[Federal Register Volume 61, Number 202 (Thursday, October 17, 1996)]
[Notices]
[Pages 54148-54151]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-26624]


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 Notices
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 This section of the FEDERAL REGISTER contains documents other than rules 
 or proposed rules that are applicable to the public. Notices of hearings 
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  Federal Register / Vol. 61, No. 202 / Thursday, October 17, 1996 / 
Notices  

[[Page 54148]]



DEPARTMENT OF AGRICULTURE

Forest Service


Revised Land and Resource Management Plan for the Croatan 
National Forest

AGENCY: Forest Service, USDA.

ACTION: Notice of Intent to Prepare an Environmental Impact Statement.

-----------------------------------------------------------------------

SUMMARY: Pursuant to 36 CFR 219.10(g), the Regional Forester for the 
Southern Region gives notice of the Agency's intent to prepare an 
Environmental Impact Statement (EIS) for the revision of the Forest 
Land and Resource Management Plan (Forest Plan) for the Croatan 
National Forest. According to 36 CFR 219.10(g), Forest Plans are 
ordinarily revised on a 10-15 year cycle. Several amendments have been 
made to the Forest Plan since it was approved in 1986.
    The Agency invites written comments within the scope of the 
analysis described below. In addition, the Agency gives notice that an 
open and full environmental analysis and decision-making process will 
occur on the proposals so that interested and affected people may 
participate and contribute to the final decision.

DATES: Comments concerning the scope of the analysis should be received 
by January 17, 1997. The Agency expects to file the Draft Environmental 
Impact Statement (DEIS) with the Environmental Protection Agency and 
make them available for public comment in March of 1997. The Agency 
expects to file the Final Environmental Impact Statement (FEIS) in 
November of 1997.

ADDRESS: Submit written comments to the Forest Supervisor at the 
following address: National Forests in North Carolina; P.O. Box 2750; 
Asheville, NC 28802.

FOR FURTHER INFORMATION CONTACT:

National Forests in North Carolina; Planning Staff Officer--George H. 
Cook--phone: (704) 257-4237.

RESPONSIBLE OFFICIAL: The Regional Forester for the Southern Region 
located at 1720 Peachtree Road, NW, Atlanta, Georgia 30367, is the 
Responsible Official.
Affected Counties
    This Notice of Intent affects the following North Carolina 
Counties:

    Croatan National Forest: Carteret, Craven, and Jones.
SUPPLEMENTARY INFORMATION:
1. The Purpose and Need for Action

    Natural resource management decisions are made in two stages. First 
stage decisions allocate land and resources to various uses or 
conditions by establishing management prescriptions and where they 
apply in the plan area. These first stage decisions become the Forest 
Plan, which sets a framework for the next stage of decisions. Second 
stage decisions approve site-specific projects that implement the 
Forest Plan.
    Forest Plans establish goals and objectives to achieve the desired 
resource conditions for National Forests. These Forest Plans also 
establish limits on actions (standards) that can be taken to meet 
desired conditions. Planners often use management areas to delineate 
where management prescriptions and their associated goals, objectives, 
and standards apply in the plan area.
    Forest Plans guide site-specific actions. Projects are designed to 
change conditions from current to desired according to the management 
prescriptions in the Forest Plan. These site-specific actions must be 
consistent with Forest Plans.
    Integrating multiple-resource conditions and uses is one important 
outcome of Forest Plans. The decisions made in Forest Plans are 
outlined in the planning regulations summarized below.
    1. Establish forest-wide multiple-use goals and objectives (36 CFR 
219.11(b)).
    2. Establish forest-wide management requirements (36 CFR 219.13 to 
219.27).
    3. Establish multiple-use prescriptions and associated standards 
and guidelines for each management area (36 CFR 219.11(c)).
    4. Determine land suitable for the production of timber (16 U.S.C. 
1604(k) and 36 CFR 219.14).
    5. Establish the allowable sale quantity for timber within a time 
frame specified in the Forest Plan (36 CFR 219.16).
    6. Establish monitoring and evaluation requirements (36 CFR 
219.11(d)).
    7. Recommend roadless areas, which, if any, are proposed for 
potential wilderness designation (36 CFR 219.17).
    The Croatan National Forest is completing its first planning cycle, 
which occurs at 10 to 15 year intervals. The current Forest Plan 
includes management direction for the Croatan and the Uwharrie National 
Forests. We propose to establish 2 separate Forest Plans, one for each 
National Forest. This notice focuses on revising management direction 
for the Croatan National Forest. The notice for revising the Uwharrie 
National Forest Plan will be issued separately.

