Shasta-Trinity National Forest; California; Highway 89 Safety Enhancement and Forest Ecosystem Restoration Project |
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David R. Myers
Department of Agriculture
September 15, 2015
[Federal Register Volume 80, Number 178 (Tuesday, September 15, 2015)]
[Notices]
[Pages 55323-55327]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-23157]
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DEPARTMENT OF AGRICULTURE
Forest Service
Shasta-Trinity National Forest; California; Highway 89 Safety
Enhancement and Forest Ecosystem Restoration Project
AGENCY: Forest Service, USDA.
ACTION: Notice of intent to prepare an environmental impact statement.
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SUMMARY: With the Highway 89 Safety Enhancement and Forest Ecosystem
Restoration Project (Highway 89 project), the Shasta-Trinity National
Forest (Forest) is proposing to improve public safety along California
State Highway 89 (Highway 89) and restore forest health throughout
approximately 13,514 acres of forest by:
Addressing infrastructure needs (National Forest System roads and
helispot, developed recreation areas);
Reducing the risk of uncharacteristic wildfire by reducing fuel
loads, thinning overstocked stands, and gradually returning fire to the
landscape both along the highway corridor and within the surrounding
forest; and
Restoring resilient forest structures, patterns, and disturbance
regimes by reducing stand densities, retaining and releasing larger
trees, increasing under-represented forest vegetation such as aspen and
oak, and providing forest structural diversity across the landscape.
The 13,514 acre project area is located in Siskiyou County,
California, north and south of Highway 89, from near the junction of
Highway 89 with Interstate 5 (Mount Shasta, California area), east to
the Cattle Camp turnoff (Forest Roads 43N19 and 40N44). The project
boundary extends up to 2.5 miles from the highway and is bounded by the
McCloud River, private property, and major Forest roads. The large
landscape selected encompasses both complex natural forest stands that
retain more spatial heterogeneity combined with simplified forest
stands that are typically homogeneous in structure and include uniform
stands of small and medium-sized trees within plantations. Using
logical landscape boundaries, including the river, private property,
roads, and other restored landscapes (Algoma Vegetation Management
Project) fosters restoration of resilient forest structures, patterns,
and disturbance regimes which are lacking.
The legal location is: Township 39 North, Range 1 West, Sections 2-
10, 17-18; Township 39 North, Range 2 West, Sections 1-3, 12; Township
40 North, Range 1 West, Sections 27, 28, 31-34; Township 40 North,
Range 2 West, Sections 34-36; Township 40 North, Range 3 West, Sections
32-33; Township 40 North, Range 4 West, Sections 22-26, 34, Mt. Diablo
Meridian. Elevations range from 3,200 to 4,400 feet.
Project treatments include thinning along the Highway 89 corridor,
thinning in plantations and in natural forest stands throughout the
13,514 acres, hazard tree removal, prescribed burning, Forest road
management, and developing a helispot.
DATES: Comments concerning this scope of the analysis must be received
by October 15, 2015. The draft environmental impact statement is
expected in December, 2015 and the final environmental impact statement
is expected in May 2016.
ADDRESSES: Send written comments to Carolyn Napper, District Ranger,
Shasta-McCloud Management Unit, 204 W. Alma St., Mt. Shasta, California
96067, Attn. Heather McRae. Comments may also be sent via email to:
comments-pacificsw-shasta-trinity-mtshasta-mccloud@fs.fed.us, or via
facsimile to (530) 926-5120.
FOR FURTHER INFORMATION CONTACT: Heather McRae, Fuels Specialist, at
(530) 964-3770 or hmcrae@fs.fed.us, or Ann Glubczynski, Natural
Resource Planner, at (530) 964-3717 or aglubczynski@fs.fed.us.
Individuals who use telecommunication devices for the deaf (TDD)
may call the Federal Information Relay Service (FIRS) at 1-800-877-8339
between 8 a.m. and 8 p.m., Eastern Time, Monday through Friday.
SUPPLEMENTARY INFORMATION: The project purpose and need for action is
generated by looking at the difference between the existing conditions
and the desired conditions [as identified in the Shasta-Trinity
National Forest Land Resource Management Plan (Forest Plan)] in the
project area.
