[Federal Register Volume 65, Number 43 (Friday, March 3, 2000)]
[Notices]
[Pages 11684-11693]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-5000]



  Federal Register / Vol. 65, No. 43 / Friday, March 3, 2000 / 
Notices  

[[Page 11684]]


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DEPARTMENT OF AGRICULTURE

Forest Service

RIN 0596-AB67


Forest Transportation System

AGENCY: Forest Service, USDA.

ACTION: Notice of proposed administrative policy; request for comment.

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SUMMARY: In conjunction with a proposed rule published elsewhere in 
this part of today's Federal Register, the Forest Service proposes to 
revise its administrative direction governing forest transportation 
planning and management. This action is necessary to ensure that the 
forest transportation system meets current and future land and resource 
management objectives and provides for attendant public uses of 
National Forest System lands; provides for safe public access and 
travel; allows for economical and efficient management; and, to the 
extent practicable, minimizes and begins to reverse adverse ecological 
impacts. The intended effects of this action are to ensure that 
decisions to construct new roads will be made only upon completion of a 
science-based road analysis; that emphasis will be given to 
decommissioning unnecessary classified and unclassified roads and to 
reconstructing and maintaining classified roads rather than 
constructing new roads, where supported by analyses; and that the 
availability of road maintenance funding will be considered when 
assessing new road construction. Public comment is invited and will be 
considered in adoption and issuance of the final directives.

DATES: Comments must be received in writing by May 2, 2000.

ADDRESSES: Send written comments to USFS CAET, Attention: Roads, P.O. 
Box 221090, Salt Lake City, UT 84122. Send comments electronically to 
roads/[email protected]. All comments received, including names 
and addresses when provided, are placed in the record and are available 
for public inspection and copying at Forest Service headquarters, 201 
14th Street SW, Washington, DC 20250. Persons wishing to inspect the 
comments are encouraged to call 202-205-1400 to facilitate building 
entrance.

FOR FURTHER INFORMATION CONTACT: Heidi Valetkevitch, Office of 
Communication, 202-205-0914.

SUPPLEMENTARY INFORMATION:

Background

    Forest Service roads are constructed and maintained to provide 
public and administrative access and to allow for delivery of goods and 
services. However, few land impacts are more lasting than those 
associated with road construction. Forest Service land managers face 
complex transportation-related issues including funding limitations, 
environmental and social impacts, substandard roads, and maintaining 
unroaded area values.
    In the past, Forest Service transportation policy focused on 
development of roads into and across National Forest System lands. Over 
the years, this emphasis on road development has led to heightened 
concern about water quality, recreation opportunities, and restoration 
and maintenance of sustainable ecosystems. Today, the Forest Service 
considers the National Forest road system, at approximately 380,000 
miles of road, to be largely complete. As a result, the previous 
emphasis on road development has evolved into the present focus on 
managing access within the capability of the land.
    Administrative direction to guide forest officers in planning and 
managing the transportation system is issued in Forest Service Manual 
(FSM) Title 7700--National Forest Transportation System, FSM Chapter 
1920--Land and Resource Management Planning, and in associated 
handbooks. Numerous changes in these directives are necessary to 
address the new emphasis on sustaining access within the capability of 
the land.
    One of the significant changes is the direction to utilize a 
science-based road analysis, at appropriate scales and in coordination 
with other ecosystem assessments, to inform decisions about road 
construction, reconstruction, maintenance, and decommissioning. The 
directives specifically direct forest officers to use an analysis 
process such as that described in the report Roads Analysis: Informing 
Decisions About Managing the National Forest Transportation System 
(USDA Forest Service, 1999, Misc. Rep. FS-643) in order to gain 
improved information on which to identify road management opportunities 
and to assess priorities among various transportation facilities.
    Developed by a team of Forest Service research scientists, 
engineers, and resource professionals and field tested on six national 
forests across the country, the process is designed to help forest 
officers move methodically through a science-based analysis to identify 
environmental issues and concerns about road management and also to 
identify potential solutions and management opportunities. The proposed 
directives would further require that, before decisions about road 
construction, reconstruction, and decommissioning are initiated, a 
science-based road analysis is used. A science-based road analysis will 
provide an additional avenue for public comment and participation about 
road management options and will provide land managers with access 
alternatives. In addition, decisionmakers will have improved 
information on which to plan and design a feasible Forest Service road 
system within the constraints of current and anticipated future funding 
levels.

Summary of Proposed Changes

    To implement a long-term road management strategy and implement the 
proposed rule changes (published elsewhere in this part of today's 
Federal Register), the Forest Service proposes to revise Forest Service 
Manual (FSM) Chapter 1920--Land and Resource Management Planning and 
Title 7700--Forest Transportation System. For those who are not 
familiar with the Forest Service administrative directive system, a 
brief description is at 36 CFR 200.4. Issuances contained in the 
directive system and information about the system are also available on 
the internet on the directives homepage at http://www.fs.fed.us.
    Proposed Amendments to FSM Chapter 1920--Land and Resource 
Management Planning. This chapter provides definitions and implementing 
policy for the Forest Service land and resource management planning 
process. Implementation of the proposed road management strategy will 
occur chiefly within the forest plan amendment or revision processes. 
Therefore, direction is needed on how forest planning teams are to 
integrate consideration of the forest transportation system into the 
planning process. Specifically, a new paragraph 20 is proposed to be 
added to section 1922.15 of the Forest Service Manual. This new 
paragraph would require planners to identify the access requirements 
and travel management options available to meet resource management 
objectives for each management area prescription and to identify road 
management opportunities to be considered.
    In addition to addressing how transportation needs should be 
integrated into forest planning, the proposed policy would also require 
that management prescriptions protect values associated with unroaded 
conditions. Proposed paragraph 28 gives examples of those values, such 
as serving as barriers to invasive species and providing biological 
diversity. This proposed direction would fill an important gap in 
current planning