2. Preliminary Issues

    The revised Forest Plan will focus on key issues that have surfaced 
from reviews of the current Forest Plan. The 5-year review, as 
specified in the planning regulations, was conducted in 1992. A review 
of the ``analysis of the management situation'' was conducted in 1996. 
Results of these reviews identifies conditions that have changed over 
time. These changes have created new issues on the Croatan National 
Forest.
    Managers of the Croatan National Forest are faced with issues both 
National and local in scope. The preliminary issues are framed as the 
following topics and needs.
    A. Biological Diversity. Biological diversity refers to the variety 
of life, its forms, and the levels of organization. To manage for 
biodiversity, means to maintain the stability and resilience of 
ecosystems to respond and recover from natural and human induced 
disturbances.
    1. On the Croatan National Forest, recovery of the red-cockaded 
woodpecker (RCW) depends on restoring the longleaf pine community 
through natural fire regimes. Longleaf pine communities are less 
susceptible to a variety of pests and pathogens and catastrophic 
wildfire. We need to designate the RCW Habitat Management Areas, set 
population objectives, and

[[Page 54149]]

locate and set management direction for RCW clusters and habitat 
linkages.
    2. Species diversity is enhanced by restoring natural community 
composition, structure, and function, including wetlands. We need to 
identify which natural communities should be targeted for restoration 
and to what level should the restoration efforts be.
    3. Black bear and its habitat are important components of the 
ecosystem. We need to estimate the quantity and distribution of habitat 
needed to maintain a stable population. Bear require hard mast foods, 
habitat linkages and freedom from motorized disturbance.
    4. Neotropical migratory birds require a minimum block or patch 
size. At issue is which species are present, what patches currently 
exist, and how many should there be distributed across the forest.
    B. Recreation Opportunities. People are seeking nature-based 
recreation opportunities, but demands for settings and activities range 
from primitive to highly developed. Also, the desires of traditional 
local users often differ from new recreationists drawn from a growing 
local tourist industry and newcomers to the local community. The amount 
and patterns of use for different activities are changing. The current 
mix of recreation opportunities no longer responds to changing public 
demands and expectations. The effects of recreation use on ecological 
and cultural resources is also a concern.
    We need to determine what mix of resource-compatible recreation 
settings, activities, and facilities should be provided on the Croatan 
National Forest, and what level of use is sustainable.
    C. Special Land Allocations. Wilderness, Wild and Scenic Rivers, 
and Research Natural Areas are allocations of lands to specific uses; 
some require Congressional designation. These specially allocated lands 
may not allow or may have reduced levels of timber and wildlife 
management, and may have limited recreational access. The concern is 
while many people may want to see more of these areas, others may 
oppose allocating land to these uses and may even desire a reduction in 
the quantities currently established. The following special land 
allocations will be addressed in the Forest Plan revision.
    1. We will assess the wilderness resource and determine whether or 
not to recommend additional areas for Congressional designation. In 
addition, natural fire and prescribed fire will be evaluated as a way 
to restore natural processes to the wilderness.
    2. White Oak River and Brices Creek will be assessed to determine 
their suitability as Wild and Scenic Rivers. The issue is whether or 
not to recommend these rivers for Wild and Scenic designation by 
Congress.
    D. Vegetation and Timber Management. Concerns about ecosystem 
health, biological diversity, and rare species and communities drive a 
change in existing forest types and extent. The re-establishment of 
longleaf pine for RCW recovery may require different regeneration 
methods compared to current practices. Sustaining healthy timber stands 
provided RCW habitat and raw materials for local economies.
    1. We will determine what lands on the Croatan will be suitable for 
timber production based on criteria in 36 CFR 219.14.
    2. Current vegetation cover types would change as a result the RCW 
recovery. Longleaf pine would be emphasized on appropriate land types, 
resulting in increased acres of longleaf on the Croatan National 
Forest. The issue is how extensive should the longleaf restoration be, 
what is the rate of restoration efforts, and what regeneration methods 
should be used.
    E. Fire Management. Fire is the primary disturbance factor on the 
Croatan National Forest; it has a vital role in the management of the 
ecosystem. Prescribed fire limits hazardous fuel buildup and maintains 
communities that depend on fire. Prescribed fire can be scheduled to 
meet land management objectives, including the reduction of wildfire 
risk to urban interface areas.
    1. We need to determine the areas of wildland urban interface 
concerns and what role prescribed fire on National Forest lands has in 
reducing wildfire risks to these areas of concern.
    2. In the restoration of natural communities on the Croatan, fire 
has the most far-reaching effect. We need to determine the amount and 
timing of prescribed fire needed to accomplish vegetation management 
goals.
    3. Determinations need to be made as to whether or not natural 
(lightning) fire should be allowed to burn, particularly in wilderness, 
and, if so, under what conditions.
    F. Access. Public access to enter, use, or pass through the Croatan 
National Forest has become increasingly controversial due to a growing 
local population, changes in adjacent land use, and concerns about the 
impacts to forest resources. These concerns include illegal trash 
dumping, illegal and legal shooting from roads, protection for wildlife 
that require freedom from motorized disturbance, protection of fragile 
natural communities, opportunities for non-motorized recreation use, 
and resource damage from legal and illegal off-highway vehicle use. The 
issue here is to what extent should motorized access be available on 
the National Forest.
    G. Local Communities. As local communities grow, the pressure 
increases to accommodate a variety of special uses on the Forest. These 
special uses should blend with the multiple uses of the National 
Forest. We need to determine what kinds and extents of special uses to 
allow for supporting local municipal growth within the context of 
multiple uses of the National Forest.

