
Facilities

Simple/basic
recreation
developments at
trailheads.
Maintained and
marked trails in
RMZ.

Determine if
recreation
developments
are in
compliance
with desired
RSCs.

Protocol

Frequency

Documentation

Who

Costs

Conduct an
informal
discussion
with the
partnership
group. Provide
field
observations
and incident
reports to the
recreation
planner.
Conduct small
group
discussions
every 5 years
and visitor
surveys every
10 years.

Every
year

Yearend
partnership
summary and
5-year RMA
report

BLM staff

$100/
year

Every
5 years

5-year RMA
report

BLM staff

$2,000
every 5
years
and
$5,000
every
10
years

Conduct a
field
observation
and GIS
analysis for
project
proposals.
Conduct a
field
observation
and GIS
analysis for
project
proposals.

Every
year

Yearend
partnership
summary and
5-year RMA
report

BLM staff

$500/
year

Every
year

Yearend
partnership
summary and
5-year RMA
report

BLM staff

$500/
year

Conduct an
analysis of
recreation
project
proposals and
field
observations
during trail
patrols.

Every
year

Yearend
partnership
summary and
5-year RMA
report

BLM staff

$1,500/
year

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Indicator

Standard

Desired Social RSCs
Participants
Contacts
with Others encounter a season
average of up to 8
encounters per day.

Group Size

Participants
encounter a season
average of up to 6
people per group.

Evidence of
Use

A few small,
localized areas of
vegetation
alteration and
compacted/bare
soils are
acceptable; bare
ground at
designated
campsites will not
expand.
LUP-level
management
actions and
allowable use
decisions are
executed.

LUP-Level
Actions

R&VS
Implementation-Level
Actions
(i.e., access,
visitor
services,
mgmt.
controls)
Visitor
Health and
Safety

Actions are
designed and
implemented with
the intent of
maintaining and/or
achieving the
desired RSCs or
RMA/RMZ
objective.
Ensure visitors are
not exposed to
unhealthy or unsafe
human-created
conditions (defined
by a repeat accident
or health violation
in the same year, of
the same type, in the
same location, due
to the same cause).

Purpose

Protocol

Frequency

Documentation

Who

Costs

Determine if
the recreation
use levels are
within the
desired RSC
standard.
Determine if
the average
group size is
within the
desired RSC
standard.
Determine if
the condition of
dispersed
campsites and
use areas are
within the
desired RSC
standard.

Conduct field
observations
and permit
system
analyses.

Every
year

Yearend
partnership
summary and
5-year RMA
report

BLM staff,
volunteers,
and
outfitters

$800/
year

Conduct field
observations
and permit
system
analyses.

Every
year

Yearend
partnership
summary and
5-year RMA
report

BLM staff,
volunteers,
and
outfitters

$800/
year

Conduct site
impact
indexes using
ground cover
as an
indication of
use impacts.

Every
year

Yearend
partnership
summary and
5-year RMA
report

BLM staff,
volunteers,
and
outfitters

$1,500/
year

Track and
document the
execution of
LUP-level
management
actions and
allowable use
decisions.
Track and
document the
execution of
implementation
decisions.

Conduct a
yearend
partnership
summary and
annual report
for the NEPA
coordinator.

Every
year

Yearend
partnership
summary and
annual report
prepared by
NEPA
coordinator

BLM staff

$250/
year

Conduct a
yearend
partnership
summary and
annual report
for the NEPA
coordinator.

Every
year

Yearend
partnership
summary and
annual report
prepared by
NEPA
coordinator

BLM staff

$1,000/
year

Ensure public
safety and
security.

Conduct an
annual
compilation of
incidences.