[[Page 11685]]

guidelines. To help implement this paragraph, the proposed revision to 
Section 1920.5 defines ``roadless areas'' and ``unroaded areas,'' and 
the revision to Section 1922.15 provides direction for protection of 
unroaded area values under the current forest planning process. On 
October 5, 1999, the agency published proposed new rules for forest 
planning (64 FR 54073). Upon adoption of a final planning rule, the 
direction on consideration of unroad values would be integrated with 
revised agency directives implementing the new planning rule. The 
proposed definitions here are essentially the same as those included in 
the proposed planning rule at proposed Sec. 219.36.
    Proposed Amendments to FSM Title 7700--Chapter Zero Code. This 
chapter establishes the overarching authorities, objectives, policy, 
responsibilities, and definitions for planning, improving, operating, 
and maintaining the forest transportation system. Throughout this 
chapter, references to ``development'' would be removed to reflect a 
shift in policy from ``road development'' to ``managing access within 
the capability of the land.'' A brief description of other revisions 
proposed in this chapter follows.
    Section 7702. This section is for identifying the broad objectives 
of transportation system management--that is the general outcomes the 
agency wishes to achieve. The proposed revision would refine the 
management objectives to emphasize environmental protection and to 
recognize ecosystem values in forest transportation system management.
    Section 7703. This section sets out the broad policies that govern 
transportation planning, design and administration. The proposed 
revision to this section would establish a policy of providing the 
minimum forest transportation system that best serves the current and 
anticipated land management objectives and public uses considering 
current and likely future funding levels. By ``minimum system,'' the 
agency does not mean there will not be new roads or other new 
transportation facilities. Rather, this terminology reflects the 
agency's conclusion that, particularly with respect to roads, there is 
little justification for continuing to plan transportation facilities 
and systems at the high levels of the past 40 years. The agency 
considers the forest road system to be essentially complete because of 
previous levels of road construction. Moreover, the agency lacks 
sufficient funding to maintain all of the system now. Also, land 
managers recognize that the economic benefits normally associated with 
roads now rarely balance or outweigh the adverse environmental impacts 
associated with road construction or reconstruction. Thus, prudent 
management now requires that the Forest Service focus on evaluating the 
road system already in place in light of likely future funding, 
resource management prescriptions, and environmental effects.
    This proposed section would include a new policy requiring a 
rigorous environmental analysis to carefully consider proposals for 
adding and constructing new roads and to help identify priorities for 
decommissioning unneeded roads and reconstructing and maintaining 
needed roads.
    Section 7705. The proposed changes to this section would add new 
definitions and update and revise existing definitions to remove the 
emphasis on ``development'' and to clarify intent. Definitions of 
``roads,'' ``classified roads,'' and ``unclassified roads,'' as 
proposed at 36 CFR 212.1 would be repeated for user convenience. In 
addition, the definition of ``public road'' from 23 U.S.C. 101(a) would 
be added, as well as a definition of ``decommissioning.'' A cross 
reference to FSM 1920.5 for the definition of ``unroaded areas'' also 
would be provided.
    In the last year, the Forest Service has adopted new common terms 
and definitions for maintenance and construction based on standards 
developed by the Federal Accounting Standards Advisory Board. These 
generic terms are now being applied in inventorying, budgeting, and 
accounting for all fixed assets under Forest Service jurisdiction, 
including the national forest transportation system. The terms and 
definitions used in FSM 7705, though slightly different, are not 
inconsistent with the new common financial management terms and their 
definitions. The agency is assessing its transportation directives to 
determine what changes in the Forest Service Manual and Handbook 
terminology are needed. However, this effort exceeds the scope of this 
proposed revision to road management directives. Persons interested in 
viewing the new maintenance and construction terms may obtain them on 
line at www.fs.fed.us/news/roads or by writing or calling the names or 
units listed earlier in this notice under ADDRESSES and FOR FURTHER 
INTEREST CONTACT.
    In addition to the changes in broad policy in FSM 7700--Zero Code, 
changes are proposed to Chapter 7710, the name of which would be 
revised from ``Transportation Planning'' to ``Transportation Atlas, 
Records, and Analysis.''
    Section 7710.2. This section articulates the management results to 
be achieved through transportation analysis. Proposed paragraphs 1 and 
4 are new. Consistent with the shift from development to managing the 
road system within the capability of the land, paragraph 1 would call 
for forest officers to establish the minimum forest transportation 
system that will best provide for management access and public uses as 
identified in forest plans. Paragraph 4 would add consultation with 
State, local, and tribal governments, as well as public involvement.
    Section 7710.3. This section establishes the overall requirements 
for transportation system planning, analysis, and decision 
documentation. Proposed section 7710.31 sets out the general direction 
for transportation analysis, which would apply to transportation 
analysis conducted as part of the forest plan amendment and revision 
process as well as to proposed site-specific projects. First, the 
analysis should be rigorous and focused on the need for access and the 
transportation infrastructure required to provide that access. This 
section would also include the requirement to use the best available 
science in considering effects of transportation facility construction, 
reconstruction, maintenance, and decommissioning. This proposed section 
would also direct forest officers to integrate road analysis with other 
ecosystem assessments and analyses and to incorporate findings of such 
analyses into forest plan amendments or revisions or site-specific 
projects. This section would also require forest officers to ensure 
that any roads to be added to the transportation system, or new road 
construction, serve a documented need and are supported by a road 
analysis.
    Proposed section 7710.32 provides more specific direction to guide 
road analysis. Proposed paragraph 1 (Long-term Application) makes clear 
that the Forest Supervisor does not have to stop all road management 
until a road analysis is done, but, rather, recognizes that road 
analyses will be conducted in the course of business as the need 
arises. The proposed paragraph cites the report Roads Analysis: 
Informing Decisions About Managing the National Forest Transportation 
System (USDA Forest Service, 1999, Misc. Rep. FS-643) as a good example 
of a science-based road analysis procedure. The Road Analysis Process 
was refined as a result of pilot testing on six National Forests (M-) 
located across the county--the Boise NF (Idaho), the Black Hills NF

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(South Dakota), the Mark Twain NF (Missouri), the Tongass NF (Alaska), 
the Ocala NF (Florida), and the Willamette NF (Oregon). The new 
science-based road analysis identifies and addresses a set of possible 
issues and applicable analysis questions that, when answered, produce 
information for line officer consideration about possible road 
construction, reconstruction, and decommissioning needs and 
opportunities. The road analysis examines issues at various scales, is 
flexible, and is driven by road issues important to the public, to 
state, local and tribal governments, and to managers. The directive 
does not adopt this report as a compulsory analytical tool, but it does 
establish the report as the standard for comparison when requesting 
Deputy Chief for National Forest System approval of an alternate 
science-based analysis process.
    Proposed paragraph 2.a. addresses how the agency should handle road 
construction in sensitive roadless and unroaded areas until forest plan 
revision is completed. This transitional direction is necessary because 
the interim suspension on road construction in roadless areas (64 FR 
7289; February 12, 1999), expires in September 2000, and it will be 
several years before all forest plan revisions are completed and 
sometime before the agency's final roadless rule is adopted. Without 
some transitional procedures, the special values associated with 
roadless areas could be subject to an incremental, project-by-project 
risk of degradation.
    The proposed policy would ensure that these roadless areas are 
given careful consideration through the forest planning process by 
requiring the following:

