GordonMartinc/oMatthewParuoloDistrictRanger,MammothLakesRangerDistrictInyoNationalForestPOBox148MammothLakes,CA93546
July8,2020
Re:LakesBasinandSherwinsAreaTrailEnhancementProject
ThisscopingcommentletterontheLakesBasinandSherwinsAreaTrailEnhancementProjectissubmittedonbehalfoftheSierraClub,theSierraClubRangeofLightGroup,theKutzadikaTribe,CaliforniaWildernessCoalition,DefendersofWildlife,SierraForestLegacy,andFriendsoftheInyo.
TheSierraClubrepresentsover3.8millionmemberswhosupportgettingpeopleoutdoorswhilebalancingtheneedsofwildlifeandpreservingournaturalresourcesandbiodiversity.The[ightforsocialjusticeisanexplicitpartofSierraClubprogramsandinitiatives.Theuseofpubliclandsandpublicfundsneedtotakeintoconsiderationthemanyrecreationalneedsofacross-sectionofAmericans.Trade-offsthatimpingeonournaturalresourcesforrecreationalbene[itsmustbeforabroadgroupofpeople.
TheRangeofLightGroup(ROLG)withintheToiyabeChapteroftheSierraClubhasover400membersintheEasternSierra.ROLGmembersparticipatedactivelyintheSherwinsWorkingGroup(SWG)whichproducedtheSherwinsAreaRecreationPlan(SHARP).Beginningin2017,ROLGmembersalsoparticipatedinseveraloftheimplementationprojectsforvariousSHARPrecommendedtrails.TheSierraClub,bothnationalandourregionalgroup,washeavilyinvolvedinthedevelopmentofthenewForestManagementPlanfortheInyoNationalForest(INF).
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TheKutzadikaTribe’sancestrallandsincludetheMammothLakesarea.TheTribewasseatedontheToiyabeIndianHealthProjectBoardformorethan15yearsandisalsorecognizedbylocalfederalagenciessuchastheNationalParkServiceandUnitedStatesForestServiceasapoliticalentitytobeconsultedwithonmajorfederalundertakingsaffectingtheiraboriginallands.TheTribeiscurrentlyseekingfederalrecognition.
TheCaliforniaWildernessCoalition(CalWild)hasbeenworkingtoprotectandrestorethewildestnaturallandscapesandwatershedsonfederalpubliclandssince1976.CalWildhasalonghistoryofinvolvementintheINF,includingtheproposedskiareaexpansionsintheMammoth-JuneLakesregion.Morerecently,CalWildactivelyparticipatedintheentireINFLandManagementPlanrevisionprocesswhichwas[inalizedin2019.
DefendersofWildlife(Defenders)isanational,non-pro[itconservationorganizationdedicatedtoprotectingallwildanimalsandplantsintheirnaturalcommunities.Tothisend,weemployscience,publiceducationandparticipation,media,legislativeadvocacy,litigationandproactiveon-the-groundsolutionsinordertoimpedetheacceleratingrateofextinctionofspecies,associatedlossofbiologicaldiversity,andhabitatalterationanddestruction.Wecurrentlyhavemorethan1.8millionmembersandsupportersintheU.S.,approximately279,000ofwhomresidehereinCalifornia.
SierraForestLegacy(SFL)isaregionalenvironmentalcoalitionwithover25partnergroups.SFLisfocusedontheconservation,enhancementandprotectionofoldgrowthforests,wildlands,at-riskspecies,protectionoftheregion’sriversandstreams,andtheecologicalprocessesthatshapetheforestecosystemoftheSierraNevada.SFLisaleaderinbringingtogetherscientistsanddiverseinterestsonawiderangeofforestissuesincluding[ireecology,fuelsmanagement,protectionofat-riskwildlifespecies,andsocio-economicvaluesassociatedwithpublicforestmanagement.SFLhasbeeninvolvedinprojectsandlandmanagementplanningonnationalforestsintheSierraNevadasince1996.