Every
year

Yearend
partnership
summary and
annual report

BLM staff

$300/
year

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Appendix 1 – Land Use Planning Checklist for Recreation and Visitor Services

Preparing for a Planning Effort (New Resource Management Plan (RMP),
RMP Revision, or Planning Amendment) 1
Collect planning information/data, determine issues, and identify planning considerations,
participants, and data needs.
 Issues and Concerns: Identify recreation planning issues and management concerns.
These may be categorized as user demand, use/user conflict, visitor health and safety, and
resource protection. Identify rationale to add, drop, or change special recreation
management areas (SRMAs). Also, identify the rationale to add, drop, or change
extensive recreation management areas (ERMAs), and identify the need for multiple
ERMAs, as applicable.
 Preliminary Planning Criteria: Identify recreation-related planning criteria, plan
parameters, and constraints, such as areas or issues that will not be addressed by the plan.
For example, “The Prineville RMP revision will not revisit decisions made in the recently
completed Deschutes River plan.”
 Data Needs and Management: Identify and gather existing recreation-related data
sources, data gaps, and information to gather for plan development, such as community
assessment reports; recreation setting characteristics and other inventories; visitor
surveys; focus groups data; statewide comprehensive outdoor recreation plans; regional
tourism plans; and other relevant recreation, resource setting, community, and economic
data that can be captured and analyzed as data layers in a geographic information system
(GIS).2 Data needs require information to determine:
Recreation Demand: Identify and describe activities, settings, and outcomes that
visitors and residents prefer or demand by specific geographical areas.
Recreation Supply: Identify and describe existing and available physical, social,
and operational settings (i.e., supply). Use recreation setting characteristics and
map using GIS.
 Participants in the Process: Identify likely recreation and tourism stakeholders,
individuals, and interest organizations that should be involved in the planning process
and included in plan development. This will help ensure cooperation and coordination
with other government agencies and potential recreation service providers.
1

Please refer to BLM Washington Office Instruction Memorandum No. 2009-127 and BLM Handbook H-1601-1,
“Land Use Planning,” Appendix F-1, for additional general preparation plan guidance.
2
For specific format and additional information, see Attachment 2 of BLM Washington Office Instruction
Memorandum No. 2009-127.

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Identify agencies and tribal and local governments with recreation interests that
could participate as cooperating agencies or that could have interest as potential
cooperating recreation service providers.
Identify interested and affected members of the public, including user or interest
groups, outfitters and guides, and parks and recreation district staffs.
If requested, identify potential individuals and organizations for Resource
Advisory Council subgroup representatives.
 Planning Schedule: Identify any critical path timeframes, such as steps with required
time limits (e.g., draft NEPA document comment period or the Governor’s consistency
review), and identify factors that influence the collection and analysis of recreationrelated data and information, such as allowing focus groups and workshops time for
travel management planning.
 Budget: Identify labor and operation support costs for filling recreation data gaps and
obtaining critical inventory information. The budget information, along with scheduling
details, will contribute to developing the statement of work if the project is to include
third-party contractors.

Scoping 3
Conduct public scoping and implement public involvement strategies.
 Public Scoping: Develop appropriate public involvement strategies with planning staff to
identify new or affirm preliminary recreation and visitor services (R&VS)-related issues
that should be addressed in the land use plan (LUP), and collect public input regarding
the establishment of SRMAs and ERMAs.
 Additional Parameters: Identify any additional recreation-related planning criteria. In
consideration of public comments, make any needed changes to the scope of the plan. For
example, “Due to public comments received, the Prineville Field Office will revisit the
decisions made in the Deschutes River plan.”
 Scoping Report: Once the scoping period has closed, review the comments, and then
identify and revise the priority recreation issues and concerns that will be addressed by
the planning effort.

3

Public scoping and extensive public involvement is particularly important for recreation and other social,
environmental, and economic issues as it helps determine public expectations, benefits, and potential cooperators for
implementation of plan actions.

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Analysis of the Management Situation (AMS)4
Prepare an area profile that describes the current level and location of recreation use
(chapter 2).
 Special Recreation Management Areas
Identify all existing SRMAs.
Identify any proposed SRMAs.
Identify rationale to add, drop, or change SRMAs.
 Extensive Recreation Management Areas
Identify all existing ERMAs.
Identify any proposed ERMAs.
Identify the need for multiple ERMAs, as applicable, and the rationale to add,
drop, or change ERMAs.
 Recreation Settings and Opportunities: Identify the current amount, type, and
condition of natural resource recreation settings (physical, social, and operational),
available recreation opportunities, and recreation infrastructure/development (onsite and,
if necessary, regional).
Forecast or describe anticipated demand for recreation use (chapter 2).
 Recreation Demand: Identify the public land visitors, including international, national,
and resident customers, as appropriate, and their preferences/demands for:
Physical, social, and operational natural resource recreation settings.
Activity opportunities.
Experience opportunities.
Outcomes (personal, community, economic, and environmental benefits).
 Indicators: Identify data sources and information, such as:
Local/regional/national data.
Input from agencies, governments, and the public.
Monitoring data (i.e., visitor use estimates and use patterns and information
derived from visitor studies and focus group discussions).

