Lolo National Forest Plan Amendment #38

Lolo National Forest Plan Amendment #38 Welcome Creek Wilderness Opportunity Classes and Standards USDA Forest Service, Lolo National Forest Missoula Ranger District Granite County, Montana July 2012 I. INTRODUCTION This Forest Plan Amendment would modify Management Area 12 of the 1986 Lolo National Forest Plan to include measures of quality to maintain social values and the opportunity for a quality wilderness experience in the Welcome Creek Wilderness. For visitor use and other resource management, this amendment would establish and designate three Opportunity Classes (OCs) to broadly describe natural resource, social, and managerial settings for the WCW. Indicators would be established for each OC to identify, through a systematic method of monitoring, change in the WCW to determine if management actions would be necessary to maintain or restore the wilderness character of the area. This amendment would also change the standard for overnight use to remove wording which allows for caching of supplies and supplemental feed for groups using riding or pack animals for prolonged trips (see Appendix B, for a description of Opportunity Classes, solitude and wilderness character standards, and changes to the language of the existing WCW Standard #2). II. RATIONALE FOR FOREST PLAN AMENDMENT Public use on the Lolo National Forest, including the Welcome Creek Wilderness, has increased and is likely to increase in the future. The landscape will also continue to change from natural events and stressors (i.e. weeds, wildfire, wind and insect events, and climate change). In order to preserve solitude and wilderness character it is necessary to amend the current Forest Plan standards that protect wilderness character and to recognize that wilderness is a dynamic system with resource conditions that change. This amendment would provide a systematic method of monitoring and documenting change and evaluating those changes in order to protect wilderness character for the enjoyment of future generations. This amendment would not change the Welcome Creek Wilderness boundary or acreage, or establish new regulations for the wilderness area. 1

III. PURPOSE AND NEED FOR AMENDMENT A. National Assessment The 1964 Wilderness Act established a National Wilderness Preservation System for the permanent good of the whole people and for other purposes, and allowed Congress to designate areas as wilderness that shall be administered for the use and enjoyment of the American people in such a manner as will leave them unimpaired for future use as wilderness, and so as to provide for the protection of these areas. Congressionally designated wildernesses now represent some of the most natural, undisturbed, and ecologically significant places in America and, indeed, the world. The Forest Service has been entrusted with stewardship of more than 400 units in the National Wilderness Preservation System totaling some 35.3 million acres. In 2003, as part of an evaluation of stewardship efforts, the Forest Service discovered that only 18 percent of the 406 wildernesses under its care were managed to a minimum stewardship level. To respond to this finding, the Forest Service initiated the 10-Year Wilderness Stewardship Challenge in 2005 in order to bring every wilderness area to a minimum stewardship level by the 50 th Anniversary of the Wilderness Act in 2014. The Wilderness Challenge identified 10 elements for managing fire, weeds, wilderness character, and other wilderness resources and uses (see Appendix C). In a five year assessment, the Forest Service found that nationally the agency had improved from 44 wildernesses managed to a minimum stewardship level in FY 2005 (or 10.8% of all wildernesses) to 122 wildernesses managed to this level in FY 2009 (30.0% of all wildernesses). Region 1, met minimum stewardship levels on approximately 85% of its wilderness areas (Lubrecht Report, 2010). B. Welcome Creek Wilderness Assessment The Welcome Creek Wilderness (WCW) on the Lolo National Forest (LNF) is part of the National Wilderness Preservation System. The WCW lies in the Rock Creek drainage about 25 miles east of Missoula, Montana (see Appendix A, Vicinity Map). This 28,135 acre area was designated as a Wilderness on February 24, 1978 (PL95-237). Management standards for the WCW were established in 1986 in the LNF Plan. These standards are described in the Plan under Management Area 12 (LNF Plan pgs. III 53-55). During its efforts to address the findings of the 2003 evaluation, the Forest found that several of the 1986 standards were out of date and needed to be changed to address current conditions and uses and agency direction. For example; the standards in the LNF Plan that protect opportunities for solitude or primitive and unconfined recreation are brief and do not address trail maintenance, campsite condition or density, or crowding. One standard in the plan allows caching of livestock rations in the WCW in advance of a trip. This activity is now prohibited under Forest Service policy (FSM 2323.13g). Between 2005 and 2011, the Lolo National Forest implemented several projects to bring the Welcome Creek Wilderness up to the minimum stewardship level; which it now meets. However, the Forest Plan still does not provide adequate direction to maintain the desired wilderness characteristics. In order to 2