Foundedin1986,FriendsoftheInyo(FOI)protectsandcaresforthelandsoftheEasternSierra.Our1,000+membersandsupporterscaredeeplyaboutprotectingandmaintainingwildlandsandwildlifehabitat.FOIhasoverthreedecadesofexperienceworkingwiththeINFonNationalEnvironmentalPolicyAct(NEPA)projectsincludingforestplanning,vegetationand[ire,recreation,andtravelmanagement.FOIhasalonghistoryofengagementinseekingtoprotectthewildlifeandwildlandvaluesoftheSherwinInventoriedRoadlessAreaandSolitudeCanyon.WecommentedontheproposedSherwinSkiAreaEnvironmentalImpactStatement(EIS)in1990,andlatersuccessfullyappealedtheINF’sdecisiontopermittheskiarea,whichwasneverbuilt.In2009,weparticipatedactivelyintheSWG,whichproducedtheSHARP.Especiallyoverthelastdecade,wehavebeenastrongpartnertotheINFinstewardshipofMammothareatrails,includingfoundingtheSummerofStewardshipvolunteerevents.Forthefourthconsecutiveseason,wehaveraised
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over$100,000eachseasontoprovidemuchneededtrailwork,LeaveNoTraceeducation,andinterpretiveeventsontheINF.Withthishistoricalcontext,itiswellknownthatwesupportongoingtrailplanningandimplementationeffortsonpubliclandsadjacenttotheTownofMammothLakes(TOML).
Unfortunately,forthereasonssetforthbelow,theorganizationssignedontothisletterdonotsupportthisprojectinitscurrentform.OurgroupsbelievetheForestServicemustre-scopeandprepareanEnvironmentalAssessment(EA)onthelongsectionofmulti-usetrailproposedinSolitudeCanyonandatoptheSherwinRidge.ThegroupsarecomfortablewiththeshortersectionsoftrailintheMammothLakesBasinwestofLakeMaryproceedingbasedonaCategoricalExclusion(CE).
I. TheSolitude-SherwinsTrailwasIdentiDiedbySHARPasNeeding“FurtherStudy”
SolitudeCanyonhasalwaysbeenacontroversiallocationforrecreationaldevelopmentduetothepotentiallysigni[icantimpactsofrecreationaldevelopmentanduseonthisimportantwildlifearea.ThiscontroversydatesbacktotheproposalfortheSherwinSkiArea.FOIsuccessfullyappealedINF’sapprovalofdevelopmentofaskiareabasedonthelikelyimpactsofskiareadevelopmentonwildlife.
Morerecently,theSWG,(inwhichFOIandSierraClubROLGactivelyparticipated),wasconvenedandproducedtheSHARPdocumentin2009. TheSolitudeCanyon1
trail(#19)wasneveridenti[iedasaprioritytrail. TheSHARPfoundthat,becauseof2
therecognizedimportanceofSolitudeCanyontowildlife,theideaofatrailinSolitudeCanyonwasaproposalthatwould“require(s)furtherstudy."The[inalreportsuggestedthedevelopmentofa“SolitudeCanyon/PanoramaDomestudygroup”(p.16 );toourknowledgethisgroupwasneverconvened.3
TheINF’sscopingletterdoesnotarticulatewhyaroutethroughSolitudeCanyonwaschosenabovethemanyotherhigher-priorityprojectsidenti[iedintheSHARP,nordoesitpresentanyalternativestoamultipleuse,class3trailproposedinthissensitivelocation.
II. EnvironmentalIssuesofConcernNecessitatePreparationofan
https://mltpa.org/projects/planning/collaborative-processes/swg-20091
Norwasthistrailidenti[iedintheMammothLakesTrailSystemMasterPlanEnvironmentalImpact2
Report(2011).Seehttps://www.townofmammothlakes.ca.gov/371/Trails-System-Master-Plan
https://mltpa.org/images/downloads/SHARP%20Report%20w%20Appendices.pdf3
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EnvironmentalAssessment
WildlifeSolitudeCanyoniscriticalfortheMammotharea’swildlife.TheINF’sownEIS(1990)fortheproposedSherwinSkiAreathatencompassedSolitudeCanyondocumentedmanyimportanthabitatcharacteristicsandsensitivewildlife.ThestudyconcludedthatSolitudeCanyonplayedacriticalroleinprovidinghighqualityhabitatformanyspeciesofwildlifeinMammoth,especiallytheRoundValleymuledeerherd(calledtheSherwinMuleDeerHerdintheEIS).ThestudyfoundthatthisherdusestheSolitudeCanyonmigrationcorridortwiceayear,inspringandfallasastagingareatoaccessfawninggroundsathighcountrymeadowsalongthecrest.IndeedasmallnumberofdeerdonotmigratetohigherelevationsandresidesummerlongintheSherwinLakes-Solitudearea,withfawningdocumentedinthearea. Thestudyalsofoundthatnoalternativestothismigrationcorridorwere4
apparentbecauseofthesteepruggedterrain.Thestudyindicatedthatdisturbingthiscorridorcouldnegativelyimpactfawnsurvival,andthereforethehealthandvibrancyoftheherd.
