Giant Sequoia Forest Service National Monument

Giant Sequoia National MonumentRecord of Decision

United StatesDepartment ofAgriculture

Forest Service

SequoiaNational Forest

August 2012

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Giant Sequoia National Monument, Final Environmental Impact Statement

Giant Sequoia National Monument Management Plan2012Final Environmental Impact StatementRecord of DecisionSequoia National Forest

Lead Agency: U.S. Department of Agriculture Forest Service PacificSouthwestRegion

Responsible Official: RandyMoore RegionalForester PacificSouthwestRegion

Recommending Official: Kevin B. Elliott Forest Supervisor Sequoia National Forest

California Counties Include: Fresno, Tulare, Kern

ThisdocumentpresentsthedecisionregardingtheselectionofamanagementplanfortheGiantSequoiaNationalMonument(Monument)thatwillamendthe1988SequoiaNationalForestLandandResourceManagementPlan(ForestPlan)fortheportionofthenationalforestthatisintheMonument.ItsummarizesthereasonsforchoosingtheSelectedAlternativeas

thebasisfortheGiantSequoiaNationalMonumentManagementPlan(MonumentPlan),whichwillbefollowedforthenext10to15years.Thelong-termenvironmentalconsequencescontainedintheFinalEnvironmentalImpactStatementareconsideredinthisdecision.


Contents


Introduction ............................................................7

The Decision ...........................................................8

I. Components of the Decision ..............................9Collaboration .............................................................................................11Tribal Relations .........................................................................................12

II. Rationale for the Decision ...............................13Strategies ....................................................................................................14Objectives ...................................................................................................14Objects of Interest .....................................................................................15Wilderness Recommendations .................................................................18Special Areas, including Special Interest Areas ......................................18

III. Issues .............................................................18Issue 1—Recreation and Public Use ........................................................18Issue 2—Road and Trail Access ...............................................................18Issue 3—Diverse Array of Wildlife and Their Habitats .........................18Issue 4—Fuels Management/Community Protection .............................18Issue 5—Tree Removal ..............................................................................19Issue 6—Methods for Sequoia Regeneration ..........................................19Issue 7—Fires Spreading to Tribal Lands ...............................................19Issue 8—Obligation to Analyze MSA under NEPA ................................19Issue 9—Manage the Monument Like Sequoia and Kings Canyon National Parks .......................................................................................19Issue 10—Convene a New Scientific Advisory Board ............................19Issue 11—Tribal Access to and Protection of Cultural Sites .................19Issue 12—Livestock Grazing ....................................................................19

Contents


IV. Alternatives ....................................................19

V. Public Involvement ..........................................20

VI. Identification of the Environmentally Preferred Alternative ........................................21

VII. Findings Required by Other Laws & Regulations ........................................................22

VIII. Diversity and Viability ..................................22

IX. Environmental Justice ...................................23

X. Civil Rights ......................................................23

XI. Implementation ..............................................24

XII. Appeal Rights ................................................24

Giant Sequoia National Monument, Final Environmental Impact Statement 5

Record of Decision

Record of Decision

Giant Sequoia National Monument, Final Environmental Impact Statement6

Record of Decision


IntroductionOnApril15,2000,PresidentClintonestablishedtheGiantSequoiaNationalMonument(Monument)byproclamationinrecognitionoftherichandvariedlandscapeandthediversearrayofscientificandhistoricresources.Giantsequoiasarethelargesttreestohavelivedandareamongtheworld’slongest-livedtrees,makingthematrulyuniqueandimportantspecies.Thepresidentialproclamation(Proclamation)furtherrecognizestheimportanceofthegiantsequoias,thesurroundingecosystemsthatsupportthem,andtheroletheyplayinunderstandingongoingenvironmentalchangesthatareexpectedtocontinueovertime.TheProclamationisveryclearthattheMonumentisnottobeusedforcommercialtimberharvestandthattreescanonlyberemovedafteranevaluationdeterminesaclearneedtodoso.Iwanttoassureyouthatnoneofthealternativesconsideredintheenvironmentalanalysisincludeanyformofcommercialtimberharvest.

IampleasedtopresentaMonumentPlanthatisdirectedspecificallytowardtheintentoftheproclamationestablishingtheMonument,including:

● TheestablishmentofaMonument-widestandardspecifyingtheprocessandcriteriatobeusedforanevaluationofclearneed;

● DescriptionsofdesiredresourceconditionsthatareconsistentwiththeintentoftheProclamationandtheexpectationsofthepublic;

● Theidentificationofstrategiesandtime-specific,measureableobjectivesthatareexpectedtomoveconditionstowardtherealizationofthedesiredconditions;

● Standardsandguidelinesthatareconsistentandclearintheirintentandapplication;and

● AmonitoringplanthatisexpectedtogaugetheperformanceoftheMonumentPlananditseffectivenessinmovingtowardthedesiredconditions.

TheMonumentissetapartandreservedforthepurposeofprotectingtheobjectsofinterestidentifiedintheProclamation,fortheirpropercareand

management(Clinton2000).TheMonumentfillsauniquenicheasitistheonlynationalmonumentinCaliforniathatwasdesignatedbypresidentialproclamation.Giantsequoias(Sequoiadendron giganteum)growonlyonthewesternslopesoftheSierraNevadamountainrangeinCalifornia.Thesetreescantower270feethighandreach30feetindiameter.Thirty-threegrovesandtheareasaroundthemareprotectedwithintheMonument.

Ihavegivencarefulconsiderationtotheinterests,concerns,andcommentswehavereceivedfromthepublic.IbelievethatmydecisionbestmeetsthepurposeoftheMonument,assetforthinthepresidentialproclamation(datedApril15,2000),byprotectingandcaringfortheobjectsofinterestandmanagingMonumentresourcestorestoreecosystemsandprovideopportunitiesforpublicuse.Thisdecisionaddressestheneedforrestorationofhealthyforestecosystemsandrestorationofthenaturalfireregime.ItalsomaintainsabroadrangeofrecreationopportunitiesforfuturegenerationsandtheopportunityforincreasedunderstandingofthevalueandimportanceofthescientificandhistoricobjectsintheMonument.Iamconfidentthatthesebenefitscanberealizedthroughtheuseandapplicationofprovenconservationmeasuresthatprotect,maintain,improve,andrestorethehealthoftheforest;reducerisksfromuncharacteristicallyseverewildfire,invasivespecies,insects,disease,andotherthreats;maintainandrestorewildlifehabitatandbegintheprocessofrecoveryforthreatenedorendangeredplantsandanimals.

MydecisionincludesmonitoringrequirementstokeepinformationuptodateandtoensurethattheMonumentPlanisworkingasexpected.Itincludesongoingopportunitiesforscientificstudytoimproveourmanagementandadaptmanagementstrategiesandobjectivesovertimeasconditionswarrant.TheseprinciplesarethefoundationforeffectivelymanagingtheMonumenttomeettheintentoftheProclamationandtomeettheexpectationsofmillionsofpeoplethatwilluseandenjoythisnationalmonumentinthefuture.

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Ihavereviewedtherangeofalternatives,readthepubliccomments,andconsideredtheevaluationofthealternativesinthefinalenvironmentalimpactstatement(FEIS).Basedonmyreview, I am selecting Alternative B and one element of Alternative E (Moses Wilderness recommendation) as the basis for the management plan for the Monument.AlternativeBwasthepreferredalternativepublishedinthedraftenvironmentalimpactstatement(DEIS)in2010.TheaddedelementhasbeenanalyzedintheFEIS.IamapprovingtheGiantSequoiaNationalMonumentManagementPlan(MonumentPlan)whichdescribesindetailthestrategicvision,strategies,objectives,standardsandguidelines,suitableuses,andlandallocationsfortheMonument(Parts1,2,and3oftheMonumentPlan).

AlternativeB(selected)includesacombinationofmanagementstrategiesandobjectivesthatwillbeusedfortheconservationandmanagementoftheobjectsofinterest.ForthepurposesofmanagingtheMonument(andbasedonForestServiceandpublicinterpretationoftheProclamation),theobjectsofinterestinclude:

● Thenaturally-occurringgiantsequoiagrovesandtheirassociatedecosystems,individualgianttrees,rareandendemicplantspeciessuchastheSpringvilleclarkia,andotherspecieslistedasthreatenedorendangeredbytheEndangeredSpeciesAct(ESA),orsensitivebytheForestService.

● Theecosystemsandoutstandinglandscapesthatsurroundthegiantsequoiagroves.

● Thediversearrayofrareanimalspecies,includingthePacificfisher,thegreatgrayowl,theAmericanmarten,thenortherngoshawk,theperegrinefalcon,theCaliforniaspottedowl,theCaliforniacondor,severalrareamphibians,thewesternpondturtle,andotherspecieslistedasthreatenedorendangeredbytheESA,orsensitivebytheForestService.

● Thepaleontologicalresourcesinmeadowsedimentsandothersourcesthathaverecordedecologicalchangesinsuchmarkersasfireregimes,volcanism,vegetation,andclimate.

● Thelimestonecavernsandothergeologicalfeatures,includinggranitedomes,spires,geothermally-producedhotspringsandsodasprings,andglacialandriver-carvedgorges.