preserve the solitude and the wilderness character of the Welcome Creek Wilderness and to address the 10-Year Wilderness Stewardship Challenge, the Forest identified the need to amend the Forest Plan to provide for measures of quality that protect the characteristics associated with wilderness while also recognizing that wilderness is a dynamic system with resource conditions that change. The Forest identified that the first step in this process would be to define Opportunity Classes (OCs) which broadly describe natural resource and social conditions of the wilderness, as well as appropriate management responses. Indicators and standards that are established for each OC would help to determine how much change is desirable and if management actions are necessary to maintain or restore the desired condition of the area. Because solitude is generally available in the WCW and is not currently affected by public use, the Forest recognized that there was no need to make changes to current conditions experienced by the public or establish additional regulations inside the WCW. However, public use is increasing and resource conditions have been recently affected by large fires (Alder and Sawmill Fires). Amending the Forest Plan would provide a systematic method for monitoring and documenting ongoing and future changes in the WCW so that means to protect solitude and wilderness character are available. This amendment would increase stewardship levels for Element 5 (adequate direction, monitoring, and management actions to protect opportunities for solitude or primitive and unconfined recreation), and Element 8 (adequate direction in the Forest Plan to prevent degradation of the wilderness resource) as described in the Wilderness Challenge (see Appendix C). Amending the plan s standards would address the desired condition of the WCW by protecting wilderness character for the enjoyment of future generations. These standards would be monitored in the field to determine if solitude and wilderness conditions are changing and what, if anything should be done to protect these characteristics. IV. REASONS FOR CATEGORICALLY EXCLUDING THIS FOREST PLAN AMENDMENT A. Category of Exclusion This Forest Plan amendment would be categorically excluded from documentation in an Environmental Impact Statement (EIS) or Environmental Assessment (EA) because it falls within a category of action listed in 36 CFR 220.6 (e) (16) Land management plans, plan amendments, and plan revisions developed in accordance with 36 CFR part 219 et seq. that provide broad guidance and information for project and activity decision making in a NFS unit. This amendment would provide broad guidance for management of the Welcome Creek Wilderness. The Opportunity Classes established by this amendment would serve as a framework to monitor the effects of wilderness use and help to determine when site specific actions were needed. Specific actions necessary to implement this amendment, such as trail decommissioning, would be analyzed and decided upon on a case by case basis. This amendment would not change the schedule of wilderness management practices described on Page III-55 of the Forest Plan. This amendment would modify management on 28,135 acres. Amending management of this area would be a very small portion of the Forest as a whole, equating to less than 2 % of the Lolo National Forest. The overall goals, objectives, and outputs described in the Forest Plan would not change significantly as a result of this amendment. Recreation opportunities and commodity outputs, including timber production would not change as a result of this amendment. Changes to wilderness management as specified in this 3

amendment would be minimal and would be consistent with the current Forest Plan Standards for Management Area 12. B. Relationship to Extraordinary Circumstances Based on a review of the resources described in 36 CFR 220.6(b) this amendment would not adversely affect wilderness resources or wilderness character. No other resource conditions, including past, present, and reasonably forseeable or cumulative effects are present that would lead to extraordinary circumstances that might cause this amendment to have significant effects. Table 1 provides specific information supporting the conclusion that there would be no significant cumulative effects from this amendment. Based on these findings, the effects on the quality of the human environment would not individually or cumulatively be significant; therefore, this action can be categorically excluded from documentation in an EA or EIS. TABLE 1. EXTRAORDINARY CIRCUMSTANCES REVIEW [36 CFR 220.6(b)] a. Federally listed threatened or endangered species or designated critical habitat, species proposed for Federal listing or proposed critical habitat or Forest Service sensitive species. Direct, indirect and cumulative effects have been analyzed in the Biological Evaluations (BE) or Biological Assessments (BA). WILDLIFE: Findings in the BE/BA show implementation of this forest plan amendment would have No Effect on threatened or endangered species including Grizzly bear or Lynx. This project would have No Impact on the Peregrine falcon, Gray wolf, Bald eagle, Northern goshawk, Flammulated owl, Common loon, Harlequin duck, Black-backed woodpecker, Northern bog lemming, Townsend s big eared bat, Fisher, Wolverine, Coeur d Alene salamander, Boreal toad or Northern leopard frog. FISHERIES: Findings in the BE/BA show implementation of this forest plan amendment would have no effect on endangered bull trout and no impact for the sensitive westslope cutthroat trout. BOTANY: Findings in the BE/BA show this amendment would have no effect on threatened plants and no impact on sensitive plants. b. Flood plains, wetlands, or municipal watersheds. c. Congressionally designated areas, such as wilderness, wilderness study areas, or national recreation areas. There would be no net loss of wetlands or current flood plains. The area is not in a municipal watershed. The area is not located within a wilderness study area, or national recreation area. This area is located within a wilderness area. However, this forest plan amendment would not adversely affect the wilderness resources or characteristics. 4