TheSherwinSkiAreaDeerStudysummarizesthat“theenormityandimportanceoftheSherwinstagingareashouldnotbeunderestimated.” Asdeerhabitatandthus5
populationnumbershavedeclinedacrossMonoCounty,inparticularduetodevelopmentandhumandisturbance,itiscriticalthatresponsibleagenciesensuretheprotectionoftheherd’smigrationroutesandfawninglocations,aswellasotherkeyhabitatuseareas.TheINFappearstobedismissingthe[indingsofthesepreviousstudies,andwithoutfurtherresearchhasapparentlyanderroneouslywrittenoffthisprojectashavingnosigni[icantimpactstowildlife.
Additionally,appendixDoftheSherwinSkiAreaEISlists33mammalswiththepotentialtooccurinSolitudeCanyonincludingtheimperiledSierraNevadaRedFox,currentlyunderconsiderationbytheU.S.FishandWildlifeServiceforlistingunderthefederalEndangeredSpeciesAct.TheSierramarten,anInyoNationalForestspeciesofconservationconcern, islikelytobefoundhereduetothenearly5006
acresofoldgrowthred[irandmixedconiferforesthabitatpresentinSolitudeCanyon. Theappendixalsolists91birdspecies,andsevenspeciesofamphibians7
andreptileswiththepotentialtooccurinthisarea.Manyoftheseanimalsaredeclininginourmountainenvironmentsandtheintegrityoftheirhabitatneedstobeconsideredbeforeanysigni[icantrecreationprojectisapproved.
SeeSherwinSkiAreaEIS(InyoNationalForest,1990);pp.III-24,Fig.III-8.4
TaylorT.,SherwinSkiAreaDeerStudyFallReport.December1987,pg15.5
Seehttps://www.fs.usda.gov/Internet/FSE_DOCUMENTS/fseprd662714.pdf6
SherwinSkiAreaEIS;p.III-20.7
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AlthoughtheForestServiceshouldutilizetheSherwinSkiAreaEISasbaselineguidancetounderstandexistingwildlifeconcerns,thisdoesnotobviatetheneedformorerecentstudiesanddataontheareafortheForestServicetobeabletomakeaninformeddecision.Thepotentialimpactsofdevelopingaclass3trailneedtobecarefullyconsideredinanareaofsuchsigni[icancetowildlife.WewillnotknowwhattheimpactsofmajortraildevelopmentandhumandisturbancefromtheuseofthistrailmaybeuntilathoroughNEPAanalysisisconducted.
Norisitsuf[icientfortheForestServicetomerelywalka[laggedroutetodeterminethepresenceorabsenceofcertainanimalspeciesalongtheroute.(The[laggingthatpresumablymarkstheproposedtrailisalsoinconsistentwiththeroutedelineatedonthemapattachedtotheagency’sScopingLetter,makingitdif[iculttodeterminewheresurveysforplantsandanimalsmightbeconducted.)Toensuresensitivespeciesandtheirhabitatareprotectedfromharm,detailedstudiesoftheentirecanyonandcrestenvironmentneedtobeconductedthatdeterminesuitablehabitatandthepresenceorabsenceofthesespeciesatkeytimesofyear(e.g.,duringbreedingand/ormigrationseason).
