[Federal Register Volume 66, Number 9 (Friday, January 12, 2001)]
[Notices]
[Pages 3219-3241]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-553]



  Federal Register / Vol. 66, No. 9 / Friday, January 12, 2001 / 
Notices  

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DEPARTMENT OF AGRICULTURE

Forest Service

RIN 0596-AB67


Forest Transportation System

AGENCY: Forest Service, USDA.

ACTION: Notice of final administrative policy.

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SUMMARY: In conjunction with the final rule published elsewhere in this 
part of today's Federal Register, the Forest Service is adopting a 
final policy governing the national forest transportation system. This 
action is necessary to ensure that National Forest System roads provide 
for public uses of National Forest System lands; provide for safe 
public access and travel; allow for economical and efficient 
management; to the extent practicable, begin to reverse adverse 
ecological impacts associated with roads; and meet all other current 
and future land and resource management objectives. The intended 
effects of this final policy are to ensure that decisions to construct, 
reconstruct, or decommission roads will be better informed by using a 
science-based roads analysis; that the availability of road maintenance 
funding will be considered when assessing the need for new road 
construction; and that, instead of focusing on constructing new roads, 
emphasis will be given to reconstructing and maintaining classified 
roads while decommissioning unnecessary classified and unclassified 
roads. The direction is being issued as amendments to Forest Service 
Manual Title 7700--Engineering, in Chapter 7700--Zero Code and in 
Chapter 7710--Transportation Atlas, Records, and Analysis.

EFFECTIVE DATE: The directives are effective January 12, 2001.

FOR FURTHER INFORMATION CONTACT: Mike Ash, Deputy Director, Engineering 
Staff, Forest Service, 202-205-1400.

SUPPLEMENTARY INFORMATION: The following outline displays the contents 
of the Supplementary Information section of this policy document.

Background

Analysis and Response to Public Comments

Response to General Comments

Road management rule and policy
Adequacy of public involvement on the road management rule and 
policy
Public and technical review
The roads analysis process
Accountability for managing forest transportation facilities
Validity of the data used to indicate the need to revise the policy
Demand for and supply of roads
Effectiveness of road restrictions and closures
Social and economic considerations
Motorized access
Effects of roads policy on the environment
Creation/expansion of roadless or unroaded areas
Recognition of improved road construction and maintenance techniques

Response to Specific Comments

Amendments to Forest Service Manual Chapter 1920--Land and Resource 
Management Planning
    Proposed Section 1920.5--Definitions
    Proposed Section 1922.15--Resource Integration Requirements, 
paragraph 20
    Proposed Section 1922.15--Resource Integration Requirements, 
paragraph 28
Amendments to Forest Service Manual Title 7700--Forest 
Transportation System
Proposed FSM Title 7700--Chapter Zero Code
    Proposed Section 7701.1--Coordination with Forest Planning
    Proposed Section 7701.2--Revegetation
    Proposed Section 7701.3--Transportation System Management
    Proposed Section 7702--Objectives
    Proposed Section 7703--Policy
    Proposed Section 7703.1--Road Management
    Proposed Section 7705--Definitions
    Proposed Section 7709--Handbooks
Proposed Chapter 7710--Transportation Atlas, Records, and Analysis
    Chapter title
    Forest Road Atlas
    Forest Transportation Atlas and records
    Transportation analysis
    The roads analysis process
    Responsibilities for agency Responsible Officials
    Roads analysis transition procedures
Specific comments on the regulatory certifications of proposed 
policy
    Cost-benefit analysis
    Civil Justice Reform Act
    No Takings Implications and Civil Justice Reform Act

Regulatory Certifications

Regulatory Impact
Unfunded Mandates Reform
Environmental Impact
Civil Justice Reform Act
Controlling Paperwork Burdens on the Public

Conclusion

Background

    On March 3, 2000, the Forest Service published in Part III of the 
Federal Register (65 FR 11676-11693) a proposed rule and proposed 
administrative policy, which together were designed to improve the 
management of National Forest System roads. Under the proposed rule, 
the rules governing transportation planning and management (36 CFR Part 
212) would have been modified as follows:
    1. A transportation atlas would be required for each National 
Forest System administrative unit to display the system of roads, 
trails, and airfields needed for public access and agency resource 
management.
    2. The word ``development'' would be removed from the description 
of roads and trails under Forest Service jurisdiction, to signal the 
shift away from developing new roads to better managing existing roads 
and access.
    3. A science-based analysis process would be required to identify 
the transportation facilities.
    4. As part of road system management planning, agency officials 
would be required to identify the minimum road system that is 
commensurate with resource objectives, reflects likely funding, and, to 
the extent practicable, minimizes adverse environmental effects 
associated with road construction, reconstruction, and maintenance.
    5. Equally important was the proposed rule's requirement to 
identify unneeded roads that should be decommissioned and to give 
priority to decommissioning those roads that pose the greatest risk to 
public safety or environmental quality.
    Simultaneously with the proposed rule, the agency published a 
proposed administrative policy (65 FR 11684). That policy proposed to 
integrate the process for determining transportation needs into the 
forest land and resource management planning process (Forest

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Service Manual Chapter 1920). The other changes would be issued as 
amendments to Forest Service Manual Title 7700, entitled ``Forest 
Transportation System,'' specifically to the Chapter Zero Code, and 
Chapter 7710, which would be renamed ``Transportation Atlas, Records, 
and Analysis.''
    The focus of the proposed revisions to agency administrative 
directives was to provide National Forest System road access in a 
manner that can be efficiently managed within the capabilities of the 
land. Coordination of transportation analysis and planning with State, 
county, local, Tribal, and other Federal agency officials was an 
important component of the proposed policy. Another key feature was 
that the policy prescribes interim requirements for new road 
construction in sensitive unroaded and roadless areas until the 
findings of a comprehensive forest-scale, science-based analysis of the 
road system is incorporated into forest plans.

Analysis and Response to Public Comments

    Public comment on the proposed policy and rule was invited for a 
60-day period ending May 2, 2000, and was extended an additional 15 
days to May 17, 2000 (65 FR 24910). The Forest Service received 
approximately 5,900 responses, consisting of letters from individuals, 
postcards, form letters, petitions, e-mail messages, and resolutions. 
The geographic distribution of responses received was as follows: 
Western States--2,105; Mountain States--1,607; Central (Midwestern) 
States--733; Southeastern States--279; Northeastern States--541; and 
Unknown--581. Of the nearly 5900 total responses, 5505 were received 
from individuals. Groups and organizations representing forest resource 
users (grazing, timber, oil/gas/mining, and recreation) accounted for 
134 responses and conservation and preservation groups submitted 
another 97. Government agencies and elected officials accounted for 98 
responses and are divided between: Tribal (6), Federal (16), State 
(28), county (37), and local (11). There were an additional 34 
responses received from groups or organizations that do not fit into 
one of the previous categories.
    Comments on the proposed administrative policy focused on both 
broad topics reflecting the reviewers' forest management philosophies 
and environmental values as well as on specific provisions of the 
policy. Issues raised included such topics as: use of science-based 
analysis, public involvement, definitions, local decisions, social and 
economic impacts, and physical and biotic environmental effects of 
access. Summaries of the significant general comments received and the 
agency responses follow.

Response to General Comments

Use of Public Comments on the Proposed Rule and Policy

    Several respondents wanted to know how public comments would be 
used to develop the final rule and policy. Others asked specifically 
whether the agency would use public input when finalizing the rule and 
administrative policy.
    Agency response: Each letter was read; coded by subject, content, 
and demographics; and entered into a database. Comments were then 
compiled in the database by subject and content and summarized as 
``public concerns.''
    These ``public concerns'' were reviewed and grouped into the 
following categories: purpose and need, processes, relationships, 
planning and implementation, forest management, social and economic 
considerations, and environmental effects. The concerns were then 
analyzed to identify whether they pertained to the proposed rule, 
proposed policy, and/or the environmental assessment. The comprehensive 
list of comments was further reviewed to ensure that all concerns were 
considered. Changes made in the policy are based primarily on the 
comments received in response to the proposals. While the agency does 
not necessarily agree with all the comments, it did carefully consider 
whether changes were needed and arrived at a rationale for its 
responses. The Supplementary Information section of this final policy 
summarizes comments and sets out the agency's response, including 
whether or not and how the policy has been revised. Also, Appendix G of 
the environmental assessment addresses comments received specific to 
the environmental assessment.

The Adequacy of Public Involvement on the Proposed Road Rule and Policy

    Some respondents thought the agency should have conducted more 
public involvement with local residents and groups, provided better 
public access to information, and conducted more outreach to rural 
populations. Others requested more time to respond or even asked that 
the final decision be delayed to permit additional public involvement.
    Agency response: The final rule and administrative policy 
incorporate the results of extensive public involvement both before and 
after publication of the proposals. The agency used a variety of 
methods to make information available to the public, including public 
meetings, news releases, public mailings, and internet websites. Public 
involvement efforts began in January 1998 with the announcement of the 
intent to revise regulations concerning the management of the National 
Forest Transportation System. Over 80,000 letters, postcards, and e-
mail messages were received in response to the January 1998 
announcement. These public comments were used to assist the agency in 
the development of the proposed rulemaking and the proposed 
administrative policy published in the Federal Register (65 FR 11684) 
on March 3, 2000. As previously noted, the initial 60-day public 
comment period was extended for an additional 15 days at the request of 
potential respondents (65 FR 24910). Therefore, the agency does not 
believe additional public outreach or involvement is necessary.

Consistency and Technical Quality of Roads Analyses

    Some respondents expressed concern that Forest Service roads 
analyses would vary in quality and rigor and would lack credibility, 
unless reviewed by outside scientists and other interested individuals 
or entities. These respondents felt that the findings of roads analyses 
would always be questioned and lack credibility because the process 
provided the line officer considerable discretion in affecting the 
outcome. These respondents proposed that the Forest Service form 
technical review teams composed of a roads interdisciplinary team, a 
roads analysis support team, external partners, and non-agency 
scientists to review the roads analysis for scientific consistency and 
quality and thus ensure that sound science is being applied. Others 
wanted to know if the results of the roads analyses would be available 
for public review.
    Agency response: The roads analysis process is designed to provide 
decisionmakers a sound, science-based procedure for analyzing road 
management issues and concerns and for identifying road management 
opportunities. The process is intentionally designed with enough 
discretion to allow for adjustments in the scope and intensity of the 
analysis for addressing individual resource situations and varying 
issues. The agency's emphasis is not on whether all road analyses pass 
the same ``quality or scientific rigor test,'' but rather that the 
analyses effectively identify and address relevant road issues and 
concerns

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specific to the area being analyzed. An interdisciplinary team, 
composed of appropriate subject matter specialists, will conduct each 
roads analysis. In addition, participation by interested individuals, 
groups, and governments in the analysis process is not only encouraged 
but also will be a critical component of the success of the analysis. 
The findings of the roads analysis will be integrated into other 
ecological assessments either at the watershed scale, area, or higher 
scale. Road-related issues, concerns, opportunities, and needs 
generated as a result of the roads analysis will be disclosed and, when 
appropriate, analyzed in an appropriate National Environmental Policy 
Act (NEPA) decision process.

Roads Analysis Process

    Some reviewers said that the roads analysis process would result in 
duplicative work as well as yield inconsistent results.
    Agency response: The roads analysis process integrates ecological, 
social, and economic factors in addressing current and future road 
needs. The roads analysis process provides a systematic, multiple-
scale, agency-wide approach to ensure that important road issues are 
examined at the appropriate scale. The process is not intended to be 
applied in a rigid fashion; in fact, given the diversity of the 
landscape, resource conditions, and the social and economic conditions, 
rigid application of a roads analysis process would surely fail; 
rather, the process is intended to be tailored to fit real-life local 
situations and analysis needs. Therefore, the results of an analysis 
for one situation is not expected to be identical to an analysis for a 
different situation. The process also should not be duplicative of 
other data or work. To the extent possible, existing data are used in 
the process but, depending on the scope of the issues and concerns, 
additional information may be collected.

