[Federal Register Volume 73, Number 249 (Monday, December 29, 2008)]
[Rules and Regulations]
[Pages 79367-79392]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-30672]



[[Page 79367]]

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DEPARTMENT OF AGRICULTURE

Forest Service

36 CFR Parts 223 and 261

RIN 0596-AB81


Sale and Disposal of National Forest System Timber; Special 
Forest Products and Forest Botanical Products

AGENCY: Forest Service, USDA.

ACTION: Final Rule.

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SUMMARY: The Department is issuing this final rule to regulate the 
sustainable free use, commercial harvest, and sale of special forest 
products and forest botanical products from National Forest System 
lands. The rule is needed to promote sustainability in light of the 
increased public demands for both timber and non-timber special forest 
products and forest botanical products over the past 10 years. In many 
cases, these demands are challenging sustainability, particularly in 
the most heavily used parts of the National Forest System. This rule 
will help ensure the continued sustainability of special forest 
products and forest botanical products.
    The rule also revises 36 CFR 261.6 to reflect new free use and 
personal use authorizations for special forest products and forest 
botanical products and to specify the types of contractual documents 
currently used by the Forest Service. In addition, the Forest Service 
made minor textual clarifications to section 261.6.

DATES: This rule is effective January 28, 2009.

ADDRESSES: The public may inspect comments received at USDA Forest 
Service--Forest Management, Yates Federal Building, 3rd floor SW wing, 
1400 Independence Avenue, SW., Washington, DC. Visitors are encouraged 
to call ahead to 202-205-1766 to facilitate entry into the building. 
The public may also inspect comments received via the Internet at 
http://wwwnotes.fs.fed.us:81/wo/wospecialproducts.nsf.

FOR FURTHER INFORMATION CONTACT: Richard Fitzgerald, Forest Service, 
Forest Management Staff, (202) 205-1753. Individuals who use 
telecommunication devices for the deaf (TDD) may call the Federal 
Information Relay Service (FIRS) at 1-800-877-8339 between 8 a.m. and 8 
p.m., Eastern Standard Time, Monday through Friday.

SUPPLEMENTARY INFORMATION: The following section outlines the contents 
of the preamble.

Introduction

Background

     Special Forest Products: Commercial Harvest and Sale and 
Free Use.
    Commercial Harvest and Sale
    Free Use
     Forest Botanical Products: Commercial Harvest and Sale and 
Personal Use.
    Commercial Harvest and Sale
    Personal Use
     36 CFR 261.6--Timber and other forest products.
     Tribal Impact Summary.

Comments on the Proposed Rule and Changes Made in Response Regulatory 
Certifications

Introduction

    This final rule regulates the sustainable free use, sale, and 
commercial harvest of special forest products and forest botanical 
products from National Forest System lands. Special forest products 
include, but are not limited to, firewood, post and poles, wildflowers, 
mushrooms, moss, nuts, seeds, and Christmas trees. Forest botanical 
products are naturally occurring special forest products including, but 
not limited to, bark, berries, boughs, cones, grasses, seeds, nuts, 
mushrooms. Definitions for special forest products and forest botanical 
products are found in sections 223.216 and 223.277.
    The rule is needed to account for increased demand, which threatens 
the continued sustainability of these products. Given this growing 
demand and the need to ensure sustainability, the Forest Service 
determined that regulations dealing solely with special forest products 
and forest botanicals were required. Under the final rule, the Forest 
Service will help ensure sustainability by establishing, monitoring, 
revising, and enforcing sustainable harvest levels for special forest 
products and forest botanical products. The final rule also governs the 
appraisal, pricing, advertisement, bidding, and award of special forest 
product and forest botanical product sales. In addition, the rule 
provides the types of contracts and permits the Forest Service will use 
to administer the commercial harvest and free use of special forest 
products and forest botanical products. This framework, along with 
direction in Forest Service Handbook 2409.18, chapter 80, will regulate 
special forest products and forest botanical products.
    The final rule adds Subparts G and H to 36 CFR Part 223. Subpart G 
regulates the commercial harvest and limited free use of special forest 
products. Authority for subpart G is found in the Multiple-Use 
Sustained-Yield Act of 1960, as amended (16 U.S.C. 528-531); the 
National Forest Management Act of 1976, as amended (16 U.S.C. 472a et 
seq.); the Forest and Rangeland Renewable Resources Planning Act of 
1974, as amended (16 U.S.C. 1600-1614); and the timber sale regulations 
at 36 CFR Part 223.
    Subpart H implements a pilot program for the commercial harvest and 
limited personal use of forest botanical products, as authorized by the 
Department of the Interior and Related Agencies Appropriations Act of 
2000, (Pub. L. 106-113, Div. B, sec. 1000(a)(3), 113 Stat. 135 
(enacting into law sec. 339 of Title III of H.R. 3423)), as amended in 
2004 by Section 335 of Public Law 108-108 (``pilot program law''). 
Subject to certain exceptions, the pilot program law requires that the 
Forest Service sell forest botanical products for an amount that 
includes at least a portion of a product's fair market value and a 
portion of certain costs associated with administering the pilot 
program (see 16 U.S.C. 528(c)). Subpart H will apply for the duration 
of the pilot program, which is currently scheduled to terminate on 
September 30, 2009, unless extended or made permanent by Congress.
    The final rule respects treaty and other reserved rights retained 
by Tribes, and recognizes the importance of traditional and cultural 
forest products in the daily lives of Indians. Nothing in this rule 
affects the Forest Service's trust responsibilities or continued 
government-to-government relations. In fact, the rule will help the 
Agency meet its obligations to Tribes. Further, the rule encourages 
Tribes and the Agency to collaborate with one another to reach 
agreement on specific issues. In addition, the rule provides Forest 
Service line officers with a regulatory citation for reference whenever 
gathering by Tribal members is questioned or becomes a law enforcement 
issue.
    The final rule also revises 36 CFR 261.6(f) to include the new free 
use and personal use authorizations provided by sections 223.239 and 
223.279, to reflect the types of contractual documents currently used 
by the Forest Service, and to make minor textual clarifications.

Background

     Special Forest Products: Commercial Harvest and Sale and 
Free Use.

[[Page 79368]]

Commercial Harvest and Sale
    The Forest Service presently sells special forest products from 
National Forest System lands under the authorities contained in the 
Multiple-Use Sustained-Yield Act of 1960, as amended (16 U.S.C. 528-
531); the National Forest Management Act of 1976 (NFMA), as amended (16 
U.S.C. 472a et seq.), the Forest and Rangeland Renewable Resources 
Planning Act of 1974, as amended (16 U.S.C. 1600-1614); and the timber 
sale regulations at 36 CFR part 223. Historically, timber-related 
products, such as firewood, posts, poles, and Christmas trees, have 
comprised most of the sales. However, the Forest Service also sells 
smaller amounts of non-timber special forest products, such as boughs, 
mushrooms, berries, and floral greeneries. The Forest Service's annual 
revenue from the sale of special forest products sold from National 
Forest System lands is approximately $3 million.
    Sales of special forest products are relatively small-scale in 
comparison to timber sales. These products are frequently purchased by 
individuals or small businesses, and most sales do not exceed $10,000 
in value. Generally, sales valued at less than $10,000 are not sold 
through competitive bidding; rather, a prospective purchaser asks to 
harvest certain forest products, and either enters into a contract with 
the Forest Service, or buys a permit that allows the purchaser to 
harvest the products. Consistent with existing regulations at 36 CFR 
223.80, the Forest Service follows competitive bidding procedures for 
special forest product sales valued at $10,000 or more. The Forest 
Service presently uses the following standard documents for simple 
sales which are typically less than $10,000, as identified in Forest 
Service Handbook (FSH) 2409.18, sec. 53, ex. 01: FS-2400-1, Forest 
Product Removal Permit and Cash Receipt; FS-2400-3P, Timber Sale 
Contract for pre-measured products; and FS-2400-4, Forest Products 
Contract and Cash Receipt. These documents contain standard conditions 
and allow the parties to add provisions as may be necessary given sale 
specifics. For complex special forest product sales, the Forest Service 
uses the standard Timber Sale Contract FS-2400-6. The responsible 
forest officer selects the appropriate document in light of the value 
of the sale and other circumstances (see FSH 2409.18 sec. 53 ex. 01 for 
additional information). The Forest Service will continue to use these 
standard documents for special forest products and forest botanical 
products.
    Historically, the Forest Service used timber sale regulations and 
corresponding sections of the Forest Service Manual (FSM) and FSH to 
sell special forest products. However, these sources are no longer 
sufficient to oversee the sustainable commercial harvest and sale of 
these products. Therefore, the Forest Service developed this final 
rule, which applies specifically to special forest products.
Free Use
    This final rule also regulates the limited free use of special 
forest products. Historically, the Agency has granted limited free use 
of special forest products to individuals and honored the rights of 
Tribes with treaty and other reserved rights related to special forest 
products. This rule continues those historical practices while helping 
ensure the continued sustainability of special forest products.
     Forest Botanical Products: Commercial Harvest and Sale and 
Personal Use.
Commercial Harvest and Sale
    The pilot program law directed the Secretary to initiate a new 
program for forest botanical products. Accordingly, the Forest Service 
established subpart H, which will apply for the pilot program's 
duration.
    The pilot program law provides a mechanism for funding the 
environmental analyses and administrative tasks necessary for its 
implementation. Generally, the law requires that forest botanical 
products be sold for an amount that includes at least a portion of a 
product's fair market value and a portion of certain costs associated 
with administering the pilot program. The law specifies that retained 
funds collected through September 30, 2009, shall be available for 
expenditure without further appropriation for activities associated 
with the program through September 30, 2010. Subpart H of this final 
rule will terminate on September 30, 2009, unless the pilot program is 
extended or made permanent.
Personal Use
    Section 528(e) of the pilot program law (16 U.S.C. 528) directs the 
Secretary of Agriculture to allow free personal use of a forest 
botanical product in an amount below that product's personal use 
harvest level. Under section 223.279 of the rule, the Forest Service 
will establish personal use harvest levels for each forest botanical 
product; any personal use below that level will be free. For the 
duration of the pilot program, personal use of forest botanical 
products will be conducted in accordance with section 223.279.
     36 CFR 261.6--Timber and Other Forest Products.
    This rule revises 36 CFR 261.6(f) to reflect the new free use and 
personal use authorizations contained in subparts G and H. In addition, 
the rule specifies the types of contractual documents currently used by 
the Forest Service, explains the Forest Service's interpretation of the 
term ``other forest products,'' and makes minor textual clarifications. 
These changes were made in response to a comment submitted by a Forest 
Service law enforcement officer and are a logical outgrowth of the 
proposed rule.
    First, the Forest Service revised section 261.6(f) to incorporate 
36 CFR subparts G and H. Section 261.6(f) contains the Forest Service's 
prohibition against selling or exchanging forest products obtained via 
free use authorization. Section 261.6(f) required revision to include 
the free use and personal use authorizations contained in subparts G 
and H, which did not previously exist. In addition, section 261.6(f) 
was revised to clarify that ``other forest products'' include special 
forest products and forest botanical products.
    The Forest Service promulgated subparts G and H to help ensure the 
sustainability of special forest products and forest botanical 
products. To achieve this objective, subparts G and H, allow, among 
other things, for the limited free and personal use of these products 
in a sustainable manner. Specifically, section 223.239 allows for free 
use of special forest products and section 223.279 allows for free 
personal use of forest botanical products. However, subparts G and H do 
not contain prohibitions against selling or exchanging forest products 
obtained from National Forest System lands at no cost.
    Those prohibitions are located at 36 CFR 261.6(f), which this rule 
revises to reflect the new free use and personal use authorizations 
provided by sections 223.239 and 223.279. Prior to this final rule, 
section 261.6(f) prohibited ``[s]elling or exchanging any timber or 
other forest product obtained under free use pursuant to Sec. Sec.  
223.5 through 223.11.'' This final rule revises section 261.6(f) to 
prohibit ``selling or exchanging any timber or other forest product, 
including special forest products and forest botanical products, 
obtained under free use or personal use pursuant to Sec. Sec.  223.5 
through 223.11, Sec.  223.239 or Sec.  223.279.''
    The Forest Service can now use section 261.6(f) to prohibit selling 
or

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exchanging forest products obtained via free or personal use pursuant 
to subparts G and H. Failing to make these revisions could result in 
the non-sustainable use of special forest products and forest botanical 
products, which is contrary to the public interest. In addition, this 
change is a logical outgrowth of the proposed rule. Therefore, there is 
no need for notice and comment prior to these changes becoming 
effective.
    Second, the Forest Service combined section 261.6(a) with section 
261.6(h). The old section 261.6(a) prohibited cutting or otherwise 
damaging timber, trees, or other forest products, except as authorized 
by a special-use authorization, timber sale contract, or Federal law or 
regulation. The old section 261.6(h) prohibited the removal of timber, 
trees or other forest products, except as authorized by a special-use 
authorization, timber sale contract, or Federal law or regulation. The 
revisions to this rule combine the prohibitions previously contained in 
paragraphs (a) and (h) into one paragraph (a). The combination of 
paragraphs (a) and (h) into one paragraph (a) is a non-substantive 
technical amendment. Therefore, there is no notice and comment prior to 
these changes becoming effective.
    Third, section 261.6(a) and (c)-(f) were revised to include the 
terms ``special forest products'' and ``botanical forest products.'' 
Special forest products and Forest Botanical products, as defined in 
subparts G and H, are the same products the Forest Service has always 
considered to be ``other forest products.'' However, the Agency revised 
section 261.6 to make the Agency's interpretation that ``other forest 
products'' include special forest products and botanical forest 
products explicit. Because the inclusion of the terms ``special forest 
products'' and ``forest botanical products'' is both interpretive and a 
logical outgrowth of the proposed rule, no opportunity for comment is 
available prior to these changes becoming effective.
    Fourth, the terms ``permit,'' ``free-use authorization,'' and 
``personal-use authorization'' have been inserted into paragraphs (a), 
(b), (c), and (e). These revisions are necessary to reflect the new 
subparts G and H and the various instruments used to sell or authorize 
removal of timber and other forest products, some of which were 
developed after issuance of section 261.6. These revisions, which are a 
logical outgrowth of the proposed rule, update section 261.6 and make 
technical changes to reflect the contractual instruments currently used 
by the Forest Service. Consequently, no opportunity for comment is 
available prior to these changes becoming effective.
    Finally, the Forest Service has replaced the term ``timber sale 
contract'' with ``contract'' throughout section 261.6. This change is 
necessary to reflect the various instruments the Forest Service uses to 
sell timber and other forest products, which include timber sale 
contracts, stewardship contracts, and procurement contracts. These 
revisions, which are a logical outgrowth of the proposed rule, merely 
update section 261.6 and make a technical change to reflect the 
multiple instruments currently used by the Forest Service. Therefore, 
no opportunity for comment is available prior to these changes becoming 
effective.
     Tribal Impact Summary.
    The Forest Service conducted a preliminary assessment of the impact 
of this rule on Tribal governments and determined that the rule does 
have tribal implications; therefore, advanced government-to-government 
consultation was required.
    The Forest Service began consultation efforts prior to publication 
of the proposed special forest products and forest botanical products 
rule on October 22, 2007. In April 2004, the Deputy Chief of the 
National Forest System sent a letter to forest supervisors asking them 
to contact federally-recognized Tribes in their area and establish 
early consultation with regard to a future special forest products 
regulation. The Forest Service provided early consultation regarding 
draft regulations and Forest Service handbook changes for the 
management of special forest and forest botanical products prior to 
publication in the Federal Register. The Agency received a substantial 
number of responses to the request and considered the comments in 
formulation of the proposed rule.
    The proposed rule was published for a 60-day comment period (72 FR 
59496) and extended for an additional 30 days based on specific 
requests from several Tribes (72 FR 72319). Numerous comments were 
received during both the regular comment period and the extended 
comment period. All of those comments were considered during 
formulation of the final rule, and numerous changes were made as a 
result of those comments. A summary and an analysis of the Tribes' 
concerns and the changes made to the rule are located in a separate 
part of this preamble.
    The Agency, working within the parameters of existing laws, 
regulations, and policies, made numerous changes to the rule in 
response to the concerns expressed by Tribes. However, not all of those 
concerns can be satisfied through his rule. In addition, several Tribes 
provided conflicting concerns. Nevertheless, the rule encourages Tribes 
and the Agency to work in close collaboration with one another to come 
to agreement regarding important issues.
     Comments on the Proposed Rule and Changes Made in 
Response.
    A 60-day comment period on the proposed rule was initiated on 
October 22, 2007 (72 FR 59496). The comment period was then extended 
for an additional 30 days through January 22, 2007 (72 FR 72319). 
Respondents submitted 151 comments in response to the proposed rule. 
However, duplicate submissions, such as those sent by both fax and 
mail, were considered as one response, resulting in 117 total comments. 
All documents were reviewed and comments were grouped into applicable 
categories. Responses and a summary of any changes made in the final 
rule are provided below.
    General Comments and Responses for Both Subparts G Special Forest 
Products and Subpart H Forest Botanical Products.
    Confidential or Proprietary Nature of Special Forest Products/
Forest Botanical Products Information.
    Comment: Many commenters expressed concern about the 
confidentiality of information provided to the Forest Service in permit 
applications and other documents. The fact that permits are public 
documents concerns these commenters. Many of the commenters indicated 
that they should not be asked to provide information about their 
harvesting, and in many cases would not provide that information if 
asked. Both gathering locations and materials harvested can be 
considered confidential to Tribes and their members, particularly if 
the material is to be used for healing and/or in ceremonies. Some of 
the commenters indicated that gathering locations and materials may be 
closely held, even within families or local communities. Other 
commenters fear that site information would be obtained by commercial 
interests that would then over harvest in those areas, compromising 
both the sacred nature of the places and populations of the plants 
being used.
    Response: Section 8106 of the Food, Conservation and Energy Act of 
2008 (Pub. L. 110-234) allows the Forest Service to protect from 
disclosure information concerning the identity, use, or specific 
location in the National Forest System of a site or resource used for 
traditional and cultural purposes by

