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FOREST SERVICE MANUAL NATIONAL HEADQUARTERS (WO)

WASHINGTON, DC

FSM 1900 - PLANNING

CHAPTER 1920 - LAND MANAGEMENT PLANNING

Interim Directive No.: 1920-2005-2 Effective Date: March 23, 2005 Duration: This interim directive expires on September 23, 2006. Approved: FRED NORBURY Associate Deputy Chief

Date Approved: 03/04/2005

Posting Instructions: Interim directives are numbered consecutively by title and calendar year. Post by document at the end of the chapter. Retain this transmittal as the first page(s) of this document. The last interim directive was 1900-2005-1 to FSM 1900 Zero Code. New Document

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113 Pages

Superseded Document(s) (Interim Directive Number and Effective Date)

None

Digest: 1920 – Incorporates changes to be consistent with the planning rule at Title 36, Code of Federal Regulations, part 219 (36 CFR part 219) published in the Federal Register on January 5, 2005 (70 FR 1023) and eliminates the reference to regional guides which were withdrawn as a result of November 9, 2000 (36 CFR 219.35). 1920.12 – Adds section on laws, Executive orders, and regulations that Responsible Officials are required to follow in implementing the planning rule. 1920.2 – Revises objectives in paragraphs 1 through 4 to reflect explicit language of National Forest Management Act of 1976 instead of 1982 planning rule language and adds objective 5 to include sustainability objectives with current language.

WO INTERIM DIRECTIVE EFFECTIVE DATE: 03/23/2005 DURATION: This interim directive expires on 09/23/2006.

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CHAPTER 1920 – LAND MANAGEMENT PLANNING Digest--Continued: 1920.3 – Removes policies related to work plan, most cost-efficient method, national activity structure handbook, and management review system. Adds at paragraph 1 and 2, the policy that the Responsible Official conducts sustainability evaluations within an area large enough to consider broad-scale factors and trends over large landscapes. Adds policy to integrate planning information into corporate database systems. 1920.41 – Reserves authority to approve the schedule for revising individual land management plans to the Chief. 1920.42 – Changes position title to Director, Ecosystem Management Coordination Staff, Washington Office. 1921 – Revises caption from “Regional Planning” to “Land Management Planning for 2004 Planning Rule.” Discusses the main topic areas of planning under the 2004 planning rule, including: what a plan is; how a plan is evaluated and reviewed; issues, opportunities, and collection of additional information; how a plan is implemented; how a plan is monitored; public participation; collaboration, consultation, and notification; sustainability; the contribution of science; and environmental management systems. Adds description of plan-level approvals and project-level decisions. 1921.02 – Provides objectives for plans, special area designations, collaborative and participatory processes, evaluation and management review, and monitoring. 1921.03 – Provides policy direction for environmental management systems, site-specific projects and plans, plan revision completion time, congressionally and administratively areas, plans developed or revised under 1982 planning rule, collaboration, comprehensive evaluation, monitoring and data collection, and sustainability. 1921.03d – Provides direction on transition of plans developed under 1982 planning rule to the 2004 planning rule. 1921.04a – Adds responsibilities for Director, Ecosystem Management Coordination Staff, Washington Office. 1921.04b – Revises responsibilities for Regional Forester to include collaboration expertise, consistency, coordination, desired condition context, and quality control.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING Digest--Continued: 1921.04c – Revises responsibilities for Forest, Grassland, Prairie, or other comparable administrative unit Supervisor to include developing, amending, or revising plans, interdisciplinary teams, legal compliance, plan administrative record, social and economic analysis, sustainability, and working with Station Director. 1921.04d – Displays the responsibilities for the Responsible Official for: collaboration, taking into account the best available science, continuously adapting the plan, cooperation with other resource agencies, evaluation of monitoring results, and relationship with Tribal Governments. 1921.04e – Revises the responsibilities of District Rangers to ensure consistency of projects and activities with the plan. 1921.06 – Establishes requirements for plan documents. 1921.1 – Replaces current parts of land management plans with three parts: the mission, the strategy, and the design criteria. 1921.11 – Adds list of required plan components. 1921.12 – Adds requirements of desired conditions for plans. 1921.13 – Adds requirements of objectives for plans. 1921.14 – Adds requirements of guidelines for plans. 1921.15 – Adds requirements for identification of areas generally suitable for various land uses. 1921.16 – Adds exhibit 01 on special areas including designating authority and location of additional guidance. 1921.17 – Adds section on National Forest Management Act Requirements. 1921.17a – Adds requirements for vegetation management in carrying out site-specific projects. 1921.17b – Adds requirements for vegetation management guidance in land management plans.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING Digest--Continued: 1921.17c – Adds requirements for determination the general suitability of lands for timber harvest and identification of lands not suitable for timber production with reevaluation to occur every 10 years. 1921.17d – Adds requirements for estimating long-term sustained-yield capacity (LTSYC) and limitation on timber harvest on “land where timber harvest could occur” to equal to or less than LTSYC, and exceptions to these limitations of timber harvest. 1921.17e – Adds requirements for guidelines of maximum size limits for even-aged regeneration harvest. 1921.17f – Adds requirements for guidelines of culmination of mean annual increment (CMAI) of growth and even-aged regeneration harvest and clarifies when CMAI concept does not apply. 1921.17g – Adds requirements for timber management projections and other National Forest Management Act of 1976 statutory requirements including description of likely forest management systems. Adds requirement these timber management projections in a plan are not to be considered decisions and they may be administratively corrected. 1921.17h – Adds requirements for special conditions or situations that involve hazards to the various resources. 1921.17i – Adds requirements for plan guidance on restocking. 1921.18 – Adds requirements for establishment of performance measures and monitoring questions within land management plans. 1921.19 – Adds requirements resource integration requirements. 1921.2 – Adds criteria on how plans will be evaluated and reviewed. Adds exhibit on the adaptive cycle of planning. 1921.3 – Adds requirements on how a plan is developed, changed, corrected or added to, amended, or revised. 1921.4 – Adds requirements for how a plan is carried out. 1921.5 – Adds requirements for how a plan is monitored.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING Digest--Continued: 1921.6 – Adds requirements on how public participation, collaboration, consultation, and notification are carried out. 1921.7 – Adds section on sustainability requirements including plan guidance for social and economic sustainability, plan guidance for ecosystem diversity, and plan guidance for species diversity. 1921.8 – Adds requirement on the role of science including: independent scientific peer reviews, risk in decisionmaking, science consistency evaluations, and uncertainty in science. 1921.9 – Adds requirement for addressing land management environmental aspects (or issues) in environmental management systems for every National Forest System unit. 1922 – Revises caption from “Forest Planning” to “Land Management Planning for 1982 Planning Rule.” Text of FSM 1922 is essentially unchanged except for reference to the regional guide. 1922.15 – At paragraph 19, removes cross-reference to regional guide. 1923 – Adds requirement for unit Supervisors to look at new potential wilderness areas during plan development or revision.

1923.03 – Adds policy on what areas shall be evaluated and considered for recommendation as potential wilderness areas during plan development or revision. 1923.04 – Revises responsibility for wilderness evaluation for three different scenarios: Displays responsibility for the Chief; Regional Forester; and Forest, Grassland, Prairie, or other comparable administrative unit Supervisor. Provides additional detail on type and timing of documentation. 1923.1 – Requires the Responsible Official to notify the Chief of tentative recommendations when conducting wilderness studies. 1923.11 – Changes caption from “Proposals Resulting from Forest Planning” to “Proposals Resulting from Wilderness Studies Incorporated in Land Management Plans, including Legislatively Mandated Studies.” This amendment adds text that land management plan approval documents that make preliminary administrative recommendations for wilderness must contain.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING Digest--Continued: 1923.12 – Changes caption from “Proposals Resulting from Special Wilderness Studies not incorporated in Forest Plans” to “Proposals Resulting from Wilderness Studies not incorporated in Land Management Plans, Including Legislatively Mandated Studies.” Makes minor changes in text to take into account new terminology from the 2004 planning rule. 1924 – Makes minor wording changes to show that the Forest Service recommends designation of Wild and Scenic River to the Secretary, not the President. 1924.01 – Makes minor changes to identify two provisions of the Wild and Scenic Rivers Act for identification of rivers for study. 1924.03 – Adds requirement to “complete legislatively mandated study within the specified study period.” Removes the requirement to “complete river studies as expeditiously as possible.” Adds flexibility if a systematic inventory of rivers has been completed. 1924.04 – Adds introduction to responsibility section. Makes modifications similar to 1923.04. 1924.1 – Changes caption from “Report” to “Review and Approval.” Adds text that review and approval of recommendations must meet the same requirements as those for land management plans. Text is similar to that previously displayed at FSM 1924.2. 1924.11 – Adds new code and caption for proposals resulting from river studies. Adds text on what land management plan approval documents that make preliminary administrative recommendations for Wild and Scenic Rivers must contain. Refines direction for the same three scenarios as FSM 1924.04. 1924.12 – Adds new code and caption for proposals resulting from river studies not incorporated in land management plans, including legislatively mandated studies. Text parallels FSM 1923.12. 1924.2 – Adds section to provide interim management of eligible or suitable rivers. Text based on FSH 1909.12, chapter 8, section 8.12. 1924.21 – Adds qualifying text regarding the extent of Forest Service authority from FSH 1909.12 section 8.12 enumerated paragraph 1 to introduction. In enumerated paragraph 1, adds “water resources projects.” Deletes reference in enumerated paragraph 2 to enhancement. In enumerated paragraph 3, adds clarification that Forest Service identified study rivers may be managed at the recommended rather than inventoried classification if the suitability study/recommendation is complete.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING Digest--Continued: 1924.22 – Added section on management requirements for interim management of eligible or suitable rivers. Significantly revises original FSH 1909.12, section 8.2 to clearly identify statutory protection afforded to legislatively mandated studies, correct errors, add greater clarity, and make consistent with the USDA-USDI Guidelines and FSM 2354. Also reorganizes the presentation to show similarity or differences by classification in each topic area. 1924.23 – Added section on guidance to be included in land management plans to provide interim management of eligible or suitable rivers. 1925 – Establishes a reserved code for management of inventoried roadless areas for issuances of an interim directive or field supplementation. 1926 – Adds direction on the objection process under the 2004 planning rule. 1926.11 – Adds requirements for public notice of opportunity to file objections and the objection period. 1926.12 – Adds requirements for submitting objections. 1926.13 – Adds direction for submitting objections and the process for acceptance of objections including: objection time periods and process, time to file an objection, computation of time periods, evidence of timely filing, and time extensions. 1926.14 – Adds criteria to dismiss objections. 1926.2 – Adds requirement to resolve objections in timely matter. 1926.3 – Adds requirements for resolving objections. 1926.4 – Adds requirements the maintenance of objection process records. 1927 – Establishes a reserved code for backcountry and primitive areas for issuances of an interim directive or field supplementation.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING

Table of Contents

1920.1 – Authority.................................................................................................................... 13 1920.11 – Primary Authorities.............................................................................................. 13 1920.11a – Statutory Authorities .......................................................................................... 13 1920.11b – Regulations ........................................................................................................ 13 1920.12 – Other Applicable Authorities ............................................................................... 14 1920.12a – Statutory Authorities .......................................................................................... 14 1920.12b – Executive Orders................................................................................................ 16 1920.12c – Regulations......................................................................................................... 19

1920.2 – Objective.................................................................................................................... 19 1920.3 – Policy ......................................................................................................................... 20 1920.4 – Responsibility ............................................................................................................ 21

1920.41 – Chief..................................................................................................................... 21 1920.42 – Director, Ecosystem Management Coordination Staff, Washington Office........ 21

1920.5 – Definitions ................................................................................................................. 21 1921 – LAND MANAGEMENT PLANNING FOR 2004 PLANNING RULE.................. 21

1921.01 – Authority .............................................................................................................. 21 1921.02 – Objectives ............................................................................................................ 21 1921.02a – Land Management Plans .................................................................................... 21 1921.02b – Special Area Designations ................................................................................. 21 1921.02c – Collaborative and Participatory Process ............................................................ 21 1921.02d – Evaluation and Management Review ................................................................ 21 1921.02e – Monitoring.......................................................................................................... 21 1921.03 – Policy ................................................................................................................... 21 1921.03a – Environmental Management Systems................................................................ 21 1921.03b – Site-Specific Projects or Activities .................................................................... 21 1921.03c – Plan Revision Completion Time ........................................................................ 21 1921.03d – Plans Developed or Revised Under 1982 Planning Rule................................... 21 1921.03e – Collaboration...................................................................................................... 21 1921.03f – Update of Comprehensive Evaluation Reports .................................................. 21 1921.03g – Monitoring and Data Collection ........................................................................ 21 1921.03h – Sustainability...................................................................................................... 21 1921.04 – Responsibility ...................................................................................................... 21 1921.04a – Director, Ecosystem Management Coordination Staff, Washington Office...... 21 1921.04b – Regional Forester ............................................................................................... 21 1921.04c – Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor

................................................................................................................................... 21 1921.04d – Responsible Official........................................................................................... 21 1921.04e – District Ranger ................................................................................................... 21 1921.06 – Requirements for Plan Documents ...................................................................... 21

1921.1 – What Is A Plan? ......................................................................................................... 21 1921.11 – Required Components of a Plan........................................................................... 21


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1921.12 – Desired Conditions............................................................................................... 21 1921.13 – Objectives ............................................................................................................ 21 1921.14– Guidelines ............................................................................................................. 21 1921.15 – Identification of Areas Generally Suitable for Various Land Uses ..................... 21 1921.16 – Special Areas ....................................................................................................... 21 1921.17 – National Forest Management Act Requirements ................................................. 21 1921.17a – Vegetation Management Requirements ............................................................. 21 1921.17b – Land Management Plan Vegetation Management Guidance............................. 21 1921.17c – Identification of Lands Not Suitable for Timber Production ............................. 21 1921.17d – Estimating the Quantity of Timber That Can be Removed ............................... 21 1921.17e – Guidance for Maximum Size Limits for Even-Aged Regeneration Harvest ..... 21 1921.17f – Guidance for Culmination of Mean Annual Increment of Growth and Even-

Aged Regeneration Harvest ...................................................................................... 21 1921.17g – Timber Management Projections ....................................................................... 21 1921.17h – Plan Guidance for Special Conditions ............................................................... 21 1921.17i – Plan Guidance for Restocking ............................................................................ 21 1921.18 – Evaluation and Monitoring .................................................................................. 21 1921.19 – Resource Integration Requirements ..................................................................... 21

1921.2 – How Is a Plan Evaluated and Reviewed? .................................................................. 21 1921.21 – Management Review............................................................................................ 21 1921.22 – Evaluation Documentation................................................................................... 21 1921.23 – Assessments ......................................................................................................... 21

1921.3 – How is a Plan Amended or Revised?......................................................................... 21 1921.31 – Need for Change .................................................................................................. 21 1921.31a – Consideration of Issues and Opportunities ........................................................ 21 1921.31b – The Use or Development of Relevant Information............................................ 21 1921.31c – Review of Issues and Relevant Information to Determine the Need for Change

................................................................................................................................... 21 1921.31d – Public Notice for Initiating Development of a Plan, Plan Amendment, or Plan

Revision .................................................................................................................... 21 1921.32 – Amending a Land Management Plan................................................................... 21 1921.32a – Need for Change and Plan Amendment............................................................. 21 1921.32b – Amendment Through Project Decisions............................................................ 21 1921.33 – Revising a Plan .................................................................................................... 21 1921.34 – Developing a New Plan........................................................................................ 21 1921.35 – Administrative Corrections and Additions .......................................................... 21

1921.4 – How is a Plan Implemented? ..................................................................................... 21 1921.5 – How is a Plan Monitored? ......................................................................................... 21

1921.51 – Plan Monitoring Program .................................................................................... 21 1921.52 – Monitoring Documentation.................................................................................. 21

1921.6 – Public Participation and Collaboration ...................................................................... 21 1921.61 – Public Participation.............................................................................................. 21 1921.61a – Landowners and Communities Within the Landscapes of the Plan................... 21


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1921.61b – Privacy of Solicited Comments Received.......................................................... 21 1921.62 – Collaboration........................................................................................................ 21 1921.63 – Providing Opportunities for Participation............................................................ 21 1921.63a – Federal, State, Local and Tribal Governments................................................... 21 1921.63b – American Indian Tribes and Alaska Natives ..................................................... 21 1921.63c – Private Landowners............................................................................................ 21

1921.7 – Sustainability ............................................................................................................. 21 1921.71 – Sustainability Evaluation Overview .................................................................... 21 1921.72 – Determining Need for Change ............................................................................. 21 1921.73 – Social and Economic Evaluation ......................................................................... 21 1921.73a – Social and Economic Desired Conditions.......................................................... 21 1921.73b – Evaluation of Compliance With Legal Requirements for Civil Rights and

Environmental Justice ............................................................................................... 21 1921.74 – Ecological Evaluation .......................................................................................... 21 1921.74a – Ecosystem Diversity........................................................................................... 21 1921.74b – Species Diversity ............................................................................................... 21 1921.75 – Plan Option Development.................................................................................... 21 1921.76 – Trend Analysis ..................................................................................................... 21 1921.77 – Plan Components ................................................................................................. 21 1921.77a – Sustaining Social and Economic Systems.......................................................... 21 1921.77b – Ecosystem Diversity .......................................................................................... 21 1921.77c – Species Diversity................................................................................................ 21 1921.78 – Monitoring ........................................................................................................... 21

1921.8 – The Role of Science................................................................................................... 21 1921.81 – Best Available Science ........................................................................................ 21 1921.81a – Uncertainty in Science ....................................................................................... 21 1921.81b – Risk in Plan Approval ........................................................................................ 21 1921.82 – Consideration and Application of Science........................................................... 21 1921.83 – The Role of Science in Assessments, Analyses, and Monitoring........................ 21 1921.84 – Documentation..................................................................................................... 21

1921.9 – Environmental Management System Requirements.................................................. 21 1922 – LAND MANAGEMENT PLANNING FOR 1982 PLANNING RULE.................. 21

1922.03 – Policy ................................................................................................................... 21 1922.04 – Responsibility ...................................................................................................... 21 1922.04a – Regional Forester ............................................................................................... 21 1922.04b – Forest Supervisor ............................................................................................... 21

1922.1 – Forest Planning Process ............................................................................................. 21 1922.11 – Forest Planning Results........................................................................................ 21 1922.12 – Benchmark Analysis ............................................................................................ 21 1922.13 – Formulation of Alternatives ................................................................................. 21 1922.14 – Estimated Effects of Alternatives ........................................................................ 21 1922.15 – Resource Integration Requirements ..................................................................... 21

1922.2 – Forest Plan Content.................................................................................................... 21


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1922.21 – Standards for Forest Plans ................................................................................... 21 1922.3 – Review and Approval of Forest Plans ....................................................................... 21

1922.31 – Internal Review.................................................................................................... 21 1922.31a – Standards for Regional Review.......................................................................... 21 1922.31b – Internal Review Process..................................................................................... 21 1922.32 – External Review................................................................................................... 21

1922.4 – Forest Plan Implementation ....................................................................................... 21 1922.41 – Analysis and Evaluation....................................................................................... 21 1922.42 – Selected Management Practices........................................................................... 21

1922.5 – Amendment................................................................................................................ 21 1922.51 – Changes to the Forest Plan That are Not Significant ........................................... 21 1922.52 – Changes to the Forest Plan That are Significant .................................................. 21

1922.6 – Revision ..................................................................................................................... 21 1922.7 – Monitoring and Evaluation ........................................................................................ 21

1922.71 – Monitoring Requirements .................................................................................... 21 1923 – WILDERNESS EVALUATION .......................................................................... 21

1923.01 – Authority .............................................................................................................. 21 1923.03 – Policy ................................................................................................................... 21 1923.04 – Responsibility ...................................................................................................... 21 1923.04a – Chief ................................................................................................................... 21 1923.04c – Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor

................................................................................................................................... 21 1923.1 – Review and Approval ................................................................................................ 21

1923.11 – Proposals Resulting From Wilderness Studies Incorporated in Land Management Plans, Including Legislatively Mandated Studies ..................................................... 21

1923.12 – Proposals Resulting From Wilderness Studies Not Incorporated in Land Management Plans, Including Legislatively Mandated Studies ............................... 21

1924 – WILD AND SCENIC RIVER EVALUATION...................................................... 21 1924.01 – Authority .............................................................................................................. 21 1924.03 – Policy ................................................................................................................... 21 1924.04 – Responsibility ...................................................................................................... 21 1924.04a – Chief ................................................................................................................... 21 1924.04b – Deputy Chief, National Forest System, Washington Office.............................. 21 1924.04c – Regional Forester ............................................................................................... 21 1924.04d – Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor

................................................................................................................................... 21 1924.1 – Review and Approval ................................................................................................ 21

1924.11 – Proposals Resulting From River Studies ............................................................. 21 1924.12 – Proposals Resulting From River Studies Not Incorporated in Land Management

Plans, Including Legislatively Mandated Studies ..................................................... 21 1924.2 – Interim Management of Eligible or Suitable Rivers.................................................. 21

1924.21 – Management Requirements for Eligible or Suitable Rivers ................................ 21 1924.22 – Land Management Plan Guidance ....................................................................... 21


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1925 – MANAGEMENT OF INVENTORIED ROADLESS AREAS [RESERVED] ....... 21 1926 – OBJECTION PROCESS................................................................................... 21

1926.01 – Authority .............................................................................................................. 21 1926.02 – Objective .............................................................................................................. 21 1926.04 – Responsibility ...................................................................................................... 21 1926.04a – Chief ................................................................................................................... 21 1926.04b – Deputy Chief, National Forest System .............................................................. 21 1926.04c – Director, Ecosystem Management Coordination Staff, Washington Office...... 21 1926.04d – Regional Forester ............................................................................................... 21 1926.04e – Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor

................................................................................................................................... 21 1926.04f – Responsible Official ........................................................................................... 21 1926.04g – Reviewing Officer.............................................................................................. 21 1926.05 – Definitions............................................................................................................ 21

1926.1 – Giving Notice............................................................................................................. 21 1926.11 – Public Notice of Opportunity to File Objections and the Objection Period ........ 21 1926.12 – Submitting Objections ......................................................................................... 21 1926.13 – Objection Time Periods and Process ................................................................... 21 1926.13a – Time to File an Objection .................................................................................. 21 1926.13b – Computation of Time Periods............................................................................ 21 1926.13c – Evidence of Timely Filing ................................................................................. 21 1926.13d – Time Extensions................................................................................................. 21 1926.13e – Electronic Inboxes.............................................................................................. 21 1926.14 – Dismissal of Objections ....................................................................................... 21

1926.2 – Time Frames for Resolving Objections ..................................................................... 21 1926.3 – Resolution of Objections ........................................................................................... 21

1926.31 – Reviewing Officer Response to Objections ......................................................... 21 1926.32 – Plan, Amendment, or Revision Approval ............................................................ 21 1926.33 – Notice of a Plan Approval and Effective Date..................................................... 21

1926.4 – Maintaining Objection Records ................................................................................. 21 1927 – BACKCOUNTRY AND PRIMITIVE AREAS [RESERVED] .............................. 21


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CHAPTER 1920 – LAND MANAGEMENT PLANNING This chapter provides a process for developing, amending, and revising land management plans (plans) for the National Forest System. The planning process determines general suitability of land for resource management. Planning analysis focuses on addressing current conditions and trends applicable to planning issues and provides strategic management guidance for a plan area.