d. Inventoried Roadless Areas The area is not located within any inventoried roadless areas. e. Research Natural Areas The area is not located within any research natural area. f. American Indian or Alaska Native religious or cultural sites g. Archeological sites, or historic properties or areas Analysis completed by the Lolo National Forest Archeologist concluded that there are no known cultural sites within the area that are significant to American Indians. Analysis done by the Lolo National Forest Archeologist determined that this forest plan amendment would cause no effect to historic properties (CFR 800.4(d)(1)). C. Finding of No Significant Environmental Effect The NFMA requires the decision maker to determine whether the amendment will result in a significant environmental effect and thus require preparation of an environmental impact statement (36 CFR 219.13). Based on the analysis and other information provided in Table 1, this amendment would not create significant environmental effects. V. PROVISION FOR SUSTAINABILITY, DIVERSITY, MULTIPLE USES, AND TIMBER A. Sustainability This amendment would further the goals of the Lolo Forest Plan (page III-37) and the agency s 10-Year Wilderness Challenge to sustain the natural character of the Welcome Creek Wilderness. Within this amendment, three Opportunity Classes would be used to identify desired resource settings and to maintain or restore ecological integrity and wilderness character if affected by public use or natural events. Furthermore, factors, indicators, and standards for public education, trail condition, use and user experience, regulatory compliance, vegetation (including insect outbreaks and noxious weeds), fuels and wildfire management, and wildlife habitat would allow for sustainable management of the wilderness including natural ecological processes (see Appendix B). For example, unauthorized trails, if developed, would be decommissioned and re-naturalized to maintain soil stability and reduce the potential for erosion and weed spread. By eliminating user created trails, the areas natural character and potential for wilderness solitude could be maintained. Trail standards in the amendment address Best Management Practices to ensure that water quality, soils, riparian areas, and ecosystem integrity are maintained. Trail standards for maximum sustainable grades would reduce the potential for trail erosion, and align trails appropriately for their intended use levels. Factors for education, use and user numbers, and regulatory compliance established by this amendment would ensure that visitors to the Welcome Creek Wilderness could enjoy the natural environment and solitude they typically come to experience in a wilderness setting. For example, while formal education trips would generally be limited to Opportunity Classes 2 and 3 (along authorized trails), small groups 5

