[Federal Register Volume 65, Number 84 (Monday, May 1, 2000)]
[Notices]
[Pages 25298-25300]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-10776]


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DEPARTMENT OF AGRICULTURE

Forest Service


Natural Areas Trails Environmental Impact Statement

AGENCY: Forest Service, USDA.

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

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SUMMARY: The Department of Agriculture, Forest Service will prepare an 
Environmental Impact Statement (EIS) to analyze seven Natural Areas for 
designation of hiker/equestrian trails on the Shawnee National Forest 
and to amend the Shawnee Natural Forest Land and Resource Management 
Plan (LRMP) to increase trail density standards in Management Area (MA) 
5.1.

Proposed Federal Action

    The proposed Federal action includes:
    (1) Designation trails for hiker/equestrian use in or around three 
natural areas, and allowing construction, reconstruction and 
maintenance on the trails. The analysis will include four other natural 
areas although additional specific trail locations are not being 
proposed in those areas.
    (2) Amending the LRMP to increase the Forest Service (FS) system 
trail density standards in MA 5.1 (Wilderness) from 1-mile of trail per 
square mile to 2-miles of trail per square mile.
    A more specific description follows: Maps of the proposed 
management action will be made available for viewing and photocopying 
specific areas of interest at each of the Shawnee National Forest (NF) 
offices. Electronic viewing is proposed to be available by May 10, 2000 
on the Shawnee NF website: www.fs.fed.us/r9/shawnee.
    (1) Natural Area Trails--The proposed Federal action includes 
Forest System trail proposals for hiker/equestrian designation in 
Jackson Hollow, Double Branch Hole and Lusk Creek (Ecological/
Zoological) Natural Areas. Hiker/equestrian trails have already been 
designated in Garden of the Gods, and LaRue Pine Hills Natural Areas 
within corroders shown on the Trail Corridor Map attached to the ALRMP 
of 1992. There are currently no proposed trail locations for Little 
Grand Canyon, Bulge Hole or the portion of the Lusk Creek Zoological 
area lying south of the Eddyville-Golconda blacktop.
    Based upon a site-specific review of the trail corridors suggested 
on the Trail Plan Corridor Map in the LRMP 1992 Amendment (ALRMP), 
designation of hiker/equestrian trails is not possible in Little Grand 
Canyon and Bulge Hole Natural Areas for the following reasons: (a) The 
Trail Map did not recognize the cliff and deep drainages which prohibit 
the north-south location of a trail in Little Grand Canyon. In 
addition, annual flooding would make trail construction and maintenance 
for equestrian use impractical; (b) extremely steep terrain in Bulge 
Hole makes an equestrian trail proposal expensive and impractical, and 
(c) there was no evidence of user-created equestrian trail routes in 
either of these areas prior to closure. There appears to be little or 
no evidence of equestrian use near the Lusk Creek Zoological Area south 
of the Eddyville-Golconda blacktop. The Shawnee is proposing no 
additional trails at this time in that area. Suggestions for the Bulge 
Hole Ecological Area, the Little Grand Canyon Ecological Area, and the 
Lusk Creek Zoological (south of the Eddyville-Golconda blacktop) that 
surface during the scoping process may assist in the development of 
alternatives.
    Within all Natural Areas (Management Area 8.2) equestrian use is 
restricted to designated Forest Service system trails. Maps of proposed 
trails can be viewed at each of the Shawnee National Forest offices. A 
decision to designate hiker/equestrian trails would include future 
construction, reconstruction and maintenance of the trails using 
equipment, where appropriate, or by hand.
    (2) Amending the ALRMP trail density standards in MA 5.1 
(Wilderness) from 1 mile of trail per square mile to 2 miles of trail 
per square mile. (One square mile is equivalent to 640 acres. Two miles 
of trail would occupy 1 to 2 acres.) This action would allow the 
designation of the proposed trails in and around Natural Areas (MA 8.2) 
in this management area. In addition, at the time of the signing of the 
ALRMP in 1992, designated Forest Service system trails were within the 
trail density standards. However, the Forest Plan Trail Corridor Map 
identifies potential trail corridors that would exceed the trail 
density standards, if implemented.
    Decision to be made are whether or not to:

    (1) Designate, construct, reconstruct, maintain equestrian/hiker 
trails in or around seven natural areas;
    (2) Amend the ALRMP to increase trail density standards in MA 
5.1 from 1 mile per square mile to 2 miles per square mile; and
    (3) The decision to be made includes the Forest Supervisor's 
approval of site-specific mitigation and/or monitoring standards.


