E:\The Petroglyph\Recapture - Federal Court - Case 2014\BLM

Discovery\RecaptureEmails_AttachmentsWHeader\80. Updated Ops Plan\3.1 Recapture Canyon

Action Plan.docx

U.S. Department of the Interior

Bureau of Land Management

Recapture Canyon

Action Plan

Department of the Interior

Bureau of Land Management
Canyon Country District
Monticello Field Office
Utah

For Internal Use Only

TABLE OF CONTENTS
I.

Purpose and Objectives .......................................................................................... 3

II.

Organization .............................................................................................................. 3
a.

Organizational Chart ..................................................................................................... 3

b.

Functional Roles and Responsibilities ........................................................................... 3

III.

Overhead Team ........................................................................................................ 4

a.

Public Affairs ................................................................................................................. 5

b.

Safety Plan .................................................................................................................. 11

IV.

Logistics ..................................................................................................................... .5

a.

Law Enforcement Plan ................................................................................................. .5

b.

Medical Plan ................................................................................................................ .6

Appendix A ........................................................................................................................... .8
Organizational Chart

Appendix B ........................................................................................................................... .9
Contact List

Appendix C.......................................................................................................................... .10

Map of Recapture Closure Area and Possible Ride Routes

I. Purpose and Objectives

The purpose of this Action is to have a plan in place to safely manage a proposed illegal
ATV trail ride. This ride is schedule to take place on Saturday, May 10th, 2014 in
Recapture Canyon, San Juan County, Utah.
Objectives include:

Safety
Communication through continued public outreach

II. Organization
a. Organizational Chart
See Appendix A.

b. Functional Roles and Responsibilities

1. District Manager
The District Manager (DM):
Provides overall leadership and response;
Delegates authority to others;
The District Manager is specifically responsible for:
Safety;
Providing information services through the authorized officers to internal and
external stakeholders.
Additionally, the District Manager:
Is responsible for all activities and functions;
Establishes and maintains liaison with other agencies that may be affected;
Assesses staffing needs;
Directs staff to develop the Action Plan;
The District Manager will communicate daily with the Utah State Director, Juan
Palma, from Tuesday April 29th 2014 until May 15th, 2014
3

2. Public Information/Affairs Chief (PIO/PAO)

The Public Affairs Lead will:
Develop and implement a communication strategy;
Develop and coordinate development of communication materials including;
- Web postings
- News releases
- Fact sheets
- Briefing papers
Coordinate news media requests;
Coordinate and participate in briefing conference calls;
Work with managers to designate event spokespeople
Ensure daily communication with SO PIO Chief and Utah external affairs.
SO PIO Lead will ensure communication with WO.

3. Field Office Manager

Roles of the Field Office Manager:
Monticello FOM briefs employees.
Developing and implementing tactics to keep employees away from the ride
area, including organizing, assigning, and providing direction as needed.
Maintain constant contact with PAOs, LEOs, IC, local officials, San Juan County
Commission Chairman and others as necessary.
Ensures that access points are appropriately signed with the closure order
Major functions of the Field Manager:
Reporting information about activities, events, and occurrences.

4.

Safety Lead

Roles of the Safety Section Lead:

Ensure that contact information is up to date
Provide the Medical Plan.

5.

Law Enforcement Lead

Roles of the Law Enforcement Section Lead:

Develop Law Enforcement Plan
Oversee Law Enforcement operations
Advise the DM of potential Law Enforcement concerns.
Document illegal riding activity
Coordinate with the local Sheriffs office.