Accountability for Managing Forest Transportation Facilities

    Many reviewers expressed resentment about how the Forest Service is 
making access management decisions. These respondents claimed that the 
public is being stripped of the right of access to National Forests and 
Grasslands due to the Forest Service's inability to properly maintain 
the road system. At least one respondent said that the Forest Service 
should develop guidelines to assist local districts in the 
implementation of the final policy. Several writers, while in full 
support of the transportation policy, did not believe it would be 
implemented effectively or completely. These respondents suggested that 
a quota system be initiated that would require a net reduction in total 
road mileage, schedule road decommissioning, prohibit new road 
construction, set road density limits, and designate all lands closed 
to motorized use unless specifically designated open.
    Agency response: The agency believes the final Forest Service 
Manual revisions provide clear guidance to field units. Forest Service 
Manual Chapter 7710 establishes objectives and responsibilities for 
analyzing transportation needs and issues. It also provides for 
significant public involvement for identification of opportunities and 
concerns, all of which strengthen the agency's and the public's ability 
to hold Responsible Officials accountable for implementation. The 
direction in the Forest Service Manual is the foundation for internal 
reviews of policy and program implementation by field units. Therefore, 
the mechanisms to provide oversight and ensure compliance are already 
in place. The agency does not agree that a general prohibition on new 
road construction or that a quota system for road decommissioning is 
appropriate. Local, forest-level access and resource management needs, 
identified within a forest planning framework, should direct road 
management network decisions. As opposed to specific prohibitions on 
road construction in inventoried roadless areas, which are under 
consideration, a general, agency-wide ban on any new roads in the 
National Forest System is excessive and unduly rigid.

Validity of Agency Statements About the Need To Revise the Policy

    Some respondents expressed concern about the validity of the data 
used to determine the need to revise the transportation policy. 
Specifically, these respondents challenged the basis for the statements 
related to demand and use of National Forest System lands, and the 
assumption that roads have caused environmental damage. Others 
challenged the degree to which roads are needed for ongoing management 
of National Forest System land, such as for forest health, fire 
management, or resource uses.
    Agency response: The information and data used to identify the need 
to revise this administrative policy were collected from several 
sources. Forest Service researchers and resource specialists reviewed 
scientific literature to identify the latest research involving the 
environmental, social, and economic effects of existing roads and road 
construction, reconstruction, decommissioning, and maintenance. This 
literature review helped identify the latest recreational demand and 
supply trends and attitudes about roads on National Forest System 
lands. Analytical tools for assessing road-related effects on physical 
and biological resources were also explored. These efforts, in 
conjunction with other known information (including road-related 
resource problems, budget limitations and trends, and associated 
maintenance backlogs) all indicated that the agency needed to change 
how it manages the transportation system. It should be noted that 
respondents challenging data and assumptions provided no data or data 
sources to support their assertions.

The Demand for and Supply of Roads

    Many respondents were concerned with the juxtaposition of the 
agency's projected increase in public demand for roaded and unroaded 
recreational use on National Forest System lands with the projection of 
fewer open road miles to accommodate that demand. Some questioned 
whether the agency was intentionally reducing the supply of roads to 
reduce demand. Others were concerned with potential adverse 
environmental effects of confining more users to a smaller available 
land base and urged that the agency preserve access options in order to 
provide a variety of travel-ways on National Forest System lands and to 
diffuse access impacts over a broader land base.
    Agency response: The National Forest Transportation System is 
vitally important to the management of National Forest System lands and 
is essential to many rural communities and land owners as well as to 
recreationists and other resource users. The agency seeks to find a 
balance between the need for public and administrative access to these 
lands and the environmental costs and benefits associated with 
providing that access to these lands. The final policy retains the 
requirement to use a roads analysis process in conjunction with 
ecosystem assessments that support project activities or forest 
planning. The roads analysis process encourages the active engagement 
of local citizens, interested organizations, and other Federal, State, 
Tribal and local governments to identify and assess both short- and 
long-term road needs. This collaborative effort will help to ensure 
that important environmental issues and concerns, as well as road 
supply issues and concerns, are addressed in a reasonably balanced way. 
An emphasis on

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maintaining the existing road system will better enable the Forest 
Service to focus its resources on maintaining and reconstructing those 
roads most important to the public.

The Effectiveness of Road Restrictions and Closures

    In response to the proposal to ``aggressively'' decommission roads, 
many respondents believe that a lack of enforcement of previous road 
decisions is a major factor behind the agency's inability to 
effectively manage its current road system. Many others noted that by 
closing access to more areas, fewer members of the public would use 
National Forest System lands. Others stated that, despite the potential 
for increased fines, many forest users would ignore road closures due 
to lack of enforcement of those closure orders. Others indicated that 
the law-abiding majority of forest users are ``bearing the punishment'' 
of road closures, when roads are closed to deter the reckless, illegal 
behavior of a few.
    Agency response: The roads analysis process adopted for use in the 
final policy is designed to help forest officials better address issues 
associated with road and access management. Conducting the process with 
local public and governmental involvement should help officials more 
clearly define road issues, including restriction or closure 
alternatives, how the restrictions would be implemented, and the 
relative effectiveness of road restrictions, closures, and 
decommissioning.

Motorized Access

    Motorized recreationists felt that they were being singled out and 
forced to bear the majority of the access restrictions on public lands, 
when their impacts are relatively small compared with other activities. 
They stated that the analysis should consider the full breadth of 
motorized and non-motorized recreational needs.
    Agency response: Motorized and non-motorized allocation issues, 
needs, and concerns are appropriately addressed at the local level 
during the forest or project planning process. The roads analysis 
process, which is intended to be an open process involving all who are 
interested in, or affected by, road decisions will be used to inform 
forest planning road management decisions.

Environmental Effects of Roads Policy

    Many respondents wanted the Forest Service to analyze the effects 
of roads and road management actions on the environment, including on 
watersheds, riparian areas, fisheries, soils, wildlife, recreational 
opportunities, and threatened and endangered species. Some reviewers 
indicated that more environmental damage might be caused by 
decommissioning roads than by leaving them alone.
    Agency response: Roads analysis allows objective evaluation of the 
physical and biotic environmental effects, as well as of the social and 
economic effects, of potential road construction, reconstruction, 
decommissioning, and maintenance actions. The roads analysis process 
incorporates early identification of potential effects in the site-
specific, project-level, decisionmaking and forest planning processes. 
Therefore, it will help planners recognize those situations where the 
adverse effects (costs) would outweigh the benefit. This analysis 
process allows the agency to identify potential issues and 
opportunities and the options for addressing them.

The Creation/Expansion of Roadless or Unroaded Areas

    Many reviewers concluded that road decommissioning could lead to 
the creation or expansion of inventoried roadless or unroaded areas. 
These reviewers felt that future entry into these areas could be 
precluded and that the area could then be considered roadless or 
unroaded depending on the size of the area and proximity to existing 
roadless or unroaded areas. These respondents said that in cases where 
roads pose an environmental risk because of location or initial 
construction standards, the risks might force road closures. They said 
that relocation of the road might be impossible because of newly 
created unroaded areas.
    Agency response: Decommissioning roads may result in an increase in 
the amount of land that is unroaded. Decommissioning does not, however, 
change the underlying allocation or assigned use for that land. 
Currently approved activities in areas where roads are decommissioned 
would continue until, and unless, forest plan direction is amended to 
preclude these activities. Environmentally damaging roads may be 
relocated if such an action was consistent with the current forest plan 
direction. It is possible that some unroaded lands could, at some 
point, be designated Wilderness areas by Congress, but such a 
designation is not a foregone conclusion. The majority of decisions 
related to areas that have decommissioned roads would be made at the 
local forest planning level and, therefore, conflicting viewpoints 
would be addressed.

Recognition of Improved Road Construction and Maintenance Techniques

    Some respondents said the Forest Service should acknowledge that 
improved techniques for road layout, design, construction, and 
maintenance have been used on national forests in recent years and that 
these improved techniques have resulted in fewer road-related 
environmental impacts.
    Agency response: The agency agrees that road construction 
techniques used today result in fewer and less intensive adverse 
environmental impacts than did earlier construction techniques. 
However, this new technology does not address the problem that the 
national forests contain over 380,000 miles of classified roads, one-
quarter to two-thirds of which are more than 25 years old. It is highly 
likely that many of these existing roads do not meet current standards 
for safety or environmental protection. It is critical, therefore, that 
the agency focus its resources more on maintenance and reconstruction 
of needed roads and less on new construction.

Specific Comments

    In addition to the preceding general comments, the agency received 
specific substantive comments by code and caption of the proposed 
policy. Summaries of those comments and the agency's responses follow. 
The discussion of comments and agency responses is organized according 
to the coding of the proposed policy.

Amendments to FSM Chapter 1920--Land and Resource Management Planning

    This chapter of the Forest Service Manual provides definitions and 
implementing policy for National Forest System lands and resource 
management planning processes. Implementation of the road management 
strategy as described in this final administrative policy will occur 
chiefly through forest plan amendment or revision. Therefore, direction 
is needed on how forest planning teams integrate consideration of the 
forest transportation system into the planning process.

Proposed Section 1920.5--Definitions

    The terms ``unroaded areas'' and ``inventoried roadless areas'' 
were proposed to be added. The terms were essentially the same as used 
in the agency's proposed forest planning rule (64 FR 54073). No 
comments were received on the definition section of the proposed 
policy. However, the agency has revised both definitions to be 
identical to the definitions used in both

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the Land and Resource Management Planning and Roadless Area 
Conservation Final Rules.

Proposed Section 1922.15--Resource Integration Requirements

    The proposed policy added a new paragraph 20 for planners to 
identify the access requirements and travel management options 
available to meet resource management objectives for each management 
area prescription within the forest plan and to identify road 
management opportunities to be considered. No comments were received on 
this paragraph; therefore, this paragraph is adopted without change.
    Proposed paragraph 28 required that management prescriptions 
protect values associated with unroaded conditions. Examples of those 
values included such actions as providing barriers to invasive species 
and ensuring biological diversity. No comments were received on this 
paragraph; however, the agency has dropped this paragraph from the 
final policy in deference to the final Land and Resources Management 
Planning Final Rule, which addresses protection of roadless values.

Amendments to Forest Service Manual Title 7700--Forest Transportation 
System

Proposed FSM Title 7700--Chapter Zero Code

    This chapter of the Forest Service Manual establishes the 
overarching, broad authorities, objectives, policy, responsibilities, 
and definitions for planning, operating, maintaining, and 
decommissioning forest transportation system facilities. Throughout 
this chapter, references to ``development'' were proposed to be removed 
to reflect a shift in administrative policy from ``road development'' 
to ``managing access within the capability of the land.''
    Comment: Several respondents objected to the removal of the word 
``development'' from the rule and administrative policy, claiming that 
the removal was an agency tactic to deceive the public merely by using 
new terms. Others agreed that the change was in alignment with the 
proposed change in management emphasis.
    Agency response: Removing the word ``development'' to reflect a 
shift in policy from ``road development'' to ``managing access within 
the capability of the land'' is a fundamental element of this 
administrative policy and the accompanying final rule. There is no 
attempt to deceive the public. To the contrary, we are displaying our 
intention publicly and subjecting it to comment. Therefore, no change 
has been made in the final policy, except to add a reference to the 
Manual section guiding road analysis

Proposed Section 7701-7701.3--Coordination With Forest Planning

    This section cites the legal authorities that apply to 
Transportation Planning Management. No comments were received on 
section 7701.1 and no changes have been made to this section of the 
final policy.

Proposed Section 7701.2--Revegetation

    This section addresses statutory requirements for revegetating non-
permanent roads when activities are completed. In the draft policy, the 
agency used the term ``prescribes the revegetation of unnecessary 
roads.''
    Comment: Several respondents noted that the Forest and Rangeland 
Renewable Resources Planning Act section 10(b) requires 
``revegetation'' of ``non-permanent'' roads.
    Agency response: The agency agrees with the comment. To more 
accurately reflect the intent of the law, the final policy is revised 
to read ``The Forest and Rangeland Renewable Resources Planning Act 
directs that roads be designed to standards appropriate for intended 
uses and requires the revegetation of roads within 10 years of the 
termination of temporary and undeveloped roads created under contract, 
permit, or lease.''