4

See BLM Handbook H-1601-1, “Land Use Planning,” Appendix F-3, for additional general AMS guidance. The
intent of this step is to describe the current condition and trends of resources and resource uses within the planning
area and to describe and analyze the adequacy of the current management situation. To complete the AMS, follow
the guidance in BLM Handbook H-1601-1, “Land Use Planning,” Appendix F, p. 12, for consistency and
coordination with other plans and any specific mandates or authorities related to recreation and visitor services.
Much of this information will have already been collected and analyzed as part of the earlier planning stages.

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 Analyze the recreation demand and indicators to make statements related to trends and
forecasts for R&VS. For example, “Analysis of the visitor records and monitoring data
indicates that there has been a 5 percent increase annually of recreation use in the
SRMA.”
Describe key features and areas with high potential for use (chapter 2).
 Identify unique landscapes and areas, and identify types of resource features that should
guide land use allocation and management decisions.
Describe current management direction from all available decision documents (chapter 3).
 Existing Plan Direction: Identify R&VS management decisions from all applicable
BLM plans (RMPs, management framework plans, and plan amendments).
 Existing Operations: Identify pertinent recreation management (including permits),
operational, information, and monitoring activities and direction. Include any applicable
supply and demand information.
Describe potential management opportunities5 (chapter 4).
 Management Capability: Evaluate the ability of current management direction to
achieve desired conditions and address resource demands. Consider:
The ability of current management and recreation supply to meet present and
future demands based on resource and demand trends.
Opportunities to manage the land/people differently.
Field office capacity, in terms of staff, annual budget, partnerships, and workload.
Applicable issues and concerns identified through scoping.
 Evaluate Benefits: Identify areas of relative social, economic, and ecological importance
to the R&VS program.
Offer rationale (i.e., description of important values) regarding why areas might
be considered or dropped as SRMAs.
Describe consistency and coordination with other plans (chapter 5).
 Consistency with Other Entities: Discuss implications to and from other plans (county,
city, state lands, tribal, and federal agency plans).
 Opportunities for Coordination: Identify opportunities for enhancing coordination or
gaining expertise through cooperating agency relationships.
5

Identifying management opportunities is a process that considers how changes in management could respond to
current condition and trend information and scoping issues. It serves as a starting point for alternative formulation (if
applicable) by providing a list of possible management opportunities for later sorting and refining into a framework
of compatible alternatives. Organize the information by following BLM Handbook H-1601-1, Appendix F, p. 11.

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Describe specific mandates and authority—laws, regulations, and policy (chapter 6).
 Other Requirements: Describe applicable state and federal laws, regulations, and policy
requirements that apply to R&VS.

LUP/Plan Amendment NEPA Documentation for Developing an
Environmental Impact Statement (EIS)/Environmental Assessment (EA)6
Introduction (chapter 1)
 For the introduction, briefly explain R&VS issues that were addressed and used to
develop alternatives. Also, explain alternatives that were considered but eliminated from
further analysis.
Alternative Descriptions (see BLM Handbook H-1790-1, “National Environmental Policy
Act,” Chapter 6.6) (chapter 2)
 For the general narrative description of each alternative, highlight the R&VS
characteristics that distinguish each alternative.
 For the narrative regarding the management common to all alternatives, describe the
goals and management decisions for R&VS that are common to all alternatives.
 For the “no action” alternative narrative, describe the existing R&VS direction, which
can be found in current management direction tables that were developed as part of the
AMS.
 For narratives in the “action” alternatives, describe R&VS direction (theme) for each of
the action alternatives.
 Identify alternative approaches for R&VS that were considered but eliminated from
detailed analysis, and briefly explain why they were eliminated. This is especially true for
R&VS scenarios proposed by the public or other agencies.
Alternatives Comparison Table7 (chapter 2).
 Identify goals and objectives for R&VS.
6

