Men Who Matched the Mountains: The Forest Service in the Southwest

When the Forest Service was transferred from the General Land Office to the Department of Agriculture in 1905, Secretary Wilson issued a directive that the Forests were to be managed "for the greatest good for the greatest number in the long run." From that directive emerged the policy of multiple use management of the National Forests.

Congress recognized the soundness of the policy and in 1960 passed the Multiple Use-Sustained Yield Act, which establishes in law the policy of administering the National Forests for outdoor recreation, range, timber, watershed, and wildlife and fish purposes. The Act declared that the resources of the National Forests were to be used in combinations that best meet the needs of the American people. Prior to the passage of the bill, a Southwestern Regional Multiple Use Management Guide had been developed in 1959, and this guide was revised in 1967 to bring it in line with new Service-wide standards and requirements.

All resource and activity management plans, actions plans, and action programs are in accord with the overall coordinating requirements and management decisions contained in the approved District Ranger Multiple Use Plan. This plan can be revised annually with the Supervisor's approval, but the Regional Guide will remain in effect without major changes until 1973.

In his foreword to the Regional Guide, William D. Hurst, Regional Forester, noted that "Effective multiple use management requires close cooperation with permittees, adjacent landowners, conservation organizations, cooperating Federal and State agencies, and other interested groups and individuals. Much of the desirable and necessary coordination can only be effectively carried out through full understanding and support of all concerned. Big game, range, and timber activities are good illustrations of coordination that is being carried out through action programs of other agencies, groups and individuals.

"Multiple use planning, like most planning, is but a means to an end. The degree of planning success is measured by the end results obtained on the ground. I am confident that, through multiple use planning and coordination, land managers can more successfully fulfill their obligations to provide the maximum amount of quality products and services to meet the growing needs of the people in the Southwest and in the Nation."

In explaining the Multiple Use Management Guide, Regional Forester Hurst said that it "establishes nine management zones and explains how the resources, uses and activities within each zone will be coordinated to best meet public needs. Within zones, management direction and emphasis will vary, depending upon available resources and opportunities for public use and enjoyment. For example, in the Travel Influence Zone, which includes areas adjacent to principal roads, trails, railroads, tramways, and campgrounds, the objective is to maintain natural beauty of the forest environment. The management direction for this zone provides that cutting of timber, grazing of livestock, and development of wildlife habitat will be conducted in ways that will best maintain or enhance the natural environment."

Regional Forester Hurst said that a multiple use plan has been prepared for each Ranger District. "The plan, which incorporates a map and written section, has been developed within the framework of the Region's Multiple Use Management Guide. Management zones are shown on the map. Management decisions for each management zone are made by the Forest Ranger and recorded in the written section of the plan. Before a decision is reached careful consideration is given to all factors with the objective of coordinating present or planned uses within the zone to avoid or minimize conflicts. The plan will be revised to meet changing conditions."

The various zones established for planning are: Desert, Chaparral, Grassland, Woodland, Travel Influence, Intermediate, Water Influence, Crest, Special.

Desert Zone

Ranging from 1,400 feet to 3,500 feet in elevation, the Desert Zone is located in southern Arizona and New Mexico. It is an area of rugged scenic beauty featuring cactus, ocotillo, paloverde, mesquite, and other colorful desert vegetation characteristic of a dry, warm climate. This zone is subject to high-intensity thunder storms that can cause severe stream erosion and damaging floods.

The high mountain ranges of the National Forests produce over half of the usable annual water supply available to Arizona and New Mexico. However, much of the silt that clogs southwestern water courses today is the result of past abuse of desert lands. When the Coronado and Tonto National Forests were created, this situation was recognized and a large amount of desert land was included in these two Forests so as to assure adequate management along desert water courses within their borders.

The Desert Zone supports a wide variety of wildlife including coyote, rabbit, javelina, desert mule deer, quail, and dove. It is also valuable for grazing domestic livestock and informal outdoor recreation. Horseback riding, hiking, cookouts, rockhounding, and hunting, are popular during the winter, spring, and fall. The zone is attracting increasing numbers of recreationists from all over the country, particularly during the warm winter months.

In the Desert Zone, management emphasis is directed at maintaining the native desert flora and fauna for its recreation and esthetic values. Because of the delicate balance existing in this zone between soil and vegetative cover, a special effort is made to maintain a balance between wildlife and livestock numbers and available food supply.

Grassland Zone

This zone includes portions of the National Grasslands located in northeastern New Mexico, the Panhandle of Oklahoma and Texas, and western Okiahoma.

