Court protects frog from Freemont-Winema National Forest grazing

In a case with a long history, the Oregon district court enjoined grazing in a pasture on the Fremont-Winema National Forest to protect threatened Oregon spotted frogs and sensitive plant species. The frogs congregate in pools in late summer, and so do cattle.  The court found violations of both NFMA and ESA.

The court held that annual operating plans for grazing were arbitrary and capricious because they were based on a viability analysis that assumed planned levels of grazing instead of the actual trespass and unauthorized use that was occurring and causing damage. Thus the Forest Service couldn’t show that the AOIs met the requirement in the plan to manage for viable populations of these species.

It also remanded the biological opinion that the Fish and Wildlife Service had prepared on the allotment for the newly listed frog. The court found the no-jeopardy conclusion was not supported by the record because there was no scientific basis for a 35% forage utilization rate protecting the frog, it did not provide a rationale for using studies from other areas, and did not explain why it failed to consider non-lethal incidental take in the final BiOp when it had done so in the draft. The magistrate judge suggested the latter was “a strategic application of a measurement convention that results in less apparent OSF loss…”

A NEPA claim was dismissed because Congress has overridden the usual NEPA timing requirements for grazing allotment planning.

Court takes an interest in habitat connectivity – so should the Forest Service

Connectivity is a new buzzword in the 2012 Planning Rule. It is part of the requirement for ecological integrity, but the Forest Service seems reluctant to fully embrace it in its early revision efforts under the new rule.

On June 25th, the Arizona District Court invalidated a Forest Service grazing permit on the Coconino National Forest because the U. S. Fish and Wildlife Service failed to consider effects on habitat connectivity in areas designated as critical habitat for the Chiricahua leopard frog. The judge held (in Center for Biological Diversity v. Branton):

Viable dispersal corridors are needed to ensure that the Buckskin Hills can sustain a functioning metapopulation: without them, CLFs would be unable to spread from one stock tank to another, and would be unable to recolonize a stock tank should its local population die out (record citations omitted). Accordingly, adverse modification of the dispersal corridors would “appreciably diminish the value” of (the critical habitat unit). In short, the 2013 BiOp’s failure to account for the maleffects of livestock grazing in dispersal corridors renders its conclusion that the Proposed Action “should not significantly reduce or modify” PCE 2b (record citation omitted) arbitrary and capricious.

This was a project decision involving a listed species and critical habitat. However, the principles of metapopulation dynamics it recognizes should be equally applicable to NFMA requirements that forest plan components provide ecological conditions necessary for viable populations.   This opinion suggests that, where connectivity is necessary for an at-risk species, and where information about the connectivity value of specific areas is available, their locations should be identified in the planning process and probably given special protection by plan components.

In this case, a requirement in the forest plan to apply specific conservation measures to dispersal corridors might have saved this project. Moreover, fixing this project would not prevent the same thing from happening on other projects. This suggests that the Forest Service should amend the plan (which would be subject to the 2012 Planning Rule requirements for viability), or at least reinitiate consultation on the forest plan on critical habitat for this species (based on new information about effects – but wait – this is the 10th Circuit, where that is not required.) What should the Forest Service do?

FYI – Here’s what Defenders of Wildlife thinks the Forest Service should do about connectivity in its forest plans.  (I suppose I should explain that I did the work on this document on a contract, and that I contribute to this blog on my own time, so that I am not intending to represent the views of Defenders of Wildlife here.)

Collaborating with the enemy

This story reminded me of that use of this term:

The County Commission passed a resolution officially requesting the forest service immediately cease actions it has been taking since 2013 pertaining to grazing on Dixie National Forest.

The forest service actions protested include the gathering of data, conducting studies and preparing reports without the county’s involvement. The resolution further protests a cooperative relationship the forest service has engaged in with Grand Canyon Trust Inc., which the commission and the Utah Association of Counties maintain constitutes an improper relationship with nongovernmental organizations, or NGOs.

In its resolution, the County Commission “respectfully requests” the forest service discard any data, studies and reports prepared without notice and involvement of the county since 2013 and that the service coordinate with Washington County in any future action from the outset.

An undated letter from Mark Ward, senior policy analyst and general counsel for the Utah Association of Counties, (responding to an Aug. 18, 2014, forest action), supports and is made a part of Washington County’s resolution. In his closing, Ward wrote to the supervisors of Dixie National, Fishlake and Manti-LeSal forests, all affected by the Aug. 18 action:  ‘Forest Service should scrap the FS Initial Review, start over and next time, integrate NEPA (National Environmental Policy Act) into the process. After all, it is the stated policy of Forest Service to ‘fully integrate NEPA requirements into agency planning and decision-making,’ … and ‘apply (NEPA procedures) to the fullest extent practicable to analyses and documentation of Forest Service actions …’

NEPA doesn’t apply until you have an ‘action’ to propose, and the NEPA process is supposed to encourage review of the data used in evaluating the action (regardless of its source).  The cash-starved government is always looking for help in collecting data.  Is there a problem with this approach?

 

Feds oppose environmental group’s request for $1.4 million in legal fees

Here’s the link…

Below are a couple of excerpts..

The federal government is opposing an environmental group’s request for nearly $1.4 million in attorney fees stemming from a lawsuit over grazing in eastern Oregon.
The request is “prodigious” and “excessive” because the environmentalists have exaggerated their victories and inflated the amount of time they spent on the lawsuit, according to the government.
The Oregon Natural Desert Association challenged cattle grazing in the Malheur National Forest, claiming the practice was harming threatened steelhead.
Last year, ONDA reached a settlement with the U.S. Forest Service in which the agency admitted the group won several points of law during nearly a decade of litigation.
The group is now seeking about $1.4 million in compensation under federal laws that allow plaintiffs to recover their costs when they succeed in certain types of lawsuits against the government.

Maybe someone who understands this can help…
OK, so I get why their expenses are involved, but how does “exaggerating their victories” affect the taxpayer bottom line? Is it that if they win 1 of 3 counts, they get 1/3 of their expenses paid?

