Opinion ID: 742736
Heading Depth: 3
Heading Rank: 2

Heading: Viability of Management Indicator Species (Count II)

Text: 37 One of the plaintiffs' primary challenges to the ALRMP relates to the provisions for protecting the habitat of certain forest interior species, particularly neotropical migratory songbirds. These birds, which include such species as the Scarlet Tanager, Cerulean Warbler, and Wood Thrush, generally breed in the United States and then migrate to Central and South America during the winter. Many of the species require a nesting and breeding habitat consisting of large blocks of unfragmented or closed-canopy, mature hardwood forest. 38 The ALRMP provides for the establishment of Forest Interior Management Units (FIMUs) to provide the critical habitat required by these birds. The ALRMP calls for 18 FIMUs of about 1,100 acres each. Seven are managed under Management Prescription 6.4, which provides for a 100-acre core within each FIMU that is exempt from management activities and requires that 750 acres of each FIMU consist of trees at least 50 years old. The plaintiffs allege that recent scientific evidence shows that the designated FIMUs are not large enough to ensure viability of these species. Thus, they have challenged the ALRMP under a variety of legal theories, each of which is discussed in turn.
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.)
50 The plaintiffs allege that Forest Service has violated NEPA because both the ALRMP and FSEIS fail to acknowledge the serious population declines of the neotropical migratory songbirds and because the Forest Service has not provided a meaningful discussion of the most recent scientific study regarding the habitat requirements of such species or of the cumulative effects that the various uses such as logging, oil and gas leases, and ATVs, will have upon the forest. The plaintiffs further argue that the FSEIS's projections of songbird populations are invalid because they are based upon outdated data. 51 Contrary to the plaintiffs' contention, the FSEIS does acknowledge the serious population declines of forest interior species and provides a detailed analysis of the scientific studies regarding appropriate habitat size for such species. (FSEIS App. at I-16--I-24.) What the Forest Service found was great scientific uncertainty regarding the issue. (FSEIS at 16-17 (Neither we nor the research community fully understand the effects of management activities on forest interior habitat.).) 52 The plaintiffs argue that the Forest Service has ignored the most recent scientific evidence presented in a 1989 study by Chandler S. Robbins, Deanna K. Dawson, and Barbara A. Dowell of the United States Fish and Wildlife Service. (Pls.' Ex. 3.) 6 To the contrary, this study is one of many reports and opinions analyzed by the Forest Service in response to concerns about the ALRMP's provisions for forest interior species. (FSEIS App. at I-17, I-19.) The real conflict between the plaintiffs and the Forest Service is with respect to the proper interpretation of the 1989 study and its implications for management in the Shawnee. 53 The plaintiffs focus on the 1989 study's suggestion that the ideal habitat to maximize all forest interior species would be 3,000 hectares (about 7,400 acres). The plaintiffs concede that the study suggests that smaller areas may be sufficient for some species and that the space needed for breeding success was also sometimes smaller. However, the plaintiffs interpret this study as demonstrating that even if 7,400-acre tracts are not possible, then management should strive for the largest tracts possible. 54 The Forest Service acknowledged the study's suggestion that 7,400-acre tracts were necessary to provide the highest probability that all types of forest interior birds would be found within that area. However, the study itself acknowledges that while some reserves of thousands of acres in size should be protected, [m]ost managers ... will be concerned with maintaining natural ecosystems, or remnants thereof, in tracts of a few square kilometers or much less. (Pls.' Ex. 3, at 30.) 55 In these instances, providing for optimum shape ..., habitat representation ..., minimization of isolation ..., and limitation of disturbance becomes extremely important. Beyond that, selecting portions of the richest and most productive habitats for inclusion in the core of an undisturbed tract should do much to protect the largest number of species of special concern. First and foremost, a forest preserve should be dedicated to the protection of the forest interior ecosystem, which for birds would include the area-sensitive species and wide-ranging species such as raptors. After providing adequately for the most sensitive species, plans can be added for other species and other habitats as space and funding permit. 