Newstudies areemergingonwildlifeavoidanceanddisplacementinrecreational8
areas. A.R.TaylorandR.L.Knight(2003)haveexaminedwildliferesponsesto9
recreationandhumanactivity.InastudyinnorthernCalifornia,ReedandMerenlender(2008)foundthatprotectedareaswithdispersed,non-motorizedrecreationhad“a[ive-folddeclineinthedensityofnativecarnivoresandasubstantialshiftincommunitycompositionfromnativetononnativespecies”overprotectedareaswithoutrecreation.
Thepossibilityofsigni[icantunavoidableimpactsonwildlifeandwildlifehabitatisonereasonthatmajortrailconstructioninthisareaisinappropriateforaCE.Constructionofmanymilesofnewtrailinaverysteep,erodiblenorthfacingcanyonwithelevationsrangingfrom8-10,000feet,inaninventoriedroadlessarea,isnotacasualundertaking.TheappropriatelevelofenvironmentalanalysismustbeconductedbytheForestServicetoensurethatthisprojectdoesnotirreversiblyharmsensitivespeciesthatoccur,orwhichmayoccur,inSolitudeCanyonandontheSherwinCrest.
VegetationThelastcomprehensivespecieslistforplantsoccurringinSolitudeCanyonwasdevelopedin1973andwasusedintheSherwinEIS.TheEISdocumentedpotentialhabitatforninesensitiveplantspecieswithintheproposedskiarea. TheEISalso10
Snetsinger,S.D.andK.White.2009.RecreationandTrailImpactsonWildlifeSpeciesOfInterestinMount8
SpokaneStatePark.Paci[icBiodiversityInstitute,Winthrop,Washington.60p.
https://journals.plos.org/plosone/article?id=10.1371/journal.pone.01751349
SherwinSkiAreaEIS;p.III-22,TableIII-7.10
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documentedimportantstandsofmixedconiferoldgrowthhabitat,ahabitattype“regionallyscarcealongtheEasternSierra” thatoccursinSolitudeCanyon.11
Aspreviouslymentioned,aclass3trailwillentailsigni[icantgrounddisturbancebothinthetrailcorridorandadjacentareasascrewsworkandbringinmaterials.Whereswitchbacksarerequired,anentireslopemaybeirreversiblydisturbedbytrail-buildingandongoingmaintenanceactivity.AnEAshouldexaminetheproposedtrailalignmentandallplantsthatexistwithinthetrailcorridor/region;theForestServiceshouldalsoconductrareplantsurveysforspecieslikelytooccurintheregion,particularlyinthesensitiveriparianandoldgrowthforesthabitatsthatoccurinSolitudeCanyon.Alpinefell-[ieldhabitat,whichisparticularlysensitivetodisturbance andwhichmayharborrare[lora,isalsowithintheproposedtrail12
corridor.Alternativesmustbeconsideredthatwillminimizetheimpactsofmajortrailconstructiononthearea’svegetationcommunities.
ClimateRefugiaTheimpactsofclimatechangewerenotconsideredamajorfactorintheagencyanalysesof30and40yearsago.Today,climatechangeplaysahugeroleinin[luencingwhereandhowspeciesadapt.Muchresearchhasbeendone,includingbytheForestService,onhowtoidentifyandpreserve“climaterefugia”forspecies. 13
GivenSolitudeCanyon’snorth-facingaspect,itsdiversityofhabitatsincludingriparianandalpineareas,andthefactitisruggedandundisturbed,thecanyonmustbeanalyzedforitspotentialtoplayaroleinprovidingclimaterefugiaforplantandanimalspeciesthataresensitivetotheimpactsofclimatechange.
SoilsandGeologyFOIstaff’s[ieldassessmentsoftheproposedtrailalignment,(asrepresentedby[laggingandGISroutedescriptionprovidedbyTOMLstaff),clearlyindicatethisisatrailthatwillrequireheavyequipmentandsophisticatedtechniquesfortrailconstruction,aswellassigni[icantongoingmaintenance.Therough,steepterrain,includinglargebouldersandunstabletalus[ields,willrequireshoringupandblastingtobuild,andthepresenceofsigni[icantcrewsforyearlymaintenance.Wealsobelieveitposessigni[icantpublicsafetyissues.SeeAppendixA,photos.
