[Federal Register Volume 59, Number 32 (Wednesday, February 16, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-3358]


[[Page Unknown]]

[Federal Register: February 16, 1994]


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Part III





Department of Agriculture





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Forest Service



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36 CFR Parts 261 and 262



Prohibitions: Law Enforcement Support Activities; Proposed Rule
DEPARTMENT OF AGRICULTURE

Forest Service

36 CFR Parts 261 and 262

RIN 0596-AA75

 

Prohibitions; Law Enforcement Support Activities

AGENCY: Forest Service, USDA.

ACTION: Proposed rule.

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SUMMARY: This proposed rule would provide a comprehensive revision of 
the acts prohibited on the National Forest System enforced by personnel 
of the Forest Service. These proposed revisions respond to emerging law 
enforcement issues, the enactment of new laws, and the promulgation of 
new rules that have occurred since the subject rules were last revised. 
The intent of these rules is to adequately protect National Forest 
System resources, the public who uses the National Forest System, and 
the employees who administer it. Public comment is invited.

DATES: Comments must be received in writing by April 18, 1994.

ADDRESSES: Send written comments to F. Dale Robertson, Chief (5300), 
Forest Service, USDA, P.O. Box 96090, Washington, DC 20090-6090.
    The public may inspect comments received on this proposed rule in 
the Office of the Director, Fiscal and Public Safety Staff, room 605, 
1621 North Kent Street, Arlington, VA, during regular business hours (8 
a.m. to 4:30 p.m.), Monday through Friday.

FOR FURTHER INFORMATION CONTACT:
Jack Gregory, Law Enforcement and Investigations Staff, (912) 267-2471 
or Kathryn Toffenetti, Office of the General Counsel, Natural Resources 
Division, (202) 720-2651.

SUPPLEMENTARY INFORMATION: 

Law Enforcement Activities on the National Forest System

Promulgation of Rules

    In order to carry out the agency's statutory mission, it has long 
been necessary to promulgate rules setting forth those acts that are 
prohibited on the National Forest System. These rules are integral to 
Forest Service efforts to protect resources, facilities, employees, and 
the public. The primary authority for the Secretary to promulgate such 
rules is found at 16 U.S.C. 551. Violators of these rules can be 
punished by imprisonment for a term not to exceed six months and are 
subject to a range of fines as a result of the enactment of the 
Comprehensive Crime Control Act of 1984 (18 U.S.C. 3559, 3571).

Jurisdiction of National Forests

    Both Federal and State laws apply to the national forests (16 
U.S.C. 480), that is, both Federal and State criminal and civil 
jurisdiction apply to persons within the national forests. Generally, 
State enforce State laws, while Federal officers enforce Federal laws 
and regulations. In most cases, the Forest Service enforces laws and 
regulations relating to its resource protection responsibilities. Some 
prohibitions established in certain State laws may also be appropriate 
subjects of Federal regulation. There are several Forest Service 
prohibited acts that rely on the existence of a particular State law 
for definition, for example, 36 CFR 261.13(i) prohibits the operation 
of any vehicle off Forest Development, State or County roads ``in 
violation of State law established for vehicles used off roads.'' Thus, 
in some instances, an act or omission by a national forest visitor may 
be regulated by both Federal and State governments.
    Forest officers cooperate fully with State, local, and other 
Federal agencies in executing their responsibilities related to the 
National Forest System. With the enactment of the Cooperative Law 
Enforcement Act in 1971 (16 U.S.C. 551a), the Forest Service has 
entered into reimbursable agreements with some State and local agencies 
(usually a county sheriff's office) for the protection of persons and 
their property on the National Forest System where the existence of 
forest attractions and facilities account for an extraordinary amount 
of visitor use. These agreements provide an avenue to assist local 
jurisdictions that are impacted by these attractions. During the past 
several years, however, it has become evident that reimbursement 
through the Cooperative Law Enforcement program cannot alone provide 
the level of protection that should be afforded the public in Forest 
Service recreation areas. For example, when a forest visitor is 
victimized by theft of personal property or an assault and the local 
enforcement authority is unable to respond, there are often trained and 
equipped Forest Service law enforcement personnel in the immediate area 
at the time of the incident. These victims are often assisted by Forest 
officers who initiated what action they can, given the current scope of 
the prohibitions.

Need For Revision of Rules

    Pursuant to Departmental Regulation 1512-1, the Forest Service has 
reviewed 36 CFR Part 261--Prohibitions and 36 CFR Part 262--Law 
Enforcement Support Activities to determine their current applicability 
in view of new and changing laws, conditions, and other factors 
affecting the management of the National Forest System, employees, and 
the general public. By letter of September 8, 1987, the Chief of the 
Forest Service asked each Regional and Washington Office staff unit to 
review the current rules and to make suggestions on any needed 
revisions. This Service-wide review has revealed a need to revise the 
rules in order to more effectively respond to recent changes in laws, 
regulations and policy, and emerging law enforcement issues.

Protection of Forest Users and Visitors

    Without exception, Forest Service regions cited an inadequate 
regulatory basis for conducting law enforcement activities in certain 
areas when State and local authorities are unable to provide law 
enforcement services associated with violations of State or local law 
occurring on the National Forest System. This situation occurs as a 
result of a number of factors, one being the inability of small local 
law enforcement agencies to respond quickly to all but the most violent 
of crimes against users (murder, rape and other assaults). Many local 
law enforcement agencies find that their limited personnel, the distant 
location of Forest Service areas, and the seasonal nature of use these 
areas receive are impediments to rapid response to crimes committed on 
the National Forest System. When State and local law enforcement units 
cannot respond promptly, and trained and equipped Forest officers are 
at a location where persons need help or encounter criminal activity 
affecting those persons, the Forest Service should be in a position to 
render emergency assistance. Because Forest officers generally cannot 
enforce State laws, the agency needs rules which will make certain 
State crimes violations of Forest Service regulations. The authority 
provided by 16 U.S.C. 551 allows regulating occupancy and use even if 
such regulation is not necessary for the protection of forest resources 
(United States v. Hymans, 463 F.2d 615 (10th Cir. 1972)). To prohibit, 
for example, the theft of visitors' personal property is a reasonable 
regulation of the use of the forests and should help to keep visits to 
the national forests enjoyable.

Expanded Forest Service Law Enforcement Authority

    There is a need to revise the regulations to reflect expanded 
authority granted by statutes enacted since the rules were last 
revised, specifically, certain provisions of the Comprehensive Crime 
Control Act of 1984 (18 U.S.C. 3559, 3571), and the National Forest 
System Drug Control Act of 1986 as amended (16 U.S.C. 559b-g).

Technical Corrections

    There is a need to make technical corrections in terminology and 
citations in several places in the rules, including revising the 
Authority citations for both parts.

Felony Case Prosecution Requests

    There is a need to incorporate certain statutes contained in the 
Federal Criminal Code into agency rules to facilitate enforcing such 
statutes as misdemeanors rather than as felonies. This will help reduce 
agency felony case prosecution requests presented to the U.S. 
Department of Justice as well as provide for a speedier resolution of 
certain cases. Examples of these kinds of cases include intimidation 
and impersonation of Forest Service employees, use of controlled 
substances, unauthorized use of Forest Service computer systems, and 
thefts of certain government property or resources.

Section-by-Section Analysis of Proposed Rule

    The proposed rule would amend two parts of Chapter II of Title 36 
of the Code of Federal Regulations: Part 261--Prohibitions, and Part 
262--Law Enforcement Support Activities. A section-by-section 
discussion of the changes proposed to each part follows.

Part 261--Prohibitions

    Subpart A of this part sets forth acts and omissions that are 
prohibited throughout the National Forest System. Subpart B grants 
authority to Regional Foresters and Forest Supervisors to issue orders 
and regulations prohibiting certain acts in specific areas.