The Grasslands are the former "dust bowl" lands that were purchased by the Federal government in the 1930's, rehabilitated, and made productive once again. The zone ranges in elevation from 550 to nearly 6,000 feet and includes occasional areas of "rough breaks" and "badlands." In the western part of the zone several river and valley bottoms support small stands of oak, pecan, elm, and hickory trees. Lands in the zone provide food for cattle and a wide variety of wildlife including antelope, deer, turkey, and quail.

Hunting, hiking, and bird dog trails are important recreational uses in the zone. Stream fishing opportunities are relatively minor because of the scarcity of surface streams.

Due to climatic limitations and erosive soils, the Grassland Zone is suitable for forage production but not for cultivation. The Forest Service management objective is to promote and demonstrate good grassland agriculture on these lands and encourage adjacent private land owners to do the same. Management is also directed at maintaining the natural beauty of the zone and developing wildlife and fish habitat for recreational opportunities.

Chaparral Zone

The Chaparral Zone, ranging in elevation from 3,500 to 6,500 feet, includes extensive areas of brushy vegetation located in central Arizona. Also, southeastern Arizona and southwestern New Mexico have scattered units of chaparral or brush. Considerable use of this zone is made by livestock and wildlife.

Although the zone produces some grass, its vegetative cover consists principally of shrubs including manzanita, mountain mahogany, live oak, sumac, and hollyleaf buckthorn. The plants in this zone generally grow close together and in many cases, form brush thickets so dense that travel through them is difficult or impossible. In addition, the shrubs are highly inflammable and constitute the most dangerous wildfire hazard in the United States.

The Chaparral Zone receives from 16 to 25 inches of precipitation each year. However, due to shrub density, runoff is strictly limited. Research conducted by the Rocky Mountain Forest and Range Experiment Station has shown that by converting chaparral to grass, runoff can be substantially increased. Such conversion also reduces the fire hazard and increases food for wildlife and livestock.

Management emphasis in the Chaparral Zone is directed at increasing water yield, reducing fire hazard, stabilizing soil, and improving forage for wildlife and livestock.

The Tonto National Forest has under way a program to increase water yield by converting selected areas of chaparral to grass through planned burning and reseeding. After an area has been selected for treatment, a plan is carefully prepared which shows fire line location, time and technique of burn, and the procedure to be followed in establishing a forage cover of grasses and browse. The typical plan provides that patches of chaparral will be left untouched in the control area as escape cover for wildlife and for maintenance of the natural environment. Studies show that costs of such treatment are a sound investment because water yield is increased, fire hazard is reduced, and habitat improved for game and livestock.

Woodland Zone

The Woodland Zone, which ranges in elevation from 2,500 to 7,000 feet, is the largest management zone in the Southwestern Region. It includes 32 percent of the Region's total area. The principal vegetation types are pinyon-juniper in Arizona and New Mexico and the live oak savannah on southern portions of the Coronado National Forest. Annual precipitation varies from 7 to 20 inches, but water yield from this zone is very low.

The trees in the Woodland Zone, which are interspersed with shrubs and stands of grass, have little commercial value as saw-timber. However, the zone is a source of fuelwood, Christmas trees, fence posts, and pinyon nuts, and it provides homes for many birds, small animals, and deer, and forage for livestock. There is some mining activity in the zone. It also offers opportunities for hiking, rockhounding, riding, and hunting.

Management emphasis in the Woodland Zone is directed toward forage production, game habitat, and improved watershed condition. Because the balance between ground cover and bare soil in this zone is delicate, a management objective is to maintain and improve soil stability.

Pinyon and juniper control will be undertaken on selected areas where additional food for wildlife and livestock can be produced. Control of pinyon and juniper where it has invaded natural grasslands is an approved management practice for providing and maintaining forage for livestock and big game.

Management also recognizes the need to further develop the zone's potential for Christmas trees, timber, fence posts, and fuel wood.

Intermediate Zone

The Intermediate Zone, ranging from 5,000 to 10,500 feet in elevation, includes areas favorable for the production of commercial sawtimber and forage. It makes up about 30% of the Southwestern National Forests and is the so-called "backwoods."

The zone contains most of the commercial timber types including ponderosa pine, Douglas-fir, Engelmann spruce, limber pine, white fir, and aspen. Grassy areas suitable for livestock and wildlife use are often interspersed with stands of timber.

The zone annually receives 15 to 35 inches of precipitation. Nearly 40 percent of the water produced by the Southwestern National Forests comes from this zone.

A wide variety of big and small game, upland game birds, waterfowl, and other small animals live in this zone. Recreation opportunities of the back-country variety are plentiful, with big game hunting, stream fishing, hiking, and camping the major attractions.

The zone is attractive and frequently provides a backdrop of scenery which is visible from heavily-traveled roads and from lakes, rivers, and camp and picnic grounds. The Intermediate Zone receives comparatively little public use. Management emphasis is directed at producing sustained yields of timber, water, wildlife, and forage.

