[Federal Register Volume 81, Number 24 (Friday, February 5, 2016)]
[Notices]
[Pages 6229-6233]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-02269]
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DEPARTMENT OF AGRICULTURE
Forest Service
Ochoco, Umatilla, Wallowa-Whitman National Forests; Oregon and
Washington; Blue Mountains Forest Resiliency Project
AGENCY: Forest Service, USDA.
ACTION: Notice of intent to prepare an environmental impact statement.
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SUMMARY: The Ochoco, Umatilla, and Wallowa-Whitman National Forests,
are proposing forest restoration and fuels reduction on portions of
approximately 1,270,000 acres of National Forest System lands. The
project area consists of selected watersheds amounting to 200,000 acres
on the Ochoco, 520,000 acres on the Umatilla, and 550,000 acres on the
Wallowa-Whitman National Forests. Proposed thinning and prescribed fire
treatments encompass approximately 580,000 acres across the three
National Forests. The project area lies within the Blue Mountain
ecoregion in northeast Oregon and southeast Washington, encompasses
portions of thirteen counties, and includes shared boundaries with
private, tribal, state and other federal lands.
Studies of historical forest conditions can be used to help inform
natural ranges of variation in forest structure, composition and
density, which are assumed to be resilient to disturbance and change.
Fire suppression and past timber management practices in dry forests
have increased the abundance of closed-canopied forest stands dominated
by smaller diameter, young trees than were present historically.
Increased canopy closure has also reduced the amount of forest openings
and early seral habitat. Fire suppression has also caused expansion of
conifers into aspen stands and historically non-forested areas. Denser
forests combined with drought conditions in recent years have
contributed to a record number of wildfires, and less resilient forest
conditions. There is a need to reduce fuels and move forests to a more
resilient structure, composition, density, and pattern.
The purpose of the project is to enhance landscape and species
resilience to future wildfire by restoring forests to their natural
(historical) range
[[Page 6230]]
of variation, reduce the risk of wildfire to high value resources both
on and adjacent to National Forest System lands, and provide a
diversity of economic opportunities and commodities.
The USDA Forest Service will prepare an Environmental Impact
Statement to disclose the potential environmental effects of
implementing restoration treatments on National Forest System lands
within the project area.
DATES: Comments concerning the scope of the analysis must be received
by 60 days following the date that this notice appears in the Federal
Register. The draft environmental impact statement (DEIS) is expected
in summer of 2016 and the final environmental impact statement (FEIS)
is expected in December 2016. The comment period on the DEIS will close
45 days after the date the EPA publishes the Notice of Availability in
the Federal Register. An FEIS and draft Record of Decision (ROD) will
be published after all comments are reviewed and responded to.
Objections to the FEIS and draft ROD must be filed 45 days following
publication of the legal notice of the ``opportunity to object''. Only
individuals or organizations that submitted specific written or oral
comments during a designated opportunity for public participation
(scoping or the public comment period for the DEIS) may object (36 CFR
218.5). Notices of objection must meet the requirements outlined in the
Code of Federal Regulations. Implementation, including treatment layout
and site specific surveys would begin in 2017. One or more separate
RODs will be prepared for each of the three National Forests. The life
of this project plan is approximately 10 years after a decision is
signed.
ADDRESSES: Send written comments to: Blue Mountains Restoration
Strategy Team Lead, 72510 Coyote Rd., Pendleton, OR 97801. Comments may
also be sent via email to: [email protected], or via
facsimile to 541-278-3730 c/o Blue Mountains Restoration Strategy.
FOR FURTHER INFORMATION CONTACT: Ayn Shlisky, Blue Mountains
Restoration Strategy Team Lead, Umatilla National Forest, 72510 Coyote
Rd., Pendleton, OR 97801; phone 541-278-3762. Individuals who use
telecommunication devices for the deaf (TDD) may call the Federal
Information Relay Service (FIRS) at 1-800-877-8339 between 8 a.m. and 8
p.m., Eastern Time, Monday through Friday.