Subpart A--General Prohibitions

Section 261.1  Scope
    This section establishes when the prohibitions of the subpart 
apply. The punctuation in paragraphs (a)(1) through (a)(4) would be 
revised to make clear that the conditions set forth in Sec. 261.1(a) 
are in the alternative (i.e. that all conditions need not apply, just 
any one of them).
    Paragraph (a)(3) currently provides that the rules of the subpart 
apply to an act or omission that affects, threatens, or endangers 
persons using the National Forest System or Forest development roads or 
trails or persons engaged in the protection, maintenance, or 
administration of such. As written, the rule protects Forest Service 
employees only when they are engaged in their duties and does not apply 
to situations where Forest Service employees are threatened or 
intimidated during ``off-duty'' hours as a result of an action taken 
while they were on duty. This situation can be remedied by revising 
paragraph (a)(3) to refer in paragraph (a)(3)(ii) to threats to or 
endangerment of persons engaged in or on account of the performance of 
official duties including the administration of the National Forest 
System.
    Existing paragraph (a)(4) would be revised to clarify that these 
regulations apply within the boundaries of those components of the 
National Trails System or the National Wild and Scenic Rivers System 
that are administered by the Forest Service.
    A new paragraph (a)(5) would be added to provide the agency a means 
of protecting personal property of forest users in the absence of a 
response by local law enforcement agencies. At present, if a forest 
user has personal property stolen or damaged (for example, an ice chest 
or sports equipment) the Forest Service must rely on State or local law 
enforcement personnel to investigate and charge the person responsible. 
However, in many cases, local law enforcement agencies do not have the 
resources to investigate these cases in a timely manner, and while the 
Forest Service has authority to investigate the case, it presently has 
no basis in its regulations for charging a person with misdemeanor 
theft. This is understandably a source of frustration to forest 
visitors victimized by theft, especially when trained and equipped 
Forest officers may be in the area where the theft or incident occurred 
and are able to identify the person(s) responsible. This addition to 
the rule would bridge this gap in law enforcement in those cases where 
local law enforcement agencies cannot respond in a timely manner.
    Paragraph (b) of existing Sec. 261.1 exempts certain activities 
allowed for by statute that otherwise may be a violation of this part. 
The paragraph currently cites The Wilderness Act of 1964 and the Mining 
Law of 1872. The provisions of other laws which would also apply are 
not included. The paragraph would be revised to make clear the agency's 
intent to exempt from the prohibitions of this part any activity that 
is conducted in compliance with other regulations set forth in chapter 
II.
    A new paragraph (c) would be added to make clear that the existence 
of these rules does not prevent the Federal Government from proceeding 
with necessary criminal action codified in Federal statutes rather than 
under these regulations. This revision is necessary to comport with the 
fact that the United States Department of Justice determines when the 
Federal Government should pursue criminal sanctions under Federal 
statute.
    A new paragraph (d) would be added to clarify that unless intent is 
stated in specific provisions, strict liability applies to these 
regulations. The prohibited acts set forth in 36 CFR part 261 are 
offenses in the nature of neglect where the law requires care, or are 
offenses in the nature of inaction where the law imposes a duty 
(Morisette v. United States, 341 U.S. 262 (1952)). Such offenses 
``render[s] criminal a type of conduct that a reasonable person should 
know is subject to stringent public regulation and may seriously 
threaten the community's health or safety,'' (Liparota v. United 
States, 471 U.S. 419, 426 (1985)). Thus, for example, a prohibition of 
unauthorized livestock on national forest land without regard to 
whether a person intended to place such livestock there would tend to 
ensure that a person exercises diligence to prevent resource damage. A 
person should know that the use of Federal lands is subject to 
stringent regulation, and that action or inaction in violation of such 
regulations can cause irreparable harm to the public or the land and 
its resources.
    No other revisions are proposed to this section.
Section 261.1a  Special Use Authorizations, Contracts and Operating 
Plans
    The term ``operating plans'' in the heading and text of this 
section would be changed to ``plans of operations'' in order that one 
standardized term can be used throughout this part to describe the 
various documents authorizing mineral related operations conducted 
pursuant to 36 CFR part 228 or 36 CFR part 292, subpart D. The last 
sentence of this paragraph would be removed as it duplicates 
information contained in other parts of 36 CFR and does not pertain to 
law enforcement on the National Forest System.
    No other revisions are proposed to this section.
Section 261.1b  Penalty
    This section currently states the penalty for violating these rules 
in the words of 16 U.S.C. 551: ``Any violation of the prohibitions of 
this part (261) shall be punished by a fine of not more than $500 or 
imprisonment for not more than six months or both * * *.'' However, the 
enactment of the Comprehensive Crime Control Act of 1984, as amended, 
established categories of offenses based on the maximum amount of 
imprisonment for each offense (18 U.S.C. 3559). Offenses with a maximum 
term of six months of imprisonment, such as those offenses covered by 
these regulations, are now considered ``Class B Misdemeanors'' (the 
subject rules were formerly classified as petty offenses, 18 U.S.C. 
3559(a)(7)). The statutory language of 18 U.S.C. 3571 prescribes a 
range of fines for Class B Misdemeanors depending on specific 
circumstances associated with the violation. The proposed revision to 
this section reflects this statutory change and provides for an 
exception by including the words ``unless otherwise provided'' which, 
for example, would apply to the enforcement of the collection of fees 
authorized by the Land and Water Conservation Act (36 CFR 261.15). A 
failure to pay such a fee is an infraction, which allows for a range of 
fines pursuant to 18 U.S.C. 3571 but does not allow for imprisonment of 
the offender.
    No other revisions are proposed to this section.
Section 261.2  Definitions
    Two existing definitions would be revised and twelve new 
definitions would be added to conform to various amendments that are 
proposed elsewhere in the subpart:
    The term ``Damaging'' would be revised to add the words ``rut'' and 
``gouge'' to better define damage to roadways and property.
    The last sentence of the definition for the term ``National Forest 
System'' would be revised to conform to the definition established in 
the Forest and Rangeland Renewable Resources Planning Act of 1974 (16 
U.S.C. 1609(a)).
    The term ``Alcoholic beverage'' would be added to clarify which 
beverages are intended to be covered in the prohibition against 
possession and use of alcoholic beverages at 36 CFR 261.58(bb). In the 
absence of a definition in this section, the Forest Service has relied 
on defining alcoholic beverage by reference to State law. The intention 
was to prohibit possession of all forms of alcoholic beverages when 
provided by an order; yet in some states, the definition of alcoholic 
beverages does not include beer and wine. This inconsistent treatment 
of ``alcoholic beverage'' in the present rule can be remedied by 
defining alcoholic beverages as ``beer, wine, distilled spirits, and 
any other beverage defined as such by State law.''
    The term ``Computer'' would be added to clarify the type of 
machines covered under two new proposed rules in 36 CFR 261.9. The 
definition is the same as the definition at 18 U.S.C. 1030.
    The term ``Contraband'' would be added to support a proposed 
revision at 36 CFR 261.4(c).
    The term ``Controlled substance'' would be added so that possession 
of drugs may be handled through a United States Magistrate judge by the 
issuance of a violation notice, rather than by proceeding under the 
simple possession statute at 21 U.S.C. 844, which requires either the 
filing of a complaint or information, or indictment by a Federal grand 
jury. The definition is the same as that used at 36 CFR 1.4.
    The terms ``Endangered species,'' ``Threatened species,'' and 
``Sensitive species'' would be added to implement the rules at 36 CFR 
261.9 (a) and (b). The current rule refers to these terms, but does not 
provide definitions. The proposed rule defines Endangered species and 
Threatened species as those species designated as such by the Secretary 
of the Interior or the Secretary of Commerce. The proposed definition 
for Sensitive species is the same as in the Forest Service Manual, 
section 2670.5.
    The terms ``Guiding'' and ``Outfitting'' would be defined to 
indicate to the public and the courts the intended prohibited acts when 
engaging in such activities without a special use authorization. The 
definitions proposed parallel those found in the Forest Service Special 
Uses Handbook (FSH 2709.11).
    A definition of the term ``Intimidating'' would be added to clarify 
the prohibited acts covered by this term.
    The term ``Plan of operations'' would be added in order that one 
standardized term can be used throughout this part to describe the 
various documents authorizing mineral-related operations conducted 
pursuant to 36 CFR part 228 or 36 CFR part 292, subpart D.
    The term ``Scenic easement'' would be added to support two proposed 
rule additions at 36 CFR 261.9(i) and 36 CFR 261.10(r) which provide 
for the enforcement of requirements or prohibitions associated with 
such easements.
Section 261.3  Interfering With a Forest Officer, Volunteer, or Human 
Resource Program Enrollee or Giving False Report to a Forest Officer
    As currently written, this section prohibits interference with a 
Forest officer, interference with a volunteer or human resource 
employee, and the giving of a false report to a Forest officer. It is 
proposed to revise the section's heading to read ``Interfering with 
agency functions'' for clarity and brevity.
    Existing paragraph (a) would be revised to combine the two ``Forest 
officer'' and ``volunteer'' interference rules currently found at 
paragraphs (a) and (c) into a single prohibition.
    Existing paragraph (b) would be revised for clarity.
    Two additions are proposed for this section. A new paragraph (c) is 
proposed to support on-site control of the public and maintain order 
during firefighting, law enforcement, or other operations.
    A new paragraph (d) is proposed to prohibit the impersonation of 
Forest officers, volunteers, or human resource program enrollees. At 
present, the only option available to the agency is to prosecute an 
impersonation as a felony (18 U.S.C. 912). The proposed regulation 
would provide the opportunity, where appropriate, to treat these cases 
as misdemeanors, rather than to proceed under felony statutes.
    No other revisions are proposed to this section.
Section 261.4  Disorderly Conduct
    The proposed changes to Sec. 261.4 result from situations 
encountered by Forest officers, usually in developed recreation areas, 
that require immediate attention such as breach of the peace or other 