Proposed Section 7701.3--Transportation System Management

    This section identifies the statutory and regulatory authorities 
for transportation system management. The second authority cited in 
this section is the Highway Safety Act of 1966.
    Comment: Respondents wanted the word ``directs'' changed to 
``authorizes'' in paragraph 2 of this section. They indicated that the 
Highway Safety Act authorizes, instead of directs, federal agencies to 
do certain activities.
    Agency response: The agency agrees that the use of the word 
``directs'' was inaccurate and has revised the text of the final policy 
to this effect.

Proposed Section 7702--Objectives

    This section identifies the management results to be achieved 
through transportation system management. The proposed policy sought to 
refine the management objectives to emphasize environmental protection 
and to consider ecosystem values in forest transportation system 
management.
    Comment: Some respondents stated the objectives were too narrow and 
should include specific resources or uses to be served by the 
transportation system (timber, utility corridors, developed and 
dispersed recreation, cross-country ski corridors, wildlife corridors, 
etc.). Other comments indicated the need to clarify text or reorder the 
list of objectives.
    Agency response: The agency disagrees with the need to list 
specific resources or uses. However, consistency with Forest Plans has 
been added to better reflect the agency's intent to consider all 
pertinent uses and resources in the planning process. The coding 
hierarchy and content standards applicable to FSM Title 7700 is 
intended to list the basic transportation management outcomes. The 
order of the objectives was not changed in the final policy because, 
taken together, they accurately represent agency objectives.

Proposed Section 7703--Policy

    This section sets forth the broad policies that are intended to 
guide decisions about road activities. These policies overlay all of 
the subsequent directives in Title 7700, not just Chapter 7710, which 
is being revised. Section 7703 implements the requirements of 36 CFR 
212.5(b)(1) by specifying that the minimum transportation system is the 
system that best serves current and anticipated land and resource 
management objectives and public uses considering current and future 
funding levels.
    Comment: Many respondents were deeply concerned about the proposed 
policy direction to ``provide the minimum forest transportation 
system.'' They questioned the ability of the agency to effectively 
manage forest resources long-term while reducing road access. Others 
objected to a reduction in roads that are open to public use, 
predicting an adverse effect on public access and recreational use on 
National Forest System lands. Some respondents emphasized the need for 
coordination and requested that addition to the policy.
    Agency response: By ``minimum system,'' the agency did not mean no 
new roads or other new transportation facilities or that a majority of 
roads would be decommissioned or converted to other uses. Rather, the 
agency intends the minimum system of roads is one that meets needed 
access needs while protecting healthy ecosystems. Furthermore, the text 
defines ``minimum transportation'' as the system needed to best serve 
(emphasis added) current and anticipated management objectives and 
public uses as identified in forest plans. Any amendment or revision of 
forest plans

[[Page 3224]]

will involve NEPA compliance and full public involvement. Therefore, in 
response to concerns about coordination, the agency has retained this 
text in the final policy, has replaced the term ``forest officers'' 
with ``Responsible Officials,'' and has added language to demonstrate 
the expected coordination with other transportation agencies.

Proposed Section 7703.1--Road Management

    This proposed section provided direction to conduct a roads 
analysis when considering proposals to construct new roads, to 
reconstruct or decommission existing roads, or to change road 
classifications. The proposed policy also would require use of a roads 
analysis to identify priorities for reconstructing and maintaining 
needed roads and decommissioning unneeded roads.
    Comment: Some respondents stated that new road construction should 
be very limited or not allowed at all, while others felt there should 
be few restrictions on building new roads. By contrast, a number of 
other respondents felt that the $8.4 billion of road maintenance 
backlog and decommissioning of all unneeded roads should be completed 
before any new roads are constructed. Others wanted to have these road 
management options addressed more thoroughly, in order to delay the 
closing of roads to the public. A few respondents said that an 
objective process has not been established for identifying (1) whether 
new roads are needed, (2) which existing roads should be reconstructed, 
maintained, or decommissioned, and (3) how priorities should be 
established. Other respondents had questions about how the road 
management policy and the use of a roads analysis would consider other 
motorized and non-motorized uses.
    Agency response: The agency notes the disagreement over how 
decisions about new roads should be made and recognizes that the 
process for making these decisions needs to be clarified. New language 
has been added to the final policy to direct the use of a roads 
analysis to address both access benefits and related ecological costs, 
giving priority to reconstructing and maintaining needed roads while 
decommissioning unneeded roads. This section now clarifies when a roads 
analysis must be conducted and provides a requirement to include an 
economic analysis that addresses both initial and long-term costs.
    The bulk of direction that was in FSM 7703.1 of the proposed 
policy, has been placed under section FSM 7703.2 entitled ``Management 
Opportunities.'' This section gives more specific direction for 
maintaining and constructing needed roads, decommissioning unneeded 
roads, and adding new roads. New language has been added to paragraph 1 
to explain how temporary and unclassified roads are to be considered 
when making decisions about road maintenance. A discussion relating to 
those roads follows under ``Proposed Section 7705--Definitions.''
    In the final policy, paragraph 3 of FSM 7703.2 entitled ``Adding 
New Roads'' has been revised to make clear where decisions to add new 
roads to the transportation system are appropriate. Language has been 
added to clarify that new roads newly acquired through land acquisition 
transactions are subject to the same analysis and justification if they 
are to be placed in the Forest Transportation System only where 
resource management objectives, environmental impacts, and benefits 
associated with a new road have been carefully considered and 
documented. A requirement to consider motorized and non-motorized uses 
during the transportation system analysis has also been added in 
response to comments received.

Proposed Section 7705--Definitions

    The proposed policy added new definitions pertaining to road 
management, updated and revised existing definitions, and removed the 
word ``development.''
    Comment: Many respondents were concerned about the definitions of 
key terms used in the proposed administrative policy. Several 
respondents requested that the road definition be clarified before 
finalizing the rule and policy. Others offered suggestions as to what 
that definition should be. A number of respondents were confused over 
the terms ``classified'' and ``unclassified'' roads and asked which of 
these categories included temporary roads. Respondents recommended that 
the agency use the term ``National Forest System Road'' in place of the 
term ``Forest Road.'' Additionally, some respondents wondered if a road 
could be redesignated as a trail if it was no longer needed as a road.
    Agency response: The agency agrees that clarification of some of 
the terms and definitions is needed. Definitions of ``roads,'' 
``classified roads,'' ``unclassified roads,'' ``transportation atlas,'' 
``new road construction,'' ``temporary road,'' and ``forest 
transportation facility'' were revised in the final rule at 36 CFR 
212.1 published elsewhere in this part of today's Federal Register. The 
administrative policy includes revised definitions for ``forest 
transportation system management,'' ``new road construction,'' ``road 
reconstruction,'' ``road improvement,'' ``road realignment,'' ``road 
maintenance,'' ``roads subject to the Highway Safety Act,'' and 
``transportation facility decommissioning''. The proposed definitions 
for ``public roads,'' ``Forest Road'' ``Forest Service Trail,'' and 
``transportation facility jurisdiction'' have not changed. FSM 7705 
Exhibit-01, entitled Road Terminology Relationships, which appears at 
the end of this document, has been retained and updated to clarify road 
terminology relationships. The following terms have changed between the 
draft and final policy in response to concerns expressed in public 
comment and to clarify agency intent. The new terms in the final policy 
and how the proposed terms were modified are as follows:
    National Forest System Road--This was entitled ``Forest Service 
Road'' in the proposed policy. The new term reflects that National 
Forest System roads serve National Forest System lands.
    Forest Transportation Facility--This term was named Forest 
Transportation System in the proposed policy. Instead, the final policy 
refers to ``facility'' instead of system and includes other necessary 
transportation facilities, such as bridges, parking lots, and other 
appurtenances.
    Forest Transportation System Management--This definition has been 
revised slightly to reflect changes in other definitions.
    New Road Construction--The text has been revised to remove the 
reference to investment, which was confusing and not relevant in 
defining the term. Additionally, the definition has been modified to 
clarify that classified and temporary roads are included in this 
category.
    Road Reconstruction--This term has been simplified by removal of 
the subcategory definition for rebuilding.
    Road Improvement--The text has been changed to remove the reference 
to investment and clarify that improvement includes expanding the 
road's capacity or changing the original design function.
    Road Realignment--The definition has been streamlined.
    Road Maintenance--The definition has been simplified to remove any 
ambiguity as to the meaning of this term.
    Roads Subject to Highway Safety Act--This definition has been 
modified

[[Page 3225]]

to reflect the change from ``Forest Service roads'' to ``National 
Forest System roads.''
    Road Decommissioning--This term was ``Transportation Facility 
Decommissioning'' in the proposed policy. The terminology has been 
revised to clarify that the objective of decommissioning is to remove 
unneeded roads and begin restoration.
    The definition in the proposed policy for the term ``Rebuilding'' 
has been removed from the final administrative policy because it is a 
component of reconstruction or maintenance and is no longer needed as a 
separate definition.
    During 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 all its transportation directives 
to determine what changes in Forest Service Manual and Handbook 
terminology are needed. However, this effort exceeds the scope of these 
revisions to road management directives.

Proposed Section 7709--Handbooks

    The proposed policy lists Forest Service Handbook Section 7709.56 
as a reference. The only change to this section was to remove the term 
``development'' to be consistent with the change in focus in the 
agency's transportation system and redefining Forest Service road as 
National Forest System road. No substantive comments were received on 
this proposed change, and this section is adopted as proposed.

Proposed FSM Chapter 7710--Transportation Atlas Records and Analysis

    Based on comment and further review of this policy, the agency has 
decided to restructure this chapter, revising some of the captions and 
expanding and clarifying the direction. The substantive changes to the 
direction are based on public comment received or on the need to be 
consistent with other current regulatory initiatives. The significant 
changes are as follows: (1) A clarification that temporary roads are 
considered necessary for management of National Forest System 
resources; (2) an emergency exemption from the interim requirements 
(transition) for catastrophic events and responses or restoration under 
the Comprehensive Environmental Responsibility, Compensation, and 
Liability Act; and (3) the requirement that each national forest and 
grassland complete the forest-scale road analysis process in 2 years. 
The comments and agency responses on the proposed direction at FSM 7710 
are arranged according to the issues raised by the respondents.

Change in the Chapter 7710 Title

    Some respondents questioned the need to change the title of the 
chapter, while others wondered if transportation planning was being 
replaced by the roads analysis process.
    Agency response: The title of Chapter 7710--Transportation Atlas, 
Records, and Analysis has been retained in the final policy as it was 
proposed in the administrative policy. This chapter contains 
objectives, policies, responsibilities, and requirements for analyzing 
and documenting the transportation system. The agency feels that the 
title better reflects the overall transportation management program 
since transportation planning is only one aspect of the program.

Forest Road Atlas and Records

    Similar to comments on Section 7705 noted above, respondents were 
concerned primarily with which roads would be tracked in the atlas: 
classified, unclassified, or both. Others were unclear how and where 
temporary roads would be tracked. Some respondents suggested periodic 
updates to the road atlas be required, such as annually or every 5 
years.
    Agency response: All classified and unclassified roads are required 
to be included in the road atlas. Including unclassified roads in the 
atlas will provide the mechanism needed to track the prioritization, 
scheduling, and decommissioning of unclassified roads. The inclusion of 
unclassified roads in the road atlas is necessary for roads analysis 
and identification of road management opportunities and priorities. 
Their inclusion in the atlas does not mean that they are part of the 
official forest transportation system. The agency recognizes that 
temporary roads are usually short-term in duration (often less than 1 
year) and are required to be managed and tracked with the project or 
activity in which they are authorized. Therefore, temporary roads will 
not be required to be included in the forest road atlas unless the 
agency decides to retain a temporary road as a classified road after 
the permitted use ceases. The National Forest Management Act (NFMA) 
requires that these roads be designed to reestablish vegetative cover 
within 10 years of the termination of the authorization unless 
converted to other uses.
    The agency does not agree that the atlas should be updated at set 
periods. Atlas updates are intended to be an ongoing activity as road 
inventories, analyses, and road-related decisions are implemented.
    Comments: Some respondents wanted to have accurate maps available 
that would show the current status of the road system. Others wanted to 
have the tabulated road inventory accurately reflect the existing road 
system. Some wanted to know the difference between the transportation 
atlas and road atlas.
    Agency response: As noted in the final rule which appears elsewhere 
in this part of today's Federal Register, each administrative unit will 
be required to prepare and maintain a transportation atlas which 
consists of geo-spatial, tabular data, and other associated information 
for National Forest System roads, trails, and airfields. This final 
policy further defines the transportation atlas to include separate 
road atlas, trails atlas, and airfield atlas. In the road atlas, the 
travel status of each road (whether it is managed as open, restricted, 
or closed) must be identified. The atlas will be updated through 
ongoing inventories or project and land management planning, and it 
will be the source for updating maps prepared for public use, such as 
the Forest Visitor Map. Information in the atlas will be available to 
the public.
    Comment: Respondents emphasized the need to standardize information 
on roads and bridges, including physical, operational, usage, 
performance, and safety characteristics.
    Agency response: The agency agrees and believes that Section 
7712.5--Road Management Objectives, as written in the final policy, 
establishes the standards for road information.