SUPPLEMENTARY INFORMATION:
Background
The USDA Forest Service PNW Region's Eastside Restoration Strategy
(ERS) was chartered in January 2013 to accelerate the pace and scale of
forest restoration on National Forest System (NFS) lands in eastern
Oregon and Washington. The ERS focuses on accelerating forest
restoration at a larger scale and faster pace than traditional planning
and project implementation processes, The Blue Mountains Forest
Resiliency Project (FRP) is part of the ERS, and was chartered by the
Forest Supervisors of the Ochoco, Umatilla, and Wallowa-Whitman
National Forests to restore the structure, composition, and function of
dry forests, and facilitate the effective use, where appropriate, of
planned and unplanned landscape scale fire across all forest types on
these National Forests. The project area lies within the Blue Mountains
ecoregion in northeast Oregon and southeast Washington, and consists of
approximately 1,270,000 acres of NFS lands. The overall project
planning area consists of selected watersheds amounting to 200,000
acres on the Ochoco, 520,000 acres on the Umatilla, and 550,000 acres
on the Wallowa-Whitman National Forests. It includes portions of 13
counties and shared boundaries with private, tribal, state and other
federal lands. The project area coincides with ceded lands of three
treaty tribes (Confederated Tribes of the Umatilla Indian Reservation,
the Nez Perce Tribe and the Confederated Tribes of the Warms Springs
Reservation). The Burns-Paiute Tribe, as an Executive Order Tribe, does
not have off reservation rights but maintains traditional cultural
interests in the Blue Mountain Forest Resiliency Project planning area.
This project was intentionally designed to encompass a large scale and
narrow scope; test new planning processes; monitor results; learn from
project results, and adapt as needed to achieve desired outcomes on the
landscape. The project will produce a single Environmental Impact
Statement (EIS), which can support decision-making across portions of
the three national forests that are not in an Inventoried Roadless
Area, designated Wilderness area, Wild and Scenic River, Research
Natural Area, or other management area restricted from implementing the
proposed activities, or not already covered by similar, existing forest
restoration planning efforts.
Purpose and Need for Action
The 2015 fire season set a new record for the number of acres
burned in the United States, totaling over 10 million acres. In 2015,
the Blue Mountains National Forests of Oregon and Washington reported
over 282,000 acres burned in wildfires. Throughout the FRP area,
unusually large and severe wildfires have become more common due to
decades of fire suppression, past timber management practices, and
climate change. Wildfire transmission to the rural-wildland interface,
private forestlands and woodlots, campgrounds, guard stations,
communication towers, and other high value resources; and the
increasing cost of fire suppression are of major concern to local
communities and land managers. Studies of historical forest conditions
can be used to help inform natural ranges of variation (RV) in forest
structure, composition, density, and pattern, which are assumed to be
resilient to disturbance and change. Dry upland forests have become
denser and expanded into historically non-forested areas, ladder fuels
have increased, and the abundance of large and/or fire-tolerant tree
species has declined relative to the RV. Dry upland forest types are
also showing a deficit of open canopied stands dominated by large,
fire-tolerant trees of ponderosa pine, western larch, and Douglas-fir.
Some areas show a deficit of large tree dominated, closed-canopied
stands. Forests within the project area have also become increasingly
vulnerable to uncharacteristic outbreaks of insects and diseases. Plant
and animal species adapted to historical forest structures and
disturbance regimes are also at risk of loss. The economic livelihood
of several communities is threatened by the potential loss of jobs and
industries dependent on resilient forest systems and their active
restoration.