could be permitted away from the trail system in Opportunity Class 1 if the education objectives could not be met in OC 2 and 3. The amendment s provisions for education and use levels ensure that there are adequate opportunities to connect the public with nature and protect the ecological sustainability of the Welcome Creek Wilderness. B. Diversity of Plant and Animal Communities This amendment would ensure that both ecosystem integrity and diversity could be maintained in the Welcome Creek Wilderness. The amendment tiers to the 2007 Lolo National Forest Noxious Weed Management Plan and the Lolo National Forest Wildfire Guide Direction and Fire Management Plans, both of which were designed to ensure the natural integrity of the Forest. Existing direction in the Forest Plan (page III-54), already prohibits vegetation manipulation, and reintroduction of wildlife species in the wilderness. As displayed in Table 1, this amendment would have no effect or impact on Threatened, Endangered, and Sensitive plant or wildlife species. Because wilderness areas are important to maintaining large landscapes that are essential for connecting populations to provide genetic diversity, this amendment would further efforts to ensure the viability of wide ranging and migratory species. No plant or wildlife species of concern are known to specifically occupy the Welcome Creek Wilderness. C. Multiple Uses In addition to wilderness experiences, the Lolo National Forest provides for a variety of public uses including motorized and non-motorized recreation, wildlife, water, range and commercial timber production. Approximately 360,000 acres (16%) of the Lolo National Forest are allocated to Wilderness or are proposed for Wilderness designation (Management Area 12). This amendment would not change the amount or distribution of multiple uses identified in the 1986 Lolo Forest Plan. No additional acres of wilderness would be established by this amendment. No acres of wilderness would be reduced. This amendment would ensure that the characteristics of the Welcome Creek Wilderness could be maintained for perpetuity. D. Timber Requirements Based on NFMA Timber harvest in the Welcome Creek Wilderness is not permitted. Management Area 12 is classified as unsuitable for timber production. This amendment would not change the suitability of this area for timber management. VI. APPLICABILITY TO APPROVED PROJECTS AND ACTIVITIES As displayed in Appendix B, no new standards would be applied to outfitters and guides under this amendment. Ongoing permits and special uses and activities would be administered through the Missoula Ranger District Outfitter Guide Policy. VII. APPLICATION OF BEST AVAILABLE SCIENCE The management methods described in this Forest Plan amendment have been determined to be effective in meeting minimum wilderness stewardship levels and are consistent with the Best Available Science for managing wilderness areas (http://www.wilderness.net). The Rattlesnake Wilderness, located on the 6

Missoula Ranger District, has been successfully managed with Opportunity Classes and standards for the last 20 years. An example of how this process is used is: if a campsite is growing in size, multiple fire rings are appearing and trash is accumulating to the point that the campsite is out of a set standard, wilderness rangers clean up the site, pack out the trash and naturalize and/or re-vegetate some of the fire rings and parts of the campsite where vegetation may have been lost or damaged. Similarly, if monitoring indicates that new campsites are being developed and the number of visible sites between campsites exceeds the OC standard, wilderness rangers naturalize some of the campsites to bring the campsite density back into standard. The proposed system strives to provide quality recreation experiences for the public and protect natural resources by maintaining the character of the area. VIII. EXPERIMENTAL FORESTS AND RANGES There are no Experimental Forests or Rangelands established within the Welcome Creek Wilderness. Because no ground disturbing activities would occur, this amendment would have no effect on ongoing studies in the wilderness area. IX. PUBLIC INVOLVEMENT In addition to analysis conducted by a Forest Service interdisciplinary team, public scoping for this Forest Plan amendment was initiated in May 2012. A legal notice describing the proposed action and soliciting comments was published in the Missoulian newspaper on May 11, 2012. The Lolo National Forest issued a press release on May 14, 2012 and the Missoulian newspaper printed an article about the proposal on May 15, 2012. The project was also published within the Lolo National Forest Schedule of Proposed Actions (SOPA) that lists actions that will begin or are currently undergoing environmental analysis and documentation in May 2012. The project proposal was sent to individuals, organizations, and agencies at 191 e-mail and 223 standard mail addresses for a 30-day comment period. Five comments were received three of which supported the proposal. Specific concerns or statements expressed in the public comments received during public scoping are summarized below along with the Forest s response: 1. Comment: It is obvious to me that the proposal to define opportunity classes to amend the Lolo National Forest Plan to include standards for the protection of wilderness character in the WCW is not necessary and unwanted. Your own proposal states, since solitude is readily available in the WCW and is not currently affected by the high public use, the proposal would not make any changes to current conditions experienced by the public or incur the need for additional regulations inside the WCW. Agency Response: Use of public lands, including the Welcome Creek Wilderness, is likely to increase in the future. In order to preserve current levels of solitude experienced by the public and continue to protect the wilderness character of the WCW it is important to develop and implement measurable standards that protect the character of the WCW. The WCW Forest Plan Amendment would provide a systematic method to monitor and document recreational use, especially as use increases, and to evaluate changes to wilderness resources with the ultimate goal of protecting wilderness character for the enjoyment of future generations. 7

