[Federal Register Volume 67, Number 164 (Friday, August 23, 2002)]
[Notices]
[Pages 54622-54627]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-21075]


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DEPARTMENT OF AGRICULTURE

Forest Service

RIN 0596-AB94


Clarification of Extraordinary Circumstances for Categories of 
Actions Excluded From Documentation in an Environmental Assessment or 
an Environmental Impact Statement

AGENCY: Forest Service, USDA.

ACTION: Notice; adoption of final interim directive.

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SUMMARY: The Forest Service is adopting an Interim Directive to guide 
employees in complying with the National Environmental Policy Act and 
the Council on Environmental Quality (CEQ) regulations for certain 
actions which can be categorically excluded from documentation in an 
environmental assessment or an environmental impact statement. The 
Interim Directive clarifies the consideration of extraordinary 
circumstances as they apply to categorical exclusions. The intent of 
this Interim Directive is to facilitate employees' consistent 
interpretation and application of CEQ regulations and related agency 
policy.

EFFECTIVE DATE: This Interim Directive No. 1909.15-2002-2 is effective 
August 23, 2002.

ADDRESSES: This Interim Directive is available electronically from the 
Forest Service via the World Wide Web/Internet at http://www.fs.fed.us/im/directives. Single paper copies of this Interim Directive also are 
available by contacting Dave Sire, Forest Service, USDA, Ecosystem 
Management Coordination Staff (Mail Stop 1104), 1400 Independence 
Avenue, SW., Washington, DC 20250-1104.

FOR FURTHER INFORMATION CONTACT: Dave Sire, Ecosystem Management 
Coordination Staff, 202-205-2935, or Julia Riber, Ecosystem Management 
Coordination Staff, 406-329-3678.

SUPPLEMENTARY INFORMATION: On September 20, 2001, the Forest Service 
published a proposed Interim Directive to Forest Service Handbook (FSH) 
1909.15, Chapter 30, which would partially revise the agency's 
direction on the use of categorical exclusions (66 FR 48412). The 
intent of this proposed Interim Directive was to assist employees in 
interpreting and complying with the National Environmental Policy Act 
(NEPA) and the Council on Environmental Quality (CEQ) regulations for 
certain actions which can be categorically excluded from documentation 
in an environmental assessment (EA) or an environmental impact 
statement (EIS). The proposed Interim Directive would have added three 
new categories for special use authorizations involving administrative 
changes when no changes are proposed in the authorized activities or 
facilities. The proposal also included a modification of handbook text 
to clarify agency policy concerning extraordinary circumstances.
    Nearly 26,000 responses in the form of letters, postcards, and e-
mail messages were received during the 60-day comment period. These 
comments came from private citizens, elected officials, and from groups 
and individuals representing businesses, private organizations, and 
Federal agencies. Responses consisted of over 800 original letters and 
over 25,000 form letters.
    Public comment on the Interim Directive addressed a wide range of 
topics, many of which were directed at general Forest Service 
management direction, particularly the management of roadless areas. 
Most comments revealed a significant split in opinion on

[[Page 54623]]

the proposal. Many people opposed the proposed Interim Directive or 
recommended further restriction of the use of categorical exclusions, 
while many others supported the proposed Interim Directive or favored 
further expansion of the use of categorical exclusions. Some 
respondents agreed that existing direction concerning extraordinary 
circumstances needs clarification.
    Because of the volume and nature of comments received on the 
proposed Interim Directive, the agency has decided to separate the 
special uses categorical exclusions portion of the proposal from the 
clarification of extraordinary circumstances. Accordingly, this notice 
addresses only those comments received on the direction concerning 
extraordinary circumstances. A separate notice will be published later 
to address comments on categorical exclusions for the issuance of 
certain special use authorizations.