The current pace of active forest restoration with thinning and
prescribed burning in the Blue Mountains is not keeping pace with
forest growth. Over 2.3 million acres in the Blue Mountains are in need
of active management toward the RV, with over 1.6 million of these
acres occurring on NFS lands. Scenario modelling by the Forest Service
in April 2013 revealed that at the current rate of project planning and
implementation, the RV on NFS lands in the Blue Mountains would not be
achieved for decades, if at all. Active forest management depends on
thriving local restoration industries, helps maintain jobs and
consistency of forest products from national forestlands, and can
reduce fire suppression costs. The existence of active local
collaborative groups within the project area provides opportunities to
more effectively integrate a range of social values and concerns into
project plans. To create a
[[Page 6231]]
future forest that is more resilient to changing fire regimes and
climate, there is a need to take greater action now to restore our
landscapes, increase fire's beneficial effects, and reduce the exposure
of communities, highly valued resources, and fire sensitive habitats to
the unwanted effects of fire and other damaging disturbances.
Existing conditions for dry forests on the Ochoco, Umatilla, and
Wallowa-Whitman National Forests differ from the RV in the amounts of
small tree versus large tree dominated forests, and open versus closed-
canopied forests. The average of RV is about 4% of dry forests for
small tree, closed-canopied stands, where trees are mostly less than
about 20'' dbh and canopy cover is greater than about 40%. Current
conditions of these forests are 15%, 40% and 55% for the Ochoco,
Umatilla, and Wallowa-Whitman National Forests, respectively.
The average of RV is about 10% of dry forests for large tree,
closed-canopied stands, where trees are mostly greater than about 20''
dbh and canopy cover is greater than about 40%. Current conditions of
these forests are 50%, 2%, and 1% for the Ochoco, Umatilla, and
Wallowa-Whitman National Forests, respectively.
The average of RV is about 55% of dry forests for large tree, open-
canopied stands, where trees are mostly greater than about 20'' dbh and
canopy cover is less than about 40%. Current conditions fo these
forests are about 10%, 2%, and 3% for the Ochoco, Umatilla, and
Wallowa-Whitman National Forests, respectively.
Fire regimes also differ from the RV. The continuity of surface,
ladder, and crown fuel is increasing and generally resulting in a
change in fire regime from lower severity, higher frequency fire
towards higher severity, lower frequency fire. The 50 year average of
annual acres burned was about 18,000, 26,000 and 34,000 acres for the
Ochoco, Umatilla, and Wallowa-Whitman National Forests, respectively,
before the current fire suppression era. The majority of these fires
were of low severity, and relatively high frequency. The available
current fire suppression era fire history for these forests indicates
that on average about 4,000, 5,000, and 13,000 acres burn annually. The
size and frequency of high severity fires are generally greater, and
the size and frequency of low severity fires are generally lower across
Blue Mountains forests than desired. Transmission of high severity fire
from NFS lands to other land ownerships is increasing, in some cases
resulting in economic and infrastructure losses.
The project purpose and need is represented by differences between
existing and desired conditions based on Forest Plan management
direction. In most cases, desired conditions are similar to the RV,
except where the Forest Plan or the existence of conflicting values
specify otherwise. In general, there is a need in the project area to:
Reduce overabundant closed-canopied forest stands in dry forest;
maintain existing old forests and increase their abundance over the
long term; increase the abundance of fire-tolerant tree species and
large tree dominated stands; and restore forest patterns and
disturbance regimes that are more reflective of the RV, including
reestablishing historic openings and grasslands;
Enhance landscape resilience to future wildfire, and insect and
disease outbreaks, and increase public and firefighter safety in the
event of a wildfire;
Enhance the diversity and quality of habitat conditions across the
planning area to improve overall abundance and distribution of wildlife
habitat that is more reflective of the RV;
Restore tribal treaty resources, and high social values associated
with traditional uses and culture that are related to the forest
restoration need;
Maintain and enhance resources of high social value, and support
local economies by providing a diversity of resource management
activities, commodity outputs, ecosystem services, and employment
opportunities from public lands;
Improve existing road networks to provide access for forest
treatments while meeting forest plan standards and guidelines as well
as Endangered Species Act consultation guidance;
Build and strengthen relationships among National Forest
stakeholders through collaborative processes; and,
Reduce fuel loading in strategic locations to promote safe and
effective use of planned and unplanned fire.