Theproposedtrailmovesthroughverysteepslopesthatcontainlooseandunstabletalus.Theagency’sSherwinSkiAreaEIScontains[iguresthatindicateslopesteepnessandstabilitywithinthearea.SeeAppendixA,FiguresIII-1andIII-2.The[iguredepictingslopeanalysis(FigureIII-1)indicatesthatSolitudeCanyoncontainsamixtureofslopeanglesrangingfrom“beginner”(0-20%)to“advanced/
SherwinSkiAreaEIS;p.III-20.11
Seehttps://www.fs.fed.us/psw/publications/millar/psw_2016_millar003.pdf,p.629(mentioning12
mountainbikingasonesourceofhighelevationhabitatdegradation).
https://www.fs.usda.gov/ccrc/topics/climate-change-refugia 13
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expert”(40%+)tocliffs.The[iguredepictinggeologicconditions(FigureIII-2)indicatesmanyareaswithinSolitudeCanyonthatareconsidered“active/unstablerockglaciersortalusdeposits.”TheEISnotes(p.III-4)that:
“4)Talus-TheupperportionsandsideslopesoftheglacialvalleyswithintheSSAarecoveredbytalus.Thesedepositsconsistofangularrockfragments,uptobouldersize,whichcollectatthebaseofsteep,rockycliffs.Activetalusslopesarestillbeingformedandareveryunstable,constantlyadjustingtochangesinslopeconditions.Oldertalusslopesarecurrentlystableandwillremainthatwayaslongastheyarenotdisturbed.5)Stability-MostoftheSSAisinventoriedashavingmoderateorlowlandslidehazardpotential.Twoareas,onejustwestofJudge’sBench,theotheroffthenorthendofSolitudePlateauareinventoriedashavinghighlandslidepotential.WithintheSSAthegreatestslopestabilityriskresultsfromrockfalls,rockavalanches,anddebrisDlows(MerrillandSeeley,1981).”
(Emphasisadded.)
Becausethistrailwillrequirethedevelopmentofswitchbacksinmultiplesections(asthemapaccompanyingthescopingnoticeindicates),bankarmoringandlikelyblasting,itispossiblethatconstructionactivityandongoinghumanuseinthisareacouldtriggerslidesofrockand/orearthduringandaftertrailconstruction.ThepotentialsafetyhazardsoftrailconstructionanduseshouldbethoroughlyconsideredinanEA.Fromourexperiencehikingtheproposedtrail,webelievetheequipmentandtechniquesthatwillbenecessarytobuildandmaintainthetrailwillalsohavesigni[icantimpactstowildlifeduetonoiseanddisturbance.Theimpactoftrailconstructionandongoingmaintenanceonthearea’sunstableanddelicatesoils-nottomentionimpactstowildlifeandvegetation-mustbeadequatelyanalyzedbeforeadecisionismade.ThepublicshouldhavetheopportunitytocommentonthisanalysisthroughpreparationofanEA.
III. TheProposalisInconsistentwiththeInyoNationalForestLandManagementPlan
TheScopingLetterperplexinglycitestheInyoNationalForestLandManagementPlan(LMP)(2019)asproviding“rationaleforproposedtrailimprovements.”AlthoughtheproposedLakeMarytrailsegmentsfallunderthecategoryoftrailimprovements,theSolitudeCanyon/SherwinCresttrailmostcertainlydoesnot-theproposedtraildoesnotconstituteatrailimprovementbut,rather,entirelynewtrailconstruction.
AfterathoroughreviewoftheLMPwefoundnoevidencetosupportthedevelopmentofnewtrails;infact,DesiredConditionsintheforest-widerecreation
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sectionstate:“Newdevelopedrecreationinfrastructure islocatedinecologically14
resilientlandscapes,whilebeing[inanciallysustainable,andresponsivetopublicneeds”(REC-FW-DC07).ItisnotablethattheLMPcallsfornewrecreationinfrastructuretobedevelopedin“ecologicallyresilient”landscapes.SeeLMPChap.2atp.54.Theagency’sownstudiesfortheSherwinSkiAreaindicatethatSolitudeCanyonisinfactanecologically(andgeologically)fragilelandscape.