2. Comment: The Lolo National Forest should be managed for multiple-use, not some vision of solitude surrounding the WCW. This is nothing more than giving the Missoula Ranger District a reason in their mind to decommission the only road that gives public access to the area. In this way they would be able to call it roadless and therefore expand its boundary. This systematic method will surely bring restriction of some kind just to show the public that your on the job. Agency Response: The amendment would neither decommission roads nor expand the wilderness boundary. Wilderness boundaries can only be designated or changed by public law. Existing recreation opportunities would continue to be available to the public. The Lolo National Forest is managed in accordance with the standards and guidelines of the 1986 Lolo National Forest Plan, which addresses a wide range of land management activities and public uses. The overall Forest-wide management goals identified in the Forest Plan provide for indigenous wildlife habitat, recreation, timber yields, high water quality, and a pleasing and healthy environment. The Lolo National Forest provides a diverse array of recreation opportunities to the public including both motorized (outside of wilderness) and non-motorized activities. 3. Comment: I would like to be on the review planning committee Agency Response: Formation of a review planning committee was not proposed. The public s opportunity to participate in this amendment was during the 30 day scoping period. Public participation in the NEPA process was encouraged and comments were welcomed. 4. Comment: Trail clearing widths of 6-8 for a 1 ½ wide trail in Opportunity Class 2 are too wide for trails maintained to accommodate a light to moderate amount of use. Trail brushing width in Opportunity Class 3 should be greater than 6 and trail clearing width less than 6. Agency Response: Trail clearing widths in Opportunity Class 2 are 3-4 feet wide and tread widths are 12 18 wide in order to accommodate a light to moderate amount of use. A 6 foot clearing width in Opportunity Class 3 is intended to accommodate a relatively heavy amount of use, including hikers and also pack stock which can be up to 6 feet wide in themselves if equipped with panniers or manties. Standard clearing widths, including brushing, on mainline trails that receive high levels of use is a minimum of 6 8 foot in accordance with Forest Service trail clearing specifications. This amendment would allow for a clearing width of 6 in Opportunity Class 3 and does not propose to change standardized trail clearing specifications. 5. Comment: In Opportunity Class 2 and 3, why are all user built or maintained trails obliterated and naturalized? User built or maintained trails may also serve as traditional game trails and may be better than trails to be built. Agency Response: Only unauthorized trails built and or maintained illegally by people (trail users) would be decommissioned in order to protect the natural and social resources found within the WCW. The construction, maintenance, and use of user created trails has, over time, the potential to adversely impact vegetation, soil, water, fisheries, and wildlife, as well as impact the WCW s wilderness character. Game trails are not user-created trails and would not be decommissioned. This Forest Plan Amendment would not authorize the construction of new trails or relocation of existing trails to follow alternate routes. 8

6. Comment: No new fees should be charged for formal education trips, non-fee permits should be used instead. Agency Response: This Forest Plan Amendment would not change the current permitting process and fee structure for formal education trips into the Welcome Creek Wilderness. Non-fee education trips that are not commercially outfitted and or guided are not charged fees, and are not required to be permitted. All commercially outfitted and guided education trips must be authorized by permit to operate on National Forest System lands and applicable fees may be assessed as required by Forest Service policy. 7. Comment: The existing direction in the Lolo National Forest Plan for management of the Welcome Creek Wilderness, MA 12 pg. III-54, provides the following direction: No vegetation manipulation projects will be considered for wildlife or fish. What about all the trail enlargement projects you have listed in the proposal. Wildlife and plant life manipulation re-evaluation needs to be discussed wildlife travels old trails and feeds along the way. Agency Response: This amendment would not authorize the enlargement of trails. Trail clearing and brushing described by each Opportunity Class would only address routine maintenance that occurs on an annual basis according to standard Forest Service trail clearing specifications. Game trails would not be decommissioned and wildlife would continue to be able to use authorized Forest Service trails. The prohibitions described on Page III-54 of the Lolo National Forest Plan are intended to prevent timber harvest practices that could alter the natural characteristics of the wilderness. Wilderness management of the WCW allows natural processes to dominate with minimal intrusions. 8. Comment: During recent conversations with the Beaverhead-Deerlodge Forest Supervisor, the Bitterroot Ridgerunner Snowmobile Club was informed that NEPA regulations require an EA or an EIS for a Forest Plan revision. In other words, a Forest Plan revision could not be accomplished with a CE as this action is proposing to do. Agency Response: As described on page V-5 of the Lolo Forest Plan, the Forest Supervisor may make non-significant amendments to the Forest Plan. This amendment would only modify the existing Lolo National Forest Plan to include the described changes. Based on an analysis of the objectives, standards, and other contents of the Forest Plan, this amendment would not result in a significant change to the Plan. Therefore, this amendment would be categorically excluded from documentation in an Environmental Impact Statement (EIS) or Environmental Assessment (EA). This amendment would fall within a category of action listed in 36 CFR 220.6 (e)(16) Land management plans, plan amendments, and plan revisions developed in accordance with 36 CFR part 219 et seq. that provide broad guidance and information for project and activity decision making in a NFS unit. 9. Comment: The purpose and need has not been established. the scoping letter readily admits that so few visitors access the WCW that those wilderness characteristics are not at risk. Agency Response: Please see response to Comment # 1. 10. Comment: When the WCW was established in 1978, two short sections of a pre-existing road (now called Trail 313) were inappropriately included in the wilderness designation.in recognition of the 9

