Opinion ID: 742736
Heading Depth: 4
Heading Rank: 1

Heading: Relative Values Analysis

Text: 39 The plaintiffs first argue that the Forest Service has failed to recognize that the Shawnee is the only location in Illinois that can realistically provide suitable nesting and breeding habitat for neotropical migratory songbirds. Therefore, under the relative values analysis required by the MUSYA, the plaintiffs argue that the Forest Service should have ensured that the ALRMP provided for protection of the largest FIMUs possible and should have avoided uses that detract from the value of the forest interior habitat for these species, such as logging, ATV trails, wildlife openings and oil and gas leases. Although these other activities are valid multiple uses, the plaintiffs argue that the Forest Service should have ensured that they take place outside the FIMUs. 40 The plaintiffs' chief complaint is that the ALRMP allows for artificially created openlands within the FIMUs (but outside the FIMU's 100-acre core) to provide habitat for openland species. As a result, they contend that the ALRMP gives equal treatment to openland species and forest interior species despite the fact that the latter are diminishing in number. They argue that this equal treatment turns the relative values analysis on its head because the Shawnee provides a unique opportunity to provide forest interior habitat that is not available on surrounding private lands within Illinois. They assert that openland species, by comparison, are abundant in Illinois and many are generalists that can exist in forest interior environments as well. 41 A review of the Record of Decision and the Final Supplemental Environmental Impact Statement (FSEIS) for the ALRMP demonstrates that the Forest Service did make a proper relative values analysis. In stating his reasons for adopting Alternative 5 as the ALRMP, Regional Forester Marita first noted the conflict between interior forest species and openland species. (ROD for ALRMP at 15.) He recognized that some people believe that the Shawnee should provide a variety of ecological conditions and wildlife habitats, including openlands, while: 42 [o]ther people say that the primary role of the Shawnee National Forest should be to provide forest-interior conditions that are so rare in Illinois. These people are concerned about the drastic population declines for several migrant birds, and believe that the Forest Service should not use practices that create additional openings in the forest canopy. 43 (ROD for ALRMP at 15.) Thus, the regional forester was well aware of the relative value of this resource. (See also FSEIS App. A-7 (acknowledging that if unfragmented habitat is to be retained for forest interior species in Illinois, the Shawnee National Forest is where most will be located.)) Accordingly, he stated that Alternative 5 was especially important to him because of its emphasis on providing habitat for forest interior species. (ROD for ALRMP at 15.) 44 But adoption of the ALRMP did not turn on this fact alone; the regional forester also had to consider the competing interests in providing openlands habitat. Therefore, he elected to proceed with a compromise plan that would serve both interests. (ROD for ALRMP at 15 (I selected alternative 5 because it will enhance the overall biodiversity of the Shawnee National Forest and provide a variety of habitat for both non-game and game wildlife species.)) This decision was supported in part by the Forest Service's regulations requiring that [f]ish 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 (1992); see also 16 U.S.C. § 1604(g)(3)(B) (1988) (requiring land management plans to 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....). As the Forest Service points out, [o]bviously this includes openland-dependent animals as well as forest dwellers. (FSEIS App. I-29.) 5 Failure to provide for openland habitat would mean that over the long term, National Forest System lands would not be able to support minimum viable populations of these species. (ROD for ALRMP at 17.) 45 The decision also was based upon recreational interests served by openlands. The Record of Decision states that openings will be managed with special emphasis on the needs of deer, turkey, and quail that provide enjoyment for the many hunters who use the Shawnee National Forest. (ROD for ALRMP at 14-15.) However, the Forest Service also stated that openings provide recreational opportunities for hikers, campers, wildlife watchers, and general enthusiasts as well. (FSEIS App. at I-27, I-30.) The Record of Decision also notes that failure to maintain any openings would not allow the Forest Service to cooperate with the Illinois Department of Conservation on a program to reintroduce ruffed grouse in the Plank Hill area. (ROD for ALRMP at 17.) 46 The plaintiffs contend that openland species are abundant in Illinois and, therefore, protection of openland habitat fails to recognize the relative value of this resource in relation to the rare opportunity to provide forest interior habitat. However, a review of the record shows that the Forest Service did in fact evaluate the relative value of openlands in the local area: 47 We recognize that private lands include large areas of openland near the Forest. These openlands, however, are generally not high-quality habitat for openland species: they lack native plant species[,] diversity and management to maintain openland diversity, are frequently overgrazed, and much is harvested and plowed in the autumn.... We will consider natural openland and high-quality privately owned openland habitat when determining whether to establish or maintain openings.... Our priority is to use naturally occurring openland and old fields to meet openland habitat needs where possible. But in some areas, where private lands, herbaceous openlands or old field successional habitat are not fulfilling the need, artificial openings are and will be used to provide habitat for openland-dependent species. 48 (ROD for ALRMP at I-29 (citations omitted).) The Forest Service further noted that the forest openings may attract deer from surrounding lands to be harvested by hunters, thereby benefitting adjacent landowners by reducing some of the deer abundance on their lands. (ROD for ALRMP at I-29.) Implicit in this statement is the acknowledgment that hunting opportunities exist primarily upon public lands. Therefore, to meet this recreational demand in southern Illinois, it is necessary to ensure that openland species are preserved on forest land even though they may also be present on nearby private lands. 49 In short, the ALRMP was based upon due consideration of the relative values of both the neotropical migratory songbirds and openland species. Having reached this conclusion, the Court cannot second-guess the Forest Service's decision to emphasize a mix of uses rather than following the plaintiffs' suggestion that the forest be managed primarily for forest interior species. To the contrary, the Forest Service's attempt to strike a careful balance between both forest interior species and openland species is well-reasoned and rational, particularly in light of the scientific uncertainty regarding the management of forest interior species. As the Forest Service explained, [t]he fact that we do not know all the answers yet is one reason why we are managing Forest Interior Management Units to minimize fragmentation, even though we're not sure that that will help insure the long term viability of forest interior birds throughout the Shawnee. (FSEIS App. at I-18.)