The FRP will operate within social, policy, regulatory, and legal
constraints, and Forest Plan goals and objectives, except where forest
plan amendments are needed and proposed. This proposal was developed
under the guidance of the 1989 Ochoco National Forest Land and Resource
Management Plan (LRMP); 1990 Umatilla National Forest LRMP; 1990
Wallowa-Whitman National Forest LRMP, and is compatible with the
Cohesive Wildfire Strategy.
Proposed Action
The proposed action responds to the purpose and need for the FRP.
No treatments are proposed in any area that is within an existing,
active project planning area, a recently burned or implemented project
area, Wilderness, Research Natural Area, Inventoried Roadless Area, or
in an area identified by the respective Forest Supervisor as being of
low restoration priority. The proposed action was constructed by
comparing current conditions to the RV across all ownerships at the
scale of watersheds (5th field hydrologic units of 45,000-200,000 acres
each). This ``all lands'' analysis provided the context for determining
the treatment need, and the appropriate level of proposed treatment on
NFS lands within the project area. The proposed action discloses the
general nature of proposed treatments on NFS lands by National Forest,
and potential and existing vegetation types using the best available
information. More information and maps can be found on the project Web
site http://www.fs.usda.gov/goto/forestresiliencyproject. After
scoping, analysis of public comments, collaborative engagement, and
continued improvement of project data, the proposal will be modified
and refined to reflect data of higher resolution consistent with the
other planning alternatives analyzed in the DEIS.
All proposed forest treatments would be designed to create forest
patterns more reflective of natural disturbance regimes, and facilitate
safe and effective fire management to conserve high value resources.
Forest treatments may include one or more of the following activities:
Thinning/low severity fire--removes small (5-10'' dbh) and medium sized
(10-20'' dbh) trees to reduce stand density and canopy cover, and with
time and growth, lead to an increase in average stand diameter.
Opening--through mixed severity fire or mechanical treatments,
removes a major proportion of medium and large trees (>20'' dbh) to
create openings, or canopy gaps of early seral structure and
composition.
Other disturbance/growth--thinning to manage for young stands,
while increasing tree growth and vigor.
Growth with low severity fire--allows forest succession and growth
to occur while maintaining an open forest canopy.
Grassland restoration--thinning and fire treatments to reduce
conifer expansion within grasslands, and reestablish historic
grassland/forest edges.
[[Page 6232]]
Aspen enhancement--thinning and fire treatments to reduce conifer
expansion within aspen inclusions, and stimulate aspen regeneration to
the historical extent of the aspen clone.
Strategic fuel treatments--includes any of the treatment types
above, and other actions that change fuel abundance and arrangement,
and decrease resistance to wildfire control at strategic locations to
facilitate safe and effective fire management at appropriate spatial
scales.
On the Ochoco National Forest, thinning and low severity fire would
be applied to dry forests on about 115,000 acres within the project
planning area:
20,500 acres of smaller diameter (<20'' dbh), closed-canopied (>
about 40% canopy cover) stands to move them toward more open
conditions, and encourage growth in average diameter. Opening
treatments would also be used to create canopy gaps, where needed;
18,000 acres of smaller diameter, open canopied (< about 40% canopy
cover) stands to move them toward more open conditions encourage growth
in average diameter, and/or restore desirable fire regimes. Opening
treatments would also be used to create canopy gaps, where needed;
55,000 acres of larger diameter (> about 20'' dbh), closed-canopied
stands to move them toward more open conditions, and encourage growth
in average diameter;
15,000 acres in larger diameter, open stands to restore desirable
fire regimes, and encourage growth in average diameter without reducing
the abundance of large tree, open canopied stands overall;
4,000 acres for grassland restoration; and
100 acres of aspen inclusions to reduce conifer expansion and
stimulate aspen regeneration.
On the Ochoco National Forest, strategic fuel treatments could be
applied on up to 5,800 acres of smaller diameter moist and cold forest
to achieve desired planned and unplanned fire behavior, facilitate safe
and effective fire management, conserve high value resources, and
restore fire at landscape scales more reflective of the RV. These
treatments would be integrated with upland dry forest treatments to
achieve landscape-level objectives.