1920.1 – Authority

1920.11 – Primary Authorities

1920.11a – Statutory Authorities See FSM 1901 for a summary of the relevant acts and FSH 1909.12, chapter 90, for text of the Forest and Rangeland Renewable Resource Planning Act, the 1982 planning rule, the Wilderness Act of 1964, the Eastern Wilderness Act, the Wild and Scenic Rivers Act, and the 2004 planning rule.

The Forest and Rangeland Renewable Resources Planning Act (RPA) of 1974 (16 U.S.C. 1601, Pub. L. 93-378). This act directs that plans be developed, maintained, and, as appropriate, revised. Plans integrate the requirements of statutes, Executive orders, regulations, and agency policies that apply to the lands and resources of the National Forest System.

National Environmental Policy Act of 1969 (NEPA) (42 U.S.C. 4321 et seq.). Plans must conform to the NEPA, and implementing regulations found at Title 40, Code of Federal Regulations, parts 1500 – 1508 (40 CFR 1500-1508) (See FSH 1909.15 for Council on Environmental Quality (CEQ) regulations implementing NEPA.)

National Forest Management Act of 1976 (NFMA) (16 U.S.C. 1600 et seq.). This act requires the Responsible Official to ensure that plan guidelines provide limitations for timber harvest practices (16 U.S.C. 1604(g) and (m), and 1611). Exceptions to the required timber harvest practices for particular tree species are provided by 16 U.S.C. 1604(m) after the Responsible Official considers the multiple uses of the forest including, but not limited to, recreation, wildlife habitat, and range.

1920.11b – Regulations Under the authority of Title 36, Code of Federal Regulations, section 219. 14, plans may be developed, amended, or revised under several planning rules: the 2004 planning rule (January 5, 2005 (70 FR1023)) and the 1982 planning rule (September 30, 1982 (47 FR 43026)), and amended in part on June 24, 1983 (48 FR 29122), and on September 7, 1983 (48 FR 40383) in effect prior to November 9, 2000.


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1920.12 – Other Applicable Authorities In addition to the primary authorities described in FSM 1920.11, many other Federal laws, regulations, and Executive orders pertain to National Forest System (NFS) management. Some require disclosures and findings made as part of plan amendments or revisions and others require that particular guidelines or requirements be met. Throughout these directives, reference is made or direction is linked to these laws, regulations, or Executive orders as appropriate. The Heuristic Electronic Library for Planning (HELP) website http://fsweb.ftcol.wo.fs.fed.us/imi/help/ contains a listing and summary of relevant statutes, regulations, policies, and agreements applicable to the Forest Service.

1920.12a – Statutory Authorities

Alaska National Interest Lands Conservation Act (16 U.S.C. 3210, ANILCA). This act requires the Secretary of Agriculture to provide access to nonfederally owned land within the boundaries of the National Forest System to secure to the owner the reasonable use and enjoyment thereof.

American Indian Religious Freedom Act of 1978 (42 U.S.C. 1996). This act prohibits land management plans from restricting access to sites, use and possession of sacred objects, and the freedom to worship through ceremonials and traditional rites.

Archaeological Resources Protection Act of 1979 (16 U.S.C. 470). This act authorizes Federal land managers to issue permits for excavation and removal of archaeological resources consistent with the plan.

Clean Air Act, as amended (42 U.S.C. 7401 et seq.). This act requires that plan components that address smoke management be coordinated with the State governments when smoke management is an issue. It also requires plans should provide management direction to protect air quality-related values, including visibility, in Class I Federal areas (FSM 2580).

Data Quality Act (44 U.S.C. 3516 et seq.). This act requires that agencies ensure and maximize the quality, objectivity, utility, and integrity of information they disseminate.

Eastern Wilderness Areas Act (16 U.S.C. 1132). This act provides criteria for wilderness areas in the eastern United States.

Educational Land Grant Act (ELGA) (114 Stat. 368; 16 U.S.C. 479a). This act authorizes the Forest Service to convey up to 80 acres of National Forest System lands to public school districts for educational purposes and, when application by the school district is made, the Responsible Official should identify those lands available for disposal pursuant to the ELGA through the forest planning process (FSH 5509.11, sec. 34).


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Endangered Species Act of 1973, as amended (16 U.S.C. 1531-1536, 1538-1540). This act requires Federal agencies to carry out programs for the conservation of threatened and endangered species.

Energy Security Act of 1980 (42 U.S.C. 8855). This act requires that notwithstanding the status of any plan being prepared under Section 1604 of Title 16, the Forest Service shall continue to process applications for leases and permits to explore, drill, and develop resources on National Forest System lands.

Federal Cave Resource Protection Act of 1988 (16 U.S.C. 4301-4310). This act requires land management plans to consider significant caves (36 CFR 290).

The Federal Land Policy and Management Act of 1976 (FLPMA) (43 U.S.C. 1701 et seq.; 43 U.S.C. 1737). This act restates the Mining and Minerals Policy Act of 1970 and directs that public lands that include the Federal mineral estate underlying National Forest System lands be managed in a manner that recognizes the Nation’s need for domestic sources of minerals. Section 202(b) of the act requires that National Forest System land use plans be coordinated with the land use planning programs of Indian Tribes, by, among other things, considering the policies of approved tribal land resource management programs.

Federal Water Pollution Control Act (Clean Water Act) (33 U.S.C. 1251 et seq.). This act requires the Forest Service to address the following subjects when an issue: water uses on National Forest System lands, water yield and supply, watershed restoration, water quality-total maximum daily loads (TMDLS), and water quality-best management practices.

The Freedom of Information Act of 1966, as amended in 2002 (5 U.S.C. 552) and Privacy Act of 1974, as amended (5 U.S.C. 552a). These acts require meeting records to be publicly available if a request is submitted and that participants in public meetings should have no expectation of privileged or private communication at such meetings. Agency personnel should expect that any document that they produce (for example, email) is subject to disclosure under FOIA, except to the extent that the document communicates confidential deliberative recommendations or otherwise fits within specific statutory exemptions from disclosure.

Healthy Forest Restoration Act of 2003. This act requires the Secretary of Agriculture and the Secretary of the Interior to protect communities, watersheds, and certain other at-risk lands from catastrophic wildfires.

Mining and Minerals Policy Act of 1970 (30 U.S.C. 21a). This act requires the Federal Government to foster and encourage private enterprise in the development of a stable domestic minerals industry and the orderly and economic development of domestic mineral resources.

Multiple-Use Sustained-Yield Act of 1960 (16 U.S.C. 528 et seq.). This act states that National Forests are established and administered for outdoor recreation, range, timber, watershed, and wildlife and fish purposes.


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National Historic Preservation Act of 1966, as amended (16 U.S.C. 470). This Act requires the Responsible Official to coordinate with State Historic Preservation Officer (SHPO) when efforts are made to protect, manage, or to reduce or mitigate harm of National Register-eligible cultural resources.

The National Materials and Minerals Policy, Research and Development Act of 1980 (30 U.S.C. 1601 et seq.). This act emphasizes the need to fulfill the Mining and Minerals Policy Act of 1970 and requires improvement in the quality of minerals data in Federal land use decisionmaking.

The Paperwork Reduction Act of 1980, as amended in 1986 (44 U.S.C. 35). This act conveys controls on agency collection of information from the public through control of agency paperwork burdens on the public. One specific requirement is that efforts to collect information from 10 or more individuals through any number of identical questions must obtain review from the Office of Management and Budget (OMB). Exemptions exist for facts or opinions solicited as general public comments, including self-identification, and facts or opinions obtained at or in connection with public hearings or meetings.

Unfunded Mandates Reform Act of 1995 (2 U.S.C. 1531-1538). Section 204 of this act provides that meetings among agency personnel and elected officials of State, local, or Tribal governments, or their designees, are not subject to the Federal Advisory Committee Act (FACA), and that such meetings may be held to obtain consensus advice relative to the implementing Federal programs or for exchanging information.

Wild and Scenic Rivers Act, as amended (16 U.S.C. 1271-1287). This act establishes the process for designating and managing wild and scenic rivers.

Wilderness Act of 1964 (16 U.S.C. 11 31-1136). This act identifies characteristics for areas in the National Wilderness System, describes management for wilderness areas, and identifies the process for adding wilderness areas to the National System.

1920.12b – Executive Orders

Executive Order 11593, Protection and Enhancement of the Cultural Environment, May 13, 1971. This Executive order requires Federal agencies to (1) administer the cultural properties under their control in a spirit of stewardship and trusteeship for future generations and (2) initiate measures necessary to direct their policies, plans, and programs in such a way that federally owned sites, structures, and objects of historical, architectural, or archaeological significance are preserved, restored, and maintained for the inspiration and benefit of the people.


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Executive Order 11644, Use of Off-Road Vehicles on the Public Lands, February 8, 1972 as amended by Executive Order 11989, Off-Road Vehicles on Public Lands, May 24, 1977. This Executive order allows agency heads to adopt a policy that portions of the public lands within his/her jurisdiction shall be closed to use by off-road vehicles, except for those areas or trails that are suitable and specifically designated as open.

Executive Order 11988, Floodplain Management, May 24, 1977. This Executive order requires Federal agencies to take action to reduce the risk of flood loss, to minimize the impact of floods on human safety, health, and welfare, and to restore and preserve the natural and beneficial values served by floodplains.

Executive Order 11990, Protection of Wetlands, May 24, 1977. This Executive order requires Federal agencies to avoid the destruction, loss, or degradation of wetlands, and to preserve and enhance natural and beneficial values of wetlands in carrying out the agency’s responsibilities for: (1) acquiring, managing, and disposing of Federal lands and facilities; (2) providing federally undertaken, financed, or assisted construction and improvement; and (3) conducting Federal activities and programs affecting land use, including but not limited to, water and related land resources planning, regulating, and licensing activities.

Executive Order 12875, Enhancing Intergovernmental Partnership, May 26, 1993. This Executive order requests Federal agencies to establish regular and meaningful consultation and collaboration with State, local, and Tribal governments on Federal matters that significantly or uniquely influence their communities.

Executive Order 12898, Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations, February 11, 1994. This Executive order mandates that each Federal agency make environmental justice part of its mission by identifying and addressing disproportionately high and adverse human health or environmental effects of its programs, policies, and activities on minority populations and low-income populations.

Executive Order 12962, Recreational Fisheries, June 7, 1995. This Executive order mandates that Federal agencies improve the quantity, function, sustainable productivity, and distribution of U.S. aquatic resources for increased recreational fishing opportunities by such activities as promoting restoration to support viable, healthy, and, where feasible, self-sustaining recreational fisheries.

Executive Order 13007, Indian Sacred Sites, May 24, 1996. In managing Federal lands, each executive branch agency with statutory or administrative responsibility for the management of Federal lands shall, to the extent practicable, accommodate access to and ceremonial use of Indian sacred sites by Indian religious practitioners and avoid adversely affecting the physical integrity of such sacred sites. Where appropriate, agencies shall maintain the confidentiality of sacred sites.


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Executive Order 13084, Consultation and Coordination with Indian Tribal Governments, May 14, 1998. In formulating policies significantly or uniquely affecting Indian tribal governments, agencies shall be guided, to the extent permitted by law, by principles of respect for Indian Tribal self-government and sovereignty, for Tribal treaty and other rights, and for responsibilities that arise from the unique legal relationship between the Federal Government and Indian Tribal governments.

Executive Order 13112, Invasive Species, February 3, 1999. This Executive order requires Federal agencies whose actions may affect the status of invasive species to: (1) identify such actions; (2) use relevant programs and authorities to prevent, control, monitor, and research such species; and (3) not authorize, fund, or carry out actions that it believes are likely to cause or promote the introduction or spread of invasive species in the United States or elsewhere.

Executive Order 13132, Federalism, August 4, 1999. Federalism is rooted in the belief that issues that are not national in scope or significance are most appropriately addressed by the level of government closest to the people. Each agency shall have an accountable process to ensure meaningful and timely input by State and local officials in the development of regulatory policies that have Federalism implications.

Executive Order 13148, Greening the Government through Leadership in Environmental Management, April 21, 2000. Federal agencies shall ensure that all necessary actions are taken to integrate environmental accountability into agency day-to-day decisionmaking and long-term planning processes, across all agency missions, activities, and functions.

Executive Order 13211, Actions Concerning Regulations that Significantly affect Energy Supply, Distribution, or Use, May 18, 2001. Federal agencies shall appropriately weigh and consider the effects of their regulations and other actions on the supply, distribution, and use of energy. Agencies shall prepare a Statement of Energy Effects when undertaking certain actions.

Executive Order 13212, Actions to Expedite Energy-Related Projects, May 18, 2001. For energy-related projects, agencies shall expedite their review of permits or take other actions as necessary to accelerate the completion of such projects, while maintaining safety, public health, and environmental protections.

Executive Order 13287, Preserve America, March 3, 2003. The Federal agencies shall protect and continue use of historic properties owned by the Federal government, and by pursuing partnerships with State and local governments, Indian tribes, and the private sector to promote the preservation of the unique cultural heritage of communities and of the Nation and to realize the economic benefit that these properties can provide.


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Executive Order 13353, Facilitation of Cooperative Conservation, August 26, 2004. The Federal agencies shall carry out laws relating to the environment and natural resources in a manner that promotes cooperative conservation, with an emphasis on appropriate inclusion of local participation in Federal decisionmaking, in accordance with their respective agency missions, policies, and regulations.

1920.12c – Regulations

Title 36, Code of Federal Regulations, Section 251.9. This section requires that when National Forest System watersheds supply municipal water, the Responsible Official should ensure that plans are consistent with municipal watershed requirements.

Title 36, Code of Federal Regulations, Section 228.102. This section requires that when there has been an expression of interest in leasing, or where there is geologic potential for the occurrence of oil and gas, the Responsible Official should ensure that plans identify on maps those areas that will be open to oil and gas leasing under the terms and conditions of standard lease forms and closed to leasing, and to distinguish between those areas that are being closed through exercise of management direction and those closed by law or regulation. For those areas that will be open to oil and gas leasing, but subject to stipulations, discuss why the constraints are necessary and justifiable.

Title 36, Code of Federal Regulations, Section 212.2. This section requires that the forest transportation atlas contain geo-spatial, tabular, and other data to support analysis needed to meet management objectives identified in land management plans. The atlas is a dynamic document that changes in response to new information of the existence and condition of roads, trails, and airfields of the unit.

1920.2 – Objective Objectives in the developing, amending, and revising of land management plans are to:

1. Foster public participation while developing, amending, revising, and reviewing plans (16 U.S.C. 1604 (d)).

2. Use a systematic interdisciplinary approach to achieve integrated consideration of the physical, biological, economic, and other sciences (16 U.S.C. 1604 (b)).

3. Provide multiple-use and sustained-yield of the products and services obtained therefrom in accordance with the Multiple-Use Sustained-Yield Act of 1960 and in particular, include coordination of outdoor recreation, range, timber, watershed, wildlife and fish, and wilderness (16 U.S.C. 1604(e)).


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4. Sustain the multiple uses of its renewable resources in perpetuity while maintaining the long-term productivity of the land consistent with the Multiple-Use Sustained-Yield Act of 1960 (36 CFR 219.1(b)).

5. Focus on maintaining or restoring the health of the land in order to provide a sustainable flow of uses, benefits, products, services, and visitor opportunities (36 CFR 219.1(b)).

1920.3 – Policy (See FSM 1903 for general policy for planning activities.) It is the policy of the Chief that all primary direction necessary for the development, amendment, or revision of plans be contained in this chapter, or supplements or handbooks thereto. When Responsible Officials prepare plans or plan revisions, they must

1. Conduct sustainability evaluations within an area large enough to consider broad-scale social, economic, and ecological factors and trends over large landscapes. Selection of the area included in these evaluations shall be guided by the issues being addressed, the extent of relevant ecosystems and their composition, structure and function, the ranges and habitats of individual species, or key social and economic patterns and processes. These landscapes may include multiple national forests and should consider non-National Forest System (NFS) lands. Evaluations for sustainability shall extend to this larger area of analysis to understand the environmental context and opportunities and limitations for NFS lands to contribute to the sustainability of social, economic, and ecological systems.

2. Use information pertaining to ecosystem composition, structure, and function obtain from sustainability evaluations when developing plan components to contribute to ecological sustainability (FSM 1921.7 and FSH 1909.12, ch. 40).

3. Use information pertaining to social and economic systems obtained from sustainability evaluations when developing plan components to contribute to social and economic sustainability.

4. Integrate planning information about land status, constructed features, human, social, and natural resources into standard integrated corporate database management systems.

5. Obtain the most current data available through use of efficient, compatible, and timely resource inventories and monitoring as appropriate. Coordinate inventories and monitoring to reduce duplication of data collection at all planning levels.

6. Organize planning documents or set of documents and make them available for public review when notice of availability of documents is published in the newspaper(s) of record.


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7. Display planning data and information in a manner that can be easily understood by users and the public. When the Responsible Official prepares plan amendments, they must consider requirements in the preceding paragraphs 1 through 4, as appropriate, to the issues and scope of the plan amendment.

1920.4 – Responsibility General responsibilities for planning are found in FSM 1904. Additional responsibilities for the 1982 planning rule are found at FSM 1922. Additional responsibilities for the 2004 planning rule are found at Title 36, Code of Federal Regulations, section 219.2 (36 CFR 219.2 and FSM 1921). Additional, specific responsibilities for unit-level land management planning and for planning special areas, including potential wilderness recommendations and wild and scenic river system additions, are found in FSM 1923 and 1924 respectively.

1920.41 – Chief The Chief reserves the authority to approve the schedule for revising individual land management plans.

1920.42 – Director, Ecosystem Management Coordination Staff, Washington Office The Director, Ecosystem Management Coordination Staff, Washington Office, provides assistance to the Chief, through the Deputy Chief for the National Forest System (NFS), in all matters of land management planning. Additional responsibilities include:

1. Coordinating NFS input into the national strategic plan.

2. Strengthening the relationship between land management plans and strategic plan goals, objectives, strategies, and related performance measures that apply to management of the NFS.

3. Providing planning and coordination assistance to the Regions to develop consistency with land management plans and environmental management systems.

1920.5 – Definitions See FSM 1905 for definitions that apply to land management planning.

1921 – LAND MANAGEMENT PLANNING FOR 2004 PLANNING RULE As required by Title 36, Code of Federal Regulations, section 219.5 (36 CFR 219.5) environmental management systems (EMS) is a framework for planning and management of every National Forest System (NFS) unit under the 2004 planning role adopted January 5, 2005


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CHAPTER 1920 – LAND MANAGEMENT PLANNING (70 FR 1023). The EMS shall conform to the consensus standard developed by the International Organization for Standardization (ISO), “ISO 14001: Environmental Management Systems: Specification with Guidance for Use” (FSM 1921.9). Planning for units of the NFS involves two decisionmaking levels: land management plans (also referred to as plan) and site-specific project or activity level. Other types of pre-proposal evaluations may occur between land management plan approval and project or activity-level decisions (FSH 1909.12, sec. 11).

l. Plan. A plan-level approval provides guidance for all resource management programs, practices, uses, and protection measures. The plan consists of Forest-wide, Grassland-wide, Prairie-wide and area-specific plan components. Plan components are desired conditions, objectives, guidelines, suitability of areas, and special areas. A plan provides broad guidance and information for project and activity decisionmaking in a national forest, grassland, prairie, or other comparable administrative units. There are three interrelated parts in a plan model: the vision, the strategy, and the design criteria including plan components (FSH 1909.12, sec. 12). A link to the plan model is found at http://www.fs.fed.us/emc/nfma/index.htm.

2. Project or activity-level. A site-specific project or activity-level decision involves the analysis and implementation of management practices designed to achieve the desired conditions and objectives of the plan or respond to public demand. This includes permits, contracts, and other instruments authorizing the use and occupancy of NFS lands. This level involves site-specific analysis of a proposal (40 CFR 1508.23) to meet regulations for implementing National Environmental Policy Act requirements (40 CFR part 1500) for decisionmaking.

3. Pre-proposal evaluations. Pre-proposal evaluations set the context for project and activity levels based upon the components of the plan. Pre-proposal evaluations do not make any final decisions, but may apply plan guidance to identify priorities, schedules, or tentative locations for activities and projects. Examples of pre-proposal evaluations include landscape scale assessment, fire planning, and roads analysis. The scale of such pre-proposal evaluations should be appropriate to the issues being evaluated and may encompass all or portions of several administrative units.

1921.01 – Authority Authorities that apply to land management planning are found at FSM 1920.1.

1921.02 – Objectives

1921.02a – Land Management Plans Describe the agency’s strategy and design criteria to achieve the plan’s vision.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1921.02b – Special Area Designations

1. Identify, evaluate, designate, or recommend areas with special or unique characteristics.

2. Provide appropriate guidance within the plan to protect, maintain, and enhance the values associated with these areas.

3. Recognize that congressionally designated areas are nationally significant and ensure the plan contains components for them.

1921.02c – Collaborative and Participatory Process

1. Provide collaborative and participatory opportunities to develop a proposed need for change and scope of amendment or revision.

2. Develop a proposed change to the plan that is understandable to all parties and acceptable to as many parties as possible.

3. Draw on the resources and knowledge of stakeholders to develop, amend, revise, implement, or monitor a plan.

4. Seek out underserved populations and communities.

1921.02d – Evaluation and Management Review

1. Assess the need for adaptive management to adjust practices and projects, or to identify possible plan changes.

2. Provide feedback on plan implementation that is credible, scientifically reliable, and documented.

3. Provide accountability for resource outcomes against plan objectives.

4. Document and disseminate lessons learned.

1921.02e – Monitoring

1. Provide data and information for the evaluation process (FSM 1921.2). For example, provide information on:

a. Existing trends for key social, economic, and ecological resources.

b. Changes in land conditions that affect identification of areas generally suitable for various land uses or lands not suitable for timber production (36 CFR 219.12).


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c. Effectiveness of managing for relevant ecosystem characteristics.

d. National Forest System contributions to the three sustainability elements: social, economic, and ecological conditions.

e. Whether the aggregated outcomes of project activities have contributed to plan components.

f. The uncertainty and risk associated with the plan approval (FSM 1921.8). In addition to informing plan amendments or plan revisions, this information may help identify research needs.

1921.03 – Policy

1921.03a – Environmental Management Systems At a minimum, the scope of the environmental management system (EMS) is the land management planning process. For that part of the EMS within the scope of the land management planning process, the land management plan identifies the most pressing environmental issues that need attention. (See 36 CFR 219.5; FSM 1330; FSM 1921.9; and FSH 1909.12, sec. 23)

1921.03b – Site-Specific Projects or Activities As a general rule, site-specific project or activity decisions should not be included in plans, plan amendments, or plan revisions. A plan amendment may occur contemporaneously with approval of a project or activity (36 CFR 219.8(e)(3)).