illegal activity which, if not resolved, threatens the health, safety, 
rights, or enjoyment of forest users. Usually, Forest officers 
encounter these situations due to the unavailability of State or local 
authorities to patrol recreation areas. Often Forest officers are the 
only recognized authority with law enforcement responsibilities that 
the public may encounter. In other cases where State authorities do 
perform patrols, they may not be in a given location when law 
enforcement action must be taken, requiring Forest officers to initiate 
action until the State or local authority can arrive. The above 
scenarios are occurring routinely in some Forest Service recreation 
areas, and while the agency has the authority to regulate activity of 
this nature, it has no current regulations on which to support actions 
being taken by employees.
    The section heading would be revised to read ``Public behavior'' to 
encompass the broader area of prohibited conduct included in the 
proposed rule.
    Existing paragraph (a) would be revised to include the words ``or 
any other violent behavior'' in addition to prohibiting ``fighting.''
    Existing paragraph (b) currently prohibits ``offensive, derisive or 
annoying communication.'' The proposed revision of this paragraph is a 
narrower approach, identifying with more specficity the types of 
language or action that is prohibited and adding the element of intent 
to cause, or knowingly or recklessly creating the risk of, public 
alarm, nuisance, jeopardy or violence.
    Existing paragraph (c), which prohibits making ``statements or 
other actions directed toward inciting or producing imminent lawless 
action'' would be removed, as this provision would be covered in 
revised paragraph (b).
    A new paragraph (c) is proposed to prohibit the possession, 
selling, cultivation, dispensing, or bartering of controlled 
substances, alcoholic beverages, or contraband if such acts are a 
violation of State or Federal law. While the Forest Service has the 
authority to investigate controlled substance violations under the 
National Forest System Drug Control Act of 1986, as amended, and make 
arrests under that Act, it may not be practical to prosecute all as 
felony cases, such as the possession of small amounts of controlled 
substances intended for personal use. Therefore, the agency proposes to 
establish a rule which provides for a misdemeanor penalty. Alcoholic 
beverages have been included as the agency is currently without a rule 
prohibiting underage consumption or possession of alcoholic beverages 
in violation of State or Federal law on the National Forest System. 
Forest Service regions report continuing problems in both developed and 
undeveloped areas pertaining to large ``keg'' parties and other parties 
where underage alcoholic consumption is occurring. In many cases, State 
and local officers are unavailable to take the necessary enforcement 
actions in order to protect other forest users who are affected by this 
problem. The rule would also prohibit the possession of contraband 
(i.e. where the very possession of an item is illegal, as defined by 
either State or Federal law). Some examples of included items would be 
certain animal parts or unregistered automatic weapons.
    A new paragraph (e) would be added prohibiting ``being under the 
influence of any controlled substance or alcoholic beverage,'' if it is 
a violation of either State or Federal law. This would be a companion 
rule with the proposed new paragraph (c) and is needed for the same 
reasons.
    Finally, new paragraphs (f) and (g) would be added to allow for 
federal prosecutions of persons who victimize forest visitors or other 
persons and their property on the National Forest System.
    No other revisions are proposed to this section.
Section 261.5  Fire
    One change is proposed to this section. As written, paragraph (b) 
prohibits the firing of tracer or incendiary ammunition. The wording of 
the paragraph requires that a Forest officer must prove that a person 
actually ``fired'' the ammunition, something that is very hard to do. 
Accordingly, this prohibition would be expanded to prohibit the 
possession of tracer or incendiary ammunition as well. The possession 
of tracer or incendiary ammunition on the National Forest System can be 
harmful to persons as well as resources and is clearly not within the 
public interest. If persons are prohibited from possessing such 
ammunition, there is less likelihood of it being fired.
Section 261.6  Timber and Other Forest Products
    Existing paragraphs (a) and (h) would be revised to include the 
term ``approved plan of operations'' and ``permit'' as exceptions to 
the stated prohibited acts.
    Paragraph (c) currently prohibits removing timber or other forest 
product except to a place designated for scaling. As some forest 
products are recorded by means other than scaling, a proposed revision 
to this paragraph would clarify that it is prohibited to remove such 
products except to a place designated for scaling or other means of 
recording by a forest officer.
    Paragraph (d) currently prohibits the marking of trees or other 
forest products to be cut or removed in a manner similar to that 
employed by Forest officers. This paragraph would be revised to 
prohibit the counterfeit marking of trees to be left uncut on a timber 
sale. During the past 2 years, at least one Forest Service region has 
encounter numerous markings of ``leave'' trees on timber sales that 
were never marked by Forest Service personnel. Investigation or later 
communication to the agency by the person(s) claiming responsibility 
revealed that these markings were made to hamper Forest Service timber 
sales efforts by trying to confuse timber sale purchasers as to which 
trees could be cut and which trees were to be left. Where this has 
occurred, Forest officers have had to re-mark portions of timber sales 
incurring additional agency costs.
    Paragraph (e), which prohibits the removal or hauling of timber or 
other forest products unless it is properly identified by the terms of 
a special use authorization or contract, would be revised for clarity 
by removing the word ``hauling'' and adding in its place the words 
``transporting'' and ``possessing.'' The revision is needed to better 
define the offense and to make clear that possession of forest products 
without the proper identification as required by a special use 
authorization or timber sale contract is prohibited.
    A new paragraph (i) is proposed to prohibit ``altering, adding, 
moving, or removing any stamp, brand, paint, timber sale boundary 
marker or tag, or other identification on any tree * * * previously 
marked or surveyed by a Forest officer * * *.'' This addition is needed 
due to the increasing number of cases where legitimate brands, paint, 
and timber sale boundary markers have been altered, moved, or removed. 
In pursuing such cases, the agency has discovered that the current 
rules do not adequately address this practice.
    No other revisions are proposed to this section.
Section 261.7  Livestock
    Paragraph (a) currently prohibits ``placing or allowing 
unauthorized livestock to enter or to be in the National Forest System 
* * *.'' In a recent Ninth Circuit Court of Appeals case (United States 
v. Semenza, 835 F.3d 223 (9th Cir. 1987)), the court stated that the 
inclusion of the words ``placing'' and ``allowing'' required the 
government to prove that the livestock owner meant to violate this rule 
intentionally. This interpretation is not consistent with the agency's 
intent; therefore paragraph (a) would be revised by removing the words 
``placing'' or ``allowing'' to make clear that unauthorized livestock 
are prohibited without regard to whether a person intended to place or 
allow such livestock on National Forest System lands.
    No other revisions are proposed to this section.
Section 261.8  Fish and Wildlife
    Paragraph (a) currently prohibits the ``hunting, trapping, fishing, 
catching, molesting, killing, or having in possession any kind of wild 
animal, birds, or fish'' to the extent that Federal or State laws are 
violated. Under the proposed rule, this paragraph would be expanded to 
include the words ``transporting, buying, selling, bartering, or 
offering to buy'' wild animals, birds, or fish to cover additional 
activities prohibited by State or Federal laws which Forest officers 
routinely encounter in the field. The revision would also add 
``shellfish'' to the existing rule, as there are several large 
shellfish beds on the National Forest System in Washington State, and 
these are not protected under the current rule.
    No other revisions are proposed to this section.
Section 261.9  Property
    The heading of this section would be revised to read ``Property 
administered by the Forest Service'' to clarify that the prohibitions 
apply to United States Government property rather than to the personal 
property of a forest visitor. In addition, the introduction to the 
section would be revised to state: ``Except as provided by special use 
authorization, contract, approved plan of operations, or Federal law or 
regulation, the following are prohibited * * *.'' This revision is 
proposed so these authorizing documents only have to be stated once in 
the section, rather than in each paragraph.
    Existing paragraph (a) would be revised and combined with existing 
paragraph (b) and expanded to prohibit ``disturbing, damaging, 
excavating, diggings, removing, transporting, possessing, buying, 
selling, bartering, or offering to buy, sell, or barter any natural 
feature or other property of the United States.'' By incorporating this 
change into part 261, the agency will be able to cite persons for 
property violations as misdemeanors rather than as felonies under the 
United States Criminal Code (18 U.S.C. 641 and 1361) when appropriate.
    Existing paragraph (c) would be revised and combined with existing 
paragraph (d) and redesignated as paragraph (b). The paragraph would 
also include a corollary addition of the words ``disturbing, damaging, 
excavating, digging, removing, transporting, possessing, buying, 
selling, bartering, or offering to buy, sell, or barter any plant that 
is classified as a threatened, endangered, or sensitive species.'' This 
revision would replace the terms ``rare'' and ``unique'' with the term 
``sensitive'' in order to reflect a change in agency terminology since 
adoption of the current rule (Forest Service Manual, section 2670.5). 
Plants that once were identified as ``rare'' or ``unique'' have been 
placed on ``sensitive'' plant lists established and maintained by each 
Regional Office of the Forest Service.
    Existing paragraph (e) would be redesignated as paragraph (d) and 
revised by adding the words ``without permission'' to remove an 
ambiguity in the current rule. The proposed rule would make clear that 
employees and contractors may be permitted to occupy Forest Service 
buildings and offices after closing hours.
    Existing paragraph (f) would be revised for clarity and 
redesignated as paragraph (e).
    Existing paragraphs (g), (h), and (i) would be combined and revised 
for clarity and redesignated as new paragraph (c).
    Four new provisions are proposed for this section. A new paragraph 
(f) would prohibit the possession, duplication, or use of Forest 
Service locks and keys without authorization. All Forest Service 
regions are experiencing significant problems with the unauthorized use 
of these items. The only remedy currently available is under the 
provisions of 18 U.S.C. 641, which requires the agency to prove that an 
actual theft of government property has occurred. These kinds of cases 