III. Overhead Team

4

a. Public Affairs
Situation
The BLM Canyon Country District/Monticello Field Office may have a group of
individuals engage in a trespass trail ride in Recapture Canyon, San Juan County Utah on
May 10th, 2014. These people are protesting the length of time BLM is taking to process
a Right Of Way application for an OHV trail in Recapture Canyon. This area has many
concerns, particularly Cultural and Riparian. This will be an extremely volatile situation
as several environmental groups are expected to attend the protest to strongly show
opposition to this potential ride in the closed area.
Communication PlanINTRODUCTION
San Juan County Commissioner Phil Lyman is organizing an illegal ATV ride on May
10, 2014, through Recapture Canyon in the BLM-Utah Monticello Field Office.
Commissioner Lyman is planning the ride to protest the BLMs 2007 closure of the
canyon to motorized vehicles and to assert what he says is the countys jurisdiction over
these federal lands. He has also stated that the ride will protest what he and other
commissioners believe are stalling tactics on the part of the local BLM office in regards
to reaching a decision on a proposed county right-of-way for an ATV trail in the same
canyon.
Recapture Canyon is a very controversial topic in the local community and with some
environmental activist groups. The community supports trail construction, while some
groups have expressed concern over potential impacts associated with trail construction
and use. Additionally, the topic has gained traction with both national and local media.
While some news outlets are supportive of the BLM and efforts to protect cultural
resources in the canyon, other news outlets are aligning the proposed illegal ATV ride on
federal lands with the recent situation in southern Nevada. Social media has also become
engaged with posts on Facebook and personal blogs, as well as numerous tweets,
predominantly expressing support for the illegal ride.
BACKGROUND
In March 2006, San Juan County applied for a right-of-way to construct and maintain an
ATV trail in the Recapture Canyon area west of Blanding, Utah. Since submitting its
initial right-of-way application in 2006, the County submitted revised applications in
September 2008 and November 2012. Parts of the proposed trail would be located on
existing routes, while other segments would be new construction. Portions of the existing
closed trail were illegally constructed in 2006, and the entire trail in the canyon is
presently closed to motorized travel. The planning process has taken many years, but the
BLM anticipates releasing an EA on the countys application this year.

The Recapture Canyon area contains a rich archaeological record of the Ancestral
Puebloans who once called it home. To protect the cultural resources left by these
prehistoric peoples, the BLM-Utah closed the Recapture Canyon trail to motorized access
in 2007.
COMMUNICATION GOALS
1. Ensure appropriate external stakeholders and media representatives are kept
informed of the BLM-Utahs stance on the proposed illegal ATV ride in
Recapture Canyon.
2. Ensure BLM-Utah is prepared to respond to media inquiries with one voice and a
consistent message.

STRATEGIES
1. Given past history and the heightened controversy, close coordination both
internally and with key external interests will continue.
2. Internal communication will include ongoing coordination within BLM-Utah, as
well as with the Washington Office, the Solicitors Office, and the Office of Law
Enforcement and Security.
3. This communication plan will be delivered through existing communication
mechanisms, and mediums to increase external and internal understanding of
BLM-Utahs stance regarding the proposed illegal ride and to provide timely and
accurate information to the public.
- Develop key messages and talking points
- Develop flexible press release for use the day of the event
- Conduct outreach to delegation though staffers and coordinate with WO-630
as needed
- Prepare attributable quotes and neutral background information for release to
media both prior to and on the day of the event
- Respond to media inquiries prior to and on the day of the event with
consistent messaging derived from April 28, 2014, letter to Commissioner
Lyman and the communication plan
MEDIA OUTREACH PLAN

The BLM-Utah External Affairs Chief will respond to ongoing media inquiries
using consistent talking points and key messages derived from the April 28, 2014,
letter to Commissioner Phil Lyman and the communication plan.
On the day of the event, a sign will be posted on the Monticello Field Office door
indicating that the office is closed and providing a number for media
representatives to call at the Moab Field Office where the External Affairs Chief
and Canyon Country District Manager will be.

The External Affairs Chief and Canyon Country District Manager will be
available for face-to-face media interviews and on-camera stand ups from their
location at the Moab Field Office.
Once the event concludes and the External Affairs Chief and Canyon Country
District Manager have received a final update from the on-scene Law
Enforcement Rangers, a press statement will be issued to the standard statewide
media list. Unlike a press release, a press statement is not posted on the BLMUtah website or released through Facebook and Twitter.
- The statement will either reflect the BLM-Utah stance regarding illegal
motorized use of the trail or will support the protestors decision to use other
open and available ATV trails in the Monticello Field Office.
Upon request, media representatives will also be provided with attributable quotes
and neutral background information.
When the External Affairs Chief and Canyon Country District Manager close up
the Moab Field Office a message will be placed on the media call-in number
advising media representatives to email inquiries to mcrandal@blm.gov. The
External Affairs Chief will check this email once an hour until 10:00 p.m. the day
of the event.

KEY MESSAGES

The BLM's multiple-use mission is to sustain the health and productivity of the
public lands for the use and enjoyment of present and future generations. We
accomplish this by managing public lands for uses as diverse as the lands
themselves. However, multiple-use does not mean every use on every acre.
- Accordingly, the BLM-Utah closed the Recapture Canyon trail to motorized
access in 2007 to protect the rich archaeological record left by the Ancestral
Puebloans who once called the Recapture Canyon area home.
Public lands managed by the BLM in Utah contribute significantly to the States
economy and have a positive impact on nearby communities. Diverse
recreational activities on BLM-managed lands in Utah provided $490 million in
local and national economic benefits in 2012.
- For off-highway vehicle enthusiasts, there are more than 2,800 miles of trail
currently open and available for OHV use on lands managed by the
Monticello Field Office. Thats approximately enough trail to travel between
New York City and Los Angeles. This extensive trail system offers OHV
riders vast and diverse opportunities to ride and recreate on public lands in
southeastern Utah.