General guidance for planning process and document development can be found in BLM Handbook H-1601-1,
“Land Use Planning,” Appendix F-4. Specific NEPA guidance related to alternative development, affected
environment, and environmental impacts can be found in BLM Handbook H-1790-1, “National Environmental
Policy Act,” Chapters 6 and 9. These chapters apply to planning efforts that will require the analysis of alternatives
through preparation of an environmental impact statement.
7

BLM Handbook H-1601-1, Appendix F, p. 16, requires the inclusion of tables that compare alternatives and
impacts.

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 Identify areas to be designated and managed as SRMAs.
 Identify areas to be managed as ERMAs.
 Describe R&VS management actions and allowable uses. These actions should be
necessary to support the goals and objectives; maintain or enhance the recreation setting
characteristics; and address visitor health and safety, resource protection, and use and
user conflicts.
 Describe the interdisciplinary planning management actions and allowable uses for other
resource programs necessary to achieve and complement the recreation management area
objective.
 Describe and clearly identify all implementation-level decisions included in the LUP or
amendment. Note: Implementation decisions may be included in the planning document;
however, (1) they must be clearly distinguished and (2) they must be covered by
appropriate site-specific analysis in the planning effort NEPA document (see BLM
Handbook H-1601-1, p. 29-31; and BLM Handbook H-1790-1, Chapter 6.8).
Impacts Comparison Table (chapter 2).
 Provide a comparative summary of the social, economic, and environmental impacts to
the R&VS associated with each alternative.
Affected Environment Description (see BLM Handbook H-1790-1, Chapter 6.7)8 (chapter
3).
 Describe applicable supply and demand information (e.g., user preferences and demand
for particular recreation activities, recreation settings, experiences, and benefits).
 Describe the physical, social, and operational recreation setting character conditions.
 Explain pertinent recreation management, administration, information, and monitoring
direction (e.g., type, volume, and location of recreation use; recreation management
plans; existing closures and restrictions; existing infrastructure; types and volume of
special recreation permits; fee program; tourism; and partnerships).

8

Discuss existing management, conditions, issues, and trends, but be concise and limit discussion to what is needed
to understand issues and environmental consequences and to provide context for the goals and objectives. Most of
this information will come from the AMS, such as current condition and trend information, key environmental areas,
and current management direction.

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Environmental Consequences and Effects (see BLM Handbook H-1790-1, “National
Environmental Policy Act,” Chapter 6.8)9 (chapter 4)
 Describe the direct, indirect, and cumulative effects and their significance.
 Describe and quantify consequences of the “no action” alternative as if there were no
change in existing management.
 Describe the impacts of other resource decisions on R&VS, and provide a sufficient
analysis to support all conclusions.
 Identify measures to mitigate adverse impacts to recreation opportunities and setting
characteristics.
 Describe and analyze the consequences of the proposed R&VS decisions on other
resource/resource use decisions, and provide a sufficient analysis to support all
conclusions.
 For areas to be managed as SRMAs, when analyzing the impacts of R&VS decisions on
the recreation program, be sure to analyze:
Consequences of emphasizing recreation by managing for specific recreation
opportunities and settings on a sustained or enhanced, long-term basis.
Rationale for designating the SRMA.
Recreation activities, experiences, and benefit opportunities to be offered,
including the types and numbers of special recreation permits.
Recreation setting characteristics to be maintained or enhanced.
Consequences of proposed R&VS management actions and allowable uses
necessary to: support and facilitate targeted recreation activities or facilities;
maintain or enhance the recreation setting characteristics; and address visitor
health and safety, resource protection, and use and user conflicts.
Availability and ability of partners and other recreation program, facility, and
service providers to deliver services and complement management actions.
Include entities that will be involved in joint management or that will assist with
implementation of plan actions or management alternatives. Management actions
and allowable uses (e.g., terms, conditions, and special considerations) for other
resource programs necessary to achieve the SRMA objective(s) (e.g., stipulations
on mineral or other development, designations for all types and modes of travel,
areas available for livestock grazing, and visual resource management classes).