Highway 89 Corridor
Existing Conditions: The Highway 89 corridor is defined as the area
that extends up to 275 feet out from the edge of the pavement on both
sides of the two-lane highway. This corridor is composed of three
sections between Interstate 5 (I-5) and Cattle Camp (Forest roads 43N19
and 40N44), for a total of 10.2 miles. The California Department of
Transportation (CalTrans) right of way (ROW) along the highway varies
from 80 to 200 feet from the roadway centerline through the project
area.
The vegetation along portions of the Highway 89 corridor includes
tall, dense forest stands that are close to the road shoulder and cast
shadows on the pavement. During the winter months, the shade on the
roadway keeps snow and ice from melting for up to several weeks
following a storm. Trees immediately adjacent to the highway with
overhanging branches can drop snow loads onto the highway and passing
vehicles. These branches collect snow, until the snow becomes too
heavy, and drops onto the roadway. Snow from overhanging branches has
been known to hit the windshields of vehicles as it falls, even
breaking some windshields. In many areas, the trees and brush are very
dense, growing within the ROW, which makes snow removal from the paved
traffic lanes difficult.
During the entire year, vegetation along the highway also limits
visibility for drivers to see wildlife moving from the forest onto the
highway. Numerous animal and vehicle collisions have occurred along the
highway in the project area, because drivers are not able to see
animals entering the roadway until they are so close that it is
difficult to stop or even slow down.
Dense vegetation, tree mortality, and large amounts of dead
vegetation and debris along Highway 89 have increased the likelihood
that a fire starting or burning along the highway could spread quickly
to threaten surrounding forests and communities, or allow for a fire to
cross the highway, and be difficult to control during dry summer
conditions. Highway 89 also serves as an evacuation route for residents
to leave and emergency personnel to access the area.
Desired Future Conditions: Sunlight is able to reach the Highway 89
road surface during winter months, enabling snow and ice to melt from
the roadway more quickly. There are fewer trees with branches hanging
over Highway 89.
Drivers along Highway 89 have adequate sight distance and an open
view of wildlife entering the roadway to respond as necessary.
Sufficient gaps in vegetation exist along Highway 89 to allow for
efficient snow removal during heavy snowfalls.
Vegetation conditions and predicted fire behavior along Highway 89
are such that a wildfire during summer months is less likely to spread
along or across the highway, is less likely to threaten surrounding
forests and communities, and would not limit access for firefighters,
or egress for citizens.
Forest Roads, Powerline Corridors and Helispot
Existing Conditions: There are many Forest roads within the project
area. The conditions of these roads vary, from
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well maintained to nearly undrivable. Brush and trees encroach on some
roadways making them undrivable or difficult to drive on and therefore
unsafe for users. Many Forest roads are used frequently by Forest
visitors to access areas where they recreate, or for recreation
activities such as biking, horse-back riding, or driving off highway
vehicles (OHVs). Some of these roads have reduced access for
recreational opportunities due to their poor condition or being
overgrown.
Some roads that are open are not heavily used, nor are they needed
for resource management activities. There are many user-created routes
in the project area that are not part of the Forest transportation
system (unauthorized routes) and not needed for resource management
activities. But several Forest Transportation System roads and one
unauthorized route in the project area that are currently closed or
inaccessible do provide critical access for resource management
activities.
Powerlines crossing through the project area are maintained by the
power companies, who currently remove vegetation within the power line
corridor ROW. However, in some areas, such as near the community of
Mount Shasta, dense forest stands on NFS lands are growing right up to
the powerline corridors. The safety of firefighters responding to a
fire near these powerlines is at risk. There is no break in the
vegetation sufficient to safely put firefighters near the powerlines
during a wildfire to protect them.
There is an existing helispot located behind the Ash Creek Guard
Station where trees are obstructing the take-off and landing paths for
helicopters. These trees are part of a seed orchard of specially bred
trees. Cutting these trees would result in the loss of valuable genetic
research. The effectiveness of the helispot is increasingly hazardous
due to the height of adjacent trees, and we expect that within 10 years
the helispot will no longer be usable. There is currently no other
suitable landing spot for helicopters in the general vicinity.