On the Umatilla National Forest, thinning and low severity fire
would be applied to dry forests on about 125,000 acres within the
project planning area:
69,500 acres of smaller diameter, closed-canopied stands to move
them toward more open conditions and encourage growth in average
diameter. Opening treatments would also be used to create canopy gaps,
where needed;
36,000 acres of smaller diameter, open stands to move them toward
more open conditions and encourage growth in average diameter, and/or
restore desirable fire regimes. Opening treatments would also be used
to create canopy gaps, where needed;
1,000 acres of larger diameter, closed-canopied stands to move them
toward more open conditions, and encourage growth in average diameter;
4,200 acres of larger diameter, open stands to restore desirable
fire regimes, and encourage growth in average diameter without reducing
the abundance of large tree, open canopied stands overall;
14,000 acres for grassland restoration; and
300 acres of aspen inclusions to reduce conifer expansion and
stimulate aspen regeneration.
On the Umatilla National Forest, strategic fuel treatments could be
applied on up to about 87,500 acres of smaller diameter moist and cold
forest to achieve desired planned and unplanned fire behavior,
facilitate safe and effective fire management, conserve high value
resources, and restore fire at landscape scales more reflective of the
RV. These treatments would be integrated with upland dry forest
treatments to achieve landscape-level objectives.
On the Wallowa-Whitman National Forest, thinning and low severity
fire would be applied to dry forests on about 190,000 acres within the
project planning area:
127,500 acres of smaller diameter, closed-canopied stands to move
them toward more open conditions and encourage growth in average
diameter. Opening treatments would also be used to create canopy gaps,
where needed;
39,500 acres of smaller diameter, open stands to move them toward
more open conditions, encourage growth in average diameter, and/or
restore desirable fire regimes. Opening treatments would also be used
to create canopy gaps, where needed;
1,000 acres of larger diameter, closed-canopied stands to move them
toward more open conditions, and encourage growth in average diameter;
7,200 acres in larger diameter, open dry forests to restore
desirable fire regimes, and encourage growth in average diameter
without reducing the abundance of large tree, open canopied stands
overall;
15,000 acres for grassland restoration; and
200 acres of aspen inclusions to reduce conifer expansion and
stimulate aspen regeneration.
On the Wallowa-Whitman National Forest, strategic fuel treatments
could be applied on up to 90,000 acres of smaller diameter moist and
cold forest to achieve desired planned and unplanned fire behavior,
facilitate safe and effective fire management, conserve high value
resources, and restore fire at landscape scales more reflective of the
RV. These treatments would be integrated with upland dry forest
treatments to achieve landscape-level objectives.
Forest treatments in any Category of riparian habitat conservation
area would be limited to prescribed fire and small diameter thinning
(<9'' dbh), and adhere to the Blue Mountains Project Design Criteria,
which were developed under programmatic informal consultation between
the Wallowa-Whitman, Umatilla (and Malheur) National Forests and the
National Marine Fisheries Service (November 2013).
Any treatment in old forest management areas, as designated in the
respective forest plan, would be to support development of old forest
characteristics and/or achieve forest plan desired conditions.
The proposed action would utilize the existing road system
currently in place to facilitate implementation of vegetation and
strategic fuel treatment activities. No new road construction is
proposed, unless it is to meet standard and guidelines or Endangered
Species Act consultation guidance for road location (e.g., to relocate
a road currently in a riparian habitat conservation area). Where
necessary, currently closed roads may be used to implement treatments,
but they would be closed immediately after use. The range of
alternatives analyzed in the DEIS will include one or more proposed
road systems that, post implementation, would meet Forest Plan
standards and guidelines and consultation guidance provided during the
development of those plans. Temporary road construction would be based
on site suitability, kept to a minimum to minimize detrimental effects
such as soil disturbance and potential erosion, designed whenever
possible and suitable over existing disturbance footprints (i.e.,
legacy roads), located to avoid stream crossings, and obliterated upon
completion of project implementation.