9

The NEPA analysis must identify the known and predicted effects that are related to the issues. The effects
analysis predicts the degree to which the resource would be affected upon implementation of the decisions/actions.
Describe the methodology and analytical assumptions for analyzing impacts, and identify any incomplete or
unavailable information that is critical to the analysis.

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 For areas to be managed as ERMAs, when analyzing the impacts of R&VS decisions on
the recreation program, be sure to specifically analyze:
Recreation opportunities that facilitate the visitors’ freedom to pursue a variety of
outdoor recreation activities and attain a variety of outcomes.
Recreation use to address resources or user conflicts, visitor health and safety,
special permits for certain activities, and the mitigation of recreation impacts on
cultural and natural resources.
Consultation and Coordination (chapter 5).
 Describe any actions taken to consult and coordinate with R&VS interests.
 Identify the recreation and tourism stakeholders, individuals, and interest organizations
that participated in plan development or that will be collaboratively engaged in plan
implementation.

Preparing the Final NEPA Document (Proposed LUP/Final EIS)10
 Evaluate public comments received on the draft LUP/EIS related to the R&VS program.
 Make changes to the draft LUP/EIS based upon public/staff comment for the proposed
LUP/final EIS.
 Identify and note any changes made to the document.

The Record of Decision/Approved LUP11
 Identify planning and implementation R&VS decisions in the approved LUP.
 If the LUP makes monitoring and evaluation decisions and/or adopts mitigation
measures, make sure they are included in the record of decision and approved LUP.

10

The proposed LUP/final EIS builds on the draft LUP/EIS by including appropriate responses to public comments
received on the draft documents. The proposed LUP/final EIS may also contain modifications to the alternatives and
the accompanying impact analysis contained in the draft LUP/EIS.
11

The record of decision/approved LUP is typically the proposed LUP, as modified in response to protests, the
Governor’s consistency review, or other considerations. It describes the goals, objectives, and management actions
for fulfilling the management direction developed within the land use planning process.

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Appendix 2 – Experience and Benefit Checklist
Experience and Benefit Checklist
From which to Select or Craft Items for Visitor/Resident Customer Preference Studies
and for Outcomes-Focused Recreation Management Objectives
(Moore and Driver 2005; Driver et al. 1991)
I. Visitor Experiences
A. Achievement/Stimulation
 Developing skills and abilities
 Gaining recognition from others for doing this
 Testing endurance
 Gaining a greater sense of self-confidence
 Being able to tell others about the trip

K. Creativity
 Doing something creative
 Enjoying artistic expression of nature

B. Autonomy/Leadership
 Experiencing a greater sense of independence
 Enjoying exploring on own
 Being in control of things that happen

M. Exercise/Physical Fitness
 Enjoying needed physical exercise
 Enjoying strenuous physical exercise
 Enjoying a wide variety of environments
within a single park or recreation area
 Enjoying access to close-to-home
outdoor amenities
 Enjoying ability to frequently participate in
desired activities in preferred settings

C. Risk-Taking
 Enjoying risk-taking adventure
D. Equipment
 Talking to others about equipment
E./F./G. Family Togetherness/Similar People/New People
 Enjoying the closeness of friends and family
 Relishing group affiliation and togetherness
 Enjoying meeting new people with similar interests
 Enjoying participation in group outdoor events
H. Learn
 Learning more about this specific area
 Enjoying access to hands-on
environmental learning
 Enjoying learning outdoor social skills
I.

J.

Enjoy nature
 Savoring the total sensory (sight, sound, and
smell) experience of a natural landscape
 Enjoying easy access to natural landscapes
Introspection
 Enjoying ability to be more contemplative
 Reflecting on own character and personal values
 Thinking about and shaping own spiritual values
 Contemplating human’s relationship with the land

L. Nostalgia
 Bringing back pleasant memories

N. Physical Rest
 Enjoying needed physical rest
O. Escape Personal/Social Pressures
 Releasing or reducing stress
 Escaping everyday responsibilities
P. Escape Physical Pressure
 Feeling good about solitude, isolation, and
independence
 Enjoying an escape from crowds of people
Q. Social Security
 Being near more considerate people
R. Escape Family
 Getting away from family for awhile
S. Teach/Lead Others
 Enjoying teaching others about the outdoors
T. Risk Reduction
 Having others nearby who could help if needed
 Having a greater understanding about what
will happen while here