GENERAL BACKGROUND TALKING POINTS

The BLM will continue to listen to and work closely with all stakeholders and
other interested parties to resolve this issue, but will not speculate on any future
actions involving an illegal ATV ride through Recapture Canyon.
For off-highway vehicle enthusiasts, there are more than 2,800 miles of trail
currently open and available for OHV use on lands managed by the Monticello
Field Office. Thats approximately enough trail to travel between New York City
7

and Los Angeles. This extensive trail system offers OHV riders vast and diverse
opportunities to ride and recreate on public lands in southeastern Utah.
In 2007, BLM-Utah closed Recapture Canyon to motorized use due to damage
that was caused to archaeological resources as a result of OHV use, and to further
protect cultural resources from degradation.
Recapture Canyon contains unique archaeological resources, including ancient
rock art, that are irreplaceable and culturally significant to Ancestral Puebloans.
Recapture Canyon was closed to motorized use in 2007 due to damage that was
caused to archaeological resources as a result of OHV use, and to further protect
archaeological and cultural resources.
Any motorized use in Recapture Canyon is prohibited and violators will be
subject to civil and criminal penalties.
An on-going environmental assessment with opportunities for public participation
is being completed to analyze the potential impacts of developing an ATV trail in
Recapture Canyon, as proposed by San Juan County.

ATTRIBUTEABLE QUOTES
BLM-Utahs general stance on the proposed illegal ATV Ride

"The Recapture Canyon area contains a rich archaeological record of the

Ancestral Puebloans who once called it home. To protect the cultural resources
left by these prehistoric peoples, the BLM-Utah closed the Recapture Canyon trail
to motorized access in 2007. The BLM-Utah believes that many of these
exceptional archaeological resources will be damaged by the proposed illegal
ATV ride through Recapture Canyon. The BLM-Utah has not and will not
authorize the proposed ride and will seek all appropriate civil and criminal
penalties against anyone who uses a motorized vehicle within the closed area."
Juan Palma, BLM-Utah State Director

Impact to archaeological resources should a motorized vehicle be used within the closure
area
We know from the archaeological record left behind in Recapture Canyon that
the area has been occupied for at least 2,000 years. Illegal ATV use within the
Recapture Canyon closure area will damage many of these archaeological
resourcesall of which hold the history and tell the story of the first farmers in
the Four Corners region. Nathan Thomas, BLM-Utah State Archaeologist
Many descendants of the prehistoric peoples who made the Recapture Canyon
area their home for nearly two millennial still live and thrive throughout this
region. We know that Recapture Canyon contains human remains belonging to
the ancestors of people living in many Utah communities. Adhering to the
closure restrictions, helps protect these special resources from further damage and
shows reverence to those whose final resting place is in the canyon. Nathan
Thomas, BLM-Utah State Archaeologist
Continued collaboration with San Juan County on proposed right-of-way for ATV trail
8

We are committed to constructively addressing competing resource demands on

public lands in the Monticello Field Office and will continue engaging with San
Juan County and our other stakeholders to complete the environmental analysis
and reach a decision on the countys proposed ATV right of way. Lance Porter,
BLM-Utah Canyon Country District Manager

Timeframe for reaching a decision on county-proposed right-of-way for ATV trail

To ensure our environmental analysis of the Recapture Canyon trail area is
thorough, thoughtful, and complete, we have conducted intensive inventories of
the archaeological, riparian, and wildlife resources, as well as an engineering
study and a recreational use evaluation. Although these efforts have taken time,
we expect to release the environmental assessment for public comment this
summer and reach a decision later this year. Lance Porter, BLM-Utah Canyon
Country District Manager

POTENTIAL TARGET AUDIENCES

Affiliation
Congressional
DC
Congressional
DC
Congressional
DC
Congressional
DC
Congressional
DC
Congressional
DC
Congressional
UTAH
Congressional
UTAH
Congressional
UTAH