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    Alternatives--In preparing the environmental impact statement the 
Forest Service will consider a reasonable range of alternatives to the 
proposed action, including the ``no action'' alternative. The no action 
alternative will be the continuation of implementing the ALRMP, 1992, 
and all current laws, regulations, and Forest Orders, which apply. In 
the no action alternative, no additional Forest Service system hiker/
equestrian trails would be designated in or around the Natural Areas 
named above, other than those already designated; and Forest Service 
system trail density standards would not change, limiting the total 
number of miles of system trails allowable in MA 5.1 around Natural 
Areas within Wilderness. The no action alternative is the baseline 
against which the effects of other alternatives are compared, and 
represents the present course until the action is changed.
    In addition to the no action alternative, other alternatives will 
be considered depending on the types of issues received from the 
public. Possible alternatives may include other locations for Natural 
Area trails and different Forest Service system trail densities. These 
as well as other alternatives based on public comments may be analyzed. 
Suggestions on later natives that meet the purpose and need for the 
proposed Federal action are welcome.
    Purpose and Need for the Action--The purpose of this proposal is to 
provide a quality recreational experience for equestrian users and 
hikers on designated trails in and around Natural Areas (MA 8.2) while 
protecting their unique values. Management Prescription 8.2 provides 
for the preservation, protection and enhancement of the unique features 
found within these Natural Areas. A Forest Order issued by the Forest 
Supervisor has closed all Natural Areas to equestrian use except on 
designated trails (Forest System Trails designated for equestrian use). 
The ALRMP of 1992 Trail Corridor Map displays potential trail corridors 
in seven Natural Areas. In some cases trails have already been 
designated on locations shown on the Trail Corridor Map. The proposed 
action is to designate, construct and maintain additional hiker/
equestrian trails within the Natural Areas mentioned above in 
accordance with the ALRMP of 1992.
    Issues--Issues that have been identified relating to this proposal 
include:
--Soil erosion and sedimentation as a result of equestrian use;
--Equestrian access to the scenic places within natural areas. There 
are 80 natural areas. Seven natural areas are being analyzed for the 
designation of hiker/equestrian trails.
--Impacts of equestrian use on native plant communities and threatened 
and endangered species within the natural areas;
--Conflicts of equestrian use on the hiker experiences within the 
natural areas and in the Wilderness;
--Conflicts and safety concerns of equestrian use in a popular rock 
climbing area at Jackson Falls;
--Social impacts of high densities of user-created and system trails in 
Wilderness;
--Inadequate numbers of marked and maintained Forest System trail 
opportunities for all users, particularly for equestrian users;
--Adequate Forest System trail infrastructure to accommodate equestrian 
use in all seasons;
--Equestrian use on user-created trails that have not been designed 
specifically for this use.
    Scoping and Public participation--The initial scoping period begins 
May 1, 2000 and ends June 15, 2000. We will meet with the public on May 
18, 2000 at the Marion Hotel and Conference Center, 2600 West DeYoung, 
Marion, Illinois from 2 pm to 7 pm and again with the issuance of the 
Draft EIS with the purpose of addressing questions or concerns, and 
obtaining new input. We will also meet with the public at other points 
during the analysis as the need arises. The Draft Environmental Impact 
Statement is anticipated to be available by January, 2001. The Final 
EIS is anticipated in July, 2001. The Forest Service invites written 
comments that identify and/or clarify issues relating to the proposal. 
General opinions, not specific to the proposals, have limited 
usefulness. The scoping process includes:

    1. Identifying potential issues.
    2. Identifying issues to be analyzed in depth.
    3. Eliminating insignificant issues or those which have been 
covered by a previous relevant environment analysis.
    4. Exploring additional alternatives.
    5. Identifying potential environmental effects of the proposed 
action and alternatives (i.e., direct, indirect, and cumulative 
effects).
    6. Determining potential cooperative agencies.

    Initial scoping letters have been sent, and comments received on 
the Double Branch Hole and Jackson Hollow proposed Natural Area trails 
EA. The comments already received for these EA's and further analysis 
will be incorporated into this EIS.