56 (Pls.' Ex. 3, at 30.) 57 The Forest Service points out that the Shawnee falls into the latter category because [t]he land ownership patterns within our proclamation boundary ... make it apparent that providing Forest Interior Management Units of 3,000 hectares ... is nearly impossible. (FSEIS App. at I-19.) Based upon this discussion, it is evident that the Forest Service fully considered the 1989 study and its application to the particular circumstances of the Shawnee. Although the Forest Service found it impractical to create FIMUs that exceeded 7,400 acres in size, the agency did adopt some the alternative strategies suggested by the study, such as combining FIMUs with wilderness areas and prohibiting timber harvest and other disturbance activities within the core area of FIMUs. 58 The Court also finds no merit to the plaintiffs' similar contention that the Forest Service ignored the views of Scott Robinson, an ornithologist with the Illinois Natural History Survey. The Forest Service indicated that it agreed with the information in Robinson's reports but noted that the research is not yet completed, and as Dr. Scott Robinson points out ... 'no conclusions can be drawn on the effects of management at this time.'  (FSEIS App. at I-18.) Thus, contrary to the plaintiffs' allegations, this is not a case where the Forest Service has failed to respond to the opinions of a well-respected scientist. See Seattle Audubon Society v. Moseley, 798 F.Supp. 1473, 1479 (W.D.Wash.1992) (stating that an ElS that fails to respond to opinions of well-respected scientists concerning the hazards of a proposed action is fatally deficient). 59 The plaintiffs next challenge the cumulative impacts analysis of the FSEIS. 7 They contend that the Forest Service has not properly discussed the cumulative impacts of the various uses authorized by the ALRMP but, instead, has merely set forth a laundry list of individual effects. Upon careful review of the document, the Court agrees that its cumulative effects analysis does not meet the requirements of NEPA. 60 NEPA requires that every recommendation or report on proposals for legislation and other major Federal actions significantly affecting the quality of the human environment must be accompanied by a detailed statement that discusses, inter alia, the environmental impact of the proposed action and any adverse environmental effects which cannot be avoided should the proposal be implemented[.] 42 U.S.C. § 4332(2)(C) (1988). The Council on Environmental Quality regulations implementing NEPA provide that the scope of an EIS shall include a discussion of connected and cumulative actions and that a discussion of the impacts is to include direct, indirect and cumulative impacts. 40 C.F.R. § 1508.25 (1992). Cumulative impact is defined as: 61 the impact on the environment which results from the incremental impact of the action when added to other past, present, and reasonably foreseeable future actions regardless of what agency (Federal or non-Federal) or person undertakes such other actions. Cumulative impacts can result from individually minor but collectively significant actions taking place over a period of time. 62 40 C.F.R. § 1508.7 (1992). 63 The FSEIS for the ALRMP contains a section that purports to evaluate the cumulative effects of the proposed alternatives. However, the section is inadequate in two ways. First, the discussion fails to include all of the effects of the various activities that would be allowed under the ALRMP. For example, in discussing the impact that the proposed plan would have upon fish and wildlife, the FSEIS explains in great detail the effects of timber harvests and artificial openings, but only makes a brief passing reference to the minor effects of ATV use and contains no discussion whatsoever of the impact of oil and gas leasing or other minerals development. (FSEIS at 4-109 to 4-118.) 64 Secondly, and perhaps most significantly, the discussion fails to analyze the effects of the various activities in combination. For example, in discussing the impact that the proposed plan will have on forest interior habitat, the Forest Service provides (as the Sierra Club points out) a laundry list of adverse effects. (See FSEIS at 4-121.) However, there is no discussion whatsoever of whether these incremental effects, when taken together, will have a more serious impact. In other words, the FSEIS's analysis acknowledges, in one terse paragraph, that (1) timber harvest will lower nesting success of forest interior birds by increasing the amount of edge habitat, (2) use of ATVs will increase disturbances to nesting birds, and (3) minerals activity also could disturb nesting birds. (FSEIS at 4-121.) However, this does nothing more than restate what the FSEIS has already discussed in the direct/indirect effects analysis. The Forest Service never comes up with a cumulative assessment, i.e., there is no attempt to analyze the effects of (1), (2), and (3) to determine whether the sum of these incremental disturbances will create a significant detrimental effect. 