Desired Future Conditions: Roads on the Forest transportation
system that are needed for current and future resource management or
recreation access have been maintained to provide safe access for
forest management and recreation activities, including: OHV riding,
horseback riding, and biking (activities the public has indicated are
important to them). Forest transportation system roads used for Forest
resource management are closed when not in use. Unauthorized routes
that do not meet management needs are decommissioned and become
revegetated. Forest system roads and trails that access rivers and
streams for water-oriented recreation activities are improved, and
roads and trails to hunting, fishing and wildlife viewing areas are
maintained at an appropriate maintenance level.
Vegetation on both sides of the powerline ROW is managed to reduce
potential impacts during wildfire. Overstory, ladder, and surface fuels
would be reduced such that the potential for crown fire during summer
conditions is unlikely. Anticipated fire behavior during summer
conditions is such that firefighters can safely manage a fire in the
vicinity of the powerlines.
A new helispot is located east of McCloud, with sufficient
clearance to allow a medical evacuation (medevac) helicopter to land
and transport a patient. This helispot is also available to support
fire operations.
Developed Recreation Areas
Existing Conditions: Developed recreation areas within the project
boundary include those within the McCloud River Loop area,
specifically: Fowlers, Cattle Camp and Camp 4 Campgrounds, Lower,
Middle, and Upper Falls picnic areas, Lakin Dam and Cattle Camp
Swimming Hole day use sites, the McCloud River Trail, and the Vista
Point along Highway 89.
Many of the forest stands in the recreation areas are overly dense
and at risk of density-related mortality. Evidence of root disease and
insect damage has been observed, and high fuel loading from mortality
is present throughout the area, increasing the likelihood of
undesirable effects in the event of a wildfire.
In the Cattle Camp Campground, there has been an increase in tree
mortality over the past five years. Within the developed campgrounds
and other recreation sites in the McCloud River corridor, hazard trees
continue to be a concern for public safety. Excessive hazardous fuel
accumulations can increase the potential for intense wildfires.
Vegetation is blocking views of the McCloud River from many of the
developed recreation sites such as Fowlers Campground and views of
Mount Shasta from the Vista Point.
Desired Future Conditions: Hazardous fuels are reduced to the
standards under the Forest Plan, allowing fire managers to effectively
protect life, property, and natural resources during a wildfire. Hazard
trees in developed recreation sites, along trails, and in campgrounds
are removed for forest health and public safety. Forest stands within
and surrounding campgrounds are healthy. Opportunities exist to view
the McCloud River within the developed recreation sites and trails, and
to view Mount Shasta from the Vista Point on Highway 89.
Wildland Urban Interface Defense Zones (Defined as Areas Up to \1/4\
Mile From Structures)
Existing Conditions: Fuels have been reduced in a portion of the
Wildland Urban Interface (WUI) in recent years around the communities
of McCloud and Mount Shasta. However, there are numerous forest stands
and brushy areas where fuels have not been reduced. Some of the treated
stands are still in a condition that could sustain a wildfire with
potential impacts to homes and private property, especially in the WUI
defense zones near Mount Shasta and on Snowman's Hill.
Desired Future Conditions: In the WUI defense zones around the
community of Mt. Shasta and Snowman's Hill, fuel loading has been
managed and reduced to the Forest Plan standards. Vegetation is managed
to achieve 4-foot flame lengths or less during 97th percentile weather
conditions. There is sufficient ingress/egress clearance and limited
chances of crown fire.
Forest Ecosystem Health
Existing Conditions: The project area is a combination of
plantations and natural (non-plantation) forest stands. The primarily
ponderosa pine plantations range in age from less than 10 years to over
70 years. Some of the plantations have had recent treatments (brush
mastication, thinning, pruning). Others have not and are overstocked,
with interlocking tree crowns and decadent woody shrubs, making them
vulnerable to mortality from insects and fire. Mortality has occurred
within some of the plantations, resulting in pockets of dead trees. The
plantations lack age, structure, and species diversity, and some were
subject to windrowing (a site preparation method which resulted in
piles of topsoil) and mechanical planting in the past.
Most of the natural forest stands are overly dense and at risk of
density-related mortality. Mortality pockets are starting to occur
across the project area. Root diseases, such as black stain and
Heterobasidion, along with evidence of insect damage, have been
observed in many locations. Dense and dying knobcone pine stands are
far outside of their natural range of variation both in overall numbers
as well as percent composition and are creating unnaturally large fuel
loads.