Travel Influence Zone

Travel in and through the National Forests is greatly increasing. People are attracted to the National Forests by their scenic beauty, clean air, and opportunities for healthful outdoor recreation.

The Travel Influence Zone includes areas adjacent to roads, trails, railroads, tramways, ski lifts, and camp and picnic grounds. Obviously, this zone receives much public use. The zone does not encompass work roads or trails which receive only occasional travel.

In this zone the objective is to maintain or enhance the natural beauty of the surroundings. Camp and picnic grounds, winter sports areas, nature trails, vista points, and other recreation facilities will be developed to meet public needs. The zone's timber and forage resources may be used, but in a way that will enhance the quality of the environment.

To illustrate, trees will be cut to improve the natural beauty of the Forest. Overmature, dying, or dead trees, or those that create safety hazards will be removed. Picturesque snags that add interest to the scene may be left.

Water Influence Zone

Water is undoubtedly the most important single product of the Southwestern National Forests, so Forest Service management of the Water Influence Zone is of vital importance to all citizens. This zone is made up of areas of varying sizes along streams, rivers, lakes, and reservoirs. It is generally outstanding in scenic beauty. The zone provides a wide variety of opportunities for outdoor recreation, including fishing, boating, water skiing, swimming, hiking, camping, picnicking, and just plain sightseeing. Waters which receive little or no public use are not included in this zone.

Water which supports fish life and provides recreation is also used for irrigation, industry, and human use. Accordingly, management emphasis is placed on maintaining or enhancing water quality and the natural beauty of the zone. Developed recreation sites and facilities will be made available in this zone. Other resources in the zone will be managed to maintain scenic beauty and water quality.

Crest Zone

The Crest Zone, ranging in elevation from 10,500 feet to timberline and above, includes less than 10,000 acres of Southwestern National Forest land. It is characterized by high peaks, rocky ridges, and limited stands of subalpine fir, dwarfed Engelmann spruce, and limber pine. The San Francisco Peaks area of the Coconino National Forest is an example of the Crest Zone.

This zone experiences severe climatic conditions, has thin soils, and a short growing season. It furnishes summer food for some wildlife and livestock. Scenery is outstanding and attracts hikers and horseback riders.

The Crest Zone, with an average annual precipitation of above 30 inches, mostly in the form of snow, produces the greatest water yield per acre in the Southwest. Annual water yields vary from about one-half to two acre-feet of water per acre of surface.

Management emphasis in the Crest Zone is directed at protecting and improving water quality while safeguarding natural beauty and aesthetic values for back-country recreation. Proposed use of the Crest Zone for electronic sites or similar installations will be considered in terms of the effect of such developments on natural beauty and water yield.

Special Zone

Special Zones include areas which have been classified or formally designated by Congress, the Secretary of Agriculture, Chief of the Forest Service, or the Regional Forester. Those include wildernesses; primitive, scenic, and natural areas; experimental forests and ranges; and historical, geological, archeological, or botanical areas.

For example, in the Southwestern Region, the Gila, Pecos, Wheeler Peak, White Mountain, San Pedro Parks, Superstition, Mazatzal, Sierra Ancha, Chiricahua, and Galiuro Wildernesses are parts of the National Wilderness Preservation System. The Wilderness Act specifies how Congress wants these Wildernesses to be managed so as to preserve their pristine character. Primitive Areas, such as the Blue Range and Black Range, were established by the Secretary of Agriculture and are being studied for possible inclusion by Congress into the National Wilderness Preservation System. In the meantime, they are being managed under the regulations in effect when the Wilderness Act was passed.

The C. Hart Merriam Scenic Area located in the San Francisco Peaks of the Coconino National Forest has been designated by the Regional Forester under authority granted to him. As the name implies, this area has been given special recognition because of its outstanding scenic beauty.

The Monument Canyon Research Natural Area, Santa Fe National Forest; the Santa Catalina Research Natural Area; and Gooding Research Natural Area, Coronado National Forest, were established by the Chief of the Forest Service for scientific study and are to remain in an undisturbed or natural condition.

The Santa Rita Experimental Range, Coronado National Forest; Fort Valley Experimental Forest, Coconino National Forest; Sierra Ancha Experimental Forest, Tonto National Forest; and the Cloudcroft Experimental Forest, Lincoln National Forest were established by the Chief of the Forest Service. Research is being done on them in many phases of range and forest management.

In the Southwestern Region, historical, geological, and archeological areas have been inventoried but none have been formally classified.

In Special Zone areas, the documents, regulations, or laws establishing them tell how they are to be managed.