RECORD OF DECISION

for

Amendments to Forest Service and Bureau of Land Management

Planning Documents Within the Range of the Northern Spotted Owl

Table of Contents

I. Summary ..................................................... 1

II. Introduction ..................................................... 2

III. Decision ..................................................... 4

A. Statutory Basis for Ecosystem Management ......................... 5

B. Land Allocations .............................................. 6

C. Standards and Guidelines ....................................... 7

D. Application of Decision ........................................ 11

1. Application to Land and Resource Management Plans ............ 11

a. Bureau of Land Management

b. Forest Service

2. Relationship of Standards and Guidelines to Existing Plans ........ 12

3 Application to Timber Sales ................................. 13

4. Application to other Contracts, Permits, and 

Special Use Authorizations ............................... 15

5. Application to Research Activities ............................. 15

6. Relationship to Other Plans and Proposals ..................... 15

7. Relationship to Other Lands ................................. 16

IV. The Alternatives ................................................ 17

A. Alternatives Considered ....................................... 17

B. The Action Alternatives ........................................ 19

C. No-Action Alternative ......................................... 24

D. The Environmentally Preferable Alternative ........................ 25

V. The Selected Alternative .......................................... 25
April 13, 1994 ROD ii

VI. Mitigation .................................................... 29

A. Mitigation Measures Adopted ................................... 29

B. Mitigation Measures Not Adopted ................................ 29

1. Vertebrates

2. Invertebrates and Plants

VII. Changes in Standards and Guidelines Between Final SEIS and 

Record of Decision ........................................... 34

VIII. Findings .................................................... 38

A. Court Injunctions ............................................. 38

B. Legal and Regulatory Compliance ............................... 39

1. National Environmental Policy Act (NEPA) ...................... 40

2. National Forest Management Act ............................. 42

3. Federal Land Policy and Management Act ...................... 48

4. Oregon and California Lands Act ............................. 49

5. Endangered Species Act .................................... 50

6. Coastal Zone Management Act ............................... 51

7. Executive Order 11990 - Protection of Wetlands ................. 51

8. Clean Air Act ............................................. 51

9. Clean Water Act .......................................... 52

10. Federal Advisory Committee Act ............................. 52

IX. Implementation ................................................. 53

A. Interagency Coordination ...................................... 53

B. Planning and Analysis ......................................... 54

C. Consultation and Coordination .................................. 54

D. Protection of Tribal Treaty Rights and Trust Resources ............... 54

E. Initial Implementation of this Decision ............................. 55

F. Fiscal Year 1994 Watershed Restoration Program .................. 57

G. Monitoring .................................................. 57

H. Authority to Amend or Modify this Decision ........................ 58

X. Public Involvement .............................................. 58

A. Public Comments on the Draft SEIS .............................. 59

B. Summary of the Comments Received ............................. 60

C. Response to Comments on the Draft SEIS ......................... 61

D. Response to Comments on the Final SEIS ......................... 65

XI. Review and Approval ............................................ 73

A. Administrative Review ......................................... 73

B. Effective Date ............................................... 74

C. Administrative Record ......................................... 74

D. Signatures .................................................. 74
April 13, 1994 ROD 1

I. Summary

This Record of Decision is the culmination of an unprecedented effort in public land

management. On April 2, 1993, President Clinton convened the Forest Conference in

Portland, Oregon to address the human and environmental needs served by the federal

forests of the Pacific northwest and northern California. The President, Vice-President and

much of the Cabinet spent an entire day listening to all points of view and collecting

information. The President then directed his Cabinet to craft a balanced, comprehensive

and long-term policy for the management of over 24 million acres of public land. An

interagency, interdisciplinary team of expert scientists, economists, sociologists and others

was assembled -- the Forest Ecosystem Management Assessment Team led by Dr. Jack

Ward Thomas. After three months of intensive work, which included the review of all fullydeveloped proposals for management of federal forests within the range of the northern

spotted owl, the team produced a report assessing in detail ten options. 

President Clinton announced his proposed "Forest Plan for a Sustainable Economy and a

Sustainable Environment" on July 1, consisting of strategies for forest management,

economic development, and agency coordination. The forest management and

implementation portion of the strategy, which is the subject of this Record of Decision, was

analyzed in a Draft Supplemental Environmental Impact Statement (Draft SEIS) issued in

July that received over 100,000 public comments during a three month public comment

period. A Final Supplemental Environmental Impact Statement (Final SEIS) was made

available to the public in February 1994.

In this Record of Decision, we, the Secretary of Agriculture and the Secretary of the Interior,

jointly amend the planning documents of nineteen National Forests and seven Bureau of

Land Management Districts. This represents the first time that two of the largest federal land

management agencies, the Bureau of Land Management and the Forest Service, have

developed and adopted a common management approach to the lands they administer

throughout an entire ecological region. 

The management direction consists of extensive standards and guidelines, including land

allocations, that comprise a comprehensive ecosystem management strategy. The strategy

is based on Alternative 9 of the Final SEIS, except for minor modifications noted in this

document or made in the attached standards and guidelines. The conservation measures

included in this strategy are based upon the best available science and attempt to anticipate

and forestall future 
April 13, 1994 ROD 2

environmental problems, avoiding the severe economic dislocation and legal gridlock that

occur when environmental problems are ignored. 

There are more than 24 million acres of federal land in the planning area for our decision

(defined as the range of the northern spotted owl). Approximately 30% of these acres have

been set aside by Act of Congress. The remaining 70% is allocated by this management

direction as: late-successional reserves (30%); adaptive management areas (6%);

managed late-successional areas (1%); administratively withdrawn areas (6%); riparian

reserves (11%); and matrix (16%). Standards and guidelines for each land allocation

provide a coordinated ecosystem management approach to the planning area. Although

certain thinning and salvage activities would be allowed in the reserves, programmed timber

harvest would only occur in the 22% of the land designated as matrix or adaptive

management areas, and only in compliance with standards and guidelines designed to

achieve conservation objectives. 

II. Introduction

The controversy over the northern spotted owl and old-growth federal forests of the Pacific

northwest has continued since the 1970s. At present there have been or are pending over a

dozen lawsuits involving the northern spotted owl, marbled murrelet, and possible future

timber harvesting in old growth. There are currently three separate court injunctions that

have severely restricted new timber sale programs on federal forests in northern spotted owl

habitat for the past three years.

The federal agencies most directly involved in the issues concerning the management of

late-successional and old-growth forest within the range of the northern spotted owl are the

U.S. Forest Service, Bureau of Land Management, National Park Service, Bureau of Indian

Affairs, U.S. Fish and Wildlife Service, National Biological Survey, National Marine Fisheries

Service and the Environmental Protection Agency. The five major federal laws that apply to

federal land management in the planning area are the National Environmental Policy Act

(NEPA), Endangered Species Act (ESA), National Forest Management Act (NFMA), Federal

Land Policy and Management Act (FLPMA), and Oregon and California Lands Act (O&C

Act). 

President Clinton asked at the April 2, 1993, Forest Conference:

How can we achieve a balanced and comprehensive policy that recognizes the

importance of the forest and timber to the economy and jobs in this region, and how

can we preserve our precious old-growth forests, which are part of our national

heritage and that, once destroyed, can never be replaced?
April 13, 1994 ROD 3

The President set forth five principles to guide the federal interagency effort to develop a

management strategy to protect the old-growth related species and produce a sustainable

level of timber:

First, we must never forget the human and the economic dimensions of these

problems. Where sound management policies can preserve the health of forest lands,

sales should go forward. Where this requirement cannot be met, we need to do our

best to offer new economic opportunities for year-round, high-wage, high-skill jobs.

Second, as we craft a plan, we need to protect the long-term health of our forests, our

wildlife, and our waterways. They are a ... gift from God, and we hold them in trust for

future generations.

Third, our efforts must be, insofar as we are wise enough to know it, scientifically

sound, ecologically credible, and legally responsible.

Fourth, the plan should produce a predictable and sustainable level of timber sales

and nontimber resources that will not degrade or destroy the environment.

Fifth, to achieve these goals, we will do our best, as I said, to make the federal

government work together and work for you. We may make mistakes but we will try to

end the gridlock within the federal government and we will insist on collaboration not

confrontation.

President Clinton summed up the Forest Conference:

We're here to begin a process that will ensure that you will be able to work together in

your communities for the good of your businesses, your jobs, and your natural

environment. The process we [have begun] will not be easy. Its outcome cannot

possibly make everyone happy. Perhaps it won't make anyone completely happy. But

the worst thing we can do is nothing. 

The land allocations and standards and guidelines that are adopted here satisfy all of the

objectives set forth by the President. They comply with the requirements of federal law,

including the five statutes listed above. They are based on the best available science and

are ecologically sound. They will protect the long-term health of the federal forests. They

will provide for a steady supply of timber sales and nontimber resources that can be

sustained over the long term without 
April 13, 1994 ROD 4

degrading the health of the forest or other environmental resources. 

Moreover, they involve a commitment by the federal agencies to work together.

This decision marks the turning point from formulation to implementation. Initial standards

and guidelines have been developed, subjected to public comment, modified slightly, and

adopted by this decision. The next step is to apply the standards and guidelines and adapt

management of federal forests to sustain both the old-growth ecosystem and a supply of

timber. In order to coordinate the activities of the various federal agencies that are involved,

we have established an interagency structure that includes the Regional Interagency

Executive Committee (RIEC), the Regional Ecosystem Office (REO), and provincial teams. 

These groups will oversee the necessary monitoring and research to continuously seek new

information and understanding of the complexities involved in managing the old-growth and

late-successional forest ecosystem in the Pacific northwest. 

We view the action of adopting these standards and guidelines as a beginning and not an

end of the process of resolving the issues that have developed during the controversy over

federal forest management. We expect and welcome the continuing involvement of the

public in the management of these valuable resources.

III. Decision

In this Record of Decision, we jointly adopt Alternative 9 of the Final SEIS, as modified by

this decision, and as amplified in the attachment to this Record of Decision entitled

"Standards and Guidelines for Management of Habitat for Late-Successional and OldGrowth Forest Related Species Within the Range of the Northern Spotted Owl" (Attachment

A). This decision, as spelled out in Attachment A (sometimes referred to herein as "the

Standards and Guidelines"), is to be applied to lands administered by the USDA Forest

Service and the USDI Bureau of Land Management within the range of the northern spotted

owl, as provided in this Record of Decision. The following discussion explains the decision

but is not intended to cover every aspect of the Standards and Guidelines, which set forth

the management direction adopted by this decision in a single document and are intended to

facilitate the agencies' implementation of our decision.

The Standards and Guidelines apply to the land allocations that are identified on the official

maps of the Final SEIS, as corrected for minor mapping errors. These maps are stored

electronically in the spatially unified database (SPUD) maintained by the interagency

geographic information system (GIS) staff in the Regional Ecosystem Office at 333 S.W.

First Avenue, Portland, Oregon 97204. Maps at 1/2-inch to the mile scale showing the land

allocations are available for each Forest Service and BLM administrative unit at the

respective unit offices.
April 13, 1994 ROD 5

A. Statutory Basis For Ecosystem Management

In setting forth our mission to develop a strategy for management of federal old-growth and

late-successional forests that we adopt today in this decision, the President charged us to

use an ecosystem management approach. In this vein, we defined the planning area for this

strategy as the federally administered lands within the range of the northern spotted owl. 

We asked our scientists to assess not only effects on individual species of each of the

alternatives, but also the likelihood that the alternatives would provide for a functional and

interconnected old-growth forest ecosystem. We involved all the relevant federal agencies

at an early point in the planning process and asked them to coordinate their efforts to the

extent possible. 

Such an approach proceeds from our statutory authority as set forth in statutes such as the

Forest Service Organic Act, the Multiple-Use Sustained-Yield Act, the Endangered Species

Act, and the Federal Land Policy and Management Act. These statutes invest in our

Departments broad discretion to rely upon our expertise to manage the lands under our

administrative authority in a manner deemed to best meet the purposes Congress has

delineated. One such purpose is to provide for the long-term sustainability of all of the

forests' many natural resources, including the species that inhabit them. Through its

utilization of ecosystem management principles, our decision is designed to meet this

purpose more effectively and efficiently than previous planning efforts associated with

management of federal old-growth forests. Statutes such as the Forest and Rangeland

Renewable Resources Planning Act, the National Forest Management Act, and the Federal

Land Policy and Management Act, which outline various procedures to follow in federal

public land planning, also authorize the employment of principles intrinsic to ecosystem

management. For example, they call for planning to be interdisciplinary, coordinated among

agencies, and based on the best available science. The National Forest Management Act

explicitly directs that diversity of plant and animal species be considered in planning. 

Moreover, the Endangered Species Act directs the Secretary of the Interior, and the

Secretary of Agriculture with respect to National Forest System lands, to establish and

implement a program to conserve fish, wildlife, and plants, including those listed as

threatened or endangered. Thus, our decision, while emergent in some important respects,

is nevertheless firmly grounded in the authority reflected in our statutory schemes as well as

the best federal land management agency tradition of crafting approaches that meld dynamic

concepts with the legal duties under which we are charged to carry out our stewardship

responsibilities.

Finally, the National Environmental Policy Act, while not imposing substantive duties on the

agencies, recognizes "the interrelations of all components of the natural environment," "the

critical importance of restoring and maintaining 
April 13, 1994 ROD 6

environmental quality," and "the responsibilities of each generation as trustee of the

environment for succeeding generations." 42 U.S.C. § 4331. Further, the cumulative

impacts analysis required under NEPA's regulations supports a planning approach that

incorporates an ecosystem perspective.

B. Land Allocations

This decision specifically incorporates seven land allocation categories, as set forth below. 

There is considerable overlap among some designated areas. For consistency and for

acreage display purposes, lands subject to such overlaps are reflected in only one category,

according to the order of land allocations in the following descriptions.

Congressionally Reserved Areas comprise 7,320,600 acres, representing 30% of the

federal land within the range of the northern spotted owl. These lands have been reserved

by act of Congress for specific land allocation purposes. This decision can not and does not

alter any of these congressionally mandated land allocations. Included in this category are

National Parks and Monuments, Wilderness Areas, Wild and Scenic Rivers, National

Wildlife Refuges, Department of Defense lands, and other lands with congressional

designations.

Late Successional Reserves comprise 7,430,800 acres, representing 30% of the federal

land within the range of the northern spotted owl. These reserves, in combination with the

other allocations and standards and guidelines, will maintain a functional, interactive, latesuccessional and old-growth forest ecosystem. They are designed to serve as habitat for

late-successional and old-growth related species including the northern spotted owl.

 

Adaptive Management Areas (AMAs) comprise 1,521,800 acres, representing 6% of the

federal land within the range of the northern spotted owl. These areas are designed to

develop and test new management approaches to integrate and achieve ecological,

economic, and other social and community objectives. The Forest Service and BLM will work

with other organizations, government entities and private landowners in accomplishing those

objectives. Each area has a different emphasis to its prescription, such as maximizing the

amount of late-successional forests, improving riparian conditions through silvicultural

treatments, and maintaining a predictable flow of harvestable timber and other forest

products. A portion of the timber harvest will come from this land. There are ten adaptive

management areas. 

Managed Late Successional Areas currently comprise 102,200 acres, representing 1% of

the federal land within the range of the northern spotted owl. These lands are either (1)

mapped managed pair areas or (2) unmapped protection buffers. 
 The term "withdrawn" does not mean a withdrawal for purposes of Section 204 of

the Federal Land Policy Management Act.

April 13, 1994 ROD 7

Managed pair areas are delineated for known northern spotted owl activity centers. 

Protection buffers are designed to protect certain rare and locally endemic species.

Administratively Withdrawn Areas comprise 1,477,100 acres, representing 6% of the

federal lands within the range of the northern spotted owl. Administratively withdrawn areas 1

are identified in current forest and district plans or draft plan preferred alternatives and

include recreational and visual areas, back country, and other areas not scheduled for timber

harvest. 

Riparian Reserves initially comprise 2,627,500 acres, representing 11% of the federal lands

within the range of the northern spotted owl (acreage subject to change following watershed

analysis). The calculation of riparian reserve acreage is done after all other designated

areas. As a result, the acreage shown reflects only that portion of riparian reserves that is

interspersed throughout the matrix. Riparian reserves are areas along all streams, wetlands,

ponds, lakes, and unstable or potentially unstable areas where the conservation of aquatic

and riparian-dependent terrestrial resources receives primary emphasis. The main purpose

of the reserves is to protect the health of the aquatic system and its dependent species; the

reserves also provide incidental benefits to upland species. These reserves will help

maintain and restore riparian structures and functions, benefit fish and riparian-dependent

non-fish species, enhance habitat conservation for organisms dependent on the transition

zone between upslope and riparian areas, improve travel and dispersal corridors for

terrestrial animals and plants, and provide for greater connectivity of late-successional forest

habitat. 

Matrix comprises 3,975,300 acres, representing 16% of the federal land within the range of

the northern spotted owl. The matrix is the federal land outside the six categories of

designated areas set forth above. It is also the area in which most timber harvest and other

silvicultural activities will be conducted. However, the matrix does contain non-forested

areas as well as forested areas that may be technically unsuited for timber production.

C. Standards and Guidelines

The detailed requirements that describe how land managers should treat the forest lands

within the range of the northern spotted owl are described in Attachment A, particularly

section C. Some standards and guidelines apply to all lands, others to a specific land

allocation. More than one set of standards and guidelines may 
April 13, 1994 ROD 8

apply in some areas -- for instance riparian reserve requirements within a late-successional

reserve. In such cases, the more restrictive standards and guidelines generally apply. 

Some standards and guidelines contain an initial implementation strategy that may differ in

some respects from the long-term strategy. The following summaries briefly describe the

major standards and guidelines. For a more comprehensive description of requirements,

see Section C of Attachment A.

Current Plans: Existing plans for national forests and BLM lands contain standards and

guidelines for all activities, from road and trail construction to visitor information rules. 

Except as otherwise noted in this ROD or Attachment A, the standards and guidelines of

existing plans (or draft plan preferred alternatives) apply where they are more restrictive or

provide greater benefits to late-successional forest-related species than do other standards

and guidelines in Attachment A.

Late-Successional Reserves: Late-successional reserves are to be managed to protect and

enhance old-growth forest conditions. For each late-successional reserve (or group of small

reserves) managers should prepare an assessment of existing conditions and appropriate

activities. No programmed timber harvest is allowed inside the reserves. However, thinning

or other silvicultural treatments inside these reserves may occur in stands up to 80 years of

age if the treatments are beneficial to the creation and maintenance of late-successional

forest conditions. In the reserves east of the Cascades and in Oregon and California

Klamath Provinces, additional management activities are allowed to reduce risks of largescale disturbance. Salvage guidelines are intended to prevent negative effects on latesuccessional habitat. Non-silvicultural activities within late-successional reserves are

allowed where such activities are neutral or beneficial to the creation and maintenance of

late-successional habitat. Thinning or other silvicultural activities must be reviewed by the

Regional Ecosystem Office and the Regional Interagency Executive Committee.

Adaptive Management Areas: Where congressionally reserved areas or late-successional

reserves occur within adaptive management areas, the amended plans will apply the more

restrictive standards and guidelines of the congressionally reserved areas or latesuccessional reserves; however, within the Finney and Northern Coast Range AMAs, the

late-successional reserve designations may be changed by AMA plans. Standards and

guidelines for riparian reserves and key watersheds in adaptive management areas may

allow more flexibility. AMA planning groups will closely coordinate with the Regional

Ecosystem Office.

Managed Late-Successional Areas: Managed owl pair areas are typically on the east side of

the Cascade Range. Suitable owl habitat in areas surrounding owl activity centers will be

maintained through time using various management 
April 13, 1994 ROD 9

techniques. The location of this acreage may change over time. Protocols will be developed

for the location of special protection areas.

Administratively Withdrawn Areas: These areas have already been designated in existing

plans. The amended plans will apply the most restrictive applicable standards and

guidelines, whether from Attachment A or from existing plans.