● Culturalresources,bothhistoricandprehistoric,whichprovidearecordofhumanadaptationtothelandscapeandlandusepatternsthathaveshapedecosystems.

TheexistingusesintheMonumentareexpectedtocontinue.Recreationresidences,forexample,areavalidusethatwillcontinue,subjecttocompliancewiththetermsandconditionsofthecabinowner’spermit.Althoughmostofthedevelopment,suchasroads,developedrecreationsites,andadministrativestructures,thatmightbeexpectedtooccurintheMonumenthasalreadytakenplace,inAlternativeBadditionaldevelopmentispossibleinthefuture,toaddressfuturerecreationdemandandtheopportunitiesidentifiedbythepublicasimportanttothem.WedonotanticipatemuchexpansionoftheMonument’spermanentroadsystembeyondwhatiscurrentlyinplace,althoughAlternativeBdoesnotprecludetheconstructionofanewroadifconditionsindicatetheneed,suchasdevelopinganewcampground.

Mydecisionstrikesabalancebetweenprotecting,caringfor,andmaintainingtheobjectsofinterest;restoringandmaintainingecosystems;andprovidingforvisitorenjoymentoftheMonument.

Althoughtheresponsibilityforthisdecisionismine,Ihavemadethedecisionwiththehelpofmanyothers.TensofthousandsofcommentshavebeenreceivedsincewebegandevelopmentofthisMonumentPlanin2001.Theseincludedmanycommentsabouttheagency’sabilitytoeffectivelymanagetheMonumentinlightofrecenttrendsinbudgetandasmallerworkforce.IrecognizethattheoptimalimplementationratefortheMonumentPlancouldrequirehigherfundinglevelsinsomeareasthanthosecurrentlyallocated;however,IbelievethatthestrategicdirectiondescribedintheMonumentPlangivesmanagerstheflexibilitytoimplementtheplanundercurrentbudgetsorbudgetsthatmaybeevenlower.Thechallengesofeffectively

The Decision

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I. Components of the DecisionTheFEISandMonumentPlanweredevelopedaccordingtotheNationalForestManagementAct(NFMA),itsimplementingregulationsat36CodeofFederalRegulations(CFR)219(77FR21260,April9,2012),theNationalEnvironmentalPolicyActof1969(NEPA),andtheCouncilofEnvironmentalQuality(CEQ)regulationsat40CFR1500-1509.NFMA’scurrentimplementingregulationsat36CFR219.17(b)(3)(77FRat21270)allowtheuseoftheprovisionsofthepriorplanningregulation,includingitstransitionprovisions(2000PlanningRuleat36CFR219.35(a)and(b)[2010],December18,2009).Thetransitionprovisionsofthe2000planningruleallowtheuseofthepriorplanningregulationpromulgatedin1982.TheMonumentPlanwasdevelopedusingtheprocessoutlinedinthe1982planningregulations,whileconsideringthebestavailablescienceasrequiredbythe2000ruletransitionprovisions(36CFR219.35(a)[2010]).Unlessotherwisenoted,allsubsequentcitationsto“36CFR219”inthisdocumentrefertothe1982planningprocess:see36CFRPart219(2000).

TheMonumentPlanincorporatesthedirectionprovidedbytheProclamationanditamendsandreplaces,initsentirety,allpreviousmanagementdirectionfortheMonument,includingthedirectioninthe1988SequoiaNationalForestLandandResourcesManagementPlan(ForestPlan)forthispartoftheSequoiaNationalForest.TheMonumentPlanalsocomplieswiththe1990MediatedSettlementAgreement,whichoutlinedproposedamendmentstothe1988ForestPlan.

TheMonumentPlanisthesinglecomprehensivemanagementplanfortheGiantSequoiaNationalMonument.WhiletheMonumentPlanisastand-alonedocument,itisalsoasubsetoftheentireForestPlan.TheForestPlanfortheSequoiaNationalForestnowconsistsoftwodocuments,onewhichgovernsmanagementoftheportionoftheforestlocatedinside

theboundariesoftheMonument,andanotherwhichgovernsmanagementoftherestoftheforestoutsideoftheMonument.

TheMonumentPlanispresentedinthe3-partnationalvisionformat.ThisformatwasdevelopedinresponsetorecommendationsmadebytheCommitteeofScientistsintheir1998report,andisbasedontheconceptofadaptivemanagement(CommitteeofScientists1999).Part1istheVisionfortheMonumentandincludesthepurposeoftheMonumentPlan,adescriptionoftheMonumentanditsuniquefeatures,andthedesiredconditionsfortheresourcesoftheMonument.Part2istheStrategyfortheMonument;itidentifiesthesuitablelandusesandactivitiesandlaysoutthemanagementstrategiesandobjectivesfortheMonument.Part3istheDesignCriteriafortheMonumentandincludesthelawsandregulations,thestandardsandguidelines,andthemonitoringandevaluationproceduresthatwillbeusedduringsite-specificprojectplanningandimplementation.

TheMonumentPlandescribesthestrategicdirectionthatassurescompliancewiththeProclamationthatcreatedtheMonument(Clinton2000).TheFEISdisclosestheenvironmentalconsequencesofthealternativemanagementstrategiesandhowtheyrespondtotheissues.IhavestudiedandconsideredtheconsequencesofthedifferentalternativesasdiscussedintheFEISinordertomakethefollowingdecisions:

● ApprovalofthevisionanddesiredconditionsdescribedinPart1oftheMonumentPlanforthenext10to15years.TheuniqueandspecialfeaturesoftheMonument—thegiantsequoiagroves,theecosystemsthatsupportthem,andtheotherobjectsofinterest—arewhatmaketheMonumentwhatitis:aspecialareathatmeritscarefulmanagement,protection,andpreservation.

andefficientlymanagingresourcesandprovidingavarietyofservicesremainregardlessofwhichalternativeisselected.WearecountingonthehelpofpeopleworkingcollaborativelywithustomovetheMonumenttowarditsdesiredconditions.

MydecisionappliesonlytotheGiantSequoiaNationalMonumentintheSequoiaNationalForestanddoesnotapplytoanyotherfederal,state,orprivatelands,althoughtheeffectstotheselandsandtheeffectsofmydecisiononlandssurroundingtheMonumenthavebeenconsidered.

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● ApprovalofthesuitableusesforeachlandallocationasdescribedinPart2oftheMonumentPlan.ThesuitabilityofdifferentlandsfordifferentusesisdescribedfortheMonumentanddisplayedintheaccompanyingSuitableLandUsesandActivitiesbyStaticLandAllocationorManagementArea(36CFR219.13to219.27).TheMonumentPlandescribesthelandallocationsanddisplaysthemontheLandAllocationsmapincludedwiththeplan(36CFR219.11(c),219.13to219.27).

● ApprovalofthemanagementstrategiesandobjectivesinPart2oftheMonumentPlan.ThisdirectionprovidesforandencouragescontinuedpublicandrecreationalaccessanduseconsistentwiththepurposesoftheMonument(Clinton2000,p.24097).Itcontributestosocial,economic,andecologicalsustainabilitybyguidingtherestorationormaintenanceofthehealthofthelandintheMonument(36CFR219.11(b)).

● ApprovalofthestandardsandguidelinesinPart3oftheMonumentPlan.ThismanagementdirectionwillbeusedinconjunctionwiththemonitoringandevaluationproceduresdescribedinPart3tosettheparametersforachievingthedesiredconditionsandprovidemeaningfuldirectionformanagerswhenimplementingprojects[36CFR219.14and36CFR219.16].

● ApprovalofthemonitoringandevaluationproceduresdescribedinPart3toensurethattheMonumentPlanisimplementedusingthestrategies,objectives,andstandardsandguidelines;toevaluatetheeffectivenessofthePlanrelativetotheobjectsofinterest;todeterminehowwelloutcomesandeffectswerepredicted;andtohelpidentifynecessaryfutureadjustmentstomanagementdirectionintheMonumentPlan.Monitoringisclearlyemphasizedforallactivitiesandmustbeaccomplished.Monitoringisakeyelementinallprogramstoassuretheachievementofdesiredconditionsovertime[36CFR219.11(d)].

● ApprovaloftherecommendeddesignationsofSpecialAreas,includingSpecialInterestAreas,describedinPart2oftheMonumentPlan(36CFR219.17(a),36CFR297).Theplanrecommendsapproximately15,110acresoftheMosesInventoriedRoadlessAreaforinclusioninthe

WildernessSystem,4,190acressurroundingandcontainingtheFreemanCreekGroveforofficialdesignationasabotanicalarea,andabout3,500acresintheWindyGulchareafordesignationasageologicalarea.Theseproposals,andmydecision,includeeveryadditionoforamendmenttospecialareasthatwasconsideredintheFEISinanyofthealternatives.Inaddition,thestrategiesandobjectivesforexistingspecialareasareapprovedinthisdecision.

● EstablishtheTransportationPlanfortheMonumentinPart4oftheMonumentPlan(Clinton2000,p.24098).