Previous Direction

    Forest Service Handbook 1909.15, Chapter 30, includes direction for 
consideration of extraordinary circumstances when Responsible Officials 
are contemplating categorical exclusion of a proposed action from 
further analysis and documentation in an EA or EIS.
    Prior to this present action, direction on extraordinary 
circumstances was last revised in 1992. At section 30.5, extraordinary 
circumstances were defined as conditions associated with a normally 
excluded action that are identified during scoping as potentially 
having effects which may significantly affect the environment. At 
section 30.3, paragraph 2, extraordinary circumstances were described 
as including, but not limited to the presence of, the following: steep 
slopes or highly erosive soils; threatened or endangered species or 
their critical habitat; flood plains, wetlands, or municipal 
watersheds; Congressionally designated areas such as wilderness, 
wilderness study areas, or national recreation areas; inventoried 
roadless areas; research natural areas; and Native American religious 
or cultural sites, archeological sites, or historic properties or 
areas. Paragraph 3 of section 30.3 stated that scoping is required on 
all proposed actions, including those that would appear to be 
categorically excluded. Moreover, this paragraph provided that if 
scoping indicated that extraordinary circumstances are present and it 
was uncertain that the proposed action may have a significant effect on 
the environment, then personnel must prepare an EA. If scoping 
indicated that the proposed action may have a significant environmental 
effect, an EIS would be prepared.

Summary of the Proposed Clarification of Extraordinary Circumstances

    Public and employee confusion has risen with regard to the 1992 
direction on the application of a categorical exclusion to a proposed 
action when a listed resource condition is present. The proposed 
revisions to Handbook sections 30.3 and 30.5 were intended to clarify 
the agency's intent that the presence of a listed resource condition in 
section 30.3, paragraph 2 does not automatically preclude use of a 
categorical exclusion. The proposed revisions to sections 30.3 and 30.5 
included the following:
     Section 30.3, paragraph 1b. References were made to the 
definition of extraordinary circumstances in section 30.5 and policy in 
paragraph 2 of section 30.3. Extraordinary circumstances were qualified 
as instances that could result in significant environmental effect.
     Section 30.3, paragraph 2. Extraordinary circumstances 
were qualified, stating that extraordinary circumstances occur when a 
proposed action would have a significant effect on the resource 
conditions set out in paragraphs 2a through 2g. The proposal went on to 
state that the Responsible Official may issue a categorical exclusion 
even when one or more of the resources conditions listed in paragraphs 
2a through 2g are present, but only if the official determines on a 
case-by-case basis that the proposed action would not have a 
significant effect on the listed resource conditions.
     Section 30.3, paragraph 3. Two sentences were removed, 
which described when to prepare an EA and when to prepare an EIS.
     Section 30.3, paragraph 4. A sentence was added to the 
paragraph reminding readers to consider the need to evaluate new 
information or changed circumstances if implementing an action that has 
already been analyzed and documented.
     Section 30.5. Extraordinary circumstances were defined as 
instances where a proposed action normally excluded from documentation 
in a EA or EIS is identified as having a significant effect on resource 
conditions set out in section 30.3, paragraphs 2a through 2g.
    In response to comment on the proposed Interim Directive, published 
September 20, 2001, the agency has further refined the Interim 
Directive as described in the following summary of comments.

Comments on the Need for the Interim Directive

    Comment: Many respondents believe that there is no need for the 
proposed changes. They believe that proposed actions can be analyzed 
with a concise EA if necessary and, therefore, there is no need to 
clarify the definition of extraordinary circumstances. Others expressed 
strong disapproval of the agency's use of categorical exclusions 
altogether and recommended either further restricting their use or a 
complete elimination of categorical exclusions.
    Response: The CEQ regulations (40 CFR 1500.4(p)) encourage the 
appropriate use of categorical exclusions to reduce paperwork and 
unnecessary delays. The agency believes that its use of categorical 
exclusions has been and continues to be appropriate. The agency further 
believes that the time and expense required by even the most concise 
EA's is not justified for those actions that qualify for categorical 
exclusion. Therefore, the agency remains committed to issuance of an 
Interim Directive.
    Comment: Many respondents believe Forest Service direction 
contained in the 1992 definition (57 FR 43180) of extraordinary 
circumstances clearly prohibits the use of a categorical exclusion 
whenever the action takes place in the presence of the resource 
conditions listed in paragraph 2 of section 30.3 and, therefore, there 
is no need for clarification.
    Response: The Forest Service does not agree. The agency has long 
held in administrative appeal reviews and in litigation that the mere 
presence of these resource conditions does not necessarily preclude use 
of categorical exclusions. Since 1992, handbook direction has focused 
on the effects of a proposed action in determining if a categorical 
exclusion is appropriate. As stated in section 30.3, paragraph 3 as 
adopted in 1992, if uncertainty exists over the significance of 
environmental effects, a categorical exclusion would not be 
appropriate.