can best be handled as misdemeanors rather than as felonies; therefore, 
inclusion in part 261 of a prohibition on unauthorized possession, 
duplication, and use of Forest Service locks and keys is appropriate.
    New paragraph (g) and (h) are proposed to parallel, as 
misdemeanors, a relatively new computer fraud law found at 18 U.S.C. 
1030. The statute requires that unauthorized access must ``affect the 
use of the government's operation * * * of a computer.'' The statute 
also did not provide for prosecution under a misdemeanor charge. The 
addition of paragraphs (g) and (h) in part 261 would allow the agency 
to initiate action where there has been unauthorized use regardless of 
the effect of the use on the government's operation of a computer, and 
would provide a means for prosecution of such use as a misdemeanor. The 
definition of ``computer'' proposed for inclusion in Sec. 261.2 is the 
same as in 18 U.S.C. 1030.
    The addition of paragraph (i) would provide a prohibition against 
performing an action or failing to perform an action in violation of 
any restrictive covenants or deed reservations associated with scenic 
easements. There are many instances when there are blatant, but minor, 
violations of a scenic easement (e.g. installation of signs, use of 
unauthorized paint colors, etc.) which can be resolved more efficiently 
through the issuance of a citation rather than through the initiation 
of a lawsuit.
    Finally, new paragraph (j) is proposed to make it clear that 
removal of minerals or mineral materials from the National Forest 
System is prohibited unless done in compliance with laws and 
regulations. To be in compliance, a person may need to obtain an 
approved plan of operations or operating plan in accordance with 36 CFR 
part 228, subparts A, C, or E, 36 CFR part 292, subpart D, or a permit 
or lease issued by the Department of the Interior in accordance with 43 
CFR chapter II, subchapter C.
    No other revisions are proposed to this section.
Section 261.10  Occupancy and Use
    The prohibitions in this section relate to occupancy and use of the 
National Forest System by persons or entities other than the Forest 
Service. The introductory text immediately following the heading would 
be revised to include the same language as proposed for Sec. 261.9 for 
the reasons outlined in that section.
    Paragraph (b) would be revised for clarity to include ``residing 
upon'' the National Forest System as a prohibited act.
    Paragraph (c) would be revised to add the words ``leasing,'' 
``merchandise,'' ``equipment,'' and ``renting'' to update the existing 
rule on activities prohibited without authorization.
    Paragraph (d) would be revised to remove the prohibition against 
the discharge of a firearm across or on a Forest development road 
unless ``any person or property is exposed to injury or damage * * *.'' 
The blanket prohibition against any discharge has created a significant 
problem in several Forest Service regions as a ``Forest development 
road'' includes closed roads, traffic service level ``D'' roads, and 
other similar roads that have little or no vehicular use. Because of 
the limited traffic, hunting along these roads is not considered to be 
a safety problem. The proposed revision would add a prohibition against 
the discharge of a firearm from a vehicle and then make clear that the 
current prohibition against discharging a firearm ``in any manner or 
place whereby any person or property is exposed to injury or damage as 
a result of such discharge or use,'' applies to any location in the 
National Forest System.
    Paragrph (k) would be revised to change the term ``operating plan'' 
or ``plan of operations.''
    In addition to the preceding amendments, six new provisions are 
proposed for this section. A new paragraph (n) would prohibit the 
payment of any ``product, permit, fee or service'' by a check backed by 
insufficient funds. Several Assistant United States Attorneys have 
recommended this addition, as the only current remedy for such 
practices is to pursue them through State courts, which has not been 
efficient. There have been documented instances where the same user of 
a group-fee area or campsite, knowing that the agency is unable to 
initiate an effective collection action, has written bad checks two and 
sometimes three years in a row.
    A new paragraph (o) would prohibit anyone from charging or 
collecting fees from persons using the National Forest System, unless 
the charge or collection is permitted by Federal law, regulation, or 
special use authorization. In the past few years, there have been an 
increasing number of cases where private individuals were successful in 
obtaining ``payments'' from unsuspecting forest users for such things 
as rafting, using four-wheel-drive roads, and walking across areas 
under special use authorization, none of which required payment of a 
fee. This rule is needed to protect the public from unlawful fees by 
providing a means for prosecuting those engaging in such schemes.
    A new paragraph (p) would be added to provide for the prosecution 
of a failure to display an authorizing document when it is required by 
the document to do so.
    A new paragraph (q) would prohibit ``outfitting or guiding'' on the 
National Forest System without a special use authorization or in 
violation of Federal or State law. This proposal was probably the 
addition most widely requested by the Forest Service regions. 
Considerable problems have existed in the enforcement of the 
requirement that outfitting and guiding be conducted under special use 
authorization due to the lack of a definition for the two activities. 
The approach taken in the proposed rule is to define ``outfitting and 
guiding'' at 36 CFR 261.2 and then to prohibit these activities without 
a special use authorization at 36 CFR 261.10.
    A new paragraph (r) would be added to prohibit the undertaking of 
any activity in violation of the requirements of a scenic easement. 
This is a companion rule to the proposed 36 CFR 261.9(i) and is being 
promulgated for the same reasons outlined in that paragraph.
    No other revisions are proposed to this section.
Section 261.11  Sanitation
    Existing paragraph (b) would be revised to establish a general 
prohibition against litering. The current text provides that a Forest 
officer may take action only against persons who leave ``litter in an 
exposed or unsanitary condition.'' This has proven insufficient to 
protect the National Forest System from littering.
    No other revisions are proposed to this section.
Section 261.12  Forest Development Roads and Trails
    Existing paragraph (a) would be revised to add the terms 
``contract'' and ``approved plan of operations'' to the list of 
authorizing documents, correcting an unintentional omission.
    A new paragraph (e) is proposed to establish a rule prohibiting the 
operation of a vehicle in violation of State laws, posted signs, or 
traffic devices. Although local authorities are relied on, when 
possible, to enforce traffic regulations, there are many times when it 
is not possible or practical to obtain their help, making Forest 
Service enforcement necessary. For example, reckless driving is a 
matter that needs immediate action when it is spotted by a trained and 
properly equipped Forest officer to ensure safe travel for other road 
users. Since State laws are applicable to Forest development roads, 
they could be enforced by Forest officers, when necessary, through 
adoption of this proposed prohibition.
    The language proposed for new paragraph (f) currently appears at 36 
CFR 261.54(f), which prohibits ``operating a vehicle carelessly, 
recklessly, * * * or in a manner or at a speed that would endanger or 
be likely to endanger any person or property.'' The paragraph would be 
removed from subpart B, amended to clarify this is a strict liability 
offense, and made a part of subpart A.
    A new paragraph (g) would require the use of seatbelts, if provided 
by the manufacturer, for occupants of vehicles traveling on Forest 
development roads. The prohibition would support State laws which 
require the same, while ensuring safety and consistency by relying on a 
single rule that would apply throughout the National Forest System. 
Seatbelt laws vary from State to State. For example, some states exempt 
the passengers of certain classes of vehicles from mandatory seatbelt 
usage, while others, exempt certain passengers. In many areas on the 
National Forest System, a Forest development road can cross State 
boundaries. In these situations, reliance on some State seatbelt 
statutes could lead to inconsistency and confusion. This provision will 
ensure the protection afforded by seatbelts throughout the National 
Forest System regardless of individual State laws.
    No other revisions are proposed to this section.
Section 261.13  Use of Vehicles Off Roads
    Several changes are proposed to this section.
    Existing paragraph (a) would be revised to clarify the current 
``valid license'' requirement by referring to a ``valid operator's 
license or permit,'' if required by State law.
    Existing paragraph (e) would be removed as the prohibition is 
included in the proposal for Sec. 261.4(e).
    Existing paragraph (f) would remain unchanged but redesignated as 
(e).
    Existing paragraph (g) would be revised and redesignated as (f). 
The paragraph would contain the same language as proposed for 36 CFR 
261.12(f). The revision, as proposed for this section, would provide a 
consistent approach in the treatment of careless and reckless driving 
throughout the National Forest System.
    Existing paragraph (h) would be revised and redesignated as (g). 
The revision would better define the current prohibition of operating a 
vehicle that disturbs the land or other resources.
    Existing paragraph (i) would remain unchanged but redesignated as 
(h).
    One additional provision is proposed for this section. Many States 
have passed special registration requirements for off-road vehicles. In 
support of these requirements, a new paragraph (i) is proposed to 
prohibit the operation of a vehicle without displaying a license plate 
or the proper registration, if it is required by State law.
Section 261.14  Developed Recreation Sites
    One change is proposed to this section.
    A new paragraph (r) would be added to prohibit the informal 
reservation or ``staking-out'' of camping units by third parties. 
Unless campsites are specifically designated for advanced reservations, 
they are intended to be occupied on a first-come, first-served basis. 
The ``staking out'' of campsites has become a continuing problem as 
recreational use of National Forest System lands increases and is one 
that visitors often bring to the attention of Forest officers for 
resolution.
Section 261.15  Admission, Recreation Use and Special Recreation Permit 
Fees
    This section would be revised to require forest visitors to comply 
with the ``posted fee payment instructions'' at developed sites and 
facilities. This proposed revision would close a legal gap in the 
current rule which prohibits ``failing to pay.'' This change responds 
to several court decisions which have held that existing 36 CFR 261.15 
requires payment, but does not require compliance with any other 
payment instructions posted at each site.
Section 261.22  Buildings Used in Furtherance of the Administration of 
the National Forest System or Forest Service Programs
    This section would be added to the subpart to protect Forest 
Service employees and facilities. The proposed addition paraphrases the 
current General Services Administration building regulations at 41 CFR 
subpart 101-20.3.