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II. Community Resident Experiences
A. Lifestyle
 Enjoying the hustle and bustle of new
people in town
 Enjoying the peace and quiet
of this small-town community
 Enjoying maintaining out-of-town country solitude
 Living a slower pace of life
 Avoiding compromising the quality of life here
B. Sense of Place
 Feeling like I belong to this community and liking it
 Avoiding outsiders making me feel
alienated from my own community
 Observing visitors treating our community with
respect
 Feeling that this community is a special place to live
 Just knowing this attraction is here, in or near my
community
C. Personal/Character
 Nurturing my own spiritual values and growth
 Developing a greater understanding of outsiders

D. Interacting with People
 Appreciating personal interaction with visitors
 Enjoying telling visitors what makes this community
a special place to live and work
 Encouraging visitors to help safeguard
our lifestyle and quality of life
 Sharing our cultural heritage with new people
 Seeing visitors get excited about this area
 Communicating our cultural heritage with
those already living here
E. Change
 Liking change and new growth here
 Knowing that things are not going to change
too much
F. Stewardship and Hospitality
 Feeling good about the way our cultural
heritage is being protected
 Feeling good about how visitors are being managed
 Feeling good about how natural resources
and facilities are being managed
 Feeling good about how this attraction is
being used and enjoyed

_______________________________________________________________
I. Personal Benefits
A. Psychological
1. Better mental health and health maintenance
 A more holistic sense of wellness
 Restored mind from unwanted stress
 Diminished mental anxiety
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Improved mental well-being
2. Personal development and growth
 Greater self-reliance
 Confirmation/development of own values
 Improved academic and cognitive performance
 Improved sense of control over one’s life
 Improved skills for outdoor enjoyment
 Improved skills for enjoying the outdoors alone
 Improved skills for outdoor enjoyment with
others
 Improved leadership abilities
 Improved teamwork and cooperation
 Improved outdoor knowledge and selfconfidence
 Improved outdoor recreation skills

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Deeper sense of personal humility
More balanced competitive spirit
Greater sensitivity to/awareness of outdoor
aesthetics, nature’s art, and its elegance
Greater spiritual growth
Increased capacity for artistic expression
Improved ability to think things through and solve
problems
Increased adaptability
Stronger ties with family and friends
Greater sensitivity to/respect for other visitors
Increased understanding and tolerance of others
Greater respect for my cultural heritage
Enhanced awareness and understanding of nature
Greater environmental awareness and sensitivity
Greater understanding of the importance of
recreation and tourism in our community
Better sense of my place within my community
Improved ability to relate to local cultures
More well-informed and responsible visitor
Greater sense of responsibility for own quality of
life
Enlarged sense of personal accountability for
acting responsibly on public lands

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

Enlarged understanding of personal
responsibility
to help care for community and keep it clean
 Improved sense of personal responsibility for
control of domestic pets and livestock
3. Personal appreciation and satisfaction
 Closer relationship with the natural world
 A more outdoor-oriented lifestyle
 Enhanced sense of personal freedom
 Greater sense of personal security
 Greater sense of adventure
 Improved appreciation of nature’s splendor
 Improved opportunity to view wildlife closeup
 Greater appreciation of the arts
 Better understanding of wildlife’s contribution to
own quality of life
 Greater freedom from urban living
 Greater appreciation for my wildland and
parkland heritage and how managers care
for it
 Greater personal enrichment through
involvement with other people
 Improved personal awareness, learning, and
appreciation of others’ cultural values
 Increased acceptance of others who are
different
 Greater cultivation of natural resource
stewardship ethic
 Increased appreciation of area’s cultural history
 Greater awareness that this community is a
special place
 Better understanding of my community’s cultural
identity
 Greater respect for private property and local
lifestyles
 An improved stewardship ethic towards
adjoining/host communities
 Improved understanding of how this
community’s rural-urban interface impacts its
quality of life
 Improved understanding of this/our community’s
dependence and impact on public lands
B. Psychophysiological
 Improved physical fitness and health
maintenance
 Restored body from fatigue
 Improved cardiovascular health
 Reduced hypertension
 Improved capacity for outdoor physical activity
 Improved physical capacity to do my favorite
recreation activities

