Source: https://www.federalregister.gov/documents/2014/06/18/2014-14273/use-by-over-snow-vehicles-travel-management-rule
Timestamp: 2016-12-05 12:52:31
Document Index: 5560702

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:: Use by Over-Snow Vehicles (Travel Management Rule)
A Proposed Rule by the Forest Service on 06/18/2014
34678-34681
2014-14273
Section 212.1 Definitions
Section 212.80 Purpose and Scope
Section 212.81 Over-Snow Vehicle Use
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https://www.federalregister.gov/d/2014-14273
06/17/2014 at 08:45 am.
Between 1982 and 2009, the number of people who operated motor vehicles off road increased by more than 153 percent in the United States (“Outdoor Recreation Trends and Futures, a Technical Document Supporting the Forest Service 2010 RPA [Resources Planning Act] Assessment,” p. 135 (H. Cordell, 2012)). While both motor vehicle use and OSV [1] use are increasing in the National Forests and Grasslands, so are many other types of recreational activities. From 1982 to 2009, the number of people in the United States participating in viewing or photographing birds increased 304.2 percent, the number of people participating in day hiking increased 228.2 percent, the number of people participating in backpacking increased 167 percent, the number of people participating in fishing increased 36 percent, and the number of people participating in hunting increased 34 percent (id. at 135-36). Providing for the long-term sustainable use of NFS lands and resources is essential to maintaining the quality of the recreation experience in the national forests and grasslands.
The Forest Service is proposing to amend subpart C of the TMR to provide for management of OSVs on NFS lands consistent with the EOs and the court's order. Specifically, the Forest Service is proposing to amend subpart C of the TMR to require the responsible official to designate NFS roads, NFS trails, and areas on NFS lands where OSV use is allowed, restricted, or prohibited in administrative units or Ranger Districts, or parts of administrative units or Ranger Districts, where snowfall is adequate for OSV use to occur. The Forest Service is not proposing to remove the exemption for OSVs from subpart B because the Agency wants to preserve the discretion in subpart C to establish a system of routes and areas where OSV use is allowed unless prohibited or a system of routes and areas where OSV use is prohibited unless allowed. In contrast, subpart B Start Printed Page 34679requires designation of a system of routes and areas where motor vehicle use is prohibited unless allowed. Regardless of whether a unit or district establishes a system of routes and areas where OSV use is allowed unless prohibited or a system or routes and areas where OSV use is prohibited unless allowed, the decision would be based on an analysis of the impacts from the proposed designations and anticipated uses in accordance with subpart B, as modified in subpart C to provide for consistency in terminology. This information will be displayed for the public at local district offices.
Consistent with § 212.50(b) of subpart B of the current TMR, existing decisions that allow, restrict, or prohibit OSV use on NFS roads, NFS trails, or areas on NFS lands that were made under prior authorities (part 295 or subpart C) would remain in effect under the proposed rule and would not have to be revisited.
Analogous to § 212.52(a) of subpart B of the current TMR, the proposed rule would provide that public notice with no further public involvement would be sufficient if an administrative unit or a Ranger District has made previous administrative decisions, under other authorities and including public involvement, that allow, restrict, or prohibit OSV use on NFS roads, on NFS trails, and in areas on NFS lands over the entire administrative unit or Ranger District, or parts of the administrative unit or Ranger District, where snowfall is adequate for OSV use to occur and no change is proposed to these previous decisions. In short, existing OSV use determinations will remain in effect.
Current § 212.1 of the TMR defines an area as a discrete, specifically delineated space that is smaller, and in most cases much smaller, than a Ranger District. The definition for an area in the proposed rule would recognize that cross-country OSV use may occur across a broader landscape. As with evaluation of an area for other types of motor vehicle use using the designation criteria in § 212.55, evaluation of an area for OSV use using the designation criteria in § 212.55 may be holistic and need not address each route within the area, as OSVs will be able to travel cross-country within it.
Current § 212.1 also defines “designated road, trail, or area”. To avoid conflict with this terminology in subpart B, the proposed rule would add a definition for “designation of over-snow vehicle use.”
Current § 212.80 states that the purpose of subpart C is to provide for regulation of OSV use on NFS roads, NFS trails, and areas on NFS lands. The proposed rule would amend this section to require designation of NFS roads, NFS trails, and areas on NFS lands where OSV use is allowed, restricted, or prohibited. Consistent with § 212.50(b) in subpart B of the current TMR, the proposed rule would include a provision authorizing the responsible official to incorporate previous administrative decisions regarding OSV use made under other authorities in allowing, restricting, or prohibiting OSV use on NFS roads, on NFS trails, and in areas on NFS lands.