8 65 The plaintiffs' final challenge is to the sufficiency of the data that the Forest Service relied upon in a computer program that was used to predict how the ALRMP would affect population levels of the various animal species. The computer program, known as HEP (Habitat Evaluation Program), estimates the population level of each species by multiplying the number of acres of suitable habitat for that particular species by the number of animals of that species that is estimated to exist per acre. The plaintiffs allege that the Forest Service improperly arrived at this latter estimate based upon outdated data in studies by ornithologist Dr. Jean Graber. As Dr. Graber explained in an affidavit filed in the administrative appeal of the ALRMP, the data from my studies is at least ten years old. The use of such data information in conjunction with vague projections of suitable habitat to establish present and future populations is scientifically unsupportable. (Pls.' Ex. 26 p 6.) Illinois Natural History Survey ornithologist Scott Robinson voiced the same concerns in a letter to the forest supervisor on February 8, 1988: 66 I do not feel that the Graber's population density estimates used for estimating minimum acceptable populations should be accepted as final. Dick and Jean Graber ... conducted many of these censuses long ago and in only a few parts of the Shawnee. Provisions should be made to redo many of the censuses to establish firmer population densities for each [management indicator species]. 67 (Pls.Ex.33.) 9 68 The Forest Service has not pointed to, and the Court is unable to find, any place in the administrative record where this specific issue was addressed. The Forest Service has adequately defended the use of the HEP computer program. However, the administrative record fails to respond to the sufficiency of the data that was fed into the program. As the plaintiffs point out, a computer program is only as reliable as its input; thus, they argue that if you put garbage in, you get garbage out. 69 The CEQ regulations state that the environmental information used by agencies in their decision-making must be of high quality. Accurate scientific analysis, expert agency comments, and public scrutiny are essential to implementing NEPA. 40 C.F.R. § 1500.1(b) (1992); see also 40 C.F.R. § 1502.24 (1992) (Agencies shall insure the professional integrity, including scientific integrity, of the discussions and analyses in environmental impact statements.); 40 C.F.R. § 1502.22 (1992) (where there is incomplete or unavailable information, agency must indicate that fact in the environmental impact statement). The Court recognizes that an agency's choice of methodology is entitled to substantial deference. See Louisiana ex rel. Fuste v. Verity, 853 F.2d 322, 329 (5th Cir.1988) (under the arbitrary-and-capricious standard, our deference to the agency is greatest when reviewing technical matters within its area of expertise, particularly its choice of scientific data and statistical methodology.). However, the Court is troubled by the Forest Service's failure to respond to the criticisms of two respected ornithologists who objected to the use of 10-year-old data. It is one thing to rely on data supplied by an expert even when other experts disagree; it is another thing to rely on an expert data when that very same expert criticizes the use of the data. The suspect nature of the underlying data is especially significant when taken into consideration with the evidence suggesting that the population of neotropical migratory birds has sharply declined during the last decade. 70 In briefing the issue as part of this Court's review, the Forest Service appears to take the position that it was proper to use 10-year-old data because no more recent information was available. However, as the plaintiffs point out, the 1986 Forest Plan for the Shawnee established certain monitoring and evaluation requirements for the Shawnee. One of the requirements was to monitor the population trends of management indicator species as a result of habitat changes. (1986 Land and Resource Management Plan at V-7.) Although the plan provided that some populations would be monitored through the use of habitat suitability models, the plan states that a number of species, including some of the neotropical migratory songbird species at issue in this case, were to be monitored annually and that the unit of measure would be populations; Song/sight census; Point count. Road and trail census. Transect count. (1986 Land and Resource Management Plan at V-8.) 