1921.03c – Plan Revision Completion Time Generally, a plan revision should be completed in three years or less from the time of the public notice for initiating plan revision.

1921.03d – Plans Developed or Revised Under 1982 Planning Rule For plans developed or revised prior to November 9, 2000, under the 1982 planning rule adopted September 30, 1982 (47 FR 43026) and June 24, 1983 (48 FR 29122) and September 7, 1983 (48 FR 40383), the Responsible Official shall:

1. Continue to carry out plans developed under the 1982 rule.

2. Use a plan amendment process of either the planning regulations in effect prior to November 9, 2000 or the 2004 planning rule (36 CFR 219.14) if a change in management indicator species is needed.


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3. Use a plan amendment process of either the planning regulations in effect prior to November 9, 2000 or the 2004 planning rule (36 CFR 219.14) if a change in plan-monitoring requirements is needed. For example, the administrative correction allowances under the 2004 rule cannot be used to change the monitoring requirements developed or revised under the 1982 rule.

4. Amend or revise the plan in accordance with 36 CFR 219.14.

1921.03e – Collaboration The Responsible Official has discretion to decide on actual methods and timing for public participation and involvement (36 CFR 219.9).

1921.03f – Update of Comprehensive Evaluation Reports Using an update of the comprehensive evaluation report or comparable report the Forest Supervisor shall review the conditions on the land covered by the plan at least every 5 years to determine whether the plan needs to be changed. The Responsible Official may consider existing environmental impact statements for previous plans, plan amendments, or plan revisions as a functional equivalent for comprehensive evaluation reports when updating. Comprehensive evaluation (36 CFR 219.6) should:

1. Focus on the trends toward desired conditions (36 CFR 219.7(a)(2(i)) to determine whether management is off-course and whether corrections to plan components need to be made.

2. Focus on whether the desired condition(s) is no longer valid. No longer valid typically means an unexpected natural event has occurred or that a law, regulation, or policy has changed (such as a species that has been newly listed as threatened or endangered under the Endangered Species Act).

1921.03g – Monitoring and Data Collection Monitoring and data collection (36 CFR 219.6) should:

1. Be purposeful and conducted to answer specific questions.

2. Be focused on the critical activities that affect achievement of the desired condition(s).

3. Take into account the best available science (FSM 1921.8) and established protocols to collect and evaluate data.

4. Apply selection criteria to ensure that only feasible monitoring activities are conducted in a manner that is practical and affordable.


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5. Be coordinated to the extent practicable with adjacent National Forest System units, the Regional Office, and other government land management agencies to maximize the future use of data by the Forest Service.

6. Be carried out in collaboration with others to share the workload, gain expertise of others, and build credibility and trust.

7. Be designed to operate efficiently within current and expected budgetary levels.

8. Be synchronized with EMS significant aspects, objectives and targets, programs, and operational controls for that part of the EMS within the scope of the land management planning process (FSH 1909.12, sec. 23).

1921.03h – Sustainability

1. Ecosystem sustainability shall be provided primarily through plan components that address ecosystem diversity and, where appropriate, species diversity.

2. The rigor of analysis used in assessing social, economic, and ecological systems should be proportional to the level of risk to those systems and to the degree to which past, present, and projected conditions in the plan area contribute to that risk.

3. Contributions to social and economic sustainability shall be provided through appropriate plan components.

4. Integrate analysis of social and economic elements with ecological characteristics during the evaluation of plan components, trend analysis, and any options.

1921.04 – Responsibility

1921.04a – Director, Ecosystem Management Coordination Staff, Washington Office The Director, Ecosystem Management Coordination Staff, Washington Office is responsible for:

1. Developing and sharing examples of Environmental Management System templates, successful tools, guidance, and collaborative planning efforts. Such examples and processes may be made available in technical guides or other documentation.

2. Supporting the planning efforts of all Forests, Grasslands, Prairies or other comparable administrative units.


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1921.04b – Regional Forester The Regional Forester may decide to act as the Responsible Official for a plan, plan amendment, or plan revision (36 CFR 219.2(b)(1)). Upon completion of the planning action, the Forest, Grassland, Prairie or other comparable administrative unit Supervisor is assumed to be the Responsible Official for plan implementation and future amendment or revision unless indicated otherwise by the Regional Forester. In addition to the responsibilities specified in FSM 1904 and 36 CFR 219.2, each Regional Forester shall ensure:

1. Coordination for planning efforts between units within the Region and between Regions where units adjoin.

2. Quality control of planning efforts is maintained by meeting the requirements of FSM 1921.06.

3. The Forest Service strategic plan is used as a context for developing or refining desired conditions.

4. Evaluations that cross regional boundaries are coordinated.

5. Appropriate consistency of planning processes, plan components, and monitoring, to the extent applicable, across the Region and between Forests, Grasslands, Prairies or other comparable administrative units’ plans.

6. Coordination occurs between the Responsible Official and Chief on planning-related matters, when appropriate.

7. Collaborative processes are consistent with the Federal Advisory Committee Act (FACA) (5 U.S.C. app. 2, sec. 1 to 15) and other applicable statutes, regulations, and guidance. Consult the appropriate Office of General Counsel to ensure participation is in compliance with FACA.

1921.04c – Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor The Supervisor of the National Forest, Grassland, Prairie, or other comparable administrative unit is the Responsible Official for developing, amending, or revising plans, except when the Regional Forester, Chief, or Secretary chooses to act as the Responsible Official (36 CFR 219.2(b)(1)). The authority for approving project-specific amendments cannot be delegated to District Rangers.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING In addition to Responsible Official duties, the Supervisor of the National Forest, Grassland, or Prairie or other comparable administrative unit is responsible for:

1. Assuring that Forest Service management will be administered to sustain and the multiple uses of its renewable resources in perpetuity while maintaining the long-term productivity of the land (36 CFR 219.1(b)).

2. Managing the National Forest, Grassland, Prairie or other comparable administrative unit is consistent with approved plan for that unit.

3. Continuously adapting the plan to changing situations.

4. Developing budgets and proposing site-specific projects and activities that implement the plan’s vision, strategy, and design criteria.

5. Make the commitment to continual improvement of environmental performance, prevention of pollution and compliance with legal requirements within the environmental policy of the environmental management system (EMS) under 36 CFR 219.14 (FSH 1909.12, sec. 23).

6. Identify management representative to ensure that EMS is established and significant aspects are identified.

1921.04d – Responsible Official The Responsible Official is responsible for:

1. Preparing the plan document or set of documents to meet the requirements in FSM 1921.06.

2. Ensuring that an interdisciplinary approach is used to integrate knowledge of the physical, biological, economic, and social sciences, and environmental design arts into the planning process.

3. Working with the Station Director to ensure management guidance is consistent with the Research and Development activities where plan components may apply to areas designated as Experimental Forests (36 CFR 219.2(b)(3)) or existing Research Natural Areas, and in carrying out FSM 1921.8.

4. Cooperating with other resource management agencies, as appropriate.

5. Sharing the Federal Government’s overall trust responsibility for federally recognized Indian Tribes.

6. Investing the time and resources necessary for establishing relationships for collaborative processes.


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7. Seeking broad public support for the plan (while preserving the agency’s delegated decisionmaking authority) recognizing that collaborative processes may not be effective in every situation, and in those situations, proceed with an approval in a timely manner.

8. Evaluating current social, economic, and ecological conditions and trends relevant to the need for change (36 CFR 219. 6(a)).

9. Documenting how the best available science was taken into account in the planning process (36 CFR 219.11; 36 CFR 219.6; FSM 1921.8).

10. Providing public notification upon completion of annual evaluation reports, comprehensive evaluation reports, and plan amendment evaluation reports (36 CFR 219.9(b)).

11. Conducting and documenting annual evaluation of plan monitoring results (36 CFR 219.6(a)(3)).

12. Conducting and documenting a comprehensive evaluation of the plan at least every five years (36 CFR 219.6(a)(1)).

13. Conducting and documenting an evaluation report to support a plan amendment (36 CFR 219.6(a)(2)).

1921.04e – District Ranger The District Ranger is responsible for site-specific projects and activities within their authority (36 CFR 219.2(c)) and shall:

1. Describe the relationship of applicable plan components with the decisions for site-specific projects or activities, and

2. Ensure that site-specific projects or activities are consistent with applicable plan components (36 CFR 219.8(a) and (e)).

1921.06 – Requirements for Plan Documents In addition to the other requirements of this chapter and 36 CFR part 219, plan documents shall:

1. Contain factual and accurate resource information and other data.

2. Provide adequate guidance to guide formulation of individual resource programs and schedules needed to implement the plan.

3. Consistently apply assumptions, analytical approaches, and data.

4. Include special area maps, when applicable.


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5. Comply with laws, regulations, and National and Regional planning policy as specified in FSM 1920 and supplements and handbooks thereto.

6. Contribute to Forest Service strategic plan, as appropriate, in establishing desired conditions, performance measures, and objectives.

7. Be based on adequate analysis and evaluation to reach an informed approval.

8. Follow the plan model found on the worldwide web at http://www.fs.fed.us/emc/nfma/index.htm.

1921.1 – What Is A Plan? A plan provides desired conditions, objectives, and guidance for future site-specific project and activity decisions (36 CFR 219.3(a)). A National Forest, Grassland or Prairie or other comparable administrative unit plan shall consist of three interrelated parts.

1. Vision. Vision includes the environmental management system policy, describes the roles and contributions of National Forest System lands, and desired conditions.

2. Strategy. Strategy explains general suitability of areas for various uses, includes any recommendations for special area designations, and includes a Program Prospectus that contains objectives.

3. Design Criteria. Design criteria include guidelines and reference to other applicable guidance (See FSH 1909.12, sec. 12), for a more detailed description of the plan model. Further discussion on the three parts of the plan model can be found in the technical guides, “Foundations of Forest Planning,” displayed on the plan model web page at http://www.fs.fed.us/emc/nfma/index.htm.

1921.11 – Required Components of a Plan (See 36 CFR 219.7 and FSH 1909.12, sec. 12 for additional direction.) The Responsible Official must ensure plans include the following components: desired conditions, objectives, guidelines, suitability of areas, and special areas (36 CFR 219.7(a)(2)).

1. Plan components may apply to all or part of the plan area.

2. Plan components should be realistic and achievable. They should reflect the Forest’s, Grassland’s, Prairie’s, or other comparable administrative unit’s anticipated budget levels, staffing, and capability for the plan period and not project outcomes or accomplishments based


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CHAPTER 1920 – LAND MANAGEMENT PLANNING on unrealistic budgets, staffing, or technical capability. Guidelines shall be attainable regardless of budget levels. Objectives should be designed within reasonable budget assumptions. Desired conditions may be long-term aspirations and, therefore, may only be achievable over many plan periods; however, they should be realistic.

3. Wording that describes meeting existing direction contained in directives, laws, or regulations should not be included as plan component, unless the plan component describes the specific approach the unit is using to meet this direction. Reference to such direction may be made in the plan if needed to address issues or deficiencies in the plan identified by the public.

1921.12 – Desired Conditions (See 36 CFR 219.7, and FSH 1909.12, sec. 12 for additional direction.)

1. The statement of desired conditions is the plan component that describes the ecological, economic, and social attributes that characterize or exemplify the outcome of land management.

2. Desired conditions developed by adjacent land managers, landowners, or communities should be considered and may be incorporated into the land management plan.

3. If desired conditions cannot be achieved, or are no longer valid or relevant to the long-term multiple-use management of the plan, the plan may be amended or revised.

4. Desired conditions may be the same as existing conditions.

1921.13 – Objectives (See 36 CFR 219.7, and FSH 1909.12, sec. 12 for additional direction.)

1. Plan objectives describe the focus of unit management during the plan period.

2. The number of and workload commitments of plan objectives should reflect the Forest’s, Grassland’s, Prairie’s, or other comparable administrative unit’s ability to achieve and monitor progress toward desired conditions.

3. Failure to achieve objectives by the time specified in the plan does not require a plan amendment or revision. If the objective is no longer appropriate or relevant to achievement of desired conditions, the Responsible Official may determine a plan amendment or revision is necessary.

4. Those desired conditions and objectives of highest priority will be identified as environmental management system (EMS) objectives and targets (FSH 1909.12, sec. 23).


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1921.14– Guidelines (See 36 CFR 219.7 and FSH 1909.12, sec. 12, for additional direction.) Plans shall include guidelines as part of the design criteria that help achieve the objectives and desired conditions. The language of guidelines and their organization in a plan should be constructed to convey the circumstances to which the guidelines apply. Compliance with a guideline must be within the agency’s discretion to control the relevant factors that make it possible to adhere to the requirement. Responsible Officials use guidelines to built operational controls into project and activity decisions, such as mitigating measures to reduce environmental impacts. These can be tracked using the environmental management system (FSH 1909.12, sec. 23). A Responsible Official may depart from guidelines when it is necessary to deal effectively with unusual situations. In such a case, the Responsible Official should:

1. Document a clear explanation and rationale for taking such exception to guidelines in the project or activity analysis and any decision document.

2. Recognize the expected purposes for which the guideline was developed, and provide assurance that any subsequently approved actions do not conflict with the purposes the guideline was intended to achieve.

1921.15 – Identification of Areas Generally Suitable for Various Land Uses (See 36 CFR secs. 219.7 and 219.12, and FSH 1909.12, sec. 12, for additional direction. See FSM 1921.17 for identification of lands not suitable for timber production.) Plans identify areas of each National Forest System unit as generally suitable for various uses. The Responsible Official shall not identify lands within the plan area as suitable for a certain use or uses if any of the following circumstances apply:

1. Law, regulation, Executive order, or agency resource management directives prohibit that use.

2. The use would result in substantial and permanent impairment of the productivity of the land or renewable resources, or

3. The use is incompatible with the desired conditions for the relevant portion of the plan area.


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1921.16 – Special Areas (See 36 CFR 219.7 and FSH 1909.12, sec. 12, for additional direction.) Special areas are areas within the National Forest System designated because of their unique or special characteristics. Land management plans may recognize special areas designated by statute or through a separate administrative process. Responsible Officials should provide appropriate plan components for existing designations and recommended designated areas. Special areas may be designated in three ways (36 CFR 294.1 and 219.7):

1. Responsible Officials recommend the designation or removal of those special areas that are statutorily designated (statutory process) to their supervisors.

2. Responsible Officials designate or remove special areas that fall within their responsibilities through approval of a land management plan, plan amendment, or plan revision, or

3. A separate administrative process is used to administratively designate or remove special areas that are not part of the planning or statutory process. For wilderness evaluation direction, see FSM 1923 and FSH 1909.12, chapter 70. For wild and scenic river evaluation direction, see FSM 1924 and FSH 1909.12, chapter 80. A land management plan may establish guidance for other types of areas. Exhibit 01 lists areas that may be considered, the designating official, and the location of further guidance.


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1921.16 – Exhibit 01

Special Areas – Designating Official and Guidance Cross-reference

Special Areas Designation Authority Additional Guidance Location

Statutorily Designated Areas

National Monument Responsible Official recommends Presidential Executive order or Congressional act designates

FSM 2371

National Recreation Area Responsible Official recommends Congressional act designates FSM 2371

National Scenic Area Responsible Official recommends Congressional act designates FSM 2371

National Trails National Scenic Trails National Historic Trails

Responsible Official recommends Congressional act designates FSM 2353.4

Wild and Scenic River Responsible Official recommends Congressional act designates

FSM 1924 & 2354 FSH 1909.12

Wilderness, or Wilderness Study Areas

Responsible Official recommends Congressional act designates

FSM 1923 & 2320 FSH 2409.19

Highway Systems, Interstate and National

Congressional act established process, Secretary of DOT approves 23 CFR 470

Responsible Official Designated Areas Botanical Area Responsible Official Designates FSM 2372 Geological Area Responsible Official Designates FSM 2372 Administratively Designated Areas

Experimental Forest or Range

Responsible Official recommends with concurrence of Station Director. Chief designates

FSM 4062

National Natural Landmark National Historic Landmark

Responsible Official recommends Secretary of Interior designates

FSM 2373 FSM 2363.1

Recreation Areas Responsible Official recommends Secretary of Agriculture designates

36 CFR 294.1 FSM 2360

Research Natural Area Responsible Official recommends, Regional Forester designates, with concurrence of Station Directors

FSM 4063

Scenic Byway - Forest Service Responsible Official recommends Chief designates None

Scenic Byway - National Responsible Official recommends Fed. Highway Admin. designates None

Significant Caves National Recreation Trails

Responsible Official recommends Regional Forester designates

36 CFR 290 FSM 2353.4


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CHAPTER 1920 – LAND MANAGEMENT PLANNING If the plan development, plan amendment, or plan revision makes preliminary recommendations that ultimately will require Congressional action, Washington Office review and approval is required prior to printing of final revised plans or final plan amendments. Examples of preliminary special area recommendations for Congressional action include additions to or deletions from the National Wilderness Preservation System, National Trails, National Recreation Areas; studies or changes to the National Wild and Scenic River System; and proposed adjustments in National Forest, Grassland, Prairie, or other comparable administrative unit boundaries. If Congressional action is not required, the Region has not specifically requested Washington Office review, and the Chief has not specified Washington Office review for other reasons, the revised plan or plan amendment may be printed and released.

1921.17 – National Forest Management Act Requirements

1921.17a – Vegetation Management Requirements The minimum specific management requirements to be met in carrying out site-specific projects and activities for the National Forest System (NFS) are set forth in this section. Under 16 U.S.C. 1604 (g)(3)(E), a Responsible Official may authorize site-specific projects and activities on NFS lands to harvest timber only where:

1. Soil, slope, or other watershed conditions will not be irreversibly damaged;

2. There is assurance that the lands can be adequately restocked within five years after final regeneration harvest;

3. Protection is provided for streams, streambanks, shorelines, lakes, wetlands, and other bodies of water from detrimental changes in water temperatures, blockages of water courses, and deposits of sediment where harvests are likely to seriously and adversely affect water conditions or fish habitat; and

4. The harvesting system to be used is not selected primarily because it will give the greatest dollar return or the greatest unit output of timber. A Responsible Official may authorize site-specific projects and activities on NFS lands using clearcutting, seed tree cutting, shelterwood cutting, and other cuts designed to regenerate an even-aged stand of timber as a cutting method only where:

1. For clearcutting, it is determined to be the optimum method; for other cutting methods it is determined to be appropriate and meets the objectives and requirements of the applicable land management plan (16 U.S.C. 1604 (g)(3)(F)(i));


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2. The interdisciplinary review has been completed and the potential environmental, biological, aesthetic, engineering, and economic impacts on each advertised sale area have been assessed, as well as the consistency of the sale with the multiple use of the general area (16 U.S.C. 1604 (g)(3)(F)(ii));

3. Cut blocks, patches, or strips are shaped and blended to the extent practicable with the natural terrain (16 U.S.C. 1604 (g)(3)(F)(iii));

4. These cuts are carried out according to the maximum size limits for areas to be cut in one harvest operation as required by 16 U.S.C. 1604 (g)(3)(F)(iv)). However, projects may be allowed to exceed the established limits after appropriate public notice and review by the responsible Forest Service officer one level above the Forest Service officer who normally would approve the harvest proposal. Furthermore, such limits shall not apply to the size of areas harvested because of natural catastrophic conditions such as fire, insect and disease attack, or windstorm.

5. Timber cuts are carried out in a manner consistent with the protection of soil, watershed, fish, wildlife, recreation, and esthetic resources, and the regeneration of the timber resource (16 U.S.C. 1604 (g)(3)(F)(v)).

6. Under 16 U.S.C. 1604 (m) even-aged stands of trees scheduled for regeneration harvest generally have reached culmination of mean annual increment of growth, unless the purpose of the timber cutting is excepted in the land management plan (FSM 1921.17f).

1921.17b – Land Management Plan Vegetation Management Guidance Land management plans should not repeat the management requirements at FSM 1921.17a. However, plan components shall be consistent with National Forest Management Act (NFMA) management requirements. A plan should include the following:

1. Plan components to ensure Responsible Officials meet vegetation management requirements (FSM 1921.17a) when authorizing projects and activities.

2. Information and guidance for Responsible Officials to consider when approving even-aged cutting methods to help determine if project and activities meet requirements of U.S.C. 1604 (g)(3)(F)).

3. Plan components to help design projects and activities to:

a. Protect streams, streambanks, shorelines, lakes, wetlands, and other bodies of water from detrimental changes in water temperatures, blockages of water courses, and deposits of sediment, when timber harvest is likely to seriously and adversely affect water conditions or fish habitat, where not already required by Federal or State law or regulations;


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b. Conduct even-even-aged regeneration harvest in a manner consistent with the protection of soil, watershed, fish, wildlife, recreation, and esthetic resources, and the regeneration of the timber resource (16 U.S.C. 1604 (g)(3)(F)(v)).

c. Shape cut blocks, patches, or strips to blend to the extent practicable with the natural terrain

1921.17c – Identification of Lands Not Suitable for Timber Production While many lands are generally suitable for timber harvest (FSM 1905) because timber may occur for multiple use purposes, a smaller set of lands are generally suitable for timber production (FSM 1905). Timber harvest is the removal of trees for wood fiber utilization and other purposes. While timber production is the purposeful growing, tending, harvesting, and regeneration of regulated crops of trees to be cut into logs, bolts, or other round sections for industrial or consumer use (36 CFR 219.16). In addition, timber production is managing land to provide commercial timber products on a regulated basis with planned, scheduled entries. When the Responsible Official determines that timber is an issue for plan development, plan amendment, or plan revision, the Responsible Official shall review lands within the plan area to identify their suitability for timber production. FSH 1909.12, chapter 60, provides detailed procedures to identify areas as not suitable for timber production. Identification of land as not suitable for timber production is not a final decision. Lands identified as not suitable for timber production in the plan document or set of documents shall be reviewed at least every 10 years, as needed, to respond to changed conditions in the plan area, or, as otherwise prescribed by law, to determine their suitability for timber production.

1921.17d – Estimating the Quantity of Timber That Can be Removed The Responsible Official shall limit the sale quantity from each National Forest to an amount equal to or less than the quantity that can be removed annually in perpetuity on a sustained-yield basis, except as provided in 16 U.S.C. 1611.

1. Estimate of the long-term sustained-yield capacity. During plan development or plan revision and, as appropriate, for plan amendment, the Responsible Official shall estimate the amount of timber that could be harvested annually in perpetuity on a sustained-yield basis from “land where timber harvest could occur.” This estimate shall be based on the yield of timber that could be harvested consistent with achievement of objectives and desired conditions of the plan (16 U.S.C 1611). The Responsible Official may combine one or more administrative units, or parts of administrative units, for estimating the amount of timber that could be harvested annually on a sustained-yield basis. See FSH 1909.12, chapter 60 for detail procedures.


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2. Limitation on timber sold. Except as provided at paragraph 3 of this section, within any decade, the Responsible Official must limit the quantity of timber sold during that decade from the “land where timber harvest could occur” to a quantity equal to or less than that estimated as provided in paragraph 1 of this section. This limit on timber sold for the plan decade:

a. Shall be displayed in the plan and

b. Represents an upper limit of potential sustainable timber harvest levels and is not a target or assurance of expected timber outputs.