Transportation Analysis Process

    Some respondents wanted the transportation analysis process 
clarified, while others expressed concerns about coordination and 
review of the transportation analysis process and results. Still others 
expressed the need for planning and analysis process accountability.
    Agency response: The agency agrees with the need for clarity and 
accountability of the planning and analysis process. Therefore, Section 
7712--Transportation Analysis has been rearranged with minor text 
changes and additions.

[[Page 3226]]

    Comment: Respondents said the road management policy needs to 
address social, economic, and environmental values in transportation 
planning and analysis and needs to use the findings from transportation 
planning to update forest plans.
    Agency response: The final administrative policy includes 
objectives, which specify that social, economic, and environmental 
values must be considered as part of the roads analysis. Section 
7712.12 of the final policy clarifies how transportation analysis, 
which includes road analysis, contributes to the planning process. 
Also, in recognition of the importance of roads analysis, a requirement 
has been added in section 7712.15 for each National Forest System 
administrative unit to complete a forest-scale roads analysis within 2 
years.

Roads Analysis Process

    Some respondents expressed confusion about the various scales and 
scopes of roads analysis.
    Agency response: In response to these concerns, the Forest Service 
took a fresh look at the proposal and concluded that the proposal 
scattered direction about scale and scope of roads analyses in a number 
of sections and that reorganizing to consolidate this direction into 
fewer sections would improve the utility of the directives. An outline 
of the reorganized chapter 7710 showing sections that address scope and 
scale of roads analysis is set out in the conclusion of this preamble.
    Comment: Most respondents supported the concept of using the roads 
analysis process. Respondents wanted the process to be either more 
prescriptive or less prescriptive, depending on their views of how 
National Forest System lands should be managed. Some respondents were 
confused about how the analysis process would be used.
    Agency response: Roads analysis initiates a process that leads to 
the identification of road-related issues and relevant analysis 
questions. These issues and questions, when analyzed and answered, will 
help to ensure that Responsible Officials are well informed when making 
road construction, reconstruction, decommissioning, and road priority 
decisions. Roads analysis is issue-driven and capable of examining 
issues at various scales. Issues may be identified by the public, 
local, and Tribal governments, State officials, other Federal agencies, 
or the Responsible Officials.
    In considering, these comments on the roads analysis process, the 
Forest Service has given considerable attention to revising 
descriptions of the various levels of analyses and the compliance 
requirements. These are set out at FSM 7712. FSM 7712.1 cites the Roads 
Analysis: Informing Decisions about Managing the National Forest 
Transportation System (USDA Forest Service, 1999, Misc. Rep. FS-643) as 
a current standard for the roads analysis process. The final policy 
requires the use of this analytical process unless an alternative 
process is approved by the Deputy Chief for the National Forest System.
    In response to confusion about the use of the roads analysis 
process, a new paragraph has been added at FSM 7712.11 to better 
describe the expectations and outcomes of a roads analysis. This new 
text specifies that the product of a roads analysis is a report that 
documents the information and analysis methods used to identify road 
opportunities, needs, and recommended priorities for National Forest 
System roads.

Responsibilities for Agency Officials

    Some respondents asked why alternatives to conducting a roads 
analysis must be approved at the Deputy Chief level.
    Agency response: The final policy (FSM 7712.1) adopts the report 
Roads Analysis: Informing Decisions About Managing the National Forest 
Transportation System (USDA Forest Service, 1999, Misc. Rep. FS-643) as 
a current standard for conducting roads analysis, just as proposed. The 
agency expects that engineering and environmental science and our 
understanding of these sciences will continue to grow; therefore, it is 
important to preserve the flexibility to incorporate new information 
into the roads analysis process as it is developed or to adopt new 
analytical processes. Placing responsibility for approving alternative 
roads analyses at the Deputy Chief level ensures that any new processes 
will meet the high standard for science-based analysis established by 
the current standard. Consequently, no changes have been made to the 
final policy regarding approval for using an alternative analytical 
process.
    Comment: A number of respondents emphasized the importance of 
public involvement as a Forest Supervisor's responsibility. They also 
requested a timeline for completion of road inventories in preparation 
for forest plan revisions. Other comments indicated the need to clarify 
text regarding the Forest Supervisor's responsibilities.
    Agency response: The final policy adds public involvement as a 
component of a Forest Supervisor's responsibility. Also, this section 
has been reorganized to reflect the normal sequence of transportation 
planning and analysis requirements.

Roads Analysis Transition Procedures Comments

    Most of the comments received concerning the transition language 
related to the sensitive roadless and unroaded areas included in the 
proposed policy. Some respondents were confused as to how specific 
projects and forest plans would be affected by the transition language. 
Some respondents urged the agency not to exclude or exempt any forests 
or combinations of forests, such as the Tongass National Forest or 
forests within the Northwest Plan area, while others wanted more 
exemptions. Many respondents questioned including the roadless-related 
direction in the policy when the agency already had an ongoing 
rulemaking specifically for roadless areas.
    Agency response: For clarity, the term ``Transition Procedures,'' 
as used in the draft policy, has been changed to ``Interim 
Requirements'' in the final policy. The agency carefully considered 
whether or not to remove the ``transition procedures'' for road 
construction and reconstruction in roadless and unroaded areas and this 
direction has been retained in the final policy at FSM 7712.16 to 
ensure that the values associated with these sensitive areas are fully 
considered within the context of forest planning. Without the interim 
requirements, these areas could be subject to an incremental project-
by-project risk of degradation. Also, the final policy adds a new 
section (FSM 7712.15) to address compliance deadlines for completing 
forest-scale roads analyses and clarifies at FSM 7712.13-13d how the 
analyses are to be used to inform forest planning and project 
decisions.
    Finally, pursuant to Section 7712.16b of this final road management 
policy, the Alaska Regional Forester has the discretion to determine 
whether a compelling need exists, as defined by this section, for a 
specific road construction project in the Tongass National Forest. The 
exercise of that discretion may result in a finding that no compelling 
need exists, in which case the proposed road would not be built, or in 
a determination that a compelling need does exist for construction of 
the road. In either case, the determination will be made based upon 
consideration of the provisions of the Tongass Land Management Plan, 
including the goal of seeking to meet the

[[Page 3227]]

market demand for timber from the Tongass National Forest.

Specific Comments on the Regulatory Certifications of the Proposed 
Policy

Comments Concerning Social and Economic Considerations
    Some respondents felt that the final policy did not adequately 
address the social and economic effects of decommissioning and closing 
roads. They believed the Forest Service should reconsider the economic 
effects of the road policy. Other respondents felt forest roads should 
be kept open for the economic viability of the surrounding communities 
and some expressed fears of losing resource-related jobs. Others 
expressed the need to protect the non-commodity values of National 
Forest System lands. Respondents said the Forest Service should 
consider the social ramifications of the transportation policy and how 
its implementation would affect the quality of life for those who 
favored more roads as well as for those who favored fewer roads.
    Agency response: To the extent practicable, the agency has 
considered the social and economic effects of adopting this final 
policy. The final rule and policy provide guidance for transportation 
planning, but do not dictate local land management decisions. 
Therefore, the costs and benefits associated with the final rule and 
policy are described qualitatively in most cases and are limited to 
predicting the direction of change due to their implementation. The 
only exception to this limitation was the potential effects on timber 
harvesting, in which case, the maximum potential effects were 
estimated. A detailed cost/benefit analysis for the final rule and 
policy may be found in Appendix E of the National Forest System Road 
Management Strategy Environmental Assessment available as indicated 
under the ADDRESSES section of this rule.
Comments Concerning Takings Implications and Civil Justice Reform Act
    Some respondents said that the No Takings Implications and Civil 
Justice Reform Act statements are incorrect because inaccurate Roadless 
Area Review and Evaluation (RARE II) inventories have resulted in 
inaccurate roadless delineations. They also believe the road management 
rule will result in the taking of private property rights by 
restricting access to mining claims, private and native in-holdings, 
and other rights of ingress and egress by closing county and permitted 
roads through and within National Forest System lands. Others were 
concerned that access for other Federal, State and local agencies would 
be restricted by decommissioning roads.
    Agency response: The agency recognizes that changes have occurred 
since the RARE II inventories were completed and that, on some forests, 
portions of inventoried roadless areas have been roaded as a result of 
forest plan decisions. The final rule requires a roads analysis that 
will identify needed and unneeded roads, road maintenance priorities, 
and other road-related resource concerns. Updating existing road 
inventories must be conducted as part of the roads analysis process. 
The final roads rule and the accompanying final administrative policy 
honor access to private property pursuant to statute and to outstanding 
or reserved rights and do not retroactively affect existing permits, 
contracts, or other instruments authorizing the occupancy and use of 
National Forest System lands. This includes reasonable access to 
private land in-holdings. Forest Service officials must conduct a roads 
analysis to determine the minimum road system needed to achieve 
management goals and objectives. As part of that analysis, the agency 
requires the Responsible Official to seek to involve interested and 
affected citizens and organizations, including businesses, in the roads 
analysis and subsequent NEPA processes. Road decommissioning decisions 
will be made on a local basis, with public involvement, and will take 
into account access needs of State, county, and Tribal governments.
    Comment: Some respondents stated that statements contained in the 
Civil Justice Reform Act (CJRA) section of the proposed rule raised the 
question of how much weight public involvement would be given in the 
process. One respondent said that the ability to ignore other 
governmental requirements seems to grant unwarranted authority to 
follow a predetermined course of action without heeding local concerns.
    Agency response: The agency has already responded to the use of 
public comments earlier in the Supplementary Information section. 
Additionally, the language of the CJRA certification was drafted as a 
model for use by all USDA agencies. However, the public has 
understandably found the language confusing because it is drafted in 
the negative. While this language is appropriate for a codified rule, 
it is of questionable relevance to the adoption of administrative 
directive. As a matter of agency policy, Forest Service Manual 
direction is issued for Forest Service employees only. It doesn't 
regulate the actions of others, and therefore, would never preempt 
state law in and of itself. Accordingly, this paragraph has been 
substantially revised in this final rule.