Aquatic Conservation Strategy: The aquatic conservation strategy contains four

components: riparian reserves; key watersheds; watershed analysis; and watershed

restoration. Each part is expected to play an important role in improving the health of the

region's aquatic ecosystems.

1. Riparian Reserves: Attachment A designates initial reserve widths for protected

riparian areas, as well as specific requirements for timber management, road

construction and maintenance, grazing, recreation, minerals management, fire/fuels

management, research, and restoration activities. Initial boundary widths for riparian

reserves are as follows:

 Fish-bearing streams - the area on each side of the stream equal to the height of

two site-potential trees, or 300 feet slope distance, whichever is greater;

 Permanently flowing nonfish-bearing streams - the area on each side of the stream

equal to the height of one site-potential tree, or 150 feet slope distance, whichever is

greater;

 Lakes and natural ponds - the body of water and the area to the outer edges of

riparian vegetation, or to a distance equal to the height of two site-potential trees, or

300 feet slope distance, whichever is greater;

 Constructed ponds and reservoirs and wetlands greater than one acre - the area

from the edge of the wetland or the maximum pool elevation to a distance equal to the

height of one site-potential tree, or 150 feet slope distance, whichever is greater;

 Seasonally flowing or intermittent streams -- the area on each side of the stream to

a distance equal to the height of one site-potential tree or 100 feet slope distance,

whichever is greater; 

 Wetlands less than one acre and unstable and potentially unstable areas -the extent

of unstable and potentially unstable areas, and wetlands less than one acre to the

outer edges of the riparian vegetation. 
April 13, 1994 ROD 10

Riparian reserve initial boundary widths established by this decision will remain in effect until

they are modified following watershed analysis. Guidance on boundary modifications is

contained in Attachment A.

2. Key Watersheds: We are designating three categories of watersheds:

 Tier 1 key watersheds -- those to be managed for at-risk anadromous salmonids,

bull trout, and resident fish (141 watersheds, 8,119,400 acres);

 Tier 2 key watersheds -- those where high water quality is important (23 watersheds,

1,001,700 acres); and

 non-key watersheds -- all other watersheds (15,334,200 acres).

3. Watershed Analysis: Watershed analysis is a systematic procedure to characterize

the aquatic, riparian, and terrestrial features within a watershed. Managers will use

information gathered during watershed analyses to refine riparian reserve boundaries,

prescribe land management activities including watershed restoration, and develop

monitoring programs.

4. Watershed Restoration: Watershed restoration is designed to restore currently

degraded habitat conditions. The most important components are control and

restoration of road-related runoff and sediment production, restoration of riparian

vegetation, and restoration of in-stream habitat complexity. Restoration programs will

initially focus on arresting road-related erosion and silvicultural treatments in riparian

reserves to restore large conifer canopies. In-stream restoration is inherently shortterm and will be accompanied by upslope and riparian restoration to achieve long-term

watershed restoration.

Matrix: Most of the timber harvest will occur on matrix lands. Standards and guidelines

assure appropriate conservation of ecosystems as well as provide habitat for rare and

lesser-known species. Some of the major standards and guidelines for matrix lands are:

 a renewable supply of large down logs must be in place;

 at least 15 percent of the green trees on each regeneration harvest unit located on

National Forest land must be retained (except within the Oregon Coast Range and

Olympic Peninsula provinces); and

 100 acres of late-successional habitat around owl activity centers that were known

as of January 1, 1994, must be protected.
April 13, 1994 ROD 11

Survey and Manage: The standards and guidelines require land managers to take certain

actions relative to rare species of plants and animals, particularly amphibians, bryophytes,

lichens, mollusks, vascular plants, fungi, and arthropods. These include: (1) manage known

sites of rare organisms; (2) survey for the presence of rare organisms prior to grounddisturbing activities; (3) conduct surveys to identify locations and habitats of rare species;

and (4) conduct general regional surveys for rare species.

For many species and taxonomic groups, adequate survey techniques may not exist. The

standards and guidelines provide an implementation strategy that includes a time line for

developing protocols for the surveys and conducting the necessary survey work.

D. Application of Decision

1. Application to Land and Resource Management Plans

This decision amends current land and resource management plans with additional land

allocations and standards and guidelines. The management direction set forth in this

decision is incorporated upon the effective date of our decision into all existing plans and

regional guides and will also be incorporated in plans for forests and districts that do not

currently have approved management plans. Development of future plans will be closely

coordinated with other agencies and with the Regional Interagency Executive Committee. 

a. Bureau of Land Management

Districts With Resource Management Plans -- This decision amends the resource

management plans for those portions of BLM districts within the range of the northern

spotted owl with approved resource management plans. The Redding Resource Area, the

Arcata Resource Area, and the King Range National Conservation Area, all within the Ukiah

District of California, have approved resource management plans. 

Districts Without Resource Management Plans -- This decision amends management

framework plans and timber management plans for those portions of BLM districts within the

range of the northern spotted owl without approved resource management plans. The BLM

districts without resource management plans are Coos Bay, Eugene, Medford, Roseburg,

and Salem Districts and the Klamath Resource Area of the Lakeview District. The units that

do not have approved resource management plans have issued draft resource management

plans, and the draft environmental impact statements for those draft plans have 
April 13, 1994 ROD 12

been supplemented by the Final SEIS. BLM will proceed with completing those plans in

accordance with this decision. 

b. Forest Service

Regional Guides -- This decision amends the regional guides for those portions of the

Pacific Northwest Region (Region 6) and the Pacific Southwest Region (Region 5) within the

range of the northern spotted owl.

National Forests With Forest Plans -- This decision amends the forest plans for those

portions of National Forests within the range of the northern spotted owl that have approved

forest plans. The National Forests with adopted plans within the range of the northern

spotted owl are the Gifford Pinchot, Mount Baker-Snoqualmie, Mount Hood, Olympic, Rogue

River, Siuslaw, Siskiyou, Umpqua, and Willamette National Forests. National Forests

partially within the range include the Deschutes, Okanogan, Wenatchee, Winema, Lassen,

and Modoc National Forests.

National Forests Without Forest Plans -- This decision amends the unit plans and

resource management plans for those portions of National Forests without approved forest

plans within the range of the northern spotted owl. The National Forests within the range of

the northern spotted owl without approved forest plans are the Klamath, Shasta-Trinity,

Mendocino, and Six Rivers National Forests. These forests have issued draft forest plans,

and the draft environmental impact statements for these draft forest plans have been

supplemented by the Final SEIS. The Forest Service will consider the management direction

adopted in this decision when completing those plans.

2. Relationship of Standards and Guidelines to Existing Plans

The existing land management plans contain many standards and guidelines that are not

amended by this decision. Only those existing plan standards and guidelines in conflict with

this decision are replaced. Where existing plans are more restrictive or provide greater

benefits to late-successional forest related species than Attachment A, the existing plan

standards and guidelines will continue. (Four exceptions to this rule are listed in Attachment

A, p. C-3.)

For both Forest Service and BLM lands, an estimate of the probable quantity of forest

products that may be offered for sale is provided in the Final SEIS. The allowable sale

quantity for the existing forest plans and approved BLM resource management plans will be

recalculated at the time of the next plan revision. The resulting allowable sale quantity for

National Forests and BLM districts without approved management plans will be recalculated

when the respective plans are adopted. 
April 13, 1994 ROD 13

3. Application to Timber Sales

This record of decision does not provide final authorization for any timber sale, nor does it

compel that any timber sale be awarded. Rather, the decision amends various Forest

Service and BLM planning documents; timber sales offered subsequent to the effective date

of this Record of Decision must be consistent with these amended planning documents. In

addition, timber sales must undergo appropriate site-specific analysis, and must comply with

applicable regulatory requirements for public participation and administrative appeal.

Some previously-offered sales are located in late-successional reserves. If those sales

proceed, the integrity of the late-successional reserves will not be substantially impaired,

and the cumulative environmental effects of the sales will not be significantly different from

the effects set forth in the Final SEIS. Between the Draft and Final SEIS, the size of latesuccessional reserves increased by 378,200 acres, to a total late-successional reserve

acreage of 7,431,000. The amount of late-successional, old-growth habitat protected in

various reserves (e.g., late-successional, riparian, and known owl activity centers in the

matrix) increased by 240,900 acres, to a total of 6,864,100 acres. These increases more

than offset the approximately 26,000 acres of previously sold and awarded or sold and

unawarded sales located within proposed late-successional reserves. The late-successional

and old-growth habitat in late-successional reserves that might be harvested (assuming that

these areas meet ESA requirements) represents about one-third of one percent of the total

of this habitat in reserves in the preferred alternative. 

a. Timber Sales Awarded Prior to the Effective Date

Timber sales awarded prior to the effective date of this Record of Decision are not altered by

this Record of Decision. At the time they were awarded, these timber sales were consistent

with the planning documents then in effect, complied with the Endangered Species Act and

other laws, and the environmental effects of these sales were considered as part of the

baseline for the biological opinion for the Final SEIS.

Timber sales in key watersheds (as described in the Final SEIS) and inventoried roadless

areas (as defined in the RARE II study) awarded prior to September 1993 were evaluated

and adjusted, as needed, to eliminate or mitigate long-term, unacceptable effects on riparian

and aquatic ecosystems. Sales were assessed to determine their effect on state water

temperature standards, large woody debris, stream flow, sediment regime, aquatic

organisms, and other aquatic resources. The criteria for this evaluation were developed by

the scientific group assisting the implementation team. Since September 1993, sales

awarded in proposed late-successional reserves have been limited to thinning and salvage,

evaluated using 
April 13, 1994 ROD 14

criteria developed by the scientific advisory group.

b. Timber Sales Offered Subsequent to the Effective 

Date of the ROD

Timber sales offered subsequent to the effective date of this Record of Decision must be

consistent with the appropriate planning documents as amended by this Record of Decision. 

Where appropriate, timber sale planning documents may reference the analysis in the Final

SEIS.

c. Timber Sales Sold but Unawarded

With one exception as described below, all planned and sold but unawarded timber sales

were reviewed and adjusted as needed, following publication of the Draft SEIS, pursuant to

the process described in paragraph (a) above. The review ensured that these sales would

not prevent the attainment of the environmental objectives of the selected alternative.

The environmental effects of these timber sales were disclosed in site-specific NEPA

documents and subsequent review. Some of these sales have subsequently been awarded

and some have not yet been awarded.

 

This Record of Decision specifically provides that the remaining sales that have been offered

but not awarded prior to the effective date of this Record of Decision, other than those sales

referred to in paragraph (1) below, may be awarded after the effective date of this Record of

Decision without further modification provided that they meet the requirements of the

Endangered Species Act.

(1) Timber Sales Sold, Unawarded but Enjoined

Timber sales sold, unawarded, but enjoined prior to the effective date of the ROD have not

been reviewed using the procedure described in paragraph (a) above, but must be

consistent with the appropriate planning documents as amended by this Record of Decision. 

Where appropriate, timber sale planning documents may reference the analysis in the Final

SEIS.

d. Timber Sales Released from the Injunction in Seattle ..........

Audubon Society v. Lyons

On March 24, 1994, the court in Seattle Audubon Society v. Lyons modified the injunction to

allow 24 timber sales in northern spotted owl habitat to be sold and awarded. These sales

will be adjusted to conform to the amended planning documents resulting from our decision

unless they are awarded prior to the effective date of this Record of Decision.
April 13, 1994 ROD 15

4. Application to Other Contracts, Permits and Special 

Use Authorizations

As plan amendments, the management direction provided by our decision applies to new

contracts, permits and special use authorizations as required by Forest Service and Bureau

of Land Management planning statutes and regulations. 

The attached Standards and Guidelines that require adjustments to current contracts,

permits, and special use authorizations will be applied in those cases where statutory or

regulatory authority exists if the change is necessary to achieve the overall goals. In those

cases where contracts, permits, or special uses may not be revised or amended prior to their

expiration, the Standards and Guidelines will be applied at the time of renewal in a manner

that reflects subsequent changes in the Standards and Guidelines, if any, if their application

is necessary to achieve the overall goals. For many ongoing activities, we expect that

current permit terms will be sufficient to meet the overall goals. We presume that currently

existing and permitted ski areas will be allowed to continue under current permit terms.

5. Application to Research Activities

An important component of this decision is the facilitation of research activities to gather

information and test hypotheses in a range of environmental conditions. Although research

activities are among the primary purposes of adaptive management areas and experimental

forests, this decision does not intend to limit research activities to these land allocations. 

Where appropriate, some research activities may be exempted from the standards and

guidelines of this decision. However, every effort should be made to locate non-conforming

activities in land allocations where they will have the least adverse effect upon the objectives

of the applicable standards and guidelines. All research activities must meet the

requirements of applicable federal laws, including the Endangered Species Act.

6. Relationship to Other Plans and Proposals

Standards and guidelines in plans that have been adopted for National Scenic Areas and

Wild and Scenic Rivers continue to apply where they are more restrictive or provide greater

benefits for late-successional species. 

We expect and intend that the management direction and land allocations in this decision

will constitute the federal contribution to the recovery of the northern spotted owl. We expect

that future recovery plans for any listed species associated with the late-successional oldgrowth forest habitat in the Pacific northwest (including the final recovery plans for the

northern spotted owl and the 
April 13, 1994 ROD 16

marbled murrelet) will use the management direction adopted in this decision as a base from

which to build a strategy for recovery. 

The Fish and Wildlife Service is considering a proposal to issue a regulation under section

4(d) of the ESA that would revise the ESA protective measures for the northern spotted owl

on certain non-federal lands. The proposal is intended to complement and be consistent

with the management direction for federal lands provided in this decision. The Fish and

Wildlife Service is preparing a separate EIS specifically to analyze the impacts of any

revised 4(d) rule and alternatives. The effect of the proposed 4(d) rule (were it to be

adopted as set forth in the scoping notice) has been considered under a contingency

analysis in the Final SEIS. In turn, the Fish and Wildlife Service will consider this decision

and Attachment A in making the final decision on the 4(d) rule.

The Forest Service and BLM have been engaged in a joint effort known as the "PACFish

strategy" to develop a conservation plan to preserve and enhance stream habitat for wild

anadromous fish stocks in the Pacific northwest on lands these agencies administer. The

decision reflected in this ROD and Attachment A is consistent with the interim PACFish

strategy, notice of which was recently published in the Federal Register. The Forest Service

and BLM, in consultation with the Fish and Wildlife Service and the National Marine

Fisheries Service (through the RIEC and REO), will review any information generated by the

PACFish effort and determine whether subsequent changes to the standards and guidelines

of planning documents are needed. 

The Forest Service and BLM are also engaged in a joint effort known as the "Eastside

Oregon and Washington Ecosystem Management Strategy Project" to assess the federal

forest and old-growth ecosystems east of the Cascades Range. The eastside strategy

project is being conducted separately from this decision because the conditions of the

ecosystems east of the Cascades are substantially different from those west of the

Cascades. 

7. Relationship to Other Lands

While the influences of activities on lands administered by the Fish and Wildlife Service,

National Park Service, and Department of Defense were considered in the assessment of

cumulative impacts in the Final SEIS, this decision does not adopt new management

direction for those lands. This decision does not establish direction or regulation for state,

tribal, or private lands.
April 13, 1994 ROD 17

IV. The Alternatives

A. Alternatives Considered

The objectives of complying with the requirements of the environmental laws, providing for

the long-term health and continued functioning of late-successional and old-growth

ecosystems, and maximizing economic benefits, defined the range of reasonable

alternatives. The Forest Ecosystem Management Assessment Team (Assessment Team)

considered all recent proposed and published strategies for management of northern spotted

owl habitat or management of late-successional and old-growth forest ecosystems as

potential alternatives. Forty-eight previously developed alternatives were considered, along

with five hybrid alternatives containing mixtures of elements from existing plans, and an

alternative with long timber harvest rotation (300 to 350 years) with no late-successional

reserves.

After considering this range of 54 alternatives, and examining them in two selection

processes, 46 were not analyzed further by the Assessment Team because it appeared that

they would not meet all applicable statutory and regulatory requirements and the objectives

articulated by President Clinton. Of the eight identified for further analysis, one was dropped

because it was similar to another alternative, and three others were added, resulting in the

ten alternatives studied in detail in the Draft and Final SEIS. This process and a description

of the alternatives considered are discussed in some detail in Appendix A of the Final SEIS.

We have considered the Assessment Team's report, earlier analyses (including the report of

the Interagency Scientific Committee (1990), Alternatives for Management of LateSuccessional Forests of the Pacific Northwest (1991), the Final Draft Recovery Plan for the

Northern Spotted Owl (1992), and the report of the Scientific Analysis Team (1993)), the

Draft and Final SEIS, and all the submissions made by the public (including the timber

industry) in response to both the Draft SEIS and the Final SEIS.

We agree with the judgment of the SEIS drafting team in focusing on the ten action

alternatives identified in the Final SEIS, plus the "no-action alternative." Other alternatives

that would have produced greater amounts of timber than the ten action alternatives would

not have been likely to satisfy the requirements of the statutes and regulations that are

discussed in section VIII below. For example, the Interior Department recovery team for the

northern spotted owl gave significant consideration to an option presented to it by the BLM in

1991 incorporating a concept called "total forestry." This option did not formally include

reserves but attempted to continuously maintain suitable habitat through time in the general

forest landscape. Since evidence was not available to indicate that this option could be

successful, the recovery team limited its subsequent consideration to 
April 13, 1994 ROD 18

options that provided multi-pair areas (i.e., reserves) for owls. The recovery team also

considered the "multi-resource strategy for the conservation of the northern spotted owl,"

proposed by the National Forest Products Association and the American Forest Council in

1991. The multi-resource strategy would have provided significant protection for owls only in

about 20% of the owl's range, generally arranged in a narrow, linear band. The recovery

team concluded that the strategy would not provide adequate assurance of recovery and the

strategy was eliminated from further consideration. 

In its initial screening process, the Assessment Team found that the multi-resource strategy

rated low on all five biological criteria applied to it (spotted owls, marbled murrelets, at-risk

fish stocks, other species closely associated with old-growth forests, and an interacting oldgrowth forest ecosystem). The same ratings were given by the Assessment Team to the

existing forest plans and to both preservation plans for the northern spotted owl developed

under Secretary Lujan in 1992. The Interagency Scientific Committee's conservation

strategy was found to produce low or medium-low ratings for four of the five criteria, as was

the Interior Department's "Jamison" strategy (1990). The Final Draft Recovery Plan for the

Northern Spotted Owl was found to produce medium-low ratings for three of the criteria. 

BLM's preferred alternative, identified in draft resource management plans (1992) was

similar. (See also the analysis of the BLM preferred alternative by the Scientific Analysis

Team.)

The Assessment Team found that "to assure the viability of the threatened and at-risk

species (and thereby satisfy the requirements of current law) some system of reserves was

required" (FEMAT, p. II-6). Consequently, options that did not contain any reserves (such as

a pure "long rotation" option) were not considered to satisfy the objectives of the analysis. 

However, a long rotation feature was incorporated into the selected alternative (e.g., 150-

year rotations for some areas in Oregon on BLM land). Moreover, as the Final SEIS points

out, research will continue to focus on the question of how best to perpetuate latesuccessional forest ecosystems, and some of the lands within adaptive management areas

may be used to test a long rotation approach (Final SEIS, p. F-40). In addition to the

information provided in the Assessment Team's report and in the Final SEIS, some other

alternatives that would include higher levels of commodity production are analyzed in the

underlying EISs that are supplemented by the Final SEIS.

Some of the ideas suggested during the public comment period on the Draft SEIS were

already reflected in parts of the alternatives analyzed in the SEIS. Other commenters

suggested additional alternatives based on the "constant change" theory of ecology. The

Final SEIS acknowledges that there is controversy in the scientific community regarding

theories of ecosystem process and function. Alternatives 2 through 10 in the Final SEIS are

in fact a mix of the "constant change" and "steady state" theories. All public comments

bearing on alternatives 
April 13, 1994 ROD 19

were considered. A summary of each and responses to the comments are described in

Appendix F of the Final SEIS.