3. Exceptions to limitations of timber sold. The Responsible Official may sell timber from areas that are substantially and adversely affected by fire, wind, or other events, or for which there is an imminent threat from insects or disease, and may either substitute such timber for timber that would otherwise be sold or, if not feasible, sell such timber over and above the limit established according to paragraph 2 of this section (16 U.S.C. 1611(b).).

4. Departures. A timber sale program quantity can be planned to depart from the long-term sustained-yield if such a planned departure is consistent with the multiple-use objectives of the land management plan and meets the requirements in 16 U.S.C. 1611 and in FSH 1909.12, section 64.3.

1921.17e – Guidance for Maximum Size Limits for Even-Aged Regeneration Harvest Responsible Officials may establish in supplements of these directives, maximum size limits for areas to be cut in one even-aged regeneration harvest operation according to geographic areas, forest types, or other suitable classifications (16 U.S.C. 1604 (g)(3)(F)(iv)). These supplements may be more restrictive than the direction in this chapter, but cannot relax the following restrictions:

1. Limits may not exceed 60 acres for the Douglas-fir forest type of California, Oregon, and Washington; 80 acres for the southern yellow pine types of Alabama, Arkansas, Georgia, Florida, Louisiana, Mississippi, North Carolina, South Carolina, Oklahoma, and Texas; 100 acres for the hemlock-Sitka spruce forest type of coastal Alaska; and 40 acres for all other forest types.

2. Established maximum size openings may be exceeded after appropriate public notice and review by the officer one level above the Responsible Official.

3. Maximum size openings do not apply to the size of areas harvested because of natural catastrophes such as, but not limited to, fire, insect and disease attack, or windstorm.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1921.17f – Guidance for Culmination of Mean Annual Increment of Growth and Even-Aged Regeneration Harvest NFMA requires that even-aged stands of trees scheduled for regeneration harvest during the planning period have generally reached culmination of mean annual increment of growth (16 U.S.C. 1604 (m)(1)). This requirement applies to regeneration harvest of even-aged stands on areas identified as generally suitable for timber harvest. The culmination of mean annual increment of growth requirement does not apply to:

1. Cutting for experimental or research purposes

2. Non-regeneration harvests, such as thinning or other stand improvement measures

3. Management of uneven-aged stands or to stands under uneven-aged silvicultural systems, or

4. Salvage or sanitation harvesting of timber stands. A plan must identify categories of activities that are exceptions to the culmination of mean annual increment if necessary to meet resource objectives such as wildlife habitat enhancement, visual enhancement, or riparian area improvement. Exceptions to the culmination of mean annual increment requirement and the reasons for these exceptions must be specifically disclosed during the public collaboration and participation process when developing, amending, or revising plans.

1921.17g – Timber Management Projections As required by the National Forest Management Act (16 U.S.C. 1604(e)(2), 16 U.S.C. 1604(f)(2), 16 U.S.C. 1611) and the limitation on timber harvest provided at FSM 1921.17, the plan must provide timber management projections. These projections describe forest management systems, harvesting levels, and procedures in light of multiple uses and must reflect proposed and possible actions, including the planned timber sale program and the proportion of probable methods of timber harvest on the unit. A plan amendment is not required to conform these projections to actual management experience; a plan may be administratively corrected to reflect updated projections as provided at 36 CFR 219.7(b).

1921.17h – Plan Guidance for Special Conditions When establishing guidance, the Responsible Official shall identify, consider, and address special conditions or situations that involve hazards to the various resources. See FSH 1909.12, section 12.32.


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1921.17i – Plan Guidance for Restocking Responsible Officials may authorize the harvesting of timber only when there is reasonable assurance the harvested lands can be adequately restocked within five years after final regeneration harvest. Adequate restocking may vary depending on the objectives and desired conditions for the area. Restocking is not required for lands harvested to create openings for fuel breaks and vistas, to prevent encroaching trees, or other similar purposes. When establishing land management plan guidance, the Responsible Official shall define “adequately restocked” based on plan desired conditions and objectives (FSM 1921.17a). The Responsible Official should consider ecological restoration, enhancement of recreation use, fuels reduction, management of cultural/heritage sites, range, salvage of dead or dying trees, sanitation harvesting, scenery improvement, timber production, wildlife habitat improvement, and other resource purposes.

1921.18 – Evaluation and Monitoring A plan shall include requirements for monitoring. This includes the establishment of performance measures and monitoring questions. The Responsible Official shall carry out management reviews to consider the results of evaluation and environmental management system (EMS) auditing (FSH 1909.12, sec. 23). The plan evaluation shall use the performance measures established by the monitoring requirements. See 36 CFR 219.6; FSM 1921.2; FSM 1921.5; and FSH 1909.12, section 13 for further direction.

1921.19 – Resource Integration Requirements Direction on Resource Integration Requirements is found in FSH 1909.12, section 14.

1921.2 – How Is a Plan Evaluated and Reviewed? The backbone of adaptive management for National Forest System planning and implementation is acting in response to results of monitoring, evaluation, and management review. The information made available through monitoring is evaluated for trends, which serve as a reference for future change. The Responsible Official uses:

1. Monitoring trends in desired conditions (see FSM 1921.5) of performance measures (FSM 1905) to track the degree to which the unit makes progress toward desired conditions and objectives. Performance measures are indicators used to quantify outcomes of desired conditions, goals, objectives, or outcomes.

2. Compliance monitoring to assess how well the unit meets legal and plan requirements (FSM 1921.5).


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3. Evaluations to identify changes in conditions and trends in the relevant social, economic, and ecological resources. (See FSM 1921.71, ex. 01.)

3. Assessments to identify trends in conditions across spatial and temporal scales.

4. Management reviews to decide whether changes are needed in the environmental management system or the plan. Effective plan evaluation fosters improved management and more informed plan development, amendment, or revision. Evaluations help identify the need to adjust the vision, strategies, or design criteria as conditions change. Management review may focus on the need to adjust on-the-ground management (operational review), adequacy of guidelines (scientific or technical review), and /or the need to adjust the strategy (objectives and suitability of areas). Exhibit 01 displays the adaptive cycle of planning. A detailed flowchart of the planning process is found in FSH 1909.12, section 21, exhibit 01.


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1921.2 – Exhibit 01

The Adaptive Cycle of Planning

Determine Need for Change

Amendment, or Revision

prior to approval

Plan Implementation

Objection Process

30 - Day Objection Period

Approval

Plan Monitoring &

Evaluation

National Direction, New Information, EMS information, and assessments

Revision or Amendment Process

Proposed Amendmentor Revision

Nee

d fo

r Cha

nge?

= Y

es

90

- Day

C

omm

ent

Perio

d Need for Change? = No

Management Review


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1921.21 – Management Review The Responsible Official should review the results of evaluations (36 CFR 219.6), the environmental management system (EMS), and other information to adapt plan components and plan implementation. Management review determines whether changes are needed. The Responsible Official has full discretion on deciding how and when to involve the public in providing input for management review as part of plan development, plan amendment, or plan revision. The Responsible Official shall involve the public in developing and updating the comprehensive evaluation report (36 CFR 219.6(a)(1)), establishing the components of the plan, and designing the monitoring program (36 CFR 219.9(a)). The Responsible Official has discretion on whether the public is involved with annual evaluation reports. Public notification of monitoring program changes, annual evaluation reports, and any other evaluation reports that do not result in a plan amendment or revision may be made in a manner deemed appropriate by the Responsible Official (36 CFR 219.9(b)(2)). Management reviews are required for both the environmental management system (EMS) and the land management planning process. These reviews should be synchronized and information for these reviews will be obtained through the annual monitoring and the EMS internal audit. The management review will also include periodic audits of the EMS itself. Through management reviews, the Forest Supervisor initiates actions for continual improvement (FSH 1909.12, sec. 23).

1921.22 – Evaluation Documentation Monitoring, evaluation, and management review actions are sequential steps in the continuous cycle of the planning process (36 CFR 219.6). The sequential actions are documented jointly. Documentation includes annual evaluation reports and comprehensive evaluation reports as follows:

1. The Responsible Official must prepare an annual evaluation report. FSH 1909.12, section 24 discusses the evaluation report content. The annual evaluation report is not intended to be a comprehensive compilation of all the monitoring and evaluation described in the plan. It may be limited to a few of the plan components. It should focus on the important results from the previous year’s monitoring and evaluation activities. If monitoring is not completely accomplished because of budget or staffing limitations, unexpected urgent conditions such as a severe fire season, or other reasons, document this in the annual report. The report should discuss the social, economic, and ecological elements of the desired conditions. Consider organizing the report using the Forest Service strategic plan goals and objectives.


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2. The Responsible Official must prepare a comprehensive evaluation report at least every five years (36 CFR 219.6(a)(1)). The comprehensive evaluation report addresses the entire plan area and describes conditions and trends of the social, economic, and ecological resources of the plan area. FSH 1909.12, section 24, discusses the evaluation report content.

1921.23 – Assessments Assessments (36 CFR 219.6(a)(1)(ii)) may be conducted when the Responsible Official determines the need for new or additional information. Generally, assessments incorporate existing information into a form useful to the plan analysis to be done. New additional information acquired through inventories, studies, modeling, or public involvement may be considered. Broad-scale assessments are generally above the geographic scale of a Forest, Grassland, Prairie, or other comparable administrative unit and provide information regarding social, economic, or ecological issues at that scale, sometimes crossing Forest Service administrative boundaries. They are not required unless the Responsible Official determines that an issue needs to be analyzed at that scale. Smaller-scale or local analyses may also be conducted where information gaps exist. Local analyses provide social, economic, or ecological information deemed appropriate by the Responsible Official. Local analyses may cover watersheds, ecological units, and social and economic units and may tier to or provide information to update a broad-scale assessment.

1921.3 – How is a Plan Amended or Revised? Exhibit 01 displays the normal sequence of actions under 36 CFR part 219 for plan development, plan amendment, or plan revision, except when a plan amendment is approved contemporaneously with approval of a project or activity and the amendment applies only to the project or activity, in which case 36 CFR part 215 or part 218, subpart A applies. Documentation of the analysis and process to amend or revise a plan shall be included in the evaluation report for that revision or amendment.


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1921.3 - Exhibit 01

Sequence of Actions for Plans, Plan Amendments, and Revisions

Process Public Notice Documents Collaboration 1. Ongoing evaluation1 and Management Review

Prepare summary of need for change

Ongoing collaboration

2. Initiating event Notice for initiating development of a plan, plan amendment or plan revision

Publish summary of need for change.

Responsible Official collaborates with the public to determine need for change.

3. Evaluate public comments, adjust need for change as appropriate, and develop changes to plan components and monitoring requirements, with collaborative process.

Prepare initial evaluation report, proposed plan, amendment or plan revision2, and monitoring program.

Responsible Official collaborates with the public to develop proposed plan and other documents.

4. Provide 90-day comment period.

Notice for a proposed plan, plan amendment, or plan revision

Publish initial evaluation report, proposed plan, plan amendment, or plan revision, and monitoring program

Work with public to improve understanding of documents.

5. Develop plan, plan amendment or plan revision. Respond to public comments in plan set of documents.

Update evaluation report, plan, plan amendment or plan revision and monitoring program

Responsible Official analyzes public comment and continues to collaborate with the public to develop proposed final plan revision and other documents.

6. Provide 30-day public objection process

Notice for a plan, plan amendment or plan revision prior to approval

Plan, plan amendment or plan revision, objection process information, Current evaluation report.

1 Responsible Official provides early and frequent opportunities for the public to collaborate in the continual improvement process. This includes developing and updating the comprehensive evaluation reports, establishing plan components, designing the monitoring program, and providing input for management review. 2 Plan, plan amendments or plan revisions all refer to content of the forest plan or changes to it. Publication means that both the changes to the plan and the unchanged plan guidance are published.


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1921.3 – Exhibit 01--Continued

Sequence of Actions for Plans, Plan Amendments, and Revisions

Process Public Notice Documents Collaboration 7. Reviewing Officer responds to objections.

Prepares response to objections.

Reviewing Officer may meet with objectors, public, or Responsible Official to resolve concerns.

8. Responsible Official complies with Reviewing Officer’s response. Responsible Official approves plan.

As appropriate, update evaluation report, plan, plan amendment or plan revision and monitoring program

9. Responsible Official approves plan, plan amendment or plan revision.

Notice for approval of a plan, plan amendment, or plan revision

Approval document, plan, amended plan or revised plan, current evaluation report.

Inform public of final plan

10. Continue collaborating, evaluating, and monitoring and carrying out the plan.

Public can participate in monitoring.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING As part of the collaborative process of amending or revising a plan, the Responsible Official may analyze options for changing one or more plan components. The purpose of these options is to compare and discuss the implications of possible changes to the plan. The Responsible Official may use an iterative approach to develop the proposed plan in which initial options for the plan are successively narrowed through discussions with the public. The Responsible Official determines the depth of analysis of options. A summary of consideration of options shall be included in the evaluation report. As a minimum, the current plan direction and the proposed changes to the plan will be analyzed and documented.

1921.31 – Need for Change The plan amendment or plan revision process begins when the Responsible Official decides there is a need for change. When conducting management reviews of the environmental management system (EMS) and plan the Responsible Official should base the need for change on evaluation reports, input historically received from the public, EMS information, and changes in conditions. Issues or opportunities arise when the public comments on the need for change. Refer to FSM 1905 for the definitions of “issue,” “opportunity,” and “need for change” used throughout FSM 1920. Issues or opportunities may surround whether the public believes there actually is a need for change as determined by the agency, or whether the agency agrees with any other need for change that the public feels should be addressed (36 CFR 219.9(b)(3)(i)). Once the Responsible Official decides whether to initiate a plan amendment or plan revision, issues may develop over the magnitude or process related to proposed plan amendment or plan revision.

1921.31a – Consideration of Issues and Opportunities During management review of the environmental management system (EMS) and plan the Responsible Official may use evaluations (or assessments) to identify need for change issues after determining that their relevance, appropriateness, and timeliness warrant further consideration in the amendment or revision process. The Responsible Official determines what method will be used to solicit meaningful public involvement about the need for change issues. (See FSH 1909.12, ch. 20 for more details on determining issues and opportunities influencing need for change.) The Responsible Official has the discretion to determine, at any time, whether to consider an issue or opportunity in the amendment or revision process further. (See FSH 1909.12, sec. 25.11 for more details on reasons for not considering an issue or opportunity further.)

1921.31b – The Use or Development of Relevant Information The Responsible Official may obtain new information relevant to the planning process through many sources and methods. The Responsible Official has the discretion to determine the appropriate source, scale, degree of scientific rigor, or other relevant considerations, including timeliness of the information, available staff, and reasonable costs incurred to obtain the information. The Responsible Official should use a three-step process for information collection:


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1. Identify, screen, and establish priorities for consideration of issues.

2. Identify analysis methods needed to address issues, before collecting information.

3. Identify, screen, and establish priorities for information collection based on selected analysis methods.

1921.31c – Review of Issues and Relevant Information to Determine the Need for Change The management review may lead to one of the following determinations by the Responsible Official:

1. The plan components remain valid for achieving the vision and no need for change is identified. The Responsible Official should document this in a report as part of the plan’s evaluation report and continue carrying out the plan, monitoring, and evaluating.

2. The plan is not valid in one or more components to achieving the vision, but amendment is not needed to correct the deficiency. The Responsible Official should proceed with the administrative corrections and continue plan implementation, monitoring, and evaluation. For administrative corrections and other changes not requiring a plan amendment, follow direction in 36 CFR 219.7(b).

3. The plan, in one or more components, is not valid for achieving the vision and administrative corrections will not correct the deficiency. The Responsible Official should identify the need for change and proceed to amendment or revision while continuing plan implementation, monitoring, and evaluation. At this point, if the Responsible Official finds that conditions within the plan area have significantly changed, a plan revision is called for (see FSM 1921.33). Alternatively, proceed to amend the plan and see FSM 1921.32.

1921.31d – Public Notice for Initiating Development of a Plan, Plan Amendment, or Plan Revision It is the responsibility of an interdisciplinary team to document the need for change and prepare a public notice for initiating plan amendment (36 CFR 219.9). Guidance on collaboration, public involvement, and notification is found in FSM 1921.6 and FSH 1909.12, chapter 30.

1921.32 – Amending a Land Management Plan

1921.32a – Need for Change and Plan Amendment If the Responsible Official determines that the need for change warrants amendment of the plan, the amendment shall conform to 36 CFR 219.7. Amendments (FSH 1909.12, sec. 25.3) shall address the need for change in one or more of the plan components described under 36 CFR 219.7(a).


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1921.32b – Amendment Through Project Decisions A plan may be amended through a site-specific project or activity decision (second-level decision), subject to 36 CFR 219.6(a)(2), 36 CFR 219.8(e)(3), and 36 CFR 219.13(a)(1).

1. The project or activity documentation serves as the evaluation report for a project or activity decision (36 CFR 219.6(a)(2)).

2. The Responsible Official shall determine the scope and applicability of the amendment.

1921.33 – Revising a Plan A plan revision shall be conducted in accordance with the requirements in 36 CFR part 219. See FSH 1909.12, section 25 for further details of plan revision.

1. Unless otherwise provided by law, all National Forest System (NFS) lands possessing wilderness characteristics shall be considered for recommendation as potential wilderness areas during plan development or plan revision (36 CFR 219.7(a)(5)(ii)). See FSM 1923 and FSH 1909.12, chapter 70.

2. A plan revision shall review lands to identify areas as generally suitable for timber production and lands as not suitable for timber production (36 CFR 219.12(a)(b) and FSM 1921.17). In identifying lands as not suitable for timber production, convert current plan suitability to the categories listed in FSH 1909.12, section 60.

3. The revision of a plan shall focus on the need for change and does not require revisiting all plan components.

1921.34 – Developing a New Plan Should Congress establish a new National Forest, Grassland, Prairie, or other comparable administrative unit of the National Forest System, follow direction described in 36 CFR 219.

1921.35 – Administrative Corrections and Additions The list of administrative corrections and additions found at 36 CFR 219.7(b) may be applied to plans developed or revised under the 1982 planning rule of 36 CFR part 219 during the transition period, except that changing plan monitoring requirements or management indicator species requires a plan amendment or plan revision. It is the responsibility of the Responsible Official to determine the need for and method of public notification of administrative corrections.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1921.4 – How is a Plan Implemented? See FSH 1909.12, section 11, exhibit 01 for examples of site-specific project or activity decisions related to plan components. See FSH 1909.12, section 29 for more detailed guidance on application of plan guidance to projects and activities. In carrying out the plan-monitoring program: The Responsible Official may develop a multi-year monitoring guide that describes protocols, databases, and a monitoring schedule (see FSM 1940). In implementing the land management plan-monitoring program, the Responsible Official shall develop an annual monitoring action or work plan to identify the specific monitoring tasks to be accomplished and the budget and personnel associated with those tasks. Desired conditions and objectives of highest priority shall be identified as the environmental management system (EMS) objectives and targets (FSM 1921.13). The annual monitoring work plan would set out tasks and responsibilities to make sure those EMS objectives and targets are met. Accomplish this task through the annual program of work and budget execution process. The necessary procedures, including protocols or associated data management, should be identified.

1921.5 – How is a Plan Monitored? A well-planned monitoring program provides answers to the following questions:

1. To what degree are conditions moving toward desired conditions?

2. To what degree are the desired conditions still valid and appropriate?

3. To what degree are plan objectives and guidelines being met?

4. To what degree are guidelines effective in achieving objectives? Responsible Officials use results of monitoring and evaluation to answer the monitoring questions, to determine the need to amend or revise plans or determine how they are carried out, and to form a basis for adaptively managing the National Forests, Grasslands, Prairie or other comparable administrative units. See FSH 1909.12, section 29 for more detailed guidance on application of plan guidance to projects and activities. One or more of the following types of monitoring is used to evaluate plan implementation, whether at the eco-regional scale, plan scale, or project scale:

1. Monitoring Trends in Desired Conditions. The focus is on assessing movement toward desired conditions of the plan. The way to assess these trends is through determining how well the plan objectives are being met.


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2. Compliance Monitoring. This assesses how well the plan was carried out. Requirements can come from the land management plan (for example, guidelines); laws, regulations, or directives; or the EMS (for example, the EMS audit).

1921.51 – Plan Monitoring Program The Responsible Official shall involve the public in designing the monitoring program (36 CFR 219.9(a)). The plan monitoring program shall identify key monitoring questions linked to selected plan desired conditions and objectives, and performance measures. The program does not need to address every desired condition. The monitoring program should observe key characteristics of operations or activities that can have an important impact on the environment. The program shall be designed to satisfy International Organization for Standardization requirements for selecting the environmental aspect to be monitored.

1921.52 – Monitoring Documentation (For a description of evaluation documentation, see FSM 1921.22.) Monitoring, evaluation, and management review actions are sequential steps in the continuous cycle of the planning process (36 CFR 219.6). The sequential actions are documented jointly. Documentation includes:

1. The land management plan should identify the monitoring questions so that they may be answered in the annual evaluation report, as appropriate, and the five-year comprehensive evaluation report.

2. The Responsible Official should house and manage monitoring data in corporate applications such as Natural Resource Information System (NRIS).

3. Implementation direction as discussed at FSM 1921.4.

1921.6 – Public Participation and Collaboration

1921.61 – Public Participation Public participation includes many activities that involve working with a variety of public and private agencies, organizations, and individuals. Public participation should be done in a collaborative manner. Among other activities, public participation shall address legal responsibilities within the collaborative framework and coordination responsibilities with Federal regulatory agencies (see FSM 1921.3, ex. 01).


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CHAPTER 1920 – LAND MANAGEMENT PLANNING Line officers and planning officials must fulfill a wide range of roles during the planning process. Agency representatives must clearly explain and document Forest Service roles and the desired products from each public participation phase or activity. Ensure efficient use of the public’s time and take conscious steps to build the public’s capacity to work toward identifying opportunities, resolving issues, and formulating solutions. FSM 1626 sets forth requirements for public participation initiatives. Planning teams may invite personnel from the Research and Development and State and Private Forestry Deputy Areas to assist with public participation efforts. Pre-involvement planning efforts may need to include such factors as the use of small group discussion formats and scheduling meetings at times and places that meet participant needs, including the needs of people with disabilities, minorities, and underserved populations.

1921.61a – Landowners and Communities Within the Landscapes of the Plan The Responsible Official should consider the context of social, economic, and ecological desires of other landowners and communities within the landscapes of the plan area when establishing plan components.

1921.61b – Privacy of Solicited Comments Received If individuals request their identities be kept confidential when submitting any comments, the Responsible Official shall advise the individuals that their comments and identities cannot be kept confidential, their submission is being returned, and if they choose, they may resubmit the comments without name and address for consideration as anonymous. Comments received in response to solicitation, including names and addresses of those who comment, must be considered part of the public record and shall be available for public inspection. Comments submitted anonymously shall be accepted and considered; however, those who submit anonymous comments would have to demonstrate some other form of participation in the planning process to have standing to submit objections to the plan, plan amendment, or plan revision.