Regulatory Certifications

Regulatory Impact

    The final administrative policy has been reviewed under USDA 
procedures and Executive Order (E.O.) 12866 on Regulatory Planning and 
Review. The Office of Management and Budget (OMB) reviewed the final 
policy and has determined that the final policy, in concert with a 
final rule published separately in today's Federal Register, are a 
significant action as defined by E.O. 12866 because of the importance 
of the National Forest road system and the strong public interest 
expressed. A cost-benefit analysis was prepared as part of the 
environmental assessment on the proposed rule and policy revisions. The 
environmental assessment, including the cost-benefit analysis, has been 
updated in response to public comment and to conform to the final rule 
and policy revisions. A summary of the cost-benefit analysis follows.
    The final policy revisions encourage the investment of scarce road 
management funds in a National Forest road system that best provides 
access for the current and anticipated management objectives and public 
uses of National Forest System lands. The final policy emphasizes 
investing in reconstructing and maintaining needed roads while 
decommissioning unneeded roads. New road construction must be supported 
by a roads analysis. Although this final policy requires that the 
agency use a new roads analysis when making decisions about road 
construction, reconstruction, and decommissioning, the agency currently 
conducts various types of transportation analyses 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 final policy. The 
costs and benefits associated with this final rule were described 
primarily in qualitative terms. Since the rule does not result in any 
land management decisions, the effect of the rule on the flow of goods 
and services will be further evaluated in the roads analysis and other 
planning analyses. Implementation of the final rule is expected to 
improve water quality, air quality, and wildlife and fish habitat. The 
spread of noxious weeds and invasive plants should be reduced. 
Increased emphasis on road decommissioning may reduce recreation access 
in some situations. However, this reduction in access would likely be

[[Page 3228]]

offset by increased emphasis on maintaining existing roads and 
improving access in other areas. Remote recreation settings found in 
contiguous unroaded areas will be protected during the interim 
requirement period.
    The agency anticipates that the final roadless area conservation 
rule will supercede the interim requirements of section 7712.16b of 
this final policy for inventoried roadless areas, except for the 
Tongass National Forest. Therefore, during the interim requirements 
period, decisions regarding access that would require roads will be 
limited to contiguous unroaded areas on all National Forests except for 
the Tongass National Forest. In contiguous unroaded areas, timber 
harvest and exploration and development of minerals could be impacted 
in this interim period. If all planned timber harvest in these 
contiguous unroaded areas were forgone during the interim period, 
approximately 65 million board feet of timber per year could be 
affected. This figure covers all National Forests, because for the 
Tongass National Forest timber harvest effects occur were found only in 
the inventoried roadless areas, not in contiguous unroaded areas. Under 
this scenario, up to 433 direct and 797 total jobs could be affected. 
These effects would be expected to be of short duration, since the 
interim requirements period ends once a comprehensive road inventory 
and forest-scale roads analysis are completed and incorporated as 
appropriate into the forest plan.
    Decisions on whether or not to harvest timber and build roads in 
contiguous unroaded areas will be made in the interim period on a case-
by-case basis. Therefore, it is impossible to reliably predict 
potential effects, since to do so would be to prejudge the outcome of 
decisions not yet made. Nevertheless, during the interim requirement 
period, the worst case potential effects arising from timber harvest 
forgone in contiguous unroaded areas could be an annual loss of income 
of up to $32 million. In order for these maximum potential effects to 
be realized, absolutely no road construction or reconstruction would 
occur in these areas during the interim requirements period. We know 
that this is not likely to be the case, as there will likely be road 
activities that are found to meet the compelling need requirement of 
FSM 7712.16b and, therefore, may proceed.
    The interim requirements of the road management policy will apply 
to planned timber sales on the Tongass for which no final decision has 
been made. The planned offer volume that could be affected is 102 
million board feet that would be offered over a period of 3 to 5 years. 
Of that total volume, about 72.5 million board feet would likely be 
harvested over a period of 3 to 5 years, with a resulting annual impact 
of 15 to 25 million board feet foregone per year, unless the Regional 
Forester determines that a compelling need within the meaning of FSM 
7712.16b exists for harvesting that volume. The potential annual 
economic effects associated with that volume would be a maximum of 75-
125 direct jobs and 120-200 total jobs, with direct income effects of 
$8.6 million to $14.4 million direct and total income effects of $13.8 
million to $23 million. The combined economic impact of foregoing all 
harvest in all contiguous unroaded areas of the National Forest System 
and some harvest from inventoried roadless areas on the Tongass would 
be up to a maximum of $55 million.
    The cost-benefit analysis can be found in: National Forest System 
Road Management Strategy Environmental Assessment, page 65, Social and 
Economic Effects, and in Appendix E, Cost/Benefit Analysis. This 
document may be obtained from the internet at www.fs.fed.us/news/roads 
for one year following publication of the final policy or by writing to 
the Director of Ecosystem Management Coordination, P.O. Box 96090, 
Washington, DC 20090.
    In summary, the final policy emphasizes a shift from road 
development to managing the existing road system within the capability 
of the land. While the agency could not quantify or establish a 
monetary value for many of the impacts of this proposed policy, the 
agency thoroughly considered both the potential quantified and 
qualitatively-discussed costs and benefits. Pursuant to the 
requirements of E.O. 12866, the agency carefully assessed alternative 
regulatory approaches and finalized this rule only after making a 
reasoned determination that the benefits justify the costs.
    The final policy revisions of administrative directives have been 
considered in light of the Regulatory Flexibility Act (5 U.S.C. 601 et 
seq.). The final policy provides agency-wide direction to forest and 
regional personnel about planning and managing the forest 
transportation system. No direct or indirect financial or access 
impacts on small businesses have 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 
administrative policy revisions on State, local, and Tribal 
governments, and on the private sector. These 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 
impact statement ``rules, regulations, or policies to establish 
service-wide administrative procedures, program processes, or 
instructions.'' The Forest Service's assessment is that these 
administrative policy revisions fall within this category of exclusion. 
Nevertheless, to further the intent of NEPA, the agency has prepared an 
environmental assessment. This document may be obtained from the 
Internet at www.fs.fed.us/news/roads for 1 year following publication 
of the final policy or by writing to the Director of Ecosystem 
Management Coordination, P.O. Box 96090, Washington, DC 20090.

No Takings Implication

    These administrative policy revisions were reviewed for their 
impact on private property rights under E.O. 12630. It has been 
determined that they do not pose a risk of the 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 administrative policy revisions were reviewed under E.O. 
12988, Civil Justice Reform. These revisions solely direct the work of 
Forest Service employees and are not intended to preempt any state and 
local laws or regulations that might be in conflict or that would 
impede full implementation of this policy. These revisions would not 
retroactively affect existing permits, contracts, or other instruments 
authorizing the occupancy and use of National Forest System lands and 
would not require the institution of administrative proceedings before 
parties may file suit in court challenging these provisions.

[[Page 3229]]

Controlling Paperwork Burdens on the Public

    These 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 U.S.C. 3501, et seq.) and 
implementing regulations at 5 CFR Part 1320 do not apply.

Conclusion

    Having considered the comments received, the Forest Service hereby 
adopts final amendments to its forest planning and transportation 
directives. In addition to the changes already noted in the responses 
to comments, the agency reconsidered the organization of proposed 
changes to Chapter 7710 and concluded that the directive was redundant 
in places and inconsistent in others. Therefore, the Forest Service has 
reorganized Chapter 7710. The outline of this chapter as adopted is as 
follows:

7710.2  Objectives
7710.3  Policy
7710.4  Responsibility
7710.41  Deputy Chief, National Forest System
7710.42  Regional Forester
7710.43  Forest Supervisor
7710.44  District Rangers
7711  Forest Transportation Atlas & Records
7711.01  Authority
7711.03  Policy
7711.1  Forest Road Atlas
7712  Transportation Analysis
7712.02  Objectives
7712.03  Policy
7712.1  Roads Analysis
7712.11  Outcomes
7712.12  Integration with existing Land and Resource Management 
Plans
7712.12a  Roads analysis as part of forest plan revision or 
amendment
7712.12b  Road management project planning
7712.13  Scope and Scale of Roads Analysis
7712.13a  Roads analysis for large-scale assessments
7712.13b  Roads analysis at the forest or area scale
7712.13c  Informing Decisions at the watershed and project scale
7712.13d  Special Implementation Considerations
7712.14  Road Inventory
7712.15  Compliance Deadlines for Completing Roads Analyses
7712.16  Interim Requirements for road construction/reconstruction 
in inventoried roadless and contiguous unroaded areas
7712.16a  Areas Subject to Interim Requirements
7712.16b  Interim Requirements
7712.16c  Duration of the interim requirements
7712.16d  Emergency Exemptions from Interim Requirements
7712.3  Network Analysis
7712.4  Economic Analysis [Reserved].
7712.6  Scheduling Projects

    This final administrative policy implements the revisions to the 
National Forest Transportation System planning and management adopted 
in a final rule elsewhere in this part of today's Federal Register. 
This action is necessary: (1) To ensure that the National Forest 
Transportation System meets current and future land and resource 
management objectives and provides for attendant public uses of 
National Forest System lands; (2) to provide for safe public access and 
travel; (3) to allow for economical and efficient management; and (4) 
to the extent practicable, to minimize and begin to reverse adverse 
ecological impacts from roads. This revision reflects shifts in public 
opinion and changes in demand and use of the National Forest System, 
considers possible economic and social benefits associated with road 
construction and uses, and utilizes scientific information about the 
environmental impacts of road construction. Also, all of the action 
items called for in the report to the President on the wildland fires 
of 2000 are compatible with the final road management policy. The final 
road management policy provides local decisionmakers adequate 
discretion to authorize needed access to meet resource management 
objectives and is, therefore, consistent with the agency's cohesive 
fire strategy; ``Protecting People and Sustaining Resources in Fire 
Adapted Ecosystems, a Cohesive Strategy.'' This policy is being issued 
to the Forest Service Manual. Minor, non-substantive, editorial changes 
have been made to the proposed policy and many sections have been 
reorganized for efficiency and clarity.

(See Appendix A for a table displaying an Overview of Overall Road 
Management Policy.)

    Dated: January 4, 2001.
Mike Dombeck,
Chief, Forest Service.

National Forest Transportation Forest Service Manual Amendments

    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 forth here. Those 
who wish to see the entire document in which the changes are being 
incorporated may do so at www.fs.fed.us/news/roads. In the 
directives that follow, Forest Service employees charged with 
decisionmaking responsibilities concerning the National Forest 
Transportation System are referred to as Responsible Officials and 
are the intended audience of these administrative directives.

FSM 1920--Land and Resource Management Planning

Chapter 1920--Land and Resource Management Planning

    Note: For ease of issuance, this direction to FSM 1920 will be 
initially issued as an Interim Directive and later integrated into 
the Chapter as an Amendment.

1920.5--Definitions [the following terms will be added to this section]

    Inventoried roadless areas. Areas identified in a set of 
inventoried roadless area maps, contained in Forest Service Roadless 
Area Conservation, Draft Environmental Impact Statement, Volume 2, 
dated May 2000, which are held at the National headquarters office of 
the Forest Service, or any update or revision of those maps.
    Unroaded areas. Any area without the presence of a classified road, 
that is of a size and configuration sufficient to protect the inherent 
characteristics associated with its roadless condition. Unroaded areas 
are distinct from and do not overlap with inventoried 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 Part 219. 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.
* * * * *

FSM 7700--Forest Transportation System

Chapter 7700 Zero Code

7701  AUTHORITY
7701.1  Coordination with Forest Planning
7701.2  Revegetation

[[Page 3230]]

7701.3  Transportation System Management
7702  OBJECTIVES
7703  POLICY
7703.1  Road Management
7703.2  Management Opportunities
7705  DEFINITIONS
7709  HANDBOOKS

Chapter--Zero Code

    This title prescribes the authority, objectives, policy, 
responsibility, and definitions for planning, construction, 
reconstruction, operation, and maintenance of forest transportation 
system facilities.

7701--Authority

7701.1--Coordination With Forest Planning

    Title 36, Code of Federal Regulations, Section 219.27 (36 CFR 
219.27). Requires transportation access to be addressed in the land and 
resource management planning process.

7701.2--Revegetation

    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 
requires the revegetation of roads within 10 years of the termination 
of temporary and undeveloped roads created under contract, permit, or 
lease.

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 the 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). 
Authorizes State and local governments and participating Federal 
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 and 
includes planning, right-of-way acquisition, and construction of trails 
designated by Congress or the Secretary of Agriculture as part of the 
system.
    4. Title 36, Code of Federal Regulations, Part 212 (36 CFR Part 
212). Establishes requirements for the administration of the forest 
transportation system, including roads, trails, and airfields, and 
provisions for acquisition of rights-of-way. Describes a minimum road 
system and requires a science-based roads analysis to plan the road 
system and to set funding priorities.
    5. Title 36, Code of Federal Regulations, Sections 261.12 and 
261.54 (36 CFR 261.12 and 261.54). Establishes prohibitions on National 
Forest System roads that are enforceable by the Forest Service.
* * * * *

7702--Objectives

    The results to be achieved by managing the forest transportation 
system are as follows:
    1. To provide sustainable access in a fiscally responsible manner 
to National Forest System lands for administration, protection, and 
utilization of these lands and resources consistent with Forest Plan 
guidance.
    2. To manage a forest transportation system within the 
environmental capabilities of the land.
    3. To manage forest transportation system facilities to provide 
user safety, convenience, and efficiency of operations in an 
environmentally responsible manner and to achieve road related 
ecosystem restoration within the limits of current and likely funding 
levels.
    4. To coordinate access to National Forest System lands with 
national, regional, statewide, local, and Tribal government 
transportation needs.