Subpart B--Prohibitions in Areas Designated by Order

    This subpart grants authority to Regional Foresters and Forest 
Supervisors to issue orders and regulations prohibiting certain acts in 
specific areas. An explanation of the proposed revisions to this 
subpart follows by section.
Section 261.50  Orders
    Consistent with other revisions proposed throughout Subpart A, 
paragraph (e)(1) would be revised to include the words ``special use 
authorization,'' ``contract,'' ``approved plan of operations'', and 
``Federal law or regulation'' as the list of either authorizing 
documents used by the Forest Service or to make clear that the order 
may also exempt persons with authorization given by law or regulation.
Section 261.53  Special Closures
    This section states, that when provided by an order, it is 
prohibited to go into or be in an area which is closed for the 
protection of certain animal populations or biological communities, 
management activities, or public health and safety.
    Paragraph (a) currently states ``threatened, endangered, rare, 
unique, or vanishing species of plants, animals, birds or fish.'' The 
proposed revision would remove all the categories which are currently 
listed and be revised to include simply ``plants, animals, birds, fish 
or shellfish.'' This revision is needed as the current listed 
categories are too narrow to provide effective protection to certain 
species of animals during different times of year. For example, the 
agency may wish to close a sensitive elk calving area during a specific 
time of year, but are currently unable to do so because elk are not 
``threatened or endangered, etc.'' The proposed revision would remedy 
this situation.
Section 261.54  Forest Development Roads
    Three changes are proposed to this section.
    Paragraph (a) currently prohibits the use of any type of vehicle 
upon the issuance of an order. This rule would be revised by adding the 
words ``or possessing'' to the current text. In many cases, local 
county ordinances prohibit the possession of certain types of vehicles 
on lands either adjacent to or within a sensitive area, for example, 
the possession of tracked vehicles or modified off-road vehicles within 
a special wildlife or waterfowl habitat nesting area. The addition 
would allow a Regional Forester or Forest Supervisor to issue a 
specific order that prohibits the possession of a certain class of 
vehicle, if needed to be consistent with a Forest Land and Resource 
Management Plan or to support a local ordinance.
    Paragraph (c) currently prohibits using a road for commercial 
hauling without a permit or written authorization upon the issuance of 
an order. The rule would be revised by adding the words ``or other 
commercial activities'' to the current text. Authorization for 
commercial use of Forest development roads should not be limited to 
hauling a product; other commercial use such as transporting heavy 
equipment should also be subject to this requirement.
    Finally, paragraph (f), which prohibits careless or reckless 
driving, would be removed because, as previously noted, it is proposed 
to make this a general prohibition in Sec. 261.12.
Section 261.58  Occupancy and Use
    Paragraph (m) allows for the issuance of an order to prohibit the 
``discharge of a firearm, air rifle, or gas gun.'' Under the proposed 
rule, this paragraph would be revised to read ``discharging or 
possessing a firearm, air rifle, gas gun, or other device capable of 
causing injury to persons or wildlife or capable of causing property 
damage.'' For example, the addition of the prohibition against 
``possessing'' is necessary for wildlife protection at certain times of 
the year on different national forest units and for public safety in 
areas of higher visitor use or when property would be easily damaged by 
firearms and other devices shooting projectiles. The addition of ``or 
other device'' is necessary to support the inclusion of devices, such 
as starter pistols and crossbows, which can cause serious bodily harm 
or death if used. And finally, the addition of ``capable of causing 
injury to persons or wildlife or capable of causing property damage'' 
is necessary to specify more precisely the type of device to which the 
prohibition would apply.
    Paragraph (bb) would be revised to adopt the new definition of 
``alcoholic beverage'' proposed at 36 CFR 261.2.
    A new paragraph (dd) would be added to prohibit the storage of 
personal property in any area outside of a national forest developed 
recreation site when prohibited by an order. Similar to the problem 
within developed recreation sites addressed by proposed Sec. 261.14(r), 
is the ``staking out'' of popular sites by users several weeks in 
advance of when they are to be occupied for hunting or other 
activities. Often, other users desiring to camp in the same area are 
unable to do so because of this activity. This rule is proposed for 
Subpart B, because of the site-specific nature of the problem and the 
need for flexibility to prescribe different lengths of time for each 
area.
    A new paragraph (ee) would be added to enable a Regional Forester 
or Forest Supervisor to issue an order prohibiting the possession, 
storage, or use of glass food or beverage containers. The rule is 
proposed in light of serious safety hazards presented by broken glass 
in heavily used beaches and swimming areas and the need to prevent 
injuries from cuts to persons recreating in these areas.
    No other revisions are proposed to this section.

Part 262--Law Enforcement Support Activities

    This part provides administrative rules pertaining to certain 
operational matters affecting Forest Service law enforcement programs 
and activities.
Section 262.1  Definitions
    A new definition section would be added to provide for definitions 
of ``Law Enforcement Officer'' and ``Special Agent.'' The definitions 
are needed in the regulation to support the section on purchase of 
evidence.
    Existing Sec. 262.1 would be redesignated as Sec. 262.2.
    Existing Sec. 262.2, which governs the purchase of information in 
furtherance of investigations, would be revised and combined with 
Sec. 262.3, which governs the purchase of evidence. This revision is 
proposed in response to requests of several Forest Service regions for 
a payment scale for purchase of information and evidence that reflects 
the gravity of the offenses investigated, such as violations of the 
National Forest System Drug Control Act of 1986, as amended. For 
example, amounts that Special Agents could be authorized to pay for 
information or evidence would be raised from $200 and $400 
respectively, to $500 for a single transaction, with other increases or 
changes proposed for the employees so listed. Existing paragraph (b) in 
both sections, which states that payments cannot be made for the 
investigation of petty offenses, would be removed. The agency's 
authority to make payments for evidence and information was affirmed in 
a decision of the Comptroller General dated April 29, 1971 (CG-B-
172259) and allows for payment to further any criminal investigation, 
otwithstanding the classification of the offense.

Subpart B--Impoundments and Removals

    The title of this subpart would be revised to read ``Administrative 
Impoundments and Removals.'' This change would clarify that the rules 
provide for administrative remedies that may be taken by the Forest 
Service to impound and remove animals or personal property on the 
National Forest System. Criminal law enforcement procedures associated 
with impoundments and property seizures made pursuant to arrests and 
searches are not covered by the regulations and are contained in the 
Federal Rules of Criminal Procedure for the United States District 
Courts and the Forest Service Law Enforcement Handbook (FSH 5309.11).
    No other revisions are proposed to this section.
Section 262.12  Impounding of Personal Property
    Paragraph (d) would be revised to allow the Forest Service to use 
un-redeemed or abandoned personal property if it is needed for official 
use, rather than having to offer it for sale. The authority for this 
proposed change is found in the Federal Property and Administrative 
Services Act of 1949, as amended (40 U.S.C. 484(m)) and at 41 CFR part 
101-48. In many cases, the conversion of un-redeemed personal property 
to Government property can provide a substantial cost savings to the 
agency.
Section 262.13  Removal of Obstructions
    This section currently provides for the removal of vehicles or 
other objects which create either an ``impediment or hazard to the 
safety, convenience, or comfort of other users of the National Forest 
System.'' The rule would be revised to include a vehicle or other 
object ``which has been left in such a manner that it impairs or may 
result in the impairment of any area of the National Forest System or 
other areas under Forest Service control.'' The revision is needed in 
light of increasing problems associated with the abandonment of 
automobiles or other large objects left as junk in popular undeveloped 
recreation areas on the National Forest System.
    No other revisions are proposed to this section.

Summary

    In summary, the Forest Service proposes to amend its rules 
governing Prohibitions and Law Enforcement Support Activities in order 
to:

--Improve protection of public and their property, National Forest 
System lands, waters, and other resources, and agency employees;
--Update the rules to reflect expanded Forest Service law enforcement 
authority granted by statutory change;
--Make technical corrections and revisions due to the passage of new 
laws and the promulgation of new rules in other parts of this chapter; 
and
--Provide both the agency and United States Department of Justice 
increased flexibility in prosecution options for certain offenses.

    Interested persons are invited to submit comments and 
recommendations regarding these proposed regulations. All comments 
received will be considered in promulgation of the final rule. 
Respondents should note that substantive comments are more helpful than 
form letters or responses from questionnaires.