And

According to a litigation expert with the Forest Service, ONDA also wants to bill the government at premium rates for “work that does not require specific environmental expertise,” like scheduling.
For example, Becker seeks $315-$350 per hour for duties for which attorneys usually receive about $170-$185 per hour under federal law, the government said.
A Capital Press call seeking comment was not immediately returned.
Ranchers who were involved in the litigation have already settled their claims for attorney fees with the government. Last year, the government agreed to pay the ranchers $120,000 in attorney fees and costs.
A judge agreed that the federal government should have included them in the consultation process that determined how grazing affected protected species.

Again, there must be a story as to why the grazing folks were left out of the consultation process. I’m sure some random FS person didn’t wake up one morning and say, “hey, I know we should include them, but let’s leave them out!”

Indian Valley Meadow Restoration

Indian Valley, part of the Amador Ranger District, Eldorado National Forest, is being restored as a high elevation meadow, after decades of misuse. Grazing has ceased but, its impacts still linger. In the past, willows were removed and water was channeled away, causing increased erosion of these shallow and fragile soils. The water table has been lowered and the meadow hasn’t been able to support the vegetation that it used to.

Concentrating runoff by channeling the water causes increased erosion, especially when we have rain on snow events. There were significant impacts from the winter of 1996. This project aims to get the water to spread out, linger, and re-charge the water-holding capacity of up to 500 acres.

A system of catchment ponds, compacted soil plugs, and native plant re-vegetation will cause snowmelt runoff to spread out and slow the erosive power of concentrated water. This project has a history of being de-funded and handed off but, all things came together when Coca Cola offered up some cash, which led to some additional matching funds and collaboration. The Ranger District had to jump through all the NEPA hoops, as surveys had to be completed for endangered willow flycatchers, frogs and toads. The one impact they could not remedy is a historic road, which travels across the meadow. Relocation was made impossible, due to archaeological sites. Removal or closure would be politically impossible.

The willows have made a great comeback, since grazing ended. However, you can clearly see that the foreground vegetation is quite sparse. Raising the water table a few feet will lead to meadow restoration. The numerous braided side channels would re-charge the water table. There appears to be one of the historic man-made channels in this picture.

Here is what appears to be one of the natural side channels, which no longer is supplied with water, due to lowered water table, erosion, and channeling of the water. This restoration project appears to be a win-win situation for everyone.

Here is a non-Forest Service link to the project:

http://www.americanrivers.org/newsroom/blog/lhunt-20120920-indian-valley-meadow-restoration.html

Towering Peaks of Central Idaho

This will be the first of many postings to share my photography associated with our National Forests. I have worked on 23 National Forests across the country, in 11 states. The photos I took while working for the Feds will be available for free limited usage, if someone thinks it might help their cause. Others can be available matted and/or framed *smirks*

(Edit: Sharon wanted bigger!)

Several of these peaks in the Lost River Range of Idaho are over 12,000 feet.  I met this other detailer, who was doing wildlife surveys, and was shocked to learn that he was climbing part of the way up these mountains, looking for rare species. Yes, he was over 50 years old! I was doing aspen surveys, mapping, photographing and analysis, in support of a new grazing plan. It was in my power to recommend protective measures for the impacted aspen stands. Of course, everything that eats grass, eats aspen. I felt it was meaningful work.

A Look at Judge Smith’s Dissent on Sierra Framework Case

One good thing about the recent case is that because there was a dissenting judge (33% of total) we get to hear “both sides of the story” in the case. It sounds like the FS said that analyzing site specific projects impacts on fish made more sense than at the programmatic level. As I’ve said before, it’s hard to analyze impacts when you don’t know if, where, or when you will do a project, nor how it will be done. Judge Smith even quoted some similar thinking from the FEIS in his dissent, which I italicized below.

To analyze it more broadly, you have to make a host of assumptions, which are pretty much predicting the future. The best available science on our predictions of what will happen suggests that we are not too good at it. If we have a bad track record, making those assumptions and doing that analysis is not particularly enlightening or useful, and to some extent is a waste of taxpayer dollars compared to analysis when the details are known. One of the problems with having this debate- “how much and why”
about analysis – through court cases, is that it is never actually debated… judges have opinions and we move on. And as I’ve pointed out before 10th Circuit Roadless and 9th Circuit SNF seem to be going in different directions about site-specificity.

I don’t know if whether a judge is “liberal” or not affects their feelings about this case, as perhaps implied by the Bee reporter. If so, though, we could do a thought experiment about different random combinations of judges and potential outcomes.

The majority did refer to this note:

The Draft was criticized by the staff of the Forest Service’s Washington Office for Watershed, Fish, Wildlife, Air and Rare Plants. The staff wrote a letter complaining that there was no discussion of the effects of the logging and logging-related activities on fish:

Aquatic and Riparian: There needs to be a discussion of the effects of the new alternatives on riparian ecosystems, streams and fisheries. It is not sufficient to dismiss these effects as within the range of impacts discussed in the [2001] framework ․ without further analysis, given the activities proposed in Alternative S2. If the treatments [proposed in Alternative S2] will be sufficient to have their intended effect, there is a high likelihood that there will be significant and measurable direct, indirect and cumulative effects on the environment, which need to be analyzed and disclosed in this document.

To me, the depth of discussion in a programmatic document is really a NEPA question. If every time people wanted more discussion of something in a document and wrote a letter, that was absorbed by the court as a legitimate viewpoint, that would lead us into a even more massive quagmire.As far as I can tell, few people agree about the appropriate level of discussion for any impact, ever. The toggle switch for documentation is inevitably set to more.

Here’s
the link to the opinion.
Let’s look at what dissenting Judge Smith says:

Fourth, the majority incorrectly asserts that there is “no explanation” for the Forest Service’s decision to defer more in-depth analysis of individual fish species. See, e.g., Maj. Op. 1027. However, the Forest Service clearly did explain its reasons for deferring in depth analysis until more site-specific projects were identified. Specifically, in its Record of Decision, the Forest Service stated,

Our ability to strategically place fuel treatments for optimum effectiveness has been compromised by the set of complicated rules in the [2001 Framework]. The standards and guidelines in that [Framework] are applied at the stand level, rather than by land allocations․ Some of the rules are so detailed that they prescribe down to one acre what is allowed, and require measuring change in canopy to ten percent increments, which is not consistently practical with existing measurement tools. This fine-scale approach limits our ability to make significant progress. ․ [O]ur ability to strategically place fuels treatments on the landscape has been compromised by the complexity of rules [which allows] ․ more habitat [to be] lost to wildfire․ This decision is intended to reverse that trend.