Comments on Compliance With Law and Regulation

    Comment: Citing various court rulings over the use of categorical 
exclusions when extraordinary circumstances exist, some respondents 
claimed that the proposed Interim Directive would violate CEQ 
regulations for implementing NEPA. They claim that it is inappropriate 
to use categorical exclusions when extraordinary circumstances are 
present.
    Response: The proposal that was issued for comment in September of

[[Page 54624]]

2001, described paragraphs 2a through 2g as resource conditions and 
attempted to clarify that it is the degree of the potential effect of a 
proposed action on those resource conditions that determines the 
existence of extraordinary circumstances. In response to comment, 
chapter 30.3, paragraph 3 has been further modified in the final policy 
to emphasize that it is the uncertainty over significance of the 
effects of a proposed action that requires preparation of an EA. 
Paragraph 2 in section 30.3 lists resource conditions that should be 
considered in determining whether extraordinary circumstances related 
to the proposed action warrant additional analysis and documentation in 
an EA or EIS. The list of resource conditions in paragraph 2 does not 
preclude consideration of other factors or conditions that the 
Responsible Official may deem appropriate. Paragraph 2 has also been 
modified to emphasize that it is the degree of the potential effect of 
a proposed action on those resource conditions that determines the 
existence of extraordinary circumstances. This direction is consistent 
with CEQ regulations requiring that agencies provide for extraordinary 
circumstances.
    Comment: Some respondents believe that the proposed Interim 
Directive would change the type of activities that may occur within the 
habitat of threatened and endangered species and that the Forest 
Service should formally consult with the U.S. Fish and Wildlife Service 
on this proposal as required by the Endangered Species Act.
    Response: The agency has determined that this revision itself will 
have no effect on threatened or endangered species or their habitat. 
The proposed Interim Directive will not change the types of activities 
that may occur within the habitat of threatened and endangered species. 
Therefore, consultation with the U.S. Fish and Wildlife Service is not 
required. Any categorically excluded actions proposed within the 
habitat of threatened or endangered species are still subject to the 
consultation requirements of the Endangered Species Act.
    Comment: Some respondents believe that the proposed Interim 
Directive would change the types of activities that may occur on 
American Indian or Alaska Native religious or cultural sites and that 
the Forest Service should consult with Tribes on this proposal as 
required by the National Historic Preservation Act and implementing 
regulations.
    Response: The Forest Service wants to reassure these respondents 
that the Interim Directive would not change the types of activities it 
may authorize on or near American Indian and Alaska Native religious or 
cultural sites. The Interim Directive only clarifies agency policy 
regarding extraordinary circumstances, which has no effect on religious 
or cultural sites. Therefore, consultation with Tribes is not required 
for the promulgation of this Interim Directive.
    Comment: Some respondents feel that the proposed change to the 
Forest Service Handbook section on extraordinary circumstances would 
change the assumption upon which all the categories listed in chapter 
30 were created, specifically, how the use of each category of actions 
would be constrained by extraordinary circumstances. Therefore, 
respondents believe that additional effects analysis is now necessary 
to reassess whether each category of actions does or does not 
individually or cumulatively have a significant effect on the 
environment in compliance with the CEQ regulations on categorical 
exclusions.
    Response: The Interim Directive merely clarifies current policy 
concerning extraordinary circumstances. This Interim Directive does not 
change the assumptions upon which the categories of actions listed in 
chapter 30 were created. Therefore, the agency's conclusion that the 
categories of actions listed in chapter 30 have no individually or 
cumulatively significant environmental impacts remains unchanged.