inappropriate inclusion of these short sections of Trail 313 in the official boundary of the WCW, both the Lolo and Bitterroot National Forests allowed continued motorized travel on the trail between the Cleveland Mine and its intersection with Road 2129 on the Bitterroot National Forest. We propose that this current action include a proposal to make minor readjustments to the WCW boundary to entirely exclude Trail 313 from the WCW. Agency Response: This amendment would not modify the wilderness boundary. The Welcome Creek Wilderness boundaries were designated by Congress on February 24, 1978 (PL95-237). Trail #313, including the portions of the trail within the WCW, are managed by the Bitterroot National Forest. Motorized use is prohibited within wilderness areas and on Trail #313 from the junction of National Forest Roads13139 and 2129 north to its terminus at Eightmile Saddle. Wilderness boundaries can only be designated or changed by public law and are outside the scope of this amendment. 11. Comment: I am sure that any planning upgrades for the WCW will be beneficial. Agency Response: Thank you for your support. 12. Comment: I support the WCW forest plan amendment proposal. Thank you for undertaking the evaluation of the WCW wilderness characteristics and I support the proposed opportunity class designations. Agency Response: Thank you for your support. X. FINDINGS REQUIRED BY AND/OR RELATED TO OTHER LAWS AND REGULATIONS This forest plan amendment would be in compliance with all applicable laws and regulations as follows: Federal Land Policy and Management Act This Act allows the granting of easements across National Forest System Lands. No easements would be granted with this forest plan amendment; therefore, the amendment would be consistent with the Act. Forest Plan Consistency (National Forest Management Act) On April 9, 2012, the Department of Agriculture issued a final planning rule for National Forest System land management planning (2012 Rule) 77 FR 68 [21162-21276]. This amendment would conform to the final planning rule process for Plan Amendments and Administrative Changes (36 CFR 219.13) including: 1) identification of the need to change the plan, 2) providing for public comment, and 3) consistency with NEPA as provided for by 36 CFR 220.6 (e)(16) Land management plans, plan amendments, and plan revisions developed in accordance with 36 CFR part 219 et seq. that provide broad guidance and information for project and activity decision making in a NFS unit. Endangered Species Act and Sensitive Species (Forest Manual 2670) Project resource specialists evaluated the proposed action for compliance with the Endangered Species Act. Biological Evaluations/Biological Assessments for threatened, endangered and sensitive plants and animals and their proposed or designated critical habitat are contained within the project file and the findings of no impact or no effect are summarized in Table 1 of this document. Clean Water Act The intent of the Act is to restore and maintain the integrity of waters. The Forest Service complies with this Act to ensure protection of soil and water resources and to meet State water 10