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Greater opportunity for people with different
skills to exercise in the same place
Decreased body fat and obesity
Improved muscle strength and connective tissue
Increased lung capacity
Reduced incidence of disease

II. Household and Community Benefits
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Heightened sense of satisfaction with our
community
Greater household awareness of and
appreciation for our cultural heritage
More informed citizenry about where to go for
different kinds of recreation experiences and
benefits
Reduced social isolation
Improved community integration
Improved functioning of individuals in family and
community
Greater family bonding
Improved parenting skills
More well-rounded childhood development
Improved group cooperation
Greater community involvement in recreation and
other land use decisions
Increased community involvement reducing
erosion of our community’s small-town, rural
character
Reduced numbers of at-risk youth
Less juvenile delinquency
Higher school/class attendance
Lower school dropout rates
More highly motivated students/improved
scholarship
Reduced social alienation
Increased compassion for others
Lifestyle improvement or maintenance
Enhanced lifestyle
Enlarged sense of community dependency on
public lands
Increased nurturance of others
Increased independence/autonomy
Greater interaction with visitors from different
cultures
Greater community valuation of its ethnic diversity

III. Economic Benefits
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Reduced health maintenance costs
Increased work productivity
Reduced absenteeism from work

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Decreased job turnover
Improved local economic stability
More positive contributions to local-regional
economy
Increased local tax revenue
Increased local job opportunities
Greater value-added local services/industry
Increased desirability as a place to live or retire

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Enhanced ability for visitors to find areas
providing wanted recreation experiences and
benefits
Maintenance of community’s distinctive
recreation/tourism market niche or character
Increased local tourism revenue
Greater diversification of local job offerings
Increased property values
Greater fiscal capacity to maintain essential
infrastructure and services

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IV. Environmental Benefits
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Greater retention of community’s distinctive
architecture and structures
Maintenance of distinctive small-town
atmosphere
Maintenance of distinctive recreation setting
character
Improved maintenance of physical facilities
Reduced looting and vandalism of historic/
prehistoric sites
Greater community ownership and stewardship
of park, recreation, and natural resources
Greater retention of distinctive natural
landscape features
Reduced wildlife harassment by recreation
users
Reduced wildlife disturbance from recreation
facility development
Reduced wildlife predation of domestic pets

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Greater protection of area historic structures and
archaeological sites
Sustainability of community’s cultural heritage
Improved respect for privately owned lands
Improved care for community aesthetics
Improved soil, water, and air quality
Greater protection of fish, wildlife, and plant habitat
from growth, development, and public use
impacts
Increased awareness and protection of natural
landscapes
Reduced negative human impacts such as litter,
vegetative trampling, and unplanned trails
Increased ecologically friendly tourism operations
Reduced spread of invasive species such as
plants, insects, and aquatic organisms
Greater recycling
Conservation of entire sustainable ecosystems

Appendix 3 – Recreation Setting Characteristics Matrix

Appendix 4 – Special Recreation Management Area Template
_______________________________________________ Special Recreation Management Area (SRMA)

(Name)
SRMAs are administrative units where the existing or proposed recreation opportunities and recreation setting
characteristics are recognized for their unique value, importance, and/or distinctiveness, especially compared to
other areas used for recreation. For each SRMA, establish objective decisions, describe recreation setting
characteristics, identify management actions and allowable use decisions, and, if necessary, identify
implementation decisions.
SUPPORTING INFORMATION
Briefly describe the rationale for designating the SRMA, including the unique value, importance, and/or
distinctiveness of the area. This documents the rationale for consideration of the SRMA in the planning process and,
if selected, designation of the SRMA in the record of decision.