B. The Action Alternatives

The Final SEIS presents ten action alternatives. Based primarily on the "reserve"

recommendations of previous efforts by the Interagency Scientific Committee, the Scientific

Panel on Late-Successional Forest Ecosystems, and the Scientific Analysis Team, these

alternatives present various mixes of late-successional reserves, managed late-successional

areas, riparian reserves, and, in Alternative 9, adaptive management areas. These reserves

are integrated with existing congressionally reserved areas, administratively withdrawn

areas, and matrix to create a network of late-successional forests and watershed protection. 

These alternatives provide for various amounts and distributions of habitat for latesuccessional forest related species and result in various levels of social and economic

benefits. 

A summary and a comparison of land allocations, including acres and standards and

guidelines, are presented in Table ROD-1. An estimate of the probable timber harvest level

for each action alternative for the first decade was made. The estimate of that annual level

for the first decade is expressed as the Probable Sale Quantity (PSQ). The PSQ levels

estimated for each of the ten alternatives in the Final SEIS are shown in Figure ROD-1.

Based on these estimated PSQ levels, estimates of the numbers of jobs that could be

available in the timber industry were also projected. These estimates for the ten alternatives

are shown by state and total in Table ROD-2.

The PSQ levels shown are estimates. They represent neither minimum levels that must be

met nor maximum levels that cannot be exceeded. They are rough approximations because

of the difficulty associated with predicting actual timber sale levels over the next decade,

given the discretion that agency land managers possess in administering plans and deciding

when and where to offer timber sales, as well as the complex nature of many of the

standards and guidelines. They represent our best assessment of the average amount of

timber likely to be awarded annually in the planning area over the next decade, following a

start-up period. 

During the first several years, it is unlikely that the annual PSQ estimates shown in Figure

ROD-1 will be achieved. Our decision represents a new strategy that involves new land

allocations and a new set of standards and guidelines. It will take time for the land

management agencies to develop new timber sales that conform with the planning

amendments effected by our decision. In addition, our decision contains requirements to

perform various levels of analysis or survey work prior to awarding timber sales in certain

areas.
Table ROD-1. Summary and comparison of land allocations and standards and guidelines among alternatives.

Alternative 1 2 3 4 5 6 7 8 9 10

Congress. Res. Million acres 7.321 7.321 7.321 7.321 7.321 7.321 7.321 7.321 7.321 7.321

Late-Successional

Reserves

Million acres 11.402 8.951 7.359 8.066 6.376 7.501 5.423 7.501 7.431 7.501

Timber harvest/salvage None less than 50 years old. Alternative Alternative Alternative Alternative Zone 1 up to 50 Alternative

Treatment of stands Same as Same as Same as Same as stands in Murrelet Same as

Very limited salvage 2 4 2 4 years. Other stands 2

Treatment of stands less than 80 years

and salvage per old. 

Northern Spotted Owl East - Manage to

Recovery Plan reduce risk of

Treatment of

up to 180 years.

West - Treatment of

catastrophic loss.

Protection for sites occupied

by marbled murrelets outside Yes Yes Yes Yes Yes Yes No No Yes Yes

reserves

2 2

Protection of SAT species

closely associated with old Yes No Yes Yes Yes No No No Yes No

growth

Managed LateSuccessional Areas

or

Adaptive

Management Areas

(Alt. 9 only)

Million acres 0 0 1.700 0.238 0.381 0 0.381 0 0

1.522 (AMA)

0.102 (MLSA)

Timber harvest/salvage and salvage per N/A N/A East - Long rotation, or Alternative N/A Alternative N/A and some Managed N/A

West - Long rotation, Adaptive

50 percent retention Same as Same as Management Areas

uneven-age 4 4 Late-Successional

management Areas

Treatment of stands

Northern Spotted Owl

Recovery Plan

Administratively

Withdrawn Million acres 1.080 1.509 1.499 1.652 2.067 1.828 2.282 1.828 1.477 1.828

Areas

Riparian

Reserves

Million acres 1.880 2.164 2.134 2.896 2.674 2.513 0.622 1.503 2.628 2.513

Widths 2:1:1 Watersheds, 2:1: / Alternative Alternative Alternative Alternative 2: / : / Alternative Alternative 1

2:1:1 in Tier I Key Same as Same as Same as Same as Same as Same as

1

2

other watersheds 2 1 2 2 1 2

Variable, usually

no reserves on

intermittent

streams

1 1

2 6

Matrix

Million acres 2.773 4.511 4.443 4.284 5.637 5.293 8.428 6.303 3.975 5.293

50-11-40 Yes Yes Yes Yes Yes Yes No No No Natl. Forest-Yes

BLM-modified

Snags:logs:green trees per WA/OR: 2:8-12:0

acre Other areas 2:8- 2:2:6 2:2:6 West - 12, Forests. Alternative 2:2:6 Alternative Alternative 2:2:6

Support 40% pop: Variable on National Same as Same as Same as

East - 2-10:4 BLM - 2:2:6-9 4 4 4

Coastal areas

12:15%

 Riparian Reserve Widths (e.g., 2:1:1), are expressed as multiples of the height of a maximum site-potential tree, measured on each side of fish-bearing streams, nonfish-bearing streams, and 1

intermittent streams, respectively (see text).

 Not specifically required in the alternative, but currently required under the Endangered Species Act. 2

April 13, 1994 ROD 20

We have considered the ten alternatives presented in the Final SEIS, as well as the

no-action alternative required by 40 CFR 1502.14(d). Summary descriptions of these

alternatives follow. 

Alternative 1

This alternative protects essentially all existing old-growth forests. It was designed to

offer the highest probability of meeting five biological objectives: (1) viability of northern

spotted owls, (2) viability of marbled murrelets, (3) viability of fish species and stocks at

risk, (4) viability of other species associated with old-growth forests and (5)

maintenance of functional and interconnected late-successional forests on federal

lands. It would protect forests adjacent to streams to conserve aquatic resources and

spotted owl dispersal habitat. Some forest cover would be retained in areas where

timber harvest is allowed.

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 11,402,400 acres

Lands administratively withdrawn: 1,079,900 acres

Lands in riparian reserves: 1,879,700 acres

Lands in matrix: 2,772,700 acres

Estimated annual probable sale quantity: 0.1 bbf

Anticipated regional timber employment: 109,500 jobs

Alternative 2

This alternative is designed to protect ecologically significant old-growth forests and

additional areas considered to be valuable habitat for the northern spotted owl.

Management of intervening lands would be focused on providing successful owl

dispersal. Limited salvage and silvicultural practices would be allowed within the latesuccessional reserves, and a high level of protection for forests adjacent to streams is

prescribed. To protect spotted owl dispersal habitat, some forest cover would be

retained in areas where timber harvest is allowed.

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 8,951,000 acres

Lands administratively withdrawn: 1,509,300 acres

Lands in riparian reserves: 2,164,000 acres

Lands in matrix: 4,510,500 acres

Estimated annual probable sale quantity: 0.7 bbf

Anticipated regional timber employment: 114,000 jobs
April 13, 1994 ROD 21

Alternative 3

This alternative is designed to protect ecologically significant old-growth forests, while

at the same time allowing for limited harvest of forest products from some managed

late-successional forests. Land allocations and management prescriptions would vary

by physiographic province; the drier provinces would be treated differently from the

other physiographic provinces. A high level of protection for forests adjacent to

streams is prescribed and, to permit owl dispersal, some forest cover would be retained

in areas where timber harvest is allowed. 

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 7,359,300 acres

Lands in managed late-successional areas: 1,699,700 acres

Lands administratively withdrawn: 1,498,700 acres

Lands in riparian reserves: 2,134,200 acres

Lands in matrix: 4,443,200 acres

Estimated annual probable sale quantity: 0.8 bbf

Anticipated regional timber employment: 114,300 jobs

Alternative 4

This alternative is designed to protect the most ecologically significant

late-successional forests, significant late-successional forests near the coast, and

additional areas identified to protect northern spotted owls. It would protect forests

adjacent to streams to provide for endemic species protection, and provide for the

retention of some forest cover in areas where timber harvest is allowed.

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 8,066,100 acres

Lands administratively withdrawn: 1,651,500 acres

Lands in riparian reserves: 2,896,100 acres

Lands in matrix: 4,283,600 acres

Estimated annual probable sale quantity: 0.8 bbf

Anticipated regional timber employment: 114,700 jobs

Alternative 5

This alternative is based on the multi-species conservation strategy developed by the

Forest Service Scientific Analysis Team, which layers conservation measures 
April 13, 1994 ROD 22

benefitting over 500 species. Accordingly, it presents increased likelihood of providing

habitat to support the continued persistence of certain species but does not provide as

much protection of old-growth systems as other alternatives. It offers high riparian

protection, marbled murrelet protection and endemic species protection beyond that

described in the Final Draft Recovery Plan for the Northern Spotted Owl. 

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 6,376,400 acres

Lands in managed late-successional areas: 381,100 acres

Lands administratively withdrawn: 2,067,000 acres

Lands in riparian reserves: 2,673,800 acres

Lands in matrix: 5,636,500 acres

Estimated annual probable sale quantity: 1.0 bbf

Anticipated regional timber employment: 116,000 jobs

Alternative 6

This alternative is designed to protect the most ecologically significant

late-successional forests, significant late-successional forests near the coast for

marbled murrelets, and additional areas for northern spotted owls. A high level of

protection for forests adjacent to streams is prescribed. To enhance spotted owl

dispersal, some forest cover would be retained in areas where timber harvest is

allowed.

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 7,500,900 acres

Lands administratively withdrawn: 1,828,400 acres

Lands in riparian reserves: 2,512,600 acres

Lands in matrix: 5,292,900 acres

Estimated annual probable sale quantity: 0.9 bbf

Anticipated regional timber employment: 114,000 jobs

Alternative 7

This alternative is intended to reflect the most likely management direction that would

have been implemented if the Forest Service and BLM had continued their present land

and resource management planning processes as described in current or draft plans,

and if they had adopted the elements of the Final Draft Recovery Plan for the Northern

Spotted Owl. It provides the lowest level of riparian 
April 13, 1994 ROD 23

protection of the 10 action alternatives and provides for some limited retention of forest

cover where timber harvest is allowed. 

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 5,422,800 acres

Lands in managed late successional Areas: 380,500 acres

Lands administratively withdrawn: 2,281,800 acres

Lands in riparian reserves: 622,300 acres

Lands in matrix: 8,427,600 acres

Estimated annual probable sale quantity: 1.8 bbf

Anticipated regional timber employment: 120,800 jobs

Alternative 8

This alternative is designed to protect the most ecologically significant latesuccessional forests and significant late-successional forests near the coast. It

provides for a minimum level of protection of forests near streams. Retention of forest

cover in areas where timber harvest is allowed would be based on current plans and

draft plan preferred alternatives.

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 7,500,900 acres

Lands administratively withdrawn: 1,828,400 acres

Lands in riparian reserves: 1,502,600 acres

Lands in matrix: 6,303,900 acres

Estimated annual probable sale quantity: 1.4 bbf

Anticipated regional timber employment: 118,100 jobs

Alternative 9 - The Preferred Alternative

Alternative 9 builds on a number of elements from previous attempts to conserve latesuccessional and old-growth forests and protect associated species. Like a number of

other alternatives, it provides for designation of a system of well-distributed reserves to

protect large blocks of old-growth forests and provide habitat for species that depend

on those forests. However, under Alternative 9, the emphasis is on locating latesuccessional reserves in key watersheds, in order to serve the dual objectives of

efficiency and resource protection. This alternative uses four principal components as

the basis of its riparian protection scheme: key watersheds, riparian reserves,

watershed analysis, and watershed restoration. The riparian reserve system will

conserve aquatic resources as well as provide dispersal 
April 13, 1994 ROD 24

habitat for spotted owls and suitable habitat for numerous species. Alternative 9

designates "adaptive management areas" to encourage testing of technical and social

approaches to achieving ecological, social, and economic objectives.

Congressionally reserved areas: 7,320,600 acres

Lands in late-successional reserves: 7,430,800 acres

Lands in managed late-successional areas: 102,200 acres

Lands administratively withdrawn: 1,477,100 acres

Adaptive management areas: 1,521,800 acres

Lands in riparian reserves: 2,627,500 acres

Lands in matrix: 3,975,300 acres

Estimated annual probable sale quantity: 1.1 bbf

Anticipated regional timber employment: 115,900 jobs

Alternative 10

This alternative is designed to protect ecologically significant late-successional forests,

significant late-successional forests near the coast for marbled murrelets, and some

additional areas for northern spotted owls. A high level of protection for forests

adjacent to streams is prescribed. This alternative is identical to Alternative 6 except

that it provides for retention of less forest cover where timber harvest is allowed.

Congressionally reserved areas: 7,320,600 acres

Lands in late successional reserves: 7,500,900 acres

Lands administratively withdrawn: 1,828,400 acres

Lands in riparian reserves: 2,512,600 acres

Lands in matrix: 5,292,900 acres

Estimated annual probable sale quantity: 1.1 bbf

Anticipated regional timber employment: 116,100 jobs

C. No-Action Alternative

For both BLM and the Forest Service, the no-action alternative consists of management

direction and plans in place immediately before the release of the Interagency Scientific

Committee's A Conservation Strategy for the Northern Spotted Owl. As considered in

the Final SEIS, the no-action alternative is the same as that described in the

Environmental Impact Statements that the Final SEIS supplements, and is consistent

with Council on Environmental Quality (CEQ) requirements to present "no change" from

current management direction or level of 
April 13, 1994 ROD 25

management intensity. However, because of the listings of the marbled murrelet and

the northern spotted owl as "threatened", concern over declining fish stocks, and other

recent information regarding the habitat for other late-successional forest related

species, the no-action alternative is no longer biologically or legally feasible. It does

not meet the requirements of the Endangered Species Act or the National Forest

Management Act. Additional discussion, including the rationale for not further

considering the no-action alternative, is included in Chapter 2 of the Final SEIS.

D. Environmentally Preferable Alternative

CEQ's regulations require that the Record of Decision specify "the alternative or

alternatives which were considered to be environmentally preferable." (40 CFR

1505.2(b)) CEQ's "Forty Questions" document (46 Federal Register, 18026, March 23,

1981) clarifies that "The environmentally preferable alternative is the alternative that

will promote the national environmental policy as expressed in NEPA's Section 101. 

Ordinarily, this means the alternative that causes the least damage to the biological

and physical environment; it also means the alternative that best protects, preserves,

and enhances historic, cultural, and natural resources."

Alternative 1 would allow for the smallest amount of directly human-induced effects on

the physical environment. It would exclude management activity from all old-growth

forest stands, preserving them from human management actions. It would create more

late-successional reserves than any other alternative -- 11.4 million acres. Alternative

1 would designate 2.8 million acres of land as matrix, the least of any of the

alternatives. Based on the probable sale quantity estimates, Forest Service and

Bureau of Land Management forests in the planning area would have produced about

100 million board feet of timber annually under Alternative 1. The assessment panels

used by the Assessment Team generally found that Alternative 1 would provide habitat

somewhat more likely to support the continued persistence of more species of animals

and plants than any other alternative. Based on these factors, we conclude that

Alternative 1 is the "environmentally preferable alternative."

V. The Selected Alternative

As indicated in the Final SEIS, the proposed action responds to multiple needs, the two

primary ones being the need for forest habitat and the need for forest products.
April 13, 1994 ROD 26

The need for forest habitat is the need for a healthy forest ecosystem with habitat that

will support populations of native species and includes protection for riparian areas and

waters. This need was reflected by President Clinton at the Forest Conference when

he spoke of the need "to protect the long-term health of our forests, our wildlife, and our

waterways."

The need for forest products from forest ecosystems is the need for a sustainable

supply of timber and other forest products that will help maintain the stability of local

and regional economies, and contribute valuable resources to the national economy,

on a predictable and long-term basis. At the Forest Conference President Clinton

spoke of "the human and the economic dimensions" of the problem and asked for a

plan that would "produce a predictable and sustainable level of timber sales and

nontimber resources."

The congressionally directed purposes for managing the National Forests and the

Bureau of Land Management-administered lands include both conserving the

ecosystems upon which species depend, and at the same time providing raw materials

and other resources that are needed to sustain the health and economic well-being of

the people of this country. To balance these sometimes conflicting purposes and plan

for management of ecosystems that cross the administrative boundaries of both the

major federal land-managing agencies, we adopt the alternative that will both maintain

the late-successional and old-growth forest ecosystem and provide a predictable and

sustainable supply of timber, recreational opportunities, and other resources at the

highest level possible. Alternative 9, as slightly modified herein, best meets these

criteria. 

Alternative 9, like all of the other action alternatives, applies the same criteria for

management of habitat on both Forest Service and BLM lands. This was done in order

to accomplish most efficiently the dual objectives discussed above -- that is, achieving

the biological results required by law, while minimizing adverse impact on timber

harvests and jobs. The inefficiencies involved in applying different criteria on Forest

Service and BLM land have been noted in previous analyses. For example, in the

Report of the Scientific Analysis Team ("SAT Report"), the team found that BLM's plans

were relatively high-risk, when compared to the plans of the Forest Service, in terms of

conserving the northern spotted owl. As a result, the SAT found that in order for the

Forest Service to "make up for significantly increased risks," it would have to

dramatically increase the size of protected areas on Forest Service land (SAT Report,

pp. 12-13).

We have reviewed the alternatives discussed in the Final SEIS, their predicted

environmental, economic and social consequences, and the risks and safeguards

inherent in them. Alternative 9 in the Final SEIS is the best alternative for providing a

sustainable level of human use of the forest resource while still meeting the need to

maintain and restore the late-successional and old-growth forest 
April 13, 1994 ROD 27

ecosystem. We therefore select Alternative 9 as reflected in Attachment A as the

management direction that best responds to the legal requirements and the policies

enunciated by the President.

We base our conclusion on a number of factors. Although management under

Alternatives 7, 8, or the no-action alternative would provide somewhat higher levels of

timber supply than Alternative 9, those alternatives would not provide adequate

assurance that the processes and functions of late-successional and old-growth forest

ecosystems would be maintained and restored, and would not provide adequate

assurance that the riparian habitat essential for many aquatic and terrestrial species

would be maintained and restored. All alternatives except Alternatives 7 and 8 would

"reverse the trend of degradation and begin recovery of aquatic ecosystems and

habitat" (see Report of Forest Management Assessment Team [hereafter "FEMAT

Report"], p. II-41; Final SEIS, p. 2-70). The likelihood the marbled murrelet (listed as a

threatened species under ESA) would remain well-distributed across its range was low

under both Alternative 7 and Alternative 8 (FEMAT Report, pp. IV-153 and IV-168). 

As to the no-action alternative, that alternative is based on plans that existed prior to

the listing of both the northern spotted owl and the marbled murrelet, and it makes no

specific provision for the recovery of those species. In addition, it reflects a lower level

of riparian habitat protection than any of the other alternatives. In view of these factors,

we think it is unlikely that Alternatives 7 and 8 and the no-action alternative would be

deemed to satisfy the requirements of the Endangered Species Act or the National

Forest Management Act and its implementing regulations. 

Alternative 10 would produce approximately the same level of timber supply as

Alternative 9 but would provide somewhat less protection for riparian-dependent 

species and less connectivity between reserves that aid in the dispersal of terrestrial

species. According to the Final SEIS, "the likelihood of achieving an outcome with

sufficient quality, distribution and abundance of habitat to allow riparian-dependent

plant and animal species to stabilize, well distributed across federal lands, is lower" for

Alternative 10 than for Alternative 9, as modified in the Final SEIS (p. 2-70). Alternative

10 also would provide less assurance of a functional system of old-growth forests.