7703--Policy

    Determine and provide for the minimum forest transportation system 
that best serves current and anticipated management objectives and 
public uses of National Forest System (NFS) lands, as identified in the 
appropriate land and resource management plans (FSM 1920). In managing 
the forest transportation system for access, Responsible Officials must 
coordinate with other public and private transportation system agencies 
to integrate transportation information and to balance transportation 
facility investments and maintenance costs against the need to maintain 
land health and water quality.

7703.1--Road Management

    In accordance with 36 CFR Sec. 212.5(b)(1), when managing NFS 
roads, responsible officials are to:
    1. Address both the access benefits and ecological costs of road-
associated effects.
    2. Give priority to reconstructing and maintaining needed roads and 
decommissioning unneeded roads, or, where appropriate, converting them 
to less costly and more environmentally beneficial other uses.
    3. Use a roads analysis process (FSM 7712.1) to ensure that road 
management decisions are based on identification and consideration of 
social and ecological effects. See FSM 7712.13 for guidance on the 
scope and scale of roads analysis required.
    4. Add new roads only where resource management objectives and 
benefits are clearly demonstrated and where long-term funding 
obligations have been carefully considered (FSM 7703.2, para. 3).

7703.2--Management Opportunities

    Management opportunities for meeting access needs and utilization 
of forest resources may include roads managed for safe passenger car 
use, high-clearance vehicle use, or for roads that restrict highway 
vehicles but are available for other motorized or non-motorized trail 
uses (such as hiking and administrative access), or trails managed for 
a variety of uses (such as hiking, horseback riding, and snowmobiling). 
In addition to the direction in paragraphs 1-3 of this section, Exhibit 
01 in section 7712.1 displays the various road management opportunities 
available to meet access and program needs.
    1. Maintaining and reconstructing needed roads. Emphasize 
maintenance and reconstruction of classified roads to meet road 
management objectives (FSM 7712.5). Give priority to upgrading the most 
heavily used roads to provide safe and efficient travel and to reduce 
adverse environmental impacts. If necessary for environmental 
protection and due to lack of funding, travel on classified roads may 
need to be restricted or closed. Such decisions should be undertaken 
only after careful analysis and consideration. Do not maintain 
unclassified roads except under emergency resource protection 
circumstances. Unclassified roads will be closed and made inaccessible 
where funding permits unless they are made part of the authorized 
forest road system as provided for in this policy. Temporary roads are 
maintained as authorized in the contract, permit, lease, or other 
authorizing document and must

[[Page 3231]]

be decommissioned at the conclusion of the authorized activity.
    2. Decommissioning unneeded roads. Many unplanned, unauthorized, 
unclassified travelways exist within National Forest System lands and 
are high priority candidates for decommissioning. Other priorities for 
decommissioning include temporary roads and roads previously classified 
as part of the forest transportation system based on anticipated 
management needs where use and needs have not materialized, or where 
funding or environmental issues merit consideration of decommissioning 
or conversion to other uses. Use an open and public roads analysis 
process (FSM 7712.1) to help identify roads that should be 
decommissioned, to identify restoration needs, and to establish 
decommissioning priorities. It may be necessary to regulate use on some 
unneeded roads until decommissioning or other approved uses, such as 
conversion to trails, can be achieved.
    Once a decision is made and action is taken to decommission a road, 
re-establish vegetation (FSM 7701.2) and, as necessary, initiate 
restoration of ecological processes interrupted or adversely impacted 
by the unneeded roads. Decommissioning includes applying various 
treatments, which may include one or more of the following:
    a. Reestablishing former drainage patterns, stabilizing slopes, and 
restoring vegetation;
    b. Blocking the entrance to a road; installing water bars;
    c. Removing culverts, reestablishing drainage-ways, removing 
unstable fills, pulling back road shoulders, and scattering slash on 
the roadbed;
    d. Completely eliminating the roadbed by restoring natural contours 
and slopes; or
    e. Other methods designed to meet the specific conditions 
associated with the unneeded roads.
    3. Adding new roads. Consistent with FSM 7703.1, para. 4, decisions 
to add new roads to the transportation system are appropriate only 
where the resource management objectives, environmental impacts, and 
benefits have been carefully considered and documented.
    Additionally, decisions to add new roads to the forest 
transportation system must be informed by a roads analysis process (FSM 
7712.1) conducted at an appropriate scale. Resource management 
objectives are established in the relevant land and resource management 
plans (FSM 1920). Identify and consider values associated with or 
impacted by new roads which include utilization, protection, and 
administration of National Forest System lands; public health and 
safety; or private rights. Consideration must be given to long-term 
road funding opportunities and obligations. In examining the 
environmental impacts of potential new roads, consider (1) Maintenance 
of ecological processes; (2) introduction of exotic species; and (3) 
effects on threatened and endangered species or areas of high unique 
biodiversity, cultural uses or historical sites, fish and wildlife 
habitat, water quality, and visual quality. Adding new roads to the 
transportation system includes both new road construction and newly 
acquired roads through land purchases, exchanges, or interchanges.
* * * * *

7705--Definitions

    Exhibit FSM 7705-Exhibit 01, 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), any 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 Transportation Facility. A classified road, designated 
trail, designated airfield, including bridges, culverts, parking lots, 
log transfer facilities, safety devices and other transportation 
network appurtenances, under Forest Service jurisdiction that is wholly 
or partially within or adjacent to National Forest System lands.
    Forest Transportation System Management. The planning, inventory, 
analysis, classification, recordkeeping, scheduling, construction, 
reconstruction, maintenance, decommissioning, and other operations 
undertaken to achieve environmentally sound, safe, cost-effective, 
access for use, protection, administration, and management of National 
Forest System lands.
* * * * *
    National Forest System Road. A classified forest road under the 
jurisdiction of the Forest Service. The term ``National Forest System 
roads'' is synonymous with the term ``forest development roads'' as 
used in 23 U.S.C. 205.
    New Road Construction. Activity that results in the addition of 
forest classified or temporary road miles (36 CFR 212.1).
    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. A motor vehicle travelway over 50 inches wide, unless 
designated and managed as a trail. A road may be classified, 
unclassified, or temporary (36 CFR 212.1).
    a. Classified Roads. Roads wholly or partially within or adjacent 
to National Forest System lands that are determined to be needed for 
long-term motor vehicle access, including State roads, county roads, 
privately owned roads, National Forest System roads, and other roads 
authorized by the Forest Service (36 CFR 212.1).
    b. Temporary Roads. Roads authorized by contract, permit, lease, 
other written authorization, or emergency operation, not intended to be 
a part of the forest transportation system and not necessary for long-
term resource management (36 CFR 212.1).
    c. Unclassified Roads. Roads on National Forest System lands that 
are not managed as part of the forest transportation system, such as 
unplanned roads, abandoned travelways, and off-road vehicle tracks that 
have not been designated and managed as a trail; and those roads that 
were once under permit or other authorization and were not 
decommissioned upon the termination of the authorization (36 CFR 
212.1).
    Road Decommissioning. Activities that result in the stabilization 
and restoration of unneeded roads to a more natural state (36 CFR 
212.1), (FSM 7703).
    Road Maintenance. The ongoing upkeep of a road necessary to retain 
or restore the road to the approved road management objective (FSM 
7712.3).
    Road Reconstruction. Activity that results in improvement or 
realignment of an existing classified road as defined below:
    a. Road Improvement. Activity that results in an increase of an 
existing road's traffic service level, expansion of its capacity, or a 
change in its original design function.
    b. Road Realignment. Activity that results in a new location of an 
existing road or portions of an existing road and treatment of the old 
roadway (36 CFR 212.1).
    Roads Subject to the Highway Safety Act. National Forest System 
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.
* * * * *

[[Page 3232]]

    Transportation Facility Jurisdiction. The legal right to control or 
regulate use of a transportation facility derived from fee title, an 
easement, an agreement, or other similar method. While jurisdiction 
requires authority, it does not necessarily reflect ownership.
* * * * *

7709--Handbooks

* * * * *

7709.56--Road Preconstruction Handbook

    This handbook establishes procedures and guides for the location, 
survey, design, and preparation of cost estimates for National Forest 
System roads.

Chapter 7710--Transportation Atlas, Records, and Analysis

7710.2  Objectives
7710.3  Policy
7710.4  Responsibility
7710.41  Deputy Chief, National Forest System
7710.42  Regional Forester
7710.43  Forest Supervisor
7710.44  District Rangers
7711  FOREST TRANSPORTATION ATLAS & RECORDS
7711.01  Authority
7711.03  Policy
7711.1  Forest Road Atlas
7712  TRANSPORTATION ANALYSIS
7712.02  Objectives
7712.03  Policy
7712.1  Roads Analysis
7712.11  Outcomes
7712.12  Integration with existing Land and Resource Management 
Plans
7712.12a  Roads analysis as part of forest plan revision or 
amendment
7712.12b  Road management project planning
7712.13  Scope and Scale of Roads Analysis
7712.13a  Roads analysis for large-scale assessments
7712.13b  Roads analysis at the forest or area scale
7712.13c  Informing Decisions at the watershed and project scale
7712.13d  Special Implementation Considerations
7712.14  Road Inventory
7712.15  Compliance Deadlines for Completing Roads Analyses
7712.16  Interim Requirements for road construction/reconstruction 
in inventoried roadless and contiguous unroaded areas
7712.16a  Areas Subject to Interim Requirements
7712.16b  Interim Requirements
7712.16c  Duration of the interim requirements
7712.16d  Emergency Exemptions from Interim Requirements
7712.3  Network Analysis
7712.4  Economic Analysis [Reserved].
7712.6  Scheduling Projects

7710--Transportation Atlas, Records, and Analysis

    This chapter contains objectives, policies, responsibilities, and 
requirements for analyzing transportation needs and issues and for 
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, within the context of current and likely funding 
levels, the minimum transportation facilities needed for public and 
agency access to achieve forest land and resource management goals and 
to safeguard ecosystem health within the context of current and likely 
funding levels.
    2. To incorporate transportation system needs 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, State, local, and 
Tribal governments, and other Federal agencies in transportation 
analysis.

7710.3--Policy

    1. Conduct transportation system planning and analysis using the 
best available science at the appropriate scale and in conjunction with 
other analyses to inform transportation management decisions. 
Specifically, transportation analysis can assist transportation 
planners in:
    a. Determining the need for access to National Forest System lands;
    b. Identifying the infrastructure required to provide that access; 
and
    c. Considering and minimizing effects of transportation facility 
construction, reconstruction, maintenance, and decommissioning on 
ecological processes and ecosystem health, diversity, and productivity.
    2. Involve, interact, and coordinate with adjacent landowners, 
citizens groups, State, local, and Tribal governments, and other 
Federal agencies. This collaboration is fundamental to effective 
transportation analysis and planning.
    3. Identify and determine the priority areas where detailed 
transportation analysis, including roads analysis (FSM 7712.1), is 
essential for achieving land and resource management direction.
    4. Ensure that road construction, reconstruction, and maintenance 
standards or criteria are guided by roads analysis (FSM 7712.1) and 
documented through the use of road management objectives (FSM 7712.5).

7710.4--Responsibility

7710.41--Deputy Chief, National Forest System

    The Deputy Chief, National Forest System, has the authority to 
approve or rescind roads analysis processes for field use.

7710.42--Regional Forester

    It is the responsibility of the Regional Forester to:
    1. Ensure that roads analysis is a component of sub-basin, multi-
Forest, and sub-regional scale assessments.
    2. Develop multi-year regional schedules of proposed transportation 
facility projects (FSM 1920)
    3. Serve as the Responsible Official on any environmental impact 
statement on road construction or reconstruction in inventoried 
roadless and certain unroaded areas as identified in FSM 7712.16.

