In accordance with Federal civil rights law and U.S. Department of Agriculture (USDA) civil rights 

regulations and policies, the USDA, its Agencies, offices, and employees, and institutions 

participating in or administering USDA programs are prohibited from discriminating based on race, 

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disability, age, marital status, family/parental status, income derived from a public assistance 

program, political beliefs, or reprisal or retaliation for prior civil rights activity, in any program or 

activity conducted or funded by USDA (not all bases apply to all programs). Remedies and complaint 

filing deadlines vary by program or incident. 

Persons with disabilities who require alternative means of communication for program information 

(e.g., Braille, large print, audiotape, American Sign Language, etc.) should contact the responsible 

Agency or USDA’s TARGET Center at (202) 720-2600 (voice and TTY) or contact USDA through the 

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To file a program discrimination complaint, complete the USDA Program Discrimination Complaint 

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completed form or letter to USDA by: (1) mail: U.S. Department of Agriculture, Office of the Assistant 

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(202) 690-7442; or (3) email: program.intake@usda.gov. 

USDA is an equal opportunity provider, employer and lender.
Record of Decision

for the 

Final Environmental Impact Statement and El Yunque National Forest Revised 

Land Management Plan

Eastern Puerto Rico

Municipalities of: Río Grande, Luquillo, Fajardo, Ceiba, Naguabo, Las Piedras, 

Juncos, Canóvanas and Humacao

Lead Agency: USDA Forest Service

Responsible Official: Sharon Wallace, Forest Supervisor

El Yunque National Forest

HC-01, Box 13490

Río Grande, PR 00745-9625

For Information Contact: Pedro Ríos, Project Leader

El Yunque National Forest

HC-01, Box 13490

Río Grande, PR 00745-9625

http://www.fs.usda.gov/elyunque
El Yunque Forest Plan Revision │ Record of Decision

i

Table of Contents

List of Acronyms......................................................................................................................................... iii

Introduction ...................................................................................................................................................1

Purpose and Need and Proposed Action ...................................................................................................1

Key Plan Revision Issues..........................................................................................................................2

Coordination with State and Local Governments and other Federal Agencies.........................................2

Municipalities of Puerto Rico and Local Government Land Use Plans and Policy ..............................2

State Agencies.......................................................................................................................................4

Federal Agencies...................................................................................................................................5

Federally Recognized Tribes.................................................................................................................6

Public Involvement ...................................................................................................................................6

The Nature of this Decision ......................................................................................................................7

Decision and Rationale for the Decision .......................................................................................................9

Decision ....................................................................................................................................................9

Rationale ...................................................................................................................................................9

Management Themes of the Revised Plan ..............................................................................................11

Meeting Substantive Requirements of the Rule......................................................................................14

219.8 Sustainability.............................................................................................................................14

219.9 Diversity of Plant and Animal Communities ............................................................................15

219.10 Multiple Uses...........................................................................................................................16

219.11 Timber Requirements based on the NFMA.............................................................................17

Alternative Development.............................................................................................................................18

Alternatives Considered in Detail ...........................................................................................................18

Alternative 1 – No Action (1996 Forest Plan).....................................................................................18

Alternative 2 – Proposed Action .........................................................................................................18

Alternative 3........................................................................................................................................19

Alternatives Considered but Eliminated from Detailed Study................................................................19

Custodial (no recreation management, special uses or research management)...................................19

Intensify the Recovery of the Puerto Rican parrot ..............................................................................20

Recommending designation of all eligible wild and scenic rivers......................................................20

Changes from DEIS to FEIS...................................................................................................................20

Environmentally Preferable Alternative......................................................................................................21

Best Available Scientific Information.........................................................................................................21

Ecosystems..............................................................................................................................................21

Vegetation ...............................................................................................................................................21

Aquatic – Rivers, Streams and Wetlands................................................................................................22

T&E Species ...........................................................................................................................................22

At-Risk Species.......................................................................................................................................22

Changing Climate ...................................................................................................................................22

Ecosystems Services...............................................................................................................................23

Recreation ...............................................................................................................................................23

Scenic Character .....................................................................................................................................23

Conclusion ..............................................................................................................................................23

Research Station Director Concurrence ......................................................................................................24

Findings Required by Other Laws and Regulations....................................................................................24

Clean Air Act ..........................................................................................................................................24

Clean Water Act......................................................................................................................................24

Endangered Species Act..........................................................................................................................25

Executive Order 12898 - Environmental Justice.....................................................................................25
El Yunque Forest Plan Revision │ Record of Decision

ii

Executive Order 1190 and 11998 – Wetlands and Floodplain Management .........................................26

National Environmental Policy Act (NEPA)..........................................................................................26

National Forest Management Act (NFMA)............................................................................................27

National Historic Preservation Act.........................................................................................................27

Effective Date and Plan Implementation ....................................................................................................27

Transition to the Revised Land Management Plan .....................................................................................28

Plan Amendments.......................................................................................................................................28

Administrative Review ...............................................................................................................................29

Contact Person ............................................................................................................................................29
El Yunque Forest Plan Revision │ Record of Decision

iii

List of Acronyms

CAA Clean Air Act

CIRMA Community Interface Resource Management Area

CWA Clean Water Act 

DEIS Draft Environmental Impact Statement

ESA Endangered Species Act

EYNF El Yunque National Forest

FEIS Final Environmental Impact Statement

IITF International Institute of Tropical Forestry

MCF Thousand cubic feet

NEPA National Environmental Policy Act

NF National Forest

NFMA National Forest Management Act

NHPA National Historic Preservation Act 

NOAA National Oceanic and Atmospheric Administration

NOI Notice of Intent

ROD Record of Decision

ROS Recreation Opportunity Spectrum

SCC Species of Conservation Concern

SHPO State Historic Preservation Office 
El Yunque Forest Plan Revision │ Record of Decision

1

Introduction

This Record of Decision (ROD) documents my decision and rationale for approving El Yunque National 

Forest Revised Land Management Plan (hereafter also referred to as the “Revised Land Management 

Plan” or “Revised Plan”). This decision is based on Alternative 2, as displayed in the Environmental 

Impact Statement for the Revised Land Management Plan. The decision implements the Forest Service’s 

2012 Land Management Planning Rule at 36 CFR Part 219 and the goals of the Department of 

Agriculture, including facilitating rural prosperity and economic development and fostering productive 

and sustainable use of our National Forest System Lands.

The area affected by this decision is El Yunque National Forest (“Forest” or “El Yunque”), located within 

the rugged Sierra de Luquillo Mountains, on the eastern end of Puerto Rico. The Forest contains 

approximately 29,000 acres and is surrounded by nine municipalities in the region. El Yunque National 

Forest plays a unique and important role for the local communities and the broader public. El Yunque 

National Forest is the only tropical forest in the National Forest System. It represents the largest block of 

undisturbed tropical forest, essentially unchanged by human intervention in Puerto Rico. 

The Forest contributes socially and economically to the region; it contributes to human health and wellbeing, offering unique opportunities for recreation, relaxation, exercise, solitude, stewardship, spirituality, 

community, and many other socioeconomic and cultural benefits. The Forest produces 20 percent of the 

island’s water (an estimated $25 million in water production per year) and contributes more than $3 

million per year in wildlife viewing activities. El Yunque also directly contributes over $3.5 million 

annually to local economies through employment, expenditures, and payments from revenue sharing and 

in-lieu of taxes. It is the second most visited destination in Puerto Rico. Its lush and dense tropical 

vegetation, steep slopes, cascading streams and rivers, diverse wildlife and tree species make El Yunque 

an outstanding recreation setting for people seeking outdoor pleasure and adventure. The Forest is also 

considered locally as a way for the people of the Island to connect with their history and culture. Having 

dual designation as El Yunque National Forest and Luquillo Experimental Forest, it has actively provided 

researchers a place to advance the knowledge of and associated benefits of tropical forests since the end 

of the 19th century. Finally, the Forest is important ecologically, providing habitat for over 180 fauna 

species and 830 native plant species and representing 15 types of vegetation. The yearly water production 

of El Yunque is estimated at 73.5 billion gallons per year.

Purpose and Need and Proposed Action 

The proposed action is to revise the land management plan for El Yunque National Forest, as required by 

the Forest and Rangeland Renewable Resources Planning Act of 1974 (RPA), as amended by the National 

Forest Management Act of 1976 (NFMA). The NFMA regulations require forest plans to be revised on a 

10-15 year cycle or sooner when significant changes in conditions or demands occur in the forest plan 

area. 

The existing Forest Plan is more than 20 years old. Since the Forest Plan was approved in April 1997, 

there have been changes in the economic, social, and ecological conditions of the Forest, as well as new 

information based on monitoring and scientific research. Input from local governments, other Federal 

agencies, and the public, along with science-based evaluations, have helped to further identify areas of the 

existing Forest Plan that need to be updated. These areas are described in detail in the following section 

on “Key Plan Revision Topics.”

In addition, there are new policies in place since the Forest Plan was approved, including the 2012 

Planning Rule (36 CFR 219). There is a need to revise the Plan to meet the legal requirements of the 
El Yunque Forest Plan Revision │ Record of Decision

2

Planning Rule, and the requirements of other relevant policies such as the invasive species Executive 

Orders. 

Key Plan Revision Topics

From 2013 through 2016, El Yunque National Forest developed the Plan Assessment (USDA Forest 

Service 2014), the Need for Change (USDA Forest Service 2014, 2015) and the Proposed Management 

Strategies (USDA Forest Service 2015, 2016). The purpose of these documents was to assess new 

information, changes in technology, land uses, and to identify what did and did not work well in the 1997 

Forest Plan. This information was used to identify several key needs for the Plan revision:

• The need to shift to a more social, economic and ecologically sustainable management when 

providing multiple-uses. 

• A need to promote a stronger regional identity in and around the Forest using an “all-lands” policy.

• The Forest’s technical and fiscal capability to maintain facilities, recreation opportunities, scenic 

value, and ecosystems services.

• A need from the public to access recreation opportunities throughout the Forest while recognizing 

carrying capacities.

• A need to incorporate collaborative adaptive management at the Plan and site-specific project levels.

• The need to manage at-risk species, including species of conservation concern.

• A need to classify vegetation types and new management requirements for identified functional 

wetland. 

• Impacts of a changing climate on forest multiple uses, specifically forest recreation. 