    1. First, proposals for new road construction or reconstruction 
in defined roadless and unroaded areas would have to meet a 
compelling need. Examples of compelling needs include public safety, 
critical resource restoration, and access required by statute, 
treaty, or pursuant to reserved or outstanding rights. As indicated 
by the examples given, the agency envisions ``compelling need'' to 
primarily include restorative actions. However, the Tongass National 
Forest may constitute a special situation. Consistent with the April 
1999 Record of Decision for the Tongass National Forest Land and 
Resource Management Plan, the Regional Forester has authority to 
determine that a compelling need exists in seeking to meet market 
demand for timber, to the extent consistent with providing for the 
multiple use and sustained yield of all renewable forest resources, 
pursuant to the Tongass Timber Reform Act (1990) and all other 
applicable laws.
    2. Second, the proposal would require an Environmental Impact 
Statement to authorize road construction or reconstruction in the 
defined roadless and unroaded areas.
    3. The Regional Forester, rather than the Forest Supervisor, 
would be the responsible official, for any road construction 
proposal in roadless and unroaded areas.

    The proposed policy would find environmental mitigation and 
restoration in roadless and unroaded areas to be appropriate but makes 
clear that maintenance of unclassified roads in roadless and unroaded 
areas would be inappropriate, because such activity would lead to 
defacto road development.
    The proposed paragraph also describes the roadless and unroaded 
areas to which the protections of the transition period would apply. 
These are the same areas as identified in the interim rule suspending 
road construction in roadless areas which took effect March 1, 1999.
    Proposed paragraph 2.b. exempts projects in roaded areas which are 
currently underway or listed in the schedule of proposed actions 
published pursuant to 36 CFR part 215. This exemption is necessary to 
avoid costly disruption of projects underway or planned at the time the 
policy is adopted. However, the proposal does not exempt forests that 
have recently revised forest plans from the transitional procedures, 
because the science-based road analysis process has not been 
incorporated into the revision processes on those forests. Also, it 
should be noted that it is not unusual for forests to prepare EIS's on 
proposed road construction in unroaded areas. Therefore, for many 
forests, these transitional requirements do not represent a significant 
changes from present practice.
    Proposed section 7710.32, paragraph 3, sets out the duration of the 
transitional procedures that apply to roadless areas. For forests that 
have not yet revised their forest plans, the transitional procedures 
would remain in effect until forest plans are revised. For forests that 
have revised their forest plans since January 1, 1996, the transitional 
procedures could be lifted on roadless areas once the roads analysis 
process is applied to units of the forest and the Regional Forester 
makes a written determination concluding that there is no need to 
revise or amend the forest plan as a result of the analysis or an 
amendment or revision adopts the findings into the forest plan.
    Section 7711. Consistent with the proposed rule, this section 
proposes to rename the transportation ``plan'' as the transportation 
``atlas'' and requires that each forest transportation system facility 
be identified and described in the transportation atlas. Specific 
instructions are given for the road atlas portion of the transportation 
atlas.
    Section 7712. This section discusses the scope and levels of 
transportation analysis and further describes the analysis processes, 
including reference to the report, Roads Analysis: Informing Decisions 
About Managing the National Forest Transportation System (USDA Forest 
Service, 1999, Misc. Rep. FS-643). This section also requires 
documentation of road management objectives.

Regulatory Impact

    These proposed administrative policy revisions have been reviewed 
under USDA procedures and Executive Order (E.O.) 12866 on Regulatory 
Planning and Review. The Office of Management and Budget (OMB) has 
determined that they, in concert with a proposed rule published 
separately in today's Federal Register, are a significant action as 
defined by E.O. 12866 because of the importance of the Forest Service 
road system and the strong public interest expressed. Accordingly, OMB 
has reviewed these proposed directive revisions. A cost-benefit 
analysis has been prepared as part of the environmental assessment on 
this proposal. A summary of the cost-benefit analysis follows.
    The basic approach is to issue new regulations consistent with 
emerging road management policy which encourages investing limited road 
management funds in a transportation system that best serves the 
current and anticipated management objectives and public uses of 
National Forest System lands. This new policy emphasizes investing in 
the process of decommissioning unneeded roads and reconstructing and 
maintaining the most heavily used roads. New road construction must be 
supported by rigorous analysis. Agency road management costs are not 
expected to change. Although this rule requires that the Agency use a 
new science-based roads analysis when making decisions about road 
construction, the Agency currently conducts some transportation 
analysis in the context of NEPA requirements or other forest planning 
assessments. Thus the Agency does not expect a significant increase of 
administrative costs due to new administrative requirements under this 
proposal. Most of the economic effects have not been quantified. They 
have been discussed and evaluated on a qualitative basis. Timber 
harvesting is an exception where quantitative data was reasonably 
available. A summary of