Alternatives 1 through 6 would provide a reduced timber supply when compared to

Alternative 9 as it appeared in the Draft SEIS. Based on the habitat assessments made

by the Assessment Team, Alternatives 1 through 6 would in many cases provide higher

levels of assurance of the continuation of the diversity of plant and animal communities

in the planning area than Alternative 9. However, Alternative 9 has been modified to

provide additional habitat and species protection. Between 
April 13, 1994 ROD 28

the Draft and Final SEISs, approximately 775,000 acres were reclassified as either

additional late-successional reserve or additional riparian reserve.

The impacts to many species, and groups of species, of fish, wildlife and plants are

complex and difficult to summarize in this Record of Decision. They are described in

detail in the Final SEIS. Based upon the Final SEIS and all of the information in the

record, we have determined that Alternative 9, as modified by this decision, will

continue to meet the needs of species influenced by federal land management

activities. We find it meets the requirements of the National Forest Management Act to

provide for a diversity of plant and animal communities, and the requirements of the

Endangered Species Act for the conservation of listed species. It also meets the

requirements of laws directing the management of these forests for sustainable multiple

uses, including the National Forest Management Act, the Federal Land Policy and

Management Act, and the Oregon and California Lands Act. Moreover, it meets the

requirements of acts that protect elements of the environment, and requirements for

coordinated planning and consultation.

In addition, Alternative 9 offers one advantage that the other alternatives do not -- its

inclusion of adaptive management areas. Adaptive management involves

experimentation, identifying new information, evaluating it, accounting for it in

discretionary decisions, and determining whether to adjust plan direction. The object is

to improve the implementation and achieve the goals of the selected alternative. Each

of the alternatives incorporates the principles of adaptive management to some extent,

but Alternative 9 is the only one that specifically allocates ten adaptive management

areas, which may be used to develop and test new management approaches to

achieve the desired ecological, economic, and other social objectives. These AMAs

offer the opportunity for creative, voluntary participation in forest management activities

by willing participants. We recognize that this will take time, effort, and a good-faith

commitment to the goal of improved forest management. Many of the potentially

participating communities and agencies have different capabilities for joining this effort. 

Our approach to implementing this initiative will recognize and reflect these differences

as we seek to encourage and support the broadest possible participation.

Moreover, Alternative 9 allows silvicultural activities, such as thinning young

monoculture stands, in late-successional reserves when those activities will enhance

late-successional conditions. Even when compared to Alternative 1 (which in the shortterm protects more old growth than Alternative 9), Alternative 9 may in the future

provide a better connected network of old-growth forests. According to the Final SEIS,

Alternative 1 did not rate as high as Alternative 9 in providing the likelihood "of

maintaining and enhancing late-successional ecosystems at levels that approach

typical long-term conditions," because Alternative 1 "lacks restoration silviculture in the

reserves" (Final SEIS, p. 2-69).
April 13, 1994 ROD 29

VI. Mitigation

A. Mitigation Measures Adopted

Many of the components of the standards and guidelines of the selected alternative are

mitigation measures. Singularly and collectively, they avoid, rectify, reduce, or

eliminate potentially adverse environmental impacts of forest management activities. 

For example, there are standards and guidelines for riparian reserves, green tree

retention, owl activity centers, managed late-successional areas, monitoring, and

"survey and manage" requirements.

The standards and guidelines of the selected alternative mitigate the impacts to plant

and animal species and their interrelated ecosystems. The standards and guidelines

for the land allocations of this decision will improve current conditions and alter certain

past practices detrimental to late-successional species by protecting large blocks of

remaining late-successional and old-growth forests, and by providing for the regrowth

and replacement of previously harvested late-successional forest stands. Between the

Draft SEIS and the Final SEIS, the amount of land in late-successional reserves and

riparian reserves was substantially increased. Late-successional reserves were

increased by 378,000 acres, and riparian reserves were increased by 397,000 acres. 

The result is an increase of reserves by 775,000 acres. Within the range of the

northern spotted owl, only 22 percent of federal land will be available for timber harvest

from matrix and AMA lands. The remaining 78 percent (which includes 30 percent set

aside by Congress) is designated as some type of reserve or otherwise not available

for programmed timber harvest.

Green tree retention, owl activity center protection, and the riparian reserves in

particular mitigate timber harvest effects by providing for well distributed patches of

late-successional forest that serve for dispersal of mobile species such as the northern

spotted owl, and serve as refugia for species that disperse only short distances.

Further mitigation will be identified as necessary through monitoring and will be

implemented through the adaptive management process under the coordination and

review of the Regional Ecosystem Office and the Regional Interagency Executive

Committee.

B. Mitigation Measures Not Adopted

Some suggestions that were made on the Draft and Final SEIS, while presenting a

reasonable basis for providing special protection for specific areas, will be better and

more appropriately considered at the planning unit level in accordance with current

land and resource management planning procedures. 
April 13, 1994 ROD 30

The Soda Mountain area near Medford, Oregon is an example. This decision

recognizes the special biological qualities of this unique area and directs the BLM to

evaluate carefully the values of the Soda Mountain area as a biological connectivity

corridor and propose any additional management protection necessary, including a

special designation, through the BLM resource management plan, to protect those

values.

The following additional mitigation measures were identified but not adopted as part of

the selected alternative. The reasons why it was not necessary to adopt these

particular mitigation measures are also described. 

1. Vertebrates

The potential mitigation measures that could benefit fish are to remove all lands in Tier

1 key watersheds from programmed timber harvest, to build no new roads in Tier 1 key

watersheds, and to remove inventoried roadless areas from the programmed timber

harvest. These potential mitigation measures were not adopted because standards

and guidelines described in Attachment A will provide adequate habitat on federal

lands for these species. The adoption of riparian reserve scenario 1 (see Attachment

A, pp. C-30 to C-38) is of particular benefit to fish because of its increased protection of

seasonally-flowing and intermittent streams. In addition, under the Standards and

Guidelines, new roads will not be allowed within inventoried roadless areas in key

watersheds. As funding is made available, the existing road mileage in key watersheds

will be reduced through the decommissioning of roads. In any event, there will be no

net increase in roads in key watersheds. For non-key watersheds that contain roadless

areas, watershed analysis is required before management activities can occur within

those roadless areas (see Attachment A, p. B-19).

For northern spotted owls, possible additional mitigation measures are to provide

managed late-successional areas corresponding to the owls' home range or to manage

known and future spotted owl activity centers in the matrix as reserved pair areas. This

mitigation was described as a possible response to the demographic results indicating

a declining spotted owl population. If ongoing monitoring of the owl population

indicates that this measure would be appropriate, adjustments can be made in future

planning to address the need. Another possible mitigation is that the rate of timber

harvest in the matrix could be controlled (such as with the 50-11-40 rule) to provide

additional dispersal habitat for spotted owls. This measure was not adopted, in part,

due to the acreage of late-successional and other reserves well-distributed in the

matrix, which is greater than what had been proposed for reserves when the 50-11-40

rule was developed. Moreover, the reserves are closer together than previous plans. 

Also, this will protect larger amounts of nesting, roosting, and foraging owl habitat,

which will be higher quality than what the 50-11-40 rule would have done (see

Appendix G, part 3 of the Final 
April 13, 1994 ROD 31

SEIS). In addition, it was our judgment that Alternative 9 as modified by this decision

would adequately provide for the continued viability of the northern spotted owl on

federal lands as required by NFMA and furthermore would provide the federal lands

contribution to recovery of the northern spotted owl under ESA. 

For marbled murrelets, possible mitigation measures are to retain all suitable habitat

contiguous with occupied sites that are protected in the matrix, regardless of distance

from nest site or to retain all old-growth habitat within marbled murrelet zone 1. The

selected alternative is expected to provide the major federal land contribution for

murrelet conservation and is expected to make the additional mitigation unnecessary. 

To benefit the black-backed and white-headed woodpeckers, and Williamson's

sapsucker in the Eastern Cascade Range, potential mitigation measures would be to

reduce harvest and salvage in old-growth areas. Because of the strength of latesuccessional reserves under the selected alternative, standards and guidelines limiting

salvage and thinning in those reserves, and matrix management standards and

guidelines that specifically incorporate mitigation for white-headed and black-backed

woodpeckers, we conclude that these potential mitigation measures are not necessary.

Possible mitigation measures that could benefit bats are to gate cave entrances in such

a way that air flow patterns are maintained, people are excluded, and bats can freely

enter and exit. Gating of cave entrances is a decision that would be more appropriately

addressed in local planning efforts, where site-specific issues can be assessed. In

addition, we decided not to adopt these measures because standards and guidelines

described in Attachment A will successfully provide habitat conditions for these

species. In particular, the adoption of matrix management provisions, protection of

caves, mines and other roost sites, and providing equivalent riparian protection in

AMAs (see Attachment A, pp. C-40 to C-44) adequately provide for these species.

2. Invertebrates and Plants

The possible mitigation measure that could benefit arthropods is to eliminate burning

as a means of site preparation after timber harvest to avoid negative impacts to

arthropods that are associated with the removal of coarse woody debris, and the litter

and soil layers. The standards and guidelines for matrix management were modified to

specifically reduce the impact of burning as a site preparation measure. The complete

elimination of burning was not considered appropriate at this scale of decisionmaking

because it is likely to continue to be an appropriate and valuable tool under some

conditions. Also, some other (non-arthropod) species were specifically identified as

benefitting from burning under controlled conditions. 
April 13, 1994 ROD 32

Mitigation measures that could benefit bryophytes include: regulating commercial moss

collecting to prevent overharvest; managing additional forest land along the coast for

old-growth Sitka spruce; protecting cold springs as important resources for biological

diversity; maintaining water quality at Waldo Lake (to protect the population of

Marsupella emarginata var. aquatica); leaving windfalls in place to provide structurally

diverse habitat for Schistostega pennate; and leaving windfirm buffers of green

retention trees along fog-drenched ridges to maintain biological diversity. The

opportunity to regulate commercial moss collecting remains open. Such a decision for

bryophytes was not appropriate at the scale of this decision, which focuses on habitat,

but it may be made in future plans. Recognition of cold springs as important sources of

biodiversity has largely been accomplished through adoption of riparian reserve

scenario one. While water quality at Waldo Lake may be an issue, it is a local issue

that can be decided upon with local planning documents, making a specific mitigation

decision unnecessary with this ROD. Leaving windfalls in place to provide structurally

diverse habitat for Schistostega pennate is an unnecessary mitigation measure

because existing standards and guidelines resulted in this species receiving high

marks under the selected alternative. Managing for additional old-growth Sitka spruce

falls into the category of measures that were not adopted due to large cost and

uncertain benefit, but most of the species that would have benefitted from the measure

will benefit from the survey and manage measure. Species that would have benefitted

by leaving green retention trees on fog-drenched ridges will benefit by both the green

tree retention standard and the survey and manage measures that were incorporated.

The possible mitigation measures that could benefit fungi include: identifying

additional stands for development into old-growth forest in areas where latesuccessional or old-growth stands are limited; determining appropriate levels of

sustained harvest for commercial species; and providing a mosaic of forest, age-class

distributions, successional stages and habitat types in the matrix. Regulation of

commercial harvest of fungi was not appropriate at the scale of this decision. The

opportunity to regulate commercial harvesting remains open. Identification of stands

for development into old-growth conditions and for maintaining a mosaic of conditions

in the matrix will be partially accomplished through the standard and guideline to retain

at least 15% of federal land in each watershed.

The possible mitigation measures that could benefit lichens include: designating

botanical special interest areas or areas of critical environmental concern to protect

habitat and key populations of rare and local species; developing management plans to

address rare lichen species to provide biological and habitat information, management

direction, and recommendations for selecting and monitoring key populations; and

retaining trees on ridgelines (which would mimic the retention patterns of natural fire) to

optimize dispersal of some lichen species. The standards and guidelines were not

amended to designate special interest areas or areas of critical environmental concern,

but such sites, and the species that would 
April 13, 1994 ROD 33

have been protected in them, will receive significant benefit from the survey and

manage measures. Development of specific management plans for lichens was not

appropriate in this document, which is primarily focused on habitat, but such plans are

a requirement of ongoing agency programs such as the Forest Service sensitive

species program. Retention of trees on ridgelines will be partially accomplished

through the green-tree retention standards, and the species that would have benefitted

from such mitigation will benefit from the survey and manage standards and guidelines.

The possible mitigation measures that could benefit vascular plants include: 

designating botanical special interest areas and areas of critical environmental concern

to protect habitat and key populations of rare and local populations (e.g., Aster vialis,

Bensoniella oregana, Cimicufuga elata, Corydalis aquae-gelidae, Frasera

umpquaensis, Poa laxiflora, and Streptopus streptopoides); developing, updating, and

implementing conservation strategies for species, species groups, and habitats to

reduce risk for many sensitive species; implementing well-designed monitoring studies

for species with limited distribution and occurrence; conducting basic inventories and

studies to determine sustainable yields of special forest products to avoid overharvest;

and initiating a consistent interagency inventory and classification of riparian plant

associations. 

Attachment A was not amended to designate special interest areas or areas of critical

environmental concern for vascular plants. But as in the case of lichens, such sites,

and the species that would have been protected in them, will receive significant benefit

from the survey and manage measures. Also, the opportunity remains to do this in a

local planning document. Development of specific management plans for vascular

plants was not appropriate at the scale of this decision, but such plans are a

requirement of ongoing agency programs such as the Forest Service sensitive species

program. Consistent inventories, classifications and monitoring programs are

objectives of this plan, and will be overseen by the Regional Ecosystem Office. 

Therefore, the actions taken pursuant to the standards and guidelines should help

address those objectives. Closing roads to control root rot remains an option that could

be adopted through local actions where the issue can be reviewed in site-specific

planning.

In addition to the above-stated reasons for the individual species groups, many of the

possible mitigation measures identified above were not adopted because for most of

the species, the standards and guidelines that were adopted make the measure

redundant in accomplishing the desired objective. In some cases, the possible

mitigation measures were found to be too costly in relation to the uncertain benefits of

the measure, the untested or ineffective nature of the measure, or the adverse effect of

the measure on other resources or programs.
April 13, 1994 ROD 34

VII. Changes in Standards and Guidelines Between Final SEIS and this Record

of Decision.

The attached Standards and Guidelines for the selected alternative generally reflect

Alternative 9 in the Final SEIS. Changes made to the Standards and Guidelines

between the Final SEIS (see Chapter 2, App. B and I) and Attachment A to this Record

of Decision include the following. Except as specifically noted, these changes do not

alter the analyses of effects described in the Final SEIS.

 The Final SEIS provided (p. 2-5) that Endangered Species Act consultation for

the northern spotted owl will not be required for activities that are consistent with

Attachment A and that avoid incidental take. Under this decision, consultation

that may be required but that does not involve take is expected to be informal. 

Where incidental take would occur, incidental take statements will be provided

through formal consultation (see Attachment A, p. A-3). This procedure is

consistent with statutory and regulatory requirements.

 The requirement for a management "plan" for each late-successional reserve

and managed late-successional area on page 2-23 of the SEIS has been

changed to a management "assessment" to avoid adding another unnecessary

planning level (see Attachment A, p. C-11).

 The requirement to develop and apply protocols for surveys for species for

which protection buffers are required, from page B-64 of the Final SEIS, has been

edited to provide timelines for implementation of protocols that are consistent with

those described for the "survey and manage" standards and guidelines. It is

included on pages C-19 and C-27 of Attachment A. This change gives the

agencies time to develop protocols and information needed to implement these

standards and guidelines.

 The requirement to retain old-growth fragments in watersheds where little

remains, on page B-148 in the SEIS, has been edited to specify that the 15

percent retention standard applies to the federal forest lands within the

watershed, not the entire watershed (see Attachment A, pp. C-44 and C-45). This

change will have little or no effect in watersheds that are predominantly federal

ownership (and not within AMAs). Implementation of the proposed alternative will

include project-level NEPA analysis of effects on these remaining latesuccessional forests and, where otherwise required, watershed analysis. 

Benefits to species will be greater than those projected under the Draft SEIS

because the revised measure put into place by this decision was not part of the

Draft SEIS. In addition, the leader of the Species Analysis Team has commented

that many of the species that benefit from the retention requirement also benefit

from the "survey and manage" measure 
April 13, 1994 ROD 35

that was not part of the Draft SEIS. He concluded it is unlikely that the change

"will significantly change activities out on the ground." In light of the foregoing,

we conclude that the likelihood of significant change from the outcomes projected

in the Final SEIS, based on this modification, is low.

 Language has been added to the planning discussion to require administrative

units to disaggregate and display PSQ for key and non-key watersheds. This

change is made because the probable sale quantity (PSQ) effects displayed in

the Final SEIS do not differentiate between key and non-key watersheds. The

aquatic conservation strategy objectives and the requirement to do watershed

analysis before management activities can take place implies a higher level of

uncertainty regarding future sale levels within key watersheds. 

 The role of the Regional Ecosystem Office (REO) regarding review or approval

has been clarified to show that approval authority for proposed changes to the

Standards and Guidelines rests with the Regional Interagency Executive

Committee (RIEC). Where standards and guidelines specify review or approval

by the REO, that office reviews, exempts from review, or designs and coordinates

a review process, in order to provide recommendations to the RIEC. The RIEC

may delegate authority to the REO. This change affects the first paragraph on

page 2-14 of the Final SEIS. The new language is on page E-16 of Attachment

A. Various standards and guidelines in the Final SEIS attributing decisionmaking authority to the REO have been clarified.

There are several references in this decision, and in the Standards and

Guidelines, to authority to be exercised by the RIEC and the REO. We do not

intend to suggest that the RIEC and REO may exercise the decision-making

authority that is vested in any of the land management agencies or the

consultation agencies. Instead, a primary role of the RIEC and REO is to review

proposed actions and determine whether those actions are consistent with the

objectives of this decision. In making those determinations, the RIEC and the

REO function in an advisory capacity, and the land management agencies and

consultation agencies retain the decision-making authority that is vested in them

by statute.

 The "green tree retention" requirement to leave on National Forest land 15

percent of the largest, oldest trees associated with each timber sale unit in the

matrix (Final SEIS p. 2-62) has been clarified to apply to regeneration harvests

(p. C-41 of Attachment A). This limitation does not apply to intermediate harvests

(thinnings) in even age young stands because leaving untreated portions of

young stands would retard stand development and be detrimental to the objective

of creating late-successional patches. It does not apply to BLM lands, which

have different green tree retention requirements.
 Survey strategies: 1 = manage known sites; 2 = survey prior to activities and manage

sites; 3 = conduct extensive surveys and manage sites; 4 = conduct general

regional surveys.

April 13, 1994 ROD 36

 The Final SEIS provided that green tree retention in the matrix should

generally be patches "larger than 1 hectare (about 2.5 acres, unit size

permitting)" and that of the total area to be retained, "at least 70 percent should

be in patches greater than 1 hectare (unit size permitting)" (Final SEIS, p. D-146). 

Under this decision, the general guide will be that "70% of the total area to be

retained should be in aggregates of moderate to larger size (0.2 to 1 hectare or

more) with the remainder as dispersed structures (individual trees, and possibly

including smaller clumps less than 0.2 ha)." (Attachment A, pp. C-41,42 ). The

reason for the change is our conclusion that a mixture of dispersed and

aggregated retention is most likely to achieve the full array of ecological

objectives. The optimal mix of dispersed and aggregated retention and the

appropriate size of aggregates will vary with site conditions and specific

objectives and should be addressed in watershed and project analyses. The

change will provide flexibility in making those determinations.

 Language requiring completion of a management plan for the Snoqualmie

Pass AMA before conducting any activities has been changed to permit minor

non-silvicultural activities such as those categorically excluded under NEPA and

watershed restoration programs prior to the completion of a management plan. 

This change permits low-risk activities to proceed.

 The standard and guideline to protect sites from livestock grazing (Final SEIS

p. B-149) has been changed to apply only to the mollusks mentioned in the Final

SEIS and the vascular plant Pedicularis howelii. Litter dwelling arthropods were

deleted from this standard and guideline because the total acreage of latesuccessional reserve and riparian reserve habitat, and other measures provided

for in the Draft SEIS, adequately provided for this species group. Moreover, latesuccessional reserve and riparian reserve acreage increased between the Draft

and Final SEIS. Other matrix standards (such as the retention of latesuccessional fragments and the distribution requirements of the green tree

retention standard) included in the selected alternative will provide additional

benefits to this species group.