TheFEISandMonumentPlanmeettherequirementsofthe1990SequoiaNationalForestMediatedSettlementAgreement(MSA)astheyapplytothelandswithintheGiantSequoiaNationalMonument.AsidentifiedinthelettertoourMediatedSettlementpartnersdatedMarch8,2002,fromSequoiaNationalForestSupervisorArtGaffrey,thereweretwocategoriesofitemsfromtheMSAthatneedtogothroughtheplanamendmentprocess:

● Landallocationscreatedonaninterimbasis

● Managementprescriptions,andstandardsandguidelinesforsomeresourceareas

TheparticularMSAtopicsthatareaddressedintheMonumentPlaninclude:

● Giantsequoiaguidelines

● BotanicalareadesignationforFreemanCreekGroveandwatershed

● Uneven-agedmanagementinvicinityofFreemanCreekGroveanditswatershed

● Criticalhabitatforaquaticspeciesinriparianareas

● Special Areas

● DesignationforOHVuse

● RecommendMosesInventoriedRoadlessAreaforwildernessclassification

AnitemizedlistoftheinterimdirectionfromtheMSA,aswellaswhereeachitemisaddressedintheMonumentfinalenvironmentalimpactstatement(FEIS),isprovidedinAppendixFoftheFEIS(FEISVolume2).TheFEISconsideredalternativeswhichwouldimplementallremainingMSAprovisions

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withintheMonumentthathavenotbeensupersededbytheProclamationorothermanagementdirection(seethestandardsandguidelinesfortheactionalternativesinAppendixAoftheFEIS),andtheselectedalternativecarriesforwardmanyoftheseMSAprovisions.

Collaboration InordertofullyinvolvepeopleintheprocessofdevelopingamanagementplanfortheMonument,theSequoiaNationalForestofferedopportunitiesforinterestedpeopletoengageinacollaborativeprocessintendedtohelpfacilitateitsdevelopmentandtoanalyzeanappropriaterangeofalternatives.Athird-partyfacilitatorwashiredthroughtheU.S.InstituteforEnvironmentalConflictResolutiontoleadacollaborativeeffortamongForestServiceemployeesandinterestedpeople,includingenvironmentalgroups,communityleaders,recreationgroups,forestproductsindustryrepresentatives,homeownerassociations,andothers.Thecollaborativeeffortincluded:

● FacilitatedmeetingsheldfromDecember2007throughJune2009,focusingonrecreationmanagement.AworkinggroupofmembersofthepublicwasformedinthesemeetingsthateventuallybecametheGiantSequoiaNationalMonumentAssociation.

● OtherpublicmeetingsheldbetweenMayandNovemberof2008,andafieldtripinSeptember2008,focusedonecologicalrestorationandfuelsandvegetationmanagementstrategies.

● WebsitesdevelopedtocollectpubliccommentsontheProclamationandtheScienceAdvisoriesfromtheScientificAdvisoryBoard,aswellasincludethepublicinevaluatingtheMultipleCriteriaDecisionSupport(MCDS)tool.

● ASouthernSierraScienceSymposiumheldinSeptember2008,focusedonagentsofchangeinthesouthernSierraregion.

● AMonumentPublicCommentPortaldevelopedsothatpeoplecouldreadthescopingletter,draftenvironmentalimpactstatement(DEIS),andrelateddocumentson-line,andsubmitcommentsusingthewebsiteduringthescopingperiodwhichbeganMarch18,2009.

● FourpublicworkshopstodiscussgiantsequoiagrovemanagementheldinApril2009.

● ToobtaininputfromtheTuleRiverIndianReservation(TRIR)tribeandlandownersadjacenttotheMonument,ForestServiceemployeesmetwithdifferentmembersofthetribeandresourcesstaffin10meetingsin2009.

● TwomeetingsheldinAprilandMayof2009withtheappellantswhosignedthe1990MediatedSettlementAgreement(MSA).

● SixpublicmeetingsheldtodiscusstheDEISanddraftmanagementplan(releasedforpubliccommentonAugust6,2010)inSeptemberandOctoberof2010.

● ScienceReviewPanelsconvenedinOctober2009andDecember2011toperformscienceconsistencyreviewsoftheDEISandFEIS,respectively.PublicmeetingswereheldinNovember2009tointroducethefirstScienceReviewPanel,andinOctober2010todiscussthefirstscienceconsistencyreview.

AspartoftheimplementationoftheMonumentPlan,theForestSupervisorandDistrictRangerswillemphasizecollaborativeeffortswithinthecommunitiesinsideofandsurroundingtheMonument.Muchofthiseffortwillemphasizediversepublicaccess,partnerships,andplace-basedrecreationopportunities.Thefollowingstrategiesareincludedintheselectedalternative:

● Emphasizediversepublicaccess,partnerships,andplace-basedrecreationopportunities,focusingonconnectiontoplaceandtherecreationsettings(Monument’srecreationniche).

● Establishusefeesthatarecompatiblewithcost,andreducepubliccompetitionwiththeprivatesector.

● Continuetosupportandparticipateinemploymentandtrainingprogramsforyouths,olderAmericans,andthedisadvantaged,inresponsetonationalemploymentandtrainingneedsandopportunitiesexistinginforestsurroundings.

● Developpartnershipstoprovideaspectrumofrecreationexperiencesthroughavarietyofproviders,includingtheForestService,associations,non-governmentorganizations,

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permitholders,volunteers,andothercommunitygroups.

● Supporttheeffortsofnon-profit,publicbenefitorganizationspromotingconservation,education,andrecreationalenjoymentoftheMonumentandthesurroundingsouthernSierraNevadaregion.

● Developpartnershipstoincreaseinterpretivematerialsandprogramsthatreachlargersegmentsofthegeneralpublicandtofosterstewardship.

● Enhanceopportunitiestoconnectpeopletotheland,especiallythoseinurbanareasandofdiversecultures(connectpeopletoplace).

● WorkwithgatewaycommunitiesandcommunitieswithintheMonumenttohelpfostereconomicopportunities.

● Developbi-lingualcommunicationtools,includingpublications,informationboards,andradiospots.

● Encourage communities of color, focusing on youth,toincreaseinvolvementinenvironmentaleducationprogramstoeducateanddevelopthecitizensteward.

● DesignateanddevelopaChildren’sForestintheMonumenttoprovideaplacewhereyouthandfamiliescanparticipateinandexploreforest-relatedprojects.ThecriteriaforthelocationofaChildren’sForestinclude:

● Inorincloseproximitytoagiantsequoiagrove

● Within1/2mileofaroad

● Closetoanexistingparkinglotorasuitablearea for one

● Closetodevelopedrecreationfacilities

● Awayfromhighuse,congestedareas

● Closetowatersource

● Year-roundaccess

● Doesnotconflictwithexistinguses(suchasgrazing)

Withlessofthe‘howto’prescribedintheMonumentPlanandmoreemphasisonworkingtogethertochoosethe‘righttool’toachievedesiredconditions,thereismoreopportunityforinteractionamongthepublicandcommunityorganizations.Ibelievethat

collaborationamonginterestedpeoplecanleadtomutuallyacceptableresolutionofresourceissuesandIamconfidentthatsuchinteractionandparticipationwillleadtobettermanagementoftheMonument,improvetrustandacceptancebyvisitorsandcommunitymembers,andpromotebetterrelationsamong competing interests.

Tribal RelationsTogaininputfromtheTuleRiverIndianReservation(TRIR)tribeandlandownersadjacenttotheMonument,ForestServiceemployeesmetwithdifferentmembersofthetribeandresourcesstaff.TwoformaltribalconsultationmeetingswereheldwiththeTRIRTribalCouncil,onApril14andJuly20,2009.Inaddition,threeinformalmeetingswereheldwithTRIRtribalforestryandenvironmentalstaffmembersonFebruary23,August14,andAugust31,2009,todiscusstheMonumentplanningprocessandtheMSA.ForestServiceemployeesmetwiththeEldersCouncilonOctober14,2009,andattendedfourquarterlyForestTribalForummeetingsonJanuary14,April30,August19,andDecember17,2009.

TherelationshipoftheForestServicewithAmericanIndiansisimportanttothemanagementandrestorationofecosystemsintheMonument.TomeetourtrustresponsibilitiesandtoencouragetheparticipationofAmericanIndiansinthemanagementoftheMonument,Iamrestatingthefollowingcommitmentsmadeinthe2001SierraNevadaForestPlanAmendmentRecordofDecision(2001SNFPAROD):

● Wewillworkwithtribalgovernmentsandtribalcommunitiestodevelopmutuallyacceptableprotocolsforgovernment-to-governmentandtribalcommunityconsultations.Theseprotocolswillemphasizelineofficers’andtribalofficials’rolesandresponsibilities.

● WewillconsultwithappropriatetribalgovernmentsandtribalcommunitiesregardingfireprotectionandfuelsmanagementactivitiesthatpotentiallyaffectRancherias,reservations,andotheroccupiedareas.Wewilldevelopfireprotectionplansforsuchareasinconsultationwithappropriatetribalorintertribalorganizations.Wewillcoordinatewithtribesandappropriatetribal

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organizationsregardingtraining,outreach,andotheritemsofmutualinterestinordertosupporttribalandnationalforestfireprograms.

● TraditionalAmericanIndianlandusepractices,tribalwatershed,andotherecosystemrestorationpracticesandprioritieswillbeconsideredearlyinnationalforestplanning,analyses,decisionmaking,andadaptivemanagementprocesses.Duringlandscapeanalysisandsimilaractivities,wewillassessvegetationcommunityconditionswhereaspecificareahasanidentifiedimportancetoanaffectedtribeortribalcommunity.Wewillconsultwithaffectedtribesand/ortribalcommunitiestoconsidertraditionalandcontemporaryusesandneeds.

● WewillconsidertraditionalAmericanIndianvegetationmanagementstrategiesandmethods,andintegratethem,whereappropriate,intoecosystemrestorationactivities.Wewillcooperatewithtribes,tribalcommunities,andintertribalorganizationstodevelopecosystemstewardshipprojects.

● WewillconsidertherelationshipbetweenfiremanagementandplantsculturallyimportanttoAmericanIndians.Wherefueltreatmentsmayaffecttribesortribalcommunities,orplantsculturallyimportanttothem,wewillconsultonthedevelopmentofburnplans,andconsiderapproachesthataccommodatetraditional

schedulingandtechniquesoffireandvegetationmanagement.

● Whenimplementingnoxiousweedmanagementprograms,weintendtomaintainor,ifappropriate,increasetheavailabilityofplantstraditionallyusedbyAmericanIndians.Wewillconsultwithappropriatetribes,tribalcommunities,ortribalorganizationstoidentifyareasofneworworseningweedinfestationsanddevelopplansforappropriateweedcontrol.

● Wewillinclude,whereappropriate,culturallysignificantspeciesinmonitoringprotocolsrelatedto management activities.

● Wewillmaintainappropriateaccesstosacredandceremonialsitesandtotribaltraditionaluseareas.Wewillconsultwithaffectedtribesandtribalcommunitiestoaddressaccesstoculturallyimportantresourcesandculturallyimportantareaswhenproposingmanagementthatmayalterexistingaccess.Afterappropriateassessmentandconsultation,wewillconsiderproposingprotectionofinventoriedsacredsites.

● Wewillprotectallsensitiveandproprietaryinformationtothegreatestextentpermittedbylaw.Wewillsecurepermissiontoreleaseinformationfromthetribe,tribalcommunity,orindividualwhoprovideditpriortoreleasetoothers.

II. Rationale for the DecisionThepurposeofandneedforthisamendmentistocreateamanagementplanthatwillprotectandpreservetheuniquefeaturesoftheMonumentconsistentwiththerequirementsoftheProclamation.Theneedisforasinglecomprehensivemanagementplantoprotectthegiantsequoiagrovesandtheotherobjectsofinterest,whileprovidingkeyresourcesandopportunitiesforpublicusewithintheMonument.

AlternativeBwasdesignedundertheassumptionthatcurrentmanagementdirectionneedstobechangedtocomplywiththeProclamationandachievethedesiredconditionsforvegetationandotherresourcesintheMonument.IhavedecidedthatAlternativeBprovidesthebestcombinationofmovingtowardsdesiredconditions,meetingthepurposeandneed,and

respondingtotheissues.Inthisdecision,Ihaveaddedone component from Alternative E to Alternative Bforimplemenntation:aportionoftheMosesInventoriedRoadlessAreawillberecommendedforinclusionintheNationalWildernessPreservationSystem,astheMosesWilderness.The1990MediatedSettlementAgreementstipulatedthat:“Pendingfinaldispositionbytheexecutiveand/orlegislativebranches,themappedportionsoftheMosesRoadlessAreashallbe...managedtopreserveitswildernesscharacter”(USDAForestService2007a,p.70).Byincludingthisspecialareaforimplementation,mydecisionalsoincludesthosemanagementstrategiesandobjectivespertainingtothisproposal,including:

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Strategies:1. SpecialAreaStrategy:ManagetheMoses

InventoriedRoadlessAreawithintheMonumentasaproposedwilderness,topreservethewildernesscharacteristicsuntilCongressacts.

2. CulturalResourcesStrategy:DevelopaculturalresourcemanagementplanfortheMonumentthatprioritizesculturalresourcesurvey,siteevaluationfortheNationalRegisterofHistoricPlaces,andHistoricAmericanBuildingssurvey/HistoricEngineeringRecordsurveyanddocumentationwithintheproposedMosesWilderness.

Objectives:1. SpecialAreaObjective:Inaccordancewith

ForestServiceManualdirectiononwildernessproposals,completethenecessaryprocess.

ThisrecommendationisapreliminaryadministrativerecommendationthatwillreceivefurtherreviewandpossiblemodificationbytheChiefoftheForestService,theSecretaryofAgriculture,thePresident oftheUnitedStates,andultimatelyCongress.Congresshasreservedtheauthoritytomakefinaldecisionsonwildernessdesignations(FSM1923.11,2.).TheproposalforMosesWildernessisbeingshownwiththeoriginalboundariesroughlymappedinthe1990MSA.Inthewildernessrecommendationproposal,usingthemanageabilitycriteriafortheevaluationprocess,theboundariesmaybeadjustedtoensuretheForestServiceisabletoprotectandmanagethenaturalcharacterofthewildernessadjacenttootherlandownerships(FSH1909.12,Chapter70,Section72.1).

AlternativeBhasbeenmodifiedwithinputfromthepublicandtheseadditionshavebeenmadetohelpresolvethechallengesstemmingfromthevariousissues.Anin-depthdiscussionofwhatecologicalrestorationmeansintheMonument,andcriteriafordeterminingtheappropriatenessoftreefellingandtheclearneedfortreeremoval,areincludedintheMonumentPlan.DesiredconditionswereupdatedinresponsetopubliccommenttobetterdescribethegoalsforMonumentmanagement;strategiesandobjectivesweremodifiedtoclarifyhowtheydiffer

betweenthealternatives;andstandardsandguidelineswereupdatedforgiantsequoiagrovesandplantations,andaddedforsoils,snagsanddownwood.

IncompliancewiththeProclamation,anevaluationofclearneedisrequiredandwillbecompletedbeforeanysite-specificprojectsthatproposetreeremovaltakeplaceintheMonument.Treeremovalandtreefellingcriteriaaregiventousewhenevaluatingiftreeremovalisclearlyneededforecologicalrestorationandmaintenanceorpublicsafety,andwhenproposingthefellingofstandingtrees.Adecisiontreeisprovidedforuseinsite-specificprojects.ItreflectsthedesiretoultimatelyreturntheMonumenttonaturalcyclesandprocesses,consideringfirsttheuseofmanagedwildfireifitisavailable.Theavailabilityofmanagedwildfireisdifficulttoanticipateand,ifitisnotavailable,theuseofprescribedfireandthenmechanicaltreatmentswillbeconsidered.

Inaddition,thetypesandamountsoftreatmentthroughouttheMonument,evenintheWildlandUrbanIntermix(WUI)defenseandthreatzones,andtheTribalFuelsEmphasisTreatmentArea(TFETA),arelimited:

● Inwilderness(existingandproposed)

● Inwildandscenicrivercorridors

● Ininventoriedroadlessareas

● Inresearchnaturalareas

● Inriparianconservationareas

● Onslopesexceeding35percent

● Inareasgreaterthan9,000feetinelevation

● Inareasmorethan¼milefromaroad

Basedontheseconstraints,onlyabout23percentofthe328,315acresofNationalForestSystemlandintheMonumentcouldbeconsideredformechanicaltreatments(aloneorinconjunctionwithfiretreatments),comparedtoapproximately77percentthatcouldbeconsideredforfiretreatments.

Theselimitationsonimplementingsite-specificprojectswillhelpguideandcontrolthekind,amount,andrangeofmanagementactivitiesthattakeplaceintheMonument.

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ThoughboththeWUIandtheTFETAareareasidentifiedforconcentratedfuelsreduction,theyweredesignedwithdifferentpurposes.TheWUIisanareawherehumanhabitationismixedwithareasofflammablewildlandvegetation.Itiscomprisedoftwozones:thedefensezoneandthethreatzone.

TheWUIdefensezoneisthebufferinclosestproximitytocommunitiesandareaswithhigherdensitiesofresidences,commercialbuildings,and/oradministrativesiteswithfacilities.Theactualdefensezoneboundariesaredeterminedatthesite-specificprojectlevelfollowingnational,regional,andforestdirection.Strategiclandscapefeaturessuchasroads,barriers,changesinfueltypes,andtopographyareusedindelineatingthephysicalboundaryofthedefensezone.Defensezonesshouldbeofsufficientextentthatfueltreatmentswithinthemwillreducewildlandfirespreadandintensityandsuppressionforcescansucceedinprotectinghumanlifeandproperty.

TheWUIthreatzonetypicallybuffersthedefensezone.Threatzoneboundariesaredeterminedatthesite-specificprojectlevelfollowingnational,regional,andforestdirection.Theyarealsodelineatedwithstrategiclandscapefeatures.

TheTFETAwasdevelopedinresponsetodiscussionswiththeTuleRiverIndianTribeandtheirconcernoverfiresspreadingtotheTuleRiverIndianReservation.TheTuleRiverIndianTribeofCaliforniaisafederallyrecognizedtribe,andassuchitisthepolicyoftheUSDAtoconsultandcoordinatewiththemonagovernment-to-governmentbasisincompliancewithExecutiveOrder13175(ConsultationandCoordinationwithIndianTribalGovernments)priortomakingadecision.ThislandallocationwasdesignedalongtheboundarywiththeTuleRiverIndianReservationtonotonlyprotectthereservationanditswatersheds,butalsotheobjectsofinterestandwatershedsintheMonument,fromfiresspreadingfromonetotheother.

Ifindthatthismanagementdirectionwillbeeffectiveinprotectingtheobjectsofinterest,promoting resilient vegetation communities, andimprovingheterogeneitythroughecologicalrestorationandmaintenance.Thismanagementdirectionwillbeeffectiveincreatingecologicalconditionstoregeneratesequoiasandreducethe

threatofcatastrophicfirethroughoutthegiantsequoiaecosystem,whilecreatingandimplementingopportunitiesforscientificresearch,interpretation,andrecreation.InadditiontoprotectingtheobjectsofinterestandMonumentecosystemsfromuncharacteristicallyseverefire,fuelsreductionactivitiesintheWUIdefensezonewillhelptoprotecthumancommunitiesfromwildlandfires,aswellasminimizethespreadoffiresthatmightoriginateinurbanareas.

Thisalternativeisexpectedtoresultinafullrangeofrecreationopportunities,includingdispersedcamping,developedcamping,educationandinterpretation,accessforhikersandequestrians,trailrelatedactivities,andtheuseofoff-highwayvehiclesondesignatedroads.

AlternativeBretainsallofthelandallocationsandstandardsandguidelinesfromthe2001SNFPA,exceptwherenotedinordertoensuretheprotectionoftheobjectsofinterest.Inadditiontoexistingmanagementdirectionfromthe2001SierraNevadaForestPlanAmendment(2001SNFPA)andthe1990MediatedSettlementAgreement(1990MSA),AlternativeBincludesnewstrategies,objectives,andstandardsandguidelinesfromthe2004SierraNevadaForestPlanAmendment(2004SNFPA)SupplementalEISandROD(MonumentPlan,Part2-Strategy,StrategiesandObjectives).ThisalternativechangesForestPlanstandardsandguidelinesbyaddingimprovedstandards,modifyingexistingstandards,andeliminatingstandardsthatarenolongerneeded(seetheMonumentPlan,Part3,StandardsandGuidelines).

Objects of Interest ● The naturally-occurring giant sequoia groves

and their associated ecosystems, individual giant trees, rare and endemic plant species such as the Springville clarkia, and other species listed as threatened or endangered by the Endangered Species Act (ESA), or sensitive by the Forest Service.

AlternativeBwouldreplacethegroveinfluencezones(GIZs)prescribedinthe1990MSAwithgrovezonesofinfluence(ZOIs).TheZOIsdefineazone,basedonthebestavailablescience,withinwhichkeyecologicalprocesses,structures,and

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functionsshouldbeevaluatedtoensurethatthegiantsequoiagrovesarepreserved,protected,andrestored.Theyincludeareaoutsidethetree-lineboundaryofthegrovesasdeterminedbyterrestrialconsiderations,surfacewaterdrainage(watersheds),andtheneareststablestreamchannel.

InAlternativeB,vegetationmanagementfocusesonreducingfuelsbyremovingsmallertreesintheWildlandUrbanIntermix(WUI)zones.Ecologicalrestorationofforestedecosystemswouldbeaccomplishedbyreducingfuels,improvingstandresilienceandhealth,promotingheterogeneity,andencouragingnaturalregenerationofgiantsequoiasandotherspecies.Inareaswherenaturalregenerationisnotlikely,treeswouldbeplanted.

Applicationofthemanagementtoolstobeusedforecologicalrestoration(fuelsreductionandvegetationmanagement)inAlternativeBisprioritizedintheFEISas:

1. Prescribedfire

2. Mechanicaltreatments

3. Managedwildfire(unplannednaturalignitions)

ThisorderingofmanagementtoolsforAlternativeBwillnotdirecttheorderinwhichthesetoolswillbeconsideredorusedinsite-specificprojects.Thesethreetoolscanbeusedindividuallyorincombinationbasedonsite-specificanalysisandexistingconditions.AsmadeclearinPart3oftheMonumentPlan,whenevernaturally-ignitedwildfiresoccurandareavailabletomanageforresourcebenefits,thosemanagedwildfireswillbeusedfirstforecologicalrestoration(seetheDecisionTreeinPart3oftheMonumentPlan).

BasedonthestrategiesadoptedinAlternativeB,includingthelikelihoodofmovingfromonetooltothenextwhenthepriortoolisunavailableorinfeasible,Iexpectthat,underfullimplementationofAlternativeB,moreacreswillbetreatedusingprescribedfirethanwithmechanicaltreatments.FuelsreductionintheWUIdefensezonewillfocusonthesmallerdiameterladderfuels.

● The ecosystems and outstanding landscapes that surround the giant sequoia groves.

Theproposedfuelreductionactivitiesintheselectedalternativeareexpectedtoreducesurfaceandladderfuels,modifyingfirebehaviorandresultinginfuelconditionsthatmovetowardthedesiredcondition:

Fireoccursinitscharacteristicpatternandresumesitsecologicalrole…Firesusceptibilityandseverity,andfirehazardstoadjacenthumancommunitiesandsurroundingforesttypes,arelow.TheneedtomaintainfuelconditionsthatsupportfirescharacteristicofcomplexecosystemsisemphasizedandallowsforanaturalrangeoffireeffectsintheMonument(MonumentPlan,Part1—Vision,DesiredConditions,FireandFuels).

Theselectedalternativewilldecreasefuelbuildupsandreducetheriskofuncharacteristicallyseverewildfires,whichmaythreatentheobjectsofinterest.Itwillbeeffectiveoverthelongterminrestoringthedesiredfirecharacteristicsofgenerallylowsusceptibilitytostand-replacingfiresandamorefrequentandlow-intensityfirereturnintervalinfire-dependentecosystems.Thiswillleadtogreaterspeciesdiversity,amosaicoftreesizesandages,andthereforetolandscapesthataremoreresilientandadaptabletoenvironmentalchange.

ThegoalofprotectinggiantsequoiagrovesintheMonumentfromunusuallyseverewildfiresincludesthere-introductionoffirebyutilizingprescribedfireandmanagedwildfireastoolstorestoreandconservegroveecosystems.Giantsequoiagrovescanbeprotectedfromwildfirebyalteringfuelconditionsinsideofgroves,alteringfuelconditionsoutsideofgroves,orboth(Stephenson1996).

● The diverse array of rare animal species, including the Pacific fisher, the great gray owl, the American marten, the northern goshawk, the peregrine falcon, the California spotted owl, the California condor, several rare amphibians, the western pond turtle, and other species listed as threatened or endangered by the ESA, or sensitive by the Forest Service.

AlternativeBreplacesthe2001SNFPAstandardsandguidelinesforthegreatgrayowlandthe

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willowflycatcherwithstandardsbasedonthe2004SNFPA.The2004SNFPAincludesmanagementdirectionforthesespeciesthatisadaptabletolocalsiteconditions,whilecarryingforwardtheprotectionmeasuressetinplacebythe2001SNFPA.Thesestandardsandguidelineswillprotectkeywildlifehabitat.

Intheselectedalternative,fuelreductionactivitieswillhelpprotectwildlifehabitatbyreducingthelikelihoodofuncharacteristicallyseverewildfire,andsnagswillonlyberemovedfromburnedforestforsafetyreasonsorecologicalrestoration.Thisalternativeusesasoundconservationstrategythatbalancestheneedforshort-termprotectionandlong-termsustainabilityofoldforesthabitatwhichsupportsimportantspeciessuchasthePacificfisherandCaliforniaspottedowl.

● The paleontological resources in meadow sediments and other sources that have recorded ecological changes in such markers as fire regimes, volcanism, vegetation, and climate.

Effectsonpaleontologicalresourceswithinmeadowsedimentsareunlikelyintheselectedalternative.Thestandardsandguidelinesforhydrologicalandgeologicalresources,includingthoseforriparianconservationobjectives,willprotectpaleontologicalresourceswithinmeadowsediments.Theselectedalternativeincludesthedevelopmentofacavemanagementplanandsite-specificstandardsandguidelinesforcavemanagement,includingaccesstoandclosureofcaves.Thesewillincludestandardsandguidelinesforpaleontologicalresourceswithincaveswhichwillhelpprotecttheseresources.

● The limestone caverns and other geological features, including granite domes, spires, geothermally-produced hot springs and soda springs, and glacial and river-carved gorges.

Theselectedalternativeincludestheprotectionandpreservationofgeologicalobjectsofinterest,whileenhancinginterpretationandeducation,andallowingappropriaterecreationaluseofthesesites.ThisalternativeincludesthedesignationoftheWindyGulchGeologicalArea.Acavemanagementplanwillbedevelopedforsignificantcavesinthisgeologicalarea.

● Cultural resources, both historic and prehistoric, which provide a record of human adaptation to the landscape and land use patterns that have shaped ecosystems.

Withtheselectedalternative,aMonumentCulturalResourceManagementPlanwillbedevelopedthatemphasizessiteidentificationandevaluation,recognitionthroughnationalregisternominationsandlandmarkrecommendations,educationandoutreachprograms,continuedtraditionalusebyNativeAmericanpeople,andpartnershipstodevelopculturaleducationprograms.Thisplanwillalsoemphasize:

● Scientificresearchofpasthumanculturesandenvironments

● Usingculturalresourcedatatounderstandtheevolutionofecosystems

● Preservingandadaptivelyusinghistoricstructuresinplacewhereverpossible

● Preservingtheintegrityandcharacter-definingfeaturesofhistoricdistricts

TheTransportationPlan,asrequiredbytheProclamation,isincludedinPart4oftheMonumentPlan.Thecurrentroadsystemwillgenerallyremainintact,providingaccessforprotectionofcommunitiesandresourcesfromwildfires,andalsoprovidingaccesstoabroadspectrumofexistingrecreationalopportunities.TheroadsystemwillprovideaccessfortheTuleRiverIndianReservationfortheprotectionoftheirresourcesandculturallyimportantsitesandresources.TheoverallecologicalconditionofriparianareaswillgraduallyimproveasportionsofroadsorrecreationalsitesthatareinconsistentwiththeAquaticManagementStrategyareidentifiedforrestoration.

Iunderstandthatthereisscientificuncertaintyregardingthelong-termeffectsofthismanagementplan.Adaptingourmanagementstrategiesbasedoncurrentandreliablemonitoringdataandscientificresearchisvitallyimportanttosoundresourcemanagement.AlternativeBincludesstrategiesandobjectivesforScientificStudyandAdaptiveManagement(MonumentPlan,Part2-Strategy,StrategiesandObjectives),aswellasamonitoringplan(MonumentPlan,Part3-DesignCriteria,MonitoringandEvaluation).Monitoring

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Twelveissueswereidentifiedduringthescopingprocess.Sixalternativeshavebeendeveloped,described,andanalyzedthatrespondtotheissues.Theissuesare:

Issue 1—Recreation and Public Use Recreation use and enjoyment of the Monument is increasing, resulting in competition between different types of public use and a greater need to protect the objects of interest.

Issue 2—Road and Trail Access Maintain a road and trail system that provides safe access for a diversity of uses, while reducing impacts to sensitive resources and the objects of interest, and reducing conflict between different types of use (motorized/non-motorized).

Issue 3—Diverse Array of Wildlife and Their HabitatsProposed fuel reduction and ecological restoration treatments may adversely affect the amount and distribution of wildlife species and their habitat, especially the Pacific fisher.

Issue 4—Fuels Management/Community ProtectionFuels reduction as proposed, to protect communities and the objects of interest in the Monument, may not be effective in terms of how much is treated and the kinds of treatments used.

III. Issues

andevaluationareintegralpartsoftheadaptivemanagementcyclethatwillprovideaframeworktoguidefuturemanagementdecisionsandactions.

Wilderness RecommendationsMydecisionincludestherecommendationfromAlternativeEtoincludeapproximately15,110acresoftheMosesInventoriedRoadlessAreaintheWildernessSystem.The1990MSAstipulatedthataportionoftheMosesInventoriedRoadlessAreashouldberecommended:

Pendingfinaldispositionbytheexecutiveand/orlegislativebranches,themappedportionsoftheMosesRoadlessAreashallbe...managedtopreserveitswildernesscharacter(USDAForestService2007a,p.70).

Iamrecommendingthisareaafterreviewingpubliccommentsandtheevaluationthatidentifiesitscapability,suitability,andneed.ThisareawillbemanagedtoprotectitswildernesscharacteristicsuntilCongressmakesadecisiononwhetherornottodesignateit.

Special Areas, including Special Interest AreasInadditiontotheexistingspecialareasintheMonument,whichincludedesignatedwildernesses,wildandscenicrivers,backcountry(inventoriedroadlessareas),researchnaturalareas,botanicalareas,andscenicbyways,mydecisionincludesthedesignationoftwoSpecialInterestAreas.Theseareasare:

● FreemanCreekBotanicalArea(4,190acres)

● WindyGulchGeologicalArea(3,500acres)

Theseproposals,andmydecision,includeeveryadditionoforamendmenttospecialareasthatwasconsideredintheFEISinanyofthealternatives.Inaddition,thestrategiesandobjectivesforexistingspecialareasareapprovedinthisdecision.

Theseareaswillreceivemanagementemphasisforprotectionoftheuniquefeaturesforwhichtheyaredesignated.Iamapprovingtheseareasbasedontheevaluationsofforeststaff,thestipulationsintheMSA,andcommentsfromthepublic.

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IV. AlternativesSixalternativesweredevelopedandanalyzedinordertodeterminethebestcombinationofdesiredconditions,strategies,objectives,andstandardsandguidelinestoresolvetheissues.Allofthealternativesareaimedatachievingthedesiredvegetativeconditionsandexploredifferentstrategiesforachievingthedesiredconditions.Sincethealternativesarefocusedonecologicalrestorationratherthantargetedresourceoutputs,theydonotvaryinthetraditionalsense.Theydoexplorevariousstrategies(includingnochange)toprotectandcarefortheobjectsofinterestandachievedesiredconditionsovertime.

Alternative A:ThisistheNo-ActionAlternativethatisrequiredbyNEPA.Noactionmeansnochangeinmanagementdirection.Theeffectsofon-goingactivitiesreflectingthedaytodayoperationoftheMonumentwillbeanalyzedinthisalternativeandusedasabaselinefortheanalysisoftheeffectsoftherestofthealternatives.

Alternative B:Thisistheproposedaction,developedtospecificallycomplywiththepresidentialproclamation.Strategiesaremodeledandanalyzedthatareresponsivetoissuesfocusedonrecreationandpublicuse,fireandfuelmanagement/communityprotection.

Issue 5—Tree RemovalThere is considerable and meaningful debate about the conditions under which trees need to be cut, and about when and in what form a tree should be removed from the Monument, for ecological restoration.

Issue 6—Methods for Sequoia RegenerationThere is ongoing debate about the methods that would successfully promote the regeneration, establishment, and growth of giant sequoias.

Issue 7—Fires Spreading to Tribal LandsA large wildfire spreading to the Tule River Indian Reservation from the Monument could result in irreversible damage to the tribe’s watershed resources and community.

Issue 8—Obligation to Analyze MSA under NEPABring forward and implement the agreements set forth by the MSA, analyzing the effects in the NEPA process.

Issue 9—Manage the Monument Like Sequoia and Kings Canyon National ParksSince this federal land is now a national monument, it should be managed like a national park, in particular like Sequoia and Kings Canyon National Parks.

Issue 10—Convene a New Scientific Advisory BoardA new Scientific Advisory Board should be convened for the current planning process as stipulated by the President Clinton proclamation.

Issue 11—Tribal Access to and Protection of Cultural SitesResource management activities and increased public use could negatively affect tribal member access to traditional sites and the cultural resources in the Monument.

Issue 12—Livestock GrazingGrazing by livestock can be harmful to monument ecosystems and, in particular, to meadow and riparian ecosystems.

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TheneedforthisactionwasdeclaredinthepresidentialproclamationwhichestablishedtheGiantSequoiaNationalMonumentinApril2000(Clinton2000).Theoriginalproposaltoamendthe1988ForestPlanwaslistedintheNoticeofIntentthatwaspublishedintheFederal RegisteronJune8,2001.TheproposedactionwasprovidedtothepublicandotheragenciesforcommentduringthescopingperiodconductedfromJune8toJuly24,2001.TheForestServiceheldpublicmeetingsontheproposedactioninJuly2001,meetingswithtwogroupsontheroadsanalysisprocessinFebruary2002,andpublicmeetingsonthedevelopmentofalternativestotheproposedactioninMarch2002.

Theinitialdraftenvironmentalimpactstatement(DEIS)wasreleasedforpubliccommentinDecember2002,withthecommentperiodrunningfromDecember2,2002toMarch17,2003.TheForestServiceheldpublicmeetingstoreview,discuss,andcommentontheDEISinFebruary2003.

InJanuary2004,thefinalenvironmentalimpactstatement(FEIS)andRecordofDecisionwerepublishedandsignedintoeffect.Twolawsuitswerefiledchallengingthedecision.InOctober2006,FederalDistrictCourtJudgeCharlesBreyerpermanentlyenjoinedimplementationofthe2004decisionandremandedtheplantotheForestService.

AftertheplanwasremandedtotheForestService,theSequoiaNationalForest’sforestsupervisorrestartedtheplanningprocess.Athird-partyfacilitatorledmeetingsofpeopleinterestedinrecreationmanagementfromDecember2007toJune2009.ThesemeetingsresultedintheformationofaworkinggroupthatlaterbecametheGiantSequoiaNationalMonumentAssociation.Otherpublicmeetingsfocusingonecologicalrestorationand

fuelsandvegetationmanagementstrategieswereheldfromMaytoNovember2008.During2008and2009,severaldecisionsupporttoolswereevaluated,includingtheStrategicDecisionSupport(SDS)modelandtheMulti-CriteriaDecisionSupport(MCDS)model.Twowebsitesweredevelopedforpublicinput,onefortheMCDSandoneforcommentsontheProclamationandtheScientificAdvisoryBoardadvisories.

OnMarch18,2009,anewNoticeofIntentandscopingletterwereissuedwithaproposedactionforpubliccomment.Duringthe45-dayscopingperiod,awebsitewasprovidedasanothermethodtoprovidecommentsontheproposedaction.TheValuesandInterest-BasedExplorer(VIBE)website,aversionoftheMCDSmodel,wasalsoavailabletothepublicduringthescopingperiod.FourpublicworkshopswereheldinApril2009todiscussgiantsequoiagrovemanagement.

FromNovember2008throughMay2009,theSequoiaNationalForestconductedacomprehensivereviewtodeterminewhichoftheprovisionsoftheMSAhavealreadybeenaddressedorincorporatedintheForestPlanasamended.ThisreviewconcludedthatanumberofprovisionswereneverfullyincorporatedintotheForestPlan.OnApril13andMay19,2009,meetingswereheldwiththeappellantswhowerepartiestotheMSAtodiscusswhichprovisionsmaybeapplicabletotheMonument.

Thedraftenvironmentalimpactstatement(DEIS)anddraftMonumentPlanwerereleasedforpubliccommentonAugust6,2010.ThiscommentperiodrantoDecember3,2010.AnotherroundofpublicmeetingswasheldinSeptemberandOctober2010todiscussthelayoutandorganizationofthedocuments,tounderstandthedocumentsandidentifythe

V. Public Involvement

Alternative C:ThisalternativeisdesignedtomanagetheMonumentusingstrategiesforecologicalrestorationthatareemployedtomanageSequoiaandKingsCanyonNationalParks(SEKI).

Alternative D:ThisalternativeincludesstrategiesthatfocusontheuseofnaturaldisturbanceprocessessuchaswildfiretomanagetheMonument.

Alternative E:ThisalternativeisdesignedtomanagetheMonumentasguidedbytheMediatedSettlementAgreement(MSA).

Alternative F:Thisalternativefocusesonamoreflexiblerangeofmanagementtoolstopromoteecologicalrestorationandmaintenance,andforesthealth,andachievethedesiredconditionsinlesstime.

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VI. Identification of the Environmentally Preferred AlternativeNEPAregulationsrequireagenciestospecifythealternativeoralternativeswhichwereconsideredtobeenvironmentallypreferable(40CFR1505.2(b)).ForestServicepolicy(FSH1909.15,Section05)definesenvironmentallypreferableas:

AnalternativethatbestmeetsthegoalsofSection101ofNEPA…Ordinarilythisisthealternativethatcausestheleastdamagetothebiologicalandphysicalenvironmentandbestprotects,preserves,andenhanceshistorical,cultural,andnaturalresources.

AlthoughtheActitselfdoesnotdefinetheenvironmentallypreferredalternative,itdoessuggestnationalenvironmentalpolicy(42USC,Section4331,Sec.101(b)).Thatpolicycallsforthecontinuingresponsibilityofthefederalgovernmenttouseallpracticablemeanstoimproveandcoordinateplans,functions,programs,andresourcessothatthenationmay:

1. Fulfilltheresponsibilitiesofeachgenerationastrusteesoftheenvironmentforsucceedinggenerations.

2. AssureforallAmericanssafe,healthful,productive,andaestheticallyandculturallypleasingsurroundings.

3. Attainthewidestrangeofbeneficialusesoftheenvironmentwithoutdegradation,risktohealthorsafety,orotherundesirableandunintendedconsequences.

4. Preserveimportanthistoric,cultural,andnaturalaspectsofournaturalheritageandmaintain,

whereverpossible,anenvironment,whichsupportsdiversityandvarietyofindividualchoice.

5. Achieveabalancebetweenpopulationandresourceuse,whichwillpermithighstandardsoflivingandawidesharingoflife’samenities.

6. Enhancethequalityofrenewableresourcesandapproachthemaximumattainablerecyclingofdepletableresources.

Giventhesecriteria,IamidentifyingAlternativeBastheenvironmentallypreferredalternative.Thisfindingisbaseduponthecomprehensivebalancethatthisalternativeprovidesfor1)reducingtheriskofcatastrophicwildfiretocommunitiesandvaluableresourcessuchasgiantsequoiagroves,wildlifehabitat,andotherobjectsofinterest,and2)restoringimportantecologicalprocessesandforeststructuressuchasamorenaturalfireregime,amosaicoftreespecies,ages,andsizesforwildlifehabitat,andgiantsequoia regeneration.

ItismyassessmentthatAlternativeBbestmeetsthegoalsandthesubstantiverequirementsofSection101ofNEPA.AlternativeBwillensurethefuturehealthofthelandbyprovidingappropriatestrategies,objectives,standardsandguidelines,andmanagementtoolsto:

● ProtectandpreservetheuniquefeaturesoftheMonumentconsistentwiththerequirementsoftheProclamation

● Restoreandmaintainnaturalecologicalprocesses

● ProvidekeyresourcesandopportunitiesforpublicusewithintheMonument

informationmostimportanttothepublic,andtogivethepublicampleopportunitytospeakwithplannersandtheinterdisciplinaryteam.

InordertofullyinvolvepeopleintheprocessofdevelopingamanagementplanfortheMonument,theSequoiaNationalForestofferedopportunitiesforinterestedpeopletoengageinacollaborativeprocessintendedtohelpfacilitateitsdevelopmentandtoanalyzeanappropriaterangeofalternatives.

Traditionalandnon-traditionalapproacheshavebeenusedthatencourageiterativediscussion,ensurethattheplanningprocessistransparent,andmakecertainthatideaspresentedforconsiderationarelegal,fair,andpractical.Thecollaborativeprocessplacesanemphasisonunderstandingthecomplexityoftheissuesandthestrategiesthatmaybeemployedtoresolvethem,ratherthanontotalagreementontheresolutionofindividualissues.

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● Reducefuelloadsandimprovewildlifehabitat

● Replacethemultipleandconfusinglevelsofcurrentmanagementdirectionwithasinglecomprehensivemanagementplan

AlternativeBincludesthoseusesappropriatetotheMonumentsuchasdispersedanddevelopedrecreationandlivestockgrazing.ThedesigncriteriainPart3oftheMonumentPlan,includingthestandardsandguidelines,willbeusedtoguardagainstundesirableand/orunintendedoutcomes.

ThisRecordofDecisionhasdiscussedthedecisionprocessandtherationaleforthedecision.Thecurrent

managementdirectionfortheSequoiaNationalForestandtheMonumentisacomplicatedwebofconfusingdirectionthatisdifficulttofollowandevenmoredifficulttounderstand.Theselectedalternativeaddressestheprotectionoftheobjectsofinterest,includingplantandanimalspeciesandtheirhabitat,thedemandforhumanuses,andthecriticalneedforfuelsreduction,soitmakessensefortheMonument.TheevaluationprocessthatIhavedescribedinthepreviousRationalefortheDecisionsectionincludestheevaluationofnetpublicbenefit,thekeyfactors,andtheattributesandadvantagesthatcauseAlternativeBtostandout,inmymind,asenvironmentallypreferable.

VII. Findings Required by Other Laws & RegulationsThisdecisiontoimplementAlternativeB,withadditionalelementsanalyzedinotheralternatives,isconsistentwiththerequirementsoftheNational

ForestManagementActandtheNationalEnvironmentalPolicyActasamended,andotherproceduralrequirements.

VIII. Diversity and ViabilityTheNationalForestManagementAct(NFMA)requirestheSecretaryofAgriculturetospecify:

Guidelinesforlandmanagementplansdevelopedtoachievethegoalsofthe[RPA]Programwhichprovidefordiversityofplantandanimalcommunitiesbasedonthesuitabilityandcapabilityofthespecificlandareainordertomeetoverallmultiple-useobjectives[16U.S.C.1604(g)(3)(B)].

The1982planningprocessutilizedinthisMonumentPlanimplementsthisprovisionoftheNFMAbymaintainingsufficientfishandwildlifehabitatintheplanningareatosupportviablepopulationsofexistingnativeanddesirednon-nativevertebratespecies.ThisPlanincorporatesapplicableanalysisandmanagementdirectionfromtheSequoiaNationalForestPlananditsFEIS,asamendedbythe2001SierraNevadaForestPlanAmendment(SNFPA)anditsFEIS,includingtheviabilityanalysesandconclusionscontainedtherein.Moreover,thespecificanalysesprovidedintheenvironmentaldocumentsforthisPlansupportmyconclusionthatthisPlanisincompliancewiththeNFMAandtherelevant1982planning process.

AmongthedesiredconditionsestablishedinthisPlanfortheMonumentisthat“LandsintheMonumentcontinuetoprovideadiverserangeofhabitatsthatsupportviablepopulationsofassociatedvertebratespecies,withspecialemphasisonriparianareas,montanemeadows,andlatesuccessionalforest...Oldforesthabitatisinsuitablequality,quantity,anddistributiontosupportviablepopulationsoflatesuccessionaldependentspecies,includingPacificfishers,Americanmartens,Californiaspottedowls,northerngoshawks,andgreatgrayowls”(MonumentPlan,Part1—Vision,DesiredConditions,WildlifeandPlantHabitat).

TheplanningprocessfortheMonumentrelied,inpart,onassessmentscompletedpursuanttothe2001SNFPAthatmaderiskprojectionsregardingtheecologicalconditionsthatarenecessarytomaintainviablepopulationsofvertebratespecieswelldistributedthroughouttheirrangeunderfullimplementationoftheSNFPA.TheMonumentPlanStrategy(includingstrategiesandobjectiveandlandallocations/managementareas)inPart2ofthePlan,DesignCriteria(includingthestandardsandguidelines,andmonitoringandevaluationprocedures)

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inPart3ofthePlan,thePartnershipStrategyinAppendixE,andtheTransportationPlaninPart4,werealldesignedtocontributesufficienthabitattosupportviablepopulationsofthesespecies.Thestrategies,objectives,andstandardsandguidelines,inparticular,aredesignedtoachievethedesiredconditionsfortheMonument.Thestandardsandguidelinesincluderequirementstobemetinanddesigncriteriaforsite-specificprojectsthatwillhelpmeetthestrategiesandobjectivesandachievethedesiredconditions.IamconfidentthatcompliancewiththestandardsandguidelinesoutlinedinPart3oftheMonumentPlanwillnotleadtoalossofviabilityofvertebratespeciesattheSequoiaNationalForestlevel.

Inreachingthisconclusion,IconsideredexistingandreasonablyforeseeableconservationmeasuresandfactorsunderForestServiceauthorityorcontrol.Aswehavelearnedindecadesofplanning,evenaswehaveconsideredthebestavailablescientificinformation,wecannotguaranteeoutcomes.Fire,drought,windstorms,andotherphenomenacanoccurattimesandinwayswecannotpredict.Nonetheless,IbelievethatthisPlanprovidesdirectionsothat,totheextenttheForestServicecanmaintainnecessaryhabitat,itwilldoso.

Inadditiontothestrategiesandobjectives,landallocations/managementareas,standardsandguidelines,andotherguidancethatarepartofmydecision,Ilookedatothermeasuresthatwillaffectspecies’conservation,includingimplementationofinternalpolicydirectives(liketheForestService’sSensitiveSpeciesprogram)andadditionalprotectionsthatcanbetakenduringprojectplanning.Moreover,interagencyeffortsmayidentifyadditionalconservationmeasuresthroughinventoryandmonitoring,orothersourcesofnewinformationrelative to species conservation.

Basedonmyreviewoftheenvironmentalconsequencesidentifiedintherecord,includingtheFEIS,BiologicalAssessment(BA),BiologicalEvaluation(BE),andManagementIndicatorSpecies(MIS)Report,IbelievethatthemanagementstrategiesdescribedinthisRecordofDecisionforAlternativeBwillconservehabitatwithintheMonument,whilealsomeetingtherequirementsoftheProclamation,managingthedemandsassociatedwiththeprojectedlevelsofhumanpopulationgrowth,andmanagingtherisksofwildlandfire.IexpectthisdecisiontofullycomplywiththediversityofplantandanimalcommunityprovisionsofNFMAandthe1982planningprocess.

IX. Environmental JusticeExecutiveOrder12898“FederalActionstoAddressEnvironmentalJusticeinMinorityPopulationsandLow-IncomePopulation”requiresthatfederalagenciesmakeachievingenvironmentaljusticepartoftheirmissionbyidentifyingandaddressing,asappropriate,disproportionatelyhighandadversehumanhealthandenvironmentaleffectsoftheir

programs,policies,andactivitiesonminoritypopulationsandlow-incomepopulations.AsconcludedintheFEIS,nodisparateoradverseeffectsareidentifiedtogroupsofpeopleidentifiedinCivilRightsStatutesorExecutiveOrder12898(EnvironmentalJustice)fromtheProposedAction.

X. Civil RightsCivilrightsaredefinedas“thelegalrightsofUnitedStatescitizenstoguaranteedequalprotectionunderthelaw”(USDAForestServiceManual1730).Acivilrightsimpactanalysisforenvironmentalornaturalresourceactionsisanecessarypartofthesocialimpactanalysispackageinanenvironmentalimpactstatementandisnotaseparatereport(USDAForestServiceHandbook1709.11).

TheForestServiceiscommittedtoequaltreatmentofallindividualsandsocialgroupsinitsmanagementprogramsinprovidingservices,opportunities,andjobs.Becausenoactualorprojectedviolationoflegalrightstoequalprotectionunderthelawisforeseenforanyindividualorcategoryofpeople,nocivilrightsimpactsarereportedintheFEIS.

Record of Decision


IamprovidingthefollowingtransitiondirectiontoensuretheorderlyimplementationoftheforestplanamendmentthatismadeinthisRecordofDecision.Myintentionistoprovideforecologicalrestorationofprocessesandtoenhancelong-termecologicalintegrity,assurethemostefficientandappropriateuseofgovernmentresources,minimizecoststoholdersofexistinggovernmentcontractsandpermits,avoiddisruptionstolocalcommunities,andreducethelikelihoodofconfusion.Ihaveconsideredandbalancedeachoftheseconcernsinmakingmydecisiontoissuethisdirection.

TheMonumentPlan,whichamendsthelandmanagementplanfortheSequoiaNationalForest,becomeseffective30daysafterpublicationofthenoticeofavailabilityoftheFEISintheFederal Register.ThenewdirectionwillapplytoallprojectdecisionsintheMonumentmadeonoraftertheeffectivedateofthisdecision.Thenewdirection

doesnotapplytoanyprojectsthathavehaddecisionsmadepriortotheeffectivedateofthisdecision.Projectscurrentlyundercontract,permit,orotherauthorizinginstrumentarenotaffectedbythedecision;however,projectsmaybemodifiedtoadoptallorpartofthisdirectionwhereForestServicemanagersdeemappropriate.Re-issuanceofexistingauthorizationswillbetreatedasnewdecisions,whichmustbeconsistentwiththenewdirectiondescribedintheforestplanamendment.

Theforestplanamendmentprovidesthestrategicframeworkwithinwhichproject-leveldecisionsaredesignedandimplemented.Asnotedabove,allprojectsintheMonumentforwhichadecisionhasnotbeenmadepriortotheeffectivedateofthisdecisionmustbeconsistentwiththenewdirectionofthisplanamendment.Thisamendmentdoesnotprovidefinalauthorizationforanyactivity,nordoesitcompelthatanycontractsorpermitsbeadvertisedorawarded.

XII. Appeal RightsThisdecisionissubjecttoadministrativeappealinaccordancewiththeprovisionsof36CFR219.17(b)(3)ofthecurrentNFMAregulations(77FR21260,21270,April9,2012),whichallowforuseoftheoptionaladministrativeappealproceduresinthepriorplanningregulations.Underthetransitionprovisionsofthereinstated2000PlanningRule(36CFR219.35(b)and219.35(AppendixA)[2010]),theresponsibleofficialmayelecttousetheadministrativeappealproceduresforlandmanagementplansandamendmentsapprovedduringtheplanningruletransitionperiod.AwrittenNoticeofAppealmustbefiledwithin90daysofthedatethelegalnoticeofthisdecisionispublishedinthePorterville RecorderandSacramento Bee.

Theadministrativeappealproceduresforthisplanamendmentcanbefoundathttp://www.fs.fed.us/emc/applit/includes/PlanAppealProceduresDuringTransition.pdf,orbyrequestingthemfromthePacificSouthwestRegionalOfficeoftheForestService.Section8oftheseproceduresexplainsthatitistheresponsibilityoftheappellanttofilethenoticeofappealonorbeforethelastdayofthefilingperiod.

TheappealmustbefiledwiththeChiefoftheForestServiceandcontainsufficientnarrativeevidenceandargumenttoshowwhythisdecisionshouldbechangedorreversed.Ataminimum,thewrittennoticeofappealmust:

1. StatethatthedocumentisaNoticeofAppealfiledpursuantto36CFR219.35,AppendixA;

2. Listthename,address,andtelephonenumberoftheappellant;

3. Identifythedecisionaboutwhichtherequesterobjects;

4. Identifythedocumentinwhichthedecisioniscontainedbytitleandsubject,dateofthedecision,andnameandtitleofthedecidingofficer;

5. Identifyspecificallythatportionofthedecisionordecisiondocumenttowhichtherequesterobjects;

6. Statethereasonsforobjecting,includingissuesoffact,law,regulation,orpolicy,and,ifapplicable,specificallyhowthedecisionviolateslaw,regulation,orpolicy;and

XI. Implementation

Record of Decision


RANDYMOORERegionalForester,ResponsibleOfficialPacificSouthwestRegionUSDA Forest Service

Date

7. Identifythespecificchange(s)inthedecisionthattheappellantseeks(54FR3357,Jan.23,1989,asamendedat55FR7895,Mar.6,1990;56FR4918,Feb.6,1991).

AppealsmustbefiledwiththeChiefoftheForestServiceatanyofthefollowingaddresses:

For delivery by the U.S. Postal ServiceUSDA Forest ServiceAttn:EMCAppealsMailStop11041400IndependenceAvenue,SWWashington,D.C.20250-1104

For delivery by private carrier or hand delivery*USDA Forest ServiceEcosystemManagementCoordinationAttn:AppealsYatesBldg.,3CEN20114thSt.,SWWashington,D.C.20250

Mainphone**:(202)205-0895Fax:(202)205-1012E-mail:[email protected]

*Appealsmaybehanddeliveredtothisaddressbetweenthehoursof8:00a.m.and5:00p.m.,MondaythroughFriday,excludingfederalholidays.

**Themainphonelinecanbeusedforcarrierdeliveries.Thisnumberisstaffedduringregularbusinesshours.

Record of Decision


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Giant Sequoia Forest Service National Monument