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the economic effects of the proposed change in the road management 
strategy are as follows:
    Roaded Areas: The differences between the no action alternative and 
the proposed action alternative tend to be minor. No significant 
difference in economic benefits or costs is expected for ease of 
access, public safety, law enforcement, timber management, and 
wilderness or heritage resources. Potential positive economic effects 
are expected for fire management, insect and disease management, 
noxious weed control, water and air quality, wildlife and fish values, 
and passive use values. These positive effects result from road 
decommissioning. Different types of recreation use are affected in 
different ways--some positive and some negative.
    Roadless Areas (inventoried roadless and other unroaded areas): The 
differences between the no-action alternative and the proposed action 
alternative would be greatest during the transition phase. No 
differences are expected for access, public safety, and law 
enforcement. The only negative affects expected during the transition 
period would be from reduced timber harvest and mineral exploration and 
extraction. If all road construction were delayed during the transition 
in all of the roadless areas, the maximum potential total reduction in 
timber harvest would be 351 million board feet of timber per year. The 
maximum cost associated with this reduced timber harvest would be $42 
million annually. Also lost, as a result of decreased timber 
production, would be approximately 3,700 jobs and $10 million in 
payments-to-states each year. This loss in payments-to-states will be 
partially offset by Payments in Lieu of Taxes. Positive effects are 
expected for fire prevention, insect and disease management, noxious 
weeds, watershed and air quality, wildlife and fish, wilderness, and 
passive use values. These positive effects result from lack of new road 
development. The effects on recreation and heritage resources are 
complex and ambiguous and depend upon the type of activity--some are 
positive and some are negative. Less access reduces the level of 
participation. However, the quality of wilderness type recreation use 
is protected and vandalism of heritage sites is lessened.
    In summary, the proposed regulations will permit a reallocation of 
funds to management activities that are consistent with present 
resource management direction. While the agency could not quantify or 
monetize many of the impacts of this proposed rule, the agency 
thoroughly considered both the potential quantified and qualitatively-
discussed costs and benefits. Pursuant to the requirements of Executive 
Order 12866, the agency carefully assessed alternative regulatory 
approaches and is proposing this rule only upon making a reasoned 
determination that the benefits justify the costs.
    The complete cost-benefit analysis is contained in the 
Environmental Assessment. See the ``Environmental Impact'' section 
which follows for availability. These proposed revisions of 
administrative directives have been considered in light of the 
Regulatory Flexibility Act (5 U.S.C. 601 et seq.). These proposed 
revisions provide service-wide direction to forest and regional 
personnel about planning and managing the Forest transportation system. 
No direct or indirect financial or access impact on small businesses 
has been identified. Therefore, it is hereby certified that this action 
will not have a significant economic impact on a substantial number of 
small entities as defined by that Act.

Unfunded Mandates Reform

    Pursuant to Title II of the Unfunded Mandates Reform Act of 1995 (2 
U.S.C. 1531-1538), the Department has assessed the effects of these 
proposed administrative policy revisions on State, local, and tribal 
governments, and on the private sector. These proposed administrative 
policy revisions do not compel the expenditure of $100 million or more 
by any State, local, or tribal government, or anyone in the private 
sector. Therefore, a statement under section 202 of the Act is not 
required.

Environmental Impact

    Section 31.1(b) 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 administrative procedures, program processes, or 
instructions.'' The Forest Service's assessment is that these proposed 
administrative policy revisions fall within this category of exclusion. 
Nevertheless, to further the intent of the National Environmental 
Policy Act, the agency has elected to prepare an environmental 
analysis. This document may be obtained from the internet at 
www.fs.fed.us/news/roads/ea2.htm or by writing to the Director of 
Ecosystem Management Coordination, P.O. Box 96090, Washington, DC 
20090. Comments on the environmental assessment should be submitted 
with any comments on the proposed rule.

No Takings Implications

    These proposed administrative policy revisions were reviewed for 
their impact on private property rights under Executive Order 12630. It 
has been determined that they do not pose a risk of taking of 
Constitutionally-protected private property because the proposed 
administrative policy revisions honor access to private property 
pursuant to statute or to outstanding or reserved rights.

Civil Justice Reform Act

    These proposed administrative policy revisions were reviewed under 
Executive Order 12988, Civil Justice Reform. They would (1) Preempt all 
State and local laws and regulations that are in conflict or which 
would impede its full implementation; (2) Do not retroactively affect 
existing permits, contracts, or other instruments authorizing the 
occupancy and use of the National Forest System lands; and (3) Do not 
require administrative proceedings before parties may file suit in 
court challenging these provisions.

Controlling Paperwork Burdens on the Public

    These proposed administrative policy revisions do not contain any 
recordkeeping or reporting requirements or other information collection 
requirements as defined in 5 CFR part 1320 and, therefore, impose no 
paperwork burden on the public. Accordingly, the review provisions of 
the Paperwork Reduction Act of 1995 (44 USC 3501, et seq.) and 
implementing regulations at 5 CFR Part 1320 do not apply.

Comments Invited

    Public comment is invited. The proposed administrative policy and 
procedures would revise existing administrative policy and procedures 
in FSM 1920 and FSM 7700. Manual texts containing the proposed 
administrative policy revisions are at the end of this notice. The 
Forest Service invites written comments and will analyze and consider 
those comments in development of the final notice of administrative 
policy that will be published in the Federal Register. Additionally, 
Forest Supervisors may hold meetings to provide an opportunity for 
local comment and clarification of these proposed directives.


[[Page 11688]]


    Dated: February 25, 2000.
Mike Dombeck,
Chief.

Proposed Forest Service Manual Revision

    (Note: The Forest Service organizes its directive system by 
alphanumeric codes and subject headings. Only those sections of the 
FSM that are the subject of this notice are set out here. Those who 
wish to see the entire documents into which the proposed changes 
would be incorporated may do so via the internet at http://fsweb.wo.fs.fed.us/directives/index.html. Forest Service employees 
charged with decisionmaking responsibilities concerning the National 
Forest transportation system are the intended audience of these 
proposed administrative policy revisions.)

Chapter 1920--Land and Resource Management Planning

    1920.5--Definitions. (Note: These proposed definitions are 
essentially the same as those included in the proposed forest planning 
rule (64 FR 54073) at proposed Sec. 219.36.)
    Inventoried Roadless areas. For purposes of forest planning, 
undeveloped areas typically exceeding 5,000 acres that met the minimum 
criteria for wilderness consideration under the Wilderness Act and that 
were inventoried during the Forest Service's Roadless Area Review and 
Evaluation (RARE II) process, or subsequent forest planning. Criteria 
for inventorying roadless areas in the eastern United States are in 
Forest Service Handbook 1909.12, Chapter 7. An area is either a 
roadless area or an unroaded area, but not both.
    Unroaded areas. Any area without the presence of a classified road 
(proposed 36 CFR 212.1). The size of the area must be sufficient and in 
a manageable configuration to protect the inherent values associated 
with the unroaded condition. Unroaded areas do not overlap with 
designated roadless areas.
    1922.15--Resource Integration Requirements. Requirements for 
integrating individual forest resources, including wilderness and other 
special areas, into the forest planning process are in 36 CFR 219.14 
through 219.27. Refer to the Forest Service Handbook 1909.12 for 
details on how to incorporate resources into the planning process. In 
addition, the forest planning process must:
* * * * *
    20. Identify the specific access requirements and travel management 
options available to meet the objectives for each management 
prescription. Describe how access will be provided and how travel will 
be managed. Include the Forest Service road system, off-road travel, 
and air and water access. Integrate considerations of biological, 
physical, social, and economic factors and environmental design 
criteria. Link access and travel requirements and opportunities to the 
full spectrum of resource objectives for each management area and 
alternative.
* * * * *
    28. Ensure that management prescriptions protect values associated 
with unroaded conditions such as unique or important habitat for 
wildlife, fish and plant species, sources of drinking water, cultural 
or historic areas, sources of dispersed recreation, barriers to 
invasive species, high or unique biological diversity, or research.