Regulatory Impact

    This proposed rule has been reviewed under USDA procedures and 
Executive Order 12866 on Regulatory Planning and Review. It has been 
determined that this is not a significant rule. This rule will not have 
an annual effect of $100 million or more on the economy nor adversely 
affect productivity, competition, jobs, the environment, public health 
or safety, nor State or local governments. This rule will not interfere 
with an action taken or planned by another agency nor raise new legal 
or policy issues. Finally, this action will not alter the budgetary 
impact of entitlements, grants, user fees, loan programs, or the rights 
and obligations of recipients of such programs. Accordingly, this 
proposed rule is not subject to OMB review under Executive Order 12866.
    Moreover, this proposed rule has been considered in light of the 
Regulatory Flexibility Act (5 U.S.C. 601 et seq.), and has been 
determined that this action will not have a significant economic impact 
on a substantial number of small entities as defined by that Act.
    Executive Order 12630 for the Evaluation of Risk and Avoidance of 
Unanticipated Takings directs all agencies to evaluate whether certain 
proposed agency actions present a risk of effecting a taking of private 
property. Section 2(a)(3) of the Order exempts law enforcement actions 
from the requirements of the Executive Order. Since this proposed 
action involves additions, and technical and administrative changes, to 
prohibitions of activities on or affecting National Forest System land 
and resources, visitors, and employees, section 2(a)(3) applies and 
further analysis under the Executive Order is unnecessary.

Regulatory Reform: Less Burdensome or More Efficient Alternatives

    The Department of Agriculture is committed to carrying out its 
statutory and regulatory mandates in a manner that best serves the 
public interest. Therefore, where legal discretion permits, the 
Department actively seeks to promulgate regulations that promote 
economic growth, create jobs, are minimally burdensome, and are easy 
for the public to understand, use or comply with. In short, the 
Department is committed to issuing regulations that maximize net 
benefits to society and minimize costs imposed by those regulations. 
This principle is articulated in President Bush's January 28, 1992, 
memorandum to agency heads, and in Executive Orders 12291 and 12498. 
The Department applies this principle to the fullest extent possible, 
consistent with law.
    The Department has developed and reviewed this regulatory proposal 
in accordance with these principles. Nonetheless, the Department 
believes that public input from all interested persons can be 
invaluable in ensuring that the final regulatory product is minimally 
burdensome and maximally efficient. Therefore, the Department 
specifically seeks comments and suggestions from the public regarding 
any less burdensome or more efficient alternative that would accomplish 
the purposes described in the proposal. Comments suggesting less 
burdensome or more efficient alternatives should be addressed to the 
agency as provided in this notice.

Controlling Paperwork Burdens on the Public

    This proposed rule will not result in additional paperwork not 
already required by law or approved for use. Therefore, the review 
provisions of the Paperwork Reduction Act of 1980 (44 U.S.C. 3507) and 
implementing regulations at 5 CFR part 1320 do not apply.

Environmental Impact

    This proposed rule would set forth the acts that are prohibited on 
the National Forest System. This rule, in and of itself, will not have 
environmental effects that need to be addressed in compliance with the 
National Environmental Policy Act procedures. Section 31.1b of Forest 
Service Handbook 1909.15 (57 FR 43180; September 18, 1992) excludes 
from documentation in an environmental assessment or impact statement 
``rules, regulations, or policies to establish Service-wide 
administration procedures, programs, processes, or instructions.'' The 
agency's preliminary assessment is that this rule falls within this 
category of actions and that no extraordinary circumstances exist which 
would require preparation of an environmental assessment or 
environmental impact statement. A final determination will be made upon 
adoption of the final rule.

List of Subjects in 36 CFR Parts 261 and 262

    Crime, Law enforcement, and National forests.

    Therefore, for the reasons set forth in the preamble, it is 
proposed to amend chapter II of title 36 of the Code of Federal 
Regulations as follows:

PART 261--PROHIBITIONS

    1. The authority citation for part 261 is revised to read as 
follows:

    Authority: 7 U.S.C. 1011(f), 16 U.S.C. 472, 551, 559b-h, 
1131(b), 1133(b)-(d)(1), 1246(i), 1281(d), 4601-6a(e), 18 U.S.C. 
3559, 3571, 43 U.S.C. 1740, 1761.

Subpart A--General Prohibitions

    2-3. Revise Sec. 261.1 to read as follows:


Sec. 261.1  Scope.

    (a) The prohibitions in this part apply, except as otherwise 
provided, when:
    (1) An act or omission occurs in the National Forest System or on a 
Forest development road or trail;
    (2) An act or omission affects, threatens, or endangers property of 
the United States administered by the Forest Service;
    (3) An act or omission affects, threatens, or endangers:
    (i) A person occupying or using the National Forest System or a 
Forest development road or trail;
    (ii) A person on account of or in the performance of official 
duties, including the administration of the National Forest System or a 
Forest development road or trail;
    (4) An act of omission occurs within the designated boundaries of a 
Forest Service administered component of the National Trails System or 
the National Wild and Scenic Rivers System; or
    (5) An act or omission affects, threatens, or endangers property of 
any person on any lands or waters within the National Forest System or 
a Forest development road or trail.
    (b) Nothing in this part shall preclude activities that are 
authorized by laws relating to the National Forest System and that are 
conducted in compliance with regulations set forth in this Chapter.
    (c) Nothing in these rules and regulations shall be construed to 
abrogate any other Federal laws or regulations or any applicable State 
and local laws and regulations.
    (d) Unless an offense set out in this part contains a term (or 
terms) that includes intent in its meaning, intent is not an element of 
any offense under this part.
    4. Revise Sec. 261.1a to read as follows:


Sec. 261.1a  Special use authorizations, contracts and plans of 
operations.

    The Chief, each Regional Forester, each Forest Supervisor, and each 
District Ranger or equivalent officer may issue Special use 
authorizations, award contracts, or approve plans of operations 
authorizing the occupancy or use of a road, trail, area, lake, or other 
part of the National Forest System in accordance with authority which 
is delegated elsewhere in this chapter or in the Forest Service Manual. 
These Forest officers may allow in the authorizing document or approved 
plan of operations an act or omission that would otherwise be a 
violation of a subpart A or a subpart C regulation or a subpart B 
order.
    5. Revise Sec. 261.1b to read as follows:


Sec. 261.1b  Penalty.

    The punishment for violating any prohibition of this part shall be 
imprisonment of not more than six months or a fine in accordance with 
the applicable provisions of 18 U.S.C. 3571, or both, unless otherwise 
provided.
    6. In Sec. 261.2, the introductory text is republished; the 
definitions of ``Damaging'' and ``National Forest System'' are revised; 
the term ``Operating plan'' is removed; and the following definitions 
are added in appropriate alphabetical order to read as follows:


Sec. 261.2  Definitions.

    The following definitions apply to this part:
* * * * *
    Alcoholic beverage means beer, wine, distilled spirits, and any 
other beverage defined as such by State law.
* * * * *
    Computer means an electronic, magnetic, optical, electrochemical, 
or other high speed data processing device performing logical, 
arithmetic, or storage functions, and includes any data storage 
facility or communications facility directly related to or operating in 
conjunction with such device, but such term does not include an 
automated typewriter or typesetter, a portable hand held calculator, or 
other similar device.
    Contraband means any goods, merchandise, or other substance, the 
possession or transportation of which is prohibited by either Federal 
or State law.
    Controlled substance means a drug or other substance or immediate 
precursor included in schedules I, II, III, IV, or V or part B of the 
Controlled Substance Act (21 U.S.C. 812) or a drug or substance added 
to these schedules pursuant to the terms of the Act, or as defined by 
State law.
    Damaging means to injure, mutilate, deface, rut, gouge, cut, chop, 
girdle, dig, excavate, kill, or in any way harm or disturb.
    Endangered species means any species of plant or animal which is 
designated as endangered by the Secretary of the Interior or Commerce 
pursuant to 50 CFR 17.11 and 17.12.
* * * * *
    Guiding means providing, for pecuniary remuneration or other gain, 
services such as supervision, protection, education, training, 
transportation, subsistence, or interpretation to individuals or groups 
in their pursuit of a natural resource based outdoor activity.
* * * * *
    Intimidating means to abuse or threaten verbally or physically.
* * * * *
    National Forest System means all national forest lands and waters 
reserved or withdrawn from the public domain of the United States, 
national forest lands and waters acquired through purchase, exchange, 
donation, or other means, national grasslands and land utilization 
projects and waters administered under Title III of the Bankhead-Jones 
Farm Tenant Act (7 U.S.C. 1010-1012), and other lands, waters, or 
interests therein administered by the Forest Service or are designated 
for administration through the Forest Service as a part of the System.
* * * * *
    Outfitting means providing, for pecuniary remuneration or other 
gain, any saddle or pack animal, vehicle or boat, tents or camp gear, 
or similar supplies or equipment, except through retail sale in the 
ordinary course of business.
* * * * *
    Plan of operations means a plan of operations as provided in 36 CFR 
part 228, subpart A, an operating plan as provided in 36 CFR part 228, 
subpart C, or 36 CFR part 292, subpart D, or a surface use plan of 
operations as provided in 36 CFR part 228, subpart E.
    Scenic easement means any interest in land owned by the United 
States which gives the Federal Government any right to control the 
occupancy and use of land (including air space above such land) in 
order to protect scenic and natural values or for any other purposes 
authorized by law including public access. Scenic easements shall 
include, but are not limited to, restrictive covenants, deed 
reservations, conservation easements, reserved interest deeds, and 
other partial interests in land by whatever name given.
    Sensitive species means a plant or animal species identified by a 
Regional Forester for which population viability is a concern, as 
evidenced by a significant current or predicted downward trend in 
population numbers or density or a significant current or predicted 
downward trend in habitat capability that would reduce a species' 
existing distribution.
* * * * *
    Threatened species means any plant or animal species which is 
designated as threatened by the Secretary of the Interior or Commerce 
at 50 CFR 17.11 and 17.12.
* * * * *
    7. Revise Sec. 261.3 to read as follows:


Sec. 261.3  Interfering with agency functions.