3. Proposed Actions and Preliminary Alternatives

    In this section, we disclose some preliminary proposals to address 
the issues. These proposals were developed from an analysis of the 
current conditions.
    A. Biological Diversity. Restoration of RCW populations and their 
habitat will be emphasized. Ecologically unique aquatic ecosystems such 
as large pocosin lakes which support acid tolerant fish and other 
aquatic species, and swamp drainage streams and estuaries which are 
important habitats for anadramous and catadramous fish species will be 
protected.
    1. Regional direction for recovery of the RCW is documented in the 
Environmental Impact Statement for the Recovery of the Red Cockaded 
Woodpecker (1995). Specific standards are disclosed for cluster, 
recruitment, and replacement stands, as well as foraging habitat. A 
tentative population objective is given in the EIS, but final 
population objectives must be established through the Forest Plan. 
Currently there are 60 active and 24 inactive clusters. We estimate the 
maximum population could be 190 clusters. This would require the 
designation of a habitat management area of 63,700 acres. Reasonable 
alternatives for population objectives could range from about 130 to 
190 clusters. Consultation with the U.S. Fish and Wildlife Service will 
begin immediately to help set RCW population objectives.
    2. Linked with RCW populations is the restoration of longleaf pine 
communities. These communities occupy less than 4 percent of its 
original presettlement range. Currently, the Forest contains about 
12,000 acres of longleaf pine forests with the potential to restore up 
to 33,000 acres. This would require converting about 11,000 acres of 
loblolly and 10,000 acres of

