[Federal Register: October 19, 1999 (Volume 64,
Number
201)]
[Notices]
[Page 56306-56307]
From the Federal Register Online via GPO Access
[wais.access.gpo.gov]
[DOCID:fr19oc99-27]
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DEPARTMENT
OF AGRICULTURE
Forest Service
National Forest System
Roadless Areas
AGENCY: Forest Service, USDA.
ACTION: Notice of
intent to prepare an environmental impact
statement.
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SUMMARY:
The Forest Service is initiating a public rulemaking process
to propose the
protection of remaining roadless areas within the
National Forest System.
This proposed rulemaking responds to strong
public sentiment for protecting
roadless areas and the clean water,
biological diversity, wildlife habitat,
forest health, dispersed
recreational opportunities and other public
benefits they provide.
The proposed rulemaking also
responds to budgetary concerns
expressed about the national forest road
system. Building roads into
roadless areas is expensive, and the public has
questioned the logic of
building new roads into roadless areas when the
Forest Service receives
insufficient funding to maintain its existing road
system. Indeed, the
Forest Service has a growing $8.4 billion maintenance
and
reconstruction backlog and receives only 20 percent of the annual
funding it needs to maintain its existing 380,000 mile road system to
environmental and safety standards.
To assist in
determining the scope and content of a proposed rule,
the agency will
prepare an environmental impact statement to analyze:
(1) The effects of
eliminating road construction activities in the
remaining unroaded portions
of inventoried roadless areas on the
National Forest System; and (2) the
effects of establishing criteria
and procedures to ensure that the social
and ecological values, that
make both inventoried roadless areas and other
uninventoried roadless
lands important, are considered and protected through
the forest
planning process. Public comment is invited on the scope of the
analysis that should be conducted, on the identification of
alternatives
to the proposal, and on whether the rulemaking should
apply to the Tongass
National Forest.
DATES: Comments should be received in writing by
December 20, 1999.
ADDRESSES: Send written comments to the USDA Forest
Service-CAET,
Attention: Roadless Areas NOI, P.O. Box 221090, Salt Lake
City, Utah
84122 or by e-mail to
roadlessareasnoi/wo__caet@www.fs.fed.us
(CORRECTION:
email address is roadless/wo_caet-slc@fs.fed.us).
Comments received in response to
this solicitation, including names
and addresses when provided, will be
considered part of the public
record on this proposed action and will be
available for public
inspection and copying.
FOR FURTHER INFORMATION
CONTACT: Project Team Leader, Scott Conroy,
Attention: Roadless Areas NOI,
USDA Forest Service, P.O. Box 96090,
Washington, DC 20090-6090, (703)
605-5299.
SUPPLEMENTARY
INFORMATION:
Background
Although they make up
only a small percentage of the nation's total
land-base, roadless areas are
critically important for the long-term
ecological sustainability of the
nation's forests. Roadless areas serve
as reference areas for research, as a
barrier against invasive plant
and animal species that harm native species,
and as aquatic strongholds
for fish of great recreational, subsistence, and
commercial value.
Roadless areas often provide vital habitat and migration
routes for
numerous wildlife species and are particularly important for
those
requiring large home ranges, such as the grizzly bear and wolf. Many
roadless areas also act as ecological anchors, allowing nearby federal,
state, and private lands to be developed for economic
purposes.
The public has rightfully questioned whether the
Forest Service
should build new roads into roadless areas when it lacks the
resources
needed to maintain its existing road system. The current national
forest road system includes 380,000 miles of road, enough road to
circle
the globe more than 15 times. But the agency currently has a
road
reconstruction and maintenance backlog of approximately $8.4
billion.
In addition to the monetary costs, the
environmental costs of road
construction in roadless areas remain visible
and potentially damaging
for decades. Road construction increases the risk
of erosion,
landslides, and slope failure, endangering the health of entire
watersheds that provide drinking water to millions of Americans and
critical habitat for fish and wildlife. Growing scientific information
demonstrates that road construction and other development in these
sensitive areas can allow entry of invasive plants and animals that
threaten the health of native species, increase human-caused fire,
disrupt habitat connectivity, and otherwise compromise the attributes
that make roadless areas socially valuable and ecologically
important.
On January 28, 1998, the agency proposed
revising the National
Forest Transportation System regulations.
Specifically, the purpose was
to consider changes in how the road system is
developed, used,
maintained, and funded (63 FR 4350-4351). On the same day,
the agency
proposed a rule to suspend temporarily road construction and
reconstruction in certain unroaded areas (63 FR 4352-4354). In response
to the January 28, 1998, Federal Register notices, the agency received
over 80,000 public comments. The agency published a final rule,
referred
to as the ``interim rule'', that temporarily suspended road
construction and
reconstruction in unroaded areas on February 12, 1999
(64 FR
7290-7305).
In commenting on the National Forest System
Transportation System
rule and the proposed temporary suspension rule,
members of the public
expressed serious concerns that are relevant to this
proposal (64 FR
7290). Among those key concerns are beliefs
that:
<bullet> The temporary suspension of road
construction/
reconstruction should be made permanent.
<bullet> Continued entry into roadless areas will decrease the
amount
of wildlife habitat available by increasing fragmentation.
<bullet> The temporary suspension does not go far enough to protect
all roadless lands across the National Forest System.
<bullet> The temporary suspension should not have included
exemptions
such as the Tongass National Forest and those areas covered
by the
President's Forest Plan.
<bullet> Economic and
social effects will result from reductions in
commercial timber harvest and
other commodity production.
<bullet> Temporary
suspension of road construction and
reconstruction essentially expands the
wilderness system.