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a federally-recognized Indian Tribe. The Forest Service will comply 
with all applicable laws concerning disclosure of this type of 
information, including the Freedom of Information Act, and Section 8106 
of the Food, Conservation and Energy Act.
Consultation
    Comment: Several commenters indicated that there was inadequate 
consultation or no consultation provided with regard to this rule.
    Response: The Forest Service made significant efforts to consult 
with federally-recognized Tribes before development of the proposed 
regulation. Prior to the publication of any draft regulation on special 
forest products and forest botanical products, the Forest Service began 
one of its first early consultation efforts as prescribed in FSM 1563. 
In April 2004, the Forest Service's Deputy Chief, National Forest 
System, sent a letter to forest supervisors asking them to contact 
federally-recognized Tribes in their respective areas and establish 
early consultation with regard to an early draft regulation and FSH 
revision related to the management of special forest products and 
forest botanical products. That consultation was one of the first times 
the Agency consulted with federally-recognized Tribes prior to a major 
revision or development of a regulatory policy.
    Although the Forest Service tried to inform all federally-
recognized Tribes about the request for consultation, the Agency cannot 
independently verify whether every federally-recognized Tribe was 
informed. However, the Agency was pleased to receive a substantial 
number of responses to the consultation request and significant 
consultation took place.
Cultural Significance of Special Forest Products/Forest Botanical 
Products
    Comment: Several comments were received that focused on the 
importance of special forest products to American Indian culture and 
expressed concerns that the proposed regulations will do harm to 
traditional cultural practices and jeopardize cultural survival. 
Several commenters stated that gathering special forest products has 
been a part of their Tribe's or indigenous people's lives and practices 
for millennia. Other commenters noted that access to special forest 
products on national forests is critical for many Tribes whose land 
bases cannot furnish the foods, medicines, and other materials 
necessary to sustain their lives and cultures. Further, others noted 
Memoranda of Agreement (MOAs) between Tribes and the Forest Service 
that contain language acknowledging the cultural importance of special 
forest products to the Tribes and their members. A few comments 
addressed sacred sites and special places, with one commenter 
suggesting that the cultural significance of some locations may be 
incompatible with commercial activity of any sort.
    Response: The Forest Service recognizes the important role that 
special forest products play in the daily lives of many American 
Indians and Alaska Natives. As noted in other responses to comments, 
Memoranda of Understanding (MOUs) and MOAs that are consistent with 
this rule will continue to exist between the Forest Service and Tribes.
    These agreements will help maintain traditional cultural practices, 
as well as culturally important places. Additionally, the Agency 
understands the importance of close working relationships between the 
Tribes and local Forest Service line officers. We encourage Tribal 
members to take advantage of opportunities to educate line officers and 
Forest Service personnel with whom they interact on a regular basis.
    In response to concerns over harvesting in sensitive or sacred 
areas, this final rule will help ensure the continued sustainability of 
special forest products and forest botanical products. In addition, 
Tribes and other concerned parties should work with local Forest 
Service officers and utilize existing procedures and authorities to 
help protect such areas.
Application of Fees to Tribes
    Comment: Several commenters expressed the belief that permit fees 
should not be imposed on tribal people. Some believe the imposition of 
fees would violate treaty laws; others believe the imposition of fees 
could impose an economic hardship on individual American Indians.
    Response: Under the final rule, there are no fees associated with 
free-use and personal-use permits. This rule does not affect any 
existing treaty or other reserved rights.
Allocation of Harvest Quantities
    Comment: Some commenters stated that tribal harvesting should have 
a higher priority over harvesting by non-tribal individuals. Other 
commenters stated that the regulations, as written, are unclear as to 
whether harvest limits for treaty Tribes would be set at the same 
levels as for the general public. Others asserted that treaty rights 
cannot be limited in this manner. Three commenters suggested a 
hierarchy of priority for harvest of special forest products/forest 
botanical products in the following order of importance: Traditional 
harvesting by Tribes and their members; personal use harvesting; and 
commercial harvesting. One American Indian commenter suggested that 
Tribes should be accorded first priority in the distribution of seized 
materials. Another commenter identified the problematic nature of 
specifying, in advance, quantities to be harvested.
    Response: The Forest Service manages the National Forests for 
multiple purposes, interests, and users, including Tribes, the general 
public, and commercial concerns. The Agency believes that the final 
rule strikes the appropriate balance between these purposes and uses, 
including all parties with an interest in special forest products and 
forest botanical products.
    Further, the final rule respects treaty and other reserved rights 
retained by Tribes, and recognizes the importance of traditional and 
cultural forest products in the daily lives of Indians. Nothing in this 
rule affects existing treaty or other reserved rights, the Forest 
Service's trust responsibilities or continued government-to-government 
relations. The final rule does not take away local forest's flexibility 
to work with Tribes; it provides new tools for successfully meeting 
resource management objectives, including continued sustainability.
Existing Memoranda of Understanding or Agreement
    Comment: Several Tribes who commented on the proposed regulations 
indicated they have negotiated, or are in the process of negotiating, 
agreements with the Forest Service, including formal MOUs or MOAs. 
Several commenters indicated that they enjoy good relationships with 
the Forest Service and/or national forests in their area, and expressed 
concern that the regulations, as written, will damage those 
relationships and effectively extinguish existing agreements. Some said 
that they believe existing local agreements and regional policies 
between local Forest Service offices and Tribes would be overridden by 
this regulation. Nontribal commenters with federal agencies imply that 
they believe the regulations as written would over-ride an interagency 
agreement in California that is supportive of American Indian 
gathering.
    Response: The Forest Service agrees that the local flexibility 
provided by MOUs and MOAs with Tribes have been valuable tools and 
should continue to be

[[Page 79371]]

used to address local tribal concerns regarding the harvest of special 
forest products and forest botanical products. As a result of the 
comments, language has been added to section 223.242 making it clear 
that MOUs and MOAs are allowed under the rule. Such MOU/MOAs must be 
consistent with the rule. Further, any existing MOAs and MOUs that are 
inconsistent with this final rule must be made consistent within 24 
months from the rule's publication date, which provides sufficient time 
for any needed revisions.
Permit Requirements for Tribes and American Indians
    Comment: Numerous commenters indicated that permits should not be 
required for American Indians gathering special forest products. In 
some cases, the commenters seek a waiver that encompasses all American 
Indians, regardless of federal recognition status. Other commenters 
requested that specific groups or members of specific groups already 
covered under existing MOUs remain exempt from permit requirements.
    In contrast, several Tribes and one organization representing 
numerous Tribes supported the issuance of permits as a means of 
monitoring natural resources. The Tribes in favor of this policy 
requested that they receive copies of all data collected under a permit 
program. Another umbrella organization representing Tribes cautioned 
that instituting a system of permits based on race may alienate 
individuals who cannot prove their indigenous heritage.
    Response: Permits are required to gather special forest products 
and forest botanical products except for those who qualify under 
Section 223.240 of the final rule that states ``Tribes with treaty or 
other reserved rights related to special forest products retain their 
ability to harvest special forest products in full accordance with 
existing rights.'' The Agency revised some of the wording in section 
223.240 to better address treaty rights. The original wording was 
construed by some commenters to be inaccurate in the way it referred to 
rights ``retained'' by Tribes under treaties. The proposed rule stated 
that Tribes ``* * * may harvest special forest products in accordance 
with the terms of such treaty rights.'' Some commenters interpreted 
that language as authorizing the Agency to exercise discretion that 
would prohibit gathering in a manner that is inconsistent with 
established treaty rights. The language has been revised to make clear 
that the Agency recognizes existing treaty and other reserved rights 
related to special forest products: Consistent with those rights, the 
Agency may place conditions on the harvest of special forest products 
to protect the sustainability of the product or to protect the forest. 
Sustainability of forest products and protection of the forests are a 
priority for Tribes and the Forest Service.
    Further, permits are not required for anyone harvesting or 
gathering special forest products for personal non-commercial use in 
amounts below that product's incidental-use harvest level.
    The Agency revised some of the wording in section 223.240 to better 
address treaty rights. The original wording was construed by some 
commenters to be inaccurate in the way it referred to rights 
``retained'' by Tribes under treaties. The proposed rule stated that 
Tribes ``* * * may harvest special forest products in accordance with 
the terms of such treaty rights.'' Some commenters interpreted that 
language as authorizing the Agency to exercise discretion that would 
prohibit gathering in a manner that is inconsistent with established 
treaty rights. The language has been revised to make clear that the 
Agency recognizes existing treaty and other reserved rights related to 
special forest products; consistent with those rights, the Agency may 
place conditions on the harvest of special forest products to protect 
the sustainability of the product or to protect the forest. 
Sustainability of forest products and protection of the forests are a 
priority for Tribes and the Forest Service.
    Tribal free use provisions are found in sections 223.239, 223.240. 
Section 223.280 allows national forests to waive fees only for 
federally-recognized Tribes and Tribes with treaty or other reserved 
rights seeking to harvest forest botanical products for cultural, 
ceremonial, and/or traditional purposes. Under certain circumstances, 
the Forest Service may agree to issue a permit to a Tribe with treaty 
or other reserved rights related to special forest products for the 
free use of a specified quantity of special forest products and work 
with the Tribe to manage the process and conserve the resources. These 
are the types of discussions that can be held during consultation with 
regional and/or local officials.
    There were a number of commenters representing Tribes without 
treaty rights who were concerned that the permit requirement would be 
burdensome to them. The Agency has listened closely to Tribes without 
treaty rights in the past and will continue to do so in a spirit of 
cooperation. Memorandums of Understanding and Memorandums of Agreement 
have been developed to address local concerns on the management of 
special forest products and forest botanical products. Under Section 
223.242, regional foresters may issue supplemental guidance and approve 
Memorandums of Agreement and Memorandums of Understanding consistent 
with subparts G and H, to promote local cooperation, issue resolution, 
and local implementation of these regulations.
    The Forest Service understands the concern of the commenter who 
expressed concern over a permit system based on race. The Forest 
Service does not discriminate on the basis of race and the Forest 
Service complies with all laws regarding racial matters.
    The Agency encourages Tribes to engage in open dialogue with Forest 
Service line officers and law enforcement officers in order to agree 
upon ways to mitigate problems that could develop in this area.
Tribes' Sense of Forest Service Disrespect
    Comment: Some commenters stated that the proposed regulations and/
or the process through which they were developed display a lack of 
respect for Tribes and native peoples. Others spoke very highly of the 
close working relationship between their Tribe and local Forest Service 
offices. Several commenters suggested that ``respectful consideration'' 
for Tribes and Indians will be necessary to make these regulations 
work.
    Response: The proposed regulations were not intended as a sign of 
disrespect for American Indians, Alaska Natives, or other native 
peoples. The Agency is responsible for managing natural resources on 
National Forest System lands in a sustainable way that allows for 
multiple uses, including, among other things, the continuation of 
cultural and traditional activities of American Indians and Alaska 
Natives. Our recent history has shown that competing interests, both 
commercial and non-commercial, have the ability to endanger certain 
plant and animal species at any given time. There is reason to believe 
that these types of pressures will continue and will increase. 
Therefore, these regulations are necessary to protect the resources and 
to manage them effectively.
    The Forest Service intends for these regulations to help develop 
stronger relationships with Tribes and to support consultation and 
coordination with Tribes. These regulations, and FSH and FSM revisions, 
will provide clearer guidance for Forest Service line officers when 
responding to requests to harvest special forest products from National 
Forest System land by Tribes.

[[Page 79372]]

    The Forest Service agrees with the commenters who suggested that 
respectful consideration of Tribes and American Indians will be 
necessary to make this regulation work effectively. The Agency is 
confident that the historically close working relationship between the 
local Forest Service offices, Tribes, and American Indians will 
continue, and that all will work closely together to protect the 
natural resources and traditional cultural practices in their 
respective areas.
Tribal Sovereignty
    Comment: American Indian commenters assert tribal sovereignty, 
including over ancestral lands, and expect that the Forest Service will 
honor requirements for government-to-government consultations as it 
seeks to manage and regulate special forest products/forest botanical 
products. Commenters also emphasized the need for government-to-
government relations.
    Response: The Forest Service agrees that government-to-government 
relations between the Agency and Tribes will continue as required. The 
Forest Service also believes the rule will help meet its obligations to 
Tribes.
Legal Status of Tribes
    Comment: Some commenters explained the many types of status that 
Tribes and individuals may have: Federally-recognized and nonfederally-
recognized Tribes; treaty and non-treaty Tribes; individuals who do not 
qualify by blood quantum to hold tribal identity cards even when their 
relatives do; and descendants of people who did not enroll as Tribal 
members under the Dawes Act (25 U.S.C. 331), but may be as much as 100% 
American Indian. Many commenters provided background on the historical 
processes that lead to this variety of statuses and protest the manner 
in which the regulations appear to place non-treaty Tribes in a 
position analogous to that of the non-indigenous public with respect to 
access to special forest products. Several commenters also indicated 
that they believe the rule takes away the status of official 
government-to-government relations with nonfederally-recognized Tribes.
    Response: The Forest Service is bound by the statutory direction 
provided at 25 U.S.C. 479(a)-1 regarding the status of Tribes. This 
rule does not create any new authority or take away any existing 
authority with regard to the status of Tribes. Responsible forest 
officers may consult with other appropriate parties to determine 
sustainable harvest levels based on historical information (223.219). 
For example, responsible forest officers may solicit information such 
as but not limited to amounts harvested, season of harvesting, and 
yearly variances of amounts available from other parties to help 
determine sustainable harvest levels.
Traditional Ecological Knowledge & Stewardship Practices
    Comment: Some commenters stated that American Indian use and 
stewardship of special forest products are based on traditions that are 
thousands of years old. Some noted that the traditional ecological 
knowledge and stewardship of special forest products by Tribes are 
acknowledged in scholarly writings, as well as in agreements between 
Tribes and government agencies, including the Forest Service and the 
National Park Service. Two commenters suggested that, to the extent 
that the proposed regulations would eliminate traditional stewardship 
practices, they would lead to negative ecological impacts. Another 
stated that this would deprive Tribes of the rights and 
responsibilities to manage land and resources. Others asserted that the 
Agency should consult with both American Indian land managers and 
scientists in management of special forest products on national 
forests. These commenters believe that Tribes' traditional ecological 
knowledge and stewardship practices provide coherent models of land, 
resources, and people's relationships to them that could serve as the 
basis for sustainable management of special forest products and the 
habitats on which they depend. Other commenters indicated that some 
national forests already are actively engaged in managing special 
forest products with Tribes with positive results.
    Response: The Agency recognizes and values the forest stewardship 
practiced by Tribes, and the traditional ecological knowledge possessed 
by Tribes. Under 223.219 responsible forest officers are required to 
consult with Tribes, to the extent appropriate, to determine 
sustainable harvest levels based on historical information. The Agency 
intends to ensure that this base of knowledge will be reflected in 
regional and local agreements. As stressed elsewhere, the Forest 
Service and Tribes may continue to enter into local agreements 
consistent with this final rule. Regional Foresters may approve MOUs, 
MOAs, or other Agency policy, in compliance with these regulations, to 
promote local collaboration, issue resolution, and local implementation 
of these regulations.
    This rule will not eliminate Tribal stewardship projects nor 
deprive Tribes of their land management responsibilities. This rule was 
developed to promote sustainable harvest of special forest products. 
Accordingly, the Agency welcomes collaboration with holders of 
traditional knowledge of the land and resources, as well as scientists. 
As traditional knowledge is often local and place-based, holders of 
traditional knowledge about special forest products should contact 
their local Forest Service line officers and staff, and local Forest 
Service officers and staff should likewise reach out to holders of this 
knowledge.
    Additionally, the National Environmental Policy Act (42 U.S.C. 4321 
et seq.) requires the Agency to engage Tribes and the public in 
management decisions.
Trade and Commercial Use by Tribes
    Comment: Several treaty Tribes expressed a strong belief that the 
Forest Service does not have the authority to restrict or otherwise 
regulate treaty-protected gathering for trade or commercial purposes. 
These Tribes cited case law they believe supports their position. 
Several commenters noted that trade and commerce are traditional 
activities of American Indian people, and questioned their apparent 
exclusion in section 223.240 from the provisions for ``traditional 
ceremonial, and/or cultural purposes.''
    An additional consideration surfaced by these comments is the 
importance of the definition of commercial and non-commercial gathering 
in relation to American Indian practices. Commenters noted that 
exchange of special forest products for other forest resources or for 
purposes such as healing that involves the use of gathered plants is 
traditional and wonder if such practices would be deemed to be 
commercial activities under the terms of the proposed regulations. 
Several comments suggested that the sale of items made from materials 
gathered by an individual, for example, a traditional basketweaver's 
sale of products made from special forest products gathered pursuant to 
a permit under this rule, should not be considered ``commercial 
activity.'' Other commenters believe that there are some circumstances 
under which it would be appropriate to require Tribes and/or Tribal 
members to pay fees if the Tribes or its members harvest special forest 
products for commercial purposes (e.g., gathering raw special forest 
products for bulk sale).
    Response: Decisions regarding what constitutes commercial use will 
be made at the regional level. When local