Overthepast10years,theINFhastakenaconservativeapproachtothedevelopmentofnewtrails,citingconcernsaboutmaintenancebacklogandstaf[ing.TheportionoftheprojecteastofLakeMaryiscompletelyatoddswiththisapproach.Asopposedtoitsdescriptioninthescopingletter,itisinrealityacompletelynewtrail.Notonlythat,itisproposedinsteepruggedterrain,inaninventoriedroadlessareaknowntobesensitivetowildlife.Meanwhile,trailsintheLakesBasinandotherpubliclandsadjacenttotheTOMLrequiretimeandattentionfordeferredmaintenance.Indeedthesearetheprojectsidenti[iedintheSHARPdocumentashavingthehighestpriority.SeeSHARP,page8.Further,theForestServicehasguidanceintheLMP’srecreationPotentialManagementActionsto“Considerimprovingrecreationopportunitiesatexistingfacilitiespriortodevelopingnewones.”SeeLMPChap.2atp.56.
IV. TheScopingLetterisInaccurateandInadequate
TheINF’sScopingLetterisinaccurateinitsdescriptionoftheprojectandisthereforeinadequatetoinformthepublicofthetruenatureandscopeoftheproposal.Theprojectscopeinappropriatelylumpstwodistincttrailprojects,intwodifferentgeographicareas,LakeMaryandSolitudeCanyon,intooneproject.Further,theproposedworkintheareawestofLakeMaryisverydifferentfromtheproposedworkinSolitudeCanyonandontheSherwinCrest.WhiletruefortheshortLakeMarysegments,thescopingnotice’sstatementthat“proposedtrailimprovementsemphasizecreationofnewtrailsinareasofconcentratedandexistinguse”is[latlyuntruefortheSolitudeCanyon/SherwinCresttrail.SolitudeCanyonhasnousetrails(otherthanafewshortanimaltrailswhichtendtobeusedbyinfrequenthumanvisitors),andthecanyoniscurrentlyrarelyutilizedforrecreationinthesummermonths.Infact,SolitudeCanyonisoneofthelastremaining,wildandrelativelyunvisitedcanyonsintheMammotharea.ItisalsotheonlycanyonimmediatelysurroundingMammoththatdoesnothaveanexistingroadortrailinit,thereforekeepingthelevelofhumanuselow,tothebene[itofwildlife.
TheScopingLetterleavesoutessentialinformationincludingthefactthattheproposedSolitude/SherwintrailisinanInventoriedRoadlessAreaandcontainsimportantwildlifespeciesanddiversehabitats.TheScopingLetteralsofailstodisclosethattheproposedtrailalignmentmayimpacthabitatforthreatened,endangeredorsensitivespeciesthatmaybefoundinthisarea,includingSierramarten,AmericanpikaandSierraNevadaredfox;and,theScopingLetterfailsto
The Plan defines national forest infrastructure as "roads, trails and campgrounds" (pg 151).14
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mentiontheimportanceofthiscanyontoregionallysigni[icantmuledeerherds.
TheForestServicealsoincorrectlyimpliesintheScopingLetterthattheSolitudeCanyontrailprojectisnotamajorconstructionproject.Theletterstates“workwillbeperformedusinghandtoolsandasmalltrailmachine,”falselyimplyingtheconstructionofthistrailisnobigdeal.Asindicatedabovebytheagency’sownprioranalysis,constructionofthistrailisamajorundertakingthatmayhaveseriousconsequencesforslopestabilityandpublicsafety.
V. AnEnvironmentalAssessmentisRequired
TheForestServiceshouldprepareanEAonthisproject;thecircumstancesdemandit.UseofaCEforaprojectofthisscope,withpotentiallysigni[icantimpactstowildlife,soilsandotherresources,isplainlyinappropriate.ACEdoesnotallowforthedevelopmentandcarefulconsiderationofalternativestotheproposedaction,includinga“noaction”alternativeandtheconsiderationofdifferenttrailalignmentsand/oralternatesites. Nordoesitadequatelydisclosepotentialimpactsofthe15
proposedaction,therebyallowingthedecision-makertomakeareasonedandinformeddecision.ThattheagencyisproposingaCEforaprojectinanareaofknownsigni[icancecompletelydisregardsthepublic’skeeninterestinthisproposal.And,itdramaticallyreducesthepublic’sabilitytomeaningfullyparticipateintheNEPAprocessatthevariousstagesofanalysis.ByproposingtoissueaCE,theagencyhasmadethisscopingperiodtheonlyopportunityforpubliccommentpriortotheForestServiceissuingadecisiononthiscontroversialproject.