71 The Forest Service argues that it is monitoring neotropical populations by participating in the Partners in Flight Program, using neotropical census data developed by the Illinois Natural History Survey, and using bird census data from the United States Fish and Wildlife Breeding Bird Survey. However, if this is so, there would appear to be no reason to rely on the 10-year-old Graber data if these programs have provided more recent, and presumably more accurate, data on the existing population levels of the targeted species. 72 For these reasons, the Court finds that serious questions exist with respect to the scientific accuracy of the FSEIS's projections of population trends for management indicator species. Absent a rational response to the ornithologists' criticisms and an explanation for the failure to compile more recent data through the monitoring required by the 1986 Plan, the Court finds that the reliance upon the 10-year-old Graber data to be arbitrary and capricious. 10 73 In a related argument, the plaintiffs have challenged the monitoring provisions set forth in the ALRMP. They contend that the ALRMP's monitoring requirements for management indicator species are inadequate because there is no provision for annual field surveys of population levels but instead appears to rely solely on HEP projections. (See ALRMP at V-5.) They argue that this level of monitoring is contrary to the requirements of the Forest Service's regulations, which provide that: Population trends of the management indicator species will be monitored and relationships to habitat changes determined. 36 C.F.R. § 219.19(a)(6) (1992). 74 Based upon the abbreviated description in the ALRMP, it is uncertain exactly what type of monitoring will be conducted. The plan simply states that there will be annual monitoring based upon [a]cres of suitable habitat and populations. (ALRMP at V-5.) This level of monitoring may be sufficient if the reference to populations means that the Forest Service will obtain updated estimates of the populations of the various management indicator species within the Shawnee for use in its computer habitat models. If, however, no field surveys or other means are used to obtain updated estimates, the ALRMP would provide no monitoring at all; in effect, the Forest Service would be merely recreating the HEP analysis each year based on the current acreage for each type of habitat. That type of theoretical guesstimate would not satisfy section 219.19(a)(6)'s mandate. 75 In order to monitor population trends and the relationship to habitat changes, the Forest Service must have actual data about current populations. The agency cannot rely solely on past population estimates. The Court, therefore, agrees with the plaintiffs that the ALRMP's monitoring provisions, as currently written, do not clearly provide for the type of monitoring required by the Forest Service regulations. It is the Forest Service's failure to document its monitoring activities that is arbitrary and capricious. Without such documentation and explanation, the Court cannot determine whether the monitoring activities themselves fail to comply with the regulations.
76 The plaintiffs argue that the ALRMP is invalid because it fails to comply with the Forest Service's mandate to ensure viability of certain forest interior species. For purposes of this lawsuit, the plaintiffs have focused mainly on the Cerulean Warbler, which is one of the neotropical migratory songbirds with special habitat needs as identified in the 1989 Robbins study. 77 As the plaintiffs point out, the Forest Service planning regulations provide 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). 78 For planning purposes, a viable population shall be regarded as one which has the estimated numbers and distribution of reproductive individuals to insure its continued existence is well distributed in the planning area. In order to insure that viable populations will be maintained, habitat must be provided to support, at least, a minimum number of reproductive individuals and that habitat must be well distributed so that those individuals can interact with others in the planning area. 79 Id. The regulation goes on to require the Forest Service to identify certain vertebrate and/or invertebrate species as management indicator species and to require that each planning alternative shall establish objectives for the maintenance and improvement of habitat for management indicator species ... to the degree consistent with overall multiple use objectives of the alternative. 36 C.F.R. § 219.19(a) (1992); see also 36 C.F.R. § 219.27(a)(6) (1992) (All management prescriptions shall [p]rovide for adequate fish and wildlife habitat to maintain viable populations of existing native vertebrate species and provide that habitat for species chosen under § 219.19 is maintained and improved to the degree consistent with multiple-use objectives established in the plan....). 