Comments on Public Participation

    Comment: A considerable amount of comment revolved around the 
Interim Directive's effect on the public's role in decisionmaking. Many 
respondents are concerned that the proposal would increase the use of 
categorical exclusions and thereby decrease the public's opportunity 
for involvement and oversight of the management of National Forest 
System lands. Other respondents think that scoping is not warranted for 
actions that may be categorically excluded.
    Response: Forest Service direction requires scoping for all 
proposed actions subject to NEPA (FSH 1909.15, section 11). Through 
scoping, the Forest Service identifies any important issues, identifies 
interested and affected persons, and determines the extent of analysis 
and documentation that will be necessary for the Responsible Official 
to make an informed decision on a proposed action. One integral part of 
this scoping process is determining the appropriate level of public 
participation. Forest Service Handbook 1909.15, section 11, directs the 
Responsible Official to consider options for involving potentially 
interested and affected agencies, organizations, and persons in the 
analysis process commensurate with public interest in the proposed 
action, regardless of the type of documentation used.
    Comment: Respondents were also concerned that more decisions will 
be made through a categorical exclusion and, consequently, fewer 
decisions will be appealable.
    Response: As previously noted, the purpose of this Interim 
Directive is to clarify existing NEPA procedures, not to broaden the 
use of categorical exclusions. Additionally, appeal of decisions is 
addressed in the regulations at 36 CFR part 215, not in the agency's 
NEPA procedures. In a separate effort, the agency is currently 
reviewing the appeal regulations. If the agency proposes any changes to 
the appeal regulations, the public will be provided with notice and an 
opportunity to comment.

Comments on Impacts

    Comment: Many of the respondents who were opposed to the proposed 
Interim Directive feel that any increase in the use of categorical 
exclusions represents a reduction in environmental review and the use 
of science in decisionmaking. As a result, they feel that the proposed 
Interim Directive could result in adverse impacts to National Forest 
System lands and resources, including roadless areas, wilderness areas, 
national recreation areas, threatened and endangered species, American 
Indian sacred sites, and archeological sites.
    Response: Categorical exclusions are to be used for routine actions 
that have been found by the agency through repeated environmental 
review to have no significant environmental effects either individually 
or cumulatively. Final direction in paragraph 2 of section 30.3 now 
requires consideration of whether extraordinary circumstances related 
to a proposed action warrant further analysis and documentation in an 
EA or EIS. Final direction in paragraph 3 of section 30.3 emphasizes 
that an EA is the appropriate form of documentation when the 
significance of effects is uncertain.
    Additionally, the Forest Service is required to comply with all 
applicable laws, regulations, and policies for every action it 
undertakes on National Forest System lands. Therefore, all actions, 
even those that are excluded from documentation in an EA or an EIS, 
must comply with laws and regulations governing the protection of 
resources,

[[Page 54625]]

such as roadless areas, wilderness, national recreation areas, 
threatened and endangered species, American Indian sacred sites, and 
archeological sites.

Comments on the Interim Directive

    Comment: Some respondents questioned how long the Interim Directive 
(ID) would be in effect or under what circumstances it would terminate.
    Response: As was stated in the preamble for the proposed directives 
published in the September 20, 2001, Federal Register (66 FR 48412), 
the changes are being made through an ID only for administrative 
efficiency. The agency is proposing modifications to other parts of 
this chapter; for example, the agency has proposed to add three new 
categories for certain special use authorizations. Additionally, 
previously issued IDs need to be incorporated into Chapter 30. In 
accordance with its policies on directive issuances the agency has 
chosen to issue this clarification of extraordinary circumstances as an 
ID. The agency will give notice when Chapter 30 is amended to 
incorporate these IDs.