[[Page 79373]]

policies are developed or when consultations are held, regional 
foresters will need to consider factors such as the type and amount of 
special forest products that are needed to fulfill requests and 
sustainability issues.
Treaty Issues
    Comment: Some treaty Tribes believe that the regulations as written 
violate treaty law. Several of their comments cite court decisions in 
support of that assertion. They noted that treaties have been 
determined by the courts to be the supreme law of the land, and that 
the courts have further ordered that treaties be interpreted in favor 
of Tribes whenever possible. Further, they noted that language in the 
current regulations suggests a fundamental misunderstanding of treaties 
with Tribes. Rather, these commenters asserted treaties were and are 
``a grant of rights from them--a reservation of those not granted.'' In 
other words the commenter suggested that rights were conveyed to the 
United States by Tribes and not the other way around. As a result, the 
special status conferred by treaties must be respected and provided for 
throughout the regulations. Several commenters also indicated that the 
regulations as written eliminate local flexibility to negotiate access 
to special forest products/forest botanical products on a government-
to-government basis. Other commenters indicated that the Forest Service 
does not recognize in the regulation, that some treaties do not have 
specific language regarding special forest products.
    Response: Section 223.240 has been revised to make clear that 
nothing in this rule conflicts with any treaties. The Forest Service 
recognizes that the original proposed wording was construed by 
reviewers to be inaccurate and understands that Indian treaties are the 
supreme law of the land and that treaty rights are reserved rights that 
were negotiated and retained during treaty making through Congressional 
action. Further, the Forest Service has taken action to change some of 
the language in the rule to clearly reflect Indian Treaty rights.
    In referring to treaty rights, the original language in the rule 
stated that Tribes ``* * * may harvest special forest products in 
accordance with the terms of such treaty rights.'' This language was 
changed to recognize the fact that these gathering rights were never 
relinquished by Tribes. Further, by removing the word ``may'' the 
Forest Service is recognizing that the Agency is not in the position of 
allowing Tribes to harvest what rightfully belongs to them under their 
treaty rights. Section 223.240 now states that ``A member of a Tribe 
with treaty or other reserved rights related to special forest products 
retains his/her ability to harvest special forest products in full 
accordance with existing rights, including free-use harvest without 
obtaining a free-use permit.''
Trust Responsibilities
    Comment: Commenters believe that the proposed regulations fail to 
meet the trust responsibilities of the Forest Service. These commenters 
assert that the Forest Service's trust responsibility includes 
providing access to special forest products/forest botanical products 
for Tribes and Tribal members, and also includes protecting against 
excess commercial harvest of traditionally important plants. One Tribe 
cited a Forest Service Manual directive it believes supports its 
position. Several commenters indicated that gathering and gathering 
sites are central to American Indian culture and spiritual practices, 
and, therefore, the federal trust responsibility requires the Forest 
Service to protect them. Some commenters also believe that the Forest 
Service did not consult adequately with Tribes in the development of 
the proposed regulations and, in so doing, violated its trust 
responsibility. Nontribal commenters with federal agencies imply that 
they believe the regulations as written do not constitute a policy that 
is supportive of American Indian gathering and would impede the Forest 
Service's ability to discharge its trust responsibilities in a 
respectful manner.
    Response: This final rule is consistent with the Forest Service's 
trust responsibilities. Further, as mentioned in the response titled 
``Consultation'', the Forest Service consulted with federally-
recognized Tribes on matters related to this rule.
Cultural and Spiritual Uses
    Comment: Commenters stated that special forest products/forest 
botanical products have important cultural and spiritual uses by 
Americans of diverse ethnic backgrounds. One commenter provided 
examples of cultural uses, while another provided a statement 
indicative of the personal importance of gathering that could be 
interpreted as a spiritual experience: ``My time in the forests is the 
most meaningful time to me, when I can experience the beauty and 
fruitfulness of our world.''
    Response: The Agency recognizes the importance of special forest 
products and forest botanical products to all users. This rule will 
help to increase the Forest Service's ability to meet special forest 
product demand, while assuring a sustainable supply.
Decision-Making Levels
    Comment: Several comments discussed including Forest Service 
organizational levels at which decision-making authority should reside. 
Some commenters stated that decision-making concerning implementation 
of the special forest products and forest botanical products regulation 
should occur at the local or District level. The commenters asserted 
that local or district personnel are familiar with the local biological 
and cultural conditions and can develop appropriate programs to 
safeguard both. Commenters identified several types of decisions they 
believe should be made at the local level, including which species and 
types of special forest products and forest botanical products should 
require active management, harvest limits, and permit information. 
Commenters also expressed the belief that decisions, especially on 
exemptions from permit and fee requirements, are best made at the local 
level. One commenter called for local or regional decision-making 
within the scope of national guidance. Commenters further asserted that 
government-to-government consultations with Tribes should occur at the 
local level. Another commenter provided examples of successful 
consultations with local stakeholders, including Tribes, which resulted 
in programs that include a permitting program tied to ongoing 
monitoring.
    In addition, some commenters prefer negotiating specific terms of 
agreements at the forest or district level. However, others expressed 
strong concerns about ``too much discretion'' at the local or regional 
level for interpretation of treaty rights and too much reliance upon 
local goodwill providing for the traditional gathering needs of non-
treaty tribes and individuals.
    Response: Decision-making authority for special forest products/
forest botanical products has been delegated as follows: (1) The Forest 
Service Chief has been delegated authority to act for the Secretary of 
Agriculture in the sale and disposal of timber and forest products, 
pursuant to 7 CFR 2.60 and (2) FSM 2404.2 delegates the Chief's 
authority over the sale and disposal of timber and other forest 
products to the Forest Management Director (Washington Office) and 
Forest Service line officers (such as regional foresters, forest 
supervisors, and district rangers) subject to specified reservations 
and limitations (FSM 2404.28, exhibit 01). Depending upon the scope of 
the project, responsibility, and/or delegated

[[Page 79374]]

authority, and, except as specified in this rule, decisions are 
generally made at the local forest or district level by the forest 
supervisor or district ranger, respectively.
Laws and Policies
    Comment: The following were cited by commenters as possibly being 
in conflict with the proposed regulations: (1) Treaty and trust laws; 
(2) the American Indian Religious Freedom Act; (3) the National 
Historic Preservation Act; (4) Executive Order 13175; (5) Executive 
Order 12898; and (6) Public Law 106-113 as amended by 108-108. In 
addition, commenters cited specific Forest Service policy including: 
(1) Supplements to the FSM in Region 5 that allow free personal use 
with permit for tribal members; (2) FSM 1563.02 for Region 5 (Amendment 
1500-2007-1, approved July 25, 2007) re: ``regulation of commercial 
harvests and precedence of personal use over commercial''; (3) North 
Carolina National Forest (Region 8) supplement r8--nc--2400-2005-1, 
document 2467 (April 25, 2005), re: ``calculation that ignores market 
values at the point of harvest''; (4) FSM 1563.1 and FSH 1509.13, 
Chapter 10, regarding directions on the exercise of regulatory 
authority and consultation with tribes and honoring of treaty rights 
and trust responsibilities; (5) FSH 2409.18, 87.17 regarding 
``consultation with treaty and non-treaty Tribes prior to the adoption 
of any harvest plan for areas that include Tribal ancestral ground''; 
(6) FSM 1563.01f, re: use of cooperative agreements with Tribe; (7) FSM 
1563.01(d), re: interpreting treaties as they would have been by the 
tribes signing them at the time; and (8) FSM 1524 and 1563.03, re: 
constraints to Forest Service regulation of special forest products/
forest botanical products by treaty rights and trust obligations.
    Response: The rule is consistent with all applicable laws and 
regulations. The Forest Service will revise any provisions in the 
Forest Service Manual or Forest Service Handbook that are inconsistent 
with this rule.
Income
    Comment: Many comments indicated that special forest products and 
forest botanical products are a source of income for individuals and 
communities. Some commenters believe the regulations will result in 
lower incomes and loss of self-employment for thousands of individuals 
in rural communities. One comment stated that the prohibition on 
gathering from some national forests already has resulted in ``severe 
economic hardship.'' Another commenter stated, ``We are trying to make 
a living without public assistance and without cutting down the 
trees.'' One commenter does not believe that the scale of the potential 
negative impact on incomes in rural communities was adequately 
addressed in the preparation of the regulations.
    Response: The rule will have little or no impact on the incomes of 
those who rely on the gathering of special forest products. The rule 
was reviewed under U.S. Department of Agriculture procedures and 
Executive Order 12866 on Regulatory Planning and Review as amended by 
Executive Order 13422. OMB determined that the rule is not significant 
and that it 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.
    Implementation of the final rule increases the Forest Service's 
ability to meet special forest products demand while assuring a 
sustainable supply. Maintaining a sustainable supply of special forest 
products should result in members of the public having a better 
opportunity to obtain special forest products.
Special Forest Products/Forest Botanical Products Industry
    Comment: Commenters described the structure of the special forest 
products/forest botanical products-based industry, and expressed 
concerns about the rule's effects on the industry. Several commenters 
disputed OMB's finding that the regulation's potential impact would be 
lower than $100 million. One commenter stated that economists have 
estimated the economic value of floral greens and wild mushrooms alone 
in just three states at $141 million. The same commenter also stated 
it's highly probable that the aggregate economic value of the hundreds 
of SFPs harvested commercially in the United States is several billion 
dollars and that much of that harvest is taking place on national 
forests. Another commenter remarked that the $3 million value of 
special forest products revenues from National Forest System lands 
appears to be a gross underestimate stating that special forest 
products revenues, based upon the Forest Service's own reporting 
system, totaled $6,119,947 for Forest Service Region Six.
    Another commenter expressed concern regarding the advertisement and 
bidding processes, under sections 223.227 to 223.232, for the sale of a 
particular forest product for which the appraised value of the sale is 
equal to or greater than $10,000 and suggests that the minimum amount 
be increased to $100,000. The same commenter was concerned that absent 
any clarification on how appraised values will be determined, that the 
``sale'' of a forest product could consist of the entire annual 
nationwide harvest of a particular forest product, the value of which 
would, in many cases, very likely exceed $10,000. The following 
industry generated figures were provided to support that assertion: $30 
million for maple syrup in 1997; $2.5 million to collectors of black 
walnuts in 2002 (estimated); and $340,000--$800,000 to harvesters of 
wild black cohosh root in each of the three years 2003-2005 (calculated 
at the 2007 value to harvesters of $2.50/pound based on AHPA's tonnage 
surveys).
    One commenter noted that special forest products/forest botanical 
products actually support several industries including food, floral, 
horticultural, and dietary supplements. The commenter noted that in 
most cases, the supply chain has 3 or 4 steps prior to any significant 
value-added process: (1) Harvest by self-employed individuals or small 
groups of family and/or friends; (2) Harvesters sell to local buyers 
(the point at which the commenter believes fair market value should be 
assessed); (3) Local buyers sell to regional consolidators (unless they 
have established direct connections farther up the supply chain); and 
(4) Regional consolidators sell to a manufacturer. The commenter stated 
that the largest price increases tend to occur beyond this point (step 
4) in the supply chain and provided an example involving black cohosh 
root. The same commenter also offered to share its industry tonnage 
survey results with the Forest Service on an ongoing basis as one of 
the best available measures of volumes and values for 20 special forest 
products/forest botanical products species. The commenter noted, 
however, that there is no way to determine what proportion of that 
volume was harvested on national forests, although it is assumed to be 
more than $10,000.
    Commenters fear that implementation of the regulations, as written, 
would favor very large businesses, and would result in the industry 
being restructured in a way that would present an economic hardship for 
rural communities, low income people, and minorities. More than half of 
the comments on this specific topic stated that the bidding process 
would most likely push out very small businesses and self-employed 
individuals.
    Commenters also identified permit prices and access to sufficient 
amounts

[[Page 79375]]

of special forest products/forest botanical products to supply the 
industry as concerns. Comments suggested that permit costs, if not 
calculated at a reasonable percentage of the price paid to a 
permittee's harvesters, could eliminate the harvesting activity as a 
source of income. In addition, commenters asserted that rising permit 
prices could ripple upward in the supply chain, resulting in product 
prices beyond what consumers are willing to pay. Commenters also 
expressed concern that if access to special forest products/forest 
botanical products on national forests is shut down, as it has been on 
some forests, inability to supply product also would harm the industry. 
This comment was couched in terms of closing down access in the absence 
of sound scientific information indicating a need to do so. These 
commenters indicated general support for sustainable harvesting 
measures.
    Response: As stated above, the rule fully complies with all 
applicable laws, regulations, U.S. Department of Agriculture 
procedures, and Executive Order 12866 on Regulatory Planning and 
Review, as amended by Executive Order 13422. Further, the OMB has 
determined that the rule is not significant, will not have an annual 
effect of $100 million or more on the economy, and will not adversely 
affect productivity, competition, jobs, the environment, public health 
or safety, or state or local governments. The rule itself does not 
increase or decrease the supply of special forest products or forest 
botanical products thus does not impact the receipts received by the 
Forest Service. Further, the rule complies with Executive Order 13272, 
``Proper Consideration of Small Entities in Agency Rulemaking'' and the 
Small Business Regulatory Enforcement Act of 1996 (SBREFA), which 
amended the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). It has 
been determined that this action will not have a significant economic 
impact on a substantial number of small entities as defined by the 
Executive Order. The rule increases the Forest Service's ability to 
meet increased demand for special forest products, which benefits 
individuals and small businesses.
    Many of the commenters provided values of special forest products 
based either upon wholesale or retail values of the product. The Forest 
Service bases its appraised value that it charges for a permit or a 
contract on a fair market value that reflects the cost to a permittee 
to collect or cut the product and transport the product to a point that 
it could be sold. In response to comments regarding appraised values 
and product prices, the Chief of the Forest Service establishes minimum 
rates for the sale of special forest products or groups of special 
forest products pursuant to section 223.221. In addition, the Chief 
determines the appraised value of special forest products pursuant to 
section 223.222. Pursuant to sections 223.221 and 223.222, products 
must be sold at minimum rates or appraised value, whichever is higher. 
Under section 223.227 the Forest Service generally is required to 
advertise any sale of special forest products which has an appraised 
value of $10,000 or greater rather than $100,000 as suggested by one 
commenter. As there is competition for a lot of these special forest 
products, advertising them is a fair approach to work with the public.
    In the past we have used the timber regulations and Forest Service 
Forest Management manuals and handbooks as the basis for appraising 
special forest products. Each sale is appraised per procedures 
identified in FSH 2409.18, sec. 45. Sales are not appraised based on 
the nationwide annual value of a particular product, as one commenter 
suggested. Sales are appraised individually, within each forest. One 
individual sale may include multiple products. Appraised values, 
including appraisal points, are determined in accordance with Forest 
Service policy.
    The Forest Service has a minimum charge of $20 for a permit or 
contract except for the minimum charge for an individual Christmas tree 
permit. As an example, if the minimum rate for a special forest product 
is $5 for a particular unit of measure, a permit would allow up to 4 
units of that particular product.
    Regarding the comments about closing down access to forest product 
harvesting in the absence of sound scientific information based upon 
historical and other information, the Forest Service will only close 
down access to special forest products for reasons including but not 
limited to: (1) Ensuring public safety; (2) preventing interference 
with Forest Service and/or commercial operations; (3) ensuring the 
sustainability of a special forest product; or (4) otherwise protecting 
National Forest System land. Whenever possible, the Agency will 
consider scientific information in making determinations about whether 
to close down access.
Development Process of Proposed Regulations
    Comment: Some comments referred to the process used to develop the 
proposed regulations. Several commenters believe that the regulations 
as written should be abandoned and a new process should be commenced 
that involves a substantive public involvement process. Many of these 
individuals also contend that the regulations should be rewritten to 
include a requirement for stakeholders to be involved in establishing 
harvest limits, identifying fair market values, setting permit prices, 
etc., with some calling for the Forest Service to require training for 
its personnel on how to conduct such processes effectively. One 
commenter offered the example of a successful collaborative process 
that was used by a national forest to develop agreements for managing 
special forest products/forest botanical products.
    Response: The proposed rule included a 60-day comment period, which 
was extended for an additional 30 days. Over 150 comments were 
received. All comments received were considered in development of the 
final rule. Further opportunities for collaboration and participation 
will occur at the regional, forest, and local level, including, but not 
limited to, during project planning, environmental analysis, and 
implementation.
Regulatory Impact Determination
    Comment: Commenters believe that there was inadequate review for 
regulatory impact prior to the proposed regulation's publication. Read 
together, the comments asserted that a regulatory impact review is 
required based on at least three of the following reasons:
    1. The annual national value of special forest products/forest 
botanical products exceeds the monetary threshold necessary to trigger 
the requirement for a regulatory impact review. Some of these comments 
cite values for the annual harvest of products to support their 
assertion.
    2. The regulations as written would have a substantial impact on 
incomes in rural communities, which have not been considered.
    3. Potential impacts on small businesses, particularly from the 
proposed bidding process, would be substantial and would effectively 
restructure the industry.
    Many commenters also stated that a NEPA review is required because 
they believe the regulations are likely to have cultural and ecological 
impacts. Some requested public release of the data OMB used to 
determine that there would be no significant impacts. Other commenters 
stated that the requirement for free or personal use permits would be 
burdensome for both the public and the Agency and could expose the 
Forest Service to risk of litigation.

[[Page 79376]]

    Response: The rule was reviewed under U.S. Department of 
Agriculture procedures and Executive Order 12866 on Regulatory Planning 
and Review, as amended by Executive Order 13422. OMB determined that 
the rule was not significant, would not have an annual effect of $100 
million or more on the economy, and would not adversely affect 
productivity, competition, jobs, the environment, public health and 
safety, or state and local governments.
    The Agency believes the rule actually increases the Forest 
Service's ability to meet special forest products demand, while 
assuring a sustainable supply. Maintaining a sustainable supply will 
benefit individuals and small businesses.
    After consideration of the rule under Executive Order 13272, 
``Proper Consideration of Small Entities in Agency Rulemaking,'' and 
the Small Business Regulatory Enforcement Act of 1996 (SBREFA), which 
amended the Regulatory Flexibility Act (5 U.S.C. 601 et seq.), the 
Forest Service determined that this action will not have a significant 
economic impact on a substantial number of small entities as defined by 
the Executive Order. Further, the proposed rule will have no adverse 
impact on small business, small not-for-profit organizations, or small 
units of government.
    The Forest Service also determined that the rule would have no 
direct or indirect effect on the environment. 36 CFR 220.6(d)(2) 
excludes from documentation in an environmental assessment or impact 
statement rules, regulations, or policies to establish service wide 
administrative procedures, program processes, or instructions that do 
not significantly affect the quality of the human environment. The 
Department's assessment is that the rule falls within this category of 
actions, and that no extraordinary circumstances exist that would 
require preparation of an environmental assessment or environmental 
impact statement.
    Pursuant to FSH 2409.18 section 87.13, the approving officer for 
the harvest and sale of special forest products must ensure that the 
actions are consistent with applicable land and resource management 
plans, including environmental quality standards.
    Regarding the comment that the requirement for permits would be 
burdensome and could expose the Agency to litigation, in the proposed 
rule, the Agency unintentionally omitted disclosure of a current Office 
of Management and Budget (OMB) approved information collection for 
associated permits and contracts; this omission has been corrected and 
the information now appears in the Controlling Paperwork Burdens on the 
Public section.
    Permits and fees are not always required. For example, a person may 
harvest a forest botanical product or special forest product up to the 
incidental use harvest level without obtaining a permit. In addition, 
there are no fees associated with the free and personal use.
Stewardship
    Comment: One commenter proposed collaborating with the Forest 
Service to develop guidelines for good stewardship of special forest 
products/forest botanical products. Other commenters stated that in 
many cases their practices enhance local populations of special forest 
products/forest botanical products. Another commenter believes that the 
regulations as written would be a barrier to promoting restoration of 
native medicinal species and their positive ecological outcomes. One 
commenter asserted that good stewardship is more likely to follow if 
harvesters are involved in decision-making processes regarding 
regulation of special forest products/forest botanical products and if 
they have a long-term stake in these resources. One commenter stated 
that in several years of working with tribes on traditional management 
of special forest products/forest botanical products, they had never 
observed damage by traditional harvesters but have seen ecologically 
beneficial effects.
    Response: The final rule will result in the good stewardship of 
special forest products and forest botanical products and is not a 
barrier to promoting restoration of native medicinal species and their 
positive ecological outcomes. In addition, the Forest Service 
appreciates and welcomes the many opportunities it will have to work 
with members of the public throughout the planning, analysis, and 
implementation of special forest products and botanical forest products 
projects. We believe these opportunities for consultation and 
collaboration will ensure sustainability and good stewardship.
Subsistence
    Comment: Commenters believe that the rules as written would have a 
negative effect on people who rely on special forest products/forest 
botanical products for subsistence. Several of the commenters are 
concerned that personal use levels set to satisfy what are deemed to be 
recreational needs will not be adequate for subsistence gatherers and 
ask that subsistence be identified as a separate category for which 
harvest limits are set. Some note that this may be an environmental 
justice issue that should be considered under the terms of Executive 
Order 12898.
    One commenter stated that there are people who are dependent upon 
subsistence gathering and indicated that special forest products/forest 
botanical products are an important aspect of subsistence. One 
commenter indicated that tan oak mushrooms have important subsistence 
uses in the local community and that its importance and use is not 
confined to American Indians. Another noted that subsistence gathering 
is recognized in an MOU between the Forest Service and tribes in 
several western forests. One individual asserted that the definition of 
subsistence in a contemporary context must include trade of traditional 
crafts, arts, etc.
    Response: The Forest Service has promulgated this rule in order to 
promote the sustainable use of special forest products in light of the 
increased public demands, for both timber and non-timber special forest 
products, over the past 10 years. In many cases, these demands are 
challenging sustainability particularly in the most heavily used parts 
of the Nation's Forest System.
    This rule will not interfere with the established rights of any 
group to harvest or use special forest products. It does provide, 
however, for the determination and monitoring of sustainable harvest 
levels and provides a mechanism for increasing or decreasing harvest 
levels as appropriate based on the monitoring results. This rule does 
not affect subsistence gathering; it just requires a permit process 
above the product's incidental-use harvest level. The rule also 
provides for the contracts and permits that will be used by the Agency 
to administer the harvest and use of special forest products and forest 
botanical products. By maintaining sustainability, this rule helps to 
provide for the continuity of all uses, including subsistence.
    Responsible forest officers determine personal-use harvest levels 
for specific forest botanical products (section 223.279). These levels 
shall be equal to the amount or quantity authorized for free use under 
section 223.239(a), which references personal, non-commercial use, 
rather than recreational needs as one commenter believed.
    In response to the commenter asking that subsistence be identified 
as a separate category for which harvest limits are set, regardless of 
the product's eventual use, prior to offering a special forest product 
for sale or free use, the responsible forest officer must determine the 
product's sustainable harvest level. The Agency does not feel