7710.43--Forest Supervisor

    The Forest Supervisor is delegated the authority and assigned the 
responsibility to:
    1. Consult and involve Federal, State, local, and Tribal 
transportation agencies in land and resource management planning to 
ensure coordination of the overall transportation system.
    2. Develop and maintain a forest transportation atlas in compliance 
with FSM 7711 and 36 CFR Part 212.
    3. Complete and maintain an inventory of classified and 
unclassified roads.
    4. Assign transportation analysis to personnel with skills in 
engineering, hydrology, biology, and other related knowledge and 
skills.
    5. Accomplish roads analysis at the appropriate scale and as 
directed in FSM 7712.1 and FSM 7712.15, and document the results.
    6. Develop and recommend to the Regional Forester annual and multi-
year schedules of proposed road construction, reconstruction, and 
decommissioning projects.

7710.44--District Rangers

    Unless reserved by the Forest Supervisor, the District Ranger has 
authority to approve road management objectives (FSM 7712.5).

7711--Forest Transportation Atlas & Records

7711.01--Authority

    The regulations at Part 212 of Title 36 of the Code of Federal 
Regulations (36

[[Page 3233]]

CFR, Part 212) address how the Forest Service is to administer the 
Forest Transportation System. Section 212.2 requires an atlas as a 
component of the forest transportation program, as follows:

Section 212.2--Forest Transportation System

    (a) For each national forest, national grassland, experimental 
forest, and any other unit of the National Forest System as defined 
in Sec. 212.1 and listed in 36 CFR Part 200, Subpart A, the Forest 
Supervisor or other responsible official must develop and maintain a 
forest transportation atlas which is to be available to the public 
at administrative headquarters units. The purpose of the atlas is to 
display the system of roads, trails, and airfields of the unit. The 
atlas consists of the geo-spatial, tabular, and other data to 
support analysis needs and resource management objectives identified 
in land management plans. The atlas is a dynamic document that 
changes in response to new information on the existence and 
condition of roads, trails, and airfields of the unit. The atlas 
does not contain inventories of temporary roads, which are tracked 
by the project or activity authorizing the temporary road. The 
content and maintenance requirements for the atlas are identified in 
the Forest Service directive system (36 CFR 200).

7711.03--Policy

    The transportation atlas is the official repository of 
transportation facility decisions for each National Forest and National 
Grassland.
    1. Building the Forest Transportation Atlas. The initial 
transportation atlas for each national forest and grassland consists of 
those maps, inventories, plans, and associated information available as 
of [January 12, 2001]. Units are to add to this initial information in 
accordance with direction in this chapter and other chapters of Title 
7700.
    2. Maintaining the Transportation Atlas. Maintain a current record 
of forest transportation facilities in the atlas. Use the ongoing real 
property and condition survey updates (FSM 6446) as appropriate. Use 
the Forest Service Infrastructure database (INFRA) for the storage and 
analysis of information in the transportation atlas.

7711.1--Forest Road Atlas

    1. The forest road atlas is a key component of the forest 
transportation atlas and, consistent with the road inventory, includes 
all classified and unclassified roads on National Forest System lands.
    2. The road atlas includes, at a minimum, the location, 
jurisdiction, and road management objectives for classified roads and 
bridges and the location of unclassified roads and any management 
actions taken to change the status of unclassified roads.
    3. Data and other information contained in the road atlas should be 
used to support roads analysis.
    4. Unit transportation managers shall document changes in road 
management status, including changes such as accomplishment of 
decommissioning objectives or the addition of an unclassified road to 
the forest road system.
    5. Temporary roads are not intended to be included as part of the 
forest road atlas, as they are managed by the projects or activities 
under which they are authorized and decommissioned at the conclusion of 
the authorized activity.

7712--Transportation Analysis

    Conduct transportation analysis at appropriate scales using the 
best available science that considers access needs and concerns. 
Coordinate the analysis with other ecosystem assessments and analyses.

7712.01--Authority

    The regulations at Title 36 of the Code of Federal regulations 
Sec. 212.5 establish the minimum requirements for the road system, 
using a science-based roads analysis, and identifying unneeded roads as 
follows:

    (b) Road System--(1) Identification of road system. For each 
national forest, national grassland, experimental forest, and any 
other units of the National Forest System (Sec. 212.1), the 
responsible official must identify the minimum road system needed 
for safe and efficient travel and for administration, utilization, 
and protection of National Forest System lands. In determining the 
minimum road system, the responsible official must incorporate a 
science-based roads analysis at the appropriate scale and, to the 
degree practicable, involve a broad spectrum of interested and 
affected citizens, other state and federal agencies, and tribal 
governments. The minimum system is the road system determined to be 
needed to meet resource and other management objectives adopted in 
the relevant land and resource management plan (36 CFR 219), to meet 
applicable statutory and regulatory requirements, to reflect long-
term funding expectations, to ensure that the identified system 
minimizes adverse environmental impacts associated with road 
construction, reconstruction, decommissioning, and maintenance.
    (2) Identification of unneeded roads. Responsible officials must 
review the road system on each National Forest and Grassland and 
identify the roads on lands under Forest Service jurisdiction that 
are no longer needed to meet forest resource management objectives 
and that, therefore, should be decommissioned or considered for 
other uses, such as for trails. Decommissioning roads involves 
restoring roads to a more natural state. Activities used to 
decommission a road include, but are not limited to, the following: 
reestablishing former drainage patterns, stabilizing slopes, 
restoring vegetation, blocking the entrance to the road, installing 
water bars, removing culverts, reestablishing drainage-ways, 
removing unstable fills, pulling back road shoulders, scattering 
slash on the roadbed, completely eliminating the roadbed by 
restoring natural contours and slopes, or other methods designed to 
meet the specific conditions associated with the unneeded road. 
Forest officials should give priority to decommissioning those 
unneeded roads that pose the greatest risk to public safety or to 
environmental degradation.

7712.02--Objectives

    The objectives of transportation analysis are as follows:
    1. To identify transportation management opportunities and 
priorities.
    2. To assess transportation management needs, long-term funding, 
and expected ecosystem, social, and economic effects, including effects 
on the values of roadless and unroaded areas.
    3. To establish transportation management objectives and 
priorities.

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, forest, and site-
specific project plans. In planning for and analyzing the 
transportation system, perform the following:
    1. Assess economic costs and benefits along with social, physical, 
and biological factors when identifying transportation facility 
options.
    2. Assess effects of transportation facility options on ecological 
processes and ecosystem health, diversity, and productivity.
    3. Consider the needs of all parties when developing transportation 
system opportunities in areas of intermingled ownership.
    4. Consider long-and short-term uses, including possible 
mechanized, non-mechanized, and off-highway vehicle uses, when 
analyzing transportation facilities.
    5. Actively engage the public in transportation analysis.
    6. Use the forest transportation atlas as a record of 
transportation facility decisions, including:
    a. Documenting road management objectives
    b. Identifying all classified and unclassifed roads,

[[Page 3234]]

    c. Documenting the results of transportation analysis, and
    d. Documenting road management project priorities.

7712.1--Roads Analysis

    The Responsible Official shall incorporate an interdisciplinary 
science-based roads analysis into multi-forest, forest-scale, and 
watershed or area-scale analyses and assessments to inform planners and 
decisionmakers of road system opportunities, needs, and priorities that 
support land and resource management objectives. Conducted by an 
interdisciplinary team, the science-based roads analysis process 
provides Responsible Officials with critical information needed to 
identify and manage a minimum road system that is safe and responsive 
to public needs and desires, is affordable and efficient, has minimal 
adverse effects on ecological processes and ecosystem health, 
diversity, and productivity of the land, and is in balance with 
available funding for needed management actions.
    Units are to use an authorized science-based roads 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. Report FS-643). Pursuant to FSM 
7710.41, the Deputy Chief, National Forest Systems, may approve other 
science-based analysis methods for field use through amendments to this 
chapter. Although concluding an initial roads analysis is important, 
conduct additional iterations of analysis as needed to address changes 
in conditions, such as available funding, inventory and monitoring 
results, severe disturbance events, or new regulatory requirements.

7712.11--Outcomes

    The roads analysis results in a report and accompanying maps that 
document the information and analysis methods used to identify social 
and environmental opportunities, problems, risks, and priorities for 
future road management. The report documents the key findings of the 
analysis and contains graphical, tabular, and geo-spatial displays of 
the transportation system options, including a minimum road system. It 
is important that the roads analysis identify access needs and 
opportunities that are based on current budget levels and realistic 
projections of future funding. Analysts should locate, interpret, and 
use relevant scientific literature in the analysis and disclose 
assumptions on which the analysis is based. See section 7712.12 for 
detailed guidance on the various scales of analyses and their findings.
    While the report contains factual information concerning the 
transportation system, road management decisions are not a product of 
roads analysis. Rather, road management decisions must be informed by 
roads analysis and disclosed in an appropriate NEPA document (FSM 1950 
and FSH 1909.15). FSM 7712.1 `` Exhibit 01 illustrates road management 
options. Update the transportation atlas (FSM 7711.03), as appropriate, 
based upon decisions reached after the environmental analysis process 
(NEPA). Also, update the atlas if a decision changes road management 
objectives (FSM 7712.5).

7712.12--Integration With Land and Resource Management Plans

    The roads analysis evaluates road system opportunities and needs 
within the context of land and resource management direction. Roads 
analysis includes opportunities for public participation and emphasizes 
interdisciplinary team identification and evaluation of road issues and 
opportunities.

7712.12a--Roads Analysis as Part of Forest Plan Revision or Amendment

    The Responsible Official must use the results and findings of the 
roads analysis process with other ecological assessments when 
addressing issues raised in forest planning. Conducting a forest-scale 
analysis does not compel a forest plan amendment or revision.

7712.12b--Road Management Project Planning

    1. New Road Construction. Consistent with the direction in FSM 
7703.1, ensure that the addition of new roads serves a documented need 
and that the decision is informed by a roads analysis (FSM 7712.1).
    2. Maintenance, Reconstruction, and Decommissioning. Use roads 
analysis (FSM 7712.1) to evaluate opportunities and priorities for 
reconstruction and decommissioning of roads and to provide the context 
at a scale and intensity commensurate with the scope of the road 
management issue or concern. Implementation of road maintenance 
activities does not require a roads analysis before proceeding; 
however, roads analysis is a useful management tool to help set 
maintenance priorities.

7712.13--Scope and Scale of Roads Analysis

    When proposed road management activities would result in changes in 
access, such as changes in current use, traffic patterns, and road 
standards, or where there may be adverse effects on soil and water 
resources, ecological processes, or biological communities (road 
construction, reconstruction, and decommissioning), those decisions 
must be informed by roads analysis (FSM 7712.1) except as provided in 
section 7712.13c. Generally, road management decisions should be 
informed by roads analysis at a broad scale. Responsible Officials must 
choose the appropriate scale for such an analysis and the degree of 
detail that is appropriate and practical. Site-specific projects may be 
informed by a watershed roads analysis, if the Responsible Official 
determines the scope and scale of issues under consideration warrant 
its use. FSM 7712.13--Exhibit 01 provides a snapshot of the scope and 
scale of roads analysis and its integration into planning and 
decisionmaking.

7712.13a--Roads Analysis for Large-Scale Assessments

    1. Roads analysis is an integral part of multi-forest or eco-region 
assessments. At this scale, consider the following:
    a. Broad scale issues, such as habitat connectivity, strongholds 
for aquatic and terrestrial species, sources of clean water, cumulative 
effects, and other ecosystem values.
    b. Integration of other Federal agency, State, county, local, and 
Tribal transportation systems, and their multi-year transportation 
plans with the forest transportation system.
    c. Potential program opportunities for new or revised forest 
highways, public lands highways, and public Forest Service roads.
    d. Current and likely funding levels available to support road 
construction, reconstruction, maintenance, and decommissioning.