Record of Decision at 8–9; see also Appellee’s Br. at 6. As a result, the agency explained that the 2004 EIS was being implemented to “assure the most efficient and appropriate use of government resources․” Record of Decision at 23–24. The Forest Service primarily argued not that providing more analysis would be entirely impossible, but rather that “there was insufficient information and analytic tools for a meaningful analysis․” Appellee’s Br. at 48 (emphasis added). Therefore, the majority should have concluded that it was well within the Forest Service’s discretion to determine that the benefits of deferring in-depth analysis of aquatic species to provide more meaningful analysis outweighed any delays in information.

If the Forest Service commits to a site-specific project in the future, without engaging in the required level of NEPA analysis, then Pacific Rivers might have a viable NEPA claim. Indeed, it is likely that “[t]he deficiencies noted by the” majority opinion (regarding analysis of fish) “are precisely the omissions the Forest Service will need to correct in order to comply fully with NEPA” at a later time. Block, 690 F.2d at 763; see also N. Alaska Envtl. Ctr. v. Lujan, 961 F.2d 886, 891 (9th Cir.1992) (approving a programmatic EIS that deferred detailed analysis until an application for a mining permit was submitted, but noting that “judicial estoppel precludes the Park Service from later arguing that it has no further duty to consider mitigation measures ․”).

Not only has the Forest Service affirmed many times that they plan to engage in further detailed analysis when specific projects are identified,7 but we have a legal duty to assume that the agency will perform that analysis. In Salmon River Concerned Citizens v. Robertson, we observed that courts should “assume that government agencies will ․ comply with their NEPA obligations in later stages of development.” 32 F.3d 1346, 1358 (9th Cir.1994) (quoting Conner, 848 F.2d at 1448).

B. The amount of programmatic, high-level analysis was sufficient to engage in informed decision-making regarding broad policies affecting all species, including fish.

The majority claims that the Forest Service “entirely failed to consider an important aspect of the problem” by not providing in-depth analysis regarding how the 2004 programmatic Framework would affect specific species of fish. Maj. Op. 1035 (citing Lands Council II, 537 F.3d at 987). But here, because the Forest Service chose to utilize a tiered NEPA analysis structure and implement a programmatic EIS, the relevant scope of “the problem” is whether the Forest Service “provide[d] ‘sufficient detail to foster informed decisionmaking.’ “ Friends of Yosemite Valley, 348 F.3d at 800 (quoting Lujan, 961 F.2d at 890–91). As discussed above, the majority is only able to claim otherwise by ignoring the proper standard of review and refusing to defer to the Forest Service’s discretion in determining the scope of its analysis. See Kleppe, 427 U.S. at 413 (agencies have discretion to “intelligently determine the scope of environmental analysis and review specific actions [they] may take”); Friends of Yosemite Valley, 348 F.3d at 800 (“[A] reviewing court [must] focus upon a proposal’s parameters as the agency defines them”) (alteration in original omitted) (quoting Block, 690 F.2d at 761). The scope of analysis in a programmatic EIS can include considerably less detail than in an EIS analyzing a site-specific project. See, e.g., Res. Ltd., Inc. v. Robertson, 35 F.3d 1300, 1306 (9th Cir.1993); Salmon River, 32 F.3d at 1357–58; Block, 690 F.2d at 761.

Thus, under the Forest Service’s tiered-analysis approach, the 2004 EIS provides sufficient high-level standards to guide future on-the-ground decisions affecting fish. These standards generally contemplate the relevant range of potential agency action and the consequences on various habitats in the Sierra Nevada. The 2004 Framework “begins by explaining that cumulative effects were analyzed in detail for the eight alternatives considered in the 2001 Framework.” Appellee’s Br. at 50. “It then identifies activities that have occurred” since the 2001 Framework, “including soil and water resource improvements, hazardous fuels reductions, wildfire suppression,” and road construction. Id.

Specifically regarding aquatic habitats (home to fish species), the Framework notes that these are one of the most “degraded of all habitats in the Sierra Nevada,” though much of the original problem was related to “lower elevation dams and diversions.” 1 SEIS at 3. The EIS observed that “[t]he greatest effects on the [a]quatic, [r]iparian and[m]eadow [e]cosystems will generally be from either mechanical fuel treatments or catastrophic wildfires.” Id. at 12, 96. “Fires can have extraordinary effects on watershed processes and, as a consequence, significantly influence aquatic organisms and the quality of aquatic habitats in many ways.” Id. at 208 (citation omitted).

These effects include “reductions in riparian shading and altered streamflows [that] can increase stream temperatures to extreme levels,” “[f]looding, surface erosion, and mass wasting ․ due to vegetation loss,” and “increases in sedimentation, debris flows, and wood inputs may occur” as well as “[c]omplete channel reorganization.” Id.

The Forest Service weighed “tradeoffs between potential aquatic ecosystem and water quality impacts from fuel management activities (mechanical treatment and prescribed fire) and risks associated with high severity wildfires.” Id. (citation omitted). It recognized that “with respect to aquatic ecosystems, there are arguments for and against the use of fuels treatments to reduce the extent and severity of future fires.” Id. (citation omitted). After providing this analysis, the EIS determined “alternatives that lower the risk of fire and have medium levels of treatment pose the least risk to aquatic and riparian system.” Id. at 12. Therefore, by allowing increased fuels treatments, the 2004 Framework would reduce the anticipated acres burned by just over 15% from the 2001 Framework. Id. at 98.

The Forest Service recognized that this approach “pose[d] higher short-term risks to aquatic resources because it prescribes larger amounts of mechanical treatments and greater treatment intensities.” Id. at 12, 97, 215. But the Forest Service concluded that this was mitigated by the expected long-term benefits to aquatic habitats resulting from reducing wildfires. Id. The Forest Service also asserted its intent to reduce any short-term threats through objectives listed in its “Aquatic Management Strategy,” best management practices, and goals related to “landscape-level conditions” and “land allocations” that would be applied during “project level analysis.” Id. at 12, 97, 207, 210, 215. It was reasonable for the Forest Service to defer more specific analysis of the proposal’s effect on aquatic species, because “[p]otential treatment effects on aquatic, riparian and meadow ecosystems are largely a function of the amounts, types, intensities, and locations of treatments and the standards by which they are implemented.” Id. at 210.