The proposed rule would amend § 212.81 to require designation of NFS roads, NFS trails, and areas on NFS lands where OSV use is allowed, restricted, or prohibited on administrative units or Ranger Districts, or parts of administrative units or Ranger Districts, of the NFS where snowfall is adequate for that use to occur, subject to the exemptions currently enumerated in § 212.81(b).Start Printed Page 34680
Consistent with § 212.52(a) of subpart B of the current TMR, § 212.81(b) of the proposed rule would provide that public notice with no further public involvement is sufficient if an administrative unit or Ranger District has made previous administrative decisions, under other authorities and including public involvement, that allow, restrict, or prohibit OSV use on NFS roads, on NFS trails, and in areas on NFS lands over the entire administrative unit or Ranger District, or parts of the administrative unit or Ranger District, where snowfall is adequate for OSV use to occur and no change is proposed to these previous decisions.
Except as modified by proposed § 212.81(b) governing prior comprehensive OSV decisions and proposed § 212.81(c) with respect to reference to the map displaying routes and areas where OSV use is allowed, restricted, or prohibited, § 212.81(c) of the proposed rule would apply the requirements governing designation of NFS roads, NFS trails, and areas on NFS lands in §§ 212.52 (public involvement); 212.53 (coordination with other governmental entities); 212.54 (revision of designations); 212.55 (criteria for designation of roads, trails, and areas); 212.56 (identification of designated roads, trails, and areas); and 212.57 (monitoring of effects of motor vehicle use) to designation of NFS roads, NFS trails, and areas on NFS lands where OSV use is allowed, restricted, or prohibited.
The title of § 261.14 would be changed from “Use by over-snow vehicles” to “Over-snow vehicle use.”
The Agency has considered this proposed rule under the requirements of EO 13132 on federalism and has concluded that the proposed rule conforms with the federalism principles set out in this EO; would not impose any compliance costs on the States; and would not have substantial direct effects on the States, the relationship between the Federal Government and the States, or the distribution of power and responsibilities among the various levels of government. Therefore, the Agency has determined that no further assessment of federalism implications is necessary at this time. Moreover, this proposed rule does not have tribal implications as defined by EO 13175, entitled “Consultation and Coordination with Indian Tribal Governments,” and therefore advance consultation with Tribes is not required.
This proposed rule has been reviewed under EO 12988 on civil justice reform. If the proposed rule were to be adopted, (1) all State and local laws and regulations that conflict with the proposed rule or that would impede its Start Printed Page 34681full implementation would be preempted; (2) no retroactive effect would be given to the proposed rule; and (3) it would not require administrative proceedings before parties may file suit in court challenging its provisions.
Start Amendment Part1. The authority citation for part 212, subpart A continues to read as follows:End Amendment Part
Start Amendment Part2. Amend § 212.1 by revising the definition for “Area” and adding a definition for “Designation of over-snow vehicle use” in alphabetical order to read as follows:End Amendment Part
§ 212.1 Definitions.
Designation of over-snow vehicle use. Designation of a National Forest System road, National Forest System trail, or area on National Forest System lands where over-snow vehicle use is allowed, restricted, or prohibited pursuant to § 212.81 on an over-snow vehicle use map.
Start Amendment Part3. Revise subpart C to read as follows:End Amendment Part
§ 212.80 Purpose, scope, and definitions.
§ 212.81 Over-snow vehicle use.
(c) Decision-making process. Except as modified in paragraph (b) and this paragraph, the requirements governing designation of National Forest System roads, National Forest System trails, and areas on National Forest System lands in §§ 212.52, 212.53, 212.54, 212.55, 212.56, and 212.57 shall apply to decisions made under this subpart. In making decisions under this subpart, the responsible official shall recognize the provisions concerning rights of access in sections 811(b) and 1110(a) of the Alaska National Interest Lands Conservation Act (16 U.S.C. 3121(b) and 3170(a), respectively). National Forest System roads, National Forest System trails, and areas on National Forest System lands where over-snow vehicle use is allowed, restricted, or prohibited shall be reflected on an over-snow vehicle use map.
Start Amendment Part4. The authority citation for part 261 continues to read as follows:End Amendment Part
Start Amendment Part5. Revise the heading of § 261.14 to read as follows:End Amendment Part
§ 261.14 Over-snow vehicle use.