7712.13b--Roads Analysis at the Forest or Area Scale

    Roads analysis at the forest scale is critically important, as it 
provides a context for road management in the broader framework of 
managing all forest resources. Close coordination with broader scale 
ecosystem assessments and analyses is essential. Area-scale assessments 
may be appropriate on forests with assessment areas composed of islands 
or groups of islands, on forests with widely separated units, or in 
areas where watershed boundaries do not make logical or effective 
assessment boundaries. Examples include forests with large physically 
or ecologically discrete subdivisions such as the large islands in 
southeast Alaska, or widely

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separated units of National Forests such as: National Forests in Texas, 
Mississippi, Florida, Missouri, and Louisiana, or on forests where 
watershed boundaries do not make logical or effective assessment 
boundaries, such as the coastal plains of the eastern United States.
    1. Consider the following at this scale:
    a. Environmental issues potentially affected by road management 
proposals, such as soil and water resources, ecological processes, 
invasive species spread, and biological communities.
    b. Social issues potentially affected by road management proposals 
such as socio-economic impacts, public access, and accessibility for 
handicapped persons.
    c. An evaluation of the transportation rights-of-way acquisition 
needs.
    d. The interrelationship of State, county, Tribal, and other 
Federal agency transportation facility effects on land and resource 
management plans and resource management programs.
    e. Transportation investments necessary for meeting resource 
management plans and programs.
    f. Current and likely funding levels available to support road 
construction, reconstruction, maintenance, and decommissioning.
    2. Prepare a report with accompanying map(s) that documents the 
information and analysis methods used to identify access and 
environmental priorities, issues, and guidelines for future road 
management and the key findings. At a minimum, the report will:
    a. Inventory and map all classified roads, and display how these 
roads are intended to be managed.
    b. Provide guidelines for addressing road management issues and 
priorities related to construction, reconstruction, maintenance, and 
decommissioning.
    c. Identify significant social and environmental issues, concerns, 
and opportunities to be addressed in project level decisions.
    d. Document coordination efforts with other government agencies and 
jurisdictions.

7712.13c--Informing Decisions at the Watershed and Project Scale

    Roads analysis at the forest scale will generally provide the 
context for informing road management decisions and activities at the 
watershed, area, and project level. Where a forest-scale roads analysis 
has been conducted, the Responsible Official must consider the 
decision(s) to be made and determine how to apply the results of the 
forest-scale roads analysis to best inform management decisions. 
However, it is generally expected that road inventories and road 
condition assessments as identified in FSM 7712.14 would be completed 
at the watershed or project scale.
    When higher scale analyses are not available to inform a project 
decision, the Responsible Official must consider the decisions to be 
made (FSM 7712.13) and the potential environmental and access effects 
and determine whether or not additional analysis is needed at the 
watershed or project scale. Roads analysis below the forest scale is 
not automatically required, but may be undertaken at the discretion of 
the Responsible Official. When the Responsible Official determines that 
additional analysis is not needed for a project, the Responsible 
Official must document the basis for that conclusion.
    When needed, the outcomes of roads analysis at the watershed and 
area-scale would result, at a minimum in the following:
    1. Identification of needed and unneeded roads.
    2. Identification of road associated environmental and public 
safety risks.
    3. Identification of site-specific priorities and opportunities for 
road improvements and decommissioning.
    4. Identification of areas of special sensitivity, unique resource 
values, or both.
    5. Any other specific information that may be needed to support 
project-level decisions.

7712.13d--Special Implementation Considerations

    Ongoing, large-scale ecosystem planning efforts of the Columbia 
River Basin and the Sierra Nevada Framework assessment are exempt from 
the requirements of FSM 7712.1 to conduct a roads analysis.

7712.14--Road Inventory

    Road inventories support roads analysis and road decisions at 
various scales and consist of geo-spatial data (maps, aerial photos, 
etc), physical attribute data, and an assessment of road condition to 
determine if a road is meeting resource management objectives and 
access needs. The inventory information to be gathered varies by the 
scale of assessment.
    1. Inventories at Multi-forest and Forest Scale. Inventories at 
these scales provide information needed to conduct broader assessments 
of road management needs and, therefore, require less site-specific 
information.
    a. Classified Road Inventory. Geo-spatial and physical attribute 
information is needed for all classified roads, whereas the assessment 
of individual road condition would be most important for the major 
transportation routes (arterials and collectors) or those determined to 
be of key importance by the forest.
    b. Unclassified Road Inventory. Information needed for unclassified 
roads is usually that obtained from existing data and other readily 
available sources of information, such as aerial photographs.
    2. Inventories at Watershed and Area Scale. At these scales a 
comprehensive and complete inventory of all classified, unclassified, 
and temporary roads is required in order to conduct analyses that 
inform site-specific decisions, to set priorities for road management 
actions, and to identify special situations.
    Use the INFRA database to store the physical attributes on all 
classified and unclassified roads. FSM 7712.14 Exhibit-01, entitled 
Road Inventory Necessary at Various Scales of Road Analysis and located 
in Appendix B of this document, illustrates the roads analysis 
objectives and the inventory data to be collected at various scales.

7712.15--Deadlines for Completing Roads Analyses

    (Note: The dates in this section will be calculated by the 
Forest Service Directive Manager when this amendment is issued to 
field employees.)

    1. Analysis Needed to inform Road Management Decisions. Section 
7712.13 identifies proposed road management decisions other than forest 
plan revisions or amendments that require roads analysis and provides 
guidance on the scope and scale of various levels of analysis that 
might inform those decisions. The following deadlines govern the 
application of roads analysis to the proposed road management decisions 
identified in section 7712.13:
    a. Decisions made before July 12, 2001 do not require a roads 
analysis.
    b. Decisions made after July 12, 2001 must be informed by a roads 
analysis.
    2. Forest-Scale Road Analyses. Every National Forest System 
administrative unit must have a forest-scale roads analysis completed 
by January 13, 2003 except as follows:
    a. Those units that will complete a forest plan revision or 
amendment by July 12, 2001 do not need to complete a forest-scale roads 
analysis (sec. 7712.1) prior to adopting the plan revision or 
amendment. However, these units are still required to complete a 
forest-scale roads analysis by January 13, 2003. Those units that have 
begun revision or amendment of their forest plans but will not adopt a 
final revision or final amendment by July 12, 2001 must complete a 
roads analysis prior to

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adoption of the final plan revision or amendment.
    b. In specific cases where forests are undergoing forest plan 
revision or amendment, and circumstances are such that additional time 
for completion of forest-scale roads analysis would be desirable for 
integration into the forest plan revision or amendment, the Regional 
Forester may request approval from the Chief for an extension.

7712.16--Interim Requirements for Road Construction/Reconstruction in 
Inventoried Roadless and Contiguous Unroaded areas

    The requirements of section 7712.16a--7712.16d do not revoke, 
suspend, or modify any project or activity decision, or permit, 
contract or other legal instrument authorizing occupancy and use of 
National Forest System land issued prior to January 12, 2001.

7712.16a--Areas Subject to Interim Requirements

    Until a comprehensive road inventory and forest-scale roads 
analysis have been completed and incorporated into the applicable 
forest plan, the direction in FSM 7712.16a through 7712.16c applies to 
the following areas:
    1. Inventoried roadless areas, as defined in FSM 7705, are 
identified in a set of inventoried roadless area maps, contained in 
Forest Service Roadless Area Conservation, Draft Environmental Impact 
Statement, Volume 2, dated May 2000, which are held at the National 
headquarters office of the Forest Service, or any update or revision of 
those maps.
    2. Contiguous unroaded areas of more than 1,000 acres that are 
contiguous to 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 Systems 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, be at least one-quarter mile in width, 
and provide important corridors for wildlife movement or extend a 
unique ecological value of the established inventoried area.

7712.16b--Interim Requirements

    1. Except as provided for in FSM 7712.16c, road construction or 
reconstruction in inventoried roadless and contiguous unroaded areas 
(FSM 7716) may be authorized only if:
    a. The Regional Forester determines, for the purposes of this 
section, a compelling need for a road;
    b. A science-based roads analysis is conducted pursuant to FSM 
7712.1; and
    c. An environmental impact statement for the proposed action is 
prepared and approved by the Regional Forester. Road construction and 
reconstruction in inventoried roadless and contiguous unroaded areas 
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 (FSH1909.15, Section 
05) and, therefore, requires the preparation of an environmental impact 
statement (FSH1909.15, Section 20.6). The environmental impact analysis 
provides the basis for the Regional Forester decision on whether to 
construct or reconstruct a road in inventoried roadless or contiguous 
unroaded areas.
    2. Examples of compelling need, for the purposes of this section, 
may include, but are not limited to:
    a. Roads needed for critical resource restoration and protection.
    b. Road realignment needed to prevent resource damage by an 
existing road that is deemed essential for public or private access, 
management, or public health or safety, and where such damage cannot be 
corrected by maintenance.
    c. Road access is needed pursuant to reserved or outstanding rights 
or as provided by statute or treaty.
    d. Roads needed to restore wildlife habitat.
    To the extent consistent with the Tongass National Forest Land and 
Resource Management Plan and all applicable laws, the Regional Forester 
for Region 10, for the purposes of this section, has specific authority 
to determine that a compelling need exists to provide for the multiple-
use and sustained-yield of all renewable resources of the Tongass 
National Forest, including seeking to meet market demand for timber.
    3. Environmental mitigation and environmental restoration of 
unclassified roads are appropriate in inventoried roadless and 
contiguous unroaded areas and must follow NEPA-based decisionmaking 
processes. However, reconstruction or maintenance of unclassified roads 
in inventoried roadless and contiguous unroaded areas is inappropriate, 
other than to prevent or correct resource damage, as such activity 
would lead to de facto road development.

7712.16c--Duration of the Interim Requirements

    The interim requirements set forth in FSM 7712.16 through 7712.16b 
remain in effect until the forest-scale roads analysis has been 
completed, and either (1) the forest plan has been amended or revised 
or (2) the Forest Supervisor makes a written determination that the 
forest plan does not require amendment or revision to reflect the 
findings of the roads analysis.
    While the intent of the forest-scale roads analysis is to ensure an 
integrated consideration of access needs and opportunities as well as 
the effects of transportation management on the resources of the 
forest, there may be situations where an intensive area-scale roads 
analysis is appropriate (FSM 7712.13b). These specific areas may be 
relieved from the interim requirements upon completion of an intensive 
area-scale roads analysis and amendment or revision of the forest plan, 
or once the Forest Supervisor makes a written determination that the 
forest plan does not require amendment or revision as a result of the 
area-scale analysis.

7712.16d--Exemptions From Interim Requirements

    The procedures established in sections 7712.16a and 7712.16b apply 
to a proposal to construct or reconstruct a road in an inventoried 
roadless or in contiguous unroaded areas unless the Responsible 
Official determines that one of the following circumstances exists:
    1. A road is needed to protect public health and safety in cases of 
an imminent threat of flood, fire, or other catastrophic event that, 
without intervention, would cause the loss of life or property.
    2. A road is needed to conduct a response action under the 
Comprehensive Environmental Response, Compensation, and Liability Act 
(CERCLA) or to conduct a natural resource restoration action under 
CERCLA, section 311 of the Clean Water Act, or Oil Pollution Act.
    3. Road construction is needed in conjunction with the continuation 
extension, or renewal of a mineral lease on lands that are under lease 
by the Secretary of the Interior as of the January 12, 2001 or for a 
new lease issued immediately upon expiration of an existing lease.

7712.3--Network Analysis

    Network analysis may be conducted as part of roads analysis to 
identify access alternatives. The network analysis shall establish four 
important types of transportation cost data:

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    1. Environmental effects and possible ecosystem restoration 
opportunities.
    2. Construction, reconstruction, decommissioning, and maintenance 
costs of a road system to a specific area.
    3. Variable user- and travel-related costs over a road system for a 
resource activity on a unit or output basis.
    4. Life-cycle costs of operating and maintaining the road network.
    Reanalyze networks and cost estimates when management practices or 
management area direction change.

7712.4--Economic Analysis [Reserved]

7712.5--Road Management Objectives

    Validate, revise, or establish road management objectives for all 
classified National Forest System roads to be consistent with land 
management plan direction, project decisions, and the results and 
findings of roads analysis. Road management objectives establish the 
design criteria (FSM 7720) and operation and maintenance criteria (FSM 
7730.3) for each road. The road management objectives require approval 
by the Responsible Official (usually the District Ranger) and are 
included in the forest road atlas (FSM 7710.44).

7712.6--Scheduling Projects

    Integrate the scheduling of decommissioning, reconstruction, and 
construction project activities with other resource activities in a 
timely manner (FSM 1920).

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