1921.62 – Collaboration Collaboration is people working together and sharing knowledge and resources to achieve desired conditions for Forests, Grasslands, Prairies, or other comparable administrative units, and communities. Collaboration applies throughout the planning process, encompasses a wide range of external and internal relationships, and entails formal and informal facilitation processes. Forest Service collaboration is about working with others on land, resource, and community issues of mutual concern. Collaborative planning is a process where people cooperate with one another, work with other public and private organizations, and engage communities and citizens toward building common understanding while developing trust, sharing resources, exploring solutions, developing options, and forming partnerships.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING Collaboration is the primary method for surfacing and addressing issues and building a collective vision for the plan area. A collaborative approach to planning is intended to ensure as much participation as possible while completing the work in an appropriate amount of time and producing the best decision possible. A collaborative approach to planning is not intended to resolve all problems brought up during a planning effort. Collaboration does not guarantee that every issue will be resolved; rather, the intent is to use it as a vehicle to bring individuals, community representatives, agencies, and organizations together to identify issues and explore solutions that reflect participants’ range of perspectives relative to the planning process and to plan components. A consequence of collaboration can be the building of community, Tribal, and interagency capacity to do similar and better work in the future. Collaboration should be viewed as serving the multiple needs of all involved, subject to applicable laws. The Responsible Official must conduct collaborative and participatory planning processes that are fair, meaningful, and open to persons with diverse opinions. Collaborative activities should focus on meaningful discussion of planning issues. Work towards consensus on as many issues as possible. The Responsible Official may use an iterative approach in development of the plan, amendment, or revision in which options for the plan are successively narrowed (36 CFR 219.7(a)(6)). Planning information shall be made available during these processes to the extent allowed by law. Collaborative activities may include seeking out individuals and organizations that can provide information about:

1. Current and historic public uses in an assessment or plan area.

2. The location of unique and sensitive resources and values.

3. Cultural practices related to issues in the plan area.

4. Scientific experts and other knowledgeable persons, as appropriate. When collaborative efforts are ineffective, the Responsible Official may choose to move forward with the planning processes without further collaboration. Individuals or groups that participate or choose not to participate in a collaborative process are still entitled to full input through legally required public review and comment processes.

1921.63 – Providing Opportunities for Participation The Responsible Official may consider formal or informal mechanisms for participation to include briefing sessions, listening sessions, or any other activity that might be made available to interested individuals and organizations.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING The environmental management system (EMS) documents shall be part of the plan set of documents and, therefore, open to the public. For EMS, the Responsible Official determines the method of public participation (FSH 1909.12, sec. 23).

1921.63a – Federal, State, Local and Tribal Governments The Responsible Official shall provide opportunities for coordination with State, local, other Federal agencies, and Tribal governments. If appropriate, use FSM 1580 and FSM 1563 for establishing proper agreements, such as memoranda of understanding, interagency agreements, and cooperative agreements with other Federal agencies, State and local governments, American Indian tribes, and Alaska Natives.

1921.63b – American Indian Tribes and Alaska Natives The Forest Service shall honor the government-to-government relationship that the Federal Government has with federally recognized Indian Tribes. As provided for in various laws and regulations, the agency will consult with American Indian Tribal governments to seek their input in land management planning and decisionmaking (FSM 1563). Agency officials should reach out and consult with American Indian Tribes and Alaska Natives (FSM 1563) to:

1. Address Tribal concerns and suggestions during the process to accommodate the exercise of treaty reserved or Executive order rights; and

2. Coordinate National Forest System land management plans with the approved Tribal land resource programs (FLPMA, sec. 202(b)).

1921.63c – Private Landowners The Responsible Official shall seek to involve those who have control or authority over lands adjacent to or within the proclaimed boundaries of National Forests, Grasslands, Prairie, or other comparable administrative units to identify:

1. Local knowledge.

2. Potential actions and partnership activities.

3. Potential conditions and activities on the adjacent lands that may affect management of National Forest System (NFS) lands, or vice versa.

4. Issues or opportunities affecting need for change.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING In addition, planning teams should focus efforts on identifying and engaging both surface and subsurface private landowners whose lands are within or adjacent to NFS lands, as well as those individuals and organizations authorized to use NFS lands.

1921.7 – Sustainability The overall goal of managing the National Forest System (NFS) is to sustain in perpetuity the productivity of the land and the multiple uses of its renewable resources in a manner that best meets the needs of present and future generations. Maintaining or restoring the health of the land enables the NFS to provide a sustainable flow of uses, values, benefits, products, services, and visitor opportunities. Because social, economic, and ecological systems are complex and ever-changing, sustainability cannot be established as a specific condition for a particular place and time. Rather, current conditions and trends over time are used to gauge progress in achieving long-term social, economic, and ecological goals that indicate sustainability. Sustainable systems provide:

1. Goods that are harvested and traded in the local economy.

2. Beneficial ecological attributes such as clean water and air, resilience to disturbances, and diverse biota.

3. Desirable landscapes for recreation and esthetics. Social and economic conditions affect, and are affected by, ecological conditions. Similarly, ecological conditions affect, and are affected by social and economic conditions. For example, livestock grazing can be described as an economic use (social and economic condition) that affects grassland and shrubland (ecological) conditions. Vegetation composition and structure (ecological condition) affect scenic resources and recreational settings (social and economic conditions). The interconnected nature of social, economic, and ecological conditions is a key consideration in the development of a plan, including the plan option development process and trend analysis. The planning framework contributes to social, economic, and ecological sustainability in the plan area. However, the Responsible Official is limited by agency authorities and the capability of the plan area, and therefore must work in partnership with communities to identify other needed contributions to the sustainability of social, economic, and ecological systems.

1921.71 – Sustainability Evaluation Overview Sustainability has three interrelated and interdependent elements: social, economic, and ecological. The Responsible Official shall identify and evaluate key social, economic, and ecological considerations for the plan area. The evaluation must integrate the elements of sustainability (ex. 01) and discuss following key considerations in the plan set of documents:


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1. Performance measures.

2. Current conditions and trends.

3. Need for change (FSM 1921.72). In assessing progress of management under the current plan toward desired conditions and evaluating the need to change plan components, use, as appropriate, the outline presented in exhibit 01. The relationships among social, economic, and ecological sustainability elements should be defined and addressed through evaluation of existing conditions and trends. As appropriate, existing conditions and trends should be compared to historic conditions and trends. The evaluations are addressed in further detail in sections 1921.72 through 1921.78. Further direction for social and economic sustainability evaluation is found in FSH 1909.12, section 42, and direction for the ecological sustainability evaluation in FSH 1909.12, section 43. The use or development of relevant information for sustainability shall be consistent with FSM 1921.31b. Social, economic, and ecological evaluations must take into account the best available and relevant science (FSM 1921.8). Evaluations prepared by other government agencies, academic institutions, research organizations, or other groups may be reviewed for applicability and the best available science. These documents should be referenced and used as appropriate. Performance measures are used as the basis for plan monitoring in the development or adjustment of plan components and in the trends analysis (FSH 1909.12, sec. 12). Performance measures for sustainability are initially drawn from existing plans and may be modified based on the results of the sustainability evaluation. Performance measures must be included in the sustainability evaluation, but other information, data, and characteristics may also be considered. Reasons for final selection of performance measures must be documented. Performance measures may be based on national criteria and indicators such as the strategic plan performance measures.


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1921.71 – Exhibit 01

Evaluating the Elements of Sustainability Ecological Element

Evaluation Component

Social and Economic Element

Ecosystem Diversity Species Diversity

1. Key Considerations

Social and economic elements: • Uses • Values • Products • Services • Opportunities • Benefits • Vision/niche

Ecosystem Characteristics:

• Structure • Composition • Process

Federally-listed species, Species-of-concern, (consider species groups or surrogate groups of species for efficiency), Species-of-interest

2. Conditions and Trends

• Past, present and projected future conditions and trends

• Contributions to local communities and economies

• Range of Variation or other ecological reference

• Historical conditions

• Current conditions • Status relative to

ecological reference and historical conditions

• Risks

Species characteristics: • Taxonomy • Distribution • Abundance • Demographics and

population • Diversity • Habitat requirements • Ecological functions • Biological interactions • Limiting factors • Risk factors

3. Need For Change – Review current Plan in the context of:

(See FSH 1909.12 sec. 24)

Collaboratively defined plan components that contribute to social and economic elements of sustainability

Plan components contribute to the long-term maintenance or restoration of the characteristics of ecosystem diversity in the plan area.

Plan components that supplements ecosystem diversity and contributes to: conserving listed species, supporting self-sustaining populations of species-of-concern, and supporting species-of-interest, as appropriate within the limits of authority and capability of the plan area.


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1921.72 – Determining Need for Change Evaluation of progress towards desired conditions is used both to assess the need for change to plan components (36 CFR 219.7(a)(2)) and to assure that management activities that implement plan guidance will contribute to the overall goals as described at 36 CFR 219.10(a) and (b). An initial evaluation of a plan’s progress towards desired conditions can help the Responsible Official determine the scope of a plan revision or amendment by assessing whether current guidance sufficiently contributes to those overall goals (see FSH 1909.12, sec.24). Once the Responsible Official determines the scope of a plan revision or amendment, analyses are conducted to allow the Responsible Official to determine the level of contribution to overall goals (36 CFR 219.10(a) and (b)).

1921.73 – Social and Economic Evaluation

1921.73a – Social and Economic Desired Conditions The overall goal of the social and economic elements of sustainability is to contribute to sustaining social and economic systems in the vicinity of the plan area (36 CFR 219.10(a)). Social and economic elements cover a variety of topics that result from and are impacted by land management activities. An interdisciplinary, collaborative approach should be used to identify social and economic desired conditions that interested parties want to see sustained and to identify benefits that accrue from National Forest System (NFS) lands. Performance measures for these desired conditions and their associated objectives also can be developed collaboratively. The social and economic evaluation shall include condition and trend information for the performance measures. The role that the Forest Service plays in the social and economic conditions, and the contribution that NFS lands make towards social and economic sustainability should be identified. Document the conditions and trends at the State, Regional, or local level relevant to desired conditions and associated objectives.

1921.73b – Evaluation of Compliance With Legal Requirements for Civil Rights and Environmental Justice The Responsible Official shall determine and document if a civil rights impact assessment (CRIA) and corresponding statement of finding needs to be prepared for plan approval in accordance with FSM 1730.4. The consideration of any civil rights impacts and any disproportionate negative impacts of plan approval to minority or low-income populations shall be considered early in the planning process and, if warranted, included throughout the process. Further direction on CRIA responsibilities and procedures is found at FSH 1709.11, chapter 30.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING Any environmental justice issues associated with plan approval should be examined as directed by Department Regulation 5600-2 and Council on Environmental Quality publication titled “Environmental Justice - Guidance Under the National Environmental Policy Act,” located at http://ceq.eh.doe.gov/nepa/regs/ej/justice.pdf. The documentation of civil rights and environmental justice issues, and supporting analysis as necessary, should be documented within the evaluation report prepared for a plan, plan amendment, or plan revision. If warranted by the CRIA and environmental justice conclusions, monitoring of CRIA and environmental justice may be incorporated into the plan, plan amendment, or plan revision as appropriate according to direction found in FSM 1730, DR 4300-2, and DR 5600.

1921.74 – Ecological Evaluation The overall goal of the ecological element of sustainability is to provide a framework to contribute to sustaining native ecological systems by providing ecological conditions to support diversity of native plant and animal species in the plan area (36 CFR 219.10(b)). The Responsible Official shall consider the limits of agency authorities and the capability of the plan area when developing plan guidance for ecological sustainability. Planning for ecological sustainability is accomplished through a hierarchical and iterative approach that analyzes and provides guidance for ecosystem diversity and species diversity. Management for ecosystem diversity provides for biological communities, associated physical features, and, where feasible, natural disturbance processes that are the components of native ecosystems. Management for species diversity provides for appropriate ecological conditions to contribute to: conserving federally-listed species, supporting self-sustaining populations of species-of-concern, and supporting species-of-interest, as deemed appropriate by the Responsible Official consistent with the limits of agency authorities, the capability of the plan area, and overall multiple use objectives. The intent of this hierarchical approach is to conserve communities and species by developing effective guidance for ecosystem diversity and reduce the need for species-specific analysis and guidance, thus improving planning efficiency. It is recognized that species diversity is a component of ecosystem diversity. Performance measures for ecological sustainability may include both ecosystem and species characteristics, and must be considered in the ecological evaluation. The rigor of analysis used in evaluating ecosystem and species diversity should be proportional to the:


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1. Level of risk to ecosystems and species.

2. The degree to which current projected conditions along with present and proposed future actions in the plan area influence risk.

3. Complexity of ecosystems, species life histories, and their interaction.

4. Uncertainty of outcomes.

5. Cost of achieving potential desired conditions, objectives, and guidelines for ecosystem and species diversity. An initial evaluation to determine an appropriate level of analysis should consider:

1. Abundance, distribution, and condition of selected characteristics of ecosystem diversity compared to their range of variation under historical disturbance regimes (or other ecological reference) (see FSM 1921.74(a)).

2. Abundance, distribution, and trends of species-of-concern compared to the range of variation.

3. Abundance, distribution, and trends of species of interest compared to plan goals and objectives.

4. Changes in current ecological conditions as compared to historical conditions resulting from past management, disturbance events, successional processes, introduced species, and other relevant changes.

5. The projected future status of ecological conditions that will result from management activities, successional processes, disturbance events, and other reasonably foreseeable events. More rigorous analysis is appropriate where risks to ecosystems and species within the authority of the Forest Service are high, or where complexity, uncertainty, or costs of potential management are high. Less rigorous analysis may be used where risks, complexity, uncertainty, and costs are lower. In all situations, analyses must take into account the best available science (FSM 1921.8) and be logical, repeatable, and well documented. The product of the ecological evaluation is a determination of those components of ecological systems that are functioning in a way that contributes to resiliency and diversity over time, and those components for which adjustment may be required. The role that the Forest Service plays in contributing to ecological sustainability, and opportunities for collaborative efforts, should be identified.


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1921.74a – Ecosystem Diversity Ecosystem characteristics include the structure, composition, and processes of the biological and physical resources in the plan area. Additional characteristics are major vegetation types and their successional stages, rare communities, soil and air resources, water quality, stream flows, streambanks, shorelines, lakes, wetlands, riparian areas, floodplains, and the principal ecological processes characteristic of the area. The Responsible Official shall select ecosystem characteristics that will be the focus of evaluation and development of plan guidance. When the Responsible Official develops, amends, or revises a plan, ecosystem characteristics should be identified through examination and consideration of annual evaluation reports, best available science, collaborative activities, and other means. For each ecosystem characteristic selected, the following questions should be considered to describe current, past, and potential future conditions:

1. What is the appropriate scale(s) for evaluation for each ecosystem characteristic?

2. What were historical conditions and the range of variation of the ecosystem characteristic, to the extent that they can be determined? If the range of variation approach is not used, another scientifically valid method of establishing an ecological reference condition must be used against which to compare current conditions and trends.

3. What are the current conditions of the ecosystem characteristics?

4. What is the current and projected future status of the ecosystem characteristics relative to the range of variation, or other scientifically established point of comparison?

5. What are the current and projected future risks to sustainability of characteristics of ecosystem diversity, and what management actions would contribute to their sustainability?

6. What is the potential contribution of National Forest System (NFS) lands to ecological sustainability of the larger landscape?

1921.74b – Species Diversity Federally-listed species, species-of-concern, and species-of-interest shall be identified for the species diversity evaluation. Species-of-concern are species for which the Responsible Official determines that management actions may be necessary to prevent listing under the Endangered Species Act. Species-of-interest are species for which the Responsible Official determines that


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CHAPTER 1920 – LAND MANAGEMENT PLANNING management actions may be necessary or desirable to achieve ecological or other multiple use objectives (36 CFR 219.16). The Responsible Official shall identify federally listed species, species-of-concern, and species-of-interest for the plan area using procedures in FSH 1909.12, section 43. Identified species should be those for which valid, existing information is sufficient to indicate risk levels. When federally listed species, species-of-concern, and species-of-interest have been identified, consider if species groups or surrogate species can be used to make analysis and development of plan guidance more efficient. See FSH 1909.12, section 43, for recommendations for species grouping and for identifying surrogate species. For federally listed species, species-of-concern, and species-of-interest, existing information should be assessed to describe the following, as appropriate and feasible:

1. Current taxonomy.

2. Distribution, including past and current trends.

3. Abundance, including past and current trends.

4. Demographics, population trends, and natural fluctuations.

5. Diversity; phenotypic, genetic, and ecological.

6. Habitat requirements at appropriate spatial scales.

7. Habitat amount, distribution, and trends.

8. Ecological function.

9. Key biological interactions.

10. Limiting factors, such as the location of the species within its range

11. Risk factors including agency authorities, budget, land ownership patterns, and various human disturbances (such as dams, roads, trails, and so forth).

12. Opportunities to restore ecological conditions for the species.

13. Ecological conditions that would contribute to supporting self-sustaining populations.


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1921.75 – Plan Option Development If the Responsible Official decides development of plan options are necessary to address plan issues, plan options should be based on the results of the social and economic evaluation, the ecosystem and species diversity evaluations, the results of the collaborative activities, current knowledge, and the best available science. The integration of these information sources should guide the iterative approach in development of the proposed plan with the aim of identifying a narrow range of potential outcomes and outputs for a plan area. The options may differ in the plan components that address social, economic, and ecological sustainability; the rate at which progress is made toward desired conditions; and methods used to move toward desired conditions. The plan document or set of documents must record the analysis for the social, economic, and ecologic systems and trends relevant to the key considerations being addressed in options.

1. Social and economic systems. Options to the existing plan should be designed to contribute to social and economic sustainability (36 CFR 219.10(a)).

2. Ecological systems. Options to the existing plan should be designed to contribute to ecological sustainability. Plan components must establish a framework to provide for ecosystem diversity in the plan area as well as species diversity in the plan area. Species diversity focuses on providing appropriate ecological conditions to contribute to: conserving federally-listed species, supporting self-sustaining populations of species-of-concern, and supporting species-of-interest, as deemed appropriate by the Responsible Official consistent with the limits of agency authorities, the capability of the plan area, and overall multiple use objectives. When developing, amending, or revising the land management plan, the Responsible Official should, at a minimum, consider the current plan direction and the proposed change, but may decide to develop additional options. Proposed changes to plan components to improve management of federally listed species or recognize conservation strategies or habitat conservation plans may not require additional options (FSH 1909.12, sec. 25.32).

1921.76 – Trend Analysis Trend analysis is conducted as part of the comprehensive evaluation for plan development and plan revision (36 CFR 219.6(a)(1), FSH 1909.12, sec. 24). The extent of trend analysis for any options considered is at the discretion of the Responsible Official. Trend analysis evaluates past, present, and projected future changes in social, economic, and ecological resources that contribute to sustainability in the plan area over time and space. Trend analysis should be performed to show the likely outcome of continuing existing plan direction (36 CFR 219.6(a)(1)) and for the changes proposed for the plan. This analysis should consider proposed and probable actions that may occur under the existing plan or the proposed plan as appropriate. The results of these trend analyses should be documented in the evaluation report.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1921.77 – Plan Components Desired conditions and objectives for ecological conditions (at the ecosystem and species level) should be integrated with those for social and economic elements and must be reflected in the components of the plan. Rationale for plan approval must be disclosed in the plan approval document (36 CFR 219.7(c)), based on the integrated analysis of ecosystem diversity, species diversity, and social and economic sustainability.

1921.77a – Sustaining Social and Economic Systems Based on the evaluation of the social and economic contributions of National Forest System lands (36 CFR 219.10a) the Responsible Official may include plan components that address:

1. Contributions to the social and economic well-being of communities, regions, and the Nation.

2. Provision of uses, values, products, services, visitor opportunities, and benefits the public wants to see sustained.

1921.77b – Ecosystem Diversity The understanding derived from the analysis of ecosystem diversity, and evaluation of the need for change to the current plan, should be used to develop plan components that contribute to the long-term maintenance or restoration of the selected characteristics of ecosystem diversity that will support a diversity of native plant and animal species in the plan area over the long term. Within the scope of the need for change identified for the plan area, to move toward desired conditions, the Responsible Official should develop plan guidance that addresses, as appropriate:

1. Major vegetation types and their successional stages.

2. Dominant disturbance regimes for the plan area.

3. Ecosystems and specialized habitats that are rare or otherwise at risk.

4. Invasive species.

5. Soil resources and soil productivity.

6. Air resources.

7. Water quality, stream, and other natural water flows, stream and lake morphology, wetlands, riparian areas, and floodplains. Other characteristics of ecosystem diversity highlighted in the analysis should be addressed as appropriate.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1921.77c – Species Diversity Development of provisions for species diversity should take into account the conditions that are likely to result from the provisions in the plan components for ecosystem diversity, vegetative successional processes, disturbance patterns, and opportunities to maintain or restore ecological conditions for species. The difference between the conditions provided by the plan component for ecosystem diversity and the species’ needs determined in the species diversity evaluation may result in additional provisions in the plan components to address needs of listed species, species-of-concern, and species-of-interest. The plan components must contribute to conserving federally listed species, supporting self-sustaining populations of species-of-concern, and supporting species-of-interest, as deemed appropriate by the Responsible Official consistent with the limits of agency authorities, the capability of the plan area, and overall multiple-use objectives. The plan for Federally listed species must comply with requirements and procedures of the Endangered Species Act and should implement approved recovery plans. The plan for species-of-concern must provide for habitats that are of sufficient quality, distribution, and abundance to allow species populations to be well distributed and interactive, within the bounds of the life history, distribution, and natural population fluctuations of the species and the capability of the landscape, as described in the following points, across the plan area. When a plan area encompasses:

1. The entire range of a species, the plan should contribute to ecological conditions for self-sustaining populations of the species throughout that range.

2. One or more naturally disjunct and self-sustaining populations of a species, the plan should provide ecological conditions that contribute to supporting each population over time.

3. Only a part of a population, the plan should provide ecological conditions that contribute to supporting that population throughout its range (within the bounds of the life history and distribution of the species and the capability of the landscape).

4. Where environmental conditions needed to support a species have been severely degraded on National Forest System lands so that it is technically infeasible to restore ecological conditions that would contribute to supporting self-sustaining populations, the plan should contribute to the conditions needed for self-sustaining populations to the degree practicable. The plan for species-of-interest also should be based on the above concepts to the degree determined appropriate by the Responsible Official.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1921.78 – Monitoring The Responsible Official shall monitor trends in performance measures related to plan implementation or outcomes related to the social, economic, or ecological conditions. These trends should be evaluated for contributions to sustainability by comparing them to the plan’s desired conditions and any projected trends from evaluations. This information may be relevant to the annual or five-year evaluation report. Evaluations may consider new information concerning performance measures that were not available during preparation of the plan.

1921.8 – The Role of Science Science refers to knowledge, information, concepts, and theories based on organized systems of facts that have been learned from study, observation, and experience. Science is initially brought into the planning process through various evaluations and other information gathering and synthesis processes. The use of science in planning provides the Responsible Official with knowledge, methods, and expert review in order to make an informed decision.

