Undeveloped Quality

The objective of monitoring the Undeveloped Quality is to assess whether a wilderness is becoming more developed over time, such as by exhibiting increasing evidence of physical infrastructure, or if there is more prevalent use of mechanization, such as helicopters and chainsaws.

The opening sentence of Wilderness Act, Section 2(a) states that the NWPS was created "In order to assure that an increasing population, accompanied by expanding settlement and growing mechanization, does not occupy and modify all areas within the United States…" Section 2(c) of the Wilderness Act defines wilderness as "an area of undeveloped federal land retaining its primeval character and influence, without permanent improvements or human habitation" and as a place "where man himself is a visitor who does not remain." Agency policies and case law consistently identify the Undeveloped Quality as one of the principle components that defines wilderness.

For the Undeveloped Quality, two monitoring questions provide the broad context and three indicators provide the structure for this monitoring (as summarized in table 1.4.1).

Table 1.4.1—Monitoring questions, indicators, measures, and measure types for the Undeveloped Quality.

Undeveloped Quality
Monitoring question: What are the trends in physical evidence of development inside wilderness?
Indicator	Measure	Measure type
Presence of non-recreational structures, installations, and development	Index of authorized non-recreational physical development	Required
Presence of inholdings	Acres of inholdings	Required
Monitoring question: What are the trends in mechanization?
Indicator	Measure	Measure type
Use of motor vehicles, motorized equipment, or mechanical transport	Index of administrative authorizations to use motor vehicles, motorized equipment, or mechanical transport	Required
	Percent of emergency incidents using motor vehicles, motorized equipment, or mechanical transport	Optional
	Index of special provision authorizations to use motor vehicles, motorized equipment, or mechanical transport	Optional

4.1 Monitoring Questions

Two monitoring questions are used in monitoring the Undeveloped Quality:

1. What are the trends in non-recreational physical development?
2. What are the trends in mechanization?

The first monitoring question addresses the presence of physical development that most often typifies evidence of modern human occupation and modification, including both non-recreational physical developments and developments on non-NFS lands interior to a wilderness (also known as inholdings). Although most occurrences of physical developments on NFS lands predate the area's designation as wilderness, these developments still have an effect on the undeveloped aspect of a wilderness. Similarly, inholdings, while not technically wilderness, still may be developed and affect a visitor's sense of this quality.

Developments associated with recreation, such as trails, bridges, signs, and campsites, are typically the most prevalent sign of modern human occupation and modification inside wilderness. Recreational developments are not included under this quality, but are instead counted under the Solitude or Primitive and Unconfined Recreation Quality because their primary purpose relates directly to opportunities for primitive recreation. A basic tenet of WCM is that measures are not double counted, but instead are listed under the quality and indicator where they fit best. The decision to include recreational developments under the Solitude or Primitive and Unconfined Recreation Quality was made in Keeping It Wild 2 (Landres et al. 2015), and this technical guide is consistent with that decision.

The second monitoring question assesses the effect of motorized equipment and mechanical transport on the Undeveloped Quality. This includes authorized uses, such as for administrative, emergency, and special provision purposes, as well as unauthorized uses. For the purposes of the this WCM strategy, it was determined that the level of monitoring needed to track unauthorized uses was outside the scope of this technical guide; therefore, this guide does not include a measure that assesses unauthorized use of motor vehicles, motorized equipment, or mechanical transport (see Appendix 2 for further explanation). Although the Wilderness Act and subsequent legislation allow motorized equipment or mechanical transport under certain conditions, their use diminishes the Undeveloped Quality. Monitoring the use of motorized equipment and mechanical transport over time can help Forest Service line officers make well-informed decisions grounded in the Wilderness Act.

The first monitoring question "What are the trends in non-recreational physical development?" is addressed through two indicators: (1) presence of non-recreational structures, installations, and developments, and (2) presence of inholdings.

These two indicators provide a comprehensive assessment of the various types of physical developments not related to recreational infrastructure that may be present in a wilderness.

The second monitoring question, "What are the trends in mechanization?" is addressed through a single indicator that encompasses the use of motor vehicles, motorized equipment, or mechanical transport.