[[Page 79377]]

a separate category is needed for subsistence as subsistence is tied to 
a product's sustainable harvest level. A special forest product's 
sustainable harvest level is the total quantity of the product that can 
be harvested annually in perpetuity on a sustained yield basis. 
Responsible forest officers are not authorized harvest or free use of 
special forest products in an amount exceeding known sustainable 
harvest levels.
    There are no environmental justice issues under this rule. The rule 
provides for free personal, non-commercial use of both special forest 
products and forest botanical products, under sections 223.239 and 
223.279.
    The rule allows for regional foresters to issue MOUs and MOAs, 
consistent with subparts G and H, to promote local collaboration, issue 
resolution, and local implementation of the rule. The rule also allows 
for continuance of existing MOUs and MOAs although they must be made 
consistent with the rule within 24 months from December 29, 2008 or 
those agreements will terminate.

Subpart G--Special Forest Products

Proposed Section 223 Applicability

Summary of Changes in Proposed Section 223.215 (Final Rule Section 
223.215)
    No comments were received directly relating to this section.
    For clarification purposes, minor wording changes were made to this 
section and information regarding permit requirements for free use 
above the incidental-use harvest level was added.

Proposed Section 223.216 Definitions

Summary of Changes in Proposed Section 223.216 (Final Rule Section 
223.216)
    For clarification purposes, the title of section 223.216 was 
changed to include special forest products. In response to comments and 
for clarification, a definition of ``person'' was added. The term 
``purchaser'' was replaced with ``person'' throughout the rule to 
reflect the fact that not everyone harvesting forest products will be 
purchasing the products through a sale. Some products may be obtained 
via permit or free use authorization. For clarification, the definition 
of special forest products was refined in the final rule by inserting 
the words ``but not limited to'' to clarify that the products 
identified in the definition are not all inclusive. Further, the 
reasons for collection were struck from the definition because the 
Agency did not intend to insert an intent element into the definition.
    Comment: Commenters noted that the terms special forest products 
and forest botanical products are similar and/or confusing, aren't 
distinctive, do not contain certain species of particular importance 
(such as, but not limited to, epiphytes, bromeliads, orchids, and 
ferns), and include products that should not be regulated (such as 
fence material, mine props, post and poles, shingle and shake bolts, 
and rails).
    Response: The definitions of special forest products and forest 
botanical products are very similar because forest botanical products 
are a naturally occurring subset of Special Forest Products. Further, 
the products mentioned by name in the definitions are not all 
inclusive. Regarding the commenters' question as to why certain special 
forest products are regulated, the Forest Service considers posts, 
poles, rails, shingle and shake bolts, firewood, fence stays, vegas, 
mine props, and bow staves as special forest products, but not forest 
botanical products because they do not occur naturally. The Agency has 
a history of regarding fence material, mine props, post and poles, 
shingle and shake bolts, and rails, as special forest products and 
plans to continue to do so. The authority for selling these products is 
found at 36 CFR 223.1.
    Comment: Some commenters expressed the need to define ``fair market 
value,'' ``appraised value,'' and ``minimum rates'' and wanted these 
definitions written in such a manner that they were determined at the 
point of harvest and not on a value added basis. Another commenter 
requested a definition for the term ``responsible officer,'' 
particularly in relationship to where the individual is stationed. One 
commenter noted that the terms ``protect the forest'' or for ``purposes 
of health and safety'' were not defined and the commenter was concerned 
that the regional forester would have unlimited discretion over the 
application of treaty-protected gathering rights to Forest Service 
lands. Another commenter was concerned that the terms ``threatened'' or 
``endangered'' species were not defined and was unclear how or by whom 
such threat or danger would be determined.
    Response: The Forest Service follows the regulations at 36 CFR 
223.222, which set forth authorities for determining appraised value of 
special forest products and 36 CFR 223.278 for forest botanical 
products. The Forest Service determines fair market value of forest 
botanical products under 36 CFR 223.278. Per 26 CFR 223.278, the fair 
market value of a forest botanical product is equal to the appraised 
value.
    The process that the Forest Service has used to determine ``fair 
market value,'' appraised value, and minimum rates or standard rates 
for special forest products has historically been based upon the same 
process noted in the Forest Service manual and handbooks for timber 
sales. Special forest products, and now forest botanical products, were 
considered the ``other forest products'' identified in NFMA and in the 
manual and handbooks.
    Minimum rates are the lowest rate that the Forest Service will 
accept for a product. Standard rates, based upon historical data, are 
set and used as the lowest rate that the Forest Service will accept for 
a product when an appraisal is not needed or is not practical for a 
product. For some products, minimum rates and standard rates may be the 
same.
    Appraised rates are developed to provide a fair market value for a 
product. Under the rule, valid methods of appraisal include but are not 
limited to transaction evidence appraisals, analytical appraisals, 
comparison appraisals, and independent estimates based on average 
investments. The basic appraisal systems used by the Agency include 
residual value appraisals (a type of analytical appraisal) and 
transaction evidence appraisals, which are used depending on the 
information available. To determine an appraised value, either 
appraisal system selects an appraisal or marketing point at which a 
product can be further manufactured or sold to a collector or 
processor. The appraisal takes into consideration the costs to pick or 
produce the product and the cost to transport it to the marketing 
point. The rates that the Forest Service charges does not include any 
value added to the product after delivery to the appraisal or marketing 
point.
    The Forest Service uses the term responsible forest officer for the 
official responsible for the particular decision being made. This 
individual may be stationed at any office (district, forest, regional, 
or national) depending upon the decision and/or their delegated 
authority.
    The Forest Service uses the terms threatened or endangered Species 
as defined by the Endangered Species Act of 1973, as amended (16 U.S.C. 
1532 et seq.).
    Commenters expressed concern that the ambiguity of the terms 
``protect the forest'' and ``purposes of health and safety'' gives a 
regional forester unlimited discretion over the application of treaty-
protected gathering rights on National Forest System lands. In 
response, the Forest Service revised section 223.240 to specify that 
the

[[Page 79378]]

Forest Service will only set conditions on the harvest of a special 
forest product by a Tribe with treaty or other reserved rights related 
to that special forest product to ensure the product's sustainability 
or to otherwise protect National Forest System land. In addition, 
section 223.240 now states that the Forest Service will only prohibit 
Tribes with treaty or other reserved rights related to special forest 
products from harvesting that special forest product to protect public 
health and safety or to ensure sustainable harvest levels. The 
responsible forest officer has the discretion, on a case-by-case basis, 
to determine what may be needed to protect public health and safety and 
to ensure sustainability on National Forest System lands.
    No definitions of ``fair market value,'' ``appraised value,'' 
``minimum rates,'' ``responsible forest officer,'' ``forest 
protection,'' ``health and safety,'' or ``threatened or endangered 
species'' will be added to this subpart.

Proposed Section 223.217 Authority To Dispose of Special Forest 
Products

Summary of Changes in Proposed Section 223.217 (Final Rule Section 
223.217)
    No changes were made to this section.
    Comment: Some respondents stated that Tribes have vested property 
interests in the resources, and that the resources are not solely owned 
by the Forest Service.
    Response: The regulations at 36 CFR part 223 govern the sale and 
disposal of national forest system timber and forest products. This 
final rule 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 this action does not take any private 
property. Tribes with treaty or other reserved rights retain their 
ability to harvest special forest products in full accordance with 
existing rights.

Proposed Section 223.218 Consistency With Plans, Environmental 
Standards, and Other Management Requirements

Summary of Changes in Proposed Section 223.218 (Final Rule Section 
223.218)
    Minor changes in wording were made to this section for 
clarification.
    Comment: A number of commenters asserted that the rule needs to 
undergo National Environmental Policy Act (NEPA) evaluation and that 
the rule should be consistent with NEPA. Other commenters mentioned 
forest plans, environmental standards, and questioned the adequacy of 
or further need to consider/study/include other management standards, 
including treaty and other tribal rights, Executive Order 12898, the 
Regulatory Impact Analysis, the United Nations (UN) Convention on 
Biodiversity, the UN Declaration on the Rights of Indigenous Peoples, 
and the International Standard for Sustainable Wild Collection of 
Medicinal and Aromatic Plants (ISSC-MAP) principles.
    Response: Although the rule itself has been determined to not 
require NEPA analysis, the harvest and sale of special forest products, 
including the subset of forest botanical products, shall be authorized 
in accordance with all applicable laws, regulations, and policies, 
including NEPA and forest land management plans on National Forest 
System lands (reference FSH 1909.15, sec. 31.1b (57 FR 43180; September 
18, 1992)).
    Responsible forest officers also follow policy found in FSH 1909.15 
to determine the level of environmental analysis documentation needed 
for disclosing the environmental effects of individual programs or 
projects. During the NEPA process for land management plans and site-
specific actions, interdisciplinary team members and the responsible 
forest officer may consider many sources of data and information.

Proposed Section 223.219 Sustainable Harvest of Special Forest Products

Summary of Changes in Proposed Section 223.219 (Final Rule Section 
223.219)
    Minor wording changes were made to this section. In addition 
section 223.219 was revised to specify that forest officers may consult 
with appropriate parties when determining sustainable harvest levels. 
This revision was made in response to comments received by the Forest 
Service. In response to comments, factors were added that the 
responsible forest officer may consider when making their 
sustainability determinations and establishing monitoring timeframes.
    Comment: Comments included determining sustainable harvest limits 
specific to species and location because of year-to-year and site-to-
site variability, and the need to consider factors including climate 
change, and geographic scale. Concerns were expressed doubting the 
Forest Service's resources and/or knowledge base to determine 
sustainability. Some respondents are concerned that the three-year 
baseline is not an adequate measure to set sustainable harvest levels 
because of high variability of many species.
    Response: A responsible forest officer is charged with determining 
the sustainable harvest level for each special forest product prior to 
offering them for sale or free use. In doing so, responsible forest 
officers may consider all sources of information and expertise 
available, including sources outside the Agency, when making their 
determination. In response to comments, language was added to reflect 
that ``responsible forest officers will consult with Tribes, to the 
extent appropriate, to determine sustainable harvest levels based on 
historical information.'' In addition, the rule now provides that 
``responsible forest officers may consult with other appropriate 
parties to determine sustainable harvest levels based on historical 
information.'' Regarding commenters' concerns about the Forest 
Service's ability to determine sustainable harvest levels, the Forest 
Service has the resources to determine sustainability. The Forest 
Service has the appropriate knowledge base to comply with the 
regulation. Where applicable, the Forest Service considers the 
expertise and knowledge available from other parties, including Tribes. 
The rule now provides that responsible forest officers may consider 
factors such as year-to-year and site-to-site variability, climate, 
weather change, geographic scale, and scientific data available prior 
to making their sustainability determination and establishing 
monitoring timeframes (section 223.219(a)). In addition, the Forest 
Service is required to monitor the effects of harvesting on the 
sustainability of special forest products, at least once every three 
fiscal years, or as otherwise established by a regional forester 
(section 223.219(c)). Such monitoring may include, but is not limited 
to, on-site examination of the product, including both harvested and 
non-harvested areas, and a review of past and projected harvest levels 
to the extent such information is available.

Proposed Section 223.220 Quantity Determination

Summary of Changes in Proposed Section 223.220 (Final Rule Section 
223.220)
    No comments were received specific to this section.
    No changes were made to this section.

[[Page 79379]]

Appraisal and Pricing

Proposed Section 223.221 Establishing Minimum Rates

Summary of Changes in Proposed Section 223.221 (Final Rule Section 
223.221)
    The language was revised to clarify that the Chief establishes 
minimum rates in addition to establishing methods for setting minimum 
rates. In addition, language was added to explicitly reference the 
Forest Service's statutory obligation to sell special forest products 
for minimum rates or appraised value, whichever is greater.
    Comment: Commenters suggested conducting inventories prior to the 
issuance of permits and including the cost of such inventories in the 
minimum rate. Others suggested including the full range of 
stakeholders, including special forest products and forest botanical 
products harvesters and buyers, and involving the best available 
science in the process of setting minimum rates (and harvest levels, 
prices, and waivers). Some respondents believe that the Forest Service 
lacks the necessary expertise to establish sound minimum rates without 
the participation of knowledgeable stakeholders. To develop 
ecologically and economically sustainable and culturally sensitive 
harvesting limits, prices, and monitoring processes, some commenters 
believe the Agency will need to include harvesters and buyers in their 
decision-making process.
    Response: For special forest products, the minimum rates are those 
as explained in the response to comments under section 223.216. For 
forest botanical products, a fee in addition to the charged rate may be 
included that would cover the cost of administering the permit/
contract. In this instance, the fee may be used for administration of 
the permit/contract including inventories to determine harvest levels 
and sustainability levels of forest botanical products. As noted by the 
commenters, the Forest Service will need help from knowledgeable 
stakeholders, harvesters, and buyers to provide information relating to 
cost to produce products along with information concerning the amount 
harvested and/or available for harvesting. This information will be 
used in appraisal systems and in the monitoring needs to determine 
sustainability levels.
    The Forest Service uses the Forest Products Free Use Permit (FS-
2400-8) for the personal use of products above the product's incidental 
use harvest level for both special forest products and forest botanical 
products. These products obtained under this permit can not be resold. 
For charge permits, under which the material can be resold, the Forest 
Service uses the Forest Products Removal Permit and Cash Receipt (FS-
2400-1) for values up to $300. For values above this amount, the Forest 
Service uses contracts identified earlier.

Proposed Section 223.222 Appraisal

Summary of Changes in Proposed Section 223.222 (Final Rule Section 
223.222)
    The language was revised to clarify that the Chief establishes 
appraised value and establishes methods for determining appraised 
value. In addition, the inadvertent use of fair market value was 
replaced with appraised value.
    Comment: Some commenters believe that fees should be set in 
relation to the point of harvest rather than at a later stage in the 
market chain and harvesters and buyers should be consulted and involved 
in the process of determining fair market value. Several commenters 
cautioned that fees should not be set as high as to price products made 
from special forest products/forest botanical products out of the 
market. One respondent asserted that if fees are set beyond the 
financial means of low-income or tribal harvesters, this may result in 
non-compliance and constitute an environmental justice issue under the 
terms of Executive Order 12898. This individual suggests that the 
Forest Service should seek advice from its Office of General Counsel in 
this regard.
    Response: There are no permit fees for personal use and free use. 
There are no environmental justice issues under this rule. Under 
section 223.278, the responsible forest officer ensures that the sale 
price of any forest botanical product includes a portion of the 
product's fair market value and a portion of the costs incurred by the 
Department of Agriculture associated with granting, modifying, or 
monitoring the authorization for harvest of forest botanical products, 
including the costs of any environmental or other analysis. The fair 
market value of forest botanical products is equal to the appraised 
value determined in accordance with section 223.222. The sum of the 
portions of fair market value and costs making up the sale price must 
be greater than or equal to the forest botanical product's fair market 
value.

