Opinion ID: 159185
Heading Depth: 3
Heading Rank: 1

Heading: Adequate Access to Inholdings

Text: Access to private inholdings within Forest Service lands is governed by the Federal Land Policy Management Act (FLPMA), 43 U.S.C. §§ 1701-1782, the Alaska National Interest Lands Conservation Act, 16 U.S.C. §§ 3101-3233 (ANILCA), and accompanying regulations. See generally United States v. Jenks, 22 F.3d 1513, 1514-16 (10th Cir. 1994) (discussing the enactment of the FLPMA and the ANILCA). Title V of the FLPMA vests the Secretaries of Agriculture and the Interior with the authority to “grant, issue, or renew rights-of-way over . . . [Forest Service and public lands] for . . . roads, trails [and] highways.” 43 U.S.C. § 1761(a). Section 3210(a) of the ANILCA specifically addresses the right of access to privately owned inholdings within Forest Service lands: Notwithstanding any other provision of law, and subject to such terms and conditions as the Secretary of Agriculture may prescribe, the Secretary shall provide such access to nonfederally owned land within the boundaries of the National Forest System as the Secretary deems adequate to secure to the owner the reasonable use and enjoyment thereof: Provided, That such owner comply with rules and regulations applicable to ingress and egress to or from the National Forest System. 11 16 U.S.C. § 3210(a). The ANILCA thus grants inholders “a threshold ‘right of access to their lands subject to reasonable regulation.’” Jenks, 22 F.3d at 1516 (quoting Adams v. United States, 3 F.3d 1254, 1258-59 (9th Cir. 1993)). Accompanying regulations establish a permit system under which owners of inholdings must request permission for particular uses of Forest Service lands. See Jenks, 22 F.3d at 1517-18 (discussing permit system). Pursuant to the ANILCA regulations, the Forest Service must provide property owners with access that is adequate to secure reasonable use and enjoyment of their property. See 36 C.F.R. § 251.110(c). “Adequate access” to an inholding is defined as “a route and method of access to non-Federal land that provides for reasonable use and enjoyment of the non-Federal land consistent with similarly situated non-Federal land and that minimizes damage or disturbance to National Forest System lands and resources.” 36 C.F.R. § 251.111. The regulations further provide that in determining what constitutes adequate access, the Forest Service should consider the uses of other property in the relevant area: In issuing a special-use authorization for access to non-Federal lands, the authorized officer shall authorize only those access facilities or modes of access that are needed for the reasonable use and enjoyment of the land and that minimize the impacts on the Federal resources. The authorizing officer shall determine what constitutes reasonable use and enjoyment of the lands based on contemporaneous uses made of similarly situated lands in the area and any other relevant criteria. 36 C.F.R. § 251.114(a). A regulation enacted pursuant to the FMLPA and in effect at the 12 time of the Paulys’ application provided that a permit for the use of Forest Service lands may be denied if “[t]he use would otherwise be inconsistent with applicable Federal and State laws.” 36 C.F.R. § 251.54(i)(4) (1996). Accordingly, in deciding whether to issue a special use permit to the owner of an inholding pursuant to the FMLPA, the ANILCA, and accompanying regulations, the Forest Service must determine: (1) what uses of the property are reasonable; and (2) what access is adequate to allow for those reasonable uses. We must affirm the Forest Service’s decision to issue the permit unless those determinations are “arbitrary, capricious, an abuse of discretion, or otherwise not in accordance with law.” See Olenhouse, 42 F.3d at 1574 (quoting Citizens to Preserve Overton Park v. Volpe, 401 U.S. 402, 413-14 (1971)).