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Windrows were created in several plantations prior to planting as a
way to remove competing vegetation. Windrowing reduced overall soil
productivity by scalping and piling nutrient rich topsoil, which
displaced nutrients and soil organic matter in the piles and left
poorer quality subsoil exposed for tree planting.
Areas dominated by bitterbrush, individual black oak trees, and
stands of aspen and oak (important for vegetative diversity and
wildlife habitat) are being encroached on by conifers, which are
shading out these shrubs/trees. Due to a lack of disturbance, forest
stands have followed a process of succession in which conifers grow
taller than aspen and oak, blocking the sunlight these species need.
Conifers are competing for soil nutrients and water with the other tree
and shrub species. Aspen stands are declining at a rapid rate due to
past management such as fire suppression, timber management (removing
aspen and planting conifers), livestock grazing and site conversion.
Bitterbrush stands are mostly even-aged and decadent with limited
regeneration or new growth, and there are encroaching conifers at the
edges of and within the bitterbrush stands.
Some Riparian Reserve areas located within the McCloud River
corridor (inner gorge) contain dense pockets of young conifers
encroaching on the riparian vegetation as well as dead and dying trees.
Some of these areas are adjacent to trails, such as the McCloud River
Trail, and recreation sites.
Effective fire suppression in the last century has greatly reduced
the total area burned when compared to pre-historic levels.
Approximately 73% of the project area historically experienced a high
frequency (0-35 year return interval), low to mixed severity fire
regime. Approximately 6% of the project area historically experienced a
high frequency (0-35 year return interval), high severity fire regime,
while 6% of the project area evolved under a low frequency (35-100
year) high severity fire regime (non-burnable area accounts for the
remaining 15%).
Based on the historic fire return intervals and fire history data,
the project area is outside the historical range for fire occurrence.
Approximately 80% of the project area is designated as a high departure
from the historical fire return interval range. These areas have missed
multiple fire return intervals. The remaining 4% of burnable area is at
a moderate departure, missing one or more return intervals. This
departure has resulted in changes to vegetation characteristics
(species composition, structural stages, stand age, canopy closure, and
mosaic pattern); fuel composition; fire frequency, severity, and
pattern; and insect and disease activity. The risk of losing key
ecosystem components is high.
Desired Future Conditions: Plantations with trees primarily 10
inches diameter at breast height (dbh) or greater have a more multi-
aged structure with variable sizes and spacing, and plantations with
trees primarily less than 10 inches dbh are moving toward stands with
larger sized trees. Natural stands have densities at levels that
improve and protect forest health and vigor. The stands have structural
diversity with varied species, multiple canopy layers, other types of
vegetation, and appropriate levels of coarse woody debris and snags.
Plantations and natural stands are resilient to epidemic insect or
disease attack. Knobcone pine dominated stands more closely resemble
their historic conditions of other species such as ponderosa pine,
incense cedar and white fir mixed in with the knobcone.
In plantations with windrows, the windrows have been respread,
redistributing the topsoil and nutrients throughout the plantation.
Overall soil quality and productivity are improved in the plantations
providing more nutrients to the trees.
Hardwoods, especially oaks and aspen, remain a healthy and vigorous
component of forest stands where they are naturally located. In
hardwood-dominated stands, there are fewer conifers competing for
resources (sunlight, nutrients, water) with the hardwoods. Bitterbrush
stands have a mix of age and condition classes and also have limited
competition from conifers. In riparian areas, the species composition
and structural diversity of the native vegetation maintain a healthy
riparian ecosystem, without excess competition for resources from
conifers.
All stands and vegetation types experience fires at intervals that
are historic to the area, have appropriate coarse woody debris and snag
levels, but do not have excess fuel loads. Wildfires that occur within
the project area during dry summer conditions are beneficial to the
ecosystem, as occurred historically.
Purpose and Need
For the Highway 89 corridor, there is a need to:
(1) Cut vegetation throughout the highway corridor, so that the
forest canopy is more open, allowing increased winter sunlight on the
roadway and faster melting of snow and ice on the pavement.
(2) Manage vegetation along the highway for increased driver sight
distance to reduce the risk of vehicle-wildlife collisions.