Coordination with State and Local Governments and other 

Federal Agencies

Throughout Plan revision, we actively engaged State and Federal agencies as well with all nine 

municipalities on the region to assess compatibility of the Revised Land Management Plan with other 

local land use plans and policies (per 36 CFR 219.4).

Municipalities of Puerto Rico and Local Government Land Use Plans and 

Policy

The Forest reviewed various land use plans and policies for Puerto Rico including, the Puerto Rico Land 

Use Plan (PUT, 2015) by the Puerto Rico Planning Board, which is the major document that guides 

development in Puerto Rico. This information provided the base line for the planning process when 

considering land use within the Forest boundaries and at a broad, landscape level. 

The Forest also considered other State / Commonwealth land use plans and policies, including the 

following: 

• Puerto Rico Department of Natural and Environmental Resources, Comprehensive Wildlife 

Resources Assessment

• Puerto Rico Department of Natural and Environmental Resources, Forest Resources State-wide 

assessment 

• Municipality Territorial Order Plan 
El Yunque Forest Plan Revision │ Record of Decision

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• Puerto Rico Department of Natural and Environmental Resources, Water Plan

• Municipal Land Use Plans for the region 

• Puerto Rico Water Management Plan

• Protected Area Management Plans from the protected areas in the region.

The land use plans for municipalities that where considered include:

Municipality Applicable Land Use Plans

Applicable Land Use and 

Zoning Regulations

Canóvanas Municipal Land Use Plan (2000)

PRPB Region 9 Land Use Plan (draft 2012)

Municipal Land Use 

Regulation (2000)

PRPB Joint Regulation (2010)

Río Grande Municipal Land Use Plan (2012)

PRPB Region 11 Land Use Plan (draft 2012) 

PRPB Joint Regulation (2010)

Luquillo No municipal land use plan

Zoning established through El Yunque Special Zoning 

Regulation (1983/1996)

Special Plan for the Gran Reserva Natural Special 

Planning Area (2011)

PRPB Region 11 Land Use Plan (draft 2012) 

PRPB Joint Regulation (2010)

Special Regulation for the 

Gran Reserva Natural Special 

Planning Area (2011)

Fajardo Municipal Land Use Plan (2010)

PRPB Region 11 Land Use Plan (draft 2012) 

PRPB Joint Regulation (2010)

Ceiba No Municipal Land Use Plan

Zoning established through El Yunque Special Zoning 

Regulation (1983/1996)

Master Plan for the Former Roosevelt Roads Naval 

Base (2011)

PRPB Region 11 Land Use Plan (draft 2012) 

PRPB Joint Regulation (2010)

Naguabo No municipal land use plan

Zoning established through El Yunque Special Zoning 

Regulation (1983/1996)

PRPB Region 11 Land Use Plan (draft 2012) 

PRPB Joint Regulation (2010)

Las Piedras No municipal land use plan

Zoning established through El Yunque Special Zoning 

Regulation (1983/1996)

PRPB Region 10 Land Use Plan (draft 2012) 

PRPB Joint Regulation (2010)

Juncos Municipal Land Use Plan (2007)

PRPB Region 10 Land Use Plan (draft 2012) 

PRPB Joint Regulation (2010)

These documents helped the planning process by:

• Providing updated guidance for managing the Forest within the context of the larger landscape and 

for addressing local land use changes and the associated impacts on local communities. For example, 

developing management strategies for partnership opportunities, and identifying collaborative efforts 

in support of sustainability. 

• Creating a land acquisition strategy that promotes conservation initiatives for protection of 

surrounding hills, stream corridors, riparian areas, Wild and Scenic River corridors, and connections 

to the Gran Reserva del Noreste, Rivers Reserves.
El Yunque Forest Plan Revision │ Record of Decision

4

These land use plans, as well as meetings and collaboration with the planners of these municipalities,

helped foster an all-lands perspective throughout the region that spans all these municipalities and land 

ownerships. These collaborations and integration of plans will help better achieve conservation at a 

region-wide level for eastern Puerto Rico.

State Agencies 

Collaboration with State Agencies included face-to-face meetings with agency leaders, focus group 

meetings with planners and managers, presentations at agency symposiums and a protected areas 

congress. Further details of collaboration with State Agencies include the following:

• Puerto Rico Department of Natural and Environmental Resources (DNER)

o Integration of their Comprehensive Wildlife Resources Assessment, as well as their Water Plan,

to develop the focus to provide for healthy ecosystems on the Forest and for the incorporation of 

adaptive management on the Forest.

o During the scoping phase for the proposed action, the agency supported the Plan’s focus on 

working with surrounding communities for sustainable social-economic opportunities. They also 

expressed concerns regarding recreation sustainability and the incorporation of other land use 

plans for conservation beyond Forest boundaries. All of these comments were incorporated in 

the Forest Plan, especially through the all-lands focus and the goal to establish a new recreation 

system that takes into account the impacts of over-crowding in certain areas of the Forest.

o Final Meeting to Brief the DNER on the Forest Plan was held on April 5, 2017. The agency fully 

supported the preferred alternative. 

• Puerto Rico Planning Board

o The Forest provided information to the Puerto Rico Planning Board to ensure that their 

comments and suggestions were utilized in the Forest Plan.

o Examined the PR Planning Board's policies and Land Use Plan for opportunities to work on 

efforts that promote connection to other protected areas surrounding the Forest and providing 

feedback on where the Forest Plan and the PR Land Use Plan could better align to achieve 

conservation throughout the region. 

o The final meeting to inform the entire Board on the Forest Plan was held on April 3, 2017 after 

PR Government administration change. The Board fully supported the selected alternative. 

• State Historic and Preservation Office (SHPO) 

o The Forest provided information to the Puerto Rico SHPO to ensure their comments and 

suggestions were incorporated on the Forest planning process and gave a presentation to SHPO 

about the Heritage Program and new Plan proposals. 

o The Forest extended a formal invitation to SHPO to take part in the review process of the Draft 

Plan and Draft EIS. The Forest received a comment letter for the Forest Plan Revision with 

minimal adjustments to make on the Plan along with support for the selected alternative and of 

the section regarding heritage on the Forest Plan.

o Ongoing collaborative efforts continue to protect heritage resources within the Forest 

boundaries. 
El Yunque Forest Plan Revision │ Record of Decision

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• Puerto Rico Tourism Company (PRTC)

o The PRTC participated in different workshops and activities during the planning process.

o The PRTC was fully supportive of the Forest taking into consideration the impacts it has in the 

socio-economic conditions of the region and its new focus to support local economies around the 

region and the formation of new partnerships with government, NGO’s and community 

organizations. 

o The agency supported the selected alternative along with some recommendations for further 

collaboration opportunities in shared physical spaces on the Forest.

o Members of the PRTC continue to provide support in the planning process and for future 

implementation through the Citizen’s Committee and other means.

• Puerto Rico Electric Power Authority (PREPA)

o The PREPA provided comments throughout the planning process, expressing recommendations 

such as the creation of NGO’s that can acquire lands that protect and/or rehabilitate river basins 

and the obtainment of funds to buy land or compensate land owners around the Forest or along 

river corridors in order to mitigate the impacts of development projects around the region. The 

Forest integrated these recommendations -to the extent of the USFS’s authority- by establishing

in the Plan the need and pursuit of new opportunities for land acquisition and conservation 

across Forest boundaries at the sub-regional level by working with adjacent and interested public 

and private land managers, landowners, and other stakeholders.

Federal Agencies 

• United States Fish and Wildlife Service (USFWS)

o The Forest cooperated with the United States Fish and Wildlife Service (USFWS) in the 

identification and evaluation of the Revised Plan’s effects on threatened and endangered species. 

o The Forest also engaged with the USFWS in informal consultation on the Forest’s “may affect, 

but not likely to adversely affect” determination and in the development of Forest Plan

components that contribute to species recovery (FEIS, Chapter 3, “Threatened and Endangered 

Species” section and 2016 Biological Assessment). See the “Endangered Species Act” section in 

the “Findings Required by Other Laws and Regulations” portion of this decision. 

o A letter of concurrence from the USFWS on the Forest’s Biological Assessment (BA) was 

received on September 1, 2017. Following Hurricane María, a second letter from the USFWS 

was received on July 31, 2018, confirming that the original concurrence from September 2017 

was still valid.

Other Federal agencies provided input, like the United States Department of the Interior (USDI), which 

suggested integrating the designation of Research Natural Area of Baño de Oro in the Forest Plan, which

was done. 

Upon reviewing the FEIS and planning record, I find that the coordination with other Federal agencies 

and State and local governments occurred as required by 36 CFR 219.4. No conflicts with the Revised 

Land Management Plan were identified. 
El Yunque Forest Plan Revision │ Record of Decision

6

Federally Recognized Tribes 

No federally recognized Native American Tribes exist in Puerto Rico. 

Public Involvement

Chapter 1 of the FEIS (Chapter 1, “Public Involvement” section) and Appendix A provide detailed 

information on the public involvement process. 

Public meetings were held following the announcement that work was beginning on developing the plan 

assessment (which occurred in August 2012). During these public meetings, the most recent information 

on forest and resource conditions were shared and new information was received, a collaboration plan 

was designed, and an evaluation of the best available scientific information was conducted. 

In January 2014, a draft of the Plan Assessment was made available to the public. Major key findings 

from the assessment were validated in public meetings and information and recommendations from these 

meetings and planning outreach activities were used to develop the preliminary need for change and a 

proposed action for the Revised Plan. 

The notice of intent (NOI) to prepare an EIS was published in the Federal Register on September 18, 

2014 (79 FR, pages 56050-56054). The legal notice was also published in the two newspapers of record, 

Nuevo Día and San Juan Daily Star on September 14, 2014. The public was asked to comment on the 

proposed action by November 3, 2014. 

Following the issuance of the NOI, the preliminary need for change and proposed action were shared with 

the public through a series of community meetings and interest group meetings to validate their content. 

Using the comments from local governments, other agencies, and the public, the interdisciplinary team 

identified two issues regarding the effects of the proposed action including the restoration of native 

ecological systems (issue 1) and impacts related to the rapid change of land use from forested land to an 

urban landscape (issue 2). To address these concerns, the Forest Service developed the alternatives 

described in the “Alternatives Considered in Detail” section. Also see the “Rationale” section which 

describes how the selected alternative responds to the (significant) issues. 