[[Page 54150]]

pond pine to the longleaf community type.
    Other rare communities include canebrakes, marshes, and wetlands. 
Preliminary estimates for restoration are 660 acres of marsh and 34,000 
acres for canebrakes. The Natural Heritage Program, through the State 
of North Carolina, provides information about rare communities. They 
have proposed adding 18 additional special interest areas for the 
protection of rare communities. Criteria will be developed to evaluate 
these areas. The ecological classification system is used to evaluate 
restoration efforts. The landscape is mapped by ecological unit which 
identifies the potential vegetative community type that could be 
sustained at given sites. By comparing the current community type with 
its potential, the amount of restoration is identified.
    3. Black bear habitat will be derived mapping patches of suitable 
habitat across the landscape. Open road density and available hard mast 
are among the criteria to evaluate these patches. The North Carolina 
Wildlife Commission will assist with the development of any additional 
criteria. The Commission has also provided information about habitats 
they may be suitable for bear, wild turkey, small game, waterfowl and 
sensitive habitats.
    4. Similar to black bear, suitable habitat for neotropical 
migratory birds will be mapped as patches across the landscape. 
Criteria are being developed to conduct this mapping effort. A 
literature search is underway to determine the extent of past and 
current populations of these birds on the Croatan National Forest.
    5. A classification of aquatic ecosystem types across the Croatan 
National Forest is currently underway, and will be completed in 1997. 
The delineation of different aquatic ecological types, together with 
data on the distribution and relative abundance of different species of 
fish and other biota, will form the basis for identification of 
regionally unique aquatic biological assemblages and their habitat 
requirements. Maintenance of those aquatic biological communities will 
be emphasized.
    B. Recreation Opportunities. The Forest Service Recreation 
Opportunity Spectrum (ROS) is the analytic approach to evaluating 
recreation opportunities. It groups and describes compatible 
recreational, environmental and social settings, activities and 
experiences, and is the basis for identifying the capability of the 
Forest to provide these opportunities in concert with other resource 
needs and objectives. Currently, a high proportion of the Croatan is a 
roaded-natural setting that supplies motorized recreation 
opportunities. About 20 percent of the landbase meets semi-primitive 
non-motorized conditions. The Forest now provides a full range of 
nature-based recreation activities. Most activities take place on or 
near water bodies. Sites and facilities that feature water are often 
full or near capacity at peak times, suggesting the need for more of 
these opportunities. Primary land-based activities now occurring 
include hunting and off-highway vehicle riding. Demand for 
opportunities for horse and mountain bike riding and nature viewing is 
growing. Alternative setting distributions will be evaluated using 
Recreation Opportunity Spectrum (ROS). The appropriate mix of 
recreation activities, facilities, and level of use will be determined 
by these setting alternatives.
    Although high quality stream fishing opportunities are available on 
the Croatan National Forest, access is often limited and could be 
improved by the construction of canoe and small boat access areas. 
Additional bank fishing opportunities for local anglers could be 
provided by planning trails that would access portions of exceptional 
stream fisheries and by the construction of small lakes and ponds in 
areas where water quality would facilitate intensive management for 
high yields of sport fish.
    C. Special Land Allocations. Amendment #2 of the current Forest 
Plan determined White Oak River to be eligible for designation as a 
National Wild and Scenic River with potential for recreation and scenic 
classifications. Further study will determine if the river is suitable 
for designation. Brices Creek will also be studied to determine its 
eligibility for inclusion in the National Wild and Scenic River system. 
If eligible, further analysis will determine its suitability for 
designation. Whether or not either of these rivers are recommended for 
Wild and Scenic River designation will depend on the suitability 
analysis. The rivers will be evaluated in a manner consistent with the 
USDI and USDA jointly issued Final Revised Guidelines for Eligibility, 
Classification, and Management of River Areas Federal Register 34457, 
September 7, 1982).
    The first step in the evaluation of potential wilderness is to 
inventory all roadless areas of the forest that satisfy the definition 
of wilderness found in Section 2(c) of the 1964 Wilderness Act (FSH 
1909.12, chapter 7, item 7.1). Roadless areas are places that have 
regained or are regaining a natural, untrammeled appearance, where any 
signs of prior human activity are disappearing or being muted by 
natural forces. Criteria provides for roadless areas to include no more 
than one-half mile of improved road for each 1,000 acres.
    The Croatan National Forest contains 20,800 acres in 7 roadless 
areas. Six of these areas adjoin the 4 existing congressionally 
designated wildernesses on the forest. Whether or not to recommend 
wilderness on the forest. Whether or not to recommend wilderness 
designation for each of the roadless areas will depend on a suitability 
analysis. Each wilderness area could be expanded as follows: Catfish 
Lake South Wilderness--405 acres; Sheep Ridge Wilderness--5,806 acres; 
Pond Pine Wilderness--3,010 acres; Pocosin Wilderness--286 acres. The 
remaining 11,293 acres are in a single roadless area. Criteria for the 
suitability analysis is from FSH 1909.12, Chapter 7.
    D. Vegetation and Timber Management. If high population levels are 
set for the recovery of RCW, the restoration of longleaf pine 
communities would likely be accelerated which could increase timber 
harvesting and outputs. About 1 million board feet are currently 
harvested from the Croatan National Forest.
    1. Approximately 90,000 acres are not suited for timber production 
using criteria for Stage 1 in 36 CFR 219.14. That leaves about 50,000 
acres as tentatively suited for timber production. The current Forest 
Plan has about 27,000 acres suitable for timber production. In 
alternatives, the range of land suitable for timber production could 
vary from below the current 27,000 up to about to 50,000 acres.
    2. If the RCW habitat management area includes most lands 
tentatively suited for timber production, then standards for 
regeneration methods are set by the RCW-EIS. Most regeneration will 
occur using unevenaged or 2-aged methods. Even-aged, specifically 
clearcutting, would only be used to convert loblolly or pond pine to 
longleaf stands. Regeneration methods outside the RCW habitat 
management area would key on the desired conditions for the management 
area.
    E. Fire Management. Almost all of the 160,000 acre Croatan National 
Forest is suitable for fuel reduction burning. The only lands not 
suitable for fuel reduction are drainages and bottomland hardwoods, 
which are often used as fuel breaks.
    1. Many developed areas around the Croatan are vulnerable to damage 
by wildfire. Actions are necessary to reduce these fuel loads and thus 
lessen