Proposed Sections 223.223 Advance Payment; 223.224 Performance Bonds 
and Security Fees; 223.225 Contract, Permit, and Instrument Term; and 
223.226 Adjustment of Term of Contract, Permit, or Other Instrument for 
Force Majeure Delay

Summary of Changes in Proposed Sections 223.223, 223.224, 223.225, and 
223.226 (Final Rule Sections 223.223, 223.224, 223.225, and 223.226)
    Minor wording changes were made to sections 223.223 for 
clarification purposes. The word ``purchaser'' was replaced by 
``person'' in section 223.223 for consistency with the definition of 
``person'' added to section 223.216. Permits were inadvertently 
included in section 223.226 of the proposed rule. However, permits do 
not have force majeure. Thus, the word permit was removed from section 
223.226 in the final rule. In addition, the finding regarding 
substantial public interest was deleted as this finding does not apply 
to force majeure extensions. The titles to 36 CFR 223.225 and 223.226 
were changed slightly for clarification purposes.
    Comment: Some commenters expressed concern that performance bonds 
and security fees would be beyond the reach of many native peoples. 
Others contend the rule should allow contracts with federally-
recognized tribes to exceed 10 years. Additional commenters expressed a 
desire to place some areas within the national forests off limits to 
commercial activities, including wilderness areas, roadless areas, 
sensitive areas, areas with archaeological resources, and culturally 
significant and/or traditional religious areas. One commenter felt that 
provisions dealing with sales contracts, sales advertising, and 
performance bonds and security fees would be applied to all businesses, 
without regard to differences in size class, volumes harvested, or 
ecological impacts, and that, as a result, small businesses would 
endure a financial burden that may be borne more easily by large 
businesses.
    Response: Under section 223.224, a contract, permit, or other 
authorizing instrument for the sale of special forest products may 
require a person to furnish a performance bond or other security for 
satisfactory compliance with its terms. Under 223.216, a person is 
defined to include any individual, partnership, corporation, 
association, Tribe, or other legal entity.
    Sale contracts, by law, may not exceed 10 years in duration, unless 
there is a finding by the Chief that better utilization of the various 
forest resources (consistent with the

[[Page 79380]]

provisions of the Multiple-Use Sustained-Yield Act of 1960) will 
result. The disposal of special forest products must be consistent with 
applicable land management plans (36 CFR 223.218). Land management 
plans consider the effects of various land management activities on all 
resources, including, but not limited to, wilderness areas, roadless 
areas, sensitive areas, areas with archaeological resources, and 
culturally significant and/or traditional religious areas.
    Effects on small entities and small business concerns were 
considered in light of Executive Order 13272. The Forest Service 
determined that the rule will have no adverse impact on small business, 
small not-for-profit organizations, or small units of government.

Proposed Sections 223.227 Sale Advertisement; 223.228 Contents of 
Advertisement; 223.229 Contents of Prospectus; 223.230 Bid Restriction 
on Resale of Incomplete Contracts, Permits, or Other Instruments; 
223.231 Bidding Methods; and 223.232 Disclosure of Relation to Other 
Bidders

Summary of Changes in Proposed Sections 223.227, 223.228, 223.229, 
223.230, 223.231, and 223.232 (Final Rule Sections 223.227, 223.228, 
223.229, 223.230, 223.231, and 223.232)
    Minor wording changes were made to sections 223.227, 223.229, 
223.230, 223.231 and 223.232 for clarification purposes.
    Comment: Commenters expressed objections to a bidding system or 
process for special forest products/forest botanical products, and felt 
that a bidding system or process would place very small enterprises at 
a disadvantage and likely drive them out of business. Others call for 
set asides for very small businesses. Additional commenters asserted 
that any contracts, advertising, bonds, and security fees should be 
structured in relation to market conditions, harvest quantities, and 
ecological impacts. A few called for harvesters and buyers to be 
involved in developing appropriate sales processes. One commenter 
suggested that only very large-scale, potentially damaging harvests 
should require the contracting processes set forth in the regulations.
    Another commenter felt that the appraised value of $10,000 is too 
high a trigger for the advertisement process given the market value of 
many of the products that might be sold and that this threshold should 
be set at a lower value.
    A different commenter believes that the Forest Service ``is 
misinterpreting its statutory responsibility under the pilot program 
law,'' asserting that the 2004 legislation requires the Agency to use a 
bidding process as one means of establishing fair market value for 
forest botanical products during the pilot program. The commenter 
believes that this does not constitute a mandate to institute a bidding 
process for special forest products like that used for timber.
    Many comments stressed that where treaties exist, treaty terms 
prevail and tribes cannot be subject to the provisions of this section 
or any others that contravene guaranteed rights. The award process 
should prioritize sales to tribes and/or indigenous people for 
commercial harvests let on tribes' ancestral lands. Some respondents 
want to be allowed to purchase product sales for conservation purposes, 
that is, for the express intent not to harvest.
    Provisions regarding allowable harvesting techniques should be 
strengthened with allowable techniques specified in contracts. For 
example, where appropriate, the contracts should adopt state 
prohibitions against certain berry harvesting techniques.
    Response: Most special forest products have been sold on permits 
and small sales to individuals or small companies. Large business has 
not purchased much of the sales for special forest products in the 
past. The Small Business Administration sets the size class for 
purchasers but to-date a need has not been demonstrated that special 
attention is needed to protect the individuals purchasing special 
forest products. Market conditions, available harvest quantities, and 
ecological impacts all are considered in the appraisal and contracting 
processes. Where appropriate, information is obtained from harvesters 
and buyers to develop the information needed for the appraisals and for 
determining sustainable harvest levels.
    One commenter felt that $10,000 is too high a level to trigger the 
advertisement process. The Agency agrees and when there is either 
competition for a product or the product availability is scarce, the 
Forest Service may advertise the product. A commenter noted that 
bidding might be one way to determine fair market value. The Agency 
agrees and this is part of the transaction appraisal system that the 
Agency uses. As to prioritizing sales, this is a local concern that 
needs to be determined on a case-by-case basis based upon treaty or 
other reserved rights.
    Another commenter suggested that a person be able to purchase 
special forest products and then not have to harvest the product as a 
means for environmental protection. The Forest Service disagrees in 
that the intent of the special forest products program is to provide 
products to the American public. There are sufficient other means to 
protect the sustainability of a product such as harvesting only within 
the sustainable harvest levels.
    In response to the comment regarding bonding, in accordance with 36 
CFR 223.224 and Forest Service policy, sales contracts, permits, or 
other authorized instruments may require the purchaser to furnish a 
performance bond or other security.
    This rule honors and recognizes the historical treaty and reserved 
rights retained by Indian tribes, and it recognizes the importance of 
traditional and cultural forest products in the daily lives of Indians.
    When preparing appropriate contract or permit instruments, forest 
officers may add approved special provisions and appropriate other 
conditions, regarding proper harvesting techniques, per section 
223.239.

Proposed Sections 223.233 Award to Highest Bidder and 223.234 
Determination of Purchaser Responsibility

Summary of Changes in Proposed Sections 223.233 and 223.234--(Final 
Rule Sections 223.233 and 223.234)
    In Section 223.233, minor word changes were made for clarification 
purposes. Specifically added the word bidder to 233(a)(2)(ii) so that 
it now reads ``* * * next highest qualified bidder'' as the term bidder 
was inadvertently left out in the proposed rule. Also clarified 
223.233(a)(2)(iii), as the proposed rule referenced ``conditions of the 
sale'' and the final rule now references ``conditions in the sale's 
prospectus'' to reflect what document these conditions are found in.
    In section 223.234, minor word changes were made for clarification 
purposes. The word purchaser was dropped from the title as the section 
also pertains to persons. The word person was used in 223.234(a) in 
place of the term purchaser to reflect the fact that not everyone 
harvesting forest products will be purchasing the products through a 
sale; some products may be obtained via permit (or even free use under 
section 223.239). The term declared high bidder was used throughout the 
section in place of the terms purchaser and prospective purchaser, as 
appropriate, because the declared high bidder on a contract is a 
contractor, but a declared high bidder on a permit is a person.
    In section 223.234(6) regarding satisfactory performance, the 
agency

[[Page 79381]]

reference was changed from Forest Service to U.S Government, as these 
same persons could be currently working on other federal ownerships as 
well.
    Section 223.234(c) was added to recognize that in some instances 
the declared high bidder may be relying on affiliates for financial 
backing and thus, the responsible forest officer needs to consider the 
affiliates possible past performance and integrity in regards to how 
they may affect the declared high bidder's ability to meet the 
applicable standards for responsibility.
    Comment: The one commenter recommended that the Forest Service 
consider the use of best value criteria, rather than highest bidder, 
for the sale of special forest products because their experience has 
shown that best value criteria leads to more competent contractors and 
provides benefits to local communities.
    Response: Historically the Forest Service has relied upon the 
timber regulations, including authorized bidding methods and award to 
highest bidder, for the sale of timber and other forest products 
including special forest products. The Forest Service does use best 
value awards under the stewardship contracting authority authorized 
under Section 323 of Public Law 108-7 (16 U.S.C. 2104 Note, as revised 
February 28, 2003 to reflect Sec. 323 of H.J. Res. 2 as enrolled). The 
stewardship contracting authority grants the Forest Service authority 
until September 30, 2010, to enter into stewardship contracting 
projects for up to 10 years with private persons or public or private 
entities, by contract or by agreement, to perform services to achieve 
land management goals for the national forests or public lands that 
meet local and rural community needs. A stewardship contract or 
agreement could potentially include timber or special forest products.

Proposed Sections 223.235 Unilateral Delay, Suspension, or Modification 
of Contracts, Permits, or Other Instruments Authorizing the Sale of 
Special Forest Products; 223.236 Unilateral Termination; and 223.237 
Request by Purchaser for Delay, Suspension, Modification, or 
Termination

Summary of Changes in Proposed Sections 223.235, 223.236, and 223.237 
(Final Rule Sections 223.235, 223.236, and 223.237)
    Minor wording changes to sections 223.235 through 223.237. The word 
person was used in place of the term purchaser to reflect the fact that 
not everyone harvesting forest products will be purchasing the products 
through a sale; some products may be obtained via permit. The word 
purchaser was dropped from the title of section 223.237, as the section 
also pertains to persons.
    Comment: One commenter believes the belief that the Forest Service 
needs authority to suspend or terminate contracts in order to mitigate 
harm that has already been done, or prevent harm that might result 
following an unanticipated natural disaster such as a fire. Another 
commenter felt that a 10-year term was entirely too long to issue a 
commercial permit without the Forest Service having any recourse to 
pull a permit if resource damage is being done.
    Response: The Forest Service already has the authority to suspend, 
modify, or terminate contracts to prevent or mitigate harm including 
that from an unanticipated natural disaster, under 36 CFR 223.235 and 
223.236.

Proposed Sections 223.238 Free Use Authorization to U.S. Army, Navy, 
and Air Force and 223.239 Free Use by Individuals

Summary of Changes in Proposed Sections 223.238 and 223.239 (Final Rule 
Sections 223.238 and 223.239)
    No changes were made to section 223.238.
    Title and minor word and format changes were made to section 
223.239, for clarity. The format of section 223.239 was restructured to 
provide ease of interpretation and continuity including clarification 
regarding when permits are or are not required. In addition 223.239(e) 
was added to reflect the treaty or other reserved rights regarding free 
use without a permit. Further, 223.239(f) was added to provide 
opportunities, upon request of the governing body of a Tribe.
    Comment: Some commenters are concerned about the implications of 
the free use regulations, as written, on regional and national forest 
level relations with tribes. These commenters urge that line officers 
at local and regional levels be given the latitude to develop and honor 
agreements with local traditional gatherers. One commenter asserted 
that the Forest Service should consult with tribes prior to designating 
free use areas to avoid culturally sensitive areas. Another commenter 
noted that the provision to allow denial of harvest ``to otherwise 
protect the forest'' is too broad, although there is support for local 
flexibility. One commenter suggested that if free use permits are 
required, these should be issued to American Indians on an annual basis 
and cover the full range of items harvested.
    Many comments focused on the feasibility of addressing all the 
species and materials that are harvested in national forests and/or the 
capacity of the Agency to do so. These comments implicitly and 
explicitly suggested there is a strong distinction between large-scale 
commercial harvests and the types of activities that might be included 
under the terms of these sections, which is not reflected in the 
regulations as written. Commenters expressed strong concerns about the 
implications and logistics of implementing these sections. These 
commenters believe that a very large number of species and materials 
are harvested in national forests, mostly in small quantities and that 
the Agency does not have the capacity to write permits for every one of 
these species and materials and indicated that requiring regions to do 
so would negatively impact their other functions. The commenters also 
are concerned about the feasibility or reasonableness of monitoring 
every species and the material gathered, given the generally small 
harvest quantities. They feel that setting free use harvest levels is 
problematic and asked who would make the determination(s).
    Another commenter noted that motivations and volumes needed for 
recreational collection, subsistence, and cultural observance are all 
very different. If free use harvest levels are set at what are 
considered to be appropriate levels for recreational collecting, there 
will be inadequate material available for subsistence and cultural 
observance.
    Some commenters felt that subjecting free use permits to the same 
requirements as commercial permits would be ``excessive and 
unenforceable.''
    Another commenter stated that if the regulations are implemented, a 
free use permit system and designated free use areas will be essential 
to the public's continued ability to engage in traditional gathering.
    One commenter wanted to know the frequency with which one would 
have to obtain a free use permit, the items and amounts that would be 
covered, and where and when one would be required to get a permit.
    Another commenter was concerned that exempting American Indians 
from free use permit requirements could lead to actions that would 
violate the Agency's racial profiling directives.
    Response: Regional foresters are encouraged to resolve issues 
concerning the granting of permits to tribes, racial profiling, and 
implementation of these

[[Page 79382]]

regulations through the use of locally based partnerships, supplemental 
guidance and collaborative projects. Further discussion regarding 
agreements has already been addressed in the comment section titled 
``Existing Memoranda of Understanding or Agreement.'' In addition, 
compliance with Executive Order 13175 and Forest Service policy (FSM 
1560) regarding consultation and coordination with Tribal Governments 
is required. Further discussion regarding consultation that took place 
has already been addressed in the background section titled ``Tribal 
Impact Summary.''
    Special Forest Products must be offered for sale or free use in a 
manner that maintains these products on a sustainable basis. An 
analysis, prior to the issuance of a contract, permit, or other 
authorized instrument, is required to determine the effects on the 
sustainability level if a special forest product is harvested and sold, 
or provided for free use, and to determine whether there is sufficient 
information to establish a sustainable sale or offer level. The 
responsible forest officer shall also determine personal use harvest 
levels, which shall be consistent with sustainable harvest levels. 
Issues concerning amounts to be harvested under a permit, duration of 
permits, and the type of products authorized for harvesting under a 
permit will be considered when establishing sustainability levels of a 
particular product. All such decisions shall be made by the responsible 
forest officer under various sections of the rule including sections 
223.219, 223.239, and 223.279.
    Regarding permit requirements for free use versus commercial use, 
under section 223.215, a commercial sale of special forest products 
shall be governed by a contract, permit, or other authorizing 
instrument. Free use above the incidental-use harvest level shall be 
conducted under a permit, unless otherwise provided.
    The forest officer may deny harvest of special forest products to 
protect public safety, prevent interference with Forest Service and/or 
commercial operations on a forest, ensure the sustainability of a 
special forest product, and to otherwise protect National Forest System 
Land.
    It was never our intent to require a permit for every cone, berry, 
or nut, and particularly for personal, non-commercial use. Therefore, 
section 223.239(b) has been revised to allow free use and personal use 
without a permit up to the incidental use harvest level. Incidental use 
harvest levels are not recreational harvest levels, as one commenter 
suggested. The incidental use harvest level covers small amounts of 
special forest products, such as cones, mushrooms, berries, acorns, 
black walnuts, or medicinal roots. Any free use of a special forest 
product that does not have an incidental-use harvest level is subject 
to the permit requirements under section 223.239. Section 223.239(b) 
now provides that ``[n]o permit is required for the free use of a 
special forest product at or below that product's incidental use 
harvest level, which shall be determined at the discretion of the 
Regional Forester or a Subordinate Officer.''
    The Agency has the capacity to address all the special forest in 
the National Forest System. Not every special forest product is found 
on every national forest. The regulations provide regional foresters 
discretion regarding determining free use without a permit up to the 
incidental use harvest levels. Also, the regulations allow forest 
officers to set conditions or deny free use harvest of a special forest 
product for a number of specified reasons. The free use regulations in 
section 223.239 are for personal, non-commercial use rather than large 
scale commercial harvests as noted by one commenter. Regarding 
feasibility or reasonableness of monitoring special forest products, 
although monitoring of established harvest levels is required 
(223.219(c)) the required ``at least once every three fiscal years'' 
time frame may be ``or as otherwise established'' by the regional 
forester (223.219(c)).
    Finally, nothing in the final rule will result in Forest Service 
law enforcement officers engaging in racial profiling.
    Comment: One commenter, a law enforcement officer, expressed 
concern about the 36 CFR 261.6 regulations. The commenter was concerned 
that the existing regulations prohibit the sale or exchange of timber 
or other forest products obtained under free use would not have been 
interpreted as including special forest products or forest botanical 
products.
    Response: The rule revises 36 CFR 261.6(f) to reflect the new free 
use and personal use authorizations contained in subparts G and H. In 
addition, the rule specifies the types of contractual documents 
currently used by the Forest Service, explains the Forest Service's 
interpretation of the term ``other forest products,'' and makes minor 
textual clarifications. The final rule makes these changes as discussed 
in the preamble section titled ``36 CFR 261.6--Timber and other forest 
products.''

Proposed Section 223.240 Indian Tribes and Treaty and Other Reserved 
Gathering Rights

Summary of Changes in Proposed Section 223.240 (Final Rule Section 
223.240)
    Title and minor wording changes for clarification purposes. In 
response to comments, we changed the wording that ``any decision 
restricting tribal off-reservation treaty rights needs to be well 
documented'' to ``Regional Foresters will provide a Tribe with treaty 
or other reserved rights related to special forest products that is 
prohibited from harvesting a special forest product, with written 
documentation supporting the decision.'' This final rule is consistent 
with the Forest Service's trust responsibilities. Further, as mentioned 
in the response titled ``consultation,'' the Forest Service consulted 
with federally-recognized Tribes early on matters related to this rule.
    Comment: A commenter objected that the section-by-section 
discussion introduced significant elements not included or evident in 
the text of the regulations themselves, particularly with regard to 
Tribes and tribal access. Another commenter suggested that principles 
three and four of the International Standard for Sustainable Wild 
Collection of Medicinal and Aromatic Plants (ISSC-MAP) may be useful in 
modifying this section. Those principles are: Principle 3--Complying 
with Laws, Regulations, and Agreements and Principle 4--Respecting 
Customary Rights.
    Response: The section-by-section analysis in the proposed rule did 
not introduce any new significant elements. The section-by-section 
analysis was only intended to further explain the proposed rule. We 
appreciate the comment about the ISSC-MAP information.

Proposed Section 223.241 Disposal of Seized Special Forest Products

Summary of Changes in Proposed Section 223.241 (Final Rule Section 
223.241)
    Minor word and format changes were made to this section. The list 
of parties to whom free use of seized products may be made available, 
was eliminated. The proposed rule appeared more restrictive and change 
was made as the proposed rule language unintentionally limited the 
parties to whom disposal of seized special forest products may be made 
available and also unintentionally appeared to place a priority order 
to the parties listed.