A 90-day public comment period on the draft Revised Land Management Plan and associated DEIS was 

initiated on September 30, 2016 with the publication of the Notice of Availability in the Federal Register

(81 FR 67348). During the public comment period on El Yunque National Forest’s DEIS and proposed 

Revised Land Management Plan, a range of concerns were raised, but were largely focused on recreation 

opportunities, wildlife and forest products. A total of 14 comment letters were received from the public, 

agencies, and public interest groups. Six individuals provided substantive comments on the Plan and 

DEIS. Three State government agencies and two Federal agencies provided comments. The letters 

received represent a total of 77 comments. 

The Planning Rule Federal Advisory Committee also provided valuable input on the draft revised forest 

plan. This input included the use of the term “co-management” in implementing the revised forest plan, 

which resulted in changing the term throughout the planning documents to “shared stewardship.”

However, in the Spanish language versions of the plan documents, the translation of “co-management” 

remained.

Altogether from 2012 to 2017, approximately 62 outreach activities and meetings were hosted (see 

planning record or Appendix A of the EIS). Planning outreach activities included meetings with different 

communities and the public in general in locations that were accessible to the different municipalities 

located to the north, east and southwest of the Forest. Meetings were held with stakeholders including 
El Yunque Forest Plan Revision │ Record of Decision

7

recreation outfitters, protected area land managers, municipality planners, and the scientific and academic 

community.

After Hurricane Maria, further public engagement efforts were conducted through meetings held with the 

citizen collaboration group, in which information gathered on current condition was shared. The forest 

evaluated how the draft of the Revised Plan would be applied for recovery in the future. 

The Notice of Availability of the Final EIS and Revised Land Management Plan was published in the 

Federal Register on August 24, 2018 (83 FR 42892) and the Notice of Opportunity to Object was also 

published in the Federal Register on August 24, 2018 (83 FR, pages 42862-42863). During the 60-day 

objection period for the revised forest plan, an objection was received regarding feral dogs and cats found 

at El Yunque National Forest. A resolution meeting with the objector was held on February 26, 2019.

The Nature of this Decision

The purpose of this Revised Land Management Plan is to guide future projects, practices, uses and 

protection measures to assure sustainable multiple-use management on El Yunque National Forest over 

the next 15 years. Revised Plan components include desired conditions, goals, objectives, standards, and 

guidelines at three overlapping scales; along with the suitability determination of National Forest System 

lands for timber production and for various other uses. The three different scales where Plan components 

are to be applied include; forest-wide Plan components, nine management areas, and three contiguous 

geographic areas (see Revised Plan, Chapters 1 and 2). 

The Revised Land Management Plan does not authorize projects or activities or commit the Forest 

Service to take action. Management direction will be implemented through site-specific activities that 

must be consistent with the Revised Plan (36 CFR 219.15).

Throughout the rationale section the term “we” refers to me/myself (the Forest Supervisor for El Yunque 

National Forest, who is the responsible official for this decision), my staff, the planning team, the 

Southern Regional Office, colleagues and staff from the International Institute of Tropical Forestry (IITF), 

partners from other government agencies, and stakeholders who worked collaboratively on this revision 

effort. 
El Yunque Forest Plan Revision │ Record of Decision

8

Figure 1. El Yunque National Forest and surrounding areas

San Juan
El Yunque Forest Plan Revision │ Record of Decision

9

Decision and Rationale for the Decision 

Decision 

I have reviewed the environmental analysis disclosed in the FEIS, the planning record, comments from 

our local government partners, other agencies, and the public and then considered how the Revised Plan

meets the identified areas that need to change while meeting the requirements of 36 CFR 219, the 2012 

Planning Rule. Based on this review, I have selected Alternative 2 as described in the FEIS and the 

accompanying El Yunque National Forest Revised Land Management Plan. By this decision, I approve 

the following:

• The forest-wide desired conditions, objectives, standards, guidelines and goals, which meet the social, 

economic, and ecological sustainability requirements of 36 CFR 219, the 2012 Planning Rule.

• The Plan components, including goals that apply to Management Areas and Geographic areas, and the 

special and designated areas.

• The identification of suitable and non-suitable uses of the Forest, including approximately 21,036 

acres of land not suitable for timber production. The Forest Projected Wood Sale Quantity is currently 

23.0 MCF per year. While the Sustained Yield Limit for the Forest is 591.6 MCF per year. 

• Plan components for maintaining the wilderness character of the existing wilderness areas on the 

Forest.

• Plan components to protect the outstanding remarkable values of the designated and eligible Wild and 

Scenic Rivers on the Forest.

• Recommendation for expansion of the size of the Baño de Oro Research Natural Area from 2,172 to 

6,441 acres.

• The identification of one watershed as a priority for restoration, Río Blanco.

• The establishment of a riparian management zone. 

• The monitoring program for the Revised Plan.

Rationale

The Forest Plan identifies the vision to maintain a healthy, accessible, and sustainable forest that 

integrates multiple uses; provides economic, ecological, and social opportunities; promotes education, 

environmental justice, cultural and environmental identity and awareness for the conservation of its 

natural resources; and adaptive forest management that is inclusive and collaborative. The Forest will 

implement this vision by developing sustainable, collaborative projects and by using the best available 

scientific information within the Forest as well as supporting other projects beyond forest boundaries in 

the region.

El Yunque National Forest has unique roles and contributions that were addressed and broadened within 

my selected alternative (Alternative 2). The Forest contributes socially and economically to the region, 

through employment expenditures, tourism and recreation opportunities among others; the Plan seeks to 

further enhance this contribution through the shared stewardship with its surrounding communities. These 

roles are essential and therefore became part of the Revised Plan’s drivers to manage National Forest 

System lands. When considering that the forest produces 20 percent of the island’s water, this alternative 

seeks to improve water quality and accessibility of water flow production through watershed 

management. It provides researchers a place to advance knowledge and sustain forest benefits. 
El Yunque Forest Plan Revision │ Record of Decision

10

Alternative 2 emphasizes rural economic development and a regional management perspective through 

the establishment of Geographic Areas, which provide support for cross-boundary work with surrounding

landowners and communities, as well as with State, Federal, and other government agencies. The Forest

contributes to human health and well-being, offering unique opportunities for recreation, relaxation, 

exercise, solitude, stewardship, spirituality, community, and many other socioeconomic and cultural 

benefits. It is also considered locally as a way for the people of the Island to connect to each other and 

shared histories through collaboration. Another unique characteristic is the Forest’s dual designation as 

the Luquillo Experimental Forest and El Yunque National Forest. Under this alternative, the Forest will 

continue to improve management of this unique tropical ecosystem through expanded research and 

information development that can inform decision making, in addition to maintaining abundant 

biodiversity and habitat management for species that only exist within this forest. 

With respect to the other alternatives that were considered in detail, Alternative 1 does not respond to all 

the significant issues (see FEIS Chapter 2 section on Alternative Development). However, it does 

maximize outputs of recreational opportunities, and provides for water, timber products and research 

within the Forest. Alternative 3 responds to recreational sustainability by reducing recreational 

opportunity within the National Forest lands, like a reduced trail system, while promoting recreational 

opportunities off National Forest lands. Alternative 3 also promotes species management on T&E 

Habitats and invasive species and provides a stronger response to climate change. While Alternative 3 

addresses these issues, they are not favorable to the social and economic sustainability of the region (for 

example, the reduction of recreation opportunities and elimination of the scenic byway) and it would 

strain the agency’s ability to meet the increased levels of management.

I ultimately decided to choose Alternative 2 as the Revised Plan because it:

• Is broadly supported by our State and local government partners, other Federal agencies, nongovernment organizations, and the public.

• Has been developed through a collaborative effort with State and local governments, our publics, 

partners, Natural Reserve Land Managers, researchers, Citizens Committee for Public Participation 

along with other NGO’s and public and private entities including the International Institute of 

Tropical Forestry of the Forest Service.

• Differing from other alternatives, Alternative 2 is responsive to public input to maintain currently 

undesignated lands as available for sustainable use and does not recommend additional designation of 

Wilderness or Wild and Scenic Rivers. The Forest has more than a third of its lands designated as 

such.

• Promotes an “all lands approach” which encourages working with local governments to achieve 

common goals and maximize resources on a regional level.

• Recognizes the importance of its surrounding communities and stakeholders as well as the 

opportunities to improve the quality of life for people living within the area adjacent to the National 

Forest. 

• Connects the Forest to its adjacent municipalities and communities by establishing geographic areas 

that are compatible with important uses in the region. For example, the geographic area “El Norte” 

(North) seeks to improve recreation opportunities as well as disperse recreation to other protected 

areas. This will also assist the conservation efforts in a regional perspective through environmental 

education and other such actions.

• Balances the Forest’s most important ecosystem services: water resources, recreation and research.
El Yunque Forest Plan Revision │ Record of Decision

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• Creates the Community Interface Resource Management Area (CIRMA), which will be the main area 

for collaborative management, and is where sustainable forest practices could be considered with a 

community-based shared stewardship approach, connecting the Forest to the communities in a way 

that develops educational, recreational, and other opportunities.

• Promotes existing and new economic opportunities tied to the Forest, particularly through the 

promotion of sustainable uses in the CIRMA and nearby communities.

• Promotes working with private land owners to consider conservation initiatives that could benefit 

both them and the Forest to increase resource protection.

• Promotes assistance or education to landowners in the region surrounding El Yunque to help them 

understand that agricultural lands represent an opportunity for conservation, for growing food, 

providing for wildlife and providing employment through recreation. 

• Provides for sustainable recreation by addressing the need to protect sensitive areas at higher 

elevations and disperse the recreational opportunity away from PR Road 191 in order to decrease 

crowding and improve recreational settings. 

• Promotes improved resiliency through new Plan components that focus on climate change and the 

inherent impacts of such. 

• Meets the purpose and need for the Plan revision, which was based upon the Plan Assessment and a 

review of the 1997 Forest Plan.

• Creates a Scenic By-Way Management Area, which responds to local government and community 

initiatives and fosters social and economic development in the geographic area.

• Meets the substantive requirements of the 2012 planning regulations (36 CFR Part 219).

• Has been developed based upon the best available scientific information.

In conclusion, I have selected Alternative 2 because it is the alternative supported by State and local 

governments, our partners, and the public, while consistently meeting requirements for social, economic 

and ecologically sustainable forest management practices.