FSM 7700--Forest Transportation System Chapter--Zero Code

    This title prescribes the authority, objectives, policy, 
responsibility, and definitions for planning, reconstruction, 
improvement, operation, and maintenance of forest transportation system 
facilities.
    7701--Authority.
    7701.1--Coordination with Forest Planning.
    1. Title 36, Code of Federal Regulations, section 219.27 (36 CFR 
219.27). These rules require transportation access to be addressed in 
the land management planning process.
    7701.2--Revegetation.
    1. Forest and Rangeland Renewable Resources Planning Act of 1974 
(16 U.S.C. 1601, Pub. L. 93-378) as amended by the National Forest 
Management Act of 1976 (16 U.S.C. 1608, Pub. L. 94-588). Directs that 
roads be designed to standards appropriate for intended uses and 
prescribes the revegetation of unnecessary roads.
    7701.3--Transportation System Management.
    1. National Forest Roads and Trails Act of October 13, 1964 as 
amended (16 U.S.C. 532-538, Pub. L. 88-657). Authorizes road and trail 
systems for the National Forests. Authorizes the granting of easements 
across Forest Service administered lands, the construction of maximum 
economy roads (FSM 7705) and methods for financing them, and the 
imposing of requirements on road users for maintaining and 
reconstructing roads, including cooperative deposits for such work.
    2. Highway Safety Act of 1966 (23 U.S.C. 402, Pub. L. 89-564). 
Directs States and participating Agencies to identify and survey 
accident locations; to design, construct, and maintain roads in 
accordance with safety standards; to apply sound traffic control 
principles and standards; and to promote pedestrian safety.
    3. National Trails System Act of October 2, 1968 (16 U.S.C. 1241-
1249, Pub. L. 90-543). Establishes the National Trail System, including 
planning, right-of-way acquisition, and construction of trails 
designated by Congress or the Secretary of Agriculture.
    4. Title 36, Code of Federal Regulations, Part 212 (36 CFR Part 
212). These rules establish requirements for the administration of the 
forest transportation system, including roads, trails and airfields, 
and provisions for acquisition of rights-of-way.
    5. Title 36, Code of Federal Regulations, sections 261.12 and 
261.54 (36 CFR 261.12 and 261.54). These rules establish prohibitions 
on Forest Service roads that are enforceable by the Forest Service.
* * * * *
    7702--Objectives. The results to be achieved by developing and 
managing the forest transportation system are as follows:
    1. To provide sustainable access to National Forest System lands 
for administration, protection, and utilization of these lands and 
resources.
    2. To manage a forest transportation system within the capabilities 
of the land.
    3. To manage forest transportation system facilities to provide 
user safety, convenience, and efficiency of operations while minimizing 
adverse environmental impacts and, where appropriate, restoring 
ecosystems within the limits of current and likely funding levels.
    4. To coordinate access to National Forest System lands with 
National, state-wide and local transportation needs.
    7703--Policy. Determine and provide the minimum forest 
transportation system to best serve the current and anticipated 
management objectives and public uses of National Forests lands as 
identified in the relevant land and resource management plans (FSM 
1920). In providing access, forest officers should minimize investment 
and maintenance costs and should not compromise land health or water 
quality.
    7703.1--Road Management. In managing the Forest Service road 
system, assess the access benefits and the costs of road-associated 
ecological effects. Give priority to decommissioning unneeded roads and 
to reconstructing and maintaining needed roads. Add new roads to the 
transportation system only where supported by rigorous analysis (FSM

[[Page 11689]]