1921.81 – Best Available Science To take into account the best available science, the Responsible Official shall evaluate the interpretation and application of science used in the planning process. Perform the following to take into account the best available science in planning (36 CFR 219.11):

1. Conduct a timely and substantive review of available information in published peer-reviewed and other quality-controlled literature, studies, or reports.

2. Document for future indexing the sources of information reviewed.

3. Synthesize the relevant information for use in the planning process.

4. Assess the quality of the information used for objectivity, utility, relevance, and integrity. The level of effort of the information review should be commensurate with the scale of the planning activity involved, the issues identified in the planning process, and the cost of information collection.

1921.81a – Uncertainty in Science Uncertainty in science is important to acknowledge if the uncertainty was part of the rationale of the planning process or approval.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING New scientific information may:

1. Create additional questions about the condition of social, economic, and ecological processes occurring on Forests, Grasslands, Prairies or other comparable administrative units.

2. Only partially answer the question that it sought to resolve.

3. Contradict previously accepted theories on assessing conditions or processes. Taking into account the best available science may reduce the uncertainty; however, some level of uncertainty will continue to exist within all phases of the planning process, even when the Responsible Official documents that science was appropriately interpreted and applied. This uncertainty may be addressed through different approaches. These include:

1. A description of the rationale for assumptions and how these assumptions influence the planning process.

2. A discussion of temporal aspects of uncertainty where more distant past or future projections of trends are likely to have greater uncertainty.

3. A description how the planning framework is designed to respond to uncertainty, including, such elements as monitoring program and evaluation requirements. The evaluation and disclosure of uncertainty shall be documented by the Responsible Official commensurate with the importance of the uncertainties in making decisions on the plan components.

1921.81b – Risk in Plan Approval There is inherent risk in making an approval based on speculation of future conditions for systems as complex as forest, grassland, and prairie ecosystems. Regardless of the scientific basis for such an approval, there are unknown or stochastic influences that can occur which were not modeled in the original application of science. The application of science in the planning process should include a risk assessment, including confidence of data for the appropriate plan components. When the Responsible Official is assessing the risk associated with the plan components, these sources should be considered:

1. Incomplete knowledge of the systems and processes driving the systems.

2. Trade-off between resources. For example, while trade-offs between resources are value choices, the Responsible Official is guided by law, policy, regulation, science, and public input. An action that benefits one resource may be detrimental to another.


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3. Short-term detrimental effects may lead to long-term gains for the same resource. For example, thinning a stand of stagnated small diameter timber in a riparian area may lead to higher water temperatures and loss of organic matter in a fish-bearing stream over the short term. Over the long term, the stand will grow into taller trees with larger diameters that will provide more shade and large organic debris in the same fish-bearing stream. Any substantial risks associated with the approval of the plan must be disclosed in the plan document or set of documents. Substantial risk is that risk that may cause the loss or considerable deterioration of specific elements of sustainability. Based on scientifically informed reasoning and judgment, the Responsible Official shall determine situations or conditions where substantive risk is likely.

1921.82 – Consideration and Application of Science The Responsible Official shall document that science was appropriately interpreted and applied in the planning process (36 CFR 219.11(a)(4)). To accomplish this, the Responsible Official may use a combination of independent peer review, a science advisory board, or other appropriate means. Peer review is appropriate for evaluating the quality of the underlying science and for scientific assessments. A scientific assessment is an evaluation of a body of scientific or technical knowledge that typically synthesizes multiple factual inputs, data, models, assumptions, and/or best professional judgment to bridge uncertainties in the available information. Peer reviews of “influential scientific information” or “highly influential scientific assessments” must follow the guidelines laid out in The Office of Management and Budget’s “ Information Quality Bulletin for Peer Review,” available at http://www.whitehouse.gov/omb/memoranda/fy2005/m05-03.pdf (issued on December 16, 2004). Guidelines for determining whether the scientific information is “influential” can be found in OMB’s government-wide Information Quality Guidelines as well as USDA’s Information Quality Guidelines http://www.ocio.usda.gov/qi_guide/background.html. “Influential” information “affects a broad range of parties as well as has an intense impact.” Peer reviews will typically be done for scientific and technical information, including scientific assessments, used in the preparation of plans. Before plans are finally approved, they must also be reviewed to provide the basis for documentation that scientific information have appropriately been taken into account in the decision to approve the plan. The latter review (which may be accomplished through a variety of different methods) differs from peer review is that it has a policy component. Specifically, this step in the process is designed to determine whether the available science was appropriately interpreted and applied in the planning process. The Responsible Official shall document the outcome of the review regarding the appropriate interpretation and application of science in the plan approval document. How the best available science was taken into account may be evaluated at any point during the planning process commensurate with the scientific uncertainty, perceived risk, and importance of the issue to the plan components under consideration. Reviewers of the consideration and


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CHAPTER 1920 – LAND MANAGEMENT PLANNING application of science should be knowledgeable of the information used in the planning effort and of the synthesis and assessment process, and where the issues are controversial, reflect a balance of the relevant scientific perspectives. These reviewers should not have been involved in the development of the planning documents under review. A science advisory board may be created by the Responsible Official to conduct the review. Reviews, either by peer or by a board, may be conducted by personnel on another unit of the National Forest System (NFS); from other Federal, State, Tribal, or local agencies; by college or university faculty members or graduate students; or by Forest Service research scientists. Reviewers should be made aware in advance of the extent to which their comments would be disclosed and attributed. The Responsible Official may request the assistance or participation of a Forest Service Research and Development administrator in review of science consideration and application. Research and Development officials may provide assistance or participate in reviews of science consideration when requested by the Responsible Official. The following Forest Service publications describe one method of reviewing the consideration and application of science in the planning process:

1. U.S. Department of Agriculture, Forest Service. 2003. Science Consistency Reviews: A Primer for Application FS-771. Washington DC: U.S. Department of Agriculture, Forest Service. 9 p.

2. U.S. Department of Agriculture, Forest Service. 2003. The Science Consistency Review: A Tool to Evaluate the Use of Scientific Information in Land Management Decision Making. FS-772. Washington DC: U.S. Department of Agriculture, Forest Service. 32 p.

1921.83 – The Role of Science in Assessments, Analyses, and Monitoring In addition to the regulatory direction provided at 36 CFR 219.11, the Responsible Official should use the following guidelines when considering the role of science and integrating it into assessments, analyses, and monitoring:

1. Review, synthesize, and assess scientific information commensurate with the scale of the assessment being undertaken (FSM 1921.23) when assessments and analyses are conducted.

2. On those occasions when the complexity of the issues involved is clearly beyond the capabilities of the Responsible Official’s technical resource pool, the need for additional resources should be described in writing to the next higher official to request additional support.

3. Systematically apply a standardized set of procedures and methods. When appropriate, implement monitoring (FSM 1921.5) to establish baseline and trend information for the resources involved in answering specific monitoring questions.


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1921.84 – Documentation To ensure effective and efficient science interpretation and application, the Responsible Official should identify, maintain, and index a documentation trail of the sources of scientific information. This documentation is an integral part of the planning process from its initiation through a final approval. An independent peer review, science advisory board or other review method (36 CFR 219.11(b)) should be able to refer to the indexed documentation at any point in the planning process to determine how and what scientific information was acquired, analyzed, and used.

1921.9 – Environmental Management System Requirements An environmental management system (EMS) shall be established for each National Forest System (NFS) unit. The EMS shall conform to the consensus standard developed by the International Organization for Standardization (ISO) and adopted by the American National Standards Institute (ANSI) as “ISO 14001: Environmental Management Systems — Specification with Guidance for Use” (36 CFR 219.5). An EMS is established, implemented, and maintained on an administrative unit when an independent audit has verified conformance with the ISO 14001 Standard and the system is working. Plan amendments, or plan revisions conform to 36 CFR 219.5 and 219.14 as having an EMS established when an internal audit (ISO 14001 (4.5.5)) and management review (ISO 14001 (4.6)) are completed before the effective date of the forest plan approval document. The required independent audit shall be conducted within one year following the approval of the forest plan revision or amendment. The EMS shall address land management environmental aspects (or issues) identified from evaluation reports or National Environmental Policy Act documents associated with approval of a plan, plan amendment, or plan revision. Within the scope of the land management planning process, identifying environmental aspects may be accomplished through reviews of recent analyses and evaluations. The work of prioritizing environmental conditions to achieve through the land management planning process can identify the most pressing environmental issues to address in an EMS. Actual work on the ground is carried out, monitored, and evaluated during the annual monitoring work planning and reporting cycle (FSH 1909.12, sec. 23). Pertinent legal requirements related to the plan components shall be listed, referenced, or hyperlinked (FSM 1010, FSM 1920.11) and captured within the scope of the EMS. FSM 1330 contains authorization and direction for environmental management. FSH 1909.12, chapter 20 shows the relationship of planning to EMS.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1922 – LAND MANAGEMENT PLANNING FOR 1982 PLANNING RULE Planning for units of the National Forest System involves two levels of decisions. The first is development of a forest plan that provides direction for all resource management programs, practices, uses, and protection measures. The forest plan consists of both forest-wide and area specific standards and guidelines that provide for land uses with anticipated resource outputs under the given set of management constraints. The outputs are not hard and fast decisions within the plan since all conditions required to produce outputs such as annual budget appropriations, are not controlled by the unit. The second-level planning involves the analysis and implementation of management practices designed to achieve the goals and objectives of the forest plan. This level involves site-specific analysis to meet National Environmental Policy Act requirements for decisionmaking.

1922.03 – Policy In addition to complying with the general policies and principles set forth in FSM 1920.3, the forest planning process shall:

1. Integrate all resource programs and supporting activities.

2. Base resource inventories on sound sampling designs using common definitions and standards.

3. Estimate the goods and services, activities, and investments to be implemented or produced by decade and display these outputs for the identified Resources Planning Act time periods.

4. Prepare a monitoring plan that is responsive to identified issues and sufficient to meet legal requirements for monitoring soil, water, air, wildlife and fish, vegetation, and other resources.

1922.04 – Responsibility The Chief reserves the authority to approve the schedule for revising individual forest plans.

1922.04a – Regional Forester In addition to the responsibilities specified in FSM 1904, each Regional Forester shall:

1. Coordinate planning efforts between forests within the region and between regions where forests adjoin.

2. Maintain quality control of forest plans by ensuring that they meet the standards of FSM 1922.21.


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3. Ensure forest plan monitoring standards are consistent among adjoining units.

4. Review, and approve as appropriate, any amendment that results in a significant change to a forest plan.

5. Propose to the Chief a schedule for revising forest plans.

1922.04b – Forest Supervisor In addition to the responsibilities specified in FSM 1904, each Forest Supervisor shall:

1. Prepare the draft and final forest plan and environmental impact statement to meet the standards in FSM 1922.21 and 1922.31a.

2. Ensure that the interdisciplinary team integrates knowledge of the physical, biological, economic and social sciences, and environmental design arts in the planning process.

3. Conduct planning activities in a manner fully consistent with the National Environmental Policy Act (NEPA), the Council on Environmental Quality (CEQ) implementing regulations, the Forest Service’s environmental policies and procedures described in FSM 1950 and FSH 1909.15.

4. Develop and approve amendments that result in a nonsignificant change to the forest plan.

5. Prepare amendments that result in a significant change to the forest plan and recommend them to the Regional Forester for approval.

6. Propose revision of the forest plan to meet the requirements of National Forest Management Act of 1976 (NFMA) (16 U.S.C. 1600 et seq.) and when directed by the Chief.

1922.1 – Forest Planning Process

1922.11 – Forest Planning Results Minimum results required of forest planning are:

1. Identification of resource management issues and concerns and management opportunities.

2. Development of a set of criteria to guide the formulation and evaluation of alternatives

3. Analysis of the management situation that determines both the need for and the opportunity to establish or change management direction.


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4. Formulation of a set of alternatives that reflects a broad range of options responsive to the significant issues.

5. Evaluation of alternatives and identification of a preferred alternative in accordance with NEPA, CEQ regulations, and Forest Service environmental policies and procedures (FSM 1950 and FSH 1909.15).

6. A forest plan that achieves the 14 principles described in section 219.1 of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000).

7. A monitoring program to evaluate progress toward achieving the goals, objectives, and standards of the plan and the validity of assumptions and coefficients used to estimate outputs and effects.

1922.12 – Benchmark Analysis Benchmark analysis provides baseline data necessary to formulate and analyze alternatives. Benchmarks estimate a forest’s physical, biological, and technical capabilities to produce goods and services. The development of benchmarks is not limited by Forest Service policy or budget, discretionary constraints, or program and staffing requirements. Benchmark analysis will be conducted in accordance with section 219.12(e)(1) of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000).

1922.13 – Formulation of Alternatives Formulate alternatives to meet the requirements of sections 219.12(f) and 219.16 of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000).

1922.14 – Estimated Effects of Alternatives The estimated effects of alternatives provide an objective, scientific, and analytic basis for comparing the alternatives. The analysis and comparison must be sufficient to permit an informed selection of the preferred alternative as described above.

1922.15 – Resource Integration Requirements Requirements for integrating individual forest resources including wilderness and other special areas into the forest planning process are found in sections 219.14 through 219.27 of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000). Refer to current Service-wide Handbooks for more specific detail on how to incorporate resources. In addition, the forest planning process must:


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1. Provide management direction for wilderness, wild and scenic rivers, national recreation areas, national trails, national monuments, national scenic areas, research natural areas, national management emphasis areas, and other identified special interest areas.

2. Use the recreation opportunity spectrum (ROS) system to determine management of recreation settings, opportunities, and to provide a broad spectrum of experiences in response to user preference.

3. Determine the silvicultural systems and practices to be applied to suitable lands.

4. Provide for management of land suitable for timber production for sawtimber-size crop trees unless exceptions such as pulpwood crop trees are provided for in the forest plan. Also, provide for management of suitable forest land to provide multiple products including, but not limited to, sawlogs, pulpwood, poles, posts, and fuelwood through appropriate silvicultural practices to utilize site productivity.

5. Determine output levels for fuelwood and other nonindustrial wood products that do not require secondary processing where sustained demand is anticipated.

6. Permit a departure sale schedule to temporarily drop below the base timber sale schedule at or beyond the end of the first decade.

7. Meet the intent of the culmination of mean annual increment (CMAI) requirement by ensuring the total yield from stands at harvest age is equal to or greater than 95 percent of the volume production corresponding to CMAI. Base CMAI on cubic measure and on the yield from regeneration harvests and any additional yields resulting from intermediate harvests.

8. Determine the annual net growth on lands suitable for timber production for the fifth decade of the forest plan for at least the preferred alternative.

9. Use cubic foot volume and harvest acres, by harvest method, as a dual control in regulating the amount of timber to be offered and sold as specified by the allowable timber sale quantity. Base the control for treatment practices such as site preparation, reforestation, and precommercial thinning on acreage measurements.

10. Ensure that the set of management indicator species includes Resources Planning Act and regional wildlife and fish indicators and represents all significant forest level wildlife and fish diversity and resource production issues, concerns, and opportunities.

11. Ensure that management prescriptions will provide for habitat capability to meet demand for management indicator species and provide access for recreational and commercial uses with minimal disturbance to species use of suitable habitats.


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12. Ensure that, consistent with other resource management needs, management prescriptions will provide for pest prevention activities to lessen host susceptibility to pest damage, increase host vigor, or otherwise minimize pest impact before an outbreak occurs.

13. Ensure the plan provides for the kinds, amounts, and distribution of habitat needed for recovery of threatened or endangered species and needed to maintain viable, well-distributed populations of all existing native and desired nonnative species.

14. Plan for wildfire protection and prescribed fire use appropriate to efficient attainment of land management goals and objectives. Use the National Fire Management Analysis System (NFMAS) to develop and evaluate potential protection alternatives.

15. Identify the desired landownership pattern and develop guidelines for landownership adjustments to include purchase, donations, exchange, right-of-way acquisition, transfers, interchanges, sales, and boundary adjustments. Guidelines for landownership adjustments should emphasize the following objectives:

a. Acquisition to meet identified resource management needs.

b. Acquisition contributing to consolidation that reduces administrative problems and costs and further enhances public use.

c. Conveyance of land better suited for non-federal ownership.

16. Provide access to energy and mineral resources in the most efficient manner and encourage industry proposals for resource development on National Forest System lands, consistent with the rights that individuals or companies have acquired under the mineral leasing acts and mining laws and consistent with the objective of the alternatives.

17. Identify the specific access requirements and travel management options available to meet the objectives for each management prescription. Describe how access will be provided and how travel will be managed. Include the forest development road system, off-road travel, and air and water access. Integrate considerations of biological, physical, social and economic factors, and environmental design criteria. Link access and travel requirements and opportunities to the full spectrum of resource objectives for each management area and alternative.

18. Plan for the development and maintenance of other physical support facilities required to carry out management objectives.

19. Provide for consideration of transportation and utility corridor designation and utilization. Coordinate activities between Regions and with other Federal and State agencies to designate location, alignment, and associated use and occupancy standards for rights-of-way.


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20. Determine watershed condition class and include objectives or prescriptions for improving watershed conditions when necessary.

21. Ensure municipal watershed requirements (36 CFR 251.9) are incorporated in forest plan standards and guidelines.

22. Identify groundwater aquifers and provide management direction for their protection.

23. Provide management direction to protect air quality related values, including visibility, in Class I Federal areas as required by the Clean Air Act Amendments of 1977 and FSM 2120.

24. Plan for pest prevention and protection appropriate to attainment of land management goals and objectives.

1922.2 – Forest Plan Content Section 219.11 of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000) establishes minimum requirements for content of the forest plan.

1922.21 – Standards for Forest Plans In addition to the other requirements of this chapter, forest plans must meet the following standards:

1. Resource information and other data are factual and accurate.

2. Direction is adequate to guide formulation of individual resource programs and schedules needed to implement the plan.

3. Assumptions, analytical approaches, and data are consistently applied within the plan.

4. Interdisciplinary planning and resource coordination are clearly evident.

5. A map delineating management areas and designating future corridors is included.

1922.3 – Review and Approval of Forest Plans Section 219.10 of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000) establishes general requirements for review and approval of forest plans.


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1922.31 – Internal Review The Regional Forester reviews forest plans against the standards in section 1922.21.

1922.31a – Standards for Regional Review Regional review shall ensure that:

1. Each forest plan complies with laws, regulations, policy, and Chief’s direction.

2. Each forest plan is reviewed against Resources Planning Act targets and related costs for the forest and the region as a whole.

3. The analysis and comparative evaluation, documented in the environmental impact statement, is adequate to permit an informed selection of the preferred alternative.

4. The completed forest plan and environmental impact statement have received an interdisciplinary review.

1922.31b – Internal Review Process

1. Following approval by the Regional Forester, the forest prints the draft forest plan and accompanying environmental impact statement and makes them available for public review.

2. The Regional Forester reviews a summary of the public comment received on the draft, the forest’s response to the comment, and the proposed final forest plan and final environmental impact statement.

3. The Chief requires Washington Office review and approval prior to printing of all final plans and their accompanying environmental impact statements, if the plan makes recommendations that will ultimately require Congressional action such as additions to or deletions from the National Wilderness Preservation System, National Trails, National Recreation Areas, studies or changes to the National Wild and Scenic River System, and proposed adjustments in National Forest boundaries. Otherwise, upon approval of final forest plan by the Regional Forester, the forest may print and release the final documents unless:

a. The Region has specifically requested Washington Office review.

b. The Chief has specified Washington Office review because of the degree or intensity of controversy, the extent of changes in the preferred or any other alternative, or if other circumstances warrant.


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1922.32 – External Review External reviews during the forest planning process require public participation and coordination with other public planning efforts. Plan public participation at the earliest stages of the process. Obtain public participation in the identification of public issues during the formal scoping process and during review of draft documents. Prepare a public participation plan and make this plan a part of the planning records along with documented results of participation activities. Document results of coordination with other Federal agencies, Tribal, State, and local governments.

1922.4 – Forest Plan Implementation Detailed instructions for implementing forest plans are in FSH 1909.12, chapter 50.

1922.41 – Analysis and Evaluation Conduct analysis and evaluation to establish a rational basis for making decisions on proposed management practices or actions. The analysis must provide the Responsible Official with relevant information necessary to make a decision to select or reject proposed management practices or actions. The information must be sufficient to establish a determination of consistency, comply with National Environmental Policy Act (NEPA) requirements, document findings, and provide a basis for selecting actions to implement. The following provides specific requirements for analysis and evaluation:

1. Confirm and document that the proposed management decisions are consistent with the management direction in the forest plan. Management practices should be consistent with the forest plan before they can be selected for implementation. If an action cannot be changed to be consistent, the action must be rejected or the forest plan must be amended as directed in FSM 1922.5. Consistency determinations, including specific required findings, are described in FSH 1909.12, Section 50.3.

2. Normally, economic evaluations of proposed management practices that yield or affect priced outputs should be based on cost-efficiency analysis (FSM 1970). Forest plan information may be used if the underlying analysis was sufficiently site-specific and if costs and output values have not changed. Select management practices that are most efficient in following forest plan direction.

3. Conduct analysis of management practices and alternatives in a manner that allows evaluation or the interconnected actions necessary to achieve the integrated resource objectives envisioned by the forest plan.


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4. Conduct environmental analysis as necessary to determine direct, indirect, and cumulative effects of various actions proposed within a given area. Analyze cumulative effects when thresholds such as the hydrologic capacity of a watershed, visual quality standards, or wildlife or fisheries habitat may be exceeded.

5. Complete environmental analysis before deciding upon an action (FSM 1952 and FSH 1909.15, ch. 20).

1922.42 – Selected Management Practices Upon completion of analysis, the Responsible Official decides which management practices to select to achieve forest plan direction. Develop an implementation schedule for these selected management practices. Management practices not identified in the implementation schedule may be considered, but the forest plan will require amendment.

1922.5 – Amendment The need to amend a forest plan may arise from several sources, including the following:

1. Recommendations of the Forest interdisciplinary team based on findings that result from monitoring and evaluating implementation of the forest plan (FSM 1922.7).

2. Findings that existing or proposed permits, contracts, cooperative agreements, and other instruments authorizing occupancy and use are not consistent with the forest plan but should be approved.

3. Changes in proposed implementation schedules necessary to reflect differences between funding levels contemplated in the forest plan and funds actually appropriated.

4. Changes necessitated by resolution of administrative appeals.

5. Changes to correct planning errors.

6. Changes necessitated by changed physical, social, or economic conditions.

7. Implementation of management practices outside the scope of the forest plan. Upon receiving advice of the interdisciplinary team that the plan requires change, the Responsible Official shall:

1. Determine whether proposed changes to a forest plan are significant or not significant in accordance with the requirements of sections 1922.51 and 1922.52.


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2. Document the determination of whether the change is significant or not significant in a decision document.

3. Provide appropriate public notification of the decision prior to implementing the changes. Findings of the Responsible Official regarding the consistency of management practices and actions with the forest plan and the determination of the significance of an amendment are an integral part of decisions. As such, they are appealable.