Management Themes of the Revised Plan

The assessment, as well as recommendations and comments from State and local governments, partners, 

other agencies, and the public, were used to identify five management themes to guide the development of 

the Revised Plan. The following provides a description of these management themes, along with how the 

Revised Plan addresses each theme: 

1. Define a new recreation, access, and tourism system.

The Forest provides recreation opportunities that are in harmony and sustainable within the natural 

setting, where people enjoy and value its unique tropical ecosystem which includes protecting and 

maintaining historical and cultural recreation resources. Future demands and limited agency resources 

will require public support and new partnerships to improve recreation facilities and services on the 

Forest as well as the capacity to support recreation usage without causing damage to the environment. 

Currently, the Forest contributes more than $3 million per year in wildlife viewing activities. El Yunque 

directly contributes over $3.5 million annually to local economies through employment, expenditures, and 

payments from revenue sharing and in-lieu of taxes.

The Forest considered Plan components in terms of access to information, recreation, facilities and 

education opportunities as a broad and consistent theme throughout its development. Through various 
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strategies the Forest developed Plan components that facilitate improving recreation opportunities 

considering fiscal limitations, through Plan language such as:

Desired condition: “Alleviate high visitation use of PR Route 191 by increasing recreational 

opportunity in the lower elevations of the Forest. Lower parts of the Forest may provide more 

recreational opportunities and settings.” “Have a regional integrated approach to recreation use 

and access.” (“Region” here is referring to the 9 municipalities surrounding El Yunque National 

Forest, it is connected to collaboration efforts beyond Forest lands or the broader landscape).

Objectives: “Identify areas in the community interface resource management area (CIRMA) that 

can be considered for collaborative recreation projects in at least three municipalities in the first 

5 years of the Plan.” “Increase the recreational opportunities by at least 25 percent with the 

collaboration or participation of community groups in the region through the Plan period.”

2. Promote a stronger regional identity in and around the Forest using an “all-lands” policy.

An area of community interface (CIRMA) for sustainable management of resources at the lower 

elevations of the Forest is in accessible locations suitable for multiple uses and provides for forest 

products that support local communities.

Through Plan components the Forest increases social and economic opportunities from a broader 

landscape perspective when developing initiatives of adjacent communities in the geographic area such 

as: 

Desired Conditions: “Community-based use of the Forest focuses on environmental education 

and community-based enterprises in the western and southern municipalities of Canóvanas, 

Juncos, Las Piedras, Naguabo and Humacao.”

“The Forest’s regional identity developed through the CIRMA management strategies facilitates 

the adaptive management initiatives with the participation of community groups that strengthen 

the monitoring plans at the regional level.”

“The communities and regional organizations are integrated in the recreation and tourism 

opportunities.”

3. Increase regional environmental literacy and provide educational opportunities for local communities. 

Assist in developing community capacity for participation in various management activities in areas such 

as economic development, recreation, interpretation, education, conservation, restoration, research and 

monitoring. Identify and overcome barriers that inhibit these populations from connecting socially, 

culturally and economically to the natural landscapes within and surrounding the Forest.

Through collaboration and forest management, environmental literacy was considered in developing 

opportunities to enhance conservation education and other educational opportunities; through Plan 

language such as:

Desired conditions: “The Forest has comprehensive and complementary interpretive and 

educational programs that are relevant to local populations and support the conservation of the 

Forest, promote ecological and socioeconomic sustainability, increase interest in collaborative 

resource management, and address the learning needs of a diverse audience.” 

“Partnerships are created with local communities, schools, special interest groups, and 

government agencies to develop and support interpretive and educational efforts and to 

strengthen regional identity and capacity for shared stewardship.”
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“Interpretive and educational efforts and materials contribute to increasing environmental 

literacy, especially among youth and underserved populations, through the development of 

environmental thinking, decision-making, and ethical commitment. Programs are 

interdisciplinary, collaborative, problem-based, and promote research and action in favor of the 

environment.”

4. Provide for healthy ecosystems.

Protect and conserve the functional wetlands, mature forest, secondary forests and riparian areas, and 

maintain and improve watershed conditions on the Forest while monitoring, adapting and mitigating the 

impacts of climate change.

Through Forest Plan components, the management actions will be guided to ensure protection and 

conservation of ecosystems, through components such as: 

Desired Conditions: “Functional wetlands remain forested, predominantly with native species. 

The biodiversity and ecosystem processes are maintained. Viable populations of native plants are 

maintained or achieved.”

“Maintain healthy watershed conditions within the Forest considering water quality, water 

quantity, soil productivity, and vegetation. Healthy watersheds support important ecological and 

social services such as productive soils, biological diversity, wildlife habitats, water supplies, and 

flood control benefits.”

“Structure, composition and function of mature forests is maintained within the range of natural 

variation.”

“Maintain the functional wetland and associated vegetation types.” “Maintain healthy 

watersheds.”

Guideline: “Design and execute wildlife habitat improvement or watershed restoration plans for 

endemic wildlife or fisheries species to rehabilitate areas affected by any significant natural 

occurrence (such as, hurricane, tropical storm, massive rain event, landslides).”

5. Incorporate collaborative adaptive management at the plan and site-specific levels. 

Continue current regional collaboration efforts engaged in conservation, management, and land use in a 

sustainable manner while seeking out opportunities for further partnership efforts. Shift priorities from a 

primarily Forest Service-driven management focus to a more collaborative management. Partnership 

opportunities and collaborations with local groups and organizations support the achievement of desired 

conditions and objectives of the Plan.

Facilitate and coordinate a framework similar to the concept of a State Technical Committee by 

integrating municipal and State agencies and concerned citizens within the region to request support or 

funds for programs and promote outreach for incentive programs available for private land-owners in the 

areas adjacent to the Forest. 

Develop initiatives with State and local governments, other Federal agencies, academic institutions, and 

citizen science groups for various projects.

To ensure partnerships, collaboration, conservation and research, the Forest developed Plan components 

such as:

Desired Condition: “Lands dedicated to farming and providing natural environment in the region 

surrounding El Yunque will increase. Agricultural lands represent an opportunity for 
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conservation, for growing food, providing for wildlife and providing employment through 

recreation.”

Objectives: “Work with existing land owners and organizations to provide incentives or acquire 

lands that promote conservation initiatives for protecting surrounding hills, stream corridors, 

riparian areas, wild and scenic river corridors, and connections to the Reserva Natural Corredor 

Ecólogico del Noreste (Northeast Ecological Corridor, Natural Reserve), Río Espiritu Santo 

Natural Reserve, Las Picuas Reserve, La Monserrate Public Park, Las Cabezas de San Juan 

Natural Reserve, Seven Seas Natural Reserve, Natural Areas in Roosevelt Roads, Ceiba State 

Park (Bosque Estatal de Ceiba) and Humacao Natural Reserve (Refugio Natural de Vida 

Silvestre de Humacao) over the planning period.”

Management Strategy: “Collaborate with the International Institute of Tropical Forestry, State 

and Private Forestry, external partners and surrounding land managers to coordinate 

management and monitoring efforts related to visitor use, ecological connectivity and flows, and 

invasive species.”

Meeting Substantive Requirements of the Rule

The Revised Plan has been prepared in compliance with the Forest Service’s 2012 Land Management 

Planning Rule at 36 CFR Part 219. The Revised Plan meets the specific Rule requirements in 219.8-

219.11 as follows.

219.8 Sustainability

The Revised Management Plan provides for ecological sustainability by:

• Providing for ecological integrity by having the desired conditions, objectives, standards and 

guidelines to restore and maintain the aquatic and forested wetland ecosystems of El Yunque National 

Forest (Revised Plan, Chapter 3, Section 3.1 and 3.1.3, Ecological Sustainability, Wetlands).

• Providing detailed desired conditions for the composition, structure, function and connectivity of each 

ecological system groupings that have been identified and mapped, and descriptions of system 

drivers, ecological processes and stressors and threats (Revised Plan, Chapter 3, Section 3.1, 

Ecological Sustainability, Diversity of Plants and Animal Communities).

• Providing a suitable habitat for at-risk species within an “all lands” landscape approach for ecosystem 

sustainability (Revised Plan, Chapter 3, Section 3.1, 3.1.2 and 3.1.10, 3.1.11, Ecological 

Sustainability and Species Diversity).

• Including Plan components that allow management to adjust to influences outside the borders of El 

Yunque National Forest, including rapid urban development (Revised Plan, Chapter 3, and Section

3.1).

• Having standards and guidelines to protect air, soil, and water quality (Revised Plan, Chapter 3).

• Having standards and guidelines for riparian management (Revised Plan, Chapter 3).

The Revised Plan contributes to social sustainability by:

• Developing the CIRMA (Community Interface Resource Management Area), where the Forest

advances recreation opportunities and the resulting socio-economic development; as well as small 

forest products that could contribute to socio-economic initiatives in the region. 
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• Creating or enhancing strong connections and relationships with the communities adjacent to the 

forest through the forest planning process; initiating the opportunities for collaborative work and 

making such coordination feasible throughout the implementation and duration of this alternative. 

• Developing collaborative strategies to improve public access by, for example, dispersing recreation to 

lower elevations where more opportunities for recreation exist and could happen through a shared 

stewardship approach with surrounding communities.

• Developing collaborative strategies for environmental education, rural economic development, 

monitoring and restoration through projects like a Citizen Science Program. 

• Establishing Plan components to foster environmental justice for the communities surrounding the 

Forest, through environmental education, technical assistance, and other Forest initiatives. 

• Providing goals and desired conditions for each of the management areas, which describe the multiple 

uses opportunities of El Yunque National Forest’s recreational settings (including access, recreational 

opportunities and scenery), contributing to local and regional economies (Revised Plan, Chapter 2).

• Providing desired conditions, goals and objectives to enhance or maintain ecosystem services 

provided by El Yunque, such as clean water for the region (Revised Plan, Chapter 2 and 3).

• Establishing objectives for nominating historic properties along with standards and guidelines for the 

protection of cultural and historic resources (Revised Plan, Chapters 3).

219.9 Diversity of Plant and Animal communities

By meeting the requirements for providing ecological integrity per 219.8 (above), the Revised Plan meets 

the coarse filter requirements for diversity of plants and animals in 219.9(a). The Revised Plan also:

• Identifies key characteristics of ecosystems, such as primary forest or mature forest, and other key 

features of ecosystem composition, structure, ecological processes, connectivity, as well as stressors 

and threats (Revised Plan, Chapter 3, Section 3.1 and 3.1.2, Ecological Sustainability, Terrestrial 

Ecosystems: Vegetation).