ForestServiceregulationsallowpreparationofCEsexceptwhereextraordinarycircumstancesexist.Twoofthelisted“extraordinarycircumstances”includeprojectsproposedinInventoriedRoadlessAreasandwhereaproposalmayimpactalistedspecies,includingspeciesproposedforlistingandForestServicesensitivespecies.See36C.F.R.220.6(b)(1)(i)&(iv).Weunderstandthatthereare“exceptions”totheextraordinarycircumstancesrule,however:
“Itistheexistenceofacause-effectrelationshipbetweenaproposedactionandthepotentialeffectontheseresourcesconditions,andifsucharelationshipexists,thedegreeofthepotentialeffectofaproposedactionontheseresourceconditionsthatdetermineswhetherextraordinarycircumstancesexist.”
36CFR220.(b)(2).TheForestService,inissuinganincompletescopingnoticeandproposingtouseaCEratherthantoevenconsiderwhetheranEAmaybewarranted,hasclearlynotdoneitsduediligencetodeterminethereisnocause-
Forexample,sinceitappearspartoftheintentofconstructingthistrailistocreatea50mile15
“ultra”loopformtnbikersandrunningevents,thereisanalternative:“IfthissectionisfoundunusablebytheForestService,theloopcouldbeconnectedviaOldMammothRoad.”Seehttps://thesheetnews.com/2019/03/20/one-trail-to-rule-them-all/
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effectrelationshipbetweentheproposedactionandpotentialimpacts,inparticulartosensitivewildlifespeciesthatinhabitthisarea.
The“extraordinarycircumstances”requirementsalsoarenotexhaustive.73Fed.Reg.at43091statesthat:
“Theextraordinarycircumstancesrequirementsincludealistofresourceconditionsthat‘should’beconsidered.‘Should’isusedinsteadof‘shall’because‘should’underscoresthatthelistisnotintendedtobeexhaustive.ThelistofresourceconditionsisintendedasastartingplaceanddoesnotprecludeconsiderationofotherfactorsorconditionsbytheresponsibleofDicialwiththepotentialforsigniDicantenvironmentaleffects.”
(Emphasisadded.)Thus,theForestServicecanandshouldconsiderotherenvironmentalfactorsbesidesthoselistedin36CFR226(b)(1),suchasgeologicalhazardslikeslopestabilityandthepotentialforrockslidesandimpactstopublicsafety.Theregionallysigni[icantmuledeerherdshouldalsobeconsideredasan“extraordinarycircumstance”warrantingpreparationofanEA.
WeareawarethattrailconstructionmaybeallowedunderCEs;see36CFR220.6(e)(1). However,theresponsibleofBicialhastheauthorityandthediscretionto16
requirethatanEAbeprepared.And,inthisspeci[icinstance,theagencynotonlyhasthediscretionbutthedutytoprepareanEAbasedonthepotentialforsigni[icantimpacts,includingthreatstotheenvironmentandpublicsafety.Whetherornotonesupportsthedevelopmentofthistrail,anEAmustbepreparedthatensurestheproperlevelofanalysisisconducted,impactsarefullydisclosed,reasonablealternativesareprovided,thatallowsformeaningfulpubliccommentandwhichprovidesaclearbasisforchoiceamongalternativesbythedecision-maker.
NEPAdirectsthatanEAbepreparediftheimpactsofaproposalontheenvironmentmaybesigni[icant.TheForestServices’sNEPAregulationsalsodirecttheFSto:
“(c)Scoping.IftheresponsibleofDicialdetermines,basedonscoping,thatitisuncertainwhethertheproposedactionmayhaveasigniDicanteffectontheenvironment,prepareanEA.”