1922.51 – Changes to the Forest Plan That are Not Significant Changes to the forest plan that are not significant can result from:

1. Actions that do not significantly alter the multiple-use goals and objectives for long-term land and resource management.

2. Adjustments of management area boundaries or management prescriptions resulting from further on-site analysis when the adjustments do not cause significant changes in the multiple-use goals and objectives for long-term land and resource management.

3. Minor changes in standards and guidelines.

4. Opportunities for additional management practices that will contribute to achievement of the management prescription. The Forest Supervisor must prepare an amendment to the forest plan to accommodate a change determined not to be significant. Appropriate public notification is required prior to implementation of the amendment.

1922.52 – Changes to the Forest Plan That are Significant The following examples indicate circumstances that may cause a significant change to a forest plan:

1. Changes that would significantly alter the long-term relationship between levels of multiple-use goods and services originally projected (see section 219.10(e) of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000)).

2. Changes that may have an important effect on the entire forest plan or affect land and resources throughout a large portion of the planning area during the planning period.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING When a significant change needs to be made to the forest plan, the Forest Supervisor must prepare an amendment. Documentation of a significant change, including the necessary analysis and evaluation should focus on the issues that have triggered the need for the change. In developing and obtaining approval of the amendment for significant change to the forest plan, follow the same procedures as are required for developing and approving the forest plan (see sections 219.10(f) and 219.12 of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000)).

1922.6 – Revision The National Forest Management Act (NFMA) requires revision of forest plans at least every 15 years; however, a plan may be revised sooner if physical conditions or demands on the land and resources have changed sufficiently to affect overall goals or uses for the entire forest. To revise a forest plan, follow procedures set forth in section 219.12 of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000) after obtaining approval of the Chief to schedule a revision.

1922.7 – Monitoring and Evaluation Conduct monitoring of the forest land and resource management plan and of the individual management practices, to determine how well objectives have been met and how closely management standards and guidelines have been applied. Monitoring and evaluation requirements for the forest plan are found at section 219.12(k) of the planning regulations in effect before November 9, 2000 (See 36 CFR parts 200 to 299, Revised as of July 1, 2000). See FSH 1909.12, chapter 60 for an explanation of monitoring and evaluation of forest plans.

1. Monitoring of the forest plan is conducted at three levels:

a. Implementation Monitoring. Implementation monitoring determines if plans, prescriptions, projects, and activities are implemented as designed and in compliance with forest plan objectives, requirements, and standards and guidelines. Evaluation of implementation monitoring may require adjustment of prescriptions and targets or changes in plan or project administration.

b. Effectiveness Monitoring. Effectiveness monitoring determines if plans, prescriptions, projects, and activities are effective in meeting management direction, objectives, and the standards and guidelines. Evaluation of the results of effectiveness monitoring is used to adjust forest plan objectives, targets, prescriptions, standards and guidelines, conservation practices, mitigation measures, and other best management practices and could result in change to or amendment of the forest plan.

c. Validation Monitoring. Validation monitoring is designed to ascertain whether the initial assumptions and coefficients used to develop the forest plan are correct or if there is a better way to meet forest planning regulations, policies, goals, and


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objectives. Evaluation of this type of monitoring can result in amendment of forest plans and may be used to recommend changes in laws, regulations, and policies that affect both the plan and project implementation.

1922.71 – Monitoring Requirements

1. Focus monitoring on those activities that affect significant management systems such as total silvicultural systems and other monitoring requirements; those activities that are responsive to stated issues, concerns, and management opportunities; and those activities that affect major components of the environment.

2. Coordinate monitoring efforts with resource inventory needs to reduce duplication.

3. Monitor to ensure that:

a. The forest plan complies with applicable laws and regulations.

b. Cumulative effects of project implementation do not exceed standards or thresholds stated in the forest plan.

c. Planned mitigation actions are implemented and maintained as designed.

d. Local, State, and Federal air, water, noise, and other legal requirements are met.

1923 – WILDERNESS EVALUATION Consideration of wilderness suitability is inherent in land management planning. Although the President and the Secretary may recommend that certain areas be designated as wilderness, Congress reserves the authority to actually designate areas as wilderness. In addition, the Congress may direct the study of specific areas and provide other guidance on reviews of potential wilderness areas through specific wilderness legislation. Planning for potential wilderness designation must occur during the development or revision of a plan, or may require a separate study.

1923.01 – Authority Specific authority for the study and designation of wilderness is contained in the Wilderness Act of September 3, 1964 (16 U.S.C. 1131, Pub. L. 88-577) and the Eastern Wilderness Act of January 3, 1975 (16 U.S.C. 1132, Pub. L. 93-622).


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1923.03 – Policy

1. Any potential wilderness area recommended for wilderness or wilderness study is not available for any use or activity that may reduce the area’s wilderness potential. Activities currently permitted may continue, pending designation, if the activities do not compromise wilderness values of the potential wilderness area.

2. Unless otherwise provided by law, all roadless, undeveloped areas that satisfy the definition of wilderness found in section 2(c) of the Wilderness Act of 1964 shall be evaluated and considered for recommendation as potential wilderness areas during plan development or revision. Inventory criteria are listed in FSH 1909.12, chapter 70.

3. The following areas shall be subject to evaluation:

a. Potential wilderness areas include newly identified areas; as well as areas previously identified in the Forest Service Roadless Area Conservation Final Environmental Impact Statement, Volume 2, dated November 2000, in a unit plan, or in a land management plan, which remain essentially roadless and undeveloped, and which have not yet been designated as wilderness or for nonwilderness uses by law.

b. Areas contiguous to existing wilderness, primitive areas, or administratively proposed wildernesses, regardless of which agency has jurisdiction for the wilderness or proposed wilderness.

c. Areas that are contiguous to potential wilderness areas and undeveloped areas in other Federal ownership that have identified wilderness potential.

d. Areas designated by Congress for wilderness study, administrative proposals pending before Congress, and other legislative proposals pending which have been endorsed by the President.

For each area subject to evaluation under paragraph 3, the determination of the significant resource issues shall be developed with public participation and, at a minimum, consider:

1. The values of the area as wilderness.

2. The values foregone and effects on management of adjacent lands as a consequence of wilderness designation.

3. Feasibility of management (FSH 1909.12, sec. 72.1) as wilderness, in respect to size, nonconforming use, land ownership patterns, and existing contractual agreements or statutory rights.


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4. Proximity to other designated wilderness and relative contribution to the National Wilderness Preservation System.

5. The anticipated long-term changes in plant and animal species diversity, including the diversity of natural plant and animal communities of the plan area and the effects of such changes on the values for which wilderness areas were created.


1923.04a – Chief Exhibit 01 displays responsibilities the Chief reserves when an area is recommended for wilderness as part of the land management planning process.


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1923.04a – Exhibit 01

Chief’s Responsibilities The Chief reserves the authority to: Forest Service Identified Using 2004 Rule

Forest Service Identified Using 1982 Rule

Legislatively Mandated Study

1. Review and approve prior to printing the evaluation report for a plan, plan amendment, or plan revision (FSM 1921.16) if the approval document would make preliminary administrative recommendations. 2. Review the draft and final study report/LEIS and transmit final study report/LEIS to Secretary of Agriculture for further consideration. 3. Prepare legislation and coordinate review of the legislative proposal with the Secretary and Office of Management and Budget.

1. Review and approve prior to printing the EIS for a plan, plan amendment, or plan revision (FSM 1922.31b) if record of decision would make preliminary administrative recommendations. 2. Transmit final study report/LEIS to Secretary of Agriculture for further consideration. 3. Prepare legislation and coordinate review of the legislative proposal with the Secretary and Office of Management and Budget.

1. Review and approve the draft and final study report/ legislative environmental impact statement (LEIS). 2. Transmit final study report/LEIS to Secretary of Agriculture for further consideration. 3. Prepare legislation and coordinate review of the legislative proposal with the Secretary and Office of Management and Budget.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1923.04b – Regional Forester Exhibit 01 displays Regional Forester responsibilities for review of studies that recommend that wilderness be designated or that recommend Congressional wilderness study designation for areas east of the 100th meridian and approval of plan direction.


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1923.04b – Exhibit 01

Regional Forester Responsibilities The Regional Forester is responsible for: Forest Service Identified Using 2004 Rule



1. Reviewing and forwarding the tentative preliminary administrative recommendation to the Chief. 2. Reviewing and forwarding the combined draft and final study report/LEIS supporting preliminary administrative recommendations of the plan, plan amendment, or plan revision to the Chief. 3. Preparing summary material, at the Chief’s request for submission to the Secretary for preliminary administrative recommendations in combined final study report/LEIS.

1. Making preliminary administrative recommendations in record of decision. 2. Approving plan guidance for recommended wilderness, recommended wilderness study areas, designated wildernesses, or potential wilderness areas. 3. Preparing summary material, at the Chief’s request for submission to the Secretary for areas recommended in combined final study report/LEIS.

1. Reviewing and forwarding final wilderness study reports to the Chief. 2. Preparing summary material, at the Chief’s request for submission to the Secretary.


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1923.04c – Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor Exhibit 01 displays responsibilities of the Forest, Grassland, Prairie, or other comparable administrative unit Supervisor for preparation of studies and approval of the plan.


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1923.04c – Exhibit 01

Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor Responsibilities

It is the responsibility of a Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor to: Forest Service Identified Using 2004 Rule



1. Conduct necessary potential wilderness evaluations during plan development, plan amendment, plan revision, or as a separate study. 2. Make preliminary administrative recommendations in plan approval document. 3. Approve plan components for recommended wilderness, recommended wilderness study areas, designated wildernesses, or potential wilderness areas. 4. Prepare legislative environmental impact statement for recommended wilderness at the request of Chief.

1. Conduct necessary potential wilderness evaluations during plan development, plan amendment, plan revision, or as a separate study.

1. Conduct necessary potential wilderness evaluations and prepare LEIS.


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1923.1 – Review and Approval

1923.11 – Proposals Resulting From Wilderness Studies Incorporated in Land Management Plans, Including Legislatively Mandated Studies

1. Forest Service Identified and Using 2004 Rule. Before issuing a notice of a proposed plan, plan amendment, or plan revision prior to approval, and before printing the associated evaluation report, the Responsible Official, through the Regional Forester, shall notify the Chief by letter of tentative preliminary administrative recommendations of wilderness evaluated during land management planning process. Land management plan approval documents that make preliminary administrative recommendations for wilderness must contain the following statement:

This recommendation is a preliminary administrative recommendation that will receive further review and possible modification by the Chief of the Forest Service, the Secretary of Agriculture, and the President of the United States. The Congress has reserved the authority to make final decisions on wilderness designation.

When the Chief decides to forward preliminary administrative wilderness recommendations to the Secretary, a legislative environmental impact statement (LEIS) shall accompany these recommendations.

2. Forest Service Identified and Using 1982 Rule. Prior to approval of a plan, plan amendment, or plan revision and prior to printing the associated environmental impact statement (EIS), the Regional Forester must notify the Chief by letter of the tentative preliminary administrative recommendations on wilderness evaluated during land management planning process. Land management plan record of decision (ROD) that makes preliminary administrative recommendations for wilderness must contain the following statement:

This recommendation is a preliminary administrative recommendation that will receive further review and possible modification by the Chief of the Forest Service, the Secretary of Agriculture, and the President of the United States. The Congress has reserved the authority to make final decisions on wilderness designation.

3. Legislatively Mandated Study. The Chief shall prepare legislation and coordinate review of the legislative proposal with the Secretary and Office of Management and Budget prior to release of the final study report/LEIS.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1923.12 – Proposals Resulting From Wilderness Studies Not Incorporated in Land Management Plans, Including Legislatively Mandated Studies Wilderness studies conducted separately from the land management planning process require the preparation of a LEIS as detailed in FSH 1909.12, section 73.2. The Forest, Grassland, Prairie, or other comparable administrative unit Supervisor shall transmit, through the Regional Forester, the combined study document and draft environmental impact statement (DEIS) to the Chief for filing with the Environmental Protection Agency for legislative mandated studies. Wilderness studies conducted outside of the land management planning process require the preparation of an environmental impact statement and shall include the same level of detail as the evaluation report for studies conducted in the land management planning process (FSH 1909.12, sec. 74).

1924 – WILD AND SCENIC RIVER EVALUATION Consideration of potential wild and scenic rivers is an inherent part of the ongoing land management planning process. A river study assesses the eligibility of a river for inclusion in the National Wild and Scenic Rivers System (National System) and evaluates the potential physical, biological, economic, and social effects of adding the river to the National System. See FSH 1909.12, chapter 80 for the river study process. The study forms the basis for recommendations to the Secretary and Congress and for legislative action.

1924.01 – Authority The authority for study and designation of wild and scenic rivers is the Wild and Scenic Rivers Act of October 2, 1968, as amended (16 U.S.C. 1271). The act has two provisions for identification of rivers for study: (1) by Act of Congress under Section 5(a) or (2) through Federal agency planning processes under Section 5(d)(1). The USDA-USDI Guidelines for Eligibility, Classification, and Management of River Areas dated September 7, 1982, supplement the act and provide direction that is more specific. The Act and USDA-USDI guidelines are included in FSH 1909.12, chapter 90.

1924.03 – Policy

1. Complete legislatively mandated study or studies within the specified study period.

2. If a systematic inventory of Forest Service identified eligible rivers or a comprehensive Forest, Grassland, Prairie, or other comparable administrative unit-wide suitability study has been previously completed and documented, additional assessment and study at the time of a proposed plan, plan amendment, or plan revision need only be done if changed circumstances warrant additional review of eligibility or if the Responsible Official considers the river study (suitability) an issue. Document the process in the plan document or set of documents.


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3. Conduct studies in close cooperation with affected Federal, State and local agencies, Tribal governments, landowners, and national and local publics. Include a determination of possible State participation in the preservation and administration of the river if it is added to the National System.

4. Rivers identified eligible for study are managed until suitability is determined to protect the values for which they might be added to the National System (free-flow, water quality, and outstandingly remarkable values) by statute for legislatively mandated study, or by existing Forest Service authorities for Forest Service identified study. Refer to FSM 1924.2 for specific management guidance for each of the river classifications.

1924.04 – Responsibility The Secretary of Agriculture has designated the Forest Service as the lead coordinating agency for the Department of Agriculture in the studies of rivers that involve National Forest System lands.

1924.04a – Chief Exhibit 01 displays responsibilities the Chief reserves for river studies on National Forest System lands:


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1924.04a – Exhibit 01

Chief’s Responsibilities for River Studies on National Forest System Lands The Chief reserves the authority to: Forest Service Identified Using 2004 Rule



1. Review and approve prior to printing the evaluation report for a plan, plan amendment, or plan revision (FSM 1921.16) if the approval document would make preliminary administrative recommendations. 2. Review the draft and final study report/ legislative environmental impact statement (LEIS) and transmit final study report/LEIS to Secretary of Agriculture for further consideration. 3. Prepare legislation and coordinate review of the legislative proposal with the Secretary and Office of Management and Budget.

1. Review and approve prior to printing the EIS for a plan, plan amendment, or plan revision (FSM 1922.31b) if record of decision would make preliminary administrative recommendations. 2. Transmit final study report/LEIS extracted from EIS and record of decision to Secretary of Agriculture for further consideration. 3. Prepare legislation and coordinate review of the legislative proposal with the Secretary and Office of Management and Budget.

1. Review and approve prior to printing the draft and final study report/LEIS. 2. Transmit the draft study report/LEIS for interdepartmental and intradepartmental review as required by Section 4(b) of the WSRA. Provide comments to the Region. 3. Transmit final study report/LEIS to Secretary of Agriculture for approval. 4. Prepare legislation and coordinate review of the legislative proposal with the Secretary and Office of Management and Budget.


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1924.04b – Deputy Chief, National Forest System, Washington Office The Deputy Chief, National Forest System, Washington Office, is responsible for:

1. Designating the lead Region when a legislatively mandated study river involves more than one Region.

2. Coordinating the Department’s review of other agency and State wild and scenic river proposals submitted pursuant to sections 5(a) and 2(a)(ii) of the act.

1924.04c – Regional Forester The Regional Forester is responsible for:

1. Designating the lead unit when a legislatively mandated or Forest Service identified study river involves more than one Forest, Grassland, Prairie, or other comparable administrative unit, or more than one Region.

2. Inviting the concerned State(s) to participate jointly in the study of potential wild and scenic rivers where United States Department of Agriculture is the lead agency. Exhibit 01 displays additional responsibilities of the Regional Forester for review of studies.


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1924.04c – Exhibit 01

Regional Forester Responsibilities for River Studies on National Forest System Lands

The Regional Forester is responsible for: Forest Service Identified Using 2004 Rule



1. Reviewing and forwarding the tentative preliminary administrative recommendation to the Chief. 2. Reviewing and forwarding the combined draft and final study report/ legislative environmental impact statement (LEIS) supporting preliminary administrative recommendations of the plan, plan amendment, or plan revision to the Chief. 3. Preparing summary material (FSH 1909.12, ch. 80) for the Secretary for rivers recommended in final study report/LEIS.

1. Deciding whether to evaluate suitability for one or more eligible rivers in the planning process. 2. Making preliminary administrative recommendations in record of decision. 3. Preparing, at the Chief’s request, a legislative proposal (FSH 1909.12, ch. 80). 4. Approving management direction for study rivers that are found eligible during land management planning but await completion of a suitability analysis.

1. Providing two copies of preliminary draft and preliminary final study report/LEIS to Chief for approval to print. Submit 10 copies of approved and printed draft to Chief for interdepartmental and intradepartmental review. 2. Preparing summary information document and draft transmittal letter from the President to the Congress (FSH 1909.12, ch. 80).


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1924.04d – Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor Exhibit 01 displays responsibility of the Forest, Grassland, Prairie, or other comparable administrative unit Supervisor for preparation of studies and approval of the plan.

1924.04d – Exhibit 01 Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor Responsibilities

for River Studies on National Forest System Lands

It is the responsibility of a Forest, Grassland, Prairie Supervisor, or other Comparable Administrative Unit to: Forest Service-Identified Using 2004 Rule

Forest Service-Identified Using 1982 Rule


1. Decide whether to evaluate suitability for one or more eligible rivers in the planning process. 2. Conduct any wild and scenic studies during plan development, plan amendment, or plan revision. 3. Make preliminary administrative recommendations in plan approval document. 4. Approve plan components for study rivers determined suitable during land management planning. 5. Prepare legislative environmental impact statement (LEIS) for recommended rivers at the request of Chief.

1. Conduct any wild and scenic studies during plan development, plan amendment, or plan revision.

1. Prepare draft and final study report/legislative environmental impact statement (LEIS). 2. Print and distribute the approved draft study report/LEIS. 3. Respond to interdepartmental and intradepartmental and public comments in the final study report/legislative environmental impact statement (LEIS). 4. Print and distribute the approved final study report/LEIS to the public, upon transmittal of report by President to Congress.


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1924.1 – Review and Approval Internal review and approval of a Forest Service identified wild and scenic river recommendations shall meet the same requirements as those for land management plans (FSM 1921.16 and 1922.3).

1924.11 – Proposals Resulting From River Studies

1. Forest Service-Identified Using 2004 Rule. Prior to approval of a plan, plan amendment, or plan revision, and prior to printing the associated evaluation report, the Responsible Official, through the Regional Forester, shall notify the Chief by letter of tentative preliminary administrative recommendations on rivers evaluated during land management planning process. Land management plan approval documents that make preliminary administrative recommendations for rivers must contain the following statement:

This recommendation is a preliminary administrative recommendation that will receive further review and possible modification by the Chief of the Forest Service, Secretary of Agriculture, and the President of the United States. The Congress has reserved the authority to make final decisions on designation of rivers as part of the National Wild and Scenic Rivers System.

When the Chief decides to forward preliminary administrative river recommendations to the Secretary, a legislative environmental impact statement (LEIS) shall accompany these recommendations.

2. Forest Service-Identified Using 1982 Rule. Prior to approval of a plan, plan amendment, or plan revision and prior to printing the associated environmental impact statement, the Regional Forester shall notify the Chief by letter of the tentative preliminary administrative recommendations on rivers evaluated during land management planning process. The land management plan record of decision that makes preliminary administrative recommendations for rivers must contain the following statement:

This recommendation is a preliminary administrative recommendation that will receive further review and possible modification by the Chief of the Forest Service, Secretary of Agriculture, and the President of the United States. The Congress has reserved the authority to make final decisions on designation of rivers as part of the National Wild and Scenic Rivers System.

3. Legislatively Mandated Study. The Chief shall prepare legislation and coordinate review of the legislative proposal with the Secretary and Office of Management and Budget prior to release of the final study report/LEIS.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1924.12 – Proposals Resulting From River Studies Not Incorporated in Land Management Plans, Including Legislatively Mandated Studies River studies conducted separate from the land management planning process require the preparation of a legislative environmental impact statement that meets the standard found in FSH 1909.12, section 83.2. The Forest, Grassland, Prairie, or other comparable administrative unit Supervisor shall transmit through the Regional Forester the combined study report and draft environmental impact statement to the Chief for filing with the Environmental Protection Agency for legislatively mandated studies.

1924.2 – Interim Management of Eligible or Suitable Rivers During interim management of eligible or suitable rivers, the following minimum specific management requirements are to be used when carrying out projects and activities for the National Forest System (NFS) for each of the river classifications in this section. Legislatively mandated study rivers as defined in section 5(a) of the Wild and Scenic Rivers Act of October 2, 1968 (act) are afforded statutory protection under the act (sec. 7(b), water resources projects; sec. 8(b), land disposition; sec. 9(b), mining and mineral leasing; and sec. 12(a), management policies). Protection of Forest Service identified study rivers (sec. 5(d)(1) of the act) derives from other existing authorities (such as the Clean Water Act, Endangered Species Act, Archeological Resources Protection Act). To the extent the Forest Service is authorized by statute, a Responsible Official may authorize site-specific projects and activities on NFS lands within river corridors eligible or suitable only where the project and activities are consistent with all of the following:

1. The free-flowing character of the identified river is not modified by the construction or development of stream impoundments, diversions, or other water resources projects.

2. Outstandingly remarkable values of the identified river area are protected.

3. For all legislatively mandated study rivers, management and development of the identified river and its corridor is not modified to the degree that eligibility would be compromised or the classification changed to a less restrictive class (such as from wild to scenic or scenic to recreational).

4. For all Forest Service identified study rivers, however, they may be managed at the recommended rather than inventoried classification when the suitability study/recommendation is completed.