• Identifies management needed for 13 threatened and endangered species (5 animal and 8 plant 

species) and 62 species of conservation concern (SCC) (23 animal and 39 plant species) through Plan

components (Revised Plan, Chapter 3).

• Provides Plan components for specific species whose needs may not be met by ecosystem level Plan

components, such as Management Situations for the Elfin-woods Warbler (Revised Plan, Chapter 3, 

Section 3.1.10).

The Revised Plan uses the tiered approach identified in the 2012 planning rule to conserve and maintain 

species diversity, which first involves an analysis of the ecosystems on the Forest and the species whose 

habitats are dependent on those ecosystems. The Plan components for conserving, restoring, or 

maintaining these ecosystems are often referred to as the “coarse filter” approach, which is then followed, 

where needed, by the “fine filter” species-specific approach (which includes the protection of sensitive 

habitats, such as high-elevation wetlands and the mature elfin woodland montane rain and wet cloud 

forests). I find the Revised Plan has the appropriate components to restore and maintain the diversity of 

ecosystems. Key habitat characteristics for all forest type groupings were taken into account when the 

desired conditions, objectives, standards and guidelines were developed. Ecological conditions for “atrisk” plant species are provided through Plan components that will protect their different habitats 

throughout El Yunque National Forest. Plan components for specific “at-risk” bird species are provided.
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For the 13 threatened or endangered species on the Forest (FEIS, Appendix E) the Revised Plan includes 

components that are designed to contribute to their recovery. While future restoration projects and 

activities may affect individual members of a species, the long-term outcomes of restoration will provide 

conditions to improve recovery of these species. The Revised Plan includes standards and guidelines that 

will result in reduced effects to individual members of species from future projects and activities. For 

example, several standards address specific habitat needs for the Puerto Rican parrot, Puerto Rican sharpshinned and broad-winged hawks, such as conducting no adverse management activities within 492 feet 

(150 meters) from an active nest (Revised Plan, Chapter 3, Section 3.1.10). In 2015, El Yunque staff met 

with U.S. Fish and Wildlife experts to review the most updated process of reaching the finalized list of 

threatened and endangered species that would be addressed through Forest Plan direction.

The Southern Region Regional Forester identified 62 species of conservation concern (SCC) on El 

Yunque National Forest. SCC are species that are known to occur in the Plan area and for which there are 

substantial concerns for the persistence of the species. Several data sources, including a comprehensive 

list of rare or sensitive plant and animal species was compiled, by the Interdisciplinary Team, combining 

species lists from a variety of sources, including: State species of concern obtained from the Puerto Rico’s 

version of a Natural Heritage Program, the State Comprehensive Wildlife Conservation Strategy, and the 

Regional Forester’s list of sensitive species provided the best available scientific information to identify 

these species. Once SCCs were identified, we organized the species according to their habitat needs to 

determine how the Plan would provide and sustain ecological conditions for them. Most SCC habitat 

needs are met through the coarse filter approach, that is, by the desired conditions and objectives for each 

of the forest type’s groupings. For some species groups with specific habitat needs, such as the Elfinwoods warbler and the Puerto Rican parrot, the Revised Plan has specific desired conditions and 

objectives to meet their needs. I find the Revised Plan components will provide ecological conditions to 

maintain viable populations for SCC and contribute to the recovery of threatened and endangered species. 

219.10 Multiple Uses

The Revised Management Plan provides for integrated resource management for multiple uses 

(219.10(a)) by dividing the landscape into three geographic areas. These areas have unique characteristics 

that facilitate a geographical approach to providing and managing multiple uses.

Appropriate plan components for multiple uses for El Yunque National Forest are described in the three

geographic areas, forest-wide direction, and Management Area direction, and includes:

• Desired conditions to provide for the multiple uses and ecosystem services available in each

management area considering those that are available within the Forest.

• Plan Components to supply small forest products in a sustainable manner, which support local 

economies and local communities (Revised Plan, Chapter 3).

• Desired Conditions, Goals, Objectives, Standards and Guidelines to provide clean water, ensure water 

quantity as well as improve watershed conditions where needed. This supports important ecological 

and social services such as productive soils, biological diversity, wildlife habitat, water supplies, and 

flood control benefits (Revised Plan, Chapter 3).

• Desired Conditions, Goals, Objectives, Standards and Guidelines and Management Strategies were 

developed to ensure economically, socially and ecologically sustainable recreation opportunities 

along with collaborators when appropriate. Recreation opportunities considered tourism, capacity, and 

opportunities to disperse recreation users to other areas, access, and changes in local demographics.

• Desired conditions, goals, standards, guidelines, objectives and management strategies developed to 

reduce the backlog of accrued facility deferred maintenance, particularly those items associated with 
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health and safety as well as facilities that could potentially provide opportunities for reuse; and to

assist with collaborative efforts to improve access, roads and facilities management (Revised Plan, 

Chapter 3).

• Desired conditions, goals, objectives and management strategies to link trails in El Yunque National 

Forest (“El Norte” Geographic Area) to adjacent natural reserves in the eastern region of Puerto Rico 

including the Corredor Ecológico del Noreste Trails (Revised Plan, Chapter 2).

• Desired conditions, objectives, standards, guidelines, goals, and management strategies ensuring

wildlife habitat management is cooperatively managed along with U.S. Fish and Wildlife Service and

the Puerto Rico Department of Natural Resources, to enhance habitat for wildlife viewing, restoration

and conservation (Revised Plan, Chapter 3).

• Desired conditions, standards, and management strategies that maintain the natural scenic character of 

the Forest to meet the needs of the surrounding communities. This ensures that the Forest continues to 

provide this scenic value unique to Puerto Rico and to provide collaborative opportunities.

• Desired conditions for scenery management and scenic integrity objectives at a forest-wide level. 

• Desired conditions, objectives, goals and management strategies for land conservation, restoration

and acquisition considering a broader landscape perspective. These Plan components prioritize land 

acquisition along river corridors and riparian areas, encourages agricultural activities on lands 

surrounding the Forest that benefit wildlife, provides food and employment, while minimizing 

impacts stemming from excessive development and explores opportunities for continued land 

ownership adjustments (Revised Plan, Chapter 2 and 3).

• Plan Components to maintain the wilderness character (ecological characteristics) of El Toro 

Wilderness Area, including the development of a detailed wilderness plan (Revised Plan, Chapter 2).

• Plan Components to protect the outstandingly remarkable values of existing wild and scenic rivers as 

well as three rivers eligible for such designation (Revised Plan, Chapter 2 and 4).

• Plan Components that provide the public with learning and engagement opportunities of cultural 

resources and historic properties where appropriate and possible; as well as provide for maintenance, 

conservation and protection of important cultural resources and historical assets. 

219.11 Timber Requirements based on the NFMA

The Revised Management Plan meets the timber requirements in the Rule by:

• Identifying 7,180 acres of land as suitable for timber production. The purpose of timber production 

activities considered in this plan will be to restore native forests by silvicultural prescriptions that 

remove invasive species and provide wood products for local artisans.

• Identifying 21,036 acres of land as not suited for timber production (Revised Plan, Appendix B, 

Forest Products).

• Specifying that timber production is not the primary objective in the Revised Plan, but complements 

the desired conditions and objectives for ecosystem maintenance and restoration (Revised Plan).

• Identifying that the Projected Timber Sale Quantity that may be sold from El Yunque National Forest

is 23.0 MCF per year. The Plan also states that sales cannot exceed the Sustained Yield Limit of 591.6 

MCF per year (Revised Plan, Appendix B, Forest Products).

• Including standards and guidelines for limits on timber suitable for harvest as well as limitations on 

uses or forms of extraction (Revised Plan, Chapter 2 and Appendix B).
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Alternative Development 

Alternatives were developed around those issues that involved unresolved conflicts concerning alternative 

uses of available resources. The significant issues identified were:

• What is the best approach to provide sustainable recreation opportunities that minimize impacts 

to the forest while meeting current and future needs and demands of users and surrounding 

communities?

• What is the best approach to respond to the potential effects of a climate change on Forest 

resources and ecosystem services?

• How, where, and to what extent can the Forest provide opportunities that contribute to and 

enhance social and economic conditions in the region?

The Final EIS (FEIS), Chapter 2, “Alternatives” section has detailed information on how the action

alternatives were developed. In addition to addressing these significant issues that were raised, the factors

described in the Key Plan Revision Topics section of this ROD were also considered in the development 

of alternatives 2 and 3.

Alternatives Considered in Detail 

The no action and two action alternatives are summarized as follows. A more detailed description of these 

alternatives can be found in the FEIS in Chapter 2, “Alternatives” section.

Alternative 1 – No Action (1997 Forest Plan)

Under Alternative 1, the 1997 Forest Plan would continue to guide management of the Plan area. The 

1997 Forest Plan does not adequately address social and economic sustainability, connecting people to 

nature or climate change. 

Alternative 2 – Proposed Action 

Alternative 2 is the proposed action for the Revised Forest Plan. It addresses public desire to access the 

Forest for recreation, but recognizes carrying capacities and the need to maintain sufficient infrastructure 

to support visitation. It addresses climate change by shifting recreational opportunities to the lower 

elevations of the Forest, which are better suited for recreational use. 

Alternative 2: 

• Proposes a new planning system based on ecological, social, and economic sustainability.

• Promotes recreation sustainability and addresses increased demands and needs by promoting 

recreation at lower elevations in a setting closer to local communities.

• Introduces Plan components for environmental education, collaboration, and ecosystem services.

• Establishes three geographic areas (El Norte, El Este and El Oeste y Sur) to increase community 

interactions and an “all-lands” approach to planning 

• Establishes nine management areas including a new scenic byway corridor for PR 186.

• Establishes a community interface resource management area (CIRMA) to provide opportunities for 

forest product utilization that can be coordinated with community groups and local residents.

• Provides additional management direction for priority watersheds using the national watershed 

condition framework. 
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• Recommends increasing the size of Baño de Oro Research Natural Area from 2,172 to 6,441 acres.

• Recognizes the need to protect and restore the wetlands that occur over 600 meters in elevation and 

increases the recognized forest vegetation types from 4 to 15 to reflect the new vegetation 

classification system and the Forest’s most recent findings. 