Although the majority correctly notes that the 2004 Framework anticipates considerably more logging in the forests, the majority ignores the fact that much of that logging may never occur. For example, 214 million board feet were offered for sale on average between FY 2000–2002, but only 118 million were actually sold—approximately 55%. Id. at 174–75. Similarly, only 58% of the fuel treatments projected under the 2001 Framework were carried out in the first three years of the Framework. Id.; Appellee’s Br. at 22–23. Therefore, the Forest Service reasonably concluded that it would be inefficient to perform a detailed analysis of the impact of activities that may never take place, and the 2004 EIS contains sufficient analysis of the probable consequences of increased fuel management at the programmatic level.

The 2004 Framework identified roads as another “critical component” of the risk and benefit “tradeoffs” to aquatic species, which include fish. 1 SEIS at 209. The EIS explained that roads are just behind wildfires in their potential effect on “aquatic ecosystems and water quality in forested environments.” Id. The EIS cited studies discussing how “roads can deliver more sediment to streams than any other human disturbance in forested environments.” Id. (citation omitted). However, the studies also indicated that “surface erosion from roads can be reduced through improved design, construction, and maintenance practices,” and “[p]roper road location, drainage, surfacing, and cut slope and fill slope treatments are important in limiting effects.” Id. (citation omitted). The Forest Service explained that the proposed “modest reduction in overall road miles, and improved road conditions,” subsequently adopted in the 2004 Framework, were some of “the most important aspects of reducing risks to aquatic resources.” Id. at 215.

The Forest Service determined that, because many details of actual on-the-ground activities were yet unknown, a more detailed analysis would be appropriately conducted when specific projects were identified. For example, the EIS explained that “actual locations and miles of roadwork[will] be determined through project-level planning and analysis.” 2 SEIS at 66. Changing the location of a proposed road by just a few hundred feet could make a substantial difference in the impact it had on riparian areas and on fish. A different location might have significantly different vegetation, soil type, and topography. Changing the location could even place a road in a completely different drainage basin, potentially impacting entirely different species of fish. See, e.g., Biological Assessment for SNFPA SEIS 146, July 30, 2003 (Paiute cutthroat trout found only in 14.5 miles of streams).

The EIS explained that “road management does not vary substantially between [the 2001 Framework and the 2004 Framework]. Under both alternatives, the ․ biological effects of roads, as previously described, would be reduced across the bioregion․” 1 SEIS at 212. The EIS further noted that, under the 2004 Framework, there would be a decrease in the net miles of roads. Id. (under the 2004 Framework, “1175 miles would be decommissioned and 115 miles of new road would be constructed”). Although the miles of reconstructed roads would almost double and may have short-term impacts, reconstructed roads would be expected to “improve water quality and aquatic habitat․” Id.

The 2004 EIS also provided analysis of the effects to watersheds from on-the-ground activity that the Forest Service might permit under the Framework. The Framework explained that, as a broad-based policy, future projects should remain protective of wildlife but strive for more effective reduction of hazardous fuels. See, e.g., Appellee’s Br. at 6, 9, 36, 54. It also identified activities that have occurred since the 2001 Framework, including soil and water resource improvements, hazardous fuels reductions, wildfire suppression, and road construction. Id. at 50. Based on this information, it analyzed combined or synergistic effects of the elements of the 2004 Framework on aquatic ecosystems and species, explaining that the 2001 and 2004 Frameworks are expected to have similar effects, because both alternatives are required to meet soil quality standards. Id. at 47–48.

Similarly, the EIS addressed the impacts of grazing with sufficient detail to satisfy NEPA on a programmatic level. As with logging and road construction, the Framework calls for a flexible approach based on specific conditions, rather than a full-scale analysis at this stage. The same 2001 standards will continue to be in effect and “are expected to reduce erosion of meadows and improve aquatic habitat conditions by facilitating the growth of stabilizing vegetation along streams.” 1 SEIS at 214. The 2001 and the 2004 Frameworks primarily differ in that changes to utilization and stubble heights may be allowed in the 2004 Framework when current range conditions are “good to excellent” (and after “rigorous[ ] evaluat[ion]”). Id. Monitoring requirements under this flexible approach will “minimize[ ] differences in effects on aquatic ․ ecosystems between the [2001 and 2004 Frameworks].” Id.

Thus, after recognizing the general impact that various proposals could have on the environment and the measures that could mitigate those effects in the programmatic EIS, the Forest Service reasonably deferred the detailed analysis of future site-specific projects. Based on this analysis, the Forest Service clearly did not “entirely fail[ ]” to consider an important aspect of the programmatic analysis required to provide informed decision-making. The majority may have preferred more specific analysis about individual fish species, but such preference is not a justifiable reason under NEPA to disregard the agency’s analysis as arbitrary and capricious.

These CEQ guidelines might be also considered from the recent ones put out for public comment:

Concise NEPA Documents
Agencies are encouraged to concentrate on environmental analysis in their EAs and EISs,
not to produce an encyclopedia of all applicable information.16 Environmental analysis should
focus on significant issues, discussing insignificant issues only briefly.17 Impacts should be
discussed in proportion to their significance, and if the issues are not deemed significant there
should be only enough discussion to show why more study is not warranted.18 Scoping,19
incorporation by reference,20 and integration of other environmental analyses21 are additional
methods that may be used to avoid redundant or repetitive discussion of issues.22
All NEPA environmental documents, not just EISs, should be written in plain language,23
follow a clear format, and emphasize important portions of the impact analysis over mere
background material. Clarity and consistency ensure that the substance of the agency’s analysis
is understood clearly, avoiding unnecessary confusion or risk of litigation that could result from
an ambiguous or opaque analysis. The CEQ Regulations indicate that the text of a final EIS that
addresses the purpose and need, alternatives, affected environment, and environmental
consequences should normally be less than 150 pages and a final EIS for proposals of unusual
scope or complexity should normally be less than 300 pages.24
In light of the growth of environmental requirements since the publication of the CEQ
Regulations, and the desire to use the EIS to address, via integration, those requirements, it is
recognized that there will be a range of appropriate lengths of EISs. Nevertheless, agencies
should keep EISs as concise as possible (continuing to relegate relevant studies and technical
analyses to appendices) and no longer than necessary to comply with NEPA and the other legal
and regulatory requirements being addressed in the EIS, and to provide decision makers and the
public with the information they need to assess the significant environmental effects of the action
under review. Length should vary with the number, complexity and significance of potential
environmental problems.