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1924.21 – Management Requirements for Eligible or Suitable Rivers The following requirements apply to interim management of eligible or suitable rivers and Responsible Officials must apply these on National Forest System (NFS) lands or where the Forest Service holds an interest on nonfederal lands, such as rights acquired through scenic or access easements to protect river values. These requirements may be applied to interim management of designated wild and scenic rivers governed by the specific language in sections 7(a), water resources projects; 8(a), land disposition; 9(a), mining and mineral leasing; and 12(a) management policies (FSM 2354). The following protection requirements shall be continued until a decision is made on the future use of the river and adjacent lands. Section 5(a) study rivers shall be protected, as directed in sections 7(b), 8(b), 9(b), and 12(a) of the act for the period specified in section 7(b). The protection period is three years from the date the study report is transmitted to the Congress. The protection necessary to maintain a section 5(d)(1) study river as a potential wild and scenic river may be modified or discontinued for identified rivers upon a finding of ineligibility or nonsuitability (see the review and approval process in FSH 1909.12, sec. 84). A Responsible Official may authorize site-specific projects and activities on NFS lands within river corridors eligible or suitable only where the project and activities are consistent with the following:

1. Water Resources Projects (Water Supply/Flood Control).

Wild, Scenic, Recreational. Development of water supply dams, diversions, flood control works, and other water resources projects on a section 5(a) study river shall be analyzed under section 7(b) of the act. A water resources project is defined in Title 36, Code of Federal Regulations part 297 (36 CFR part 297), as the construction of developments that affect the river’s free-flowing characteristics. Water resources projects determined to have a direct and adverse effect on river values (free-flow, water quality, and outstandingly remarkable values) under section 7(b) are prohibited. Water resources projects proposed on a section 5(d)(1) study river are not subject to section 7(b), but will be analyzed as to their effect on a river’s free-flow, water quality, and outstandingly remarkable values, with adverse effects prevented to the extent of existing agency authorities (such as special-use authority).

2. Hydroelectric Power.

Wild, Scenic, Recreational. Development of hydroelectric power facilities is not allowed on or directly affecting a section 5(a) study river. This provision of section 7(b) of the act is interpreted as a prohibition of new hydroelectric facilities within the study boundary. Section 5(d)(1) study rivers found eligible are to be protected


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pending a suitability determination. Protect section 5(d)(1) study rivers found suitable for inclusion in the National System for their free-flowing condition, water quality, and outstandingly remarkable values.

3. Minerals.

a. Wild.

(1) Locatable. Subject to valid existing rights, mining claims are prohibited within 1/4 mile of a section 5(a) study river under section 9(b) of the act. Existing mining activity on a section 5(a) study river and existing or new mining activity on a section 5(d)(1) study river are subject to regulations in 36 CFR part 228 and shall be conducted in a manner that minimizes surface disturbance, sedimentation and pollution, and visual impairment.

(2) Leasable. Leases, licenses, and permits under mineral leasing laws would be subject to conditions necessary to protect the values of the river corridor in the event it is subsequently included in the National System.

(3) Saleable. Prohibit disposal of saleable mineral material to protect river values.

b. Scenic, Recreational.

(1) Locatable. Subject to valid existing rights, mining claims are prohibited within 1/4 mile of a section 5(a) study river under section 9(b) of the Act. Existing mining activity on a section 5(a) study river and existing or new mining activity on a section 5(d)(1) study river are subject to regulations in 36 CFR part 228 and must be conducted in a manner that minimizes surface disturbance, sedimentation and pollution, and visual impairment.

(2) Leasable. Leases, licenses, and permits under mineral leasing laws would be subject to conditions necessary to protect the values of the river corridor in the event it is subsequently included in the National System.

(3) Saleable. Allow saleable mineral material disposal if the values for which the river may be included in the National System are protected.

4. Transportation System.

a. Wild. New roads are not generally compatible with this classification. A few existing roads leading to the boundary of the river corridor may be acceptable. New trail construction should generally be designed for nonmotorized uses. However, limited motorized uses that are compatible with identified values and unobtrusive trail bridges may be allowed. Do not develop new airfields.


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b. Scenic. New roads and railroads are permitted to parallel the river for short segments or bridge the river if such construction fully protects river values (including river’s free-flowing character). Bridge crossings and river access are allowed. New trail construction or airfields must be compatible with and fully protect identified values.

c. Recreational. New roads and railroads are permitted to parallel the river if such construction fully protects river values (including river’s free-flowing character). Bridge crossings and river access are allowed. New trail construction or airfields must be compatible with and fully protect identified values.

5. Utility Proposal.

Wild, Scenic, Recreational. New transmission lines such as gas lines, water lines, and so forth are discouraged. Where no reasonable alternative exists, additional or new facilities should be restricted to existing rights-of-way. Where new rights-of-way are indicated, the project shall be evaluated as to its effect on the river’s outstandingly remarkable values and classification. Any portion of a utility proposal that has the potential to affect the river’s free-flowing character shall be evaluated as a water resources project.

6. Recreation Development.

a. Wild. Major public-use areas, such as large campgrounds, interpretive centers, or administrative headquarters should be located outside the river corridor. Minimum facilities, including access, may be provided in keeping with the essentially primitive character. If sanitation and convenience facilities are necessary, locate them at access points or at a sufficient distance from the river bank so that they are not visible from the river. Prevent impacts to water quality and other identified river values.

b. Scenic. Public-use facilities, such as moderate-size campgrounds, simple sanitation and convenience facilities, public information centers, administrative sites, or river access developments are allowed within the river corridor and so forth. All facilities shall be located and designed to harmonize with their natural and cultural settings, protect identified river values including water quality, and be screened from view from the river to the extent possible.

c. Recreational. Recreation, administrative, and river access facilities may be located in close proximity to the river. However, recreational classification does not require extensive recreation development. All facilities shall be located and designed to harmonize with their natural and cultural settings, protect identified river values including water quality, and be screened from view from the river to the extent possible.


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7. Motorized Travel. a. Wild. Motorized travel on land or water may be permitted, but is generally not compatible with this classification. b. Scenic, Recreational. Motorized travel on land or water may be permitted, prohibited, or restricted to protect the river values.

8. Wildlife and Fish Projects.

a. Wild. Construction of minor structures and vegetation management to protect and enhance wildlife and fish habitat should harmonize with the area’s essentially primitive character and fully protect identified river values. Any portion of a wildlife or fisheries restoration or enhancement project that has the potential to affect the river’s free-flowing character shall be evaluated as a water resources project. b. Scenic. Construction of structures and vegetation management to protect and enhance wildlife and fish habitat should harmonize with the area’s largely undeveloped character and fully protect identified river values. Any portion of a wildlife or fisheries restoration or enhancement project that has the potential to affect the free-flowing character must be evaluated as a water resources project. c. Recreational. Construction of structures and vegetation management to protect and enhance wildlife and fish habitat should fully protect identified river values. Any portion of a wildlife or fisheries restoration or enhancement project that has the potential to affect the river’s free-flowing character shall be evaluated as a water resources project.

9. Vegetation Management. a. Wild. Cutting of trees and other vegetation is not permitted except when needed in association with a primitive recreation experience, such as clearing of trails, the protection of users, or to protect the environment, including wildfire suppression. Prescribed fire may be used to restore or maintain habitat for threatened, endangered, or sensitive species. b. Scenic, Recreational. A range of vegetation management and timber harvest practices are allowed, provided that these practices are designed to protect, restore, or enhance the river environment, including the long-term scenic character.

10. Domestic Livestock Grazing. a. Wild. Domestic livestock grazing should be managed to protect identified river values. Existing structures may be maintained. New facilities may be developed to facilitate livestock management so long as they maintain the values for which a river was found eligible or suitable, including the area’s essentially primitive character.


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b. Scenic. Domestic livestock grazing should be managed to protect identified river values. Existing structures may be maintained. New facilities may be developed to facilitate livestock management so long as they maintain the values for which a river was found eligible or suitable, including the area’s largely undeveloped character.

c. Recreational. Domestic livestock grazing should be managed to protect identified river values. Existing structures may be maintained. New facilities may be developed to facilitate livestock management so long as they maintain the values for which a river was found eligible or suitable.

1924.22 – Land Management Plan Guidance The management requirements specified in section 1924.21 should not be repeated in land management plans. Plan components should be consistent with river management requirements. A plan should include the following:

1. Guidance to ensure Responsible Officials consider river management requirements (FSM 1924.21) when authorizing projects and activities.

2. For designated river corridors, the special area (FSM 1921.16) description should include the desired conditions, objectives, guidelines, and suitability of areas to be used in the design of projects and activities consistent with The USDA-USDI Guidelines for Eligibility, Classification, and Management of River Areas dated September 7, 1982.

3. For interim management of eligible or suitable rivers, the special area recommendation should include the desired conditions, objectives, guidelines, and suitability of areas to be used in the design of projects and activities consistent with management requirements of eligible or suitable rivers at FSM 1924.21.

1925 – MANAGEMENT OF INVENTORIED ROADLESS AREAS [RESERVED]

1926 – OBJECTION PROCESS The objection process outlined in the National Forest System Land Management Planning Rule Title 36, Code of Federal Regulations, part 219 (36 CFR part 219) (January 5, 2005, 70 FR, 1023) provides a pre-approval objection process and eliminates the administrative appeal procedures found at Title 36, Code of Federal Regulation, part 217. The objection process may be used to resolve issues associated with new plans, amendments, or revisions of existing plans. The objection process provides an individual or organization the opportunity for higher-level review and resolution of issues prior to the approval of a new plan, plan amendment, or plan revision.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING During the planning process, the Responsible Official is expected to work collaboratively with interested parties to incorporate their input into the planning process (FSM 1921.6). A participant in the planning process may file an objection with the Reviewing Officer to a plan, plan amendment, or plan revision, pursuant to this chapter. The objection process is meant to be an open process that allows the Reviewing Officer the opportunity to engage the objector(s) and the Responsible Official. The Reviewing Officer and/or the Responsible Official may meet with an objector if the Reviewing Officer believes that a mutually satisfactory resolution of an objection is possible. Meetings shall be open to the public. The objection process complements the public participation process because it allows the objectors and the Responsible Official to work collaboratively to resolve many potential conflicts before the plan is approved.

1926.01 – Authority The opportunity for objection is provided in 36 CFR 219.13 except when:

1. The Responsible Official is an official in the Department of Agriculture at a higher level than the Chief of the Forest Service, (36 CFR 219.13(a)(2)) or

2. A site-specific plan amendment applies to a single project or activity decision, in which case the administrative review process of 36 CFR part 215 or part 218, subpart A, or other applicable site-specific review procedure applies instead of the objection process established at 36 CFR 219.13.

1926.02 – Objective The objectives of the objection process are to:

1. Provide the public and non-federal agencies an opportunity to promptly resolve issues prior to the final agency approval to develop, adopt, amend, or revise a land management plan.

2. Work out substantial differences.


1926.04a – Chief The Chief or Associate Chief serves as the Reviewing Officer for any objection(s) filed on a plan, plan amendment, or plan revision for which a Regional Forester is the Responsible Official (FSM 1921.04b). On a case-by-case basis, the Chief or the Associate Chief may designate the Deputy Chief or an Associate Deputy Chief for the National Forest System, or any other Deputy or Associate Deputy Chief, to serve as the Reviewing Officer.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1926.04b – Deputy Chief, National Forest System The Deputy Chief, National Forest System, has the authority and responsibility to approve agency-wide direction for implementing the objection process and for overseeing agency-wide compliance with the regulations and directives governing the objection process.

1926.04c – Director, Ecosystem Management Coordination Staff, Washington Office The Director, Ecosystem Management Coordination Staff, Washington Office is responsible for:

1. Developing and recommending agency-wide direction for implementing the objection process and making any recommendations for its modification.

2. Providing training to Regional Office personnel on how to conduct the objection process.

3. Monitoring, evaluating, and reporting to the Deputy Chief, National Forest System on agency-wide implementation of the objection process, preparing consolidated reports on the implementation and outcomes, including the number of objections filed, in progress, and completed agency-wide.

4. Maintaining the official record of all objections filed at the Washington Office level.

1926.04d – Regional Forester Each Regional Forester is responsible for:

1. Implementing and overseeing Region-wide implementation of the objection process.

2. Maintaining the official record of all objections filed in the Region.

3. Serving as the Reviewing Officer for objections of plans, amendments, or revisions for which the Forest, Grassland, Prairie, or other comparable administrative unit Supervisor is the Responsible Official (FSM 1921.04c). In the event a Regional Forester will not be available to serve as Reviewing Officer, a subordinate may be designated to serve as the Reviewing Officer.

4. Ensuring that responses to objection(s) are completed promptly.

5. Preparing an annual report to the Director, Ecosystem Management Coordination Staff, Washington Office, including the number of objections received by fiscal year, date of each objection was received, number of objections resolved, date each objection was resolved, number of objections pending, and any other pertinent information that the Washington Office requests.


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CHAPTER 1920 – LAND MANAGEMENT PLANNING 1926.04e – Forest, Grassland, Prairie, or Other Comparable Administrative Unit Supervisor The Forest, Grassland, Prairie, or other comparable administrative unit Supervisor:

1. Ensures that the objection process requirements are followed, objections are addressed, and relevant planning records are transmitted promptly.

2. Keeps a record of all objection resolutions and integrate it with the plan, plan amendment, or plan revision documents.

1926.04f – Responsible Official A Responsible Official is responsible for proposing and approving a plan, plan amendment, or plan revision and for:

1. Providing timely notice to the public, including notice of the time period for filing objection(s).

2. Incorporating the Reviewing Officer’s findings in the plan approval document, as appropriate.

1926.04g – Reviewing Officer The Reviewing Officer is responsible for considering and responding to objections and in that capacity, is responsible for:

1. Accepting all timely filed objections that meet the content requirements.

2. Addressing objection(s), documenting findings, and promptly notifying the objectors and the Responsible Official of the outcome on the objection.

3. Determining the appropriate means or techniques to resolve objection issues with the objector(s), attempting to resolve disputes, and determining when such efforts are successful, or no longer successful.

1926.05 – Definitions

Alternative Dispute Resolution. Any procedure that is used to resolve issues in controversy, including, but not limited to, conciliation, facilitation, mediation, fact-finding, mini-trials, arbitration, use of ombudsmen, or any combination thereof (Administrative Dispute Resolution Act of 1996 (5 U.S.C. 571))


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Newspaper(s) of Record. The principal newspapers of general circulation annually identified and published in the Federal Register by each Regional Forester to be used for publishing notices as required by 36 CFR 215.5. The newspaper(s) of record for projects in a plan area is (are) the newspaper(s) of record for notices related to planning.

Objector. A person(s) or organization(s) who has submitted a timely objection to the appropriate Reviewing Officer.

Responsible Official. The official with the authority and responsibility to oversee the planning process and to approve plans, plan amendments, and plan revisions (36 CFR 219.16).

Reviewing Officer. The supervisor of the Responsible Official. The Reviewing Officer responds to objections made to a plan, plan amendment, or plan revision prior to approval (36 CFR 219.16).

1926.1 – Giving Notice

1926.11 – Public Notice of Opportunity to File Objections and the Objection Period Before approving a new plan, plan amendment, or plan revision, the Responsible Official shall provide a 30-day period for filing an objection to a plan, plan amendment, or plan revision (36 CFR 219.13(a)) and meet the notification requirements in 36 CFR 219.9(b). During the 30-day filing period, any person or organization who participated in the planning process (36 CFR 219.13) through the submission of written comments may object to a plan, plan amendment, or plan revision except when:

1. A site-specific amendment applies to a single project decision, in which case the administrative review process of 36 CFR part 215 or 36 CFR part 218 applies instead of the 36 CFR 219.13 objection process.

2. The entity is a Federal agency.

3. The Responsible Official is an official in the Department of Agriculture at a level higher than the Chief of the Forest Service, in which case there is no opportunity for administrative review.

1926.12 – Submitting Objections The objection shall be in writing and be filed within 30 days with the Reviewing Officer (36 CFR 219.13(b)). Objections must contain all of the following provisions:

1. The name, mailing address, and telephone number of the person or organization filing the objection (36 CFR 219.13(b)(1)).


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2. A statement of the issues, the parts of the plan, plan amendment, or plan revision to which the objection applies, and how the objecting party would be adversely affected (36 CFR 219.13(b)(2)).

3. A concise statement explaining how the objector believes that the plan, plan amendment, or plan revision is inconsistent with law, regulation, or policy or how the objector disagrees with the decision and providing any recommendations for change (36 CFR 219.13(b)(3)).

4. Signature or other verification of authorship (a scanned signature for electronic mail may be used if it can be verified). Where a single objection is filed by more than one person, the objection must indicate the lead objector to contact. The Reviewing Officer may appoint the first name listed as the lead objector to act on behalf of all parties to the single objection when the single objection does not specify a lead objector. The Reviewing Officer may communicate directly with the lead objector and is not required to notify the other listed objectors of the objection response or any other written correspondence related to the single objection (36 CFR 219.13(b)(1)). Comments received from an authorized representative(s) of an organization are considered those of the organization only. Individual members of that organization do not meet objection eligibility requirements solely on the basis of membership in an organization. A member or an individual must submit comments independently in order to be eligible to file an objection in an individual capacity.

1926.13 – Objection Time Periods and Process

1926.13a – Time to File an Objection Written objections, including any attachments, must be filed with the Reviewing Officer within 30 days following the publication date of the legal notice in the newspaper of record of the availability of the plan, plan amendment, or plan revision (36 CFR 219.13(b)). The Responsible Official may provide written acknowledgement of receipt, if requested by the objector. Exhibit 01 displays sample wording for a public notification of an objection period.


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1926.13a – Exhibit 01

Sample Objection Notification Objection Opportunities This land management plan amendment is subject to objection under 36 CFR 219.13. A written Notice of Objection must be submitted within 30 days after the date of the notice of this approval in the XYZ Newspaper, City, State. The publication date of the legal notice in the newspaper of record is the exclusive means for calculating the time to file an objection (36 CFR 219.13 (b)). Those wishing to object should not rely upon dates or timeframe information provided by any other source. Under 36 CFR 219.13(a), only those individuals or organizations who participated in the planning process through the submission of written comments may file an objection. The written Notice of Objection must be submitted to: USDA, Forest Service, Attn: Reviewing Officer Street Address City, State, Zip code Fax: xxx-xxx-xxxx We will also accept objections via the internet. Please send objections to objections- [email protected]. Objections are required to be in WORD, WordPerfect, or rtf file formats. For electronically mailed objections, the sender should normally receive an automated electronic acknowledgment from the agency as confirmation of receipt. If the sender does not receive an automated acknowledgment of the receipt of the objection, it is the sender’s responsibility to ensure timely receipt by other means. Objections must meet content requirements of 36 CFR 219.13(b).


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1926.13b – Computation of Time Periods

1. All time periods are computed using calendar days, including Saturdays, Sundays, and Federal holidays. However, when the time period expires on a Saturday, Sunday, or Federal holiday, the time is extended to the end of the next Federal working day as stated in the legal notice or to the end of the calendar day (11:59 p.m.) for objections filed by electronic means such as e-mail or facsimile machine.

2. The day after publication of the legal notice for a plan, plan amendment, or plan revision prior to approval in the newspaper of record (36 CFR 219.16) is the first day of the objection-filing period.

3. The publication date of the legal notice of the plan, plan amendment, or plan revision in the newspaper of record is the exclusive means for calculating the time to file an objection. IF asked, tell potential objectors that they may not rely on dates or timeframe information provided by any other source.

1926.13c – Evidence of Timely Filing Timeliness shall be determined by:

1. The date of the postmark, e-mail, fax, or other means of filing (for example, express delivery service) of an objection.

2. The time and date imprint at the correct Reviewing Officer’s office on a hand-delivered objection.

1926.13d – Time Extensions Time extensions, except as noted in FSM 1926.13b.1, are not permitted.

1926.13e – Electronic Inboxes The Reviewing Officer should accept electronically mailed objections. The Reviewing Officer should establish an e-mail address that normally provides an automated electronic acknowledgement from the agency to the objector as confirmation of receipt.

1926.14 – Dismissal of Objections A filed objection shall be dismissed without review by the Reviewing Officer if:

1. It does not meet the timeliness requirements in FSM 1926.13.

2. It does not meet the content requirements of 36 CFR 219.13(b).


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3. An objector’s identity is not provided, or cannot be determined from the signature (written or electronically scanned), and a reasonable means of contact is not provided. When a reasonable means of contact is provided, the Reviewing Officer shall provide written dismissal notice to the objector. Once an objection is dismissed, the objection process is concluded for that objection, and if no other objections are filed, the Responsible Official may proceed to make the decision to approve the plan, plan amendment, or plan revision.

1926.2 – Time Frames for Resolving Objections Once the Reviewing Officer receives a valid objection, the Reviewing Officer must promptly resolve the objection.

1926.3 – Resolution of Objections An objection may be resolved in a variety of ways:

1. An objector may withdraw the objection or portion of the objection by letter to the Reviewing Officer.

2. Issues may be resolved between the objector and the Responsible Official by mutual consent, with subsequent withdrawal of all or a portion of the objection by letter to the Reviewing Officer. The Reviewing Officer has the discretion to determine procedures, such as Alternative Dispute Resolution procedures, to be used to resolve issues associated with the objection.

3. The Responsible Official, with consent of the Reviewing Officer, may determine that further analysis is required and withdraw the plan, plan amendment, or plan revision with notification.

4. The Reviewing Officer provides a response to the objection, in accordance with 36 CFR 219.13(c) and FSM 1926.31.

1926.31 – Reviewing Officer Response to Objections The Reviewing Officer’s response does not need to be a point-by-point review of the issues and may, when appropriate, provide instructions to the Responsible Official. In cases involving more than one objection, the Reviewing Officer may consolidate objections and issue one or more responses (36 CFR 219.13(c)). The response shall meet the following requirements:

1. Reference the plan, plan amendment, or plan revision subject to the objection.

2. Identify any issues withdrawn in whole or in part by the objector(s).


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3. Provide the response on any remaining issues, including the basis for the response, including either:

a. A finding of consistency of the proposed plan with the law, regulation, Executive order, or policy, or

b. A finding of inconsistency with specific law, regulation, Executive order, or policy, stipulating the corrections required to make it consistent.

1926.32 – Plan, Amendment, or Revision Approval Following the objection process, the Responsible Official must determine whether or not to approve the plan, plan amendment, or plan revision. Any approval must in accordance with 36 CFR 219.7(c). The Responsible Official may approve a plan, plan amendment, or plan revision after:

1. The objection-filing period has closed and no objections have been filed.

2. The Reviewing Officer has responded to all objections.

3. The Responsible Official has taken the necessary action to correct inconsistencies described in the Reviewing Officer’s response to the objection.

1926.33 – Notice of a Plan Approval and Effective Date An approved plan, plan amendment, or plan revision is effective 30 days after publication of notice in the Federal Register and newspaper of record (36 CFR 219.14(a) and 36 CFR 219.9(b)(2)). The notice shall be prepared in accordance with 36 CFR 219.9(b)(2) and disclose to the public the availability of the approved plan, plan amendment, or plan revision; the approval document; the effective date of the approved plan (36 CFR 219.9(b));and that no further objection is available on this plan. The effective date is based on the newspaper of record. See FSH 1909.12, section 28.3 for legal notice content details.

1926.4 – Maintaining Objection Records The objection record for the new plan, plan amendment, or plan revision shall include:

1. The legal notice on the plan, plan amendment, or plan revision.

2. The party(ies) who participated in the objection process, including any meetings or negotiations.


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3. The objections filed, including those dismissed and the reasons for dismissal.

4. Correspondence between objectors, Reviewing Officers, and Responsible Officials about objections to the new plan, plan amendment, or plan revision.

1927 – BACKCOUNTRY AND PRIMITIVE AREAS [RESERVED]