• Removes direction for managing species as management indicator species and replace it with species 

of conservation concern. 

• Establishes the initiative to reuse historical structures. 

Alternative 2 retains existing Forest Plan direction (including standards and guidelines) for research on 

wilderness and wild and scenic rivers on the Forest. 

Alternative 3

Alternative 3 was developed to respond to concerns wanting an increased focus on ecological 

sustainability. It would reduce the number of maintained trail miles. This alternative would expand 

wilderness, and would not create a scenic byway management area. This alternative is similar to

Alternative 2, with the following changes:

• Recommends designation of the Baño de Oro Research Natural Area as wilderness. 

• Provides additional Plan components to address invasive species management in areas of road rightsof-way, recreation areas, and threatened and endangered habitats in order to manage invasive species 

and restore landscape-level conditions.

• Addresses some sustainable recreation concerns by reducing the trail system to a level that can be 

maintained.

• Creates two geographic areas, North and South, to connect with communities on both sides of the 

Forest. 

• Excludes the scenic byway management area for PR 186, due to the amount of use this would 

produce on the western side of the Forest. 

Alternatives Considered but Eliminated from Detailed Study 

NEPA requires Federal agencies to rigorously explore and objectively evaluate all reasonable alternatives 

and to briefly discuss the reasons for eliminating any alternatives that were not developed in detail (40 

CFR 1502.14). Public comments received in response to the proposed action provided suggestions for 

alternative methods of achieving the purpose and need. Some of these alternatives may have been outside 

the scope of what can be included in the revised El Yunque Forest Plan, duplicative of the alternatives 

considered in detail or determined to be components that would cause unnecessary environmental harm. 

Three alternatives were considered, but dismissed from detailed consideration for reasons summarized 

below.

Custodial (no recreation management, special uses or research

management) 

This alternative was not considered in detail because it does not meet law or policy requirements to 

provide multiple uses. This alternative would also not comply with the dual designation of El Yunque 

National Forest as also the Luquillo Experimental Forest.
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Intensify the Recovery of the Puerto Rican parrot

This management component as a significant theme to an alternative was not considered in detail because 

El Yunque National Forest is suboptimal habitat for the species at this time. The interagency effort has 

realized that El Yunque has limited habitat capacity and limited population growth potential for a future 

population without management (White, 2009).

Recommending designation of all eligible wild and scenic rivers 

This alternative was not considered in detail for the following reasons:

• There is no public support for additional wild and scenic river designations beyond those already 

designated;

• Additional areas would increase management complexity; and, 

• People would still like to have access to these areas.

Changes from DEIS to FEIS 

In response to comments on the DEIS and further internal reviews, the following is a summary of the 

primary changes made to the FEIS and the Revised Land Management Plan. Excluding minor editorial 

and organization changes, clarifications and typographical errors, the modifications are summarized here: 

• Addressing and adding language to address invasive species management. 

• Updated language for management of aquatic species management. 

• A desired condition for water resources was added to address hydrologic connectivity of the rivers 

flowing from the forest to maintain healthy aquatic fauna. 

• Improved language to address the conflicts between recreation and communication facilities. 

• Updated language to clarify harvesting activities to provide for forest products within the CIRMA. 

• Changed the language in the Plan from “co-management” to “shared stewardship” (in the English 

version) to meet agency direction.

• Updated the monitoring program to include scale, alerts and response by resource area.

• Expanded the Ecosystems desired conditions to include better descriptions of the composition, 

structure and function.

• Included an appendix on compatibility between local land use plans and the Revised Forest Plan. 

• Included responses to comments from the comment period in Appendix A of the FEIS. 

• Updated the Appendix in the FEIS on ecosystems and species diversity, and added a table showing 

the Plan components with each at-risk species.

• Following Hurricanes Irma and María, which passed over the Forest in September 2017, a review of 

the proposed plan was conducted to determine if the effects of the hurricanes would require 

significant changes to the Forest Plan. It was determined that no major changes were needed, 

although some desired conditions and goals for addressing large-scale disturbances on the Forest and 

adjacent areas were added, some objectives and management strategies were updated, and two 

standards for the Puerto Rican Parrot were added. The Forest also updated applicable information

and sections in the FEIS’s Affected Environment and Environmental Consequences Chapter.
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• During the 60-day objection period for the revised forest plan, one objection was received regarding 

stray dogs and cats found El Yunque National Forest. The objector expressed concerns that stray dogs 

and cats pose a health risk to the public by possibly spreading rabies and cause harm to wildlife by 

predation. (See the “Administrative Review” section below for more information on the objection 

received.)

Environmentally Preferable Alternative 

National Environmental Policy Act (NEPA) regulations require agencies to specify the alternative or 

alternatives which were considered to be environmentally preferable (40 CFR 1505.2(b)). Forest Service 

NEPA regulations define an environmentally preferable alternative as: “the alternative that best promotes

the national environmental policy as expressed in NEPA’s section 101. Ordinarily, the environmentally 

preferable alternative that causes the least harm to the biological and physical environment; it is also the 

alternative which best protects and preserves historic, cultural, and natural resources” (36 CFR §220.3). 

Within Alternative 2, all practicable means to avoid or minimize environmental harm from this alternative 

have been adopted. Through the selected alternative’s desired conditions, standards, guidelines, goals and 

management strategies, environmental harm is minimized. Through the monitoring plan within the 

Revised Forest Plan the effects of minimizing impacts will be reviewed periodically as required by the 

2012 Forest Planning Rule. 

I find, based upon the laws and regulations guiding National Forest System management, that Alternative 

2 is the environmentally preferred alternative. When compared to Alternatives 1 and 3, it best contributes 

and moves the Forest towards, ecological, social and economic sustainability which will benefit future 

generations (see “Rationale” and “Meeting Substantive Requirements of the Rule” sections). The 

planning record for El Yunque National Forest Revised Plan contains further documentation on how 

Section 101 of NEPA was considered and evaluated. 

Best Available Scientific Information

The 2012 Planning Rule (§219.6(a)(3) and 219.14(a)(4)) requires the responsible official to document 

how the best available scientific information was used to inform the assessment, the Plan decision, and 

the monitoring program. Such documentation must identify what information was determined to be the 

best available scientific information, explain the basis for that determination, and explain how the 

information was applied to the issues considered.

Ecosystems 

The desired conditions for ecosystems were developed using information provided by the Forest

Assessment that includes information from scientific journals and books, information from the 

International Institute of Tropical Forestry (The Institute) and databases such as TESP/IS, Wildlife, WIT, 

AqS, among others. The information assessed provides characteristics of the composition, structure and 

the ecological processes needed to sustain the ecosystems and these were obtained using the Best 

Available Scientific Information. This information guided the determination of key characteristics of each 

ecosystem.

Vegetation

The revised vegetation classification for El Yunque National Forest (EYNF) was developed by The 

Institute’s Remote Sensing Laboratory with input from their researchers and El Yunque National Forest 

specialists. The geospatial data was based on the PR Gap 2000 land cover map (Gould et al. 2007) and 
El Yunque Forest Plan Revision │ Record of Decision

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modified to better fit the Forest’s management needs. To do this, the Holdridge ecological life zones 

(Ewel and Whitmore 1973), the 600 m elevation line where cloud formation begins (USGS), a 3,300 mm 

precipitation line (Daly et al. 2003) and a 100 feet buffer around the rivers (National Hydrography 

Dataset) inside the forest to identify riparian forest were incorporated to create the new vegetation 

classification. 

Aquatic – Rivers, Streams and Wetlands 

Desired conditions and objectives for rivers, streams and the forest’s wetlands were informed using 

characteristics in the Watershed Condition Framework (USDA Forest Service, 2011a) and the scientific 

information used to develop the Framework. Relevant information was also provided by The Institute, 

which has been actively conducting research at El Yunque National Forest. Monitoring questions and 

indicators were developed using the characteristics of the Watershed Condition Framework that will 

determine and disclose conditions of the watersheds on El Yunque National Forest. The effectiveness of 

the best management practices will be monitored and reported every 2 years.

Threatened and Endangered Species 

Five federally listed threatened or endangered fauna species and eight federally listed threatened or 

endangered flora species were identified as known to occur on El Yunque National Forest through 

informal consultation with U.S. Fish and Wildlife Service. Twenty-three fauna species of conservation 

concern and thirty-nine plant species of conservation concern were identified as known to occur on the 

Forest using a variety of sources. 

At-Risk Species 

The “at-risk” species habitat needs were associated with the key characteristics of the ecosystems using 

the most reliable approach as documented in The Nature Conservancy’s “Conservation Action Planning 

Handbook” (The Nature Conservancy 2006). The Forest Service Southern Region has developed a digital 

data system (called the Ecological Sustainability Evaluation Tool or ESE Tool) for species conservation 

planning based on The Nature Conservancy’s procedures. The evaluation of species groups with 

ecosystems informed the development of desired conditions, objectives and standards and guidelines to 

provide ecological conditions for the persistence of these species groups.

Monitoring questions and indicators were developed for focal species in order to determine how well the 

ecosystem conditions are functioning and which will provide data and whether adaptive strategies are 

needed for “at-risk” species (Chapter 4, Revised Forest Plan).

Conditions for “at-risk” species and rare communities, including the effects of natural disturbances, were 

estimated using the professional judgement of the IITF and El Yunque National Forest biologists and 

ecologists, and were informed by research literature that is referenced in the Plan Assessment and FEIS.

Changing Climate 

The most reliable and relevant information about a changing climate was provided by the Southern 

Research Station, Eastern Forest Environmental Threat Assessment Center. Scientific information 

considered during the Plan Assessment was based on a comprehensive review and synthesis of peer 

reviewed literature and modeling results available through the “Template for Assessing Climate Change 

Impacts and Management Options” (TACCIMO; Treasure et al. 2014). The comprehensive literature 

review focused on addressing all ecosystems described in the Plan’s ecological framework as a coarse 

filter and species of interest as a fine filter. The literature review also addressed climate effects on other 

required assessment topics related to social, cultural, and economic sustainability. Modeling results 
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considered in the assessment included climate projections from a broad array of current climate models, 

sea level rise modeling, tree species distribution modeling, water supply stress modeling, and climate 

resiliency modeling. The literature review and synthesis was compiled in a peer reviewed General 

Technical Report that received comments from leading scientific experts (Jennings et al. 2014). Desired 

conditions and objectives were informed by potential stressors and threats influenced by climate 

variability and change, particularly sea level rise and disturbance drivers. Climate change monitoring 

questions and indicators are linked to the Southern Region’s Broad Scale Monitoring Strategy that will 

track changing conditions, including sea level rise, caused by climate change and includes explicit 

consideration of scientific accuracy, relevance and reliability. 