And

Incorporation by Reference
Incorporation by reference is another method that provides efficiency and timesaving
when preparing either an EA or an EIS. The CEQ Regulations direct agencies to incorporate
material into an EIS by reference to reduce the size of the EIS and avoid duplicative effort. An
agency must cite the incorporated material in an EIS and briefly describe the content. An
agency may not incorporate any material by reference in an EIS unless the material is reasonably
available for inspection by potentially interested persons within the time allowed for comment.64

The goal should be to conduct concurrent rather than sequential processes whenever
appropriate. In situations where one aspect of a project is within the particular expertise or
jurisdiction of another agency an agency should consider whether adoption or incorporation by
reference of materials prepared by the other agency would be more efficient.

Recreation – Sheepdog Safety

Akbash, a livestock protection dog used in the San Juan National Forest, has caused a stir among some trail users near Molas Pass. Here, Akbash belonging to Shane Nicolas herd sheep in the summer of 2010 in the Uncompahgre National Forest near Lake City.

In the interests of safety, I am posting this. I don’t know if this is the only part of the country where this is an issue. From the Durango Herald.

A simple solution to sheepdog encounters?

Education campaign planned to reduce high-country conflicts

Officials are betting that unnerving encounters with dogs guarding sheep in the high country could be reduced or eliminated through a public-education program to occur before flocks head for the hills in July.

Problem dogs in backcountry?

The plan emerged from a meeting this week involving the La Plata County Living With Wildlife Advisory Board and representatives of the U.S. Forest Service and Bureau of Land Management, the agencies that oversee livestock grazing on public land.

“I was impressed with the presentation of the agencies as well as the heartfelt and knowledgeable response of our board members,” Maureen Keilty, chairwoman of the wildlife board, said Wednesday. “I think we have a good focus and that our plan can be a model for public education.”

Among the elements of the informational plan:

A booth at the Durango Farmers Market where volunteers would explain the history of livestock grazing, the inherent nature and training of sheepdogs, and suggested trail etiquette on the part of hikers and mountain bikers.

A public forum at which stakeholders would give their point of view. The composition of the panel isn’t set but could include a rancher, a Forest Service or BLM representative, an advocate for wildlife and someone to speak for the trail-using public.

Informational signs at trailheads alerting visitors that dog-guarded sheep are grazing in the area. The signs were posted for the first time in 2011.

Maps at visitor centers, chambers of commerce and on BLM and Forest Service websites showing current locations of sheep, which are moved from one location to another.

Matt Janowiak, the Columbine District ranger for the Forest Service; Tom Rice, field manager at the BLM Tres Rios office in Dolores; and Ann Bond, Forest Service public information specialist in Durango, were at the meeting Tuesday.

Several run-ins with sheepdogs along the Colorado Trail around Silverton last summer prompted letters to newspapers recounting scary experiences, personal or retold, with guard dogs.

Several breeds of Turkish dogs, bred for centuries to protect sheep, are used by the six holders of sheep-grazing permits in the San Juan National Forest. The Akbash was the breed involved in the incidents.

Sheepdogs, including the Akbash, bond with their band by nature and don’t turn tail in the face of a threat. No one was bitten last summer.

Janowiak and Elena Cuevas, a member of the wildlife advisory board, who are familiar with the Akbash, said the breed isn’t vicious by nature. But sheepdogs have to be socialized as pups. Familiarity with people, other breeds of canines, farm animals and ranch equipment train them to distinguish a friend from a foe when guarding their flock.

Janowiak related how a rancher from Montrose who grazes sheep around Silverton removed and eventually put down an aggressive sheepdog. Since then, he’s used socialized dogs, and there’s been no problems, Janowiak said.

The BLM and Forest Service provide grazing allotments at several locations near Silverton, including Highland Mary Lakes, Whitehead Gulch, Velocity Basin and Grouse Gulch.

It was brought out at the Tuesday meeting that people who take dogs on federal land must have the pet under voice control or on a leash although there is no leash law.

The expanses where sheep graze in the national forest have no trails for motorized vehicles. But there are Forest Service or county roads that sheep cross from time to time.

Controlling predators with sheepdogs will resolve at least two issues of contention, Keilty said.

Dogs provide a nonlethal method to protect livestock in contrast to the U.S. Department of Agriculture APHIS Wildlife Service, which uses hunters to kill predators, Keilty said. Relying on dogs puts responsibility on ranchers, involves no taxpayer money and should find favor with animal lovers, she said.

APHIS stands for Animal and Plant Health Inspection Service.

The USDA service is expensive, costing county, state and federal funds, Keilty said. Ranchers also may be reimbursed for their losses.

The sheepdog solution also beats trapping and relocating predators, which rarely works, Keilty said.

Sunday Op-ed and Editorial Roundup from the Interior West

In today’s Sunday papers, The Denver Post and the Missoulian had three op-eds and an editorial of relevance to our usual topics. Ski Area Water Rights, 21st century conservation, private lands conservation and Tester’s bill. I lumped them together below and one separate in a separate post (restoration op-ed in the Missoulian), just to reduce my work here. Please feel free to comment on any or all of them.

One thing I thought was interesting was that in the Jon Christenson piece (third below), conservation easements protect the land from development by allowing the lands to be working for grazing, agriculture or timber. On federal lands, though, we were discussing if roadless is not adequately “protected” and only wilderness is really “protected” (albeit not from air pollution or climate change).

The recession presented land trusts with some great opportunities in recent years, as development stalled, and prime lands were available at distress-sale prices. But most of the growth has come through conservation easements, which are becoming ever more popular because they allow land trusts to protect land at an even lower price. “You pay 40 to 50 percent of the fee value of the land without any management costs,” explains Nita Vail, executive director of the rancher-led California Rangeland Trust. That’s because the landowners continue to own and manage their lands for grazing, agriculture, or timber.

