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FOREST SERVICE MANUAL
DENVER, CO
FSM 2300 - RECREATION, WILDERNESS AND RELATED RESOURCE MANAGEMENT
R2 Supplement No. 2300-94-1
Effective June 15, 1994
POSTING NOTICE. Supplements to this title are numbered consecutively. Post by document
name. Remove entire document and replace with this supplement. Retain this transmittal as the
first page of this document. The last supplement to this Manual was Supplement 2300-93-7 to
2350.
Page Code
2322.1 through 2323.13g
Superseded Sheets
3
Supplements Covered
R2 Supplement 116, 06/88
Document Name
2320.1-2323.26b
Digest:
Updates Chapter to electronic format.
ELIZABETH ESTILL
Regional Forester
New
(Number of Pages)
6
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TITLE 2300 - RECREATION, WILDERNESS, AND RELATED RESOURCE
MANAGEMENT
2320 - WILDERNESS MANAGEMENT.
2322.1 - Wilderness Implementation Schedules. Implementation scheduling is the process of
identifying, analyzing, and selecting activities and/or projects to implement the Forest Plan. The
schedule will be for at least 3 years and be incorporated as an amendment to the Forest Plan.
Forest Supervisors shall annually evaluate the schedule and update it as necessary. The
Wilderness Implementation Schedule will be displayed as a table which includes a generalized
priority for accomplishment, description of the action and its location, target date for completion
and the unit and/or position responsible for completing the action. See Sample A. The table may
include other optional entries such as estimated cost, output, revenue, etc. All process
documentation leading up to the Schedule will be retained in the respective Wilderness case
folder file (2320) and is not a part of the Forest Plan amendment.
Activity (or project) identification will occur through an integrated area wide analysis process.
Generally, the area will be an individual wilderness, plus areas adjacent to it that have a direct
relationship with it, such as access points to the wilderness. The area analysis process is not
development of another "plan". It is an assimilation of current issues and site-specific data to
produce additional information for activity (or project) implementation. The objective is to
select a cost efficient set of activities to change the existing condition on a wilderness to the
planned condition identified in the Forest Plan.
The following steps will generally be needed to complete the analysis and Schedule.
1. Coordinate analysis with all Forests and Districts responsible for administering the area.
The Schedule will be for the total wilderness. The "lead" responsibility for wildernesses
encompassing more than one National Forest is the same as for the Forest Plan.
2. Keep the public fully informed and involved. Use the NEPA scoping process to
determine significant issues, concerns, and other information about the area and the activities
being considered. At the outset, permittees (grazing, SU, etc.) right holders (private land, valid
mining claims, etc.), and wilderness advocate organizations and individuals will be notified of
the pending process. During scoping it is essential to have person-to-person contact with those
likely to be affected by our actions. Public involvement is an on-going process throughout the
activity identification analysis and execution.
3. Use an interdisciplinary approach. Wilderness is not the "domain" of the recreation
specialists. Values and understanding embodied in many disciplines are needed in order to
administer wilderness for the "... use and enjoyment of the American people in such manner as
will leave them unimpaired for future use and enjoyment as wilderness, and so as to provide
for the protection of these areas, the preservation of their wilderness character, and for the
gathering and dissemination of information regarding their use and enjoyment as wilderness...."
(Wilderness Act of 1964)
4. Compare existing versus planned conditions. From this comparison the ID Team
identifies the management direction, standards and guidelines that are most in need of correcting.
These will become the management concerns for the process and will provide the impetus for
identifying activities and projects. Primary Forest Plan factors that may need to be reviewed are:
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* Air quality (nQRV).
* Carrying capacity - outfitted/nonoutfitted use, use
patterns, user conflicts, dogs, group size,
opportunities for solitude.
* Recreation Impacts - campsite condition, trail
conditions, etc.
* Cultural resources.
* Educational and information program for users.
* Ecosystem Maintenance.
Fire management.
Insect and disease.
Forage use - livestock and transportation stock,
noxious weeds, facility maintenance,
Fish and wildlife - research, facilities, T&E
species, population sampling, chemical treatment, spawn taking, fish planting, stocking,
transplanting, aerial stocking, control of problem animals, visitor management to protect wildlife.
* Land ownership adjustment.
* Law enforcement.
* Monitoring requirements in Forest Plan.
* Regulations - 36 CFR 261.5.
* Restoration - soil disturbance.