 The standards and guidelines for "survey and manage" (Final SEIS App. B-11)

have been revised. See Attachment A, pp. C-4 through C-6. There are no

changes to the requirement to manage known sites. In addition, there are no

changes to the requirement that vertebrates listed on page C-59 will have

surveys conducted prior to ground disturbing activities that will be implemented in

FY 1997 or later. The survey strategy 3 and 4 surveys will 2
April 13, 1994 ROD 37

be initiated no later than FY 1996, and the category 4 surveys are to be

completed within 10 years. For other species addressed by Species Analysis

Team, the time lines for the implementation of survey requirements have been

changed.

Survey protocols will be developed and implemented for the 71 remaining

species under survey strategy 2 listed on pp. C-49 through 61 as soon as

possible. In all cases, these surveys must be completed prior to ground

disturbing activities that will be authorized or implemented in FY 1999 or later. 

This will provide agencies a maximum of four full fiscal years (FYs 1995, 1996,

1997, and 1998) in which to develop and apply survey protocols for these

species. Agencies are to begin implementation of this requirement with available

resources in FY 1994. Work to establish habitat requirements and survey

protocols may be prioritized relative to the estimated threats to the species.

Annual status reports are to be submitted to the REO for review beginning at the

end of FY 1995. As experience is acquired with these requirements, agencies

may propose changes to the REO for analysis. These changes could include

changing the schedule, moving a species from one survey strategy to another, or

dropping this mitigation requirement for any species whose status is determined

to be more secure than originally projected. The REO will forward such

proposals, along with recommendations, to the RIEC for action. The RIEC may

recommend such changes as appropriate in order to assure the continuing

attainment of the purposes of the plan and the conservation requirements of all

laws applicable to the affected species.

These changes reflect the magnitude of the task, coupled with the lack of species

information and skilled personnel. The changes affect only the species subject to

survey strategy 2, and within that category it would not affect the amphibian or

mammal species. The greatest potential effect for the other species is a delay by

up to two additional years in the detection and protection of currently unknown

sites. However, as recognized in the SEIS, harvest levels in the first years of

implementation are expected to be modest, which would reduce the potential

threat to these species. Moreover, other agency policies that are already in place

should also be considered when gauging the effect of this proposed change. 

This includes designation as "sensitive species" by the Forest Service, or as

"candidate," "assessment," or "tracking" species by the BLM. In addition, the

outcomes for these species would improve over those projected in the Draft SEIS

because of measures that were not part of that draft, including: (1) the fact that all

these 
April 13, 1994 ROD 38

species are also covered by survey strategy 1 and benefit from requirements of

that measure; (2) other fungus and lichen species are subject to survey strategy

3, which calls for more extensive surveys that will be underway by 1996; (3) 19

mollusk species are strongly riparian associated and benefit from riparian reserve

scenario 1; and (4) the charge directs agencies to begin implementation in 1994,

proceed as quickly as possible, and file annual progress reports.

 The marbled murrelet zone lines illustrated on the federal land allocation map

that accompanied the Final SEIS extend further inland in some areas than

described in the text of the Final SEIS. If the standards and guidelines of the

Final SEIS were followed, this would require murrelet surveys outside of the

documented range of the species. Since this is not the intent of the standard and

guideline, the following change is hereby made:

The marbled murrelet zone lines will be remapped to more closely parallel the

coast line and therefore more clearly illustrate the area where murrelet surveys

need to be conducted. The new mapping of the marbled murrelet zone lines will

be added to the administrative record of the SEIS and will be provided to all

federal offices involved in management of those lands affected.

This change is reflected on pages A-6 and C-10 of the attached Standards and

Guidelines. It does not affect any of the conclusions of the analysis of effects in

the Final SEIS, nor does it affect the conclusions of the FWS Biological Opinion.

VIII. Findings

A. Court Injunctions

Since 1991, federal courts have enjoined the Forest Service and BLM from holding

most timber sales within the range of the northern spotted owl. Courts have held that

the agencies failed to meet the various requirements of NFMA, NEPA, and ESA. The

courts found that:

 Forest Service and BLM failed to take into account the consequences of BLM's

plans for protecting northern spotted owls on BLM property (Seattle Audubon

Society v. Moseley, 1992);

 Forest Service failed to adequately consider the effect of the spotted owl

strategy on other species dependent on old-growth forests (Seattle Audubon

Society v. Moseley, 1992);
April 13, 1994 ROD 39

 Forest Service failed to consider the most recent demographic information on

the northern spotted owl (Seattle Audubon Society v. Moseley, 1992);

 Forest Service failed to develop revised standards and guidelines for

management of northern spotted owl habitat in a manner that allowed for public

participation and response to the concerns of outside experts (Seattle Audubon

Society v. Evans, 1991);

 BLM failed to adequately consult with the Fish and Wildlife Service regarding

its spotted owl conservation strategy (Lane County Audubon Society v. Lujan,

1992); and

 BLM failed to assess in an environmental impact statement new information on

the northern spotted owl (Portland Audubon Society v. Lujan, 1992).

This decision meets all of the deficiencies pointed out by the courts. The Forest

Service and BLM have a coordinated spotted owl conservation strategy that addresses

owls and other old-growth dependent species. They have considered all the most

recent information on spotted owl populations. They have obtained public comments

by preparing a supplemental EIS, conducting public hearings, and considering the

thousands of comments that were submitted. They have consulted with the Fish and

Wildlife Service on their coordinated conservation strategy. The Fish and Wildlife

Service has indicated that land allocations and standards and guidelines of Alternative

9, as modified by this decision, fulfill the obligations of the Forest Service and BLM with

respect to the recovery of the northern spotted owl. The land management agencies

are fully discharging their consultation responsibilities.

B. Legal and Regulatory Compliance

The Forest Service and the Bureau of Land Management plan and manage the national

forests and BLM districts within the range of the northern spotted owl under

congressional multiple use and sustained yield mandates. This is an unprecedented

ecosystem approach to establishing interagency standards and guidelines to protect

the northern spotted owl and other old-growth species. Eight federal agencies -- the

Forest Service, Bureau of Land Management, Fish and Wildlife Service, National

Marine Fisheries Service, National Park Service, Environmental Protection Agency,

National Biological Survey, and Bureau of Indian Affairs -- have cooperated to produce

those standards and guidelines.

In this section we consider each of the major laws involved in this programmatic level

decision.
April 13, 1994 ROD 40

1. National Environmental Policy Act (NEPA)

The NEPA requires that federal agencies prepare detailed statements on proposed

actions that significantly affect the quality of the human environment. The BLM and

Forest Service have both integrated NEPA reviews with their land management

planning regulations. For each agency, an environmental impact statement (EIS)

accompanies its land management plans. The Forest Service and BLM will tier to the

Final SEIS in NEPA documents on specific activities. The Final SEIS also presents

alternative strategies for amending existing land management plans to protect the

northern spotted owl and other old-growth related species.

NEPA's requirement to prepare an environmental impact statement is designed to

serve two major functions: to provide decision makers with a detailed accounting of the

likely environmental effects of a proposed action prior to its adoption; and to inform the

public of, and allow it to comment on, such effects. The process leading up to this

decision has fulfilled both functions. First, the responsible agencies have compiled and

generated an enormous amount of information relevant to the effects of each of the

alternatives considered in the SEIS. Such information builds on the data and analysis

set forth in the documents to which the SEIS is a supplement and which it incorporates

by reference. Thus, we have had at our disposal a wealth of information. Second,

there has been extensive opportunity for public involvement in the process. The Draft

SEIS was sent out to a lengthy list of those who have shown an interest in the issues

affecting management of the land subject to this decision. Notices of availability were

published to allow people to request a copy of the Draft SEIS and copies were also

made available in public reading rooms throughout the region. A 90-day comment

period was provided to the public and other entities to comment on the Draft SEIS. Six

public hearings were held throughout the region to allow Department officials to hear

first hand the views of the public on the proposed action. More than 100,000

comments were received on the Draft SEIS. The agencies responded to each of the

major substantive points raised in these comments, and these responses were included

in a 214-page appendix to the Final SEIS.

Moreover, we find that the process also complied with each of the major elements of

the requirements set forth in the regulations that the Council on Environmental Quality

has promulgated to implement NEPA.

First, the SEIS considered a broad range of reasonable alternatives. Fifty-four

alternatives were considered in all, including all recently published strategies for

management of owl habitat or late-successional and old-growth forest ecosystems

generally. This list was pared down to ten alternatives for detailed study in the SEIS in

light of the purpose and need of the proposed action, shaped in large measure by the

policy goals set forth by President Clinton at the Forest Conference. Among the most

important of these is to maintain the long-term 
April 13, 1994 ROD 41

health of late-successional forest ecosystems, and the species that depend on them,

while at the same time maximizing economic and social contributions, especially for

timber-dependent communities. Within these parameters, the ten alternatives analyzed

in the SEIS provide for varying balances among the multiple uses served by our federal

forests. There is an eighteen-fold difference among probable average annual timber

sale levels under the alternatives, and an equally wide array of conservation measures

represented. Even though some alternatives reflect somewhat similar balances of

multiple uses, they prescribe different methods for achieving such outcomes.

The likely timber volume of each of the alternatives considered in detail in the SEIS

represents a sharp drop from the levels that prevailed during the 1980s. This is

because previous harvest levels have severely limited the options that are available

today if the environmental laws are to be complied with. Alternatives that would have

provided greater timber volume levels were examined (e.g., the "no-action" alternative),

but were dropped from detailed consideration because they failed to meet the purpose

and need of the proposed action and the requirements of existing law.

Second, the Final SEIS reflects consideration of cumulative effects of the proposed

action and all other past, present, and reasonably foreseeable future actions within the

range of the owl. Indeed, effects on species have been estimated out to 100 years and

more. Moreover, although non-federal lands are outside the scope of the SEIS, effects

from their management have been considered in the SEIS to a degree appropriate for a

programmatic NEPA document at this scale.

Third, the SEIS made use of the best available information. A special application of

geographic information system (GIS) known as the "spatial unified database" was

constructed especially for this effort and contains 50 layers of information on federal

lands in Oregon, Washington, and California. The views of experts in relevant fields,

including sociology, economics and biology, were solicited and considered in rendering

an evaluation of the effects of the alternatives. The government sponsored a workshop

that gave rise to a new owl demographic analysis incorporating the most recent data

from 1992 and 1993 field studies, the results of which have been fully considered. 

Government biologists have made several runs of a spatially explicit computer model in

an attempt to simulate the relative population effects of changing habitat conditions

under the preferred and other alternatives. Notwithstanding the prodigious amount of

data reflected in the Final SEIS's analysis, we acknowledge that there is less than

perfect information about many of the relationships that lie at the heart of the effects

assessment. 
April 13, 1994 ROD 42

Nevertheless, we find that there is sufficient information to allow us to make a reasoned

choice among the alternatives.

Finally, we recognize that certain new information has come to light since the release of

the Draft SEIS. We have fully considered all of it to the extent possible, and indeed,

the Final SEIS incorporated the vast majority of it in its analysis. Such information has

been useful in clarifying the analysis of effects in the Draft SEIS. It has not, however,

altered the effects analysis in the Draft SEIS in any significant manner. Thus, we

conclude that there is no need to prepare another Draft SEIS or to provide for

additional public comment. Instead, such information should be viewed as a natural

outgrowth of the ongoing research and monitoring the government will continue to

conduct. New information will be considered, and supplements will be prepared and

amendments adopted as the need arises.

The decision here does not authorize timber sales or any other specific activity on

federal lands. There is a requirement for additional public involvement and NEPA, ESA

and other environmental law compliance before decisions are made to offer timber

sales in the matrix lands or conduct other land management activities. There are also

opportunities for administrative appeals of site-specific decisions that would have

environmental consequences.

2. National Forest Management Act

NFMA is an amendment to the Forest and Rangeland Renewable Resources Planning

Act. In NFMA Congress established a comprehensive notice and comment process for

adopting, amending and revising land and resource management plans ("forest plans")

for units of the National Forest System. At the time of enactment of NFMA, ecological

concepts and practices did not address ecosystem scales of the magnitude dealt with

in this decision. The 24.5 million acres of land administered by the federal government

within the range of the northern spotted owl is far beyond the "planning unit" focus of

NFMA. 16 U.S.C. §§ 1604 and 1611.

The approval of a forest plan establishes direction so that all future decisions in the

planning area will include an "interdisciplinary approach to achieve integrated

consideration of physical, biological, economic and other sciences." 16 U.S.C. 

§ 1604. The forest plan provides direction to assure coordination of multiple-uses

(outdoor recreation, range, timber, watershed, wildlife and fish, and wilderness) and

sustained yield of products and services. 

Within the range of the northern spotted owl there are lands that will be administered

pursuant to two regional guides and nineteen forest plans. Under 
 See also Sierra Club v. Robertson, 784 F.Supp. 593, 609 (W.D. Ark.1991); Sierra Club v.

Robertson, 810 F.Supp. 1021, 1027-28 (W.D. Ark. 1992, on appeal to Eighth Circuit); ONRC

v. Lowe, 836 F.Supp. 727 (D. Ore. 1993, on appeal to the Ninth Circuit); Glisson v. USFS

(S.D. Ill. August 26, 1993, on appeal to the Seventh Circuit); Sierra Club v. Marita (E.D.

Wisc. February 9, 1994, on appeal to the Seventh

Circuit); Kirchbaum v. Kelly (W.D. Va., February 9, 1994); Sierra Club v. Robertson (E.D.

Wisc. March 7, 1994, on appeal to the Seventh Circuit), Sierra Club v. Robertson (S.D. Ohio,

March 11, 1994).

April 13, 1994 ROD 43

Forest Service planning regulations, National Forest planning and decision-making

occurs at four levels: nationwide, regionwide, forest plan, and project.

Planning is continuous at each level and between the levels rather than sequential. 

Continuous monitoring, evaluation and adjustment through amendment and revision is

required by NFMA for forest plans. Despite the multiple levels of disclosure, all

activities remain subject to site-specific and continuing compliance with federal

environmental law such as the Endangered Species Act, National Environmental Policy

Act, Clean Water Act, Clean Air Act and others.

 a. Diversity Provision and Viability Provision 

of Fish and Wildlife Resource Regulation

The National Forest Management Act requires the Secretary of Agriculture to

promulgate regulations to guide Forest Service planning. One of the statutory

requirements is "specifying guidelines for land management plans developed to

achieve the goals of the Program which provide for diversity of plant and animal

communities based on the suitability and capability of the specific land area in order to

meet overall multiple-use objectives." 16 U.S.C. § 1604(g)(3)(B). In accord with this

diversity provision, the Secretary promulgated a regulation that provides in part: "Fish

and wildlife habitat shall be managed to maintain viable populations of existing native

and desired non-native vertebrate species in the planning area." 36 C.F.R. § 219.19. 

Because of the enormous complexity and dynamic nature of the ecosystems managed

under the NFMA, there is no specific or precise standard or technique for satisfying

these requirements, as recognized by the scientific community and many courts. The

Committee of Scientists that provided scientific advice to the Forest Service on the

crafting of NFMA regulations stated that "it is impossible to write specific regulations to

'provide for' diversity" and "there remains a great deal of room for honest debate on the

translation of policy into management planning requirements and into management

programs" (44 Fed. Reg. 26,600-01 & 26,608). 

We agree with numerous courts that have also recognized that NFMA does not create

any concrete standard for diversity. In fact, the court in Seattle Audubon 3
April 13, 1994 ROD 44

Society v. Moseley (W.D. Wash. 1992) stated that the Forest Service must use

common sense and apply its fish and wildlife expertise in implementing these

requirements. The court also stated that, "The Forest service argues that it should not

be required to conduct a viability analysis as to every species. There is no such

requirement. As in any administrative field, common sense and agency expertise must

be applied."

Relevant factors include the life history of species, the current amount and distribution

of habitat, the amount and distribution of species' ranges within the planning area, and

other reasonably foreseeable protective measures. Our approach involves complex

projections regarding the likely fate of species over the next 50 to 100 years, or more; 

certainty is not possible. There is no way to avoid all risk to the continued persistence

of species. Even absent any human-induced effects, the likelihood that habitat will

continue to support species' persistence can vary among species. For example, the

continued persistence of local rare endemic species whose entire range may comprise

only a few acres is intrinsically insecure. Thus, compliance with the regulation is not

subject to precise numerical interpretation and cannot be fixed at any one single

threshold.

By its own terms, the regulation applies only to vertebrate species. Nevertheless,

consistent with the statutory goals of providing for diversity of plant and animal

communities and the long-term health of federal forests, as well as the agencies'

conservation policies, our decision satisfies a similar standard with respect to nonvertebrate species to the extent practicable.

Although NFMA regulations apply to lands administered by the Forest Service, the fish

and wildlife resource regulation was used as a criterion in the development of the

alternative we select today, which includes direction for management of BLM lands. 

Use of the regulation's goals in developing alternatives applicable to BLM lands served

the important policy goal of protecting the long-term health and sustainability of all of

the federal forests within the range of the owl and the species that inhabit them. This is

in accordance with direction and authority provided in the Multiple-Use Sustained-Yield

Act, the Federal Land Policy and Management Act, the Oregon and California Lands

Act, and the Endangered Species Act.

In making a determination of compliance with the NFMA fish-and-wildlife resource

regulation, we may consider existing or reasonably foreseeable conservation 
April 13, 1994 ROD 45

measures. No one strategy or decision can for all time provide for the habitat needs of

all species that exist in the planning area. Measures that may be considered include

analyses and activities undertaken pursuant to internal policy directives (e.g., the

Forest Service's sensitive species program) and steps taken at differing layers of

planning. Regardless of the measures in place, actual on-the-ground conditions also

should be considered to the extent practicable given available data.

The fish-and-wildlife-resource regulation does not require species-specific

assessments. Rather, in accord with the theme of ecosystem management, a decisionmaker may place reasonable reliance upon assessments of (1) species with habitat

needs that are roughly the same; (2) a group of species generally thought to perform

the same or similar ecosystem functions; and/or (3) the continued integrity and function

of ecosystem(s) in which a species is found. Flexibility in selecting methodology is

especially appropriate in this context, given the expertise and knowledge of local forest

officials concerning the lands they manage, the variety of complex issues involved, and

the often-limited resources available. For example, the Assessment Team's approach

to evaluating the alternatives, while sound, is not a controlling precedent for how such

assessments need to be conducted in the future. That approach, which endeavored to

identify and assess impacts on more than one thousand species across all major

categories of taxa that exist in the planning area, has been unique. It was the most

comprehensive initiative of its kind ever undertaken.

Based on the statute, regulation, case law, and examination of the record, we find that

this decision satisfies the requirements of the statute and its implementing regulations

because it will provide an amount and distribution of habitat adequate to support the

continued persistence of vertebrate species in the planning area. We also find that our

adoption of these standards and guidelines will not jeopardize the continued existence

of any listed species under the Endangered Species Act. We base our determinations

on the following findings and all of the evidence contained in the record.

First, our decision results in approximately 80 percent of the approximately 8.5 million

acres of medium and large late-successional conifer forests in the planning area being

within land allocations that do not allow for programmed timber harvest (Final SEIS at

3&4-41). In addition, some 42 percent of the areas within the late-successional

reserves designated under our decision are dominated by such forest types. Latesuccessional reserves will provide large contiguous blocks in which silvicultural

treatments are severely limited, protecting species associated with late-successional

and old-growth forest habitat against potential adverse effects thought to result from

fragmentation and edge effects. The Assessment Team gave strong marks to the

original version of Alternative 9 regarding the projected likelihood that it would provide

for late-successional forest ecosystem conditions 
April 13, 1994 ROD 46

representative of a hypothesized long-term average. Our decision contains measures

in addition to those in the original Alternative 9 that are likely to further enhance the

attributes of late-successional and old-growth forest ecosystems (Final SEIS at 3&4-

48&49). As a result, we find our decision will allow for the maintenance of functional

and interconnected late-successional forest ecosystems within the planning area.