<bullet> Denying access to
roadless areas violates the Alaska
National Interest Land Conservation
Act.
The interim rule provided a ``time out'' for the
agency to develop
a long-term road management strategy and to consider more
fully public
concerns about roadless areas and road management. As a
consequence,
the
[[Page 56307]]
Forest Service is taking the
following actions.
First, in the next several weeks, the
agency will publish proposed
changes to the National Forest System
Transportation System rules at 36
CFR Part 212 and to Forest Service Manual
direction. This proposed rule
is designed primarily to better manage the
existing national forest
road system. It would also establish new procedural
requirements to
help managers make more informed decisions concerning entry
into
roadless areas. A draft environmental assessment will accompany the
proposed rule.
Second, the agency is beginning a two
part process, outlined in
this Notice of Intent, to initiate a public
rulemaking process that
proposes protection of remaining National Forest
System roadless areas.
Proposal
The Forest
Service proposes to promulgate a rule that would
initiate a two part process
to protect roadless areas. If adopted, part
one would immediately restrict
certain activities, such as road
construction, in unroaded portions of
inventoried roadless areas, as
previously identified in RARE II and existing
forest plan inventories.
Possible alternatives to be
considered in the draft environmental
impact statement for part one may
include:
<bullet> Prohibiting new road construction
and reconstruction
projects in the remaining unroaded portions of
inventoried roadless
areas;
<bullet> Prohibiting
new road construction and reconstruction
projects and commercial timber
harvest in the remaining unroaded
portions of inventoried roadless
areas;
<bullet> Prohibiting the implementation of
all activities, subject
to valid existing rights, that do not contribute to
maintaining or
enhancing the ecological values of roadless areas in
remaining unroaded
portions of inventoried roadless areas;
and
<bullet> Making no change in current policy (No
action
alternative).
Part two would establish national
direction for managing
inventoried roadless areas, and for determining
whether and to what
extent similar protections should be extended to
uninventoried roadless
areas. After approval of a final rule, the direction
for part two would
be implemented at the forest plan level through the plan
amendment and
NEPA process. This national direction would guide land
managers in
determining what activities are consistent with protecting the
important ecological and social values associated with inventoried
roadless areas. It would also guide land managers in determining what
activities are appropriate in uninventoried roadless areas that have
important ecological and social values.
Possible
alternatives to be considered in the draft EIS for part
two
include:
<bullet> National procedures and criteria
that address how land
managers at the forest plan level should manage
activities, other than
those addressed in part one, in inventoried roadless
areas;
<bullet> National procedures and criteria
that address how land
managers at the forest plan level should manage
uninventoried roadless
areas so as to protect their unroaded characteristics
and benefits.
Possible alternatives include:
a.
Protecting unroaded areas based on their ecological
characteristics;
b. Protecting existing unroaded
National Forest System lands that
are at least 1,000 acres in size and
contiguous to unroaded areas of
5,000 acres or more on all other Federal
lands;
c. Protecting existing unroaded areas of at least
1,000 acres;
<bullet> No change in current policy
(No action alternative).
Alternatives may consider certain
exemptions under specific
situations. In light of the recent revision of the
Tongass National
Forest Land management plan and the transition in the
timber program in
Southeast Alaska, we specifically solicit comments on
whether or not
the proposed rule should apply to the Tongass National Forest
and, if
so, whether inventoried Tongass roadless areas should be covered
under
part one of the rule or only under part two.
Proposed NEPA
Scoping Process
This Notice of Intent initiates the
scoping process. As part of the
scoping period, the Forest Service solicits
public comment on the
nature and scope of the environmental, social, and
economic issues
related to the proposed rulemaking that should be analyzed
in depth in
the Draft Environmental Impact Statement. Comments on this
proposal and
possible alternatives should be sent to the Content Analysis
Enterprise
Team (CAET) at the address shown earlier in this notice. Dates
and
locations of scoping meetings will be announced shortly.
The
Importance of Participating in Scoping
The Forest
Service believes it is important to give reviewers
notice of several court
rulings related to public participation in the
environmental review process.
First, reviewers of draft environmental
impact statements must structure
their participation in the
environmental review of the proposal so that it
is meaningful and
alerts an agency to the reviewer's position and
contentions. Vermont
Yankee Nuclear Power Corp. v. NRDC, 435 U.S. 519, 553
(1978). Also,
environmental objections that could be raised at the draft
environmental impact statement stage, but are not raised until after
completion of the final environmental impact statement, may be waived
or
dismissed by the courts. City of Angoon v. Hodel, 803 F.2d 1016,
1022 (9th
Cir. 1986) and Wisconsin Heritages, Inc. v. Harris, 490 F.
Supp. 1334, 1338
(E.D. Wis. 1980). Because of these court rulings, it
is very important that
those interested in this proposed policy
participate by the close of the
60-day comment period so that
substantive comments and objections are made
available to the Forest
Service at a time when it can meaningfully consider
them and respond to
them in the draft environmental impact
statement.
Time Frame
Upon completion of the
scoping process, a draft environmental
impact statement will be prepared.
The draft environmental impact
statement and proposed rule are expected to
be available for public
review and comment in Spring 2000, and a final
environmental impact
statement and final rule will follow.
The
Responsible Official
The Responsible Official is Mike
Dombeck, Chief, Forest Service,
USDA, P.O. Box 96090, Washington, DC
20090-6090.
Dated: October 14, 1999.
Mike
Dombeck,
Chief.
[FR Doc. 99-27300
Filed 10-18-99; 8:45 am]
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