Ecosystems Services 

A national classification system for ecosystem services developed by the Environmental Protection 

Agency was used to classify final environmental goods and services and determine the beneficiaries of 

the services. While the science of ecosystem services is rapidly developing, this approach was most 

relevant within the timeframe of Revised Plan development.

Economic and Social Environment

The Forest has been a place of profound ecological, social, economic, historical, and cultural importance, 

and associated with it a wide range of benefits and services for local communities and society at large.

These municipalities and the communities have longstanding social and economic ties to the Forest and 

the goods and services that it protects and provides. Population dynamics, human health and well-being, 

economic diversity, and other socioeconomic factors from sources such as the U.S. Census Bureau, 

Bureau of Economic Analysis, Bureau of Labor Statistics, U.S. Department of Labor, U.S. Department of 

Commerce, and the Puerto Rico Planning Board were evaluated to determine the Socioeconomic 

environment of the geographical region.

Recreation

Desired conditions and objectives for recreational settings, recreation opportunities and sustainable 

recreation were informed by using characteristics in the Forest Service ROS Users Guide (USDA Forest 

Service 1986) as well as sustainable recreation principles. Information from national visitor use 

monitoring (NVUM) and national strategies such as “A Framework for Sustainable Recreation” were 

used including the scientific strategies used to develop these strategies and frameworks. Conditions 

related to recreation will be monitored every two to five years, depending on what level and what type of 

recreation management activities will be addressed. 

Scenic Character 

Desired conditions, standards, guidelines and management strategies for scenic character were informed 

by “Landscape Aesthetics, a Handbook for Scenery Management” (USDA Forest Service 1995), input

from the public on scenery value and other agency information. Monitoring questions and indicators were 

developed using the characteristics of scenic character as well scenic integrity on El Yunque National 

Forest. Monitoring of scenery will be addressed through a broader-landscape collaborative approach.

Conclusion

I find that the best available scientific information was used to develop the Revised Plan components and 

other Plan content. There are no known controversies over the science of the ecology of ecosystems. 

Throughout the plan revision process, literature that was submitted by the public or other Agencies was 
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used to improve the analysis. No literature that could be considered “opposing” was submitted as part of 

comments on the Draft Environmental Impact Statement. 

Research Station Director Concurrence

The Luquillo Experimental Forest (LEF) is a dual designation of El Yunque National Forest within its 

boundaries. Research operations are guided by the International Institute of Tropical Forestry (The 

Institute), not by El Yunque. The Forest has worked with The Institute since the assessment phase of plan 

revision. The Revised Land Management Plan direction for the LEF recognizes that the LEF conducts 

studies and experiments to develop needed information and tools to manage, restore, and conserve the 

functions and values of the Forests. The Revised Land Management Plan identifies those areas within the 

LEF that will be managed based on potential ecosystem restoration needs. On July 18, 2017, the Director 

of the International Institute of Tropical Forestry had a meeting with the Forest to discuss the concurrence 

of the Revised Land Management Plan direction that is applicable to the Luquillo Experimental Forest, as 

required by 36 CFR 219.2(b)(4). A letter of concurrence from the Director of IITF on the Revised Forest 

Plan was signed on August 14, 2018. 

Findings Required by Other Laws and Regulations

Clean Air Act

The FEIS (Chapter 3, “Air Quality” and “Climate Change” section) addresses and discloses potential 

impacts from program activities that can be subsequently proposed, evaluated and approved under the

Forest Plan. The Forest Plan includes desired conditions, standards and guidelines and strategies for 

maintaining air quality. Except for particular circumstances, the Forest does not use prescribed fire nor 

does it have management practices in its Revised Plan that could adversely affect the air quality.

Therefore, the management related to air quality monitoring will be more focused on climate impacts. 

When considering guidelines for managing forest activities, the Forest seeks to limit activities that will 

adversely affect air quality in collaboration with agencies that can inform this process when information 

is needed. Therefore, I find this decision to be in compliance with the Clean Air Act. 

Clean Water Act

The Clean Water Act (CWA) (33 U. S. C. § 1251 et seq.) establishes the basic structure for regulating 

discharges of pollutants into the waters of the United States and regulating quality standards for surface 

waters. In Puerto Rico, the designated agency for enforcement of the Clean Water Act is the 

Environmental Quality Board of Puerto Rico. The FEIS addresses potential impacts to water resources in 

the Chapter 3, “Water and Watersheds” and “Aquatic Ecosystems” sections. 

The Revised Land Management Plan provides components for protecting water resources and aquatic 

habitats. In addition, water resources and habitats will be protected by implementing the Forest Plan’s 

riparian management direction and by following the Forest Service’s National Best Management 

Practices for Water Quality Management on National Forest System Lands. The Revised Plan provides 

specific direction that will protect the water resources by ensuring that no management practices that may 

cause detrimental changes in water quality and chemical composition, or block the watercourses, or 

deposit sediment that adversely affects the water conditions and fish habitat, will be permitted. Therefore, 

I find this decision complies with the Clean Water Act. 
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Endangered Species Act

The Endangered Species Act of 1973 (ESA) requires Federal agencies to ensure that any agency action 

does not jeopardize the continued existence of the species (ESA Section 7(a) (2)). 

In January 2013, the Forest notified the National Oceanic and Atmospheric Administration’s National 

Marine Fisheries Service (NOAA) and the U.S. Fish and Wildlife Service (FWS) of the forest plan 

revision process and requested lists of federally listed threatened and endangered species, species 

proposed for Federal listing, and candidate species to be considered for further evaluation throughout the 

forest plan revision process. In 2016, the Forest met with the FWS to finalize the list of threatened and 

endangered species that would be addressed in the Biological Assessment (BA). See the planning record 

for the complete consultation history.

In accordance with Section 7(c) of the Act, a BA assessed the effects of implementing El Yunque National 

Forest Revised Land Management Plan on thirteen federally listed threatened, endangered, proposed 

species or designated critical habitat known or likely to occur on El Yunque National Forest in eastern 

Puerto Rico. 

The BA has a finding of “may affect, but not likely to adversely affect” for the federally endangered 

animal species: Puerto Rican parrot (Amazona vittata), Puerto Rican Broad-winged hawk (Buteo 

platypterus brunnescens), Puerto Rican sharp-shinned hawk (Accipiter striatus venator), Puerto Rican 

Boa (Epicratus inornatus), and the threatened Elfin woods warbler (Setophaga angelae). A “may affect, 

but not likely to adversely affect” was determined for the federally endangered plant species of Capa Rosa 

(Calicarpa ampla), Uvillo (Eugenia haematocarpa), Guayabota pequeña (Ilex obcordata (syn. 

sentinisii)), Ternstroemia subsellis, Lepanthes eltoroensis, Chupacallos (Pleodendrum macrantum), Palo 

de Jazmin (Styrax portoricensis), Palo Colorado (Ternstroemia luquillensis).

The Revised Plan includes desired conditions, standards and guidelines, objectives and provides broad 

management direction. These Forest Plan components comply with the requirements of the ESA and the 

associated recovery plan for each federally listed species. The BA was submitted to FWS for review and a 

“letter of concurrence” from the FWS on the Forest’s BA was received on September 1, 2017. A second 

letter of concurrence, confirming that the original concurrence from September 2017 was still valid 

following Hurricane María, was signed on July 31, 2018. For these reasons, I find this decision to be in 

compliance with the requirements of the Endangered Species Act of 1973. 

Executive Order 12898 - Environmental Justice

Environmental Justice populations exist within the 9-municipality planning area. El Yunque has a 

conglomerate of unique qualities, one of the most significant are the communities that surround it. These 

communities can be identified within the framework of environmental justice qualities as described in the 

Planning Rule (2012). The communities in the region surrounding the Forest have the lowest income per 

capita in the nation. Youth programs are greatly needed to give equal opportunities in land use within 

National Forest Systems lands and the communities that surround the Forest are mostly (all) Puerto 

Rican, a minority at a national level. Although some interaction with the Forest and the communities have 

existed in the past; historically they have not had a participative relationship with the Forest 

(underserved). These are precisely the traits that the new Forest Planning Rule (2012) describe as the 

types of populations that we should be actively engaging to encourage and enable their participation in 

planning processes regarding Forest management activities and use of Forest resources as part of seeking 

environmental justice.
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El Yunque National Forest has, during all stages of the planning process, addressed youth, low income 

populations, minority populations, as well as underserved communities to promote and develop further 

accessibility to the Forest lands and Forest collaboration initiatives. At the assessment stage, the Forest 

developed community meetings and activities with communities that had not been engaged before. 

During the planning process (in the need for change, the proposed action as well as the development of 

the alternatives) the Forest met with these sectors of the public for their input and to establish a 

relationship for future engagement and collaborative opportunities within the realms of environmental 

education, recreation, access, tourism, conservation, etc. This became a historic opportunity for the Forest 

to not only address the forest-wide issues but to contribute to the broader landscape as it seeks 

Environmental Justice for its local communities (FEIS, Chapter 3, Environmental Justice).

Executive Order 1190 and 11998 – Wetlands and Floodplain 

Management

This decision protects wetlands values and function through the implementation of the riparian 

management zones and by following the Forest Service’s “National Best Management Practices for Water 

Quality Management on National Forest System Lands” (USDA Forest Service 2012). (See also, FEIS, 

Chapter 3, “Extreme Weather Events”, “Water and Watersheds”, “Ecological Systems”, and “Threatened 

and Endangered Species/Species of Conservation Concern” sections). The Revised Plan has the desired 

condition that “the functional wetland within El Yunque National Forest is protected and preserved”, and 

states that “Wetlands are identified and administered in accordance with appropriate management 

requirements related to Federal legislation and regulations that apply to Puerto Rico.” 

This decision protects wetlands and conserves riparian areas through the Revised Plan direction found in 

the “Aquatic Ecosystem” “Functional Wetland” and “Riparian Management Zones” sections. The Plan 

identifies that “Riparian management zones are defined as a 100-foot zone inland from each edge of a 

river or stream (defined as bank full), unless a site-specific analysis is conducted to identify and delineate 

the riparian management zone.”