Second, the aquatic and riparian subsystems within the range of the owl also receive

significant protection under our decision. It places all riparian areas -- including rivers,

streams, wetlands, lakes, and ponds -- within variously-sized reserves and establishes

standards and guidelines that limit activities within the reserves (Final SEIS at 3&4-66). 

The Assessment Team concluded that Alternative 9 as originally designed would work

to reverse the trend of degradation and begin recovery of aquatic ecosystems on

federal lands within the range of the owl (Final SEIS at 3&4-65&66). Our decision

provides even greater protection to aquatic ecosystems.

Third, our decision will provide for habitat of an amount and distribution that will support

the continued persistence of the northern spotted owl. Of the nearly 7.5 million acres

of extant suitable spotted owl habitat on federal lands within the planning area, the

selected alternative protects all but about 20 percent from programmed timber harvest

(Final SEIS at 3&4-222). Our decision also contains elements that provide for owl

dispersal habitat, including wide riparian reserves and allocation of unmapped latesuccessional reserves that will protect 100 acres of habitat around the nest sites or

activity centers of known owl pairs and resident single owls in the matrix (Final SEIS at

B-148).

Approximately two and one-half percent of the extant amount of spotted owl habitat

likely will be harvested per decade under our decision. Some have opined that even

this level of harvest of owl habitat ought not be permitted. We have considered

carefully such views, and the data upon which they are based. While the results of

some recent research call for a certain amount of caution, they do not compel a

moratorium on all further harvest of suitable owl habitat (Final SEIS at 3&4-229 to 235). 

Our decision today, while not risk-free, reflects a conservative approach, allowing for a

limited amount of harvest of owl habitat in matrix lands while protecting large reserve

areas from programmed timber harvest.

As to marbled murrelets, under our decision less than ten percent of the more than 2.5

million acres of suitable murrelet nesting habitat on federal land is in the matrix (Final

SEIS at 3&4-222). Even that habitat in the matrix will be protected from harvest as a

late-successional reserve under our decision if determined to be occupied in

mandatory pre-project surveys (Final SEIS at 2-28).

A variety of vertebrate species that use early-successional forests as primary 
April 13, 1994 ROD 47

habitat also exist in the planning area (Final SEIS at 3&4-203 through 205). Although

our decision primarily provides standards and guidelines for management of habitat of

species associated with late-successional forests, it will support the continued

persistence of species that use early-successional habitat. The amount of earlysuccessional forest in the planning area probably is greater now than at any time in the

past (Final SEIS at 3&4-203). Our decision will provide for additional earlysuccessional forest through allowance of harvest of some late-successional forest

stands in the matrix.

Eighty-seven other vertebrate species, races, or groups were assessed in addition to

the northern spotted owl and murrelet in the process leading up to this decision. With

three exceptions, the Assessment Team gave the original Alternative 9 relatively high

marks for providing habitat to support stable populations of each of these vertebrates,

either well-distributed when measured against their historic range on federal lands or

with significant gaps in that range (Final SEIS at 3&4-174, 179, 184, 188 & 197). The

gaps that may exist in the historic distributions of species under our decision do not

preclude a finding of compliance with the fish and wildlife resource regulation,

especially because most such gaps are already present. Distribution cannot be

evaluated on a monolithic scale for all species.

The three vertebrates that do not fit within the category described above are all

amphibians: (1) the Columbia torrent salamander; (2) the Coastal and Olympic

Peninsula populations of the Van Dyke's salamander; and (3) the Shasta salamander

(Final SEIS at 3&4-174). The first two of these exist almost exclusively on non-federal

land. Our decision meets the objective of the fish and wildlife resource regulation with

respect to these species because, of the amount and distribution of habitat adequate to

support their continued persistence on all lands, the decision provides a portion that is

roughly commensurate with, or greater than, the fraction of the species' range in the

planning area. 

The Shasta salamander is an extremely local endemic whose habitat sites are

essentially fully protected by our decision. In the context of the natural bounds on the

range of this salamander and in light of research showing that the presence of rare

local endemic species generally is consistent with diverse ecosystems, we find that our

decision complies with the resource regulation.

For all of the above reasons, we have determined that this decision, amplified in the

Standards and Guidelines, fully meets our statutory and regulatory requirement

regarding fish and wildlife resources.

 b. Regional Guide and Forest Plan Amendments

Regional guide and forest plan amendments are used to keep the management 
April 13, 1994 ROD 48

direction up to date. The amendment process includes programmatic compliance with

NEPA and other environmental laws. If a proposed amendment is a significant change

in the regional guide/forest plan, an environmental impact statement (EIS) must be

prepared, as we have done with this decision. The Forest Service planning regulations

include the same planning steps for approval of a "significant change" in a forest plan

as for approval of the plan itself (except for roadless evaluations). 

In this decision the amendments are being made to existing forest plans in the range of

the northern spotted owl. As we move into ecosystem approaches to environmental

issues, especially plant and animal issues, it is likely that the multiple forest plan

amendment approach will have to be used. We believe that utilizing a single decision

to effect multiple plan amendments is consistent with the applicable statutes and is

sound policy. 

Commenters on the Draft SEIS stated that the "Draft SEIS violates the National Forest

Management Act because amendments to existing plans are 'significant' amendments

and the procedures of NFMA and the NEPA regulations, including seeking public input

and participation, have not been completed." Final SEIS, Appendix F-111. As

summarized in the Final SEIS response to the comment, the amendments are a

significant change in the existing forest plans. The requirements of NFMA as to notice

and comment for the amendments were fully met through the Draft SEIS, public

comment and the Final SEIS. The amendments were included in the Draft SEIS for

public comment (see Chapters 2, 3&4 and Appendix B).

In the context of the ecosystem approach to the northern spotted owl and other old

growth related species, the NFMA planning processes were fulfilled. There are some

features of NFMA and the planning regulations' individual forest plan focus that will

have to completed at the time of forest plan revision. The determination of suitable

timber lands for the national forests within the range of the northern spotted owl will be

controlled by the standards, guidelines and land allocations of the amended plans.

3. Federal Land Policy and Management Act

The principles of multiple use and sustained yield have been applied in the

development of this decision. This is evident by the designation of reserves where

benefits to late-successional forest related species and uses are emphasized, and the

designation of matrix lands where the economic and social benefits of timber harvest

are emphasized on a sustainable basis. In addition, the designation of some adaptive

management areas allows the development of innovative human uses of the forests

that are compatible with wildlife habitat needs. The opportunity for 
April 13, 1994 ROD 49

utilization of resources from the lands under the standards and guidelines of this

decision is in accordance with the principles of multiple use and sustained yield (see 43

U.S.C. § 1712(c)(1)). 

The lands included in the reserves under the selected alternative constrain, but do not

exclude, timber use. Thinning or other silvicultural treatments inside late-successional

reserves are subject to review by the Regional Ecosystem Office and approval by the

RIEC to ensure that the treatments are beneficial to the creation of late-successional

forest conditions. Because this use is not totally eliminated, this management decision

will not be subject to the reporting requirement in 43 U.S.C. § 1712(e)(2).

4. Oregon and California Lands Act

The management of the O&C lands is governed by a variety of statutes, including the

O&C Lands Act, FLPMA, the Endangered Species Act, and the Clean Water Act. The

O&C Lands Act requires the Secretary of the Interior to manage O&C lands for

permanent forest production; however, such management must also be in accord with

sustained-yield principles. Further, that Act requires that management of O&C lands

protect watersheds, regulate streamflow, provide for recreational facilities, and

contribute to the economic stability of local communities and industries. The Act does

not require the Secretary to harvest all old-growth timber or all commercial timber as

rapidly as possible or according to any particular schedule. The Secretary has

discretion to determine how to manage the forest on a sustained-yield basis that

provides for permanency of timber production over a long-term period. The Secretary

must necessarily make judgments, informed by as much information as possible, about

what kind of management will lead to permanent forest production that satisfies the

principle of sustained yield.

O&C lands must also be managed in accordance with other environmental laws such

as the Endangered Species Act and the Clean Water Act. Some provisions of these

laws take precedence over the O&C Lands Act. For instance, the Endangered Species

Act (ESA) requires the Secretary to ensure that management of O&C lands will not

likely result in jeopardy to listed species or destruction or adverse modification of

critical habitat. The ESA directs the Secretary and all federal agencies to utilize their

authorities to carry out programs for the conservation and recovery of listed species. 

Section 5(a) of the Act also directs: "the Secretary, and the Secretary of Agriculture

with respect to the National Forest System, shall establish and implement a program to

conserve fish, wildlife, and plants, including those which are listed as endangered

species or threatened species pursuant to Section 4 of this Act." 16 U.S.C. § 1534(a). 

Although several northern spotted owl recovery plans have been proposed, the

Secretary has not yet adopted final recovery plans for either the northern spotted owl or

the marbled murrelet. Alternative 9's late-successional and riparian reserve concepts 
April 13, 1994 ROD 50

are important building blocks in the development of recovery plans to achieve the

conservation and recovery of those species.

One of the purposes of the Endangered Species Act is the preservation of ecosystems

upon which endangered and threatened species depend. A forward-looking land

management policy would require that federal lands be managed in a way to minimize

the need to list species under the ESA. Additional species listings could have the

effect of further limiting the O&C Lands Act's goal of achieving and maintaining

permanent forest production. This would contribute to the economic instability of local

communities and industries, in contravention of a primary objective of Congress in

enacting the O&C Lands Act. That Act does not limit the Secretary's ability to take

steps now that would avoid future listings and additional disruptions.

Protection of watersheds and regulating streamflow are explicit purposes of forest

production under the O&C Lands Act. Riparian reserves, including those established

on O&C lands by this decision, are designed to restore and maintain aquatic

ecosystem functions. Together with other components of the aquatic conservation

strategy, riparian reserves will provide substantial watershed protection benefits. 

Riparian reserves will also help attain and maintain water quality standards, a

fundamental aspect of watershed protection. Both riparian reserves and latesuccessional reserves will help regulate streamflows, thus moderating peak

streamflows and attendant adverse impacts to watersheds.

5. Endangered Species Act

Consultation on the preferred alternative in the Final SEIS was conducted with the Fish

and Wildlife Service in accordance with Section 7 of the Endangered Species Act. The

biological opinion of the Fish and Wildlife Service determined that adoption of the

preferred alternative is not likely to jeopardize the continued existence or destroy or

adversely modify the critical habitat of any listed species. The National Marine

Fisheries Service (NMFS) has also concurred in the determination that the preferred

alternative would not affect any of the listed anadromous fish species present in the

planning area, meaning that section 7 consultation was not required. See Appendix G

of the Final SEIS for more information.

This decision is intended to aid in the recovery of listed species and to avoid action that

would cause any species to become listed under the Endangered Species Act.

The Endangered Species Act requires reinitiation of consultation if new information

reveals effects of the action in a manner or to an extent not previously considered or if

the identified action is modified in a manner that causes effects not previously

considered. The BLM and Forest Service, through the interagency SEIS Team, has 
April 13, 1994 ROD 51

provided the U.S. Fish and Wildlife Service (FWS) with a complete list and discussion

of major new information and proposed changes to Alternative 9, as well as the basis

for their determination that reinitiation of consultation in accordance with Section 7 of

the ESA is not required. The SEIS Team conferred with the FWS as to whether new

information, or changes proposed from the Final SEIS in the ROD, reveal effects on

listed species or critical habitat not previously considered in the biological opinion

already issued, or have modified the proposed action to the degree that reinitiation of

consultation would be required. The FWS has concurred with the determination made

by the BLM and Forest Service that reinitiation is not required.

6. Coastal Zone Management Act

Implementation of the preferred alternative is expected to meet or exceed the federal

and state standards and policies adopted in federally approved, state coastal

management programs and coastal nonpoint pollution control programs. Appropriate

consultation will occur on subsequent plans and activities to ensure consistency under

the Coastal Zone Management Act and Coastal Zone Act Reauthorization

Amendments. In addition to the existing planning processes under Forest Service and

BLM planning regulations, and NEPA analysis for planning and site-specific decisions,

the preferred alternative includes provisions to ensure that subsequent federal actions

will be consistent with statewide planning goals and local comprehensive plans. We

make this finding based on the selected alternative's implementation framework and the

commitment it provides to ensure appropriate consultation during subsequent planning

and implementation.

7. Executive Order 11990 - Protection of Wetlands

The selected alternative complies with Executive Order 11990 by incorporating

procedures and measures for identification, assessment and protection of wetlands. All

practicable measures to minimize harm to wetlands will be implemented. The primary

measures that ensure compliance include the designation of riparian reserves and key

watersheds, the watershed analysis process, and watershed restoration. These

measures ensure that wetlands on lands administered by the Forest Service and BLM

within the range of the northern spotted owl will be maintained as natural systems

providing public health, safety, welfare, and other public interest values.

8. Clean Air Act

At the scale of a programmatic plan such as this, the overall level of activities proposed

under this decision are not anticipated to degrade air quality or violate state

implementation plans. This finding is based on information presented in the Final SEIS

regarding the projected reduction in estimated aggregated annual 
April 13, 1994 ROD 52

emissions from activities under the preferred alternative compared to the 1985 to 1992

baseline. The large geographic scope and programmatic nature of the SEIS precluded

quantification of impacts, a necessary component of conformity determinations under

the Clean Air Act. Conformity determinations and more detailed air quality impact

analyses will be made at subsequent levels of planning and analysis where emissions

can be more accurately quantified and reasonably forecasted, and local impacts can be

assessed.

9. Clean Water Act

Full implementation of the preferred alternative is expected to maintain and improve

water quality. We base this finding on the extensive water quality protection provided

by the preferred alternative's comprehensive watershed-based approach. The system

of late-successional reserves and riparian reserves, watershed restoration, and the

other components of the preferred alternative's aquatic conservation strategy provide a

sound framework for meeting Clean Water Act requirements. The system of riparian

reserves provide protection zones around streams, wetlands, and waterbodies

minimizing the potential for sediment, temperature, and dissolved oxygen problems. 

The riparian reserves will contribute to protecting or restoring the physical, chemical,

and biological integrity of waters of the United States, the major goal of the Clean

Water Act. Analysis to support subsequent levels of planning and site-specific projects

and implementation of monitoring and adaptive management will be required to

demonstrate compliance with the Clean Water Act and state water quality standards.

10. Federal Advisory Committee Act (FACA)

On March 21, 1994, the U.S. District Court for the District of Columbia found in

Northwest Forest Resource Council v. Espy that the process for developing the FEMAT

report had not met the requirements of the Federal Advisory Committee Act (FACA). 

The Court found that FEMAT was an "advisory committee" and that FEMAT had not

met FACA's standards for open meetings and balanced participation. We view any

violation of law as a serious matter. 

The District Court decision presents us with a dilemma. The FEMAT report played an

important role in the development of the alternatives analyzed by us in the Draft SEIS

and Final SEIS. Although the Court did not enjoin us from using or considering the

FEMAT report, the Northwest Forest Resource Council has urged us not to adopt any

alternative that was developed or analyzed by FEMAT. However, the Forest Service is

under Court order to promulgate by April 14, 1994, management guidelines that cure

the defects found in the NEPA process in Seattle Audubon Society v. Moseley.
April 13, 1994 ROD 53

We resolve this dilemma by considering the underlying purposes of FACA: to ensure

open procedures, full opportunity for public comment, and public participation so as to

avoid undue influence of special interests. We have met these goals through the

NEPA process for this plan. We provided all interested parties, including the NFRC

plaintiff, 90 days to comment on the Draft SEIS. We responded in the Final SEIS to all

of the substantive comments we received and made appropriate changes to the plan. 

We also invited comments on the Final SEIS. The FEMAT report was widely circulated

prior to and during the public comment period on the SEIS. NFRC provided comments

during the public comment periods. We ensured that those who wanted to participate

were given the opportunity to do so. We took their contributions seriously and

reviewed them closely. They improved our plan.

We have carefully considered the implications of the NFRC decision. We have

determined to proceed with this decision because we believe, for the reasons set forth

above, that our consultation and decision-making process has, taken as a whole,

satisfied the objectives of FACA.

By proceeding with this decision, we are not condoning any violation of law. We are

taking the necessary steps to ensure that all of the implementation groups established

by this decision comply fully with FACA. One prominent feature of the implementation

regime we contemplate for our decision is the thorough inclusion of many different

communities and perspectives in long-term forest management in the region. We

strongly believe that broadened participation will strengthen and improve forest

management from an ecological, social and economic perspective. Even though

FACA's requirements can be cumbersome in this context, we will see that all nonfederal participation in the forest management process will accord with the strictures of

the Act.

IX. Implementation

A. Interagency Coordination

The implementation of this decision calls for a high level of coordination and

cooperation among agencies. A formal procedure for interagency coordination has

been created by a Memorandum of Understanding for Forest Ecosystem Management

that has been entered into by the White House Office on Environmental Policy,

Department of the Interior, Department of Agriculture, Department of Commerce and

the Environmental Protection Agency (see Appendix 

E of the Final SEIS).

The Memorandum of Understanding created several coordinating groups, including the

Interagency Steering Committee, Regional Interagency Executive Committee, 
April 13, 1994 ROD 54

and Regional Ecosystem Office. A detailed description of these groups is included in

Attachment A, Section E, Implementation.

B. Planning and Analysis

This decision facilitates ecosystem management under the current statutory and

regulatory framework by requiring a variety of assessments, analyses and other

activities sometimes referred to as "planning", designed to address various components

of ecosystem management. Legal requirements, including public participation,

consultation, and environmental analysis, must be met prior to administrative decisions. 

The responsibility for implementing the decision made in this Record of Decision rests

with the managers of the Forest Service and BLM units in the planning area.

C. Consultation and Coordination

Future consultation under the Endangered Species Act will emphasize an integrated

ecosystem approach. This will include involving the Fish and Wildlife Service and the

National Marine Fisheries Service when the land management agencies begin to

develop their plans for a particular area so the views of consulting agencies can be

made known. Actions proposed to implement this plan will undergo consultation, either

formal or informal, as appropriate. Consultation for the northern spotted owl on

activities that are consistent with the standards and guidelines of this decision and that

would not result in "take" of a listed species is expected to be informal. If take would

result, incidental take statements will be provided through formal consultation.

 

Concurrent coordination with the Environmental Protection Agency on water quality

standards and beneficial use requirements of the Clean Water Act will minimize project

impacts.

D. Protection of Tribal Treaty Rights and Trust Resources

This decision provides a higher level of protection for American Indian trust resources

on public lands than the plans that it amends, and does not impair or restrict the

treaties or rights of tribes. It is conceivable, however, that subsequent implementation

of standards and guidelines could directly affect American Indian practices and

activities -- for example, a prohibition against the collection of certain plant material or

trees in late-successional reserves that are subject to tribal treaty off-reservation

gathering rights. Under such circumstances, the exercise of these tribal treaty rights

will not be restricted unless the Regional Interagency Ecosystem Office determines that

the restriction is (1) reasonable and necessary for 
April 13, 1994 ROD 55

preservation of the species at issue, (2) the conservation purpose of the restriction

cannot be achieved solely by regulation of non-Indian activities, (3) the restriction is the

least restrictive alternative available to achieve the required conservation purpose, (4)

the restriction does not discriminate against Indian activities either as stated or as

applied, and (5) voluntary tribal conservation measures are not adequate to achieve

the necessary conservation purpose.

Future analysis and planning efforts to implement this decision on lands administered

by the BLM and Forest Service will identify Indian trust resources that would be

affected, and identify potential conflicts between proposed federal actions and treaty

rights or tribal trust resources. Consultation with the recognized tribal government with

jurisdiction over the trust property that the proposal may affect, the Bureau of Indian

Affairs, and the Office of the Solicitor will be conducted early in the planning process. 