Additional benefits of implementation of the proposed action
include maintenance and enhancement of culturally significant
resources, settings, viewsheds, and sensitive plant and animal species
habitat, including those
[[Page 6233]]
of interest to the Tribes. A monitoring strategy will be developed to
support learning and sharing lessons learned through time. Input from
interested parties and the most current, applicable science will be
used to guide the learning strategy.
Connected actions that would be analyzed as a part of the EIS
include hazard tree removal, snag creation, down wood creation, soil
remediation (subsoiling, scarification), invasive plant treatment,
native seeding of disturbed sites, system road reconstruction, road
maintenance, re-closure of roads opened to implement treatments, water
source development, material source development, installation of
erosion control features, culvert replacement for haul support,
activity fuel preparation and treatment, hand line construction,
temporary fencing, stump treatment for annosus root rot, and
reforestation. A suite of Best Management Practices (BMPs) and Project
Design Criteria (PDC) will be integrated into the design of
alternatives and the analysis of effects to ensure that relevant
natural resources, tribal treaty resources, and social values are
managed and protected in a manner consistent with policy, law, and
regulation. BMPs and PDCs will also serve to ensure that implementation
of the actions described in the ROD are properly executed.
The purpose and need for action is consistent with the Ochoco,
Umatilla, and Wallowa-Whitman National Forest Land and Resource
Management Plans (LRMP), as amended and applicable. Other key guiding
policies include, but are not limited to, the Endangered Species Act,
National Forest Management Act, National Cohesive Wildland Fire
Management Strategy, and all laws and executive orders and Forest
Service policies guiding Tribal consultation.
Go to http://www.fs.usda.gov/goto/forestresiliencyproject for more
detailed information and maps of the project area and proposed
treatments.
Forest Plan Amendments
If necessary to meet the purpose and need of the FRP, the Forest
Service may need to amend one or more Forest Plans for activities such
as cutting large trees (>21'' in diameter), restoring or conserving old
forest characteristics, restoring forest structure in elk habitat, or
maintaining current road densities.
Responsible Official
The responsible officials for decisions on the Ochoco, Umatilla,
and Wallowa-Whitman National Forests are their respective Forest
Supervisors.
Nature of Decision To Be Made
This proposed action is a proposal and not a decision. The Forest
Supervisors of the Ochoco, Umatilla, and Wallowa-Whitman National
Forests will decide, for their respective Forests, whether to implement
the action as proposed, whether to take no action at this time, or
whether to implement any alternatives that are analyzed. The Forest
Supervisors will also decide whether to amend their respective Land and
Resource Management Plan, if necessary to implement the decision.
Scoping Process
This notice of intent initiates the scoping process, which guides
the development of the environmental impact statement. Issues that are
raised with the proposal may lead to alternative ways to meet the
purpose and need of the project. Scoping will also be used to determine
site specific concerns that are relevant to forest treatment locations.
It is important that reviewers provide their comments at such times
and in such manner that they are useful to the agency's preparation of
the environmental impact statement. Therefore, comments should be
provided prior to the close of the comment periods and should clearly
articulate the reviewer's concerns and contentions.
Comments received in response to this solicitation, including names
and addresses of those who comment, will be part of the public record
for this proposed action. Comments submitted anonymously will be
accepted and considered.
Several public engagement sessions will be held in Blue Mountains
communities in March 2016 before completion of the scoping period.It is
important that reviewers provide their comments at such times and in
such manner that they are useful to the agency's preparation of the
environmental impact statement. Therefore, comments should be provided
prior to the close of the comment period and should clearly articulate
the reviewer's concerns and contentions.
Dated: February 1, 2016.
Stacey L. Forson,
Forest Supervisor, Ochoco National Forest.
Dated: January 29, 2016.
Genevieve R. Masters,
Forest Supervisor, Umatilla National Forest.
Dated: January 29, 2016.
Tom Montoya,
Forest Supervisor, Wallowa-Whitman National Forest.
[FR Doc. 2016-02269 Filed 2-4-16; 8:45 am]
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