(3) Remove vegetation along the road shoulders for space to place
plowed/blown snow during storms.
(4) Reduce fuels along Highway 89 to allow for a more effective
fire response during summer conditions.
For Forest roads, powerline corridors and helispot facilities,
there is a need:
(1) To ensure that roads needed for Forest resource management are
maintained or repaired to meet Forest standards and closed when not in
use. Roads needed fror recreation access are maintained and repaired to
meet Forest standards and public safety needs. Roads not needed for
Forest management or recreation access are decommissioned. Roads are
added or removed from the Forest transportation system as appropriate.
(2) For a helispot east of McCloud to facilitate a medical
evacuation and an appropriate fire management response.
(3) To reduce hazardous fuels levels (surface fuel loadings, ladder
fuels, and vegetation densities) along powerlines, to increase
firefighter safety during a wildfire.
For developed recreation areas, there is a need to:
(1) Increase visitor safety from hazard trees and the risk of
wildfires, including along the McCloud River Trail, and improve access
within and surrounding the developed recreation sites.
(2) Improve the views throughout the project area, including Mt.
Shasta, the McCloud River, and the natural landscape.
For the WUI defense zones, there is a need to:
(1) Reduce hazardous fuel levels (surface fuel loadings, ladder
fuels, and vegetation densities) within the defense zones to achieve 4-
foot flame lengths or less during 97th percentile weather conditions.
For forest and ecosystem health, there is a need to:
(1) Increase the diversity of species composition, age, and
structure in plantations and natural forest stands.
(2) Increase resilience to fire, insects and disease in all stands.
(3) Reduce competition by conifers in hardwood stands, bitterbrush
areas, and riparian vegetation to ensure their growth and vigor.
(4) Respread existing windrowed topsoil in several plantations to
redistribute soil nutrients and organic matter and improve overall soil
productivity.
(5) Restore the natural role of fire in the ecosystem to facilitate
vegetative and other fire-related processes.
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Proposed Alternative 3
The project area was divided into treatment areas based on
vegetation type, use, and areas with special conditions. Activities
include Forest road management, and construction of a new helispot for
medical air evacuation and firefighting support. Silviculture
treatments such as tree thinning, sanitation thinning and hazard tree
removal, along with fuels treatments such as underburning, hand or
machine piling, and mastication will be implemented to improve
resilience and health in forest stands, and improve safety along the
Highway 89 corridor, in WUI defense zones and in developed recreation
areas.
A complete description of alternative 3, including resource
protection measures and treatment maps, can be found in the Highway 89
Safety Enhancement and Forest Ecosystem Restoration Project Scoping
Document on the Shasta-Trinity National Forest Web site at http://www.fs.usda.gov/project/?project=43770.
In summary, to meet the purpose and need the following treatments
have been identified (all acreages and miles are approximate, some
treatments will overlap, occurring in the same areas).
Thinning (variable density across all diameter classes, including
understory vegetation) of trees will be implemented throughout the
project area to reduce relative stand densities and meet other
objectives. In some areas thinning will create small gaps/openings in
the canopy (such as the WUI defense zone). In other areas, clumps of
trees with wildlife sheltering structure will be retained.
Sanitation (removing dead and dying clumps of trees) will be
implemented in areas of disease, insect damage, and ongoing mortality.
Group selections will be installed in larger areas of mortality to try
and slow rate of progression.
Hazard tree removal will occur throughout the project area.
Encroaching conifers will be removed to release riparian vegetation
along the McCloud River Corridor and from bitterbrush fields.
These treatments will occur in:
3,376 acres of plantations with trees 10 inches or
greater,
617 acres of plantations with trees less than 10 inches
dbh,
1,241 acres of mixed conifer natural stands,
3,794 acres of pine dominated natural stands,
653 acres of knobcone pine dominated stands,
212 acres of the McCloud River Corridor area,
212 acres of the Big Canyon Creek area,
61 acres of bitterbrush fields, and
16 acres of black oak stands.
Fuels treatments will include mastication, machine and hand piling
and pile burning, and thinning for fuel reduction. The entire project
area (with the exception of specific sensitive areas) will be
underburned.
The treatments will yield renewable forest by-products of both
sawtimber (logs) and biomass (chips), firewood, and special forest
products. Treatments will be accomplished through a variety of methods
including service contacts, force account, commercial timber harvest,
and stewardship contracts.