The consultation with affected tribes will occur on a government-to-government basis. 

Conflicts will be resolved collaboratively with affected tribes involved in the planning

process, consistent with the federal government's trust responsibilities.

E. Initial Implementation of this Decision

This decision sets forth a new way of managing BLM and FS lands. In addition to new

land allocations, it requires new techniques of analysis, new decision-making forums,

new kinds of interagency collaboration, new approaches to scientific oversight and

monitoring, new survey procedures, new public participation strategies, and new

standards and guidelines.

The implementation of this new way of doing business will proceed as quickly as

possible. But it cannot be instantaneous. A transition period is needed to allow for

procedures and analysis techniques to be developed; for training to occur; for budgets

to reflect the new kind of work required; and for completion of the surveys, analyses

and planning to support project proposals. 

One choice is to stop all projects and activities until these new requirements are

developed, funded, and completed. A better choice is to recognize a transition that

provides for implementation of certain interim procedures in order to realize the goals

and objectives of the management strategy while making project decisions with

reasonable promptness that do not preclude long-term options or impair resources

sought to be protected.

Toward this end, the following direction is adopted. The effects of the proposed

projects and activities will be disclosed through appropriate NEPA analyses.

1. Watershed Analysis - In the initial years of implementation, the process for

watershed analysis is expected to evolve to meet long-term goals described in the 
April 13, 1994 ROD 56

Final SEIS. However, some projects proposed for the first few years of implementation

are in areas that require watershed analysis prior to approval of the projects (i.e., key

watersheds, riparian reserves, and inventoried roadless areas). In fiscal years 1994-

1996, watershed analysis done for these projects may be less detailed than analyses

that are completed in later years. Regardless, analysis done during the initial years

(FY 1994-1996) will comply with the following guidance:

The goal of the analysis is to determine whether the proposed actions are

consistent with the objectives of the Standards and Guidelines.

Existing information will be used to the greatest extent possible, with new

information collected, to the maximum extent practicable, to fill crucial data gaps.

Analysis will address the entire watershed, even though some areas may be

analyzed at a lower level of precision, and the analysis of issues may be

prioritized.

Information from the analysis will flow into the NEPA documentation for specific

projects, and will be used where practicable to facilitate ESA and Clean Water

Act compliance.

Restoration opportunities will be identified.

As described in the Final SEIS, watershed analysis is an ongoing, iterative process. 

This was recognized during development of the watershed analysis concept, and the

aquatic conservation strategy. The environmental effects of the initial phases of

implementation are expected to be as described in the Final SEIS because all projects

in areas that require watershed analysis prior to approval will be reviewed to ensure

consistency with the objectives of the Standards and Guidelines. Watershed analyses

will expand as appropriate to consider additional available information, changing

conditions and potential effects associated with long-term management issues and

needed actions. 

2. Green Tree Retention Requirements - National forest timber sales already laid out

at the time of the ROD may use the green tree retention requirements in the Draft SEIS

if this eliminates the need to rework, redesign, or recruise a sale. Because sales levels

in the first years of implementation of this plan are expected to be smaller than the

annual PSQ levels set forth above, and the adjustment of the green tree retention

requirement between Draft and this ROD (Attachment A) is subtle, the environmental

effects of this initial measure are expected to vary little from those described in the

Final SEIS. All sales laid out after the date of this ROD will comply with green tree

retention requirements in Attachment A.
April 13, 1994 ROD 57

3. Assessments for Late-Successional Reserves -- Projects and activities within latesuccessional reserves (including restoration, recreation, projects for public safety,

thinning and salvage) may proceed in fiscal years 1994-96 using initial latesuccessional reserve assessments done at a level of detail sufficient to assess whether

the activities are consistent with the objectives of the late-successional reserves. Nonsilvicultural projects and activities are addressed by the late-successional reserve

standards and guidelines in Attachment A. The environmental effects of this initial

implementation of these activities should vary little from those displayed in the Final

SEIS because silvicultural activities must demonstrate benefit to late-successional

habitat conditions and these activities are subject to review by the Regional Ecosystem

Office and approval of the RIEC.

F. Fiscal Year 1994 Watershed Restoration Program

Congress has allocated $27 million in watershed restoration funding for fiscal year

1994. Projects implemented under this program will have had a "preliminary watershed

restoration assessment" completed and considered prior to beginning construction. 

The preliminary watershed restoration assessment will identify restoration goals and

provide a risk assessment showing that benefits outweigh the risks of proceeding with a

project. Watershed restoration projects need not be completed prior to the initiation of

other projects. After fiscal year 1994, watershed restoration will be based on watershed

analysis and planning. As described in Appendix B of the Final SEIS, the magnitude of

restoration needs will be based on watershed analysis. The implementation of the

watershed restoration program in fiscal year 1994 is consistent with the analysis of

effects in the Final SEIS. 

G. Monitoring

This decision includes the monitoring plan discussed in Attachment A, pages E-1 to E12. Monitoring is an essential component of the selected alternative. It ensures that

management actions meet the prescribed standards and guidelines and that they

comply with applicable laws and policies. Monitoring will provide information to

determine if the standards and guidelines are being followed (implementation

monitoring, Attachment A, pp. E-4 to E-6), verify if they are achieving the desired

results (effectiveness monitoring, Attachment A, pp. E-6 to E-10), and determine if

underlying assumptions are sound (validation monitoring), Attachment A, pp. E-10 to E11. 

Information obtained through monitoring, together with research and other new

information, will provide a basis for adaptive management changes to the selected

alternative, including changes in the Standards and Guidelines. In addition, the

monitoring plan itself will not remain static, but will be evaluated periodically to 
April 13, 1994 ROD 58

ascertain whether the monitoring questions and standards remain relevant, and will be

adjusted as appropriate. 

Monitoring will be conducted at multiple levels and scales, ranging from site-specific

projects to the planning area or region to allow localized information to be compiled and

considered in a regional context. The monitoring plan provides standards that

monitoring at any scale should meet in order to achieve this goal (page E-3 of

Attachment A). Monitoring will be coordinated among agencies and organizations to

enhance the effectiveness and usefulness of monitoring results. 

Monitoring under the selected alternative will build on present monitoring efforts. 

Current monitoring plans will continue, where appropriate. Specific new monitoring

protocols, criteria, goals, and reporting formats will also be developed.

H. Authority to Amend or Modify this Decision

This decision amends current National Forest and BLM district plans as described in

this Record of Decision. Amendments of forest or district plans that would modify the

standards and guidelines or land use allocations established by this Record of Decision

will be coordinated through the Regional Interagency Executive Committee and the

Regional Ecosystem Office established by the Memorandum of Understanding for

Forest Ecosystem Management (see Appendix E of the Final SEIS). Although

decisions concerning implementation or modification of these standards and guidelines

are subject to review by these interagency groups, the Memorandum of Understanding

for Forest Ecosystem Management acknowledges the line authorities of individual

agencies.

X. Public Involvement

The issues surrounding the management of late-successional and old-growth forest

ecosystems have been before the public and discussed for a number of years. 

Congress has held extensive hearings on these issues. A report entitled Alternatives

for Management of Late-Successional Forests of the Pacific Northwest was prepared at

the request of the Agriculture Committee and the Merchant Marine and Fisheries

Committee of the U.S. House of Representatives in October 1991. 

The Forest Service has completed forest plans for most of the national forests within

the range of the northern spotted owl, and has prepared draft forest plans for the

remaining forests. Additionally, scoping for these Forest Plans and the Final

Supplement to the Environmental Impact Statement for an Amendment to the Pacific

Northwest Regional Guide included issues regarding management of 
April 13, 1994 ROD 59

late-successional and old-growth forests, and served to focus the public on the issues. 

The Forest Service more recently received extensive public comment on the Final

Environmental Impact Statement on Management for the Northern Spotted Owl in the

National Forests.

The Bureau of Land Management is in the process of preparing resource management

plans for its districts in western Oregon, and has completed plans for the lands it

administers in California within the range of the northern spotted owl. Scoping for

these plans identified issues surrounding the management of late-successional and

old-growth forest ecosystems. Between 1986 and 1992, the Bureau of Land

Management conducted scoping and solicited and received public comments regarding

these issues.

The Fish and Wildlife Service elicited comments when it proposed listing the northern

spotted owl and marbled murrelet. It also held public hearings during the summer of

1991 on the proposed designation of critical habitat for the northern spotted owl, and

has more recently held public meetings, hearings, and received comments on the

Recovery Plan for the Northern Spotted Owl - Draft. During the spring of 1992, there

was public comment and discussion in connection with the hearings conducted by the

Endangered Species Committee ("the God Squad") on a proposed exemption to the

Endangered Species Act.

President Clinton's Forest Conference served as a focal point to discuss the issues

surrounding management of late-successional and old-growth forests on federal lands

within the range of the northern spotted owl. At the conclusion of that conference, he

directed the members of his Cabinet to prepare a comprehensive strategy for forest

management and economic development. Following the Forest Conference,

representatives of the Clinton administration held meetings with interested parties to

solicit their ideas. In addition, the Forest Ecosystem Management Assessment Team

received and considered numerous submissions from interested groups and members

of the public. The Forest Conference, subsequent meetings, and submissions served

to confirm and specify the scope of the issues, potential effects, and appropriate

analysis.

All of these efforts, including those of Congress and the relevant land and resource

management agencies, coupled with the actions during and after the Forest

Conference, have served to offer ample and continued opportunity for the public to

identify the issues.

A. Public Comments on the Draft SEIS

The Notice of Availability for the Draft SEIS was published in the Federal Register on

July 30, 1993 (58 FR 40444 - 40445) and in numerous papers of general circulation in

Washington, Oregon, and California. The comment period closed 
April 13, 1994 ROD 60

October 28, 1993. Approximately 102,000 public comments were submitted during the

three month public comment period on the Draft SEIS.

Public hearings were held in Redding, California; Salem, Oregon; and Olympia,

Washington, September 27 to October 1, 1993. A total of 359 individuals presented

oral comments.

B. Summary of the Comments Received

Approximately 10,000 comments were individually prepared -- some of them extensive

and detailed. The rest were form or modified-form letters. The documents came from

all 50 states and several foreign countries. They came from schools, small towns, big

cities and rural areas. Most of the interest groups that are parties to the litigation that

has resulted in the court injunctions halting the federal timber sale programs in the

Pacific northwest also filed extensive substantive comments. Many people sent

personal, emotional letters. 

The distribution of comments demonstrates that the BLM and Forest Service proposal

raised national interests. Approximately 40 percent of the comments came from east of

the Mississippi River, 25 percent from California, 5 percent from Oregon, and 20

percent from Washington.

The comments indicated that the feelings and issues surrounding the management of

the National Forests and the BLM-administered lands in the Pacific northwest and

northern California are still intense and still reflect all sides of the issue. Many

commenters wanted the preferred alternative (Alternative 9) prescriptions on timber

harvest, thinning, and salvage in old-growth forests to be more restrictive. Others felt

that the level of timber that could be produced under Alternative 9 was far too low to

support the people and communities in the region. The comments reflected a change

in focus in the public discussion. In contrast to earlier plans to manage habitat for the

northern spotted owl or other individual species, comments on this plan reflected

concerns with the forest ecosystem as a whole.

Alternatives 1 and 9 were the focus of comments. Of those people who responded and

specifically referred to Alternative 1, approximately 95 percent commented favorably on

the management direction of that alternative, while the remaining 5 percent sought

even more environmental protection. Most respondents who specifically addressed

Alternative 9 either sought more environmental protection (45 percent) or wanted less

environmental protection. Only 2 percent of people commenting on Alternative 9 said

they liked that alternative. 
April 13, 1994 ROD 61

C. Response to Comments on the Draft SEIS 

Based on the comments received on the Draft SEIS, numerous changes and

corrections were made to the Final SEIS. The key changes are identified at the

beginning of each chapter and the appendices in the Final SEIS. Summaries of the

comments on the Draft SEIS and responses to those comments appear in Appendix F

of the Final SEIS. The following summary addresses some of the major concerns

raised by the public and some of the litigating parties and provides brief responses to

each.

1. Concern: Whether sufficient old-growth is being retained and whether the

management regimes proposed can maintain or enhance the ecosystem. This concern

was voiced uniformly by plaintiff groups in Portland Audubon Society v. Lujan, Lane

County Audubon Society v. Jamison, and Seattle Audubon Society v. Moseley.

Response: Alternative 9, as proposed in the Draft SEIS, rated the third highest among

the ten alternatives analyzed in terms of ecosystem quantity and quality (abundance,

diversity, processes, functions, and connectivity). Conservation measures in

Alternative 9 were strengthened in the Final SEIS by designating an additional 775,000

acres as reserves. These reserves included the addition of riparian reserve scenario 1

(additional protection of intermittent streams), known northern spotted owl activity

centers, known species habitat, managed pair areas in eastern Washington and

northern California, and the retention of late-successional fragments where little

remains. Alternative 9 was not re-rated against other alternatives after the adoption of

the changes reflected in the Final SEIS.

2. Concern: Whether the expected timber harvest volume resulting under Alternative

9 is balanced against the needs of the communities and the species involved. This

concern was raised by the Association of O&C Counties, the Northwest Forest

Resources Council and numerous citizens.

Response: Implementation of Alternative 9 will provide the highest sustainable timber

levels from Forest Service and BLM lands of all action alternatives that are likely to

satisfy the requirements of existing statutes and policies (see p. 27 above). Alternative

9 will provide sustainable timber harvests as well as healthy old-growth ecosystems

and adequate populations of fish, wildlife, and plants. It is a "balanced" alternative.

3. Concern: Whether the economic and social analysis was sufficient.

Response: Many views were expressed in public comments on how to assess the

economic and social impact of this decision, particularly in the assessment of 
April 13, 1994 ROD 62

indirect effects, effect of exports, and local vs. regional impacts. The Final SEIS

presented an extensive discussion of the economic effects, displayed the information

using several different views of the impacts, and disclosed its assumptions and

methodology. The Final SEIS corrected an error in the economic analysis of the Draft

SEIS, which affected the consideration of direct, indirect and induced employment

effects. We believe that the analysis was sufficient.

4. Concern: Whether the role of non-federal lands was appropriately considered. 

Plaintiff groups including, the Portland Audubon Society, and Oregon Natural

Resources Council noted this alleged deficiency in their comments.

Response: The current state of non-federal lands and possible future activities on

non-federal lands were considered in the design of the alternatives, analysis of the

environmental impacts of the alternatives, and the cumulative effects in the Final SEIS. 

This decision does not direct any changes in the management of non-federal lands. 

However, apart from this decision, the U.S. Fish and Wildlife Service is considering

issuance of a proposed regulation under Section 4(d) of the ESA to address NSO

habitat on non-federal land.

5. Concern: Whether the protection afforded in watersheds would result in

degradation of water quality and the abundance and distribution of fish dependent on

that quality. Plaintiff groups such as Lane County Audubon Society, Wilderness

Society, Seattle Audubon Society, Oregon Natural Resources Council, and the

Portland Audubon Society urged that 100 foot buffers be protected along intermittent

streams.

Response: Protection of watersheds under Alternative 9 was increased between the

Draft and Final SEIS to provide 100 foot reserves along intermittent streams outside

Tier 1 key watersheds. This protection exceeds the Best Management Practices

currently approved to meet Clean Water Act standards. The initial riparian reserves in

Alternative 9 are consistent with or exceed other current scientifically accepted

strategies for riparian resource conservation.

6. Concern: Whether salvage or thinning should be allowed in reserves. This was

also a concern of plaintiff groups, including particularly the Oregon Natural Resources

Council, and the Wilderness Society among others.

Response: Alternative 9 as proposed in the Draft SEIS rated the third highest among

the 10 alternatives analyzed in terms of ecosystem quantity and quality (abundance,

diversity, processes, functions, and connectivity). This rating was partly based on the

ability to manage late-successional reserves to maintain or enhance old-growth

structure, diversity, and function. This type of management is especially important in

the dry provinces and in young overstocked plantations, where some management can

protect and enhance old-growth conditions. The 
April 13, 1994 ROD 63

Assessment Team found that "without restoration silviculture [which includes thinnings],

late-successional conditions would be retarded in development." (Final SEIS, pp. 34-

46). Silvicultural treatments are limited to those that will be beneficial to latesuccessional forest conditions. Salvage activities must be intended to prevent negative

effects on late-successional habitat. Ecological Principles for Management of LateSuccessional Forests was added to Appendix B of the Final SEIS and provides the

rationale for management of these reserves.

7. Concern: Whether existing inventoried roadless areas were adequately protected. 

Plaintiff groups such as Seattle Audubon Society, Headwaters, and Lane County

Audubon Society urged the preservation of these areas from timber harvesting. 

Oregon Natural Resources Council asked that such protection be extended to include

any roadless area greater than 1,000 acres.

Response: The comprehensive system of withdrawn lands and reserved areas, along

with the specified standards and guidelines, meets the need to protect the overall

ecosystem while providing for other management opportunities. The standards and

guidelines of this decision preclude road construction in unroaded portions of

inventoried roadless areas within key watersheds, and require the preparation of

watershed analyses prior to management activities in such roadless areas outside key

watersheds.

8. Concern: Whether the adaptive management areas could provide adequate

management through research and local involvement. Lane County Audubon Society,

Wilderness Society, and Seattle Audubon Society in particular were concerned about

these adaptive management areas and recommended that they be eliminated. Lane

County Audubon Society suggested in the alternative that they be severely limited in

scope and be given firm regulatory constraints. 

Response: Plans for adaptive management areas will be developed with extensive

public participation in compliance with laws governing public participation. Monitoring

will be conducted to help assure the objectives of each adaptive management area are

accomplished. The adaptive management process will be used in these areas. 

Research will provide information needed to improve implementation. Also, the

location and size of the adaptive management areas were designed so that any

setbacks in these areas would not impede the success of the overall regional strategy. 

9. Concern: Whether the uniqueness of northern California ecosystems was

appropriately recognized.

Response: Public comments on the Draft SEIS objected to a broad application of a

180-year rotation in the matrix on lands administered by the Forest Service in northern

California. The SEIS Team analytically compared the effects on forest 
April 13, 1994 ROD 64

structure and the number of acres in late-successional condition under the 180-year

rotation with the rotations outlined in the draft forest plans. This analysis indicated little

difference in the amount of acreage in each seral stage over time as a result of the

180-year rotation.

In the Final SEIS, the 180-year rotation for National Forests in California was dropped

from Alternative 9 and replaced with the direction to use the rotations in the appropriate

draft or final forest plans. These rotations vary in order to accommodate different forest

types and scope of management objectives. This is the same approach taken in

Alternative 9 regarding rotation lengths on other federal forest lands. 

The 100-year rotation for hardwood forests under Alternative 9 was also dropped in

deference to forest plan standards and guidelines. The forest plans do not include a

regular harvest of hardwoods. Therefore, no rotation length is set and no hardwood

volume is included in the calculation of probable sale quantity (PSQ).

10. Concern: Whether new information available on northern spotted owl

population trends was considered. Plaintiff environmental groups, in particular, raised

this issue.

Response: The most current information on northern spotted owl population trends

has been incorporated into the analysis in the Final SEIS. This new information

includes Estimation of Vital Rates of the Northern Spotted Owl by K. P. Burnham, D. R.

Anderson and G. C. White, 1994, which is an update of Demographic Analysis of

Northern Spotted Owl Populations by D. R. Anderson and K. P. Burnham, 1992.

Several features of this decision address the population concerns discussed in these

analyses: (1) larger reserves, (2) standards and guidelines for the matrix that are

beneficial to the northern spotted owl, and (3) managed late-successional areas for

known owl activity centers in the Washington Eastern Cascades and the California

Cascades Provinces. The 1994 study report was included in Appendix J of the Final

SEIS, and a lengthy discussion of the results and their implications was included in

Chapter 3&4 of the Final SEIS.