* Signing.
* Structures and Facilities - maintenance or removal.
* Transportation system - maintenance, construction,
reconstruction, access to private right locations, bridges.
* Trailheads and access.
* Volunteer program.
* Water quality.
Few, if any, Implementation Schedules deal with all these factors. Conversely, there may be
factors not listed here that need consideration. (See Forest Plan, Forest Direction B02,
Management Area Prescriptions 08A, 08B, 08C, and 08D)
In some instances additional data may be needed to compare existing and planned conditions. If
significant funding and time are needed for data collection, that in itself may be an activity
identified in the Schedule.
5. Identify potential activities. This step is to identify potential activities or projects needed
to reach or maintain the planned condition rather than select the final activity.
6. Analyze effects and develop Schedule activities. The analysis estimates the effects and
feasibility of activities (or projects) against the planned condition, resolution of issues and the
potential planned conditions. The activities should be staffed out until they are implementable
and feasible. They are then listed on the Wilderness Implementation Schedule with priorities,
based upon potential funding availability in out-years. General priorities are suggested, such as
first, second and third so limited funds can be allocated to the most important activities.
7. Determine NEPA disclosure. Many of the activities, and in some cases the whole
Schedule, may have effects which were disclosed in the Forest Plan EIS or the effects may be
categorically excluded from documentation because they are not significant. For other activities
documentation in an environmental assessment (EA) may be needed to determine significance.
8. Other Schedules. Any trail construction and/or reconstruction projects identified on the
Wilderness Implementation Schedule should be carried forward to the Forest Plan Trail
Implementation Schedule.
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9. Annual and/or Program Budget. The Implementation Schedule is used to develop the
annual Program Budget. Including the estimated cost in the Schedule is optional, but, cost
determination would obviously be accomplished in the analysis leading up to it. The estimated
costs need to be carried forward into the Annual and/or Program Budgeting documents used on
the respective Forest(s).
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SAMPLE A
PAGE
1
OF 5
WILDERNESS IMPLEMENTATION SCHEDULE
Snag Mountain
PRIORITY
WILDERNESS,
ACTIONS (OR PROJECTS) AND
LOCATION
Wyoming
NATIONAL FOREST(S), DATE 6-5-88
OPTIONAL ENTRIES
RESPONSIBILITY
TARGET FOR
UNIT AND/OR
ESTIMATED OUTPUTS REVENUE
COMPLETION
POSITION
COST ($)
RVD'S
($)
1
Inventory Big Red Lakes campsite
density and conditions. Establish
a schedule for an ongoing inventory system. Review campsite
density against standards and
guidelines for Forest direction
0628. Plan action for compliance.
FY 89
District A
300
1
Close and rehabilitate sites in class
4 & 5 at Big Red Lakes
FY 89
District A
500
2
Inventory String-of-Lakes travel
zone campsite density and
condition. Close and rehabilitae
class 4 & 5 campsites.
FY 90
Distirct B
500
1
Complete portal signing at; Shallow
Creek trainhead
Whimp Mountain trailhead
Bushy ridge treailhead
FY 89
FY 89
FY 89
District B
District A
District C
700
600
700
1
Maintain Visitor Registrys weekly at
all sites with protal signing (Use
volunteers)
FY 89
All districts
2
Survey and mark boundary along
east side of Section 35, T6N, R96E
(Potential encroachment from
adjacent private lands)
FY 90
Forest Engineer
1700
2
Reanalyse Moose Meadow C&H
allotment and update management
plan.
FY 91
Range Consv.
District A
1000
3
Trail reconstruction on Shallow
Creek trail between Red Creek and
Tall Peak junction (2.3M)
Planning
Reconstruction
FY 88
FY 89
District B
District B
FY 89
SO Rec Staff
FY 88
FY 89
SO Lands Staff
SO Lands Staff
1
Develop Snag Mountain
Wilderness Brochure
2
Obtain ROW for Brushy Ridge Trail
across Myers land.
Appraisal & Negotiation
Acquisition
Ann. 500
400
26,000
350
1500
?
2323.13g - Outfitter and Guide Operations. Outfitting and guide services may be permitted when
compatible with the opportunities for solitude or primitive types of recreation and the use is
within the assigned carrying capacity of the area. The type, number, and amount of recreation
use that is allocated to outfitters should be determined during the environmental analysis process
and should be based on the requirements in the Forest Plan.