In addition to vegetation treatments, a 550-foot x 550-foot
helispot will be constructed across the highway from the Ash Creek Work
Station (total area of approximately 14 acres). Forest road management
activities will include 78 miles of road maintenance, 2.8 miles of
reconstruction, 4 miles of new temporary road construction, 7.9 miles
road/route decommissioning, 11.25 miles of road closures, 3 miles of
road openings, and 0.25 miles of road (access to the new helispot)
added to the Forest Transportation System.
Highway 89 is designated as a Forest Service Scenic Byway. Visual
quality objectives for the highway corridor through National Forest
land call for retention, meaning human activities are not visually
evident to the casual forest visitor. Trees will be removed along the
highway in view of the roadway and the resulting changes in vegetation
will be visually evident. Depending on the results of the scenery
analysis, a Forest Plan amendment may be required for the project
activities along the Highway 89 corridor.
Responsible Official
Forest Supervisor, Shasta-Trinity National Forest.
Nature of Decision To Be Made
The Forest Supervisor will decide whether to implement the proposed
alternative 3, take an alternative action that meets the purpose and
need, or take no action.
Permits or Licenses Required
A permit would be required from the State of California prior to
burning piles. The appropriate regulatory agencies will be consulted
regarding national or state required permits associated with roads used
during project implementation. All rquired permits will be obtained
prior to implementation.
Scoping Process
This notice of intent initiates the scoping process, which guides
the development of the environmental impact statement.
Early in the project development process, meetings were held with
local stakeholders, including representatives from the California
Department of Transportation, the local timber industry and American
Forest Resources Council, local fire safe and watershed councils,
environmental and citizens' organizations, and the Pit River Tribe. It
was anticipated at that time that an environmental assessment would be
written for the project.
The project was originally scoped in June, 2014. The project was
posted on the Forest Schedule of Proposed Actions (SOPA) On June 30,
2014. The Legal Notice was published in the newspaper of record (Record
Searchlight, Redding, California) on June 30, 2014. A notice was also
published in the Mount Shasta Herald (Mount Shasta, California). A
scoping letter was mailed or emailed to 168 individuals, organizations,
and government agencies. The scoping document and was posted to the
Shasta-Trinity National Forest Web site. The scoping period was 30
days. Comments were received from nine individuals, organizations, and
agencies.
In addition to the written request for comments, the scoping phase
included two public meetings and field trips for interested members of
the public and other government agencies. A public meeting/field trip
was held on October 4, 2014 with 11 attendees. A field trip with
representatives of the U.S. Fish and Wildlife Service was held on
October 31, 2014. The comments from the scoping period and public
meetings/field trips have become part of the Highway 89 Safety
Enhancement and Forest Ecosystem Restoration Project record, and were
considered when developing this new alternative (alternative 3), which
is referred to as alternative 3 in this notice of intent.
Based on the public involvement since scoping as well as new
information, the line officer has chosen to evaluate and document
project effects on the environment in an environmental impact
statement.
For the scoping period initiated by this notice of intent, 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 to the close of the comment period and should clearly articulate
the reviewer's concerns and
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contentions. Comments submitted during the first scoping period will
continue to be considered and need not be resubmitted. This project
would implement the Forest Plan and is subject to 36 CFR 218 subparts A
and B. All persons who provided comment in past designated comment
periods associated with this project will have standing to object on
comment issues previously provided however, those interested in the
project are encouraged to review the scoping package and provide
comments. Please note that to object per 36 CFR 218, a commenter must
have provided specific written comments regarding the proposed project
or activity during scoping or another designated opportunity for public
comment (in other words objection issues must be based on previously
submitted specific written comments except for issues that arose after
the opportunities for comment). Please refer to 36 CFR 218.
Comments received in response to this solicitation, including names
and addresses of those who comment, will be part of the public record
for this proposed action. Comments submitted anonymously will be
accepted and considered, however anonymous comments will not provide
the Agency with the ability to provide the respondent with subsequent
environmental documents and may preclude their ability to object.
Dated: September 8, 2015.
David R. Myers,
Forest Supervisor.
[FR Doc. 2015-23157 Filed 9-14-15; 8:45 am]
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