Group
Sen. Orrin Hatch

Contact
John Tanner

Sen. Mike Lee

Mike Freeman

Rep. Rob Bishop

Fred Ferguson

Rep. Chris
Stewart
Rep. Jason
Chaffetz
Rep. Jim
Matheson
Sen. Orrin Hatch

Brian Steed

Sen. Mike Lee

Derek Brown

Rep. Rob Bishop

Wayne Bradshaw

Congressional
UTAH
Congressional
UTAH
Congressional
UTAH

Rep. Chris
Stewart
Rep. Jason
Chaffetz
Rep. Jim
Matheson

Dell Smith

Utah State
Government

Governors
Office

Alan Matheson

Utah State
Government
Utah State
Government

Governors
Office
Utah Office of
Outdoor
Recreation

Mike Mower

Contact Info
(202) 224-9680
john_tanner@hatch.senate.gov
(202) 224-5444
mike_freeman@lee.senate.gov
(202) 225-0453
fred.ferguson@mail.house.gov
(202) 225-8069
brian.steed@mail.house.gov
(202) 225-7751
justin.harding@mail.house.gov
(202) 225-3011
jan.beukelman@mail.house.gov
Phone: (801)375-7881
Email: ron_dean@hatch.senate.gov
Phone: (801)524-5933
Email: derek_brown@lee.senate.gov
Phone: (801)625-0107
Email:
wayne.bradshaw@mail.house.gov
Phone: (801)364-5550
Email: dell.smith@mail.house.gov
Phone: (801)379-2500
Email: wade.garrett@mail.house.gov
Phone: (801)486-1236
Email: chase.clyde@mail.house.gov
Phone: (801)303-1452
Email: amatheson@utah.gov
Email: mikemower@utah.gov

Brad Peterson

Email: bradp@utah.gov

Justin Harding
Jan Beukelman
Ron Dean

Wade Garrett
Chase Clyde

Responsible

Affiliation
Utah State
Government

Group
Utah Department
of Natural
Resources
Utah Division of
Wildlife
Resources
Utah Division of
State Parks
Public Lands
Policy Coord.
Office
State Historic
Preservation
Office
State Historic
Preservation
Office
San Juan County

Contact
Mike Styler

Contact Info
Email: mikestyler@utah.gov

Greg Sheehan

Email: gregsheehan@utah.gov

Fred Hayes

Email: fredhayes@utah.gov

Kathleen Clarke

Email: kathleenclarke@utah.gov

Brad Westwood

Email: bradwestwood@utah.gov

Lori Hunsaker

Email: lhunsaker@utah.gov

Bruce Adams

Email: bbadams@sanjuancounty.org

Arches and
Canyonlands NP

Kate Cannon

National Park
Service

Canyons of the
Ancient NP

Marietta Eaton

Forest Service

LaSal National
Forest

Mike Diem

Fish and
Wildlife Service
Tribe

Salt Lake Office

Larry Crist

Phone: (435)719-2100
Email: kate_cannon@nps.gov
Phone: (970)882-5600
Email: meaton@blm.gov
Phone: (435)259-7155
Email:
Email: larry_crist@fws.gov

The Hopi Tribe

Tribe

The Hopi Tribe

Leroy Ned Shingoitewa,

Chairman
Terry Morgart, Hopi Cultural
Preserv Office

Tribe

Ute Mountain Ute

Tribe
Ute Mountain Ute
Tribe

Manuel Heart, Chairman

Tribe
Tribe

Navajo Nation
Navajo Nation

Tribe
Tribe

Pueblo of Zuni
Pueblo of Zuni

Ben Shelly, President

Tony Joe, Program Manager
Navajo Nation Historic
Preservation Dept
Traditional Culture Program
Arlen Quetawki, Sr., Governor
Kurt Dongoske, Director and
Tribal Historic Preserv Officer

Tribe
Tribe

Pueblo of Acoma
Pueblo of Acoma

Utah State
Government
Utah State
Government
Utah State
Government
Utah State
Government
Utah State
Government
County
Government
National Park
Service

Tribe

Terry Knight, Historic

Preservation Director

Fred S. Vallo, Sr., Governor

Theresa Pasqual, Director
Historic Preserv Office

Responsible

Phone: (928)734.3000
Phone: (928)734-3619
Email:
Phone:
Phone: (970)565-3751 ext. 727
Email:
Phone: (928)871-6352
Phone: (928)871-7750
Email:
Phone: (505)782-7022
Phone: (505)782-4814
Email:
Phone: (505)552-6604
Phone: (505)264-3474
Email: tpasqual@puebloofacoma.org