4.2 Indicator: Presence of Non-Recreational Structures, Installations, and Developments

This indicator focuses on the physical evidence of modern human occupation and modification in wilderness, such as roads, buildings, and dams. This indicator excludes developments related to recreational use (e.g., trails) because they are counted under the Solitude or Primitive and Unconfined Recreation Quality.

4.2.1 Measure: Index of Authorized Non-Recreational Physical Development

This measure is an index that assesses selected elements for each type, or component, of non-recreational physical development. These elements are typically selected because they affect the area's undeveloped character and may change based on decisions made by the Forest Service, permittees, or cooperators.

For many people, wilderness is defined by its lack of developments, especially the absence of roads and buildings. Wilderness is intended to be in contrast "with those areas where man and his works dominate the landscape." (Wilderness Act, Section 2[c]). Despite this requirement, few wildernesses have entirely escaped the physical evidence of modern human occupation and modification. Types of developments in wilderness include: buildings, dams and other instream structures, roads, fixed instrumentation sites, utility infrastructure, mines, and grazing infrastructure.

Many developments predate the establishment of a wilderness but were grandfathered in by the authorizing legislation. Although developments are not typically allowed in wilderness, their presence does not preclude the formal designation of an area. As a particular piece of infrastructure outlives its intended purpose, it is often removed if the law allows; for example, roads and buildings are torn down and dams decommissioned. In contrast, new infrastructure is sometimes put into wilderness, most commonly with fixed instrumentation sites such as volcanic activity sensors and snow water content monitoring stations. A development's benefit or purpose is irrelevant when assessing its impact on the Undeveloped Quality of wilderness character.

This measure excludes those developments intended to support recreational use, such as system trails and bridges as well as administratively provided infrastructure such as hitching posts, bear poles, and shelters because these are evaluated under a separate quality (see section 5.4). It includes all non-recreational infrastructure authorized by the Forest Service, including those implemented by permittees or cooperators under current agreements. The measure also excludes unauthorized developments, such as trash piles and squatters' cabins, because these data are not routinely tracked in corporate databases and the general approach for calculating this index is to rely on data that can predictably be extracted from standard datasets. Additionally, it is generally agency policy to remove these developments soon after being discovered and not have them persist over time.

This measure is required for all Forest Service wildernesses. A 3-percent or greater change in the measure value will result in a change in trend for this measure. Once there are five measure values, the threshold for meaningful change will switch to regression analysis, and statistical significance will determine the trend in the measure. An increase in the development measure value corresponds with a degrading trend.

Refer to part 2, section 4.2.1, for more detailed guidance on data sources and compilation protocols, analysis, data adequacy, and interpreting the threshold for meaningful change.

4.3 Indicator: Presence of Inholdings

This indicator focuses on the physical evidence of modern human occupation and modification within inholdings. Due to the vulnerability of these lands to development and the adverse effect this development could have on the surrounding wilderness values, the impact on the Undeveloped Quality of wilderness character can be significant.

4.3.1 Measure: Acres of Inholdings

This measure assesses the acres of inholdings in a wilderness, even if the existence of inholdings is imperceptible to an observer. This measure was selected as the most direct way to track changes to the indicator over time. Although very unlikely to increase, the number of inholding acres may decrease as inholding parcels are acquired through purchase, donation, or exchange. This measure calculates the total acreage of all parcels inside wilderness that are not NFS lands, including both private and state inholdings and patented mining claims.

Wilderness inholdings are defined as non-federal land within the boundary of a wilderness. As such, they do not include partially enclosed lands, such as cherry-stemmed roads. Inholdings encompass a variety of lands, including private lands, state lands, and patented mining claims. Unpatented mining claims are not inholdings because the Federal Government retains the surface ownership.

This measure was selected because inholdings are not given the same legal protections and restrictions as the wilderness lands around them, and they can be developed for various purposes at the discretion of the landowner. These lands can be roaded and logged; developed with recreational lodges, facilities, or private residences; and in some instances mined; all of which directly impact the Undeveloped Quality of wilderness character.

This measure is required for all Forest Service wildernesses, even those without inholdings. Wildernesses without inholdings (about half of all NFS wildernesses) will simply report a measure value of zero because a measure must be selected for the Presence of Inholdings indicator. Any change in the acres of inholdings will result in a change in trend for this measure. An increase in the acres of inholdings corresponds with a degrading trend.