[[Page 79383]]

    Comment: Some commenters expressed the sentiment that it is 
wasteful to destroy seized special forest products/forest botanical 
products. Others indicated that Tribes should be included in the list 
of institutions and/or given preference in the disposition of seized 
special forest products/forest botanical products. One respondent calls 
for the inclusion of provisions for Agency accountability in relation 
to seizure of special forest products/forest botanical products, 
particularly when it occurs in remote areas. Specifically, the 
commenter states that ``identities of the chain of control of evidence 
must be made available to defendants, and defendants must be given a 
written receipt listing the exact weight and a written description of 
the material confiscated, including containers, fasteners, and carrying 
devices.'' Another commenter believes that the list of criteria for 
seized material that cannot be disposed of is too broad and should be 
limited to species listed under the Endangered Species Act list or 
listed under the Convention on International Trade in Endangered 
Species of Wild Fauna and Flora (CITES).
    Response: The Forest Service may make seized products available for 
free use or sale rather than destroy them. The proposed rule appeared 
more restrictive and change was made as the proposed rule language 
unintentionally limited the parties to whom disposal of seized special 
forest products may be made available and also unintentionally appeared 
to place a priority order to the parties listed. All parties, other 
than the person who collected the products illegally, and in any 
priority order may be considered by the Forest Service when making 
seized products available. The Forest Service is not authorized to sell 
or dispose of seized special forest products that are (1) listed or 
proposed for listing as threatened or endangered under the Endangered 
Species Act, (2) identified as prohibited for sale or trade under the 
Convention on International Trade in Endangered Species (CITES); or (3) 
listed on the regional forester's sensitive plant list, species of 
concern or interest, or species of interest list.
    Regarding the chain of custody comment, products harvested 
illegally remain the property of the United States and are recorded in 
the Law Enforcement Officer's evidence log.

Proposed Section 223.242 Supplemental Guidance, Memorandum of 
Agreements and Memorandum of Understandings

Summary of Changes in Proposed Section 223.242
    This section was added to the final rule in response to numerous 
comments regarding the potential need for supplemental guidance, 
memorandums of understanding, and memorandums of agreement for 
effective implementation of the final rule. The Forest Service agrees 
that supplemental guidance and other agreements are important tools 
that may be helpful to promote local collaboration, issue resolution, 
and local implementation of these regulations. Existing Memorandum of 
Agreements and Memorandum of Understandings will be allowed to continue 
but must be made consistent with subparts G and H within 24 months from 
December 29, 2008 or those agreements will terminate. The period of 24 
months was chosen to provide sufficient time for review and 
consultation with Tribes or discussions with other agreement parties in 
the revision process.

Subpart H--Forest Botanical Products

Proposed Sections 223.275; Establishment of a Pilot Program; 223.276 
Applicability; and 223.277 Definitions

Summary of Changes in Proposed Sections 223.275, 223.276, and 223.277 
(Final Rule Sections 223.275, 223.276, and 223.277)
    Minor word changes were made to section 223.275 that clarify the 
pilot program's duration. In addition, minor word changes were made in 
sections 223.276 and 223.277 for clarity.
    Comment: A few commenters asked for clarification regarding the two 
dates presented in the discussion of the forest botanical products 
pilot program (September 30, 2009 versus September 30, 2010).
    Response: The Secretary of Agriculture may collect fees under the 
pilot program authority through September 30, 2009, when the program 
terminates unless extended or made permanent by Congress. Collected 
funds may be spent on items authorized by the pilot program through 
September 30, 2010, as identified in section 223.282, and authorized by 
16 U.S.C. 528.

Proposed Section 223.278 Collection of Fees

Summary of Changes in Proposed Section 223.278 (Final Rule Section 
223.278)
    Language was added to this section to clarify that the fair market 
value of forest botanical products equals the appraised value 
determined in accordance with section 223.222. In addition, the title 
of this section was changed for clarity.
    Comment: Commenters are generally supportive of charging fees for 
commercial harvest of special forest products/forest botanical products 
on national forests, but did not agree with fees for personal harvest 
or for harvesting by Tribes and American Indian individuals. Commenters 
are concerned that if fees are charged, they be set at appropriate 
levels. Some commenters suggested that fees be set at 3% of a product's 
value at the point of harvest. Many commenters stated that the Forest 
Service must or should consult harvesters (in particular), buyers, and/
or their representatives in this and all decision making processes 
required by the proposed regulations. Respondents also stated their 
``belief that the proposed rule does not reflect the intent of 
Congress's 2004 pilot program amendments, which only require the Forest 
Service to collect a portion of the fair market value and program 
administration costs; the original legislation required collection of 
not less than fair market value and all costs.
    Response: Per section 223.279 of this rule, a person may harvest a 
forest botanical product from National Forest System lands free of 
charge for personal, non-commercial use up to the product's personal-
use harvest level. In addition, a permit is not required for personal 
use below a product's incidental use harvest level, which shall be 
determined at the discretion of the regional forester or a subordinate 
officer.
    In response to the comment that fees should be set at 3% of the 
product value, the standard rate established must equal or exceed the 
minimum rates (see section 223.221; FSM 2431.21b; and FSM 2431.31c). 
Forest supervisors are directed to set standard rates at the pre-
harvested fair market value of the product, 10 percent (rather than the 
3 percent suggested by the commenters) of the wholesale market value, 
or the minimum rate, whichever is higher (FSH 2409.18, 87.3).
    Fees are required to be charged for all forest botanical products 
to recover a portion of the fair market value and a portion of the 
costs associated with

[[Page 79384]]

granting, modifying, or monitoring the harvest of forest botanical 
products through permits, contracts, or other authorized instruments 
issued for such products. However, under section 223.280, the Forest 
Service waives the collection of fees otherwise required, pursuant to 
section 223.278, for federally-recognized Tribes seeking to harvest 
forest botanical products for cultural, ceremonial, and/or traditional 
purposes. Such purposes must be non-commercial, and any such harvest 
may be conditioned or denied for reasons similar to those provided in 
section 223.240 of subpart G. This final rule also waives fees for 
Tribes with treaty or other reserved rights seeking to harvest forest 
botanical products for cultural, ceremonial, and/or traditional 
purposes in accordance with such treaty or other reserved rights. Such 
purposes must be non-commercial, and any such harvest may be 
conditioned or denied for reasons similar to those provided in section 
223.240 of subpart G. Tribes with treaty or other reserved rights were 
added to the final rule to recognize their rights to forest botanical 
products for cultural, ceremonial, and/or traditional purposes in 
accordance with such treaty or other reserved rights.
    Regarding the commenter who stated their ``belief that the proposed 
rule does not reflect the intent of Congress's 2004 pilot program 
amendments, which only require the Forest Service to collect a portion 
of the fair market value and program administration costs, the 
responsible forest officer ensures that the sale price of any forest 
botanical product includes a portion of the product's fair market value 
and a portion of the costs incurred by the Department of Agriculture 
(section 223.278). The Forest Service determines the costs incurred by 
the Department of Agriculture associated with granting, modifying, or 
monitoring the authorization for harvest of forest botanical products, 
including the costs of any environmental or other analysis (section 
223.278). The Forest Service only has to collect the sum of the 
portions of fair market value and costs which then make up the sale 
price of the forest botanical product and which must be equal to or 
greater than the forest botanical product's fair market value (section 
223.278). Per Section 223.278, the fair market value of forest 
botanical products is equal to the appraised value, and appraised 
values of forest botanical products are determined in accordance with 
section 223.222.

Proposed Section 223.279 Personal Use Harvest Levels and Waiver of Fees

Summary of Changes in Proposed Section 223.279 (Final Rule Sections 
223.279 and 223.280)
    For clarification, this section 223.279 was split into section 
223.279 Personal use, and section 223.280 Waiver of fees and/or fair 
market value, and minor word and format changes were made. In addition, 
Tribes with treaty or other reserved rights were added to recognize 
their rights to forest botanical products for cultural, ceremonial, 
and/or traditional purposes in accordance with such treaty or other 
reserved rights.
    Comment: Comments included (1) waivers should be provided to all 
federally-recognized Tribes (regardless of applicability of treaty and 
reserved rights), (2) treaty rights do not limit harvesting to non-
commercial purposes, and (3) permits and fees may not be (or should not 
be) required for the exercise of treaty rights. Other commenters 
expressed the belief that personal use harvesting by American Indians 
is different from that of the general public and should be provided for 
differently by the regulations as a whole. Those commenters described 
several key aspects of traditional gathering that may not be 
accommodated by the current regulations. These aspects include the 
frequency of traditional gathering, which, for many species and 
materials, can occur year round or spontaneously in conjunction with 
other activities, and the inability to predict harvest conditions such 
as location and timing in advance. Further, commenters noted that 
traditional gathering is often a group activity and because of cultural 
norms and roles, ``personal use'' gathering often involves harvesting 
amounts to share with others and/or provide for community functions.
    At least one commenter is not opposed to requiring free permits for 
American Indians. Others suggested (1) issuing American Indians annual 
permits, for the entire traditional gathering area that apply to the 
full range of species and materials harvested, (2) making tribal, 
family and/or group permits available, and (3) ensuring that allowable 
harvest levels accommodate American Indian cultural norms.
    Several commenters questioned the methods for setting personal use 
levels, suggesting that doing so is culturally dependent and requires a 
knowledge base that forest Service personnel rarely possess. One 
commenter asserted that they should determine what qualifies as 
traditional gathering, while another commenter stated that they should 
be involved in setting personal use levels for non-treaty harvests. A 
commenter expressed concern that personal use harvest limits will be 
set for recreational use levels and suggested that subsistence be 
established as a separate harvest level category.
    Another commenter stated that legislation provides for broad 
authority to waive fees under the regulations. They proposed that fees 
be waived when gathering is done for: (1) Educational purposes, (2) 
non-commercial cultural, ceremonial and/or traditional purposes by 
people from any ethnic or cultural background (with examples of such 
purposes given), or (3) ``salvage because other management activities 
will destroy or damage the product.''
    Response: Section 223.279 of the rule references section 223.240 
which states, in part, Tribes with treaty or other reserved rights 
retain their rights to harvest special forest products in accordance 
with the terms of such rights.
    It was never the Agency's intent to require issuance of a permit or 
charge a fee for every cone, berry, or nut. The rule is being clarified 
at 223.239 to allow incidental amounts (those at or below the personal 
use harvest level) of free use without a permit, as determined by the 
regional forester or a subordinate officer. Section 223.279(c) 
references section 223.239 subpart G regarding personal use of a forest 
botanical product.
    The responsible forest officer is required, per section 223.278, to 
ensure that the sale price of any forest botanical product includes at 
least a portion of the product's fair market value of the product and a 
portion of the costs associated with administering the pilot program. 
Section 223.221 requires the Chief to establish minimum rates for the 
sale of special forest products or groups of special forest products. 
In addition, section 223.222 requires the Chief to determine the 
appraised value of special forest products, with valid methods 
including, but not limited to, transaction evidence appraisals, 
analytical appraisals, comparison appraisals, and independent estimates 
based on average investments. Special forest products are required to 
be sold at minimum rates or appraised values, whichever is higher.
    Fees are required to be charged for all forest botanical products 
to recover a portion of the fair market value and a portion of the 
costs associated with granting, modifying, or monitoring the harvest of 
forest botanical products through permits, contracts, or other 
authorized instruments issued for such

[[Page 79385]]

products. However, under section 223.280, the Forest Service waives the 
collection of fees required, pursuant to section 223.278, for 
federally-recognized Tribes seeking to harvest forest botanical 
products for cultural, ceremonial, and/or traditional purposes. Such 
purposes must be non-commercial, and any such harvest may be 
conditioned or denied for reasons similar to those provided in section 
223.240 of subpart G. This final rule also waives fees for Tribes with 
treaty or other reserved rights seeking to harvest forest botanical 
products for cultural, ceremonial, and/or traditional purposes in 
accordance with such treaty or other reserved rights. Such purposes 
must also be non-commercial, and any such harvest may be conditioned or 
denied for reasons similar to those provided in section 223.240 of 
subpart G. The Forest Service also waives the collection of fees 
otherwise required, under section 223.280, pursuant to section 223.278 
when a regional forester or forest supervisor, having proper 
authorization from the Chief, makes a written determination that the 
harvest of a specified forest botanical product will facilitate non 
commercial scientific research such as species propagation or 
sustainability, or a forest botanical product is salvage because other 
management activities will destroy or damage the product.
    Free use amounts authorized by the designated official should not 
exceed amounts under 36 CFR 223.8.

Proposed Section 223.280 Monitoring and Revising of Harvest Levels

Summary of Changes in Proposed Section 223.280 (Final Rule Section 
223.281)
    This section was renumbered to 223.281. For clarification purposes, 
the word ``sustainable'' was added to the title of this section, to 
read ``Monitoring and Revising Sustainable Harvest Levels.'' Minor word 
changes were also made to this section. Further, the proposed rule 
included federally-recognized Tribes seeking to harvest forest 
botanical products for cultural, ceremonial, and/or traditional 
purposes. Tribes with treaty or other reserved rights are now being 
added to recognize their rights to forest botanical products for 
cultural, ceremonial, and/or traditional purposes in accordance with 
such treaty or other reserved rights.
    Comment: About one-fifth of the commenters discussed the 3-year 
monitoring cycle required by section 223.280, as set forth in section 
223.219. Some stressed that many special forest products/forest 
botanical products exhibit high degrees of inter-annual variability, 
making a 3-year return cycle too long for some species and too short 
for others. These comments suggest adopting species-specific monitoring 
cycles that match ``the cycles of the products being harvested.''
    Several comments suggested that the Forest Service lacks the 
expertise and/or resources to conduct the required monitoring. Nearly 
all believe that the proposed regulations should be revised to require 
the involvement of commercial harvesters, buyers, and/or non-commercial 
local gatherers in the development and implementation of sound 
monitoring processes. Many also advocated required training for Forest 
Service personnel on special forest product/forest botanical product 
monitoring and harvester involvement. One commenter further suggested 
that involving harvesters in the monitoring effort would accomplish 
needed monitoring with fewer Forest Service resources. Some of these 
commenters also noted the importance of using the best available 
science for monitoring and revising harvest limits, with one suggesting 
that Forest Service and other researchers could provide valuable 
assistance in this regard. Two commenters stated that required 
monitoring should include monitoring of site conditions.
    Some commenters were concerned about the reasonableness and 
feasibility of monitoring every species and material harvested on 
national forests. A clear distinction was drawn between commercial and 
non-commercial harvests in this regard, with the commenter requesting 
that they be allowed flexibility to monitor what they known to be 
ecologically and/or socially or culturally sensitive. Another stated 
that monitoring sustainability will be difficult if free use is not 
tracked. One commenter suggested that issuing free use permits to 
tribal members and individuals could serve as a monitoring strategy.
    Another commenter requested that public gathering not be restricted 
unless monitoring indicates a clear need to do so. One commenter 
questioned the adequacy of the Forest Service's Timber Information 
Manager (TIM) database for monitoring or satisfying the requirement 
that the baseline levels be set based on the previous 3 years. Another 
commenter believes that the monitoring provisions are inadequate and 
calls for at least annual monitoring after sound baselines are 
established.
    Response: The comments in this section are similar to those in 
section 223.219 and have been addressed there.

Proposed Section 223.281 Disposition of Collected Fees

Summary of Changes in Proposed Section 223.281 (Final Rule Section 
223.282)
    Section was renumbered to 223.282 due to changes made to 223.279 
and 223.280. In addition, minor word and format changes were made to 
the title and regulatory text for clarification purposes.
    Comment: Some commenters felt that Tribes may be legally entitled 
to a portion of the fees collected from the sale of forest botanical 
products. Other commenters stated funds should be spent to enforce the 
program, conduct inventory and monitoring, manage special forest 
products and forest botanical products, and develop and protect 
traditional and cultural properties.
    Response: Federal ownership of timber and other forest products, 
and the Forest Service's authority to administer the products, collect 
monies from the sale of such products, as well as the authority to 
retain, use, and distribute the monies collected, is derived from a 
number of statutes, including the Organic Administration Act of June 4, 
1897 (Ch. 2, 30 Stat. 11, as amended: 16 U.S.C. 473-475, 477-482, 551), 
NFMA, and the pilot program law. There are no provisions in these 
statutes authorizing the Secretary of Agriculture or the Forest Service 
to distribute a portion of the fees collected for forest products to 
Tribes.
    The Agency agrees with the commenters who suggested that fees 
collected under the pilot program should be used to pay for costs 
associated with conducting inventories of forest botanical products and 
management of the products. The funds collected pursuant to the pilot 
program law will be used in accordance with section 223.282.

Regulatory Certifications

Regulatory Impact

    This final rule has been reviewed under U.S. Department of 
Agriculture procedures and Executive Order 12866 on Regulatory Planning 
and Review as amended by 13422. OMB has determined that this is not a 
significant rule. This final rule 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 final rule will not interfere with an action 
taken or planned by another agency nor raise new legal or policy

[[Page 79386]]

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 final 
rule is not subject to OMB review under Executive Order 12866.

Proper Consideration of Small Entities

    This final rule has been considered in light of Executive Order 
13272 regarding consideration of small entities and the Small Business 
Regulatory Enforcement Act of 1996 (SBREFA), which amended the 
Regulatory Flexibility Act (5 U.S.C. 601 et seq.). It has been 
determined that this action will not have a significant economic impact 
on a substantial number of small entities as defined by the Executive 
Order. The final rule will have no adverse impact on small business, 
small not-for-profit organizations, or small units of government.

Environmental Impact

    This final rule has no direct or indirect effect on the 
environment. Section 31.1b of Forest Service Handbook 1909.15 (57 FR 
43180; September 18, 1992) excludes from documentation in an 
environmental assessment or impact statement rules, regulations, or 
policies to establish Service-wide administrative procedures, program 
processes, or instructions that do not significantly affect the quality 
of the human environment. The Department's assessment is that this 
final rule falls within this category of actions, and that no 
extraordinary circumstances exist that would require preparation of an 
environmental assessment or environmental impact statement.

No Takings Implications

    This final rule has been analyzed in accordance with the principles 
and criteria contained in Executive Order 12630, and it has been 
determined that this action will not pose the risk of a taking of 
private property.

Civil Justice Reform

    This final rule has been reviewed under Executive Order 12988, 
Civil Justice Reform. When the final rule is adopted, (1) all State and 
local laws and regulations that conflict with the final rule or that 
would impede full implementation of this rule will be preempted, (2) no 
retroactive effect will be given to the final rule; and (3) the 
Department will not require the use of administrative proceedings 
before parties could 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 Department has assessed the effects of this final rule on 
State, local, and tribal governments and the private sector. This 
action will 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.