Comments on Section 30.3  Policy

    Comment: Many respondents contend that the proposed Interim 
Directive does not comply with the definition of categorical exclusion 
contained in the CEQ regulations and, therefore, violates NEPA. They 
were concerned that the proposed language would eliminate the 
possibility of ever doing an EA for an action listed in the categories. 
They feared that instead the proposed Interim Directive would lead to a 
situation where an internal review could be used to determine whether 
the project may have a significant effect on the environment, which 
would be in direct conflict with the CEQ establishment of the EA as the 
appropriate method of determining if a project may have significant 
effects.
    Response: The agency agrees that the language in both the preamble 
and the proposed directive could be interpreted to bypass the EA 
process. Therefore, the agency has modified the text in the final 
Interim Directive to address these concerns. The proposed language and 
the confusion that resulted from it led to a great many of the concerns 
voiced by those who were opposed to the proposal. The agency agrees 
with the numerous respondents who indicated that if there is a question 
regarding whether environmental effects may be significant, a 
categorical exclusion would not be appropriate. In response, the final 
policy reinstates the language of paragraph 3, which states that it is 
the uncertainty over significance of the effects of a proposed action 
that requires preparation of an EA. The proposed Interim Directive at 
30.3, paragraph 2, stated that extraordinary circumstances occur when a 
proposed action would have a significant effect on a set of listed 
resource conditions. Paragraph 2 now identifies a list of resource 
conditions that, if present, require the Responsible Official to 
consider whether extraordinary circumstances related to a proposed 
action warrant analysis in an EA or EIS. Paragraph 2 also states that 
the mere presence of these resources does not preclude use of a 
categorical exclusion. In response to contentions that the definition 
of extraordinary circumstances is not consistent with the CEQ 
regulations, the final policy does not contain a definition of 
extraordinary circumstances. The CEQ regulations direct agencies not to 
paraphrase the regulations, but to supplement them. The agency sees 
little value in expanding on CEQ's use of the term ``extraordinary 
circumstances''. The agency's final policy, therefore, relies on the 
context in which CEQ uses the term and provides for extraordinary 
circumstances as directed by the CEQ regulations at 40 CFR 1508.4.
    Comment: Some respondents objected to the concept that a 
Responsible Official can make a case-by-case analysis of whether a 
proposed action has extraordinary circumstances and, therefore, whether 
or not it can be excluded from documentation in an EA or EIS. They did 
not think this complies with CEQ regulatory requirements for an agency 
to develop specific criteria and classes of actions for categorical 
exclusions.
    Response: The CEQ regulations at 40 CFR 1507.3 direct agencies to 
include specific criteria for and identification of those typical 
classes of actions that normally do not require either an EA or EIS. 
Those categories of actions are identified along with appropriate 
criteria for their use in handbook sections 31.1b and 31.2. The agency 
believes that an appropriate evaluation of the potential effects of a 
proposed action can and should be made by the Responsible Official 
prior to the placement of the proposed action in a category for 
exclusion. The text in paragraphs 2 and 3 of section 30.3 have been 
modified to emphasize that the Responsible Official determines whether 
or not extraordinary circumstances exist, and further, when it is 
appropriate to prepare an EA or an EIS.
    Comment: A few respondents suggested that the directive should 
include clear guidelines by which a Responsible Official can determine 
when the use of a categorical exclusion is appropriate. Other 
respondents stated that Forest Service officials have the expertise to 
assess the relationship between the proposed action and extraordinary 
circumstances and, therefore, it is appropriate for them to determine 
the level of NEPA analysis necessary for a proposed action.
    Response: Forest Service Handbook, section 11.6, directs 
Responsible Officials to determine the appropriate level of analysis 
and documentation based upon the nature of the proposed action; 
preliminary issues associated with the proposed action; interested and 
affected agencies, organizations, and individuals; and the extent of 
existing available documentation. The list of resource conditions (sec. 
30.3, para. 2) that require consideration of whether extraordinary 
circumstances related to the proposed action warrant analysis in an EA 
or EIS provide sufficient guidance for Responsible Officials to 
determine the appropriate level of analysis and documentation for a 
proposed action.
    Comment: A few respondents commented that the terms ``steep 
slopes'' and ``highly erosive soils'' were ambiguous and out of date.
    Response: The agency agrees that these terms could be subjective 
and has removed them from paragraph 2 in the final policy.
    Comment: The addition of proposed and sensitive species to the list 
of resource conditions for extraordinary circumstances elicited 
paradoxical responses from respondents. Those generally favoring the 
overall new language for extraordinary circumstances opposed this 
specific change, while those generally opposed to the overall new 
language for extraordinary circumstances endorsed this part of the 
Interim Directive.
    Response: Paragraph 3 of the final Interim Directive emphasizes 
that the Responsible Official must determine, based on scoping, whether 
uncertainty exists over the significance of effects of a proposed 
action. Additionally, paragraph 2 now indicates that the occurrence of 
sensitive species requires consideration of whether extraordinary 
circumstances related to the proposed action warrant analysis in an EA 
or EIS. Together these two paragraphs address the concerns of both 
those in favor and those who opposed the proposal.
    Comment: One respondent suggested defining the term ``sensitive'' 
in the Interim Directive so that it is not open to interpretation.