These “working landscapes” — ranches, farms and timberlands — are now a priority for the majority of land trusts nationwide, according to the Land Trust Alliance survey.

Editorial- Denver Post #1

Editorial: The right to enjoy the land vs. ski resorts’ water rights
As water becomes increasingly scarce, it is important to bring clarity to the issue of who controls this resource at ski areas.
Posted: 01/15/2012 01:00:00 AM MST

By The Denver Post

The intensifying battle between the ski industry and the U.S. Forest Service over water rights is far more complicated and nuanced than it might seem at first glance.

It’s not necessarily a bad thing that the matter has landed in federal court so a judge can parse through the issues and apply the law fairly.

At the end of the day, we hope the rights of citizens to enjoy recreational opportunities on federal land are appropriately balanced against the financial interests of ski resorts.

We’ve heard a lot about ski industry contentions that new rules by the government amount to a “taking” of water rights they spent millions to acquire. The industry makes a compelling case.

Yet it’s important to keep in mind the government’s argument. The Forest Service says it is proposing regulations that clarify a 2004 change to ski permit conditions made during the Bush administration.

The government’s position is that water rights associated with ski areas should remain with the government even if the ownership of a resort or its business plans change.

An important point of disagreement between the ski areas and the government is this: Federal authorities contend the water rights at issue involve water that originates on federal land and didn’t have to be bought by the resorts. This rule doesn’t, they say, have anything to do with private rights bought by resorts.

That is to say, water from federal land that is permitted for use in snowmaking ought to remain with the property even if a ski resort were to be sold.

The National Ski Areas Association sees the water rights issue in a different light — one they construe as an effort to confiscate private property.

In a lawsuit filed last week in federal court, the industry group says the government is seeking control over water rights that ski areas obtain “from private lands or lands miles away from the ski area.”

These are vastly different interpretations of the proposed permit language that need to be resolved.

The federal courts are well-equipped to pull apart the complexities of water law and rule-making procedure. However, a better outcome would be a settlement.

We hope the parties can agree on a resolution of their differences over ski permit language without a protracted and costly legal battle.

Homes and businesses have sprouted up around ski runs built on federal land and people have come to expect access to these areas for alpine recreation. Those towns could be decimated by a decision that could allow water to be siphoned off for other uses.

As water becomes increasingly scarce, it is important to bring clarity to the issue of who controls this valuable resource at ski areas.

It would be a travesty if the future of the recreation that has so come to define Colorado were undercut by an unjust policy.

In my opinion, this lays out some of the basic principles and echoes my frequently stated “is litigation the best path?” question.

These two are about 21st century conservation (creativity needed!) on public and private lands:
Op-ed Denver Post #2

Guest Commentary: Conservation for today, and tomorrow
Posted: 01/15/2012 01:00:00 AM MST

By Tim Sullivan

The start of a new year is a natural time to turn our thoughts to the future. However, for the conservation organizations, local governments and state agencies protecting Colorado’s most special natural resources, thinking about tomorrow is already ingrained in everything we do. Every project we undertake must not only have a tangible result today, but provide benefits to Coloradans far into the future.

This past year, we continued to find a balance between meeting people’s immediate needs and ensuring nature continues to benefit us all in the long run. The state of the economy, increasing population, demands for water and energy, and a changing climate will be among the many complicated factors we need to consider as we look ahead. To solve these issues, innovation will be crucial.

One example of conservation work paying benefits long into the future is the restoration of unhealthy forests. There is no short-term fix, but it’s a problem we must address or future generations will face more severe fires, insect and disease outbreaks, and threats to our homes and water supplies that we simply cannot afford. This summer will mark a decade since the massive Hayman Fire. When it comes to preventing the next mega-fire, an ounce of prevention is truly worth a pound of cure. Colorado hosts a number of promising collaborative efforts between citizens, conservation groups, local governments and the U.S. Forest Service. These efforts help set priorities and resolve potential conflicts, allowing critical forest restoration work to proceed today, with benefits to be realized for years to come.

While Colorado is best known for our forests and mountains, the grasslands covering the eastern part of the state are a remarkable piece of our heritage. This rolling prairie landscape is home to many longtime ranching families, provides food for our urban populations, and sustains globally significant wildlife.

A mix of economic realities can make it difficult for land to be shared or handed down to sons and daughters who want to carry on the tradition. This year, a remarkable partnership helped address this issue while permanently protecting vital grassland habitat.

When a large ranch east of Colorado Springs went on the market, several families holding adjacent property expressed interest. However, the cost made it impossible for just one family to purchase. Using conservation easements and monies from the lottery-funded Great Outdoors Colorado, an innovative financial model was born where the land was purchased and split between four families. The result was a win-win for wildlife and the local ranching community.

While it may seem natural for ranchers to pass on their conservation ethic to the next generation, children living in urban areas often have limited opportunities to connect to the natural world. Creating connections between youth, wherever they live, and the natural world is essential to the future of our state.

Environmental education, volunteer opportunities and youth internships with conservation organizations will serve as the catalyst to engage a future cadre of environmental leaders.

We still face many challenges to ensure our children, and theirs after them, will experience the same wonders we enjoy — the iconic places, amazing wildlife and abundant resources of Colorado. I believe we are up to the challenge and together can create a future where the lands and waters on which all life depends are protected.

Tim Sullivan is state director of The Nature Conservancy in Colorado.

This one’s also from High Country News
Op-ed Denver Post #3

opinion
Recession is aiding the conservation of Western lands
Posted: 01/15/2012 01:00:00 AM MST

By Jon Christensen
High Country News

The Great Recession, it turns out, may have been good for one thing in the West: private land conservation. From the tiny Orient Land Trust in Colorado’s San Luis Valley, which has nearly doubled its holdings to 2,260 acres, to the 138,041 acres of ranchland protected by the California Rangeland Trust over the last five years, statewide and local land trusts in the West have done better than ever recently, even as many environmental advocacy groups continue to trim budgets and federal funding for conservation falters.

The federal Land and Water Conservation Fund, which agencies rely on to acquire valuable private lands, suffered a 38 percent cut and protected just over 500,000 acres over the last five years. During the same period, private nonprofit land trusts protected 20 times as much undeveloped land — 10 million acres nationwide, according to data in a new census of 1,700 land trusts in the national Land Trust Alliance.