Refer to part 2, section 4.3.1, for more detailed guidance on data sources and compilation protocols, analysis, data adequacy, and interpreting the threshold for meaningful change.

4.4 Indicator: Use of Motor Vehicles, Motorized Equipment, or Mechanical Transport

This indicator focuses on the use of the three forms of mechanization discussed in Section 4(c) of the Wilderness Act: (1) motor vehicles, (2) motorized equipment, and (3) mechanical transport.

Forest Service regulations and policy restrict the use of motorized equipment and mechanical transport for all NFS wildernesses, requiring authorizations at various levels of the agency when such use is deemed necessary. Forest Service policy for the authorization and use of motorized equipment and mechanical transport is provided in FSM section 2326—Use of Motorized Equipment or Mechanical Transport in Wilderness. Key definitions in FSM 2320.5 are as follows:

• Mechanical Transport: Any contrivance for moving people or material in or over land, water, or air, having moving parts, that provides a mechanical advantage to the user, and that is powered by a living or nonliving power source. This includes, but is not limited to, sailboats, hang gliders, parachutes, bicycles, game carriers, carts, and wagons. It does not include wheelchairs when used as necessary medical appliances. It also does not include skis, snowshoes, rafts, canoes, sleds, travois, or similar primitive devices without moving parts.
• Motorized Equipment: Machines that use a motor, engine, or other nonliving power sources. This includes, but is not limited to, such machines as chain saws, aircraft, snowmobiles, generators, motorboats, and motor vehicles. It does not include small battery or gas-powered hand-carried devices such as shavers, wristwatches, flashlights, cameras, stoves, or other similar small equipment.

The Forest Service includes motor vehicles in the definition of motorized equipment, and does not track these separately.

4.4.1 Measure: Index of Administrative Authorizations to Use Motor Vehicles, Motorized Equipment, or Mechanical Transport

This measure assesses the 3-year rolling average of a use-level index evaluating administrative authorizations to use motor vehicles, motorized equipment, or mechanical transport, based on the type and number of pieces of equipment and the days of use. Administrative authorizations are defined as an authorization to use motor vehicles, motorized equipment, or mechanical transport determined to be necessary to meet minimum requirements for the administration of the area. This includes mechanized uses conducted by agency staff, as well as by other individuals as authorized under current permits or agreements with the Forest Service. This excludes authorizations that are of an emergency nature or are related to special provisions as provided by statute, both of which are evaluated under separate measures (see section 4.4.2 and section 4.4.3, respectively).

This measure was selected because administrative authorizations should be given great scrutiny as they are at the full discretion of the agency and they are not of an emergency nature. Typically, local units have time for a thorough analysis to evaluate the need for such use, including identification of non-mechanized alternatives that might exist. This measure uses data currently recorded in the NRM-Wilderness application and reported annually during the upward reporting cycle.

This measure is required for all Forest Service wildernesses. Any change in the 3-year rolling average measure value will result in a change in trend for this measure. Once there are five measure values, the threshold for meaningful change will switch to regression analysis, and statistical significance will determine the trend in the measure. An increase in the average measure value corresponds with a degrading trend.

Refer to part 2, section 4.4.1, for more detailed guidance on data sources and compilation protocols, analysis, data adequacy, and interpreting the threshold for meaningful change.

4.4.2 Measure: Percent of Emergency Incidents Using Motor Vehicles, Motorized Equipment, or Mechanical Transport

This measure assesses the 3-year rolling average of the percentage of emergency incidents resulting in a motorized or mechanized response. For the purposes of this protocol, an emergency incident is an event relating to public health and safety that may require a response from emergency personnel, and of which an emergency responder is aware. Emergency incidents fall into the following categories: aircraft accident investigation, fire, law enforcement, other natural disaster, removal of deceased persons, and search and rescue. Many emergency incidents never receive a response because the parties involved self-rescued before emergency personnel were notified or mobilized. For example, injured persons can self-rescue or lost parties can be found without assistance from emergency personnel. The types of incidents that do not receive a management response are not included in this measure.