ADDRESSES: Submit written comments and suggestions related to the scope 
of analysis to Richard Johnson, Vienna Ranger District, P.O. Box 37, 
Vienna, IL 62995 or sent electronic comments to [email protected] 
subject: Natural Area Trails EIS.

FOR FURTHER INFORMATION CONTACT:  Forest L. Starkey, Forest Supervisor, 
Shawnee National Forest, telephone: (618) 253-7114, or Richard Johnson, 
EIS Team Leader, Vienna Ranger District, P.O. Box 37, Vienna, IL. 
62995, (618) 658-2111, email: [email protected]. A detailed scoping 
package is available by contacting Richard Johnson at the address 
listed above or on the Shawnee National Forest's website at http://www.fs.fed.us/r9/shawnee/.

SUPPLEMENTARY INFORMATION: Public participation will be an integral 
component of the study process, and will be especially important at 
several points during the analysis. The first is during the scoping 
process. The Forest Service will be seeking information, comments and 
assistance from Federal, State, County, and local agencies, individuals 
and organizations that may be interested in or affected by the proposed 
activities. The scoping process will include: (1) Identification of 
potential issues, (2) identification of issues to be analyzed in depth, 
and (3) elimination of insignificant issues or those which have been 
covered by a previous environmental review. Written scoping comments 
will be solicited through a scoping package that will be sent to the 
project mailing list and the local newspaper. For the Forest Service to 
best use the scoping input, comments should be received by June 15, 
2000. The Shawnee National Forest Amended Forest Land and Resource 
Management Plan, was approved by Regional Forester, Floyd J. Marita, in 
1992. Within Natural Areas (8.2 Management Areas) equestrian use is 
prohibited except on designated trails. LaRue Pine Hills, Garden of the 
Gods and Lusk Creek Zoological Natural Areas have Forest System trails 
designated for hikers and equestrians. In addition, Little Grand Canyon 
has trails designated for hiking only. Lusk Creek Zoological Area is 
the Creek from bank to bank. No new equestrian trails have been 
designated in Natural Areas.
    Based on the results of scoping and the resource conditions within 
the project area, alternatives (including a no-action alternative) will 
be developed for the Draft EIS. The Draft EIS is projected to be filed 
with the Environmental Protection Agency (EPA) in December 2000. The 
Final EIS is anticipated in July, 2001.
    The comment period on the Draft EIS will be 45 days from the date 
that the

[[Page 25300]]

EPA publishes the notice of availability in the Federal Register.
    At this early stage, the Forest Service believes it is important to 
give reviewers notice of several court rulings related to public 
participation in the environmental review process. First, reviewers of 
Draft EISs 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 have been raised at the draft EIS stage, but that 
are not raised until the completion of the final EIS, may be waived or 
dismissed by the courts. City of Angoon v. Hodel, 803 F.2nd 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 45-day comment period on the Draft EIS, so that 
substantive comments and objections are made available to the Forest 
Service at a time when they can be meaningfully considered and respond 
to them in the Final EIS.
    To assist the Forest Service in identifying and considering issues 
and concerns of the proposed action, comments on the Draft EIS should 
be as specific as possible. It is also helpful if comments refer to 
specific pages or chapters of the draft statement. Comments may address 
the adequacy of the draft EIS, or the merits of the alternatives 
formulated and discussed in the statement. Reviewers may wish to refer 
to the Council on Environmental Quality Regulations for implementing 
the procedural provisions of the National Environmental Policy Act in 
40 CFR 1503.3, in addressing these points.
    Lead and Cooperating Agencies: The Shawnee National Forest manages 
approximately 277,000 acres within its proclomation boundaries. It is 
the lead agency for preparation of this document.
    Responsible Official: Forrest L. Starkey, Forest Supervisor, 
Shawnee National Forest, is the responsible official. In making the 
decision, the responsible official will consider the comments; 
responses; disclosure of environmental consequences; and applicable 
laws, regulations, and policies. The responsible official will state 
the rationale for the chosen alternative in the Record of Decision.

    Dated: April 21, 2000.
Forrest L. Starkey,
Forest Supervisor.
[FR Doc. 00-10776 Filed 4-28-00; 8:45 am]
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