[[Page 54151]]

the risk of catastrophic losses from wildfire. Fuel loadings have 
increased due in part to the exclusion of both wildfire and prescribed 
fire as values at risk have increased with land development. Fuel 
loadings and arrangements on the Croatan have also been and will 
continue to be, significantly influenced by hurricane activity along 
the coast. The effects from these storms tend to be cumulative, and it 
is highly probable that the prescribed fire program will have to 
increase to address these additional fuels.
    2. Three year burning rotations are preferred to maintain open, 
park-like forest conditions, particularly in longleaf pine/RCW habitat. 
This equates to approximately 50,000 acres per year. The current 
prescribed fire program has a target of about 20,000 acres per year.
    3. Prescribed natural fire, (i.e., fire resulting from a natural 
ignition such as lightning that is subsequently designated and managed 
as a prescribed fire under specific weather and fuel parameters), may 
be considered to achieve well-defined management objectives. In order 
to consider the use of prescribed natural fire on the Croatan National 
Forest, the items listed in Forest Service Manual 5142.21 will need to 
be addressed in the Forest Plan. Wildfire may be allowed to burn if 
conditions are suitable. Criteria for these conditions will be 
developed. We will also consider prescribed natural (lightning) fires 
in wilderness areas in order to restore the natural processes in these 
areas.
    F. Access. To address this issue, our approach will be to map open 
roads on the Croatan National Forest and identify areas where illegal 
dumping, shooting, or other resource damage or user conflicts occur 
resulting from motorized use. There are about 200 miles of Forest 
Service roads and many miles of state roads; nearly all are open for 
motorized access. In addition, many off-highway vehicle routes have 
been created which have not yet been inventoried. Alternatives will 
range from maintaining high levels of access to reduced levels of 
motorized access.
    G. Local Communities. The human population is expected to grow by 
12 percent in Craven, Carteret, and Jones counties. Municipalities are 
demanding space to use for facilitating development. One strategy is to 
identify lands for exchange with local governments. Other criteria will 
be developed based on the desired conditions of management areas in 
planning alternatives.