SRMA/RECREATION MANAGEMENT ZONE (RMZ) OBJECTIVE(S) DECISIONS
SRMAs may be subdivided into RMZs with discrete objectives. SRMA/RMZ objectives must define the specific
recreation opportunities (i.e., activities, experiences, and benefits derived from those experiences) that become the
focus of recreation and visitor services management.
Objective Statement (e.g., In visitor assessments, ___% of respondents who participated in targeted activities
(listed below) report the ability to realize the targeted experiences and benefits (listed below)):
Activities (e.g., camping, rafting):
Experiences (e.g., enjoying frequent exercise, enjoying the closeness of family and friends):
Benefits (e.g., personal/individual, community/social, economic, and/or environmental):
RECREATION SETTING CHARACTERISTIC DESCRIPTIONS
Describe the physical, social, and operational recreation setting qualities to be maintained or enhanced.
Physical Components (e.g., remoteness, naturalness, visitor facilities):
Social Components (e.g., contacts, group size, evidence of use):
Operational Components (e.g., access (types of travel), visitor services/information, management controls):
MANAGEMENT ACTIONS AND ALLOWABLE USE DECISIONS
Identify necessary management actions and allowable use decisions for recreation and visitor services and other
programs to achieve SRMA/RMZ objectives and maintain or enhance the desired recreation setting characteristics.
Recreation and Visitor Services Program (e.g., camping limits, recreation permit/fees, conditions of use):
Other Programs (e.g., stipulations on mineral or other development, types and modes of travel designations, or
visual resource management classes):
IMPLEMENTATION DECISIONS
Implementation decisions are actions to achieve or implement land use plan decisions. Implementation decisions
include management, administration, information, and education and monitoring.
Implementation Decisions (e.g., The land use plan decision may be to designate overnight camping areas, while the
supporting implementation decision may be to address specific site locations, size, and amenities to be provided.):

Appendix 5 – Extensive Recreation Management Area Template
_____________________________________________ Extensive Recreation Management Area (ERMA)
(Name)
ERMAs are administrative units that require specific management consideration in order to address
recreation use, demand, and/or recreation and visitor services program investments. ERMAs are managed to
support and sustain the principal recreation activities and the associated qualities and conditions. ERMA
management is commensurate with and considered in context with the management of other resources and
resource uses.
ERMA OBJECTIVE(S) DECISION
ERMA objectives must define the recreation activities and the associated qualities and conditions that
become the focus for recreation and visitor services management.
Objective Statement (e.g., By 2015, the Bailey Lake ERMA will offer recreation opportunities, in a
relatively unchanged physical recreation setting, that facilitate the visitor’s freedom to participate in a
variety of dispersed, nonmotorized/nonmechanized recreation activities.):

MANAGEMENT ACTIONS AND ALLOWABLE USE DECISIONS
Identify management actions and allowable use decisions for the recreation and visitor services and other
programs necessary to: facilitate visitor participation in the identified outdoor recreation activities;
maintain particular recreation setting characteristics; address visitor health and safety, resource protection,
and use and user conflicts; and address the type(s), activities, and locations where special recreation
permits will or will not be issued.
Recreation and Visitor Services Program (e.g., camping limits, recreation permit/fees, conditions of
use):

Other Programs (e.g., stipulations on mineral or other development, types and modes of travel
designations, or visual resource management classes):

IMPLEMENTATION DECISIONS
Implementation decisions are actions to achieve or implement land use plan decisions. Implementation
decisions include management, administration, information and education, and monitoring.
Implementation Decisions (e.g., The land use plan decision may be to designate overnight camping areas,
while the supporting implementation decision may be to address specific site locations, size, and amenities
to be provided.):

Bibliography
Manning, R.E. 2010. Studies in Outdoor Recreation: Search and Research for Satisfaction, 3rd
edition. Oregon State University Press: Corvallis, OR.
Moore, R.L., and B.L. Driver. 2005. “Benefits of Leisure and Its Roles in Society.” p. 29. In:
Introduction to Outdoor Recreation. State College, PA: Venture Publishing, Inc.
Driver, B.L., H.E. Tinsley, and M.J. Manfredo. 1991. “The paragraphs about leisure and
recreation experience preference scales: Two inventories designed to assess the breadth of the
perceived psychological benefits of leisure.” p. 263-286. In: Driver, B.L., P.J. Brown, and
G.L. Peterson. Benefits of Leisure. State College, PA: Venture Publishing, Inc.
Virden, R. Script designed for recreation-tourism visitor preference studies. Arizona State
University, Department of Recreation Management and Tourism.