80 The plaintiffs argue that the ALRMP fails to comply with this mandate because it does not provide the minimum breeding habitat for the Cerulean Warbler as identified in the 1989 Robbins study. As the plaintiffs point out, the 1989 study suggests that the minimum area for breeding for the Cerulean Warbler is 700 hectares (1,729 acres). (Pls.' Ex. at 25 (Table 5).) Because the ALRMP provides for FIMUs of about 1,100 acres in size, the plaintiffs argue that the plan does not meet the minimum breeding requirement for this management indicator species. 81 The Forest Service acknowledged the 1989 Robbins study when discussing the Cerulean Warbler's needs as part of the FSEIS. (FSEIS App. at H-21, I-17.) As part of its wildlife analysis, the Forest Service referred to the study's findings that the probability of detecting Cerulean Warblers is reduced by 50 percent in areas of 700 hectares in size. (FSEIS App. at H-21.) However, the FSEIS does not discuss the ramifications of this data in terms of maintaining the viability of the Cerulean Warbler, i.e., that the study suggests that the 1,100-acres FIMUs established by the ALRMP are about 630 acres smaller than required to supply the minimum breeding area for this species. Instead, the Forest Service uses its own mathematical formula, based in part on the outdated Graber data, to calculate that the ALRMP will support a minimum acceptable population level. (FSEIS App. at H-21 to H-22.) 82 The Court recognizes, as stated above, that the Forest Service's choice of methodology is generally left to its expertise. However, the Court finds it arbitrary and capricious to rely upon a generalized mathematical formula without at least some rational explanation as to why that method of calculating the minimum viable population is preferable to the calculations and methodology presented in the 1989 study. 83 Even more disturbing is the fact that the conclusions regarding Cerulean Warbler viability in the wildlife analysis and the FSEIS's environmental effects analysis are contrary to the Forest Service's statements in response to public comments about the ALRMP. For example, when asked about the size requirements set forth in the 1989 Robbins study, the Forest Service acknowledged that three species, including the Cerulean Warbler, require tracts larger than the 1,100-acre FIMUs provided for in the ALRMP. (FSEIS App. at I-19.) In response to another question, the Forest Service appears to concede that the size of its FIMUs will not support viable populations of certain species: 84 The current Forest Interior Management Units were developed as part of the Settlement Agreement signed by the Audubon Council of Illinois, the Illinois Department of Conservation, E. Allan Englehart and Sierra Club, et al., (1988). The boundaries were developed in cooperation with the Illinois Department of Conservation, Audubon Council of Illinois, the Illinois Natural History Survey, the Missouri Department of Conservation and the Association of Concerned Environmentalists. In many cases the boundaries of these units border on roads, private land, or other major breaks in the forest. In such cases moving these boundaries on a map would not effectively change what the organisms that use these areas experience. In other cases the boundaries could be increased some, but data presented by Robbins et al. (1989) indicates that little would be gained by doing so. They have developed a graph depicting the probability of finding a certain number of Forest Interior birds in an area of certain size. For instance, in an area of 1,100 acres (the minimum size of our forest interior management units) there is a 50% probability of detecting at least 8 species of forest interior birds. [A 50% probability of occurrence is the lowest Robbins suggests will still maintain breeding potential.] The 50% probability of detecting at least 9 species is not reached until an area is 2,322 acres in size, more than double the minimum size of our present forest interior management units. Clearly, increasing the size by even a few hundred acres gives little, if any, advantage. 85 (FSEIS App. at I-17.) However, in response to a comment that the FSEIS failed to demonstrate how minimum viable populations of forest interior species will be maintained, the Forest Service gave this almost schizophrenic statement: 86 We have revised the discussion of effects on Management Indicator Species in Chapter 4 of the FSEIS: all things remaining equal, our increases in habitat will result in increasing numbers of birds; and it is on that that we base our statement in the FSEIS. We know, though, that all things do not remain the same; factors beyond our control, and beyond our Nation's borders (severe loss of winter habitat), may make our habitat increases meaningless. We are doing what we realistically can do to help neotropical songbirds survive. 