4. The Role of Scoping in Revising the Croatan National Forest Land and 
Resource Management Plans

    Scoping for public comments about preliminary issues and proposed 
actions begins with the publication of this NOI. Public comments will 
be used to refine the issues, the proposed actions, and to develop a 
range of alternatives.
    The Forest Service is seeking information, comments, and assistance 
from Federal, State, and local agencies, and other individuals or 
organizations who may be interested in or affected by the proposed 
action. This input will be utilized in the preparation of the DEIS. 
Public participation will be solicited by notifying in person and/or by 
mail, known interested and affected publics. News releases will be used 
to give the public general notice.
    Public participation will be sought throughout the Forest Plan 
revision process and will be especially important at several points 
along the way. The first opportunity to comment will be during this 
scoping process (40 CFR 1501.7). Scoping includes: (1) identifying 
additional potential issues (other than those previously described), 
(2) from these, identifying significant issues or those which have been 
covered by prior environmental review, (3) exploring additional 
alternatives, and (4) identifying potential environmental effects of 
the proposed action and alternatives (i.e., direct, indirect, and 
cumulative effects).
    As part of the first step in scoping, a series of public meetings 
are scheduled to explain the public role in the planning process and 
provide an opportunity for public input. Formats, times, and places 
will vary. Specific information about these meetings will be released 
at a later date.

5. Release and Review of the EIS

    The DEIS is expected to be filed with the Environmental Protection 
Agency (EPA) and to be available for public comment by March 1997. At 
that time, the EPA will publish a notice of availability of the DEIS in 
the Federal Register. The comment period on each DEIS will be 3 months 
from the date the EPA publishes the notice of availability in the 
Federal Register.
    The Forest Services believes, at this early stage, it is important 
to give reviewers notice of several court rulings related to public 
participation in the environmental review process. First, reviewers of 
the DEIS must structure their participation in the environmental review 
of the proposal so that it is meaningful and alerts an Agency to the 
reviewer's position and contentions. Vermont Yankee Nuclear Power Corp. 
v. NRDC, 435 U.S. 519, 553 (1978). Also, environmental objections that 
could be raised at the DEIS stage but that are not raised until after 
completion of the FEIS may be waived or dismissed by the courts. City 
of Angoon v. Hodel, 803 F.2d 1016, 1022 (9th Cir. 1986) and Wisconsin 
Heritages, Inc. v. Harris, 490 F.Supp.1334, 1338 (E.D.Wis.1980). 
Because of these court rulings, it is very important that those 
interested in this proposed action participate by the close of the 3 
month comment period so that substantive comments and objections are 
made available to the Forest Service at a time when it can meaningfully 
consider them and respond to them in the FEIS.
    To assist the Forest Service in identifying and considering issues 
and concerns on the proposed actions, comments on the DEIS should be as 
specific as possible. It is also helpful when comments refer to 
specific pages or chapters of the draft statement. Comments may also 
address the adequacy of the DEIS or the merits of the alternatives 
formulated and discussed in the statements. Reviewers may wish to refer 
to the Council on Environmental Quality Regulations for implementing 
the procedural provisions of the National Environmental Policy Act at 
40 CFR 1503.3 in addressing these points.
    After the comment period on the DEIS ends, comments will be 
analyzed, considered, and responded to by the Forest Service in 
preparing the FEIS. The FEIS is scheduled to be completed in November 
1997. The Responsible Official will consider the comments, responses, 
environmental consequences discussed in each FEIS, and applicable laws, 
regulations, and policies in making a decision regarding these 
revisions. The Responsible Official will document the decision and 
reasons for the decision in a Record of Decision for the Forest Plan. 
The decision will be subject to appeal in accordance with 36 CFR 217.
    The Responsible Official for the Forest Plan is the Regional 
Forester, Southern Region, 1720 Peachtree Road, NW, Atlanta, Georgia 
30367.

    Dated: October 10, 1996.
Robert D. Bowers,
Acting Regional Forester.
[FR Doc. 96-26624 Filed 10-16-96; 8:45 am]
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