Land trusts also grew in other ways, including a 19 percent increase in paid employees and contractors, a 36 percent increase in operating budgets, a 70 percent increase in volunteer numbers, and a near tripling of long-term endowments.

Land trusts protect land by either buying it outright or paying for a conservation easement, which restricts or removes the landowner’s right to develop open land. Landowners can also donate property and easements and then receive a break on their income taxes from the federal government and some state governments. The latest gains bring the total area protected by the nation’s land trusts to 47 million acres — more than twice the area covered by all of the national parks in the lower 48 states.

In fact, private land conservation is now shaping the future of much of the West as decisively as development. Land that is protected by conservation easements or bought by land trusts is legally required to be protected in perpetuity. And in recent years, local land trusts have been “saving more land than is lost to development,” says Rand Wentworth, president of the Washington, D.C.- based Land Trust Alliance. That pattern was apparent in the alliance’s last census five years ago, when new conservation barely edged out new development nationwide and in the West. It became much more dramatic during the recession, as new housing construction crashed and conservation efforts in most states continued to grow.

This trend is particularly strong in the Western states, where statewide and local land trusts conserved 2.6 million acres between 2005 and 2010, 30 percent more than they did from 2000 to 2005. These trends put California, Colorado and Montana among the top five states nationwide in total private land conserved. Arizona, Nevada and Wyoming made large gains compared to the previous period. And in Colorado, Montana and Wyoming, so much more rural land is now being conserved than is being developed that it seems that much of their open land will likely remain undeveloped.

The recession presented land trusts with some great opportunities in recent years, as development stalled, and prime lands were available at distress-sale prices. But most of the growth has come through conservation easements, which are becoming ever more popular because they allow land trusts to protect land at an even lower price. “You pay 40 to 50 percent of the fee value of the land without any management costs,” explains Nita Vail, executive director of the rancher-led California Rangeland Trust. That’s because the landowners continue to own and manage their lands for grazing, agriculture, or timber.

These “working landscapes” — ranches, farms and timberlands — are now a priority for the majority of land trusts nationwide, according to the Land Trust Alliance survey.

Whether the blazing growth of private conservation in the West will continue unabated is unclear, though. The recession may yet have lagging effects. Like her colleagues around the country, Vail worries about the loss of generous tax incentives for conservation easement donations, which are set to expire at the end of the year unless Congress acts to renew them.

Jon Christensen is executive director of the Bill Lane Center for the American West at Stanford University and wrote this for High Country News (hcn.org, where a longer version can be found). Also contributing were Jenny Rempel and Judee Burr, researchers at the center.

Finally this editorial from the Missoulian on the Tester bill.

Editorial Missoulian #4

Middle ground on forest bill

Posted: Sunday, January 15, 2012 8:00 am

It’s the beginning of a big election year, and the national spotlight is already shining on one of Montana’s U.S. Senate seats. Will Democratic incumbent Sen. Jon Tester be ousted by Republican Rep. Denny Rehberg? We’ll find out in November.

In the meantime, many Montanans are justifiably concerned that the next 10 months will be hopelessly politicized, with two of the state’s three congressional delegates tied up in campaign-caused gridlock.

In meetings with the Missoulian editorial board earlier this month, both Rehberg and Tester provided assurances that they will not allow that to happen. Both candidates pledged to remain focused on their jobs in Congress. And both declared that no amount of campaign politics would prevent them from working together to do what’s right for Montana.

In fact, during his meeting with the Missoulian, Rehberg mapped out a road to compromise with Tester on one of their biggest sticking points: the Forest Jobs and Recreation Act.

Tester first introduced the act in July 2009 at the urging of a diverse coalition of timber interests and environmental groups, and has made several running attempts to push the bill forward in Congress. The bill, which links aspects of the Beaverhead-Deerlodge Partnership, the Blackfoot-Clearwater Stewardship Project and the Three Rivers Challenge, is aimed at both designating new wilderness in Montana and setting logging mandates for the U.S. Forest Service.

Both Tester, a first-term senator, and Rehberg, a four-term congressman, have held multiple public meetings in communities across Montana to gather opinions on the proposal.

Those meetings resulted in several ideas that could be – and should be – used to improve the bill, Rehberg explained. One of them, he said, is the phase-in proposal he first began advocating for nearly a year ago. That measure would require that a treatment threshold for a set number of forest acres – say, 10 percent of the total outlined in the bill – be achieved before new wilderness and recreation areas could be designated.

Requiring logging or thinning triggers to be met before releasing new wilderness would help ensure that the bill actually does what it is aimed at doing – creating jobs, Rehberg said. As it stands, “there’s no such thing as a mandate for jobs in that bill,” he told the Missoulian.

While Tester has not been receptive to the phase-in suggestion – his spokesman has said previously that it would have no chance of gaining congressional approval – Rehberg invited Tester to take a second look at including the phase-in, and offered that he could “work with (Tester’s) bill if he can get something through the Senate and I can have this phase-in.”

Jobs are certainly a top priority in the nation and in Montana right now. Western Montana’s economy could use the boost this act would provide. While eastern Montana has been buoyed by the ongoing oil boom, western Montana has watched one mill after another shutter – including two in Missoula that once employed hundreds of workers.

We hold no illusions that incorporating a phase-in plan will resolve every one of Rehberg’s concerns with the Forest Jobs and Recreation Act. But it’s a place to start – a hand reached across the aisle at a time when Montanans desperately need our elected officials to pass legislation that provides real economic progress.

From the beginning, the proposals that ultimately became the Forest Jobs and Recreation Act were marked by compromise. They brought people with very different and often opposing interests to the same table to reach an agreement on what’s best for all.

It would be wonderful, and a wonderful reflection on Montana, if our junior senator and sole congressman were able to bring this same spirit of cooperation to Congress.

EDITORIAL BOARD: Publisher Jim McGowan, Editor Sherry Devlin, Opinion Editor Tyler Christensen

Not So Home on the Range


From the Aspen Times here.