87 (FSEIS App. at I-19.) 88 Thus, while the Forest Service admits that its FIMUs are not large enough, according to the 1989 Robbins study, to provide sufficient breeding area for the Cerulean Warbler, the Forest Service makes no mention of this fact when discussing the viability of this and other forest interior species. Instead, the environmental effects analysis of the FSEIS suggests that the FIMUs should benefit forest-interior birds by reducing the amount of edge habitat available to avian predators.... However, with the alarming rate of nest parasitiem [sic] of cowbirds occurring on the Forest, even with these areas set aside ... it is likely that neotropical migrant birds will not show any population increases. (FSEIS at 4-121.) 89 The failure to reconcile these inconsistencies is fatal to the FSEIS's analysis. The purpose of NEPA's EIS requirement is to ensure that federal agencies consider every significant aspect of the environmental impact of a proposed action and to ensure[ ] that the agency will inform the public that it has indeed considered environmental concerns in its decisionmaking process. Baltimore Gas & Elec. Co. v. Natural Resources Defense Council, 462 U.S. 87, 97 (1983). The inconsistencies in the FSEIS make it impossible to determine whether the Forest Service is conceding or denying that its ALRMP will not provide for the viability of Cerulean Warbler because of the size of the FIMUs. As a result, the Court is unable to determine whether the agency considers its plan in compliance with the mandate of ensuring viability of management indicator species or whether the agency has justified its plan on other grounds. 11 The Court, therefore, finds that the FSEIS must be remanded to the agency to remedy this defect. 90 Although this conclusion resolves the issue for purposes of this lawsuit, several additional observations are in order. First, the Forest Service argues that the Sierra Club and Audubon Council agreed to 1, 100-acre FIMUs in the 1988 Settlement Agreement. However, as the Forest Service itself argues, the 1988 agreement provided that the ALRMP would be developed in compliance with NEPA and NFMA. Thus, if either of these statutes required a different result, neither the agency nor the environmental groups were bound by the guidelines set forth in the settlement agreement. Furthermore, the plaintiffs point out, and the Forest Service does not dispute, that plaintiff RACE did not sign the agreement and, therefore, is not bound by its provisions. And, finally, the language of the settlement agreement itself does not absolutely prohibit a breach; it merely provides that if one of the environmental groups appeals an issue upon which it had agreed as part of the settlement, the entire agreement was void as to that party. 91 Secondly, the Forest Service argues that the FIMU issue was already decided in Donham v. United States Forest Serv., No. 93-CV-4172-JPG (S.D.Ill. Jan. 24, 1995), and, therefore, the plaintiffs are collaterally estopped to relitigate it. Collateral estoppel applies, however, only when the same parties or their privies attempt to relitigate an issue. Kunzelman v. Thompson, 799 F.2d 1172, 1176 (7th Cir.1986). The prior decision involved only an individual plaintiff, Mark Donham, who was litigating his own individual claims pro se and who is not a party to this litigation. Donham is a member of RACE and courts have sometimes applied collateral estoppel where the parties are so closely aligned that they represent the same legal interest. Id. at 1178 (citations omitted). However, the Forest Service has made no attempt whatsoever' to demonstrate such a close alignment between Donham and RACE, or any of the other plaintiffs. 92 More significantly, the Donham opinion resolved only a very limited issue regarding the FIMUs, i.e., whether the Forest Service violated NEPA by failing to consider an alternative that featured 7,400-acre FIMUs. This Court held that the Forest Service properly declined to consider such an alternative because there was conflicting scientific evidence as to whether 7,400-acre tracts were necessary. Indeed, the 1989 Robbins study itself does not suggest that 7,400-acre tracts are required. It states that 7,400-acre tracts provide the maximum probability of occurrence for forest interior species; the study identifies much smaller tracts as the minimum area for breeding. Thus, the Donham lawsuit involved the question of whether the Forest Service should have maximized the habitat for forest interior species. This case, on the other hand, involves the very different question of whether the Forest Service has provided the minimum requirements to ensure the viability of a management indicator species. Thus, the doctrine of collateral estoppel does not apply.