[[Page 54626]]

    Response: Generally, the agency avoids defining terms that are 
already defined in other places within its directive system. Almost all 
of the terms used in the definition of extraordinary circumstances are 
defined in other places in the Forest Service Handbook or Manual. In 
this case, the terms ``endangered, threatened, and sensitive species'' 
and ``designated and proposed critical habitat'' are already defined in 
Forest Service Manual (FSM) 2670. Sensitive species are defined in FSM 
2670 as those plant and animal species identified by a Regional 
Forester for which population viability is a concern.
    Comment: Many respondents feel it is inappropriate to use 
categorical exclusions in some specific areas such as roadless areas, 
wilderness areas, and municipal watersheds. They point out that, under 
the proposed interpretation of extraordinary circumstances, the agency 
could now perform logging, mining, and the construction of roads and 
motorized trails and utility lines in these areas without the 
documentation and analysis required by an EA or an EIS.
    Response: The agency has responded to this fear by revising 
proposed paragraphs 2 and 3. Paragraph 3 emphasizes that the 
Responsible Official must determine, based on scoping whether 
uncertainty exists over the significance of effects of a proposed 
action. Paragraph 2 now indicates that occurrence of specific areas 
such as roadless areas, wilderness areas, and municipal watersheds 
requires consideration of whether extraordinary circumstances related 
to the proposed action warrant analysis in an EA or EIS.
    Comment: One respondent suggested that the American Indian and 
Alaska Native religious or cultural sites should be a separate 
extraordinary circumstance rather than combined with archeological and 
historic properties or areas.
    Response: Paragraph 2 in the final policy separates American Indian 
and Alaska Native religious or cultural sites from historic properties.
    Comment: One respondent objected to the Forest Service proposal to 
remove the sentences in section 30.3, paragraph 3 that refer to when it 
is appropriate to document an analysis with an EA or an EIS instead of 
categorically excluding a proposed action.
    Response: After careful consideration, the agency has determined 
that the direction is clearer if the sentences on EA's and EIS's are 
included and, therefore, has reinstated them.
    Comment: One respondent felt that the language in section 30.3, 
paragraph 4 regarding when new information triggers additional NEPA 
analysis was not clear.
    Response: After careful review, paragraph 4 has been removed. It 
may have had purpose during early implementation of NEPA, but it merely 
repeats direction already contained in Chapter 10, section 18.

Comments on Section 30.5  Definitions

    Comment: One respondent was concerned that the new definition of 
extraordinary circumstances in section 30.5 omitted the phrase ``during 
scoping''. He felt that phrase was needed in the definition to make it 
clear that scoping is an important step in determining which projects 
may be categorically excluded.
    Response: The agency shares that concern and has responded by 
putting these references to scoping back into paragraph 3. The first of 
these sentences states that if the Responsible Official determines, 
based on scoping that it is uncertain whether the proposed action may 
have a significant effect on the environment, an EA must be prepared. 
The definition of extraordinary circumstances has been removed in the 
final policy. The agency's final policy relies on the context in which 
CEQ uses the term and provides for extraordinary circumstances in 
paragraph 2, as directed by the CEQ regulations at 40 CFR 1508.4.