Cattle grazing has plummeted locally with the rise of industrial tourism
December, 19 2011
Scott Condon
The Aspen Times
Aspen, CO Colorado
Editor’s note: Today’s fourth installment of the five-part Aspen Times series, “Land of Opportunity,” focuses on the state of ranching in the Roaring Fork Valley. The final part, scheduled to run Dec. 26, will examine gas companies’ interest in drilling prospects in the valley.

The Old West tradition of using national forest lands for grazing isn’t completely dead in the Roaring Fork Valley, but it could be on its last gasp.

For the first half of the 20th century, the Forest Service’s primary duty in the Roaring Fork River basin was to manage the range for livestock grazing and, to a lesser extent, oversee timber sales.

Now, instead of supervising the grazing of large flocks of sheep on Independence Pass and huge herds of cattle in nearly all the lower-elevation drainages, the Forest Service is focused on protecting natural resources in the wake of an expanding number of recreationalists. (Oil and gas development has emerged in the past decade as a leading issue on the west side of the White River National Forest.)

The decline in the use of forest lands for grazing mirrors the slow decline in the overall health of ranching in the Roaring Fork Valley. As Aspen built its reputation as a world-class resort and land prices soared, many ranchers discovered they could get richer selling their land for real estate development than by spending years wrangling cattle.

Declining number of grazing permits
As a result, the demand for grazing allotments has plummeted in the Aspen and Sopris ranger districts, which combine to total about 720,000 acres.

“At the present time, there are approximately 202,000 acres of the Aspen and Sopris ranger districts open to domestic livestock grazing. In 1985, there were nearly 100,000 more acres open to grazing than there are now,” said Wayne Ives, the range technician on the two districts since the early 1980s.

“The number of permittees has definitely declined,” he added.

Sheep grazing used to be prevalent in the upper Roaring Fork Valley. Aspen native Stirling “Buzz” Cooper, 80, recalls Bleeker Street being used as a route to take sheep from west of town to the railroad depot, which was located near what is now Rio Grande Park.

Cooper also recalled cattle being grazed as far up as the Weller Cut on Independence Pass when he was a kid. His family lived in a cabin east of Aspen. His mother got upset when the cattle were driven down in the fall one year and trampled the family garden and yard.

Even into the mid-1980s, there were two herds of sheep grazing in the Aspen area, one in Grizzly Creek and another in East Snowmass Creek. There were four herds using the Marble area for summer pasture, Ives said.

The number of sheep grazing permits issued by the Forest Service for the Aspen and Sopris districts fell from five in 1987 to one in 2011. The last remaining herd grazes on public lands in the Marble area. A typical herd had about 1,000 head of sheep, Ives said.

The number of cattle grazing permits in the Aspen and Sopris districts fell from 28 in to 16 in 2011.

Conflicts contribute to decline
The grazing allotments range in size from 2,000 acres for 46 cow-calf units permitted to 32,000 acres with nearly 1,000 cows with calves. The fee, set by Congress, varies with beef prices. It cannot be lower than $1.35 per cow and calf per month.

Ives said grazing allotments have historically been held by the same families for generations or have carried over with different owners of a piece of property. When a ranch surrenders an allotment, it often expires these days because there are so few ranches remaining in the valley.

Ranchers face additional challenges. Some national environmental groups oppose grazing on federal lands because of the degradation to streambeds, water quality and natural pastures. Other groups complain that the fee that is charged is too low and amounts to a subsidy for ranchers. In the Roaring Fork Valley, there are conflicts between cows, climbers, cyclists and hikers.

Ives noted that cows and backpackers both are attracted to Capitol Lake, which is a popular base for climbers going up Capitol Peak, one of Colorado’s mountains above 14,0000 feet. Camping spots are highly coveted around the breath-takingly beautiful lake.

“People don’t expect to see cattle there,” Ives said.

Grazing patterns get messed up
Carbondale rancher Tom Turnbull has held grazing permit on federal lands for more than 50 years. Lands administered by the Forest Service and Bureau of Land Management aren’t really the land of many users any longer, as once billed, he said. Mountain biking has become a dominate use outside of designated Wilderness, where motorized and mechanized uses are prohibited.

“Look at the impact that it’s had in areas like the Crown,” Turnbull said, referring to BLM land between the Roaring Fork River and Mount Sopris in the midvalley. The Crown has become a hot spot for mountain biking in the last decade.

“All the good main cattle trails have turned into bike trails,” Turnbull said.

His beef with biking is the effect it has on grazing patterns. The key to effective grazing is to spread the herd over the entire allotment. When cyclists regularly ride through lands used by cattle, it tends to encourage the animals to congregate.

Rory Cerise has helped move his cattle up from his family’s ranch in Emma to the Crown for more than four decades. His family has held a grazing right up there since 1944. He has witnessed the effects of the recreation boom on his family’s operation. Hikers and bikers on the Crown often leave gates open, forcing Cerise to track straying cows. He’s also witnessed equestrians chasing cattle, considering it harmless sport.

Conflicts became so bad on Basalt Mountain, another popular mountain biking site, that the permit holder asked the Forest Service to allow greater utilization of nearby lands in Cattle Creek. The allotment on Basalt Mountain hasn’t been used for a few years.

“The permittee just didn’t want to fight the battles anymore,” Ives said.

Grazing still big in Rifle, Meeker
White River National Forest Supervisor Scott Fitzwilliams said the forest used to be “one giant pasture.” While livestock grazing has declined in the Aspen, Vail and Summit county areas, it still thrives in the Rifle Ranger District and Meeker’s Rio Blanco Ranger Districts.

In 2010, Fitzwilliams’ office issued permits for 16,270 cattle and 43,290 sheep on 92 grazing allotments throughout the forest. The White River collected $103,917 for grazing permits.

Fitzwilliams said he believes it is important for the forest to continue to provide summer grazing lands to help keep the ranching industry economically viable. The private lands of the ranches provide the public benefits of open space, wildlife habitat and checks on urban sprawl.

“I see it well into the future. Public land grazing is going to be part of the West,” Fitzwilliams said.

How much it remains a part of the Aspen and Sopris districts after the current generation of ranchers retire remains to be seen.

Note from Sharon:
I don’t know about the use of the term “industrial recreation” in the title; sounds like it’s mountain bikers and others. I wonder what makes recreation “industrial”, just large numbers? /em>