Emergency responses may require the use of motorized equipment or mechanical transport or may be accomplished through non-motorized or non-mechanized means. Uses of motorized equipment and mechanical transport for emergency incidents typically involve less discretion than administrative authorizations simply due to the shortened response timeframes and the need to protect public safety and welfare.

Unlike administrative authorizations, the number and type of emergency authorizations often vary significantly from year to year based on external factors. If a simple count of emergency authorizations were tracked, an increase in these authorizations could be the result of a busy fire season, for example, and not indicative of local management control. Instead, this measure assesses the proportion of the total number of incidents in a wilderness requiring an emergency response that were granted authorization to use motorized equipment or mechanical transport.

This measure is optional. This measure may be difficult to assess primarily because of the need to track all emergency incidents that occur within a wilderness in a given year, but if a local unit determines that the emergency use of motorized equipment or mechanical transport has the potential to significantly affect wilderness character, the unit may make the decision to assess this measure.

A 5-percent change in the 3-year rolling average percentage of emergency incidents resulting in a motorized or mechanized response will result in a change in trend for this measure. Once there are five measure values, the threshold for meaningful change will switch to regression analysis, and statistical significance will determine the trend in the measure. An increase in the average percentage corresponds with a degrading trend.

Refer to part 2, section 4.4.2, for more detailed guidance on data sources and compilation protocols, analysis, data adequacy, and interpreting the threshold for meaningful change.

4.4.3 Measure: Index of Special Provision Authorizations to Use Motor Vehicles, Motorized Equipment, or Mechanical Transport

This measure assesses the 3-year rolling average of a use-level index evaluating special provision authorizations to use motor vehicles, motorized equipment, or mechanical transport, based on the type and number of pieces of equipment and the days of use. For the purposes of this protocol, a special provision authorization is an authorization to use motor vehicles, motorized equipment, or mechanical transport as specified by statute.

This measure excludes those allowances for the public to use motorized equipment from specific statutes, such as motor boat use on certain lakes in the Boundary Water Canoe Area Wilderness. These data are not tracked routinely and are typically outside of the agency capacity to do so. Instead, the focus is on those mechanized uses undertaken by agency employees, or those other entities authorized to do so through existing permits or agreements with the Forest Service.

Examples of special provision authorizations for motorized or mechanized use include helicopter access to a remote water gauging station, heavy equipment use for dam maintenance, and motor vehicle access to support commercial grazing or utility sites. As currently tracked in NRM-Wilderness, special provision authorizations to use motorized equipment and mechanical transport are categorized into the following subtypes:

• Commercial livestock management
• Fixed equipment installation and maintenance
• Military or Border Patrol
• Mineral rights
• State and private land (for access to inholdings)
• Utility corridors
• Water resource projects (including dams)
• Wildlife management

These special provision authorizations do not have the same level of agency discretion as do administrative authorizations. In some instances, the use of motorized equipment is generally allowed in support of an activity specified in the legislation. In others, the use levels are specified to be at or below the historical levels established at the time of designation. Examples include tracking the number of flights taken by a state fish and game agency to stock fish, or the number of days heavy equipment is used to maintain a dam.

However, for some special provision authorizations, use levels simply may not be known and will not be tracked by this measure. For example, the Alaska National Interest Lands Conservation Act of 1980 (commonly referred to as ANILCA) authorized a variety of uses in Alaskan wildernesses, such as motorized access as needed to support subsistence hunting or use of a motorized winch to assist with hauling large game, for which permits are issued annually. In most instances, the Forest Service will not know actual use levels.

This measure is optional. Local units may assess this measure, if relevant, under two conditions: (1) the unit has special provision authorizations occurring in a wilderness, and (2) the unit believes they can assess the level of motorized equipment or mechanical transport use with some degree of confidence.

A 5-percent change in the 3-year rolling average measure value will result in a change in trend for this measure. Once there are five measure values, the threshold for meaningful change will switch to regression analysis, and statistical significance will determine the trend in the measure. An increase in the average measure value corresponds with a degrading trend.

Refer to part 2, section 4.4.3, for more detailed guidance on data sources and compilation protocols, analysis, data adequacy, and interpreting the threshold for meaningful change.