93 The plaintiffs argue that the Amended Plan also violates the MBTA, which provides, in pertinent part, that it is unlawful to pursue, hunt, take, capture, kill, attempt to take, capture, or kill, possess, ... any migratory bird, [or] any part, nest, or egg of any such bird that is protected under the various migratory bird treaties to which the United States is a party. 16 U.S.C. § 703 (1988). The plaintiffs contend that an illegal taking or killing of migratory birds will occur because the ALRMP (1) destroys the essential habitat for neotropical migratory birds; and (2) directly kills such birds by allowing logging during neotropical bird nesting periods. 94 Contrary to the plaintiffs' first contention, a taking does not occur simply because of habitat modification or degradation. Seattle Audubon Society v. Evans, 952 F.2d 297, 302-03 (9th Cir.1991). Rather, the statute defines the term take as meaning to pursue, hunt, shoot, capture, collect, kill or to attempt any of these acts. 16 U.S.C. § 715n (1988); 50 C.F.R. § 10.12 (1994). Although a similar prohibition against taking in the Endangered Species Act (ESA), 16 U.S.C. §§ 1531-1543, has been construed to prohibit habitat degradation, that construction is based upon the broader definition that Congress gave to the term take. More specifically, the ESA defines take to include harm. 16 U.S.C. § 1532(19) ([t]he term 'take' means to harass, harm, pursue, hunt, shoot, wound, kill, trap, capture, or collect or to attempt any such acts); see also 50 C.F.R. § 17.3 (providing that for purposes of the ESA, the term  'harm' ... means an act which actually kills or injures wildlife. Such act may include significant habitat modification or degradation where it actually kills or injures wildlife by significantly impairing essential behavior patterns, including breeding, feeding or sheltering.). 95 The recent Supreme Court decision in Babbitt v. Sweet Home Chapter of Communities for a Greater Or., 115 S.Ct. 2407 (1995), supports this result. In Babbitt, the Supreme Court held that the Secretary of the Interior's interpretation of the Endangered Species Act to include habitat modification or degradation that actually kills wildlife was a reasonable interpretation of the statute. In reaching this conclusion, the Supreme Court found it significant that the word harm was included. The Supreme Court stated: 96 The statutory context of harm suggests that Congress meant that term to serve a particular function in the ESA, consistent with but distinct from the functions of the other verbs used to define take. The Secretary's interpretation of harm to include indirectly injuring endangered animals through habitat modification permissibly interprets harm to have a character of its own not to be submerged by its association. 97 Id. at 2415 (quoting Russell Motor Car Co. v. United States, 261 U.S. 514, 519 (1923)). As noted above, the statutory language of the MBTA differs from the ESA in that the word harm (along with the words harass, wound, and trap) is not included. This is strong evidence that the MBTA does not include a prohibition of habitat modification or degradation. 98 The plaintiffs next argue that the ALRMP will result in the killing of young migratory birds because it allows logging during the nesting season. Although the ALRMP prohibits logging in FIMUs during the nesting season to protect the nesting birds, this prohibition does not apply outside the FIMUs. (Compare ALRMP at IV-147 (prohibiting surface disturbing activities in Management Prescription 6.4 areas from April 1 to July 15) with ALRMP at IV-103 to IV-106 (no seasonal prohibitions for Management Prescription 2.1 areas).) The plaintiffs argue that the Forest Service, in calculating the population levels for forest interior birds, determined that their suitable habitat would include areas outside the FIMUs in addition to the FIMUs themselves. Therefore, the plaintiffs contend that the Forest Service must have assumed that these birds would nest outside of the FIMUs as well as within them. As a result, they contend that logging outside the FIMUs during the nesting season will result in the deaths of young migratory birds. 99 The Forest Service has failed to respond to this argument in any meaningful way. The Forest Service's brief makes the shrill declaration that Plaintiffs have not produced a shred of evidence that this purported taking or killing has occurred, will occur, or can occur. (Defs.' Consolidated Mem., Doc. 26, at 25 n. 11.) However, there is no attempt to respond to the plaintiffs' logical assumption that forest interior birds will be killed if they are nesting outside the FIMUs and there are no seasonal restrictions are placed on logging in these non-FIMU areas. Indeed, the Forest Service argues, with respect to another issue in its brief, that the FIMUs are not the only habitat used by these birds but, rather, that the FIMUs constitute the largest and the best neotropical bird habitat. (Defs.' Reply Brief, Doc. 36, at 4-5.) Thus, the Forest Service admits that it considers areas outside the FIMUs to be neotropical migratory bird habitat. 100 Based upon this discussion, the Court finds that the Forest Service has not adequately addressed the issue of whether the ALRMP will violate the MBTA by allowing logging outside the FIMUs during the nesting season. Accordingly, the Forest Service is directed to more fully address this issue upon remand.