7712). Management opportunities for meeting access needs may include 
roads managed for safe passenger car use, utilization of forest 
resources, roads managed for high-clearance highway vehicles, roads 
closed to highway vehicles but available for other uses (such as hiking 
and administrative access), or trails managed for a variety of uses 
(such as hiking, horseback riding, and snowmobiling).
    1. Maintaining and reconstructing needed roads. Emphasize 
maintenance and reconstruction of roads needed to meet road management 
objectives (FSM 7712.3). Give priority to upgrading the most heavily 
used roads to provide safe and efficient travel and to reduce, to the 
extent practicable, adverse environmental impacts.
    2. Decommissioning unneeded roads. Many unplanned, unauthorized, 
unclassified travelways exist within the National Forests and 
Grasslands. Also, some roads have been classified as part of the forest 
transportation system based on previously anticipated management needs 
that may have changed over time. Establish priorities, schedule 
decommissioning and terminate motor vehicle use of roads no longer 
needed. Reestablish vegetation (FSM 7701.2) and restore ecological 
processes interrupted or impacted by the unneeded roads. 
Decommissioning includes various levels of treatments to stabilize and 
rehabilitate unneeded roads, such as blocking the entrance, 
revegetating and water barring; removing fills and culverts, 
reestablishing drainage-ways and removing unstable road shoulders; or 
full obliteration by recontouring and restoring natural slopes.
    3. Adding new roads. Carefully consider proposals to build new 
roads or to add roads to the Forest Service road inventory that is 
included in the atlas. Add new roads only where long-term funding 
obligations have been carefully considered, and, where the resource 
management objectives and benefits have been documented, such as for 
natural resource management, including utilization, protection, public 
health and safety, or private rights. Make road construction and 
reconstruction decisions locally, with public involvement and based on 
thorough analysis considering the latest scientific information on the 
adverse effects of roads on ecosystems.
* * * * *
    7705--Definitions. Exhibit 1, Road Terminology Relationships, 
illustrates the relationships among various road terms.
* * * * *
    Forest Roads. As defined in Title 23, Section 101 of the United 
States Code (23 U.S.C. 101), a road wholly or partly within, or 
adjacent to, and serving the National Forest System and which is 
necessary for the protection, administration, and utilization of the 
National Forest System and the use and development of its resources.
    Forest Service Road. A forest road under the jurisdiction of the 
Forest Service. The term ``Forest Service roads'' is synonymous with 
the term ``forest development roads'' as used in 23 U.S.C. 205.
    Forest Service Trail. (see FSM 2350.5).
    Forest Transportation System. Those facilities, including Forest 
Service roads, bridges, culverts, trails, parking lots, log transfer 
facilities, road safety and other appurtenances, and airfields, in the 
transportation network and under Forest Service jurisdiction.
    Forest Transportation System Management. The planning, inventory, 
analysis, classification, records, scheduling, construction, 
reconstruction, improvement, maintenance, decommissioning, and other 
operations to achieve environmentally sound, safe, cost effective, and 
integrated access for use, protection, and management of National 
Forest System lands.
* * * * *
    Road. A motor vehicle travelway over 50 inches wide, unless 
classified and managed as a trail. A road may be classified or 
unclassified (36 CFR 212.1).
    a. Classified Roads. Roads within National Forest System lands 
planned or managed for motor vehicle access including state roads, 
county roads, private roads, permitted roads, and Forest Service roads 
(36 CFR 212.1).
    b. Unclassified Roads. Roads not intended to be part of, and not 
managed as part of, the forest transportation system, such as temporary 
roads, and unplanned roads, off-road vehicle tracks, and abandoned 
travelways.
    c. Public Roads. Any road or street under the jurisdiction of and 
maintained by a public authority and open to public travel (23 U.S.C. 
101(a)).
    Road Investment Terms. The following terms have specific meanings 
as used in the Forest Service:
    a. New Road Construction. * * *
    b. Road Reconstruction. The investment in construction activity 
that results in improvement, restoration, or realignment of a road as 
defined below:
    (1) Realignment. Investment in construction activity that results 
in the new location of an existing road or portions thereof. The 
investment may include decommissioning the abandoned sections of 
roadway.
    (2) Improvement. Investment in construction activity that raises 
the traffic service level of a road or improves its safety or operating 
efficiency.
    (3) Rebuilding. Investment in construction activity required to 
restore a road to its approved traffic service level.
    c. Road Maintenance. Expenditures in the ongoing minor restoration 
and upkeep of a road necessary to retain the road's approved traffic 
service level.
    Roads Subject to the Highway Safety Act. Forest Service roads that 
are open to use by the public for standard passenger cars. This 
includes roads with access restricted on a seasonal basis, and roads 
closed during extreme weather conditions or for emergencies, but which 
are otherwise open for general public use.
    Temporary Facilities. Transportation facilities authorized by 
contract, permit, lease or emergency operation, not intended to be a 
part of the forest transportation system and not necessary for long-
term resource management.
* * * * *
    Transportation Facility Decommissioning. Various treatments leading 
to stabilization and restoration of transportation facilities that are 
no longer needed.
    Transportation Facility Jurisdiction. The legal right to control or 
regulate use of a transportation facility. Jurisdiction requires 
authority, but not necessarily ownership. The authority to construct or 
maintain a road may be derived from fee title, an easement, an 
agreement, or some other similar method.
* * * * *
    7709--Handbooks.
* * * * *
    7709.56--Road Preconstruction Handbook. This Handbook establishes 
procedures and guides for the location, survey, design, and preparation 
of cost estimates for Forest Service roads.

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Chapter 7710--Transportation Atlas, Records, and Analysis