Federalism

    The Department has considered this final rule under the 
requirements of Executive Order 13132, Federalism, and concluded that 
this action will not have substantial direct effects on the States, on 
the relationship between the Federal government and the States, or on 
the distribution of power and responsibilities among the various levels 
of government. Therefore, the Department has determined that no further 
assessment of federalism implications is necessary at this time.

Consultation and Coordination With Indian Tribal Governments

    Pursuant to Executive Order 13175, Consultation and Coordination 
with Indian Tribal Governments, the Forest Service conducted a 
preliminary assessment of the impact of this final rule on Indian 
Tribal Governments and it determined that the rule does have tribal 
implications. Therefore, advance consultation with Tribes was required.
    Consultation in the form of opportunity to review and comment on 
these regulations and accompanying Forest Service Handbook direction 
was provided to all interested federally-recognized Tribes in all 
Forest Service regions. Regional foresters and forest supervisors 
initiated consultations with Tribal representatives. A 60-day comment 
period was established, however many Tribes asked for additional time 
for consultation, which was granted. Recommendations from the Tribes 
have been incorporated, as appropriate, into this final rule.

Controlling Paperwork Burdens on the Public

    This final rule does not contain any recordkeeping or reporting 
requirements or other information collection requirements as defined in 
5 CFR part 1320, other than:
    (a) 0596-0085 Forest Products Free Use Permit, Forest Products 
Removal Permit/Cash Receipt, Forest Products Sale Permit/Cash Receipt;
    (b) 0596-0066 Bid for Advertised Timber; and
    (c) 0596-0086 Operating Plans.
    Therefore, this final rule imposes 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.

Energy Effects

    This final rule has been reviewed under Executive Order 13211 of 
May 18, 2001, and it has been determined that it has no effect on the 
supply, distribution, or use of energy. This final rule is 
administrative in nature and, therefore, the preparation of a statement 
of energy effects is not required.

List of Subjects

36 CFR Part 223

    Administrative practice and procedure, Exports, Forests and forest 
products, Government contracts, National forests, Reporting and 
recordkeeping requirements.

36 CFR Part 261

    Law enforcement, National forests.

0
Therefore, for the reasons set forth in the preamble, the Forest 
Service amends 36 CFR Parts 223 and 261 as follows:

PART 223--SALE AND DISPOSAL OF NATIONAL FOREST SYSTEM TIMBER, 
SPECIAL FOREST PRODUCTS, AND FOREST BOTANICAL PRODUCTS

0
1. Revise the authority citation for part 223 to read as follows:

    Authority: 90 Stat. 2958, 16 U.S.C. 472a; 98 Stat. 2213, 16 
U.S.C. 618, 104 Stat. 714-726, 16 U.S.C. 620-620j, 113 Stat. 1501a, 
16 U.S.C. 528 note; unless otherwise noted.


0
2. Revise the part heading to read as set forth above.


0
3. Add subparts G and H to read as follows:
Subpart G--Special Forest Products
223.215 Applicability.
223.216 Special Forest Products definitions.
223.217 Authority to dispose of special forest products.
223.218 Consistency with plans, environmental standards, and other 
management requirements.
223.219 Sustainable harvest of special forest products.
223.220 Quantity determination.

Appraisal and Pricing

223.221 Establishing minimum rates.
223.222 Appraisal.

Contract and Permit Conditions and Provisions

223.223 Advance payment.

[[Page 79387]]

223.224 Performance bonds and security.
223.225 Term.
223.226 Term adjustment for force majeure delay.

Advertisement and Bids

223.227 Sale advertisement.
223.228 Contents of advertisement.
223.229 Contents of prospectus.
223.230 Bid restriction on resale of incomplete contracts, permits, 
or other instruments.
223.231 Bidding methods.
223.232 Disclosure of relation to other bidders.

Award of Contracts, Permits, or Other Authorizing Instruments

223.233 Award to highest bidder.
223.234 Determination of responsibility.
223.235 Unilateral delay, suspension, or modification of contracts, 
permits, or other instruments authorizing the sale of special forest 
products.
223.236 Unilateral termination.
223.237 Request for delay, suspension, modification, or termination.
223.238 Free use authorization to U.S. Army and Navy.
223.239 Free use by individuals.
223.240 Tribes and treaty and other reserved rights.
223.241 Disposal of seized special forest products.
223.242 Supplemental guidance, memorandums of agreement, and 
memorandums of understanding.
Subpart H--Forest Botanical Products
223.275 Establishment of a pilot program.
223.276 Applicability.
223.277 Forest botanical products definition.
223.278 Sale of forest botanical products and collection of fees.
223.279 Personal use.
223.280 Waiver of fees and/or fair market value.
223.281 Monitoring and revising sustainable harvest levels.
223.282 Deposit and expenditure of collected fees.

Subpart G--Special Forest Products


Sec.  223.215  Applicability.

    The regulations contained in this subpart govern the disposal of 
special forest products from National Forest System lands through sale 
and free use. Pursuant to the Department of the Interior and Related 
Agencies Appropriations Act of 2000 (Pub. L. 106-113, Div. B, sec. 
1000(a)(3), 113 Stat. 135 (sec. 339 of Title III of H.R. 3423)), as 
amended in 2004 by Section 335 of Public Law 108-108, special forest 
products that are also forest botanical products shall be sold, or 
offered for free use, subject to the requirements of subpart H of this 
part, until termination of the forest botanical pilot program. A 
commercial sale of special forest products shall be governed by a 
contract, permit, or other authorizing instrument. Free use above the 
incidental-use harvest level shall be conducted under a permit, unless 
otherwise provided.


Sec.  223.216  Special Forest Products definitions.

    As used in this subpart:
    Person: Any individual, partnership, corporation, association, 
Tribe, or other legal entity.
    Special forest products: Products collected from National Forest 
System lands that include, but are not limited to, bark, berries, 
boughs, bryophytes, bulbs, burls, Christmas trees, cones, ferns, 
firewood, forbs, fungi (including mushrooms), grasses, mosses, nuts, 
pine straw, roots, sedges, seeds, transplants, tree sap, wildflowers, 
fence material, mine props, posts and poles, shingle and shake bolts, 
and rails. Special forest products do not include sawtimber, pulpwood, 
non-sawlog material removed in log form, cull logs, small roundwood, 
house logs, telephone poles, derrick poles, minerals, animals, animal 
parts, insects, worms, rocks, water, and soil.


Sec.  223.217  Authority to dispose of special forest products.

    The Forest Service has authority to dispose of special forest 
products located on National Forest System lands pursuant to the 
Multiple-Use Sustained-Yield Act of 1960, as amended (16 U.S.C. 528-
531); the National Forest Management Act of 1976, as amended (16 U.S.C. 
472a et seq.); and, the Forest and Rangeland Renewable Resources 
Planning Act of 1974, as amended (16 U.S.C. 1600-1614).


Sec.  223.218  Consistency with plans, environmental standards, and 
other management requirements.

    The disposal of special forest products from National Forest System 
lands shall be consistent with applicable land management plans. Each 
contract, permit, or other authorizing instrument shall include, as 
appropriate, provisions requiring the person or user to:
    (a) Provide fire protection and suppression;
    (b) Protect natural resources;
    (c) Regenerate harvested species after harvesting operations;
    (d) Minimize soil erosion;
    (e) Maintain favorable conditions of water flow and quality;
    (f) Minimize adverse effects on, protect, or enhance other national 
forest resources, uses, and improvements; and
    (g) Deposit voucher specimens with a curator of a nationally 
recognized herbarium in North America as identified in the Index 
Herbariorum when the permit, contract, or other authorizing instrument 
allows bioprospecting.


Sec.  223.219  Sustainable harvest of special forest products.

    (a) Sustainable harvest levels. Prior to offering a special forest 
product for sale or free use, the responsible forest officer must 
determine the product's sustainable harvest level. A special forest 
product's sustainable harvest level is the total quantity of the 
product that can be harvested annually in perpetuity on a sustained 
yield basis. Responsible forest officers shall not authorize harvest or 
free use of special forest products in an amount exceeding known 
sustainable harvest levels. In determining a sustainable harvest level, 
the responsible forest officer may consider harvest levels of the 
product for the previous three years, if such information is available. 
Responsible forest officers may consider factors such as year-to-year 
and site-to-site variability, climate, weather change, geographic 
scale, and scientific data available prior to making their 
sustainability determination and establishing monitoring time frames 
consistent with paragraph (c) of this section. Responsible forest 
officers will consult with Tribes, to the extent appropriate, to 
determine sustainable harvest levels based on historical information. 
In addition, responsible forest officers may consult with other 
appropriate parties to determine sustainable harvest levels based on 
historical information.
    (b) Harvest of protected species. The sale or free use of special 
forest products listed or proposed for listing as endangered or 
threatened under the Endangered Species Act is prohibited, except as 
authorized by the U.S. Fish and Wildlife Service. Moreover, regional 
guidelines will identify when the sale or free use of any special 
forest product listed on the Regional Forester's sensitive plant list, 
species of concern list, species of interest list, or protected under 
the Convention on International Trade in Endangered Species may be 
authorized.
    (c) Monitoring of established harvest levels. At least once every 
three fiscal years, or as otherwise established by the Regional 
Forester, the Forest Service shall monitor the effects of harvesting on 
the sustainability of special forest products. Such monitoring may 
include, but is not limited to, on-site examination of the product, 
including both harvested and non-harvested areas, and a review of past 
and projected harvest levels to the extent such information is 
available.

[[Page 79388]]

    (d) Revision of harvest levels. The sustainable harvest level for a 
special forest product may be increased or decreased, as appropriate, 
based on monitoring.


Sec.  223.220  Quantity determination.

    Sale contracts, permits, or other authorizing instruments may 
provide for determining the quantity of special forest products by 
scaling, measuring, weighing, counting, or other reliable means.

Appraisal and Pricing


Sec.  223.221  Establishing minimum rates.

    The Chief of the Forest Service shall establish minimum rates for 
the sale of special forest products or groups of special forest 
products. Products must be sold for appraised value or minimum rates, 
whichever is higher. No products may be sold or harvested for less than 
minimum rates except to provide for the removal of insect infested, 
diseased, dead or distressed products.


Sec.  223.222  Appraisal.

    The Chief of the Forest Service shall determine the appraised value 
of special forest products. Valid methods to determine appraised value 
include, but are not limited to, transaction evidence appraisals, 
analytical appraisals, comparison appraisals, and independent estimates 
based on average investments. Special forest products must be sold at 
minimum rates or appraised value, whichever is higher.

Contract and Permit Conditions and Provisions


Sec.  223.223  Advance payment.

    Contracts, permits, or other authorizing instruments for the sale 
of special forest products shall require advance payment, unless the 
contract, permit, or instrument authorizes the person to furnish a 
payment guarantee satisfactory to the Forest Service. Advance payments 
found to be in excess of amounts due the United States shall be 
refunded to the person or their successor in interest, subject to the 
requirements of the Debt Collection Improvement Act.


Sec.  223.224  Performance bonds and security.

    A contract, permit, or other authorizing instrument for the sale of 
special forest products may require the person to furnish a performance 
bond or other security for satisfactory compliance with its terms.


Sec.  223.225  Term.

    The term of any contract, permit, or other authorizing instrument 
for the sale of special forest products shall not exceed 10 years, 
unless the Secretary of Agriculture finds that better utilization of 
the various forest resources consistent with the Multiple-Use 
Sustained-Yield Act of 1960, as amended (16 U.S.C. 528-531) will 
result. Any such finding by the Secretary of Agriculture shall be made 
in writing.


Sec.  223.226  Term adjustments for force majeure delay.

    Contracts or other authorizing instruments for the sale of special 
forest products, excluding permits, may contain a provision allowing 
the term to be extended if circumstances beyond the person's reasonable 
control delay performance. In determining whether such an extension is 
appropriate, responsible forest officers shall consider the value of 
the products or species, the length and type of authorizing instrument, 
the need for early/accelerated harvest, and any other appropriate 
factors. Circumstances beyond a person's reasonable control may 
include, but are not limited to, acts of God, acts of the public enemy, 
acts of the Government, labor disputes, fires, insurrections, and 
floods. The responsible forest officer may grant such an extension upon 
finding:
    (a) Circumstances beyond the person's reasonable control delayed 
performance; and
    (b) The person has diligently performed in accordance with the 
contract or other authorizing instrument.

Advertisement and Bids


Sec.  223.227  Sale advertisement.

    (a) The Forest Service shall advertise any special forest products 
sales with an appraised value equal to or greater than $10,000 for at 
least 30 days, except as provided in paragraph (c) of this section.
    (b) When the sale's appraised value is less than $10,000, the 
Forest Service may sell the products without advertisement; however, if 
there is competitive interest in a sale valued at less than $10,000, 
the Forest Service shall advertise the sale for no less than 7 days.
    (c) Notwithstanding paragraphs (a) and (b) of this section, the 
Forest Service may, at its discretion, sell any special forest products 
without advertisement, or advertise a special forest products sale for 
a period less than 30 days if:
    (1) Deterioration of a special forest product threatens its value; 
or
    (2) The products were previously advertised for competitive bidding 
and no satisfactory bids were received; or
    (3) The products are remaining from expired, cancelled, or 
abandoned contracts, permits, or other authorizing instruments.


Sec.  223.228  Contents of advertisement.

    The Forest Service shall include the following information in an 
advertisement for the sale of special forest products:
    (a) The location and estimated quantities of special forest 
products offered for sale;
    (b) The time and place at which sealed bids will be opened in 
public;
    (c) A provision asserting the Agency's right to reject any and all 
bids;
    (d) The place where complete information on the offering may be 
obtained; and
    (e) Notice that a prospectus is available to the public and to 
interested potential bidders.


Sec.  223.229  Contents of prospectus.

    The prospectus for the sale of special forest products shall 
include the following:
    (a) The minimum acceptable value or unit price for a product and 
the amount or rate of any deposits required in addition to the unit 
price of a product;
    (b) The amount of the bid guarantee that must accompany each bid;
    (c) The amount of the deposit or downpayment the successful bidder 
must make and the time-frame for making such deposit or downpayment;
    (d) The location and area of the sale, including acreage;
    (e) The estimated volumes, quality, size, or other appropriate 
measure for the special forest products;
    (f) A description of any special harvest and removal requirements 
for the sale;
    (g) The method of bidding that the Forest Service will employ; 
sealed bid or sealed bid followed by oral auction;
    (h) The type of contract, permit, or other authorizing instrument 
to be used for the sale;
    (i) The termination date and normal operating season, if any, of 
the contract, permit, or other authorizing instrument;
    (j) The amount of performance bond required; and
    (k) Such additional information about the sale as the Forest 
Service deems appropriate in order to encourage bidders to perform on-
site investigations.


Sec.  223.230  Bid restriction on resale of incomplete contracts, 
permits, or other instruments.

    In any resale of special forest products remaining from a previous 
sale, the Forest Service shall not consider a bid

[[Page 79389]]

submitted by a person who failed to complete or defaulted the original 
contract, permit, or other instrument authorizing the sale, or from any 
affiliate of such person, except when such consideration serves the 
public interest.


Sec.  223.231  Bidding methods.

    The Contracting Officer or designated forest officer shall offer 
advertised sales of special forest products through sealed bid or 
sealed bid followed by oral auction. The method selected shall:
    (a) Ensure open and fair competition;
    (b) Ensure that the Federal Government receives minimum rates or 
appraised value, whichever is higher;
    (c) Be consistent with the National Forest Management Act and other 
applicable federal laws;
    (d) Require, as a prerequisite to participation in an oral auction, 
that a bidder submit a written sealed bid at least equal to the minimum 
acceptable bid price(s) specified in the prospectus. The Forest Service 
shall not accept a bid at oral auction that is less than the bidder's 
initial sealed bid; and
    (e) Specify the use of sealed bids or a mix of bidding methods in 
the affected area where there is a reasonable belief that collusive 
and/or abnormal bidding practices may be occurring.


Sec.  223.232  Disclosure of relation to other bidders.

    The Forest Service may require any prospective bidder for special 
forest products to disclose its relationship with other potential 
bidders or operators. Such disclosure may include a certified statement 
listing:
    (a) Stockholders or members of the bidder's firm;
    (c) Officers;
    (d) Members of the board of directors; or
    (e) Holders of bonds, notes, or other types of debt.

Award of Contracts, Permits, or Other Authorizing Instruments


Sec.  223.233  Award to highest bidder.

    (a) The Forest Service shall award contracts, permits, or other 
authorizing instruments for advertised sales as follows:
    (1) The Forest Service will award a special forest products sale to 
the responsible bidder that submits the highest bid that conforms to 
the sale conditions in the prospectus.
    (2) If the highest bidder cannot meet the conditions for the sale, 
as specified in the prospectus, the Forest Service may:
    (i) Reject all bids and reoffer the sale, or
    (ii) Offer the award at the high bid level to the next highest 
qualified bidder until the award is accepted or refused by all of the 
conforming bidders.
    (iii) In the event of a tie between two or more responsible high 
bidders submitting conforming bids, the Forest Service shall award the 
sale by drawing of lots.
    (iv) If no bids meet the specified conditions in the sale's 
prospectus, or if there are other irregularities in the bidding 
process, the Forest Service may reject all bids, and, at its 
discretion, reoffer the sale.
    (b) [Reserved]


Sec.  223.234  Determination of responsibility.

    (a) A Contracting Officer shall not award a contract, permit, or 
other instrument authorizing the sale of special forest products to a 
declared high bidder unless that officer makes an affirmative 
determination that the person is responsible. In the absence of 
information clearly establishing that the declared high bidder is 
responsible, the Contracting Officer shall conclude that the declared 
high bidder is not responsible.
    (b) In order to make an affirmative determination of 
responsibility, the Contracting Officer must find that:
    (1) The declared high bidder has adequate financial resources to 
perform the contract, permit, or other authorizing instrument, or the 
ability to obtain such resources;
    (2) The declared high bidder is able to complete the contract, 
permit, or other authorizing instrument within the relevant term, 
taking into consideration the declared high bidder's other existing 
commercial and governmental obligations;
    (3) The declared high bidder has a satisfactory record of integrity 
and business ethics;
    (4) The declared high bidder has or is able to obtain equipment and 
supplies suitable for harvesting the special forest product(s) and for 
meeting applicable resource protection requirements;
    (5) The declared high bidder is otherwise qualified and eligible to 
receive an award of a contract, permit, or other authorizing instrument 
under all applicable laws and regulations;
    (6) The declared high bidder has a satisfactory performance record 
on contracts, permits, and other agreements with the U.S. Government. 
Failure to apply sufficient diligence and perseverance to perform a 
contract, permit, or other instrument is strong evidence that a 
declared high bidder is not responsible. A declared high bidder that 
is, or has been deficient in performance shall be deemed not 
responsible, unless the declared high bidder demonstrates that the 
deficiency arose from circumstances beyond their reasonable control.
    (c) Affiliated concerns, as defined in 36 CFR 223.49(a)(5), are 
normally considered separate entities in determining whether the 
declared high bidder that is to perform the contract meets the 
applicable standards for responsibility. However, the responsible 
Forest Officer shall consider an affiliate's past performance and 
integrity when they may adversely affect the responsibility of the 
declared high bidder.