    The following are prohibited:
    (a) Resisting, intimidating, endangering, assaulting, injuring, or 
interfering with any Forest officer, volunteer, or human resource 
program enrollee on account of or in the performance of official duties 
including the administration of the National Forest System or a Forest 
development road or trail.
    (b) Giving any false, fictitious, or fraudulent report or other 
information to any Forest officer knowing that such report or other 
information contains false, fictitious, or fraudulent statement or 
entry.
    (c) Violating the lawful order of a Forest officer engaged in the 
performance of official duties to maintain order or control of public 
behavior during firefighting, law enforcement, or other operations.
    (d) Impersonating or posing as a Forest officer, volunteer or human 
resource program enrollee.
    8. Revise Sec. 261.4 to read as follows:


Sec. 261.4  Public behavior.

    The following are prohibited:
    (a) Engaging in fighting or any other violent behavior.
    (b) Using language, an utterance, or gesture, or engaging in a 
display or act that is:
    (1) Obscene;
    (2) Physically threatening or menacing; or
    (3) Done in a manner that is likely to inflict injury or incite an 
immediate breach of the peace;

and with intent to cause public alarm, nuisance, jeopardy, or violence, 
or knowingly or recklessly creating a risk thereof.
    (c) Possessing, selling, cultivating, dispensing, or bartering for 
any controlled substance, alcoholic beverage, or contraband in 
violation of State or Federal law.
    (d) Causing public inconvenience, annoyance, or alarm by making 
unreasonably loud noise.
    (e) Being under the influence of any controlled substance or 
alcoholic beverage in violation of State or Federal law.
    (f) Damaging, removing, transporting, or possessing any thing of 
value belonging to any person without permission.
    (g) Intimidating, endangering, assaulting, injuring, or interfering 
with any person.
    9. In Sec. 261.5, the introductory text is republished and 
paragraph (b) is revised to read as follows:


Sec. 261.5  Fire.

    The following are prohibited:
    (a) * * *
    (b) Firing or possessing any tracer bullet or incendiary 
ammunition.
* * * * *
    10. In Sec. 261.6, the introductory text is republished; paragraphs 
(a), (c), (d), (e), and (h) are revised and a new paragraph (i) is 
added to read as follows:


Sec. 261.6  Timber and other forest products.

    The following are prohibited:
    (a) Cutting or otherwise damaging any tree, or other forest 
product, except as authorized by a special use authorization, timber 
sale contract, permit, approved plan of operations, or Federal law or 
regulation.
    (b) * * *
    (c) Failing, when required by the timber sale contract or permit, 
to bring timber or other forest products cut under a contract or permit 
to a place designated for scaling or other means of recording by a 
forest officer, or removing timber or other forest product from such 
designated place prior to scaling or other means of recording.
    (d) Stamping, marking with paint, or otherwise identifying any tree 
or other forest product in a manner similar to that employed by Forest 
officers to mark or designate a tree or any other forest product for 
cutting, removing, or leaving uncut.
    (e) Loading, removing, transporting, or possessing timber or any 
other forest products acquired under any permit or timber sale 
contract, unless such product is identified as required by the permit 
or contract.
* * * * *
    (h) Removing any timber, tree, or other forest product, except as 
authorized by special use authorization, timber sale contract, permit, 
approved plan of operations, or Federal law or regulation.
    (i) Altering, adding, moving, or removing any stamp, brand, paint, 
Forest Service timber sale boundary marker or tag, or other 
identification on any tree, or other forest product previously marked 
or surveyed by a Forest officer, except as authorized by a Forest 
officer, special use authorization, timber sale contract, permit, 
approved plan of operations, or Federal law or regulation.
    11. In Sec. 261.7, the introductory text is republished and 
paragraph (a) is revised to read as follows:


Sec. 261.7  Livestock.

    The following are prohibited:
    (a) Unauthorized livestock within the National Forest System or on 
other lands under Forest Service administrative control.
* * * * *
    12. In Sec. 261.8, the introductory text is republished and 
paragraph (a) is revised to read as follows:


Sec. 261.8  Fish and wildlife.

    The following are prohibited to the extent that Federal or State 
law is violated:
    (a) Hunting, trapping, fishing, catching, molesting, killing, 
possessing, transporting, buying, selling, bartering, or offering to 
buy, sell, or barter any kind of wild animal, bird, fish, shellfish, or 
parts thereof, or taking the eggs of any bird or fish.
* * * * *
    13. Revise Sec. 261.9 to read as follows:


Sec. 261.9  Property administered by the Forest Service.

    Except as provided by special use authorization, contract, approved 
plan of operations, or Federal law or regulation, the following are 
prohibited:
    (a) Disturbing, damaging, excavating, digging, removing, 
transporting, possessing, buying, selling, bartering, or offering to 
buy, sell, or barter, any natural feature or other property of the 
United States.
    (b) Disturbing, damaging, removing, transporting, possessing, 
buying, selling, bartering, or offering to buy, sell, or barter, any 
plant that is classified as a threatened, endangered, or sensitive 
species.
    (c) Disturbing, damaging, excavating, digging, removing, 
transporting, possessing, buying, selling, bartering, or offering to 
buy, sell, or barter, any fossil or other paleontological resource; or 
prehistoric, historic, or archaeological resource, structure, site, 
artifact, or property.
    (d) Entering any building, structure, or enclosed area owned or 
controlled by the United States, without permission of a Forest 
officer, when such building, structure, or enclosed area is not open to 
the public.
    (e) Using any pesticide except for personal use as an insect 
repellent or other minor uses.
    (f) Possessing, duplicating, using, or allowing the use of any 
Forest Service lock or key without permission of a Forest officer.
    (g) Accessing or using any computer system or computer network 
owned, leased, or controlled by the Forest Service without permission 
of a Forest officer.
    (h) Using, damaging, destroying, altering, copying, or deleting 
information, data, or programs stored in any computer system or 
computer network owned, leased, or controlled by the Forest Service 
without permission of a Forest officer.
    (i) Performing or allowing to be performed an action prohibited by 
a scenic easement owned by the United States, or failing to perform an 
action required by such an easement.
    (j) Removing any mineral or mineral material.
    14. Revise Sec. 261.10 to read as follows:


Sec. 261.10  Occupancy and use.

    Except as provided by special use authorization, contract, approved 
plan of operations, or federal law or regulation, the following are 
prohibited:
    (a) Constructing, placing, or maintaining any kind of road, trail, 
structure, fence, enclosure, communication equipment, or other 
improvement on the National Forest System or facilities thereon.
    (b) Taking possession of, occupying, residing upon, or otherwise 
using the National Forest System or facilities thereon for any purpose.
    (c) Selling, leasing, renting, or offering for sale, lease, or rent 
any kind of merchandise, service, or equipment, or conducting any kind 
of work activity or service.
    (d) Discharging a firearm or using any other implement capable of 
taking human life, causing injury, or damaging property:
    (1) in or within 150 yards of a residence, building, campsite, 
developed recreation site or occupied area;
    (2) from a vehicle; or
    (3) in any manner or place whereby any person or property is 
exposed to injury or damage as a result of such discharge or use.
    (e) Abandoning any personal property.
    (f) Placing a vehicle or other object in such a manner that it is 
an impediment or hazard to the safety or convenience of any person.
    (g) Disseminating, posting, placing, or erecting any paper, notice, 
advertising material, sign, handbill, petition, or similar written and/
or graphic matter.
    (h) Operating or using in or near a campsite, developed recreation 
site, or over an adjacent body of water, any device which produces 
noise, such as a radio, television, musical instrument, motor, or 
engine, in such a manner and at such time so as to unreasonably disturb 
any person.
    (i) Operating or using a public address system, whether fixed, 
portable, or vehicle mounted, in or near a campsite or developed 
recreation site or over an adjacent body of water.
    (j) Use or occupancy of the National Forest System or facilities 
thereon when authorization is required.
    (k) Violating any term or condition of a special use authorization, 
contract, or approved plan of operations.
    (l) Failing to stop a vehicle when directed to do so by a Forest 
officer.
    (m) Failing to pay any special use fee or other charges as 
required.
    (n) Paying for any product, special use authorization, fee, or 
service by check with insufficient funds.
    (o) Charging, collecting, or attempting to charge or collect a fee 
or thing of value from any person lawfully using the National Forest 
System.
    (p) Failing to display a special use authorization, license, tag or 
other document when such display is required.
    (q) Outfitting on, or guiding on the National Forest System.
    (r) Undertaking any activity in contravention of prohibitions or 
requirements of a scenic easement.
    15. In Sec. 261.11, the introductory text is republished and 
paragraph (b) is revised to read as follows:


Sec. 261.11  Sanitation.