    This chapter contains objectives, policies, responsibilities, and 
requirements for analyzing transportation needs and issues and 
documenting the transportation system. Direction for forest trails is 
in FSM 2350 and FSH 2309.18, Trails Management Handbook.
    7710.2--Objectives. The objectives of transportation analysis are:
    1. To determine the minimum transportation facilities needed to 
achieve agency and forest land and resource management goals and 
safeguard ecosystem health within the context of current and likely 
funding levels.
    2. To incorporate the transportation system needs and direction 
into the forest land and resource management planning process.
    3. To direct the orderly improvement and management of the 
transportation system and to ensure the documentation of decisions 
affecting the system.
    4. To interact with and involve the public, and State, local, and 
tribal governments in transportation analysis.
    7710.3--Policy.
    7710.31--General Transportation Analysis Requirements. Conduct 
transportation analysis based on rigorous analysis of the need for 
access to National Forest System lands and of the infrastructure 
required to provide that access. Use the best available science at 
appropriate scales to consider effects of transportation facility 
construction, reconstruction, maintenance, and decommissioning on 
ecosystems.
    Integrate transportation analysis into other ecosystem assessments 
and analyses as appropriate. Ensure that environmental analysis 
identifies and displays at least one alternative that is based on 
current budget levels and realistic projections of future funding. 
Incorporate the findings of such analyses into forest plan amendments 
or revision or site-specific project planning, as applicable.
    Ensure that road reconstruction, improvement, operation, and 
maintenance are guided by road management objectives (FSM 7712.3) and 
are undertaken within the constraints of current and likely future 
funding levels.
    7710.32--Road Analysis.
    1. Long-term Application. In the course of business, the 
responsible official shall incorporate a science-based road analysis 
into multi-forest, forest-wide and watershed-scale analyses and 
assessments to inform planners and decisionmakers of transportation 
system opportunities that support land and resource management 
objectives. Unless an alternative process is approved by the Deputy 
Chief, National Forest System, units are to use the science-based road 
analysis process described in the report, Roads Analysis: Informing 
Decisions About Managing the National Forest Transportation System 
(USDA Forest Service, 1999, Misc. Rep. FS-643).
    a. New road construction. Consistent with the direction at section 
7703.1, ensure that the addition of new roads, including new road 
construction, serves a documented need and that the decision is 
informed by a science-based road analysis.
    b. Maintenance, reconstruction, and decommissioning. Use the 
science-based analysis process described in paragraph 1 of this section 
to evaluate opportunities and priorities for maintenance, 
reconstruction, and decommissioning of roads. Conduct the analysis at a 
scale and intensity commensurate with the scope of the action. However, 
implementation of a routine or emergency maintenance activity does not 
require a road analysis before proceeding.
    2. Transition. Until a comprehensive road inventory and road 
analysis have been conducted and integrated into the applicable Forest 
Plan, the following direction shall apply:
    a. Road construction/reconstruction in roadless and unroaded areas.
    There must be a compelling need to propose construction/
reconstruction of roads in the following roadless and unroaded areas:
    (1) Unroaded portions of the RARE II (Roadless Area Review and 
Evaluation conducted by the Forest Service in 1979) inventoried 
roadless areas within the National Forest System.
    (2) Unroaded portions of roadless areas identified in existing land 
and resource management plans that lie one-quarter mile or more beyond 
any existing classified road, and
    (3) Unroaded areas of more than 1,000 acres that are contiguous to 
remaining unroaded portions of RARE II inventoried roadless areas or 
contiguous to areas inventoried in land and resource management plans, 
contiguous to congressionally designated wilderness areas or Federally-
administered components of National Wild and Scenic River System 
classified as Wild, or contiguous to unroaded areas of 5,000 acres or 
more on other Federal lands. These areas of 1,000 acres or more must 
have a common boundary of considerable length, at least one-quarter 
mile width, and provide important corridors for wildlife movement or 
extend a unique ecological value of the established inventoried area.
    Compelling needs include, but are not limited to, critical resource 
restoration and protection; public safety; and access to carry out a 
statute or treaty or pursuant to reserved or outstanding rights.
    Road construction in roadless and unroaded areas and generally 
reconstruction in those areas will constitute a significant 
environmental effect as defined in the Council on Environmental Quality 
regulations (40 CFR part 1508) and the Forest Service Environmental 
Procedures Handbook (FSH 1909.15, section 05) and will require the 
preparation of an environmental impact statement (FSH 1909.15, section 
20.6). This National Environmental Policy Act analysis will provide the 
basis for a Regional Forester decision.
    Environmental mitigation and environmental restoration necessitated 
by unclassified roads are appropriate in roadless and unroaded areas 
and must follow normal National Environmental Policy Act decisionmaking 
processes. However, maintenance of unclassified roads in roadless and 
unroaded areas is inappropriate as such activity would lead to defacto 
road development.
    b. Road construction/reconstruction in roaded areas. A road 
analysis should be completed as appropriate for any road construction 
or reconstruction project proposal in roaded areas. However, any road 
construction or reconstruction underway or listed in the schedule of 
proposed actions published pursuant to 36 CFR Part 215 prior to the 
effective date of this amendment does not require a road analysis.
    3. Duration of Transition Procedures. For those forests that have 
not adopted a revised forest plan prior to the effective date of this 
amendment, the transitional procedures in FSM 7710.32, paragraph 2, 
remain in effect until the roads analysis process has been integrated 
into the forest plan revision process.
    For those forests that have revised their forest plans after 
January 1, 1996, the transitional procedures in section 7710.32, 
paragraph 2, remain in effect until the road analysis process is 
implemented and either (1) The Regional Forester makes a written 
determination that the forest plan does not require amendment or 
revision to reflect the findings of the analysis or (2) Until the 
Forest Supervisor undertakes and adopts a forest plan amendment or 
revision to integrate the results into the forest plan.

[[Page 11692]]

    7710.4--Responsibility.
    7710.41--Deputy Chief, National Forest System. It is the 
responsibility of the Deputy Chief to approve an alternative road 
analysis process.
    7710.42--Regional Forester. It is the responsibility of the 
Regional Forester to:
    1. Ensure that science-based road analysis is a component of sub-
basin, multi-Forest and sub-regional scale assessments.
    2. Ensure that science-based road analysis is incorporated in 
forest plan revisions.
    3. Serve as responsible official on any environmental impact 
statement on road construction or reconstruction in roadless and 
unroaded areas prepared under FSM 7710.32, paragraph 2.
* * * * *
    7710.43--Forest Supervisor. It is the responsibility of the Forest 
Supervisor to:
    1. Accomplish road analysis at the appropriate scales in 
conjunction with other assessments, and integrate transportation 
management issues and opportunities with land and resource management 
planning.
    2. Develop and maintain a forest transportation atlas in compliance 
with FSM 7711.
    3. Ensure that engineering, hydrology, biology, and other 
appropriate skills needed in transportation analysis, are available.
    4. Ensure that project development and operation are consistent 
with the road management objectives documented in the forest 
transportation atlas.
    5. Identify and prioritize areas (FSM 1922.52) where detailed 
transportation analysis is essential for achieving land and resource 
management direction and resource project implementation schedules.
    6. Recommend to the Regional Forester annual and multi-year 
schedules of proposed transportation decommissioning, reconstruction, 
and construction projects (FSM 1922.51).
    7. Involve Federal, State, local, and tribal transportation 
agencies in land and resource management planning to ensure 
coordination.
    8. Document inventory and transportation analysis results.
    7710.44--District Rangers. It is the responsibility of the District 
Ranger to approve road management objectives.
* * * * *
    7710.5--Definitions. 
    Unroaded areas. (see FSM 1920.5).
    7711--Forest Transportation Atlas & Records. Prepare and keep 
current a forest transportation atlas for National Forest System lands 
as defined at section 212.1 of Title 36 of the Code of Federal 
Regulations (36 CFR 212.1). The atlas consists of the geospatial and 
tabular data showing the location of each transportation facility and 
additional information as necessary for Forest Service management of 
roads, trails, and airfields.
    7711.1--Road Atlas. A critical component of the transportation 
atlas is the forest road atlas, which includes classified and 
unclassified roads on National Forest System lands. The forest road 
atlas serves as the official record of the Forest Development Road 
system referred to in the National Forest Management Act (16 U.S.C. 
1608 (b)). The road atlas includes, at a minimum, the location and 
jurisdiction of classified roads not under Forest Service jurisdiction, 
the location and road management objectives for Forest Service roads 
and bridges, and the location of and management decisions on 
unclassified roads. To the extent practicable and appropriate, cite in 
the atlas the science-based analyses used to support decisions on roads 
recorded in the atlas.
    Use INFRA Service-wide, the Forest Service integrated 
infrastructure tabular and spatial data management system, for the 
storage and analysis of information in the road atlas. The 
transportation inventory must be capable of spatial representation or 
mapping as appropriate at the various analysis and forest planning 
scales. This information also supports other resource analyses, such as 
water quality and habitat assessments.
    7711.2--Transportation Atlas Maintenance. Maintain a current record 
of forest transportation facilities in the atlas as part of the ongoing 
real property and condition survey updates (FSM 6446). Add proposed 
facilities to the atlas only after a decision to construct the facility 
or to convert an unclassified road to a classified facility has been 
made by the responsible official in accordance with the National 
Environmental Policy Act process, including facilities covered by 
categorical exclusions (FSM 1952 and FSM 1922.52, No. 4). Remove 
existing facilities from the atlas only after anticipated 
decommissioning results have been achieved and verified through 
monitoring.
    7712--Transportation Analysis and Results. Use a science-based 
transportation analysis process, at appropriate scales, that considers 
transportation facility needs and concerns. Coordinate the analysis 
with other ecosystem assessments and analyses.
    7712.02--Objectives. Conduct transportation analysis to achieve the 
following:
    1. Identification of opportunities,
    2. Assessment of needs, funding, and associated ecosystem effects, 
including effects on unroaded values,
    3. Achievement of management direction, and
    4. Documentation of recommendations that can become part of a NEPA 
disclosure and line decision.
    7712.03--Policy. Forest Service regulations implementing the Forest 
and Rangeland Renewable Resources Planning Act, as amended by the 
National Forest Management Act, require integration of transportation 
planning into an interdisciplinary effort that produces Regional 
guides, forest and site-specific project plans. Use the forest 
transportation atlas as a record of transportation facility decisions.
    1. Assess economic costs and benefits along with physical and 
biological factors when identifying project alternatives.
    2. Consider the needs of all parties when developing transportation 
system opportunities in areas of intermingled ownership.
    3. Consider long- and short-term uses, including possible 
mechanized, non-mechanized, and off-highway vehicle uses, when 
analyzing transportation facilities.
    4. Involve the public in transportation analysis.
    5. Identify all classified and unclassified facilities in the 
forest transportation atlas.
    6. Document road management objectives and project priorities.
    7712.1--Scope and Levels of Transportation Analysis. Line officers 
must choose the appropriate geographic scale for transportation 
analysis and the degree of detail that is appropriate and practicable. 
Selecting the appropriate scale for assessing road opportunities 
depends on the issues being analyzed. Line officers should recognize 
that starting with the broader scale analysis is particularly helpful 
in identifying interactions between resources and roads that may only 
be detected at the broader level, in supporting better informed and 
integrated decisions across administrative boundaries, and in avoiding 
collection of unnecessary information.
    7712.11--Multi-Forest and Ecoregion Scale Transportation Analysis. 
Road analysis is an integral part of an ecoregion (or sub-region) 
assessment. At this level, consider the following:
    1. Broad scale issues, such as habitat connectivity, strongholds 
for aquatic and terrestrial species, sources of