In addition, a spatially-explicit model was run to simulate owl population dynamics for a

sample of three of the SEIS alternatives, plus a no-harvest scenario, in order to explore

possible northern spotted owl population response under a variety of demographic

assumptions. The results are consistent with and generally lend support to the

hypothesis that the owl reasonably may be expected to achieve population stabiity

across its range notwithstanding additional loss of its habitat at a conservative rate

such as that projected to occur under our decision. The modeling results are also

presented in Appendix J3 of the Final SEIS.
April 13, 1994 ROD 65

11. Concern: The Northwest Forest Resources Council and other commenters

suggested that additional alternatives based on the "constant change" theory of

ecology be considered. In particular, they suggested a new alternative developed by

Dr. Chad Oliver, of the University of Washington.

Response: The Final SEIS acknowledges that there is controversy in the scientific

community regarding theories of ecosystem process and function. The Assessment

Team discussed the more active approach to forest management with Dr. Oliver and

others in formulating its alternatives. Each of the 10 alternatives that were considered

in detail contain elements that are based on the constant change theory. The

alternatives vary in the amount of acres allocated to reserves and to the matrix and in

the degree of active management proposed in the various land allocations to achieve

desired conditions. In the view of the Assessment Team, the need to provide latesuccessional and old-growth forest habitat requires a system of reserves on the federal

lands. Early stages of forest succession are and will be well represented on nonfederal ownerships. However, recognizing the uncertainty in current knowledge and

the need to monitor, learn, and change, the selected alternative also relies on adaptive

management and provides an opportunity in the matrix and particularly in adaptive

management areas to test more aggressive landscape management approaches under

the "constant change" theory. Given the limited amount of late-successional and oldgrowth forest presently within the range of the northern spotted owl at this time, it would

not be prudent or reasonable to apply the active landscape management approaches

suggested by the "constant change" theorists to the majority of the remaining latesuccessional and old-growth forest stands across the federal landscape.

D. Response to Comments on the Final SEIS

We have reviewed and considered all comments that were received during the 30-days

following the Notice of Availability of the Final SEIS. The comments summarized here

represent the major substantive ones that: (1) were not addressed in the Final SEIS as

a comment received on the Draft SEIS, 

(2) addressed a change in the Final SEIS from the Draft SEIS, and (3) were received

by the SEIS Team by April 4, 1994. A more comprehensive discussion of all comments

received on the Final SEIS is available from regional offices.

Comment: Northern California forests must not be sacrificed. Reinstate the 180-

year harvest rotation. Allowing higher harvest levels from these forests will lead to

logging in areas currently set aside for habitat protection.

Response: The response to the last comment on page F-39 in Appendix F of the

Final SEIS discusses the rationale for dropping the 180-year rotation in northern

California and deferring to Forest Plan standards and guidelines. That response

remains valid. The application of other standards and guidelines of the selected 
April 13, 1994 ROD 66

alternative, plus the retention of all standards and guidelines from the Forest Plans,

will result in lower, not higher, levels of harvest than envisioned in the Forest Plans. 

Further, PSQ levels are presented as an effect, not a goal, of the standards and

guidelines. Therefore, harvests within areas specified for habitat protection will be

greatly curtailed.

Comment: Establish late-successional reserves between the Snow Mountain and

Yolo-Bolly/Middle Eel Wilderness on the Mendocino National Forest to provide

connectivity.

Response: The standards and guidelines specify a network of late-successional

reserves. Dispersal between those reserves is facilitated in part by the riparian

reserves and the matrix standards and guidelines. The suggested changes are not

needed to meet the objectives of Alternative 9. If management direction for these

areas should be changed for other objectives, such changes should be pursued

through the forest planning process now taking place on the Mendocino National

Forest. 

Comment: Salvage logging is the most nebulous category in practice and agency

standards and guidelines leave too much to be determined by whim. Therefore,

confine all salvage logging to adaptive management areas.

Response: To ensure that salvage in late-successional reserves is consistent with

the intent of the standards and guidelines, salvage is subject to review by the

Regional Ecosystem Office and approval by the Regional Interagency Executive

Committee. Salvage is not required to be beneficial, but is designed to permit the

recovery of timber volume in those instances where catastrophic events clearly kill

more trees (resulting in more snags and down logs in the short and long term) than

are needed to maintain late-successional conditions. For example, if a major

blowdown event leaves dead trees 15 feet deep over the landscape, a determination

could be made that only a portion of those logs are needed to meet the objectives of

the reserve. The rest, after consideration of the impacts of the harvest systems

themselves, including any required roading, might be available for salvage. Salvage

of individual dead trees within the landscape is not intended within late-successional

reserves under the salvage guidelines. Work of the Regional Ecosystem Office and

adaptive management related to case-by-case examples will continue to define

where salvage is appropriate.

Comment: Amend standard and guideline LH-4 (p. B-127). This standard and

guideline addresses issuance of leases, permits, rights-of-way, and easements to

avoid adverse effects that retard or prevent attainment of aquatic conservation

strategy objectives. It should be amended to allow more flexibility for Tier 2 key

watersheds and non-key watersheds.
April 13, 1994 ROD 67

Response: LH-4 has been clarified to reflect that it applies to leases, permits,

rights-of-way, and easements other than for surface water developments. LH-2

applies to surface water developments only, and the difference between the two

standards and guidelines is intentional and appropriate.

Comment: The language in the Final SEIS Summary leads the casual reader to

believe that the aquatic conservation strategy does not apply to wild and scenic

rivers. Please clarify this language. 

Response: We have clarified the management direction for wild and scenic rivers

in the Record of Decision. Congressional requirements take precedence over the

standards and guidelines, the same as for wilderness areas. However, where

legislation defers to a site-specific management plan for management decisions, the

standards and guidelines of the selected alternative will apply along with that

management plan direction, whichever is more restrictive or provides greater

benefits to late-successional conditions. This parallels the direction for national

scenic areas.

Comment: Standards and guidelines such as those for matrix, key watersheds, and

riparian reserves in adaptive management areas should be permanent and not

subject to local, politically pressured, change. 

Response: The primary purpose of the adaptive management areas is to

encourage development of non-traditional techniques to meet management

objectives. The standards and guidelines outside of the adaptive management

areas represent our best effort to provide appropriate levels of protection for latesuccessional and old-growth forest related species. Inside the adaptive management

areas, the activities and the standards and guidelines are presented essentially as a

starting point, to help describe the objectives, and then local teams may either use

such direction or develop something different. Matrix standards and guidelines for

green-tree retention, snags and coarse woody debris need to be met in adaptive

management areas. 

Comment: Late-successional reserve plans should include a road obliteration plan

for the purpose of reducing fragmentation of the forest ecosystem within these

reserves. 

Response: The 1992 Spotted Owl FEIS which this SEIS supplements states that

"roads which are no longer needed are identified for restoring to a natural state

through such methods as planting trees and shrubs, mulching and seeding grasses,

or roadbed obliteration. Roads which are not needed for ongoing or short-term

projects can be proposed for closure in order to reduce conflicts with other resources

or to reduce use and hence maintenance needs." Since timber management-related

funds are used for the maintenance of many existing roads, 
April 13, 1994 ROD 68

we expect the obliteration of roads not needed for other management purposes.

Those that remain, while perhaps distracting somewhat from late-successional

reserve objectives, will be used for fire protection, beneficial silvicultural activities,

watershed restoration, inventories, and other uses beneficial to objectives, as well as

facilitating existing and new uses neutral to late-successional reserve objectives. 

Standards and guidelines for Alternative 9 require that new road construction be

substantially limited. Any road construction associated with silvicultural treatments

inside late-successional reserve would be subject to the overall "beneficial"

requirement for such activities. That is, if the value of a thinning was negated by the

habitat lost through road construction to the thinning, the activity should not proceed.

Comment: The Record of Decision should require that an interim timber sale

program be implemented that would direct activities to begin first in the least

environmentally sensitive, least controversial areas, in order to minimize

confrontation and expense. 

Response: We expect that the agencies will work first in areas that are least

environmentally sensitive, and that initial sales offerings will be outside of key

watersheds and inventoried roadless areas. However, the team sees a need to

proceed with implementation of all of the standards and guidelines on all of the

areas, which includes aggressive development of watershed analysis techniques,

salvage where salvage is needed and consistent with the standards and guidelines,

and aggressive planning for adaptive management areas. We believe the standards

and guidelines appropriately protect all aspects of the environment.

Comment: NFRC draws our attention to NFRC v. Espy, Civ. No. 93-1621

(D.D.C., March 21, 1994), and urges the Secretaries not to adopt Alternative 9

which is “irrevocably tainted by the illegality of the FEMAT process and report”

and which would be unlawful. 

Response: We decided to proceed in decision-making on the alternatives

presented in the SEIS because we believe that the results obtained by FEMAT

would not have been any different had FEMAT been organized and conducted as

an advisory committee under the Federal Advisory Committee Act (FACA). 

Judge Jackson said, “There is nothing in the record to suggest that the FEMAT

Report, or its advice and recommendations to the President, would have in any

way been altered had FACA been complied with to the letter.” 

Furthermore, the contents of the FEMAT report were reviewed and commented

upon in a subsequent open and public process, in which the federal government

received over 100,000 comment documents. The 
April 13, 1994 ROD 69

FEMAT report was incorporated by reference as Appendix A of both the Draft

SEIS and Final SEIS. It was widely circulated prior to and during the 90-day

comment period on the Draft SEIS. 

The decisions being made at this time are based on the entire administrative

record, which includes the FEMAT report and also the Draft SEIS, the comments

received on the Draft, the Final SEIS, and additional elements of the

administrative record obtained by government studies and the work product of

government employees. The administrative record as a whole justifies a decision

at this time. See also the discussion in section VIII.B.10 above. 

Comment: The conservation restrictions described on pages 3&4-316-317 in

the Final SEIS apply to federal lands as well as state lands.

Response: In response to these comments by the Confederated Tribes of the

Warm Springs Reservation of Oregon, the SEIS Team has corrected the

language in the Record of Decision to more accurately reflect the applicable legal

standards in regard to the exercise of tribal treaty rights.

Pages 51 and 52 of the ROD specifically address these issues. 

Comment: The Sweet Home decision illustrates that the cumulative effects

analysis used in the Final SEIS was an inadequate treatment of the land that

makes up nearly half of the land within the planning area.

Response: We note the recent decision of the Court of Appeals for the District

of Columbia in Sweet Home Chapter of Communities for a Greater Oregon v.

Babbitt, No. 92-5255, ___ F.3d __ (D.C. Cir. March 11, 1994). The Secretary of

the Interior has filed a motion seeking to stay issuance of the mandate in this

matter and has recommended requesting rehearing by the full Court of Appeals. 

The Secretary believes that the case is wrongly decided and, most importantly,

that it is contrary to the law in the Ninth Circuit, as set out in Palila v. Hawaii

Department of Land and Natural Resources, 852 F.2d 1106 (1988). Thus, we

have determined that the Sweet Home decision has no impact on Alternative 9.

Comment: The Sweet Home decision will lead to less protection of spotted owl

habitat on non-federal lands and therefore should be compensated by additional

owl protection on federal lands.

Response: Based on the response to the previous question, the owl habitat

provided by the selected alternative will be adequate to meet the objectives of the

decision. No change is necessary. 
April 13, 1994 ROD 70

Comment: The current situation for marbled murrelets would lead a decisionmaker to protect all murrelet habitat on federal lands. 

Response: The Marbled Murrelet Recovery Team has continued its work on

these topics. Since publication of the Final SEIS, preliminary demographic

analysis of marbled murrelets has been completed as part of the ongoing

conservation assessment of the species (Beissinger, pers. comm.). The

possibility that such analysis might be completed prior to execution of the ROD

was noted in the Final SEIS (page 3&4-246). The analysis has not yet been peer

reviewed, and is subject to change. Because few quantitative population data

are available for marbled murrelets, much of the analysis was based on studies

of other species in the same family. The model is not specific to a particular

period of time or a geographic area. However, the data specific to marbled

murrelets that could be used in the analysis were taken from British Columbia in

1993 and from the central coast of Oregon in 1988 through 1991. Since none of

the demographic rates for marbled murrelets are known with certainty, sensitivity

analysis was used to look at the effect of the various assumptions. 

We have examined the results of the preliminary analysis. Under the parameters

the author considers most likely, the analysis yielded estimates that murrelet

populations are declining at a rate of at least 4 percent per year. The cause, or

causes, for such a decline are not addressed by the modeling effort, so the role

played by habitat can not be determined from this effort. The possibility of a

population decline in this range was disclosed in the Final SEIS (page 3&4-245),

and the likelihood that murrelet populations were generally in decline was a key

consideration in the cumulative effects analysis in this SEIS and the Assessment

Team report. Nevertheless, the rate of decline suggested by the results of the

preliminary analysis is quite steep. We will continue to track this analysis as it is

completed, and review the results as part of the adaptive management strategy

that forms an important component of our decision.

Comment: Some commenters attached a paper prepared by three respected

scientists (Lande, Orians and Weins) who have interpreted the results of the

demographic workshop (Burnham et al. 1994) and have concluded that the only

appropriate response is to protect all remaining spotted owl habitat. In a related

letter, nineteen scientists are on record as calling for protection of all remaining

owl habitat.

Response: Commenters criticize agency interpretations of owl population

conditions. This continues to be a point of disagreement within the scientific

community. Some scientists, including those who have been involved with this

planning initiative, continue to express confidence that the owl 
April 13, 1994 ROD 71

population is in a condition that will allow it to survive the transition period until it

reaches a new stable equilibrium under the habitat levels projected to result from

this decision. While not immune to the fact that the results of demographic

analyses indicate the owl faces some degree of risk, including that of extirpation,

they nevertheless take the view that strong reasons exist to believe that owl

populations will stabilize widely distributed across federal lands under our

decision. A useful analysis of the relevant factors is set forth at pages 3&4-229 -

3&4-235 of the Final SEIS. The new analyses have not led these scientists to

change their opinions. 

Conversely, other well respected scientists continue to express concern that

federal land management proposals (including adoption of Alternative 9) are not

an appropriate response to demographic results. While not directly involved in

spotted owl population and habitat management, these scientists are qualified to

review and comment on the technical aspects of the data and present an

opposing viewpoint.

In consideration of this disagreement within the scientific community, we have

greatly restricted the timber harvest in owl habitat. It should also be considered

that the harvest will occur in a range of habitat types and prescriptions, from

commercial thinning to regeneration harvest of old-growth. 

Comment: The Sierra Club Legal Defense Fund, Inc. attached to its comments a

comparison by Schumaker and Doak of the use of the owl population simulator. 

Schumaker and Doak conducted an additional run of the model using different

assumptions for demographic parameters. Their results conclude that the Forest

Service "assumption of a 95% adult survival is impossibly optimistic, and

regardless of the values assigned to other classes of territories, it artificially

guarantees the owl's persistence."

Response: The parameters used for the simulation analysis reported in the

SEIS consisted of three alternative rule sets. In each, adult survival was varied

as a function of habitat quality. Results of Bart and Forsman (1992) indicated

that owl density and reproductive success rise with increasing percent of suitable

habitat. Work by Bart and Earnst indicated this is also true of persistence.

Although Bart and Earnst have inferred that adult survival is similarly related to

percentage of suitable habitat, studies have not been done to determine this

relationship. This lack of knowledge was, in part, the rationale for using

alternative rule sets in the analysis for the SEIS.

Schumaker and Doak are correct in noting that studies have not 
April 13, 1994 ROD 72

demonstrated rates of survival as high as 95 percent. It is important to note that,

while all three rule sets used in the SEIS analysis could pass a test for

reasonableness, this analysis does not demonstrate that these or any other rule

sets represent the true set of parameters. The rule set used by Schumaker and

Doak could also be considered reasonable, and would yield a different weighted

survival value for adult spotted owls.

Comment: Ed Whitelaw and Ernie Niemi commented on the economic analysis

of the Final SEIS in "Economic Critique of the Final SEIS on Management of OldGrowth Habitat." They point out that the Final SEIS overestimates economic

impacts of reduced timber from federal lands by emphasizing negative impacts

on rural timber-dependent communities and not accounting for the meaningful

contribution of unlogged federal forests to the stability of local and regional

economies.

Response: Economists use a variety of assumptions to predict economic

impacts of a proposed action. The Final SEIS uses a traditional forest resource

approach to evaluate alternatives. The commenters prefer to use an approach

that relies on less quantifiable terms and applies them over a broader regional

base. Had we adopted their assumptions, a more positive regional economic

impact would have been shown, but the fundamental analysis and assessment of

Alternative 9 would not have changed.

Comment: A member of the Assessment Team commented that in his view the

changes made between Draft and Final SEIS to the matrix management

prescription on green tree retention are contrary to the original intent of overall

connectivity in the harvested environment.

Response: The prescription has been rewritten to describe the intent of the

green-tree retention, which is to leave a mixture of dispersed and aggregated

retention to achieve a full array of ecological objectives (see p. 35 above).

Comment: A Wilderness Society submission, written by four fisheries scientists,

argues that refugia located within key watersheds are inadequately protected and

that they will be subject both to a legacy of disturbance and to new disturbance

through an untested watershed analysis process.

Response: Key watersheds are one aspect of the aquatic conservation strategy. 

The other key components of the strategy include riparian reserves and their

standards and guidelines, the watershed analysis process, and watershed

restoration programs.

The Assessment Team identified a network of 164 key watersheds. Alternative 9

as described in the Final SEIS establishes key watersheds on 
April 13, 1994 ROD 73

over nine million acres, or 37 percent of the federal forest land within the range of

the northern spotted owl. Recognizing the importance of these areas as refugia,

any new human disturbance will be greatly restricted on over seven and a half

million acres, or 84 percent of these key watersheds -- because those acres are

co-located in Congressionally reserved areas, late-successional reserves,

administratively withdrawn areas, or riparian reserves. This area comprises 31

percent of the federal forest land within the range of the northern spotted owl. 

Within the 16 percent of the key watersheds in matrix, AMAs or managed latesuccessional areas, the highest quality areas will also receive protection. No

new roads will be constructed in inventoried roadless areas within key

watersheds, the amount of existing system and nonsystem roads within key

watersheds should be reduced (through decommissioning), and watershed

analysis must be completed for all watersheds containing inventoried roadless

areas before management activities can proceed. Over 50 percent of the

inventoried roadless areas on National Forests within the range of the northern

spotted owl occur in key watersheds.

Watershed restoration is designed to address past disturbances by treating

roads (decommissioning, upgrading, modifying drainage, etc.), restoring riparian

vegetation, and restoring instream habitat structure.

Watershed analysis is not designed to encourage new human disturbance, but is

focused on the collection and compilation of information about the watershed, in

areas where management activities are permitted, that is essential for making

sound management decisions.

XI. Review and Approval 

A. Administrative Review

A decision by the Secretary of Agriculture is not subject to administrative appeal

under the Forest Service regulations. A decision by the Secretary of the Interior is

not subject to administrative appeal under BLM regulations. Therefore, this

decision is the final agency action for the amendment of these land allocations,

standards and guidelines into the applicable formal planning documents.

This decision does not constitute the final agency action for any timber sale or other

project. Before a decision document for a timber sale or other project is authorized,

applicable procedures must be complied with, including applicable project-level

NEPA analysis and administrative appeal procedures.
April 13, 1994 ROD 74

B. Effective Date

This decision shall take effect 30 days after publication of notice in the Federal

Register. 

C. Administrative Record

Planning records documenting the preparation and review of the Standards and

Guidelines are available for public review at the BLM Reading Room in Portland,

Oregon. An index to the planning record has been prepared and is available upon

request. We have incorporated by reference copies of existing Forest Service and

BLM planning documents and environmental impact statements.

D. Signatures

By signing this Record of Decision together, we exercise our respective authorities

over only those portions relevant to our authority.

 

 Mike Espy, Secretary Bruce Babbitt, Secretary

U.S. Department of Agriculture U.S. Department of the Interior

Dated: Dated: