Federal Register, Volume 74 Issue 51 (Wednesday, March 18, 2009)

[Federal Register Volume 74, Number 51 (Wednesday, March 18, 2009)]
[Notices]
[Pages 11520-11526]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E9-5809]

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Notices
Federal Register
________________________________________________________________________

This section of the FEDERAL REGISTER contains documents other than rules
or proposed rules that are applicable to the public. Notices of hearings
and investigations, committee meetings, agency decisions and rulings,
delegations of authority, filing of petitions and applications and agency
statements of organization and functions are examples of documents
appearing in this section.

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Federal Register / Vol. 74, No. 51 / Wednesday, March 18, 2009 /
Notices

[[Page 11520]]

DEPARTMENT OF AGRICULTURE

Forest Service

Giant Sequoia National Monument Management Plan EIS

AGENCY: Forest Service, USDA.

ACTION: Notice of intent to prepare an Environmental Impact Statement.

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SUMMARY: The Department of Agriculture, Forest Service is preparing an
Environmental Impact Statement (EIS) to establish management direction
for the land and resources within the Giant Sequoia National Monument
(GSNM) created by Presidential Proclamation on April 15, 2000. The
Forest Service, as the responsible agency, proposes to amend the 1988
Sequoia National Forest Land and Resource Management Plan (1988 Forest
Plan) to provide for the protection of the objects of interest
identified in the Proclamation.

DATES: Comments concerning the scope of the analysis must be received
by May 4, 2009. The draft environmental impact statement is expected
September 2009 and the final environmental impact statement is expected
March 2010.

ADDRESSES: Send written comments to Marianne Emmendorfer, Project
Leader, Sequoia National Forest Headquarters, 1839 South Newcomb
Street, Porterville, CA 93257, and Attention: Monument Management Plan,
or via facsimile to (559) 781-4744.
It is important that reviewers provide their comments at such times
and in such a way that they are useful to the Agency's preparation of
the EIS. Therefore, comments should be provided prior to the close of
the comment period and should clearly articulate the reviewer's
concerns and contentions. The submission of timely and specific
comments can affect a reviewer's ability to participate in subsequent
administrative review or judicial review.
Comments received in response to this solicitation, including names
and addresses of those who comment, will become part of the public
record for this proposed action. Comments submitted anonymously will be
accepted and considered; however, anonymous comments will not provide
the respondent with standing to participate in subsequent
administrative review or judicial review.

FOR FURTHER INFORMATION CONTACT: Marianne Emmendorfer, Project Leader,
Sequoia National Forest, at the address listed above. Her telephone
number is 559-338-2251, extension 313. Information regarding the
monument and the planning process can also be found on the Giant
Sequoia National Monument Web site located at http://www.fs.fed.us/r5/sequoia/gsnm.
The Sequoia National Forest is using the Giant Sequoia National
Monument Management Plan to pilot software from Limehouse Software\TM\
that allows documents to be posted to a Web site for your review and
comment. Please visit the Limehouse Software Web site http://gsnm-consult.limehouse.com/portal/ to enter comments electronically.
Additional documents will be posted that are relevant to the management
plan. When you visit the Web site, please register to access all the
features of this Web site and to receive automatic notifications when
documents are posted. A guided tour, showing how to use the site, is
available, as well as help files, explaining how to use the Web site.

FOR FURTHER INFORMATION CONTACT: Individuals who use telecommunication
devised 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
Time, Monday through Friday.

SUPPLEMENTARY INFORMATION:

Background

On April 15, 2000, a Presidential Proclamation creating the Giant
Sequoia National Monument was signed. The Proclamation designated
327,769 acres within the boundary of the Sequoia National Forest as a
National Monument to provide protection for a variety of objects of
historic and scientific interest, including giant sequoia trees and
their surrounding ecosystem. The Proclamation required establishment of
a monument management plan within three years, and establishment of a
scientific advisory board to assist in development of this plan. A
scientific advisory board was appointed, in consultation with the
National Academy of Sciences, to provide scientific guidance during the
development of the 2004 Giant Sequoia National Monument Management Plan
Final Environmental Impact Statement (FEIS) and Record of Decision. A
Giant Sequoia National Monument Management Plan Record of Decision was
signed on January 12, 2004. The monument plan was challenged and
litigation was filed in the United States District Court for the
Northern District of California on January 27, 2005 (Sierra Club, et
al., v. Bosworth, et al., No. C-05-00397 CRB) and March 3, 2005 (People
of the State of California, ex rel. Lockyer v. United States Department
of Agriculture, et al., No. C-05-00898 CRB). In October 2006, Federal
District Court, Judge Charles Breyer, found in favor of the plaintiffs
in both cases and remanded the Plan to the USDA Forest Service ``* * *
so that a proper Monument Plan can be developed in accordance with the
Presidential Proclamation, * * * and in compliance with the National
Environmental Policy Act (NEPA) * * *'' Calif. ex rel. Lockyer v. USDA,
No. C-05-00898 (N.D. Cal., Oct. 11, 2006).
There are a number of resources and direction that are applicable
to the entire Sequoia National Forest that also need to be addressed in
the Giant Sequoia National Monument management plan to some extent. The
2004 Giant Sequoia National Monument plan specified that it relied on
the 2001 Sierra Nevada Forest Plan Amendment (SNFPA) FEIS and Record of
Decision, due in part to the fact that the supplemental SNFPA EIS was
being developed at the same time as the monument plan. However, the
2004 SNFPA contained updated scientific research regarding fire and
fuels, and wildlife habitat information. This current analysis for the
monument will rely on the most current scientific information
available. Where applicable it may adopt existing direction from other
sources including the 2004 SNFPA.
In addition, though California condors fit the description of
``rare and endemic species'' for which the monument was established,
these birds have historically

[[Page 11521]]

used portions of the Sequoia National Forest (SQF). Therefore,
direction for condor habitat will be provided within the monument
portion of the SQF in the management plan, with the knowledge that any
updated management direction for condor habitat outside the Monument
will be addressed in the Sequoia National Forest plan revision.

Mediated Settlement Agreement

The 1990 Mediated Settlement Agreement to the Sequoia National
Forest Land Management Plan (MSA) states, ``In the interim period
between signing this Agreement and finalizing an amendment
incorporating this Agreement into the Plan, the Parties agree that the
provisions of this Agreement shall be implemented according to the
schedules indicated throughout this document.'' A review is currently
being conducted to determine which of the provisions of the MSA have
been incorporated into amendments to the 1988 Sequoia National Forest
Land and Resource Management Plan. The preliminary review found that
there are a number of provisions yet to be fully incorporated in
amendments. Therefore, applicable provisions of the MSA will be
addressed in the Giant Sequoia National Monument management plan
environmental analysis.

Proclamation

The Proclamation stated, ``Laws, regulations, and policies
pertaining to administration by the Department of Agriculture of
grazing permits and timber sales under contract as of the date of this
proclamation on National Forest System lands within the boundaries of
the Monument shall continue to apply to lands within the Monument.
Nothing in this proclamation shall be deemed to affect existing special
use authorizations; existing uses shall be governed by applicable laws,
regulations, and management plans. Nothing in this proclamation shall
be deemed to revoke any existing withdrawal, reservation, or
appropriation; however, the national monument shall be the dominant
reservation.'' [Proclamation 7295, 65 FR 24095, 24098 (Apr. 25, 2000)].
In addition, the Proclamation stated, ``Removal of trees, except
for personal use fuel wood, from within the monument area may take
place only if clearly needed for ecological restoration and maintenance
or public safety.'' (65 FR 24097). Public use in the Monument is
defined as scientific research, interpretation and conservation
education regarding natural and cultural resources, activities
authorized under special use permits, recreation activities and current
commodity uses (i.e., grazing, fuelwood cutting, etc.) under applicable
laws, regulations and policies regarding their administration.
The Proclamation also stated, ``The final decision to issue any
management plans and any management rules and regulations rests with
the Secretary of Agriculture. Management plans or rules and regulations
developed by the Secretary of the Interior governing uses within
national parks or other national monuments administered by the
Secretary of the Interior shall not apply within the Giant Sequoia
National Monument.'' (65 FR 24098).
It is not within the purpose or authority of the Presidential
Proclamation that established the Giant Sequoia National Monument to
change existing:
State jurisdiction over fish and game management;
Water rights;
Laws, policies and regulations pertaining to permits and
projects under current contract;
Special use authorizations; and
Withdrawals, reservations, or appropriations except where
the Proclamation specified, and that the Monument shall be the dominant
reservation.

Scientific Advisory Board and Existing Advisories

The 2001 Presidential Proclamation required the Secretary of
Agriculture to appoint a Scientific Advisory Board (SAB) to assist in
developing the monument management plan. The board was convened as
described above, and submitted 28 advisories during the planning
process from 2002-2004.
Some of the advisories were specific to the draft EIS while others
were more far reaching. As this new monument planning process was
initiated, a number of people requested that a new SAB be convened. As
a first step to determine whether a new SAB is necessary, the Forest
Service offered a commenting opportunity on the existing scientific
advisories concurrent with the commenting opportunity on the
Proclamation from July through August 2008. Only those advisories that
were not directed at the 2002 draft EIS were included. Several people
commented on the advisories.
The Forest Supervisor determined that a number of the existing
scientific advisories are still relevant for the new monument plan. She
found the public comments on whether or how an additional Scientific
Advisory Board would be empanelled merit further study.

Purpose and Need for Action

The Presidential Proclamation establishing the Giant Sequoia
National Monument (Monument) required preparation of a management plan.
The required plan will amend the existing 1988 Sequoia National Forest
Land and Resource Management Plan (1988 Forest Plan) as amended by the
1991 Kings River Wild and Scenic River, and Special Management Area
Implementation Plan and the 2001 Sierra Nevada Forest Plan Amendment
(2001 SNFPA). The Proclamation focused on certain resources and uses in
establishing the Monument so the proposed plan amendment will also
focus on those areas in implementing the Proclamation.
The Monument Management Plan may also incorporate the management
direction provided by the 1990 Sequoia National Forest Land Management
Plan Mediated Settlement Agreement (MSA), and the 2004 Sierra Nevada
Forest Plan Amendment Supplemental Environmental Impact Statement (2004
SNFPA SEIS), as applicable, and to the extent that direction is
consistent with the Proclamation. Although the Monument plan
environmental impact statement (EIS) must consider these other sources
of direction, the plan is not constrained by the requirements
prescribed in these documents. The plan will be informed by the best
available science and will be based on a thorough review of relevant
scientific information and practical experience, per the Proclamation
and planning direction, resulting in a plan which could be
substantially different from current management direction.
The purpose and need of this management plan is to establish
management direction for the land and resources within the Giant
Sequoia National Monument in order to protect the Objects of Interest
(as described below), while providing key resources and opportunities
for public use within the Monument. Although many valuable Objects of
Interest are identified, it was also clear in the Proclamation that the
major purpose of the monument is to protect and maintain the giant
sequoia groves and the rare giants within their unique and natural
habitat.
The Monument management plan will describe a long-term vision and
the strategic management direction to guide management activities that
move resources toward the desired conditions. This Monument plan will
define the parameters (limits) for management activities, and offer the
flexibility to adapt project-level decisions to

[[Page 11522]]

accommodate rapidly changing resource conditions.
The Proclamation states that the monument plan shall:
Establish a transportation plan that provides for visitor
enjoyment, and understanding about the scientific and historical
objects consistent with their protection. (65 FR 24098).
The Proclamation did not specifically state, but implied the
following needs in protecting Objects of Interest in the Monument:
(A) Provide for survival of mature and regeneration of young
sequoias to assure the continued existence of this species. Consider
the effects of disturbance and climate change on the regeneration,
range and distribution of sequoias. (65 FR 24095).
(B) Restore the ecological processes and attributes that may be
altered due to a century of fire suppression and large-scale logging,
so that forest resiliency to large-scale wildfire and other potentially
catastrophic events is improved (65 FR 24095-24096),
(C) Provide opportunities for scientific study of the Objects of
Interest (such as biologists, geologists, paleontologists,
archaeologists and historians) (65 FR 24095-24097).
The Objects of Interest were generally identified in the
Proclamation, with the requirement that the management plan would
provide direction for their proper care. Through public and agency
dialogue the Objects of Interest have been determined to be a mix of
specific individuals/locations (i.e. specific caverns or named
sequoias) and broad ecosystem processes (i.e. sequoia groves and
associated watersheds). The following are the Objects of Interest that
will be considered for protection under this Giant Sequoia National
Monument Management Plan:
The ecosystems and outstanding landscapes within the
Monument that surround the sequoia groves, including the interconnected
vegetation types;
The naturally occurring giant sequoia groves and
associated ecosystems, rare giant trees, and other rare and endemic
plant species including the Springville clarkia, etc.;
The diverse array of rare animal species include the
Pacific fisher, great gray owl, American marten, northern goshawk,
peregrine falcon, California spotted owl, California condor, several
rare amphibians and western pond turtle;
The paleontological resources in the meadow sediments,
giant sequoia tree rings, and other vegetation that have recorded the
ecological changes including fire regimes, volcanism, vegetation and
climate over the millennia;
The limestone caverns and other geologic features
including granite domes, spires, geothermally produced hot springs and
soda springs, and the mix of glacial and river carved gorges;
Cultural resources, both historic and prehistoric, provide
a record of human adaptation to climate change and other influences,
including land use patterns, in shaping ecosystems over the past 12,000
years.
The Presidential Proclamation creates a national monument
recognizing and protecting forever its unique resources. The
Proclamation also clearly identifies opportunities for scientific
research, interpretation, recreation, and the need for a transportation
plan. We are committed to preparing a management plan that is
responsive to these needs and opportunities and that protects and
restores the objects of interest as identified in the Proclamation.

Proposed Action

Desired Conditions and New Objectives

The desired conditions are broad, overarching descriptions of
management goals and objectives to address the purpose and need to
protect the Objects of Interest while providing key resources and
opportunities for public use within the Monument. The 1988 Forest Plan
and the 2001 SNFPA provide desired condition goals and objectives for a
number of resources in the monument. Much of this direction is relevant
for use in managing the Giant Sequoia National Monument. However, there
is a subset of desired conditions and associated management direction
that needs to be amended to manage the monument in accordance with the
Proclamation.
In response to the Proclamation, the desired conditions discussed
here are focused on the resources for which the Giant Sequoia National
Monument Management Plan would amend or otherwise alter the current
direction provided in the 1988 Forest Plan, as amended by the 2001
SNFPA. The desired conditions and associated management direction
expected to be altered from current management direction includes:
Shifts in vegetation management direction (management
prescriptions), mainly regarding sequoias and oak habitat;
Shifts in fuels management, mainly regarding sequoia
groves;
Provide resource management direction that is more
responsive to new scientific data;
Greater emphasis on paleontological and cave resources;
Greater emphasis on selected cultural resource types and
research questions;
Greater emphasis on place-based recreation and public
access; and
Greater emphasis on partnerships and research
opportunities.
The desired conditions and resultant monument management goals are
governed by the 2000 Presidential Proclamation establishing the Giant
Sequoia National Monument; and, as applicable, informed by the 1988
Forest Plan; the 1990 MSA; the applicable advisories from the
Scientific Advisory Board; \1\ and the 2001 and/or 2004 SNFPA.
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\1\ Several advisories were specific to the 2002 Draft
Environmental Impact Statement for the Giant Sequoia National
Monument Management Plan and are therefore not necessarily
applicable to this current Draft EIS.
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The desired conditions are also informed by the public comments
regarding the original 2004 Giant Sequoia National Monument Management
Plan, and the commenting opportunity on the Presidential Proclamation
and scientific advisories from July 2 through August 31, 2008.
The desired conditions are described in the context of protecting
the Objects of Interest, and/or providing opportunities for public use.

A. Vegetation Including Sequoia Groves

The Proclamation stated that ``No portion of the monument shall be
considered to be suited for timber production, and no part of the
monument shall be used in a calculation or provision of sustained yield
of timber from the Sequoia National Forest.'' (65 FR 24097). The
desired conditions for vegetation within the Monument under the
Proclamation will amend portions of the current direction for
vegetation management. The 1988 Forest Plan provided two goals for
timber resources: (1) Increase total timber (and wood fiber) supply
where cost effective, and (2) maintain and enhance giant sequoias to
increase recreation use and interpretive opportunities. The Monument
plan will amend the first goal and its associated management
prescriptions per Proclamation direction to remove the Monument from
the timber land base. The second goal of the 1988 Forest Plan is
consistent with the Proclamation's goal to ``provide for and encourage
continued public and recreational access and use consistent with the
purposes of the monument.'' (65 FR 24097) In addition, the 1988 Forest
Plan provided specific management direction for giant sequoias, about
which the 1990 MSA recommended several changes to

[[Page 11523]]

establish grove boundaries and prevent logging in the groves to help
preserve \2\ and protect \3\ them.
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\2\ Preserve is defined in terms of the sequoia groves by
allowing ecological processes, or equivalents thereof, to maintain
the dynamic of forest structure and function (Piirto and Rogers, An
Ecological Foundation for Management of National Forest Giant
Sequoia Ecosystems, 1999).
\3\ Protect is defined in terms of sequoia groves as protecting
the naturally occurring goves from events that are contrary to or
disruptive of natural ecological processes. Protect cultural
artifacts, and ususual biological and physical features within
groves from agents that could destroy them or accelerate their
natural rate fo deterioration.
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The desired condition for the monument vegetation is a variable
distribution over space and time of a variety of species, sizes, and
ages that are in balance with climate and other ecological conditions,
which addresses the range of natural variability as determined by the
best available science. The resultant combinations and ranges of
ecosystem structures will provide a diverse habitat for biological
Objects of Interest, recreation opportunities, and forest ecosystems
able to regenerate and to survive drought, insects, disease, and large
wildfires.
Objects of Interest are protected from large scale disturbances and
vegetation type conversions. Under the Proclamation, ``Removal of
trees, except for personal use fuel wood, from within the Monument area
may take place only if clearly needed for ecological restoration and
maintenance or public safety.'' (65 FR 24097). Consistent with this
direction, the Forest will develop standards and guidelines to
encourage forest stand disturbances at the appropriate scale and
severity to meet other objectives such as safety, fuels, and wildlife
management. The vegetation diversity may promote ladder fuels and down
woody debris in one area, and giant sequoia regeneration and reduced
fuels in another area.
More specifically, the desired conditions in giant sequoia groves
will be a balance of forest disturbances, fuel loading, ladder fuels,
and burn frequencies that will provide adequate conditions for sequoia
regeneration. The desired habitat and processes will be adequate to
protect some sequoia regeneration, most large sequoias, and all mature
sequoias.
The 1990 MSA also recommended alterations to much of the grazing
management direction for oak and chaparral vegetation areas. Portions
of this direction have been included in the 2001 SNFPA direction for
grazing in oak woodlands. However, there are still portions of the MSA
direction regarding grazing management in oak and chaparral habitats
that will be considered in the environmental analysis, and may be
addressed in the monument plan.
The desired conditions of vegetation within oak grassland grazing
allotments are healthy large oak trees capable of producing acorns and
adequate regeneration and protection of oaks to assure long term
survival of the species.

B. Fuels

Fire, whether natural or human caused, has been a key process in
reducing the surface, ladder, and crown fuels that reduce
susceptibility to the adverse effects of severe wildfires. Many
ecosystems within and adjacent to the monument have excessive fuels
accumulation due to years of fire exclusion. These fuels have built up
at various rates depending on conditions and past treatments.
The existing direction under the 2001 SNFPA locates fuel treatments
across broad landscapes that are linked to support one another so that
the spread of wildland fire is interrupted and its intensity reduced.
Continued use of these strategies in the Monument are intended to
protect the resources including life, property, and sensitive
resources, such as the giant sequoias, wildlife, cultural resources,
and riparian areas. The 1990 MSA recommended fuels inventories and fuel
load reduction plans for the groves, which will be considered in the
development of alternatives and in the environmental analysis for the
monument plan.
The desired condition for fuels in the Monument is to establish and
maintain lower, manageable levels of flammable materials, especially at
the surface and understory layers using frequent fire return intervals.
Safer, manageable fuels are defined as those which pose low risk for
large, catastrophic fires and include a highly diverse vegetation
mosaic of age classes, tree sizes, and species composition. This will
also contribute to protecting the objects of interest and will help
maintain sustainable environmental, social, and economic benefits
(i.e., effects to tourism).
Additional direction provided in the 2001 Sierra Nevada Forest Plan
Amendment sets the highest priority for fuel reduction activities in
the urban wildland intermix zone (WUI). These fuel reduction treatments
are to protect human communities from wildland fires as well as
minimize the spread of fires that might originate in urban areas. The
goal is for fire suppression capabilities to be enhanced by modified
fire behavior inside the zone (USDA Forest Service, January 2001,
Record of Decision, page 9). The desired condition for WUI within the
Monument would follow the 2001 SNFPA guidelines to focus fuel reduction
treatments in developed areas within the WUI zones.

C. Habitat Management for Rare and Endemic Species

The GSNM and surrounding Sequoia National Forest provide habitat
for a number of rare plant and animal species. The Proclamation states:
``The great elevational range of the monument embraces a number of
climatic zones, providing habitats for an extraordinary diversity of
plant species and communities. The monument is rich in rare plants and
is home to more than 200 plant species endemic to the southern Sierra
Nevada mountain range.'' The desired condition is that lands within the
monument continue to provide a diverse range of habitats. Riparian
areas, montane meadows, and late successional forest are areas of
particular concern.
Lands within the GSNM account for nearly one quarter of the
Southern Sierra Fisher Conservation Area designated under the 2001
SNFPA. The Southern Sierra Fisher Conservation Area is a mapped land
allocation encompassing the known occupied range of the Pacific fisher
in the Sierra Nevada. The Monument management plan may update or add to
the management standards and guidelines based on current scientific
research and modeling from the Conservation Biology Institute (CBI) and
others regarding fishers.
Current management direction provided by the 2001 SNFPA for
California spotted owl, northern goshawks and great gray owls will
continue unaltered within the monument. The 2001 SNFPA designated
standards and guidelines for conserving willow flycatchers and
designated sites of emphasis habitats, based on consistent monitoring
of known willow flycatcher sites. Five of these sites occur within the
GSNM, though monitoring resulted in no willow flycatcher detections
since regular monitoring began in 2001. The management direction
provided by the 2001 SNFPA is expected to continue to be used in the
monument.
The 2001 SNFPA was intended to provide regionally consistent
direction to address aquatic, riparian, and meadow ecosystems
identified as the most altered and impaired habitats in the Sierra
Nevada. In addition, many aquatic and riparian-dependent species were
found to be at risk of extirpation. Foothill and mountain yellow-legged
frogs, several slender salamander species, and western pond turtles
have

[[Page 11524]]

suitable habitat in riparian areas in the monument. The Aquatic
Management Strategy (AMS) for the 2001 SNFPA established Riparian
Conservation Objectives for Riparian Conservation Areas (RCAs) and
Critical Aquatic Refuges (CARs). Portions of four CARs are located
within the GSNM. The management direction provided by the 2001 SNFPA is
expected to continue to be used in the monument.
The 1988 Forest Plan and 1990 MSA provide direction for the
management of the California condor. Forest Plan direction specifies
that management is to be congruent with the California Condor Recovery
Plan, and identifies several historic use areas that are to be managed
for the benefit and protection of the condor. These include the
Starvation Grove historic nest site and the Lion Ridge roost area. The
MSA recommended designating Wildlife Habitat Management Areas and other
guidance, which will be considered in the development of alternatives
and in the environmental analysis for the monument plan.

D. Watershed Resources

The 2001 SNFPA amended the 1988 Forest Plan and provided direction
on management of watersheds. The 1990 MSA also includes direction for
watershed management including establishing Streamside Management
Zones. The recommended management direction from the 1990 MSA regarding
watershed resources will be considered in the development of
alternatives and in the environmental analysis for the monument plan.
The desired condition is for hydrologic functions to operate in a
natural role within watersheds while resource management activities
sustain human needs and uses in the monument. Restoration of ecological
process is promoted through repair of previously harmed areas, and
fostering a return to natural conditions wherever possible.

E. Geological and Soil Resources

The Proclamation describes caves and other special geologic
resources as: ``The monument is dominated by granitic rocks, most
noticeably as domes and spires in areas such as the Needles. The
magnificent Kern Canyon forms the eastern boundary of the monument's
southern unit * * * Particularly in the northern unit of the monument,
limestone outcrops, remnants of an ancient seabed, are noted for their
caves.''
The desired condition is for ecological functions to operate in a
natural role across geologic features of the Monument while resource
management activities sustain human needs and uses. Geologic resource
management may be focused on (1) geologic features (caves, domes, hot
springs, etc.), (2) designating geological special interest areas
(caves, hot springs, etc.), (3) identifying and minimizing potential
geologic hazards, (4) maintaining groundwater, (5) protecting
paleontological resources, and (6) management of mineral resources,
``lands within the boundaries of this monument are hereby appropriated
and withdrawn from entry, location, selection, sale, leasing, or other
disposition under the public land laws including, but not limited to,
withdrawal from locating, entry, and patent under the mining laws and
from disposition under all laws relating to mineral and geothermal
leasing.'' (Proclamation 7295, Federal Register, Vol. 65, No. 80, 4/25/
2000, p. 24097). The Proclamation removed the Monument lands from new
mineral extraction so the Monument plan will amend the Forest Plan to
reflect this direction.
In addition, the 1990 MSA recommended direction regarding soil
quality standards and associated monitoring. The 2001 SNFPA
incorporated the Pacific Southwest Regional Soil Quality management
direction into the amendment. Whether the 2001 SNFPA adequately
addressed the 1990 MSA recommendations has yet to be determined.

F. Paleontological Resources

According to the Proclamation, the Monument holds unique
paleontological resources (i.e., life of past geologic periods found in
the fossil record of plants and animals) documenting tens of thousands
of years of ecosystem change. The Proclamation goes on to state,
``Subfossil vegetation entombed within ancient woodrat middens in these
caves has provided the only direct evidence of where giant sequoias
grew during the Pleistocene era, and documents substantial vegetation
changes over the last 50,000 or more years. Vertebrate fossils also
have been found within the middens.'' In addition, giant sequoias hold
within their tree rings multi-millennial records of past environmental
changes such as climate, fire regimes, and consequent forest response.
The desired condition is to manage the paleontological resources to
retain the components providing the fossil record throughout the
monument.

G. Cultural Resources

The Proclamation states: ``During the past 8,000 years, Native
American peoples of the Sierra Nevada have lived by hunting and
fishing, gathering, and trading with other people throughout the
region. Archaeological sites such as lithic scatters, food-processing
sites, rock shelters, village sites, petroglyphs, and pictographs are
found in the monument. These sites have the potential to shed light on
the roles of prehistoric peoples, including the role they played in
shaping the ecosystems on which they depended'' and ``One of the
earliest recorded references to giant sequoias is found in the notes of
the Walker Expedition of 1833, which described ``trees of the redwood
species, incredibly large * * *.'' The world became aware of giant
sequoias when sections of the massive trees were transported east and
displayed as curiosities for eastern audiences. The 1988 Forest Plan
and several laws direct the management and protection measures for
cultural resources.
The monument currently has over 900 recorded archaeological sites.
These sites are the physical remains of human occupation over the last
9,000 years and range from small-scale obsidian flake scatters to
large-scale complex Native American village sites occupied for
thousands of years. Historic sites chronicle some of the earliest Euro-
American exploration, settlement, and development of the southern
Sierra Nevada. Cultural resources provide information about the past
that was never written down. A greater understanding of these resources
can lead to a greater understanding of human environmental
interactions. These interactions include how humans reacted to large-
scale climate change; how humans manipulated vegetation on the smaller
scale of food and material use by individual families, and on the
larger scale of Native American burning and Euro-American logging.
Cultural resources provide physical evidence of human land use patterns
and can provide a greater understanding of culture change.
In addition to the physical remains, the oral histories,
ethnographic studies, and continuation of traditional practices
contribute to our understanding of people who have both new and long-
term cultural connections to the Monument. The preservation and
interpretation of cultural resources not only provides opportunities
for visitors to explore, enjoy, and learn about the diversity of
cultures that have lived in and visited the Monument; but also their
own cultural heritage. The desired condition for the Monument is to
place greater management emphasis on the rich cultural resources
through

[[Page 11525]]

protection, research, and public education.

H. Human Use and Socioeconomics

The Proclamation describes human use of the Monument as follows:
``The plan will provide for and encourage continued public and
recreational access and use consistent with the purposes of the
monument.'' People of all ages, races and backgrounds, whether from
local, rural or metropolitan communities would be encouraged to learn
about and visit the Monument. The Monument would serve as a foundation
of our commonality and interdependence.
The Monument will be managed cost effectively. Research would be
conducted regarding human use and socioeconomics. As the Scientific
Advisory Board recommended: ``The Plan should take into account
substantial increases in visitor use and exploit opportunities for
collaboration with nearby communities and businesses plus the National
Park[s] * * * [It] needs to include a plan to develop good quantitative
and qualitative information on visitor use, activities undertaken, and
enjoyment of proposed interpretive programs and facilities to comply
with the Presidential Proclamation (Advisories XVII and XIX).''
Demand for more specialized recreation (often provided by
outfitters and guides, such as mountain biking and rock climbing) is
increasing and the diversity of specialized recreation is increasingly
broad. Regional population growth is expected to lead to greater demand
for existing and emerging recreation opportunities. Projected
population growth in the United States and increasing tourism in this
region, along with other factors, clearly contribute to increasing
demand for recreation facilities and services throughout the Sierra
Nevada, specifically in the monument.
Existing direction from the 1988 Forest Plan and 2001 SNFPA
encourage diverse public access and use of the area in a safe manner.
Management direction is in place to protect communities (including
those within the monument) from wildfires, and to encourage economic
opportunities for the gateway communities and communities in the
Monument.
Interpretation and conservation education reflect scientifically-
supported scholarship and research data, conveying clear messages
regarding natural and cultural resources and multiple use. The unique
qualities of the monument pique people's interest throughout the world.
The monument not only provides a rich opportunity to connect people to
the giant sequoias and monument, but also to the earth as a whole. The
monument management plan has the potential, through the use of multi-
media interpretation and educational programs, to develop stewardship
of the resource, to ensure its present and future protection and to
enhance public enjoyment of this unique place. Awareness of the history
of the Monument, appreciation for its biological processes, learning
about the people who used and continue to use the monument, and
education about disruptive forces are all distinctive, yet interrelated
pieces that should be integrated into the overall approach to use of
the resource.
The 1988 Forest Plan and 2001 SNFPA provide management direction to
be well-balanced with a wide variety of recreational activities in a
well-managed environment, promoting appreciation of the opportunities
and harmony among users. Current direction recommends that visitors
will find a rich and varied range of recreational, educational, and
social opportunities enhanced by giant sequoias and the surrounding
ecosystems. Current direction also recommends that visitors will have
the opportunity to recreate in a variety of settings, from primitive to
highly developed areas. The 1988 Forest Plan also provides direction
for public enjoyment to handle conflicts that do arise with timeliness
and equilibrium, and to provide consistent and easy-to-read signage,
and informational materials. Current management direction also promotes
recreation use throughout the year.
The desired condition for the Monument is to further emphasize the
existing management direction to provide wide and varied public use of
monument resources and opportunities while protecting the sensitive
resources and Objects of Interest. Within the Monument there would be
more emphasis on establishing partnerships, providing people with a
connection to place, and promoting a sense of stewardship. These
partnerships would provide a wide spectrum of recreation experiences
through a wide variety of providers, including the Forest Service,
partners, permit holders, volunteers and other community entities.
Partnerships would be developed to increase interpretive materials and
programs for reaching larger segments of the general public and for
educating the ``citizen steward.'' Management partnerships will
continue with those tribes whose ecosystems and watershed are affected
by activities that occur on National Forest System lands, as well as
with those Native Americans without a land base who have the need,
through the practice of their culture, for National Forest System
lands.
The 1988 Forest Plan used some evaluation tools that have changed
over time. The Visual Management System has changed to the Scenery
Management System (SMS). The 1990 MSA recommended a number of changes
to the Visual Quality Objectives, which will be considered during the
evaluation under the SMS.
The MSA had several requirements for off-highway vehicle and other
trail use, which may be affected by the Travel Management Rule (36 CFR
Parts 212, 251, and 261: Travel Management; Land Uses; and
Prohibitions;), and is clearly altered by the Proclamation
(Proclamation 7295, Federal Register, Vol. 65, No. 80, 4/25/2000, p.
24098). How the Monument plan will amend the Forest Plan to clarify
recreational road and trail use will be identified during the
environmental analysis.
There are two proposals from the 1988 Forest Plan that will not be
carried forward within the monument: Creation of downhill ski areas at
Peppermint on the Western Divide Ranger District, or Mitchell-Maddox on
the Hume Lake Ranger District.
There are no new objectives proposed at this time for Human Use,
Socioeconomics, or Dispersed and Developed Recreation. All the
suggested changes are to provide more focused guidelines to emphasize
diverse public access, partnerships and place-based recreation
opportunities.

I. Transportation System

The Proclamation tells us: ``The management plan shall contain a
transportation plan for the monument that provides for visitor
enjoyment and understanding about the scientific and historic objects
in the monument, consistent with their protection. For the purposes of
protecting the objects included in the monument, motorized vehicle use
will be permitted only on designated roads, and non-motorized
mechanized vehicle use will be permitted only on designated roads and
trails, except for emergency or authorized administrative purposes or
to provide access for persons with disabilities. No new roads or trails
will be authorized within the monument except to further the purposes
of the monument.''
The desired condition is that the road and trail system on the
Monument protects the Objects of Interest, is safe, reflects
appropriate access, considers the needs of other landowners, and meets
public demand.

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The existing management direction in the 1988 Forest Plan and the
Travel Management Rule provides for a road system that is commensurate
with the level of management activities occurring in the Monument,
providing appropriate access to the objects of interest for their
proper care, protection, and management. Public use, related to
recreation, special use authorizations, and private land access, is an
important, but secondary need and does not conflict with the proper
care, protection, and management of the Objects of Interest. Current
management direction requires that the road and trail system be sized
and maintained to limit impacts to aquatic and terrestrial habitats.
The Proclamation altered a portion of the existing direction by
limiting motorized, mechanized vehicles to designated roads. The
Monument will emphasize developing access points in coordination with
gateway communities and other agencies to provide clear, welcoming
entry into the Monument. The monument plan may also focus greater
emphasis on providing access to the Objects of Interest, and providing
more opportunities for traveling on loop trails or roads.

J. Scientific Study

The Proclamation describes the promise of science as follows: ``The
rich and varied landscape of the Giant Sequoia National Monument holds
a diverse array of scientific and historic resources * * *. The
monument provides exemplary opportunities for biologists, geologists,
paleontologists, archaeologists, and historians to study these objects
* * *. These giant sequoia groves and the surrounding forest provide an
excellent opportunity to understand the consequences of different
approaches to forest restoration * * *. Outstanding opportunities exist
for studying the consequences of different approaches to mitigating
these conditions and restoring natural forest resilience * * *.
Outstanding opportunities exist for studying forest resilience to
large-scale logging and the consequences of different approaches to
forest restoration.''
Under the 2001 SNFPA, the current direction is to use adaptive
management. As stated in the 2001 SNFPA ROD (p.15), ``Adaptive
management will allow the Forest Service to test new and innovative
management techniques as part of formal research projects * * * allow
for variances from the standards and guidelines in Appendix A to test
hypotheses in a scientifically structured manner. Projects that seek
variances from the standards and guidelines will be permitted if they
are part of a formal adaptive management research project or
administrative study done in conjunction with the Pacific Southwest
Research Station or another recognized scientific research institution
* * *. Investment in * * * adaptive management projects will allow us
to gain more knowledge and adjust future management techniques based on
that knowledge.''
The desired condition is to use the right balance between
adaptability and accountability, being realistic about the Forest
Service's monitoring and re-analysis capabilities. The desired
condition is also to use the best available science in data,
methodologies, and structure, specifically, to integrate various
decision support systems.
The current direction to use adaptive management will be analyzed
to determine whether to amend the direction for adaptive management in
the Monument. The Monument plan would maintain options by continuing
on-going cooperation, and develop additional joint research efforts
with the scientific community, and cooperating agencies, to adaptively
manage resources to continue to learn and refine approaches.

Possible Alternatives

Other alternatives will be developed based on significant issues
identified during the scoping process for the environmental impact
statement. All alternatives will need to address the purpose and need
as described above, which reflects the 2000 Presidential Proclamation
establishing Giant Sequoia National Monument. Alternatives being
considered at this time include: (1) No Action, (2) Proposed Action,
and other alternatives identified following scoping.

Responsible Official

Tina Terrell, Forest Supervisor, Sequoia National Forest, is the
Responsible Official. As the Responsible Official, she will document
the decision and reasons for the decision in the Record of Decision.
That decision will be subject to Forest Service appeal regulations (36
CFR part 217).

Nature of Decision To Be Made

The decision to be made is whether to amend the 1988 Sequoia
National Forest Land and Resource Management Plan as described in the
proposed action to manage the Giant Sequoia National Monument, develop
an alternative amendment that addresses the purpose and need, and
responds to significant issues; or continue to manage the Giant Sequoia
National Monument under the 1988 Forest Plan, as amended by the 2001
Sierra Nevada Forest Plan Amendment, and consistent with the
Presidential Proclamation.

Scoping Process

The notice of intent initiates the scoping process, which guides
the development of the environmental impact statement. Scoping began on
this project in January 2008, and this notice extends the scoping
period for the new Giant Sequoia National Monument Management Plan
environmental impact statement.
It is important that reviewers provide their comments at such times
and in such manner that they are useful to the agency's preparation of
the environmental impact statement. Therefore, comments should be
provided prior the close of the comment period and should clearly
articulate the reviewers concerns and contentions. The submission of
timely and specific comments can affect a reviewer's ability to
participate in subsequent administrative appeal or judicial review.

Dated: March 12, 2009.
Tina J. Terrell,
Forest Supervisor, Sequoia National Forest, USDA Forest Service.
[FR Doc. E9-5809 Filed 3-17-09; 8:45 am]
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