(Emphasisadded.)36CFR220.6(c).ItisabundantlyclearinthiscasethatanEAiswarranted.AnEAwillhelpdetermineifanEISisrequired.Aswehaveshownabove,impactstowildlifeandotherresourcesderivingnotonlyfromconstructionbutalsoanticipatedusesofthetrail could,indeed,besigni[icant.17
Althoughtheexamplesgiveninthissectionoftheregulationsinclude“constructingor16
reconstructingatrailtoascenicoverlook”and“reconstructinganexistingtrialtoallowusebyhandicappedindividuals;”constructingamajornewtrailinanIRAishardlyofthesameilk.
Seehttps://thesheetnews.com/2019/03/20/one-trail-to-rule-them-all/17
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Finally,theproposedtrailthroughSolitudeCanyonisnotwithoutcontroversy.ThetrailupthroughSolitudeCanyonwascontroversialwhenitwas[irstproposed,intheSHARPgroup.Inpartduetothatcontroversyitwasnoteverdesignatedasa“prioritytrail,”includingintheMammothLakesTrailSystemMasterPlanEIR.Therehavebeenmanyrecentpostsonsocialmediaabouttheproposedtrail,withmanypostersexpressingconcernaboutenvironmentalimpacts.ThecontroversysurroundingthistrailprojectindicatesthatanEAshouldbeprepared.
VI. Conclusion–AnEAMustBePreparedfortheSolitudeCanyon/SherwinCrestArea
RegardingtheSolitudeCanyon/SherwinCrestportionoftheproposedproject,asdescribedindetailabove,anEAmustbeprepared.Theareaprovidesimportanthabitatforsensitivespecies,includingpossiblythreatened,endangeredandForest-sensitivespecies.Theproposalencompassessteep,rugged,highterrainwithunstabletalusslopesandlargebouldersthatwillrequiresubstantialearth-movingandpossiblyblastinginageologicallyhazardousarea.Acommunityworkinggroupdeterminedthatrecreationaldevelopmentinthearearequired“furtherstudy;”indeed,anyrecreationaldevelopmentinthisareawithouttheproperlevelofNEPAtoensuretheregion’swildlifeareadequatelyprotectedwillbecontroversial.
Toenableworktobeginonthenon-controversialtrailsegmentsintheLakesBasinwestofLakeMary,andtoprotecttheecosystemandwildlifeofSolitudeCanyonandtheSherwinCrest,theobviousbestcourseofactionistosplittheprojectcurrentlyproposedinthescopingletterintotwodistinctprojects
First,themuchneededtrailimprovementswestofLakeMaryshouldmoveforwardunderaCE.Second,theForestServiceshouldreissueascopingletterfortheSolitude/SherwinCrestportionthataccuratelydescribestheproposedproject,includingthatthetrailisproposedwithinanIRAwhichisimportanttoareawildlife;thatitischaracterizedbysteep,looseterrainthatwillnecessitatesophisticatedtrailbuildingtechniquesandheavyequipment;andthatitwillrequiresigni[icantongoingmaintenance.TheEAshould“rigorouslyexploreandobjectivelyevaluate”allreasonablealternativessothatawell-reasoneddecisioncanbemade.
Splittingthecurrentproposedprojectassuggestedwouldbea“winwin”fortherecreationalandenvironmentalcommunities.TheLakesBasintrailimprovementscangoforwardwhiletheSolitudeCanyon-SherwinCrestportionofthisproposalissubjecttotherobustenvironmentalanalysisitmerits.
ThankyouagainfortheopportunitytoprovidecommentsontheLakesBasinandSherwinsAreaTrailEnhancementProject.PleasedonothesitatetocontactWendySchneider,ExecutiveDirector,FriendsoftheInyo,withanyquestions.
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cc:John“Pancho”Smith,ActingForestSupervisor,InyoNationalForest([email protected])
/s/CharlotteLangCharlotteLangKutzadikaTribe
WendySchneiderExecutiveDirectorFriendsoftheInyo
SusanBrittingExecutiveDirectorSierraForestLegacy
LynnBoultonChair,RangeofLightGroupToiyabeChapter,SierraClub
PamelaFlickCaliforniaProgramDirectorDefendersofWildlife
KristopherHohag,M.Ed.SeniorOrganizerRepresentativeSierraClub
LindaCastroAssistantPolicyDirectorCaliforniaWildernessCoalition
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