The Revised Plan includes the management standard that no management practices that may cause 

detrimental changes in water quality and chemical composition, or block the watercourses, or deposit 

sediment that adversely affects the water conditions and fish habitat, will be permitted within the riparian 

management zone. The Plan has the additional guideline to “ensure Forest Service soil and water best 

management practices are implemented when management or maintenance activities are conducted near 

riparian areas.”

National Environmental Policy Act (NEPA) 

Federal agencies are required to consider and disclose the effects of proposed actions that significantly 

affect the quality of the human environment. The Revised Land Management Plan is a programmatic 

level planning effort that does not directly authorize any ground disturbing activities or projects. 

I find the environmental analysis for the Revised Land Management Plan meets the requirements of 

NEPA, and the CEQ and Forest Service regulations. The ID Team considered public and other agency 

input throughout the planning process (FEIS, Chapter 1, “Public Involvement” section), developed and 

analyzed a reasonable range of alternatives (FEIS, Chapter 2, “Alternatives” section) and considered and 

displayed the environmental consequences in the EIS in conformance with the National Environmental 

Policy Act of 1969 (NEPA), CEQ’s NEPA regulations (40 CFR 1500 to 1508) and the Agency’s NEPA 

procedures (36 CFR 220). Future ground disturbing activities and projects will be consistent with the 
El Yunque Forest Plan Revision │ Record of Decision

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Revised Land Management Plan and subject to additional site-specific public involvement, environmental 

analysis, and pre-decisional review processes in compliance with the Act and CEQ’s NEPA regulations. 

National Forest Management Act (NFMA)

On April 9, 2012, the Department of Agriculture issued a final planning rule at 36 CFR 219 for National 

Forest System land management planning (2012 Rule) 77 FR 68 [21162-21276]. The “Rationale” section 

of this decision and the section on “Meeting Substantive Requirements of the Rule” document how the 

Revised Land Management Plan meets these 36 CFR 219 requirements. 

National Historic Preservation Act

Section 106 of the National Historic Preservation Act (NHPA) requires each Federal agency to take into 

account the effects of its actions on historic properties, prior to approving expenditure of Federal funds on 

an undertaking or prior to issuing any license; while Section 110 of the NHPA outlines the Federal agency 

responsibility to establish and maintain a preservation program for the identification, evaluation, and 

nomination to the National Register of Historic Places, and protection of historic properties.

I find this decision is fully compliant with the Act. The Revised Land Management Plan is a 

programmatic level planning effort that will not directly authorize any ground disturbing activities or 

projects. The Revised Plan includes desired conditions, goals, objectives, standards, guidelines, 

management strategies, and monitoring requirements for managing and protecting cultural resources 

listed or eligible for the National Register of Historic Places.

Site-specific projects that are undertaken as a result of the direction in the Revised Plan will fully comply 

with laws and regulations that ensure protection of heritage resources. Significant cultural resources will 

be identified, protected, and monitored in compliance with the National Historic Preservation Act. Any 

consultation that will occur for proposed activities will be coordinated with the State Historic Preservation 

Office (SHPO) of Puerto Rico. 

I find this decision offers the greatest potential for interpretation and education of cultural resources by 

having Forest Plan direction which emphasizes the creation of partnerships with the forest-surrounding 

communities. This effort increases knowledge about the protection of cultural resources, which could in 

turn reduce probability of damages. (FEIS, Chapter 3, Cultural and Historic Resources Section)

Effective Date and Plan Implementation

The 2019 El Yunque National Forest Revised Land Management Plan will become effective 30 days after 

publication of the Notice of Approval in the Federal Register (§219.17(a)(1)). The revised plan’s effective 

date is calculated on the basis of that publication in the Federal Register.

Forest plans are permissive in that they allow, but do not mandate, the occurrence of certain activities. 

The Revised Plan will be implemented through a series of project-level decisions based on site-specific 

environmental analysis and public involvement. The Revised Plan seeks to guide management activities 

and projects by establishing a clear desired condition for El Yunque and for each ecosystem, rather than 

by establishing schedules for actions. This approach leaves more flexibility for managers to adapt 

program and project selection as changes take place in budgets, resource capabilities, and management 

priorities.
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Outputs in the FEIS are not commitments but projections of possible outcomes. They were used to 

approximate activities and practices in order to estimate the likely environmental effects of following the 

direction provided by the Revised Plan.

Throughout the life of the Plan, specific projects and activities will be proposed and analyzed. These 

analyses will be done in accordance with NEPA, and documented in the appropriate NEPA documents, 

(i.e., environmental assessments or environmental impact statements, or will be categorically excluded 

from such documentation). Projects, practices and activities will be designed to be consistent with the 

applicable desired conditions, objectives and standards and guidelines in the Revised Plan.

In implementing the Revised Plan, the Forest will follow the Monitoring as identified in Chapter 4 of the 

Plan and a biennial monitoring evaluation report will be produced. 

Transition to the Revised Land Management Plan

The Revised Plan direction will apply to all projects for which decisions are made on or after the effective 

date of this ROD. Every project and activity must be consistent with the applicable Plan components. A 

project or activity approval document must describe how the project or activity is consistent with the 

applicable components of the Revised Plan. The criteria for determining consistency with the Revised 

Plan are detailed in 36 CFR 219.15(d).

The National Forest Management Act requires that when land management plans are revised, resource 

plans and permits, contracts and other instruments for the use and occupancy of National Forest System 

lands shall be revised as soon as practicable to be consistent with the current Land Management Plan (16 

U.S.C. 1604(i)). Any revisions of these instruments are subject to valid existing rights.

There are many management actions that have decisions made before the effective date of this ROD. 

These pre-existing actions were considered part of the baseline in developing the Revised Plan and the 

projected effects of these actions are part of the cumulative effects analyses documented in the FEIS. An 

additional analysis concluded that the continued implementation of these previously decided actions will 

not foreclose the ability to meet the desired conditions and objectives of this Revised Plan.

I have not identified the need to modify any pre-existing actions involving permits, contracts, or other 

instruments for the use and occupancy of National Forest System lands due to inconsistencies with the 

Revised Plan. These actions will be implemented according to the terms of the applicable instrument. 

However, should the need arise, I have the discretion to modify these permits, contracts or other 

instruments for the use and occupancy of National Forest System lands.

Plan Amendments

The Revised Plan is a dynamic document that can be changed with appropriate public involvement and 

environmental analysis. Through the life of the Revised Plan, amendments may be needed to incorporate 

new information, new policy and direction, or changing values and resource conditions. Amendments will 

keep the Revised Forest Plan current, relevant, and responsive to agency and public concerns. 

Amendments are needed whenever any of the Revised Plan components should be changed due to any of 

the above conditions. The Revised Plan also can be amended for specific projects if it is determined that 

the best method of meeting project goals and objectives conflicts with existing Plan direction. There will 

be opportunities for the public to be involved in any future changes to the Revised Plan. Any amendment 

to the Revised Plan will need to follow the Plan amendment process outlined in 36 CFR 219.13. In some 

situations, an “administrative change” can be used to update/change the Plan (see also §219.13). 
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Administrative changes are generally limited to changes to parts of the Plan that are not plan components, 

except that administrative changes also include corrections of clerical errors to any part of the Plan, and 

conformance of the Plan to new statutory or regulatory requirements (§219.7(f)). 

Administrative Review

This decision was subject to the pre-decisional objection process pursuant to 36 Code of Federal 

Regulation (CFR) § Part 219 Subpart B. A 60-day objection period on the draft Record of Decision 

(ROD), revised forest plan, and final environmental impact statement was initiated on August 24, 2018

with the publication of the Legal Notice of the Opportunity to Object in the San Juan’s Daily Star and El 

Nuevo Día newspapers. One objection was received during the objection filing period, which only had 

one issue. The objector brought forth concerns about the feral dogs and feral cats found in El Yunque. 

On March 25, 2019, the reviewing officer for El Yunque NF (the Regional Forester) responded to the 

Objector. In the objection review response letter, the reviewing officer recognized the following actions 

the Forest has been taking to address the concerns about the feral dogs and feral cats found in El Yunque:

• The Land Management Plan has a Desired Condition (DC 4) that “Invasive species are 

controlled” (Section 3.1.10 “At-Risk Species – Fauna”, p. 60) and identifies feral dogs and feral 

cats as Focal Species to be monitored for their impacts to the fauna species on the Forest and well 

as impacts to users of the Forest (see Table 4-1, p. 94).

• The Final EIS in Table 3-1 (p. 145) recognizes that feral dogs and feral cats are “disease vectors”, 

present “potential aggressive human interactions”, and that the management response is “live 

trapping for removal.” The FEIS further identifies that “these species can affect niche availability 

and individual behavior of native and endemic species”, “these species are associated with 

recreational areas because of the availability of food leftovers”; and that “in regard to feral dogs 

and cats, there will be better collaboration with municipalities to use pounds for the collection of 

captured individuals” (p. 146). In the FEIS it is also identified that the Puerto Rico Department 

of Natural and Environmental Resources is the local agency to work with in providing animal 

shelters for unwanted dogs and cats instead of abandoning them on the Forest (FEIS, Appendix A, 

4.3 section p. 262).

• The Forest has already been implementing a program where they remove feral dogs and cats and 

take them to local shelters unless they are rabid, and that they work with municipal government 

shelters, as well as USDA Animal and Plant Health Inspection Service (APHIS) – Veterinary 

Services, and the State Veterinary in the control and removal of feral dogs and feral cats.

As the Responsible Official for approving and implementing the Land Management Plan for El Yunque 

NF, our commitment is to continue with the implementation of these ongoing management activities to 

help control feral dogs and cats within El Yunque NF.

Contact Person

For additional information concerning this decision, contact Pedro Ríos, Forest Planner, at 787-549-0080.
El Yunque Forest Plan Revision │ Record of Decision

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Approval

I approve the selection of Alternative 2 for the Revised Land Management Plan for El Yunque National 

Forest. This revised plan has been built on a strong foundation of science along with collaboration and 

engagement with members of the public, conservation organizations and other Federal, State, and local 

agencies. I look forward to continued collaboration as we implement this plan into the future.

___________________________ _________________

Sharon Wallace Date

Forest Supervisor

El Yunque National Forest