    The following are prohibited:
    (a) * * *
    (b) Depositing, leaving, or causing to be left, any refuse, debris, 
trash, or litter on the National Forest System or facilities thereon 
not designated for that purpose.
 * * * * *
    16. In Sec. 261.12, the introductory text is republished, paragraph 
(a) is revised and new paragraphs (e) through (g) are added to read as 
follows:


Sec. 261.12  Forest development roads and trails.

    The following are prohibited:
    (a) Violating the load, weight, height, length, or width 
limitations prescribed by State law except by contract, special use 
authorization, approved plan of operations, written agreement or by 
order issued under Sec. 261.54 of this part.
* * * * *
    (e) Operating any vehicle in violation of State law, posted sign or 
traffic device.
    (f) Operating a vehicle carelessly, recklessly, or in a manner or 
at a speed that would endanger or be likely to endanger any person or 
property.
    (g) Operating or riding in any vehicle on a Forest development road 
without wearing seatbelts, if provided by the manufacturer.
    17. Revise Sec. 261.13 to read as follows:


Sec. 261.13  Use of vehicles off roads.

    It is prohibited to operate any vehicle off Forest development, 
State or County roads:
    (a) Without a valid operator's license or permit in possession if 
required by State law.
    (b) Without an operable braking system.
    (c) From one-half hour after sunset to one-half hour before sunrise 
unless equipped with working head and tail lights.
    (d) In violation of any applicable noise emission standard 
established by any Federal or State agency.
    (e) Creating excessive or unusual smoke.
    (f) Carelessly, recklessly, or in a manner or at speed that would 
endanger or be likely to endanger any person or property.
    (g) In a manner which damages the land or vegetative resources, or 
injures or unreasonably disturbs wildlife.
    (h) In violation of State law established for vehicles used off 
roads.
    (i) Without displaying a valid vehicle license or possessing a 
vehicle registration if required by State law.
    18. In Sec. 261.14, the introductory text is republished and a new 
paragraph (r) is added to read as follows:


Sec. 261.14  Developed recreation sites.

    The following are prohibited:
* * * * *
    (r) Reserving any portion of the site for another person or party 
without permission of a Forest officer.
    19. Revise Sec. 261.15 to read as follows:


Sec. 261.15  Admission, recreation use, and special recreation permit 
fees.

    Failure to comply with posted fee payment instructions for any fee 
established for admission or entrance to, or use of, a site, facility, 
equipment, or service furnished by the United States is prohibited. A 
violation of this section is an infraction and no sentence of 
imprisonment is authorized.
    20. Add a new Sec. 261.22 to read as follows:


Sec. 261.22  Buildings used in furtherance of the administration of the 
National Forest System or Forest Service Programs.

    The following are prohibited in buildings owned or leased by the 
Forest Service:
    (a) Engaging in conduct which impedes or disrupts the performance 
of official duty or the safety of Government employees.
    (b) Engaging in conduct which prevents the general public from 
obtaining the services provided by the Government or its agents or 
contractors on the property.
    (c) Failing to submit packages, briefcases, or other containers for 
inspection, when required, prior to entrance.
    (d) Carrying, possessing, depositing, or placing firearms, other 
dangerous or deadly weapons, explosives, or items intended to be used 
to fabricate an explosive or incendiary device, unless authorized by 
special use authorization, contract, approved plan of operations, or 
Federal law or regulation.

Subpart B--Prohibitions in Areas Designated by Order

    21. In Sec. 261.50, revise paragraph (e)(1) as follows:


Sec. 261.50  Orders.

* * * * *
    (e) * * *
    (1) Persons who have specific authorization for the otherwise 
prohibited act or omission by virtue of a special use authorization, 
contract, approved plan of operations, or Federal law or regulation.
* * * * *
    22. In Sec. 261.53, the introductory text is republished and 
paragraph (a) is revised to read as follows:


Sec. 261.53  Special closures.

    When provided by an order, it is prohibited to go into or be upon 
any area which is closed for the protection of:
    (a) plants, animals, birds, fish, or shellfish.
* * * * *
    23. In Sec. 261.54, the introductory text is republished, paragraph 
(f) is removed and paragraphs (a) and (c) are revised to read as 
follows:


Sec. 261.54  Forest development roads.

    When provided by an order, the following are prohibited:
    (a) Using or possessing any type of vehicle prohibited by the 
order.
    (b) * * *
    (c) Using a road for commercial hauling or other commercial 
activities without a special use authorization or written 
authorization.
    (d) * * *
    (e) * * *
    24. Amend Sec. 261.58 by revising paragraphs (m) and (bb) and by 
adding paragraphs (dd), and (ee) to read as follows:


Sec. 261.58  Occupancy and use.

    When provided by an order, the following are prohibited:
* * * * *
    (m) Discharging or possessing a firearm, air rifle, gas gun, or 
other device capable of causing injury to persons or wildlife or 
capable of causing property damage.
* * * * *
    (bb) Possessing an alcoholic beverage.
    (cc) * * *
    (dd) Storing, placing, or leaving personal property unattended 
outside of developed recreation sites for more than the length of time 
specified by the order.
    (ee) Possessing, storing, or using any glass food or beverage 
containers.

PART 262--LAW ENFORCEMENT SUPPORT ACTIVITIES

    1. The authority citation for part 262 is revised to read as 
follows:

    Authority:  7 U.S.C. 1011(f); 16 U.S.C. 472; 16 U.S.C. 551; 16 
U.S.C. 559b-h; 40 U.S.C. 484(m); CG-B-172259.


Secs. 262.2 and 262.3  [Removed]


Sec. 262.1  [Redesignated as Sec. 262.2]

    2. Remove Secs. 262.2 and 262.3, redesignate Sec. 262.1 as 
Sec. 262.2, and add new Secs. 262.1 and 262.3 to read as follows:


Sec. 262.1  Definitions.

    The following definitions apply to this subpart:
    Law Enforcement Officer  means an employee of the Forest Service in 
other than the Criminal Investigating series, GS-1811, who is 
authorized by the Washington Office, Director for Law Enforcement and 
Investigations to conduct investigations, make arrests with or without 
a warrant or process, issue violation notices, execute and serve search 
and arrest warrants, carry firearms for law enforcement purposes, and 
perform other duties as directed in connection with the enforcement or 
administration of all laws, rules, and regulations in which the 
Department of Agriculture, Forest Service, is or may be a party of 
interest.
    Special Agent means an employee of the Forest Service in the 
Criminal Investigating series, GS-1811, who is authorized by the Chief 
to perform all duties conferred upon such officer under all laws and 
regulations administered by the Forest Service including the authority 
to conduct investigations, to execute and serve search and arrest 
warrants, to serve orders, subpoenas, or other judicial processes as 
directed, to carry firearms, make arrests, issue violation notices, and 
perform other duties as directed in connection with the enforcement or 
administration of all laws, rules and regulations in which the 
Department of Agriculture, Forest Service, is or may be a party of 
interest.


Sec. 262.3  Purchase of information or evidence in furtherance of 
investigations.

    (a) Approval of payments. The following Forest Service officials 
may make or approve payments for purchase of information or evidence to 
further law enforcement investigations in the amount shown for each 
transaction as follows:

(1) Law Enforcement Officers
up to $250.00
(2) Special Agents
up to $500.00
(3) Regional Special Agents in Charge
up to $1,000.00
(4) Director for Law Enforcement and Investigations
up to $5,000.00
(5) Chief, for amounts exceeding
$5,000.00

    (b) [Reserved]

Subpart B--Administrative Impoundments and Removals

    3. Revise the title of subpart B as set out above.
    4. Amend Sec. 262.12 by revising paragraph (d) to read as follows:


Sec. 262.12  Impounding of personal property.

* * * * *
    (d) If the personal property is not redeemed on or before the date 
fixed for its disposition, it shall become property of the United 
States. Such property may be retained by the Forest Service for use in 
on-going management activities, sold at public sale to the highest 
bidder, or otherwise disposed of. When personal property is sold 
pursuant to this regulation, the Forest officer making the sale shall 
furnish the purchaser with a bill of sale or other written instrument 
evidencing the sale.
    5. Revise Sec. 262.13 to read as follows:


Sec. 262.13  Removal of obstructions.

    A Forest officer may remove or cause to be removed, to a more 
suitable place, a vehicle or other object which is an impediment or 
hazard to the safety, convenience, or comfort of any person, or which 
has been left in such a manner that it impairs or may result in the 
impairment of any areas of the National Forest System or other lands 
under Forest Service control.

    Dated: January 6, 1994.
David G. Unger,
Associate Chief.
[FR Doc. 94-3358 Filed 2-15-94; 8:45 am]
BILLING CODE 3410-11-M