Sec.  223.235  Unilateral delay, suspension, or modification of 
contracts, permits, or other instruments authorizing the sale of 
special forest products.

    (a) Reasons for delay, suspension or modification. The Forest 
Service may unilaterally delay, suspend, or modify any contract, 
permit, or instrument authorizing the sale or free use of special 
forest products for any of the following reasons:
    (1) To prevent actual or potential harm to the environment, 
including without limitation, harm to land, water, air, habitat, 
plants, animals, cave resources, or cultural resources;
    (2) To ensure consistency with land management plans or other 
management documents;
    (3) To conduct environmental analyses, including, without 
limitation, consultation under the Endangered Species Act of 1973, 16 
U.S.C. 1531, et seq;
    (4) Existing or threatened litigation that might affect or involve 
a person's harvest of special forest products; or
    (5) For any reasons or other conditions set forth in the contract, 
permit, or other authorizing instrument governing the sale.
    (b) Compensation. (1) The Forest Service may compensate a person 
for the unilateral delay, suspension or modification of a contract, 
permit, or other authorizing instrument in accordance with the 
applicable provisions set forth in such document or, in the absence of 
such provisions, in accordance with applicable Forest Service methods 
and procedures in effect when a claim for compensation is submitted, 
giving due consideration to the cause, duration, and financial impact 
of the delay, suspension or modification.
    (2) A person submitting a claim must comply with claim provisions 
in the governing contract, permit, or other authorizing instrument, or, 
in the absence of such provisions, must submit a written claim for 
compensation

[[Page 79390]]

accompanied by supporting documentation that fully substantiates the 
claim.
    (c) Authority to unilaterally delay, suspend or modify. The 
Contracting Officer administering the sale or a responsible superior 
officer may delay, suspend, or modify the contract, permit, or other 
authorizing instrument by issuing instructions to a person to delay, 
suspend, or modify operations. Such instructions to delay, suspend or 
modify shall be issued to a person in writing, except when exigent 
circumstances warrant oral communication, in which case the officer 
shall promptly follow-up in writing.


Sec.  223.236  Unilateral termination.

    (a) Reasons for Unilateral Termination. The Forest Service may 
unilaterally terminate a contract, permit, or other instrument 
authorizing the sale or free use of special forest products for any of 
the following reasons:
    (1) Any of the reasons provided in Sec.  223.235(a);
    (2) Material breach or continued violation of the contract, permit 
or other authorizing instrument;
    (3) Violation of any Federal or State laws or regulations related 
to:
    (i) Obtaining, attempting to obtain, selling, trading, or 
processing special forest products;
    (ii) Obtaining, attempting to obtain, or performing a public 
contract or subcontract;
    (iii) Harming or damaging public lands or protected species; or
    (iv) Business integrity, honesty, or responsibility.
    (b) Compensation. (1) The Forest Service may compensate a person 
for the unilateral termination of a contract, permit, or other 
authorizing instrument in accordance with the applicable provisions set 
forth in such document or, in the absence of such provisions, in 
accordance with applicable Forest Service methods and procedures in 
effect when a claim for compensation is submitted, giving due 
consideration to the cause, duration, and financial impact of the 
termination.
    (2) A person submitting a claim must comply with claim provisions 
in the governing contract, permit, or other authorizing instrument, or, 
in the absence of such provisions, must submit a written claim for 
compensation accompanied by supporting documentation that fully 
substantiates the claim.
    (3) No compensation shall be provided if the unilateral termination 
is due in whole or in part to the reasons set forth at Sec.  
223.236(a)(2) or (3).
    (c) Authority to unilaterally terminate. The Chief, or the Chief's 
designee, has the authority to unilaterally terminate a contract, 
permit, or other instrument authorizing the sale or free use of special 
forest products. Any such termination shall be issued in writing, 
except when exigent circumstances warrant oral communication, in which 
case a written communication shall follow promptly.


Sec.  223.237  Request for delay, suspension, modification, or 
termination.

    (a) Request. A person authorized to harvest special forest products 
may request delay, suspension, modification, or termination of their 
contract, permit, or other authorizing instrument pursuant to the 
provisions set forth in the contract, permit, or instrument, if any, or 
for another reasonable cause, including without limitation, 
catastrophic damage to the product or substantially changed market 
conditions. Any such request must be submitted in writing and include a 
detailed explanation of all relevant circumstances supporting the 
request.
    (b) Response. The Forest Service shall respond to any request for 
delay, suspension, modification, or termination in accordance with 
applicable provisions in the contract, permit, or other authorizing 
instrument, or, in the absence of such provisions, respond in a manner 
that is reasonable in light of the request's circumstances. The Forest 
Service may deny any request, in whole or in part, in accordance with 
the provisions of the relevant contract, permit, or instrument, or, in 
the absence of such provisions, at the Agency's discretion.
    (c) Authority. The Contracting Officer administering a sale or a 
superior officer has the authority to deny or grant any request by a 
person authorized to harvest special forest products to delay, modify, 
suspend, or terminate a contract, permit, or other authorizing 
instrument. The Forest Service's response to a request for delay, 
modification, suspension, or termination shall be issued in writing, 
except when exigent circumstances warrant oral communication, in which 
case a written communication shall follow promptly.


Sec.  223.238  Free use authorization to U.S. Army and Navy.

    Subject to delegations of authority by the Chief, Regional 
Foresters may approve the harvest of special forest products by the 
U.S. Army and Navy for the purposes identified at 16 U.S.C. 492.


Sec.  223.239  Free use by individuals.

    (a) Free use. A person may harvest a special forest product from 
National Forest System lands free of charge for personal, non-
commercial use up to the amount or quantity authorized by a designated 
Forest Service officer, a Forest Supervisor, or a Regional Forester, as 
delegated at 36 CFR 223.8.
    (b) Free use without a permit up to the incidental use harvest 
level. No permit is required for the free use of a special forest 
product at or below that product's incidental-use harvest level, which 
shall be determined at the discretion of the regional forester or a 
subordinate officer. The incidental use harvest level covers small 
amounts of special forest products, such as cones, mushrooms, berries, 
acorns, black walnuts, or medicinal roots. Any free use of a special 
forest product that does not have an incidental-use harvest level is 
subject to this section's permit requirements.
    (c) Free-use permit requirement. No person seeking free use of a 
special forest product, except one identified in Sec.  223.239(e), may 
harvest a special forest product above the product's incidental-use 
harvest level without submitting an application to a forest officer and 
obtaining a free-use permit, unless the permit requirement has been 
waived for a specific special forest product in a designated free-use 
area.
    (d) Contents of the permit. The permit shall indicate the type, 
amount, and/or value of the product to be harvested, the permit's 
duration, and shall contain other restrictions and requirements as 
appropriate.
    (e) Free use without a permit for members of Tribes with treaty or 
other reserved rights related to special forest products. A member of a 
Tribe with treaty or other reserved rights related to special forest 
products retains his/her ability to harvest such products in full 
accordance with existing rights, including free-use harvest without 
obtaining a free-use permit, as specified in treaty or other reserved 
rights.
    (f) Free use without a permit upon the request of the governing 
body of a Tribe. At the Agency's discretion, responsible forest 
officers may, upon the request of an authorized representative of the 
governing body of a Tribe, issue a permit that would not otherwise be 
required under paragraph (e) of this section to a Tribe with treaty or 
other reserved rights related to special forest products for the free 
use of a specified quantity of special forest products. That Tribe may 
then allocate specified quantities of the special forest product(s) to 
individual Tribal members, up to the maximum amount specified in the 
Tribal free-use permit. Any Tribe issued such a permit must provide the 
Forest Service with

[[Page 79391]]

information related to the permitted harvest, upon request.
    (g) Free-use restrictions. A Forest Officer may set conditions on 
the free-use harvest of a special forest product or deny the free use 
of a special forest product. Reasons for denying free-use access or 
setting conditions on free use, except as specified in Sec.  223.240, 
may include, but are not limited to:
    (1) Ensuring public safety;
    (2) Preventing interference with Forest Service and/or commercial 
operations;
    (3) Ensuring the sustainability of a special forest product; or
    (4) Otherwise protecting National Forest System land.
    (h) Unilateral termination of a free-use permit. The responsible 
forest officer, or any superior officer, may terminate a free use 
permit without compensation at any time for reasons including, but not 
limited to, resource protection, weather factors, fire season, road 
access, conflicts with other users, or permit violations.
    (i) Subsistence in Alaska. This section does not affect subsistence 
uses implemented under Title VIII of the Alaska National Interest Lands 
Conservation Act (16 U.S.C. 3101-3126).


Sec.  223.240  Tribes and treaty and other reserved rights.

    Tribes with treaty or other reserved rights related to special 
forest products retain their ability to harvest special forest products 
in full accordance with existing rights. However, consistent with all 
applicable rights, Regional Foresters may set conditions on Tribes with 
treaty or other reserved rights related to special forest products to 
protect the sustainability of special forest products or to otherwise 
protect National Forest System land. Regional Foresters may only 
prohibit Tribes with treaty or other reserved rights related to special 
forest products from harvesting a special forest product to protect 
public health and safety or to ensure sustainable harvest levels. 
Regional Foresters will provide a Tribe with treaty or other reserved 
rights related to special forest products that is prohibited from 
harvesting a special forest product with written documentation 
supporting the decision.


Sec.  223.241  Disposal of seized special forest products.

    The Forest Service may dispose of seized special forest products 
that have been illegally obtained from National Forest System lands by 
sale or free use. Any sale of such products shall be conducted in 
accordance with the requirements of this subpart; however, no seized 
special forest products shall be sold to the person who collected them 
illegally. The Forest Service shall not dispose of a seized product by 
sale or free use if that product is:
    (a) Listed or proposed for listing as threatened or endangered 
under the Endangered Species Act;
    (b) Identified as prohibited for sale or trade under the Convention 
on Internal Trade in Endangered Species; or
    (c) Listed on the Regional Forester's sensitive plant list, species 
of concern list, or species of interest list.


Sec.  223.242  Supplemental guidance, Memorandum of Agreements and 
Memorandums of Understanding.

    Consistent with subparts G and H of this part, regional foresters 
may issue supplemental guidance and approve Memorandums of Agreement 
and Memorandums of Understanding to promote local collaboration, issue 
resolution, and local implementation of these regulations. Existing 
Memorandums of Agreement and Memorandums of Understanding related to 
forest products must be made consistent with subparts G and H within 24 
months from December 29, 2008 or those agreements will terminate.

Subpart H--Forest Botanical Products


Sec.  223.275  Establishment of a pilot program.

    This subpart governs the Forest Service's pilot program for the 
disposal of forest botanical products, as authorized by the Department 
of the Interior and Related Agencies Appropriations Act of 2000, (Pub. 
L. 106-113, Div. B, sec. 1000(a)(3), 113 Stat. 135 (enacting into law 
sec. 339 of Title III of H.R. 3423)), as amended in 2004 by Section 335 
of Public Law 108-108. The pilot program shall be in effect through 
September 30, 2009, unless extended or made permanent by Congress.


Sec.  223.276  Applicability.

    This subpart applies to the sale and free use of forest botanical 
products, as defined in Sec.  223.277, from National Forest System 
lands, until September 30, 2009, unless the pilot program is extended 
or made permanent by Congress. The Forest Service shall dispose of 
forest botanical products in accordance with the procedures set forth 
in 36 CFR part 223 Subpart G, subject to the requirements of this 
subpart.


Sec.  223.277  Forest botanical products definition.

    As used in this subpart, the following term shall mean:
    Forest botanical products are: Naturally occurring special forest 
products, including, but not limited to, bark, berries, boughs, 
bryophytes, bulbs, burls, cones, ferns, fungi (including mushrooms), 
forbs, grasses, mosses, nuts, pine straw, roots, sedges, seeds, shrubs, 
transplants, tree sap, and wildflowers. Forest botanical products are 
not animals, animal parts, Christmas trees, fence material, firewood, 
insects, mine props, minerals, posts and poles, rails, rocks, shingle 
and shake bolts, water, worms, and soil.


Sec.  223.278  Sale of forest botanical products and collection of 
fees.

    The responsible Forest Officer shall ensure that the sale price of 
any forest botanical product includes a portion of the product's fair 
market value and a portion of the costs incurred by the Department of 
Agriculture associated with granting, modifying, or monitoring the 
authorization for harvest of forest botanical products, including the 
costs of any environmental or other analysis. The fair market value of 
forest botanical products shall be equal to the appraised value 
determined in accordance with Sec.  223.222. The sum of the portions of 
fair market value and costs making up the sale price must be greater 
than or equal to the forest botanical product's fair market value. All 
other aspects related to the sale of forest botanical products shall be 
governed under 36 CFR part 223 Subpart G.


Sec.  223.279  Personal use.

    (a) Personal use. A person may harvest forest botanical products 
from National Forest Systems lands free of charge for personal, non-
commercial use up to the personal-use harvest level.
    (b) Personal use harvest level. In conjunction with determining 
sustainable harvest levels under Sec.  223.219, the responsible Forest 
Officer shall determine personal-use harvest levels for specific forest 
botanical products, which shall be equal to the amount or quantity 
authorized for free use under Sec.  223.239(a).
    (c) Personal-use permit requirement. A person seeking personal use 
of a forest botanical product must comply with the free-use permitting 
requirements of Sec.  223.239.


Sec.  223.280  Waiver of fees and/or fair market value.

    The Forest Service waives the collection of fees otherwise required 
pursuant to Sec.  223.278 of this subpart as follows:

[[Page 79392]]

    (a) For all federally-recognized Tribes seeking to harvest forest 
botanical products for cultural, ceremonial, and/or traditional 
purposes. Such purposes must be non-commercial, and any such harvest 
may be conditioned or denied for reasons similar to those provided in 
Sec.  223.240 of subpart G; and
    (b) For Tribes with treaty or other reserved rights seeking to 
harvest forest botanical products for cultural, ceremonial, and/or 
traditional purposes in accordance with such treaty or other reserved 
rights. Such purposes must be non-commercial, and any such harvest may 
be conditioned or denied for reasons similar to those provided in Sec.  
223.240 of subpart G; and
    (c) When a Regional Forester or Forest Supervisor, having proper 
authorization from the Chief, makes a written determination that:
    (1) The harvest of a specified forest botanical product will 
facilitate non-commercial scientific research such as species 
propagation or sustainability: or
    (2) A forest botanical product is salvage because other management 
activities will destroy or damage the product.


Sec.  223.281  Monitoring and revising sustainable harvest levels.

    The Forest Service shall monitor and revise sustainable harvest 
levels for forest botanical products in accordance with Sec.  223.219 
of subpart G.


Sec.  223.282  Deposit and expenditure of collected fees.

    (a) Funds collected under the pilot program for the harvest and 
sale of forest botanical products shall be deposited into a special 
account in the Treasury of the United States. These funds shall be 
available for expenditure at National Forests or National Grasslands 
where the funds were collected until September 30, 2010, unless the 
program is extended.
    (b) Funds deposited into the special account specified in paragraph 
(a) of this section shall be expended at a National Forest or National 
Grassland in an amount equal to the fees collected at that unit and 
shall be used to pay for the costs of:
    (1) Conducting inventories of forest botanical products;
    (2) Determining, monitoring, and revising sustainable harvest 
levels for forest botanical products;
    (3) Monitoring and assessing the impact of harvest levels and 
methods;
    (4) Conducting restoration activities, including vegetation 
restoration; and
    (5) Administering the pilot program, including environmental or 
other analyses.

PART 261--PROHIBITIONS

0
4. The authority citation for part 261 continues to read as follows:

    Authority: 7 U.S.C. 1011(f); 16 U.S.C. 472, 551, 620(f), 
1133(c), (d)(1), 1246(i).


0
5. Revise 261.6 to read as follows:


Sec.  261.6  Timber and other forest products.

    The following are prohibited:
    (a) Cutting, removing, or otherwise damaging any timber, tree, or 
other forest product, including special forest products and forest 
botanical products, except as authorized by Federal law, regulation, 
permit, contract, special use authorization, free-use authorization, or 
personal-use authorization.
    (b) Cutting any standing tree under any permit or contract before a 
Forest Officer has marked it or has otherwise designated it for 
cutting.
    (c) Unless otherwise provided for in any permit or contract, 
removing any timber or other forest product, including special forest 
products and forest botanical products, except to a place designated 
for scaling, measuring, counting, or other method of accounting by a 
forest officer.
    (d) Stamping, marking with paint, or otherwise identifying any 
tree, or other forest product, including special forest products and 
forest botanical products, in a manner similar to that employed by 
forest officers to mark or designated a tree or any other forest 
product for cutting, or removal.
    (e) Loading, removing or hauling timber, or other forest products, 
including special forest products and forest botanical products, 
acquired under any permit, contract, free-use authorization, memorandum 
of agreement, memorandum of understanding, or personal-use 
authorization unless such product is designated for loading, removing, 
or hauling as required or authorized in such permit, contract, free-use 
authorization, memorandum of agreement, memorandum of understanding, or 
personal-use authorization
    (f) Selling or exchanging any timber or other forest product, 
including special forest products and forest botanical products, 
obtained under free use or personal use pursuant to Sec. Sec.  223.5 
through 223.11, Sec.  223.239 or Sec.  223.279 of this chapter.
    (g) Violating any timber export or substitution restriction in 
Sec. Sec.  223.160 through 223.164 of this chapter.
    (h) Violating the Forest Resources Conservation and Shortage Relief 
Act of 1990 (16 U.S.C. 620, et seq.), or its implementing regulations 
at Sec. Sec.  223.185 through 223.203 of this chapter.

    Dated: December 19, 2008.
Melissa M. Simpson,
Deputy Under Secretary, NRE.
[FR Doc. E8-30672 Filed 12-22-08; 11:15 am]
BILLING CODE 3410-11-P