Environmental Impact

    Comment: Some respondents stated that because the Interim Directive 
addresses extraordinary circumstances, the Forest Service must prepare 
an environmental assessment or an environmental impact statement on the 
proposed Interim Directive to comply with NEPA.
    Response: Forest Service Handbook 1909.15, section 31.1b (57 FR 
43180), excludes from documentation in an environmental assessment or 
environmental impact statement ``rules, regulations, or policies to 
establish Service-wide administrative procedures, program processes, or 
instructions.'' This Interim Directive to FSH 1909.15 falls within this 
category of actions. The handbook by definition (Forest Service Manual 
Chapter 1110; 36 CFR 200.4) sets out procedures and technical 
instructions for complying with CEQ's regulations. Although the 
proposed clarification directly addresses extraordinary circumstances, 
it merely provides guidance and does not compel any activities to 
occur. Therefore, regardless of the interpretation of the agency's 1992 
policy, the agency has found that there are no extraordinary 
circumstances related to this Interim Directive that would result in a 
significant environmental effect. The procedural and technical nature 
of the proposed change, and the finding that no extraordinary 
circumstances exist, lead the agency to conclude that preparation of 
environmental impact statement or environmental assessment is not 
required for this Interim Directive. In addition, pursuant to 40 CFR 
1505.1 and 1507.3, the agency has consulted with the Council on 
Environmental Quality (CEQ) to ensure full compliance with the purposes 
and provisions of NEPA and the CEQ implementing regulations.

Regulatory Impact

    This final Interim Directive has been reviewed under USDA 
procedures and Executive Order 12866, Regulatory Planning and Review. 
It has been determined that this is not a significant action. This 
action to clarify agency direction will not have an annual effect of 
$100 million or more on the economy nor adversely affect productivity, 
competition, jobs, the environment, public health or safety, nor State 
or local governments. This action will not interfere with an action 
taken or planned by another agency nor raise new legal or policy 
issues. Finally, this action will not alter the budgetary impact of 
entitlements, grants, user fees, or loan programs or the rights and 
obligations of recipients of such programs. Accordingly, this action is 
not subject to Office of Management and Budget review under Executive 
Order 12866.
    Moreover, the final Interim Directive has been considered in light 
of the Regulatory Flexibility Act (5 U.S.C. 601 et seq.), and it is 
hereby certified that the final Interim Directive will not have a 
significant economic impact on a substantial number of small entities 
as defined by the act because it will not impose record-keeping 
requirements on them; it will not affect their competitive position in 
relation to large entities; and it will not affect their cash flow, 
liquidity, or ability to remain in the market.

Federalism and Consultation and Coordination With Indian Tribal 
Governments

    The agency has considered this final Interim Directive under the 
requirements of Executive Order 13132, Federalism, and has concluded 
that the final Interim Directive conforms with the federalism 
principles set out in this Executive order; will not impose any 
compliance costs on the States; and will not have substantial direct 
effects on the States or the relationship between the

[[Page 54627]]

national government and the States, or on the distribution of power and 
responsibilities among the various levels of government. Therefore, the 
agency has determined that no further assessment of federalism 
implications is necessary.
    Moreover, this final Interim Directive does not have tribal 
implications as defined by Executive Order 13175, Consultation and 
Coordination with Indian Tribal Governments, and therefore advance 
consultation with tribes was not required.

No Takings Implications

    This final Interim Directive has been analyzed in accordance with 
the principles and criteria contained in Executive Order 12630, 
Governmental Actions and Interference with Constitutionally Protected 
Property Rights, and it has been determined that the final Interim 
Directive does not pose the risk of a taking of Constitutionally 
protected private property.

Civil Justice Reform Act

    This final Interim Directive has been reviewed under Executive 
Order 12988, Civil Justice Reform. It, (1) Preempts all State and local 
laws and regulations that are in conflict with this proposed Interim 
Directive or which would impede its full implementation; (2) has no 
retroactive effects; and (3) does not require administrative 
proceedings before parties may file suit in court challenging its 
provisions.

Unfunded Mandates

    Pursuant to Title II of the Unfunded Mandates Reform Act of 1995 (2 
U.S.C. 1531-1538), which the President signed into law on March 22, 
1995, the agency has assessed the effects of this interim final 
directive on State, local, and tribal governments and the private 
sector. This interim final directive does 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.