ATTACHMENTS
Press statement for day of event To be drafted
April 28, 2014, letter to Commissioner Phil Lyman To be attached

10

b. Safety Plan
Since this action is not being initiated by BLM but by others our stance is of necessity a
reactive one. All employee meetings will be held at both the Monticello and Moab Field
Offices. At these meetings staff will be briefed on the situation status regarding the
proposed illegal ATV ride in Recapture Canyon. Employees will be instructed that no one
is to work in the Monticello Field Office on Saturday, May 10th. In the event of an
unforeseen need such as Oil and Gas monitoring the employee will notify the supervisor
and the supervisor will notify the District Manager. The District Manager and the District
Supervisory Law Enforcement Ranger will review the risks to determine if the mission
can be completed safely. In addition staff will be advised to avoid the event on their off
duty hours.

IV. LOGISTICS
a. Law Enforcement Plan-PROVIDED BY JASON MOORE
b. Medical Plan

11

1.

MEDICAL PLAN

Incident Name

2.

Date Prepared

Recapture

3.

Time Prepared

04/25/14

4.

Operational Period
05/10/14

1500HRS

5. Incident Medical Aid Station

Medical Aid Stations

Paramedics
Yes
No

Location

None

6. Transportation
For any Major Medical emergency contact the following:
Moab Interagency Fire Center (Moab, UT)

(435)259-1850

San Juan County Sheriffs Office (Monticello, Ut)

911/(435)587-2237
A. Ambulance Services
Paramedics
Yes
No

Name

Address

Phone

San Juan County EMS

Monticello, Blanding, Bluff, UT

911/(435)587-2237

Grand County EMS

Moab, UT

911/(435259-1301

X
X

B. AIR Ambulances
Paramedics
Yes
No

Name

Location

Classic Lifeguard

Moab, UT (800)444-9223

St. Marys Careflight

Grand Junction, CO

IHC Lifeflight

Provo, Murry, SLC, UT (800)321-1911

Hoist Capable

Tri-State Care Flight

Durango, CO (800)800-0900

7. Hospitals
Travel Time
Air
Ground

Phone

Helipad
Yes

Burn Center
Yes
No

Name

Address

San Juan Hospital

364 W. First Monticello, UT

(435)587-2116

Moab Regional

467 Williams Way Moab, UT

(435)719-5550

No

Please insure that all medical / First aid kits are stocked and up to date in all vehicles
St. Marys

2635 N. 7th Street Grand Junction, CO

801-5812700

University of Utah
Burn Center

SLC, UT

970-350-6099

8. Medical Emergency Procedures

12

Medical Procedures Continued:

Protocol in case of injuryGovernment Employee:
Notify Moab Interagency Fire Center of approximate location, resources responding, and
additional resources needed
Request ground or air ambulance
Do to response and evacuation times air ambulance is preferred option
Once on scene stabilize injured and get location of injured to Moab Interagency Fire Center with
a GPS point in NAD 83 Datum
Preserve life and property, treating within protocols
Notify and brief the District Manger on incident, injured parties and actions taken
Non-Government person (to include contractors):
Notify Moab Interagency Fire Center of approximate location, resources responding and
additional resource needs
Once on scene determine if the injured request assistance or refuse care.
Document all refusals
If the injured consent to treatment notify Moab Interagency Fire Center of location and number
of injured, type of injuries
Give Moab Interagency Fire Center GPS location of injured in NAD83 datum
Stabilize injured and await ground or air ambulance

Obtain all pertinent patient information for possible tort claims

Prepared by (Medical Unit Leader)

10. Reviewed by (Safety Officer)

Sean McArthur

Walter Birkenheier

13

Appendix A-Organization Chart

District Manager
Lance C. Porter

Public Affairs
Lola Bird

Law Enforcement
Lead
Jason Moore

Field Manager
Donald Hoffheins

Safety Lead
Walter
Birkenheier

14

Appendix B-Contact List

NAME

OFFICE NUMBER

CELL NUMBER

Lance Porter

435-259-2174

435-210-0920

Walter Birkenheier
Jason Moore
Donald Hoffheins
Juan Palma
Jenna Whitlock
Robyn Kirkham
Megan Crandall
Lola Bird

435-259-2154
435-259-2109
435-587-1506
801-539-4010
801-539-4010
801-539-4082
801-539-4020
801-539-4183

435-210-1181
435-260-8013
435-459-9461
801-440-5411
801-503-6254
801-367-2983
801-824-6211

15

Appendix C-Map of Potential Ride Routes

16