[[Page 11693]]

drinking water, cumulative effects, and other unroaded values.
    2. Integration of State, county, and local transportation systems, 
and multi-year transportation plans with the Forest transportation 
system.
    3. Potential program direction for new or revised forest highways, 
public lands highways, and public roads under Forest Service 
jurisdiction.
    4. Current and likely funding levels available to support 
transportation facility construction, reconstruction, maintenance and 
decommissioning.
    7712.12--Forest Plan Level Transportation Analysis. Transportation 
analysis at the forest plan level tiers to broader scale analyses and 
requires close coordination with other ecosystem assessments. Consider:
    1. Environmental effects, including socio-economic impacts. 
Consider costs and benefits of protection of unroaded values.
    2. An overview of the transportation rights-of-way acquisition 
needs.
    3. State, county and local transportation facility effects on land 
and forest resource management plans and resource management programs.
    4. Forest Service transportation investments necessary for carrying 
out the planned resource program.
    7712.13--Watershed and Project Level Transportation Analysis. 
Watershed and project level road analyses tier to broader scale 
analyses, where available, and include comprehensive inventory and 
science-based analyses of all classified and unclassified forest 
transportation facilities within the analysis area. Integrate watershed 
scale transportation analyses with other watershed scale assessments.
    7712.2--Analysis Processes.
    7712.21--Transportation Analysis. Perform transportation analysis 
at the appropriate scales to identify an environmentally sound, cost 
efficient (FSH 1909.17) transportation network. Tier the analysis to 
the Forest plan and to available ecosystem assessments. The analysis 
must follow a process that considers the latest science-based 
information on environmental benefits and effects, particularly 
unroaded values, such as described in the report, Roads Analysis: 
Informing Decisions About Managing the National Forest Transportation 
System (USDA Forest Service, 1999, Misc. Rep. FS-643). The 
transportation analysis shall be guided by management direction, have 
interdisciplinary participation, and be approved in writing by the 
responsible official.
    In timber harvest areas, the analysis should be a joint effort of 
sale planners, logging engineers, biologists, and transportation 
planners, as well as representatives of other disciplines. Ensure that 
timber sale planning is coordinated with analysis of transportation 
needs (FSM 2431.2).
    Document the transportation analysis in conjunction with policies 
and procedures of FSM 1950 and FSH 1909.15. Revise the forest 
transportation atlas (FSM 7711.2) if the formal decision necessitates 
any changes.
    7712.22--Network Analysis. Perform a network analysis as part of 
transportation analysis to determine alternate route effectiveness for 
the management direction.
    The network analysis shall establish four important types of 
transportation cost data:
    1. Environmental effects and possible ecosystem restoration 
opportunities.
    2. Reconstruction and improvement costs on a road system to a 
specified area.
    3. Variable user and travel-related costs over a road system for a 
resource activity on a unit or output basis.
    4. Cost of operating and maintaining the network.
    Re-analyze networks and cost estimates as outputs, schedules, and 
management area locations change for different management practices.
    7712.23--Economic Analysis.
* * * * *
    7712.3--Road Management Objectives. Establish road management 
objectives for all Forest Service roads consistent with forest plan 
direction. Road management objectives include design criteria (FSM 
7720) and operation and maintenance criteria (FSM 7730.3). The road 
management objectives require line officer approval and are included in 
the transportation atlas.
    7712.4--Scheduling Projects. Develop 3-to 5-year schedules listing 
all proposed projects. Schedule decommissioning, reconstruction and 
improvement project activities in coordination with other resource and 
support activities in a timely manner.
* * * * *
[FR Doc. 00-5000 Filed 3-2-00; 8:45 am]
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