Energy Effects

    This final Interim Directive has been reviewed under Executive 
Order 13211, Actions Concerning Regulations That Significantly Affect 
Energy Supply, Distribution, or Use. It has been determined that this 
final Interim Directive does not constitute a significant energy action 
as defined in the Executive order.

Controlling Paperwork Burdens on the Public

    This final Interim Directive does not contain any additional 
record-keeping or reporting requirements or other information 
collection requirements as defined in 5 CFR part 1320 that are not 
already required by law or not already approved for use, and therefore, 
imposes no additional paperwork burden on the public. Accordingly, the 
review provisions of the Paperwork Reduction Act of 1995 (44 U.S.C. 
3501 et seq.) and its implementing regulations at 5 CFR part 1320 do 
not apply.

Conclusion

    Having considered the comments received, the Forest Service is 
adopting an Interim Directive that clarifies direction regarding 
consideration of extraordinary circumstances for categories of actions 
that can be excluded from documentation in an EA or an EIS. This change 
is being implemented through the issuance of an Interim Directive to 
FSH 1909.15, Environmental Policy and Procedures Handbook, Chapter 30. 
Although an Interim Directive (ID) expires in 18 months from its issue 
date, the clarification of extraordinary circumstances is intended to 
be a permanent revision. The text of this Interim Directive, along with 
other Interim Directives, will be incorporated into a revision of the 
entire Chapter 30 soon.

    Dated: August 13, 2002.
Sally Collins,
Associate Chief.

Text of Final Interim Directive

    Note: The Forest Service organizes its directive system by 
alphanumeric codes and subject headings. Only those sections of the 
Forest Service Handbook (FSH) 1909.15, Environmental Policy and 
Procedures Handbook, affected by this policy are included in this 
notice. The intended audience for this direction is Forest Service 
employees charged with project planning and environmental analysis. 
Selected headings and existing text are provided to assist the 
reader in placing the revised direction in context. Paper and 
electronic copies of this Interim Directive and the entire chapter 
30 of FSH 1909.15 are available as set out in the ADDRESSES section 
at the beginning of this notice.

FSH 1909.15--Environmental Policy and Procedures Handbook

Chapter 30--Categorical Exclusion From Documentation


30.3    Policy.

    1. A proposed action may be categorically excluded from further 
analysis and documentation in an environmental impact statement (EIS) 
or environmental assessment (EA) only if there are no extraordinary 
circumstances related to the proposed action and if:
    a. The proposed action is within one of the categories in the 
Department of Agriculture (USDA) NEPA policies and procedures in 7 CFR 
part 1b, or
    b. The proposed action is within a category listed in section 31.1b 
or 31.2.
    2. Resource conditions that should be considered in determining 
whether extraordinary circumstances related to the proposed action 
warrant further analysis and documentation in an EA or an EIS are:
    a. Federally listed threatened or endangered species or designated 
critical habitat, species proposed for Federal listing or proposed 
critical habitat, or Forest Service sensitive species;
    b. Flood plains, wetlands, or municipal watersheds.
    c. Congressionally designated areas, such as wilderness, wilderness 
study areas, or national recreation areas.
    d. Inventoried roadless areas.
    e. Research natural areas.
    f. American Indian and Alaska Native religious or cultural sites.
    g. Archaeological sites, or historic properties or areas.
    The mere presence of one or more of these resource conditions does 
not preclude use of a categorical exclusion. It is the degree of the 
potential effect of a proposed action on these resource conditions that 
determines whether extraordinary circumstances exist.
    3. Scoping is required on all proposed actions, including those 
that would appear to be categorically excluded. If the Responsible 
Official determines, based on scoping, that it is uncertain whether the 
proposed action may have a significant effect on the environment, 
prepare an EA (ch. 40). If the Responsible Official determines, based 
on scoping, that the proposed action may have a significant 
environmental effect, prepare an EIS (ch. 20).
    (Direction in paragraph 4 is removed.)

[FR Doc. 02-21075 Filed 8-22-02; 8:45 am]
BILLING CODE 3410-11-P