quality standards. This amendment would not authorize ground disturbing activities and would not modify protections for water quality currently provided for by the Lolo National Forest Plan. Clean Air Act Under this Act, areas of the country were designated as Class I, II, or III air sheds for the Prevention of Significant Deterioration purposes. Impacts to air quality have been considered for this amendment. This amendment would not include any proposals to use prescribed fire or other activities that may adversely affect air quality. The National Historic Preservation Act This amendment would be consistent with Forest Plan direction and Section 106 of the National Historic Preservation Act. An evaluation of this amendment concluded there would be no effect on tribal and cultural resources. Environmental Justice In accordance with Executive Order 12898, the amendment has been assessed to determine whether it would disproportionately impact minority or low-income populations. No impacts to minority or low-income populations were identified during scoping or effects analysis. Migratory Bird Treaty Act There would be no known substantial losses of migratory habitat expected from the implementation of this amendment. Federal Cave Resources Protection Act This Act is to secure, protect, preserve, and maintain significant caves to the extent practical. There are no caves in the Welcome Creek Wilderness that would be affected. Wetlands (Executive Order 11990), Floodplains (Executive Order 11998) National Historic Preservation Act, Archaeological Resources Protection Act, Native American Graves Protection and Repatriation Act and Wild and Scenic Rivers Act As displayed in Table 1, this amendment would have no effect on wetlands, floodplains, or cultural, historical, and archeological resources. There are no wild and scenic rivers designated in the Welcome Creek Wilderness. National Environmental Policy Act This Act requires public involvement and consideration of potential environmental effects. The entirety of public involvement, interdisciplinary evaluation, and documentation for this amendment supports compliance with this Act. Other Laws or Requirements The amendment would be consistent with all other Federal, State, and/or local laws or requirements for the protection of environmental and cultural resources. XI. PRE-DECISIONAL ADMINISTRATIVE REVIEW PROCESS This forest plan amendment is subject to review and objection pursuant to 36 CFR 219 regulations. A written objection must be submitted within 45 days following the publication of the legal notice of the objection period in the Missoulian newspaper (Missoula, Montana). It is the responsibility of the objector to ensure their objection is received in a timely manner. The publication date of the legal notice of the 11

objection period in the newspaper of record is the exclusive means for calculating the time to file an objection. Objectors should not rely on date or timeframe information provided by any other source. Paper objections must be mailed to: USDA Forest Service, Northern Region ATTN: Objection Reviewing Officer P.O. Box 7669 Missoula, MT 59807 OR Hand delivered to: USDA, Forest Service, Northern Region ATTN: Objection Reviewing Officer 200 East Broadway Missoula, MT 59802 Office Hours: 7:30 a.m. to 4:00 p.m. Electronic objections must be submitted to: appeals-northern-regional-office@fs.fed.us Faxed objections must be submitted to: (406) 329-3411. In electronic objections, the subject line should contain the name of the project being objected too. An automated response will confirm that your electronic objection has been received. Electronic objections must be submitted in MS Word or Rich Text Format (RTF). It is the objector s responsibility to provide sufficient evidence and rationale for why an independent Forest Service review and resolution of issues should be conducted. The objection must meet the content requirements of 36 CFR 219.54, and include the following information: The objector s name and address, along with telephone number or email address, if available; A signature, or other verification of authorship upon request (a scanned signature for electronic mail may be filed with the objection); When multiple names are listed on an objection, identification of the lead objector and verification of the lead objector upon request; The name of the plan, plan amendment, or plan revision being objected to, and the name and title of the responsible official; A statement of the issues and/or the parts of the plan, plan amendment, or plan revision to which the objection applies; A concise statement explaining the objection and suggestion of how the proposed plan decision may be improved. If applicable, the objector should identify how the objector believes that the plan, plan amendment, or plan revision is inconsistent with law, regulation, or policy; and 12

A statement that demonstrates the link between prior substantive formal comments submitted by the objector and the content of the objections, unless the objection concerns an issue that arose after the opportunity for formal comment. If an objection is received the responsible official will publish a notice of all objections received in the newspaper of record and post the notice online. Unless the time is extended (36 CFR 219.56(g)) the reviewing officer will issue a written response to the objection within 90 days. Prior to the issuance of the reviewing officer s written response, either the reviewing officer or objector may request to meet to discuss issues raised in the objection and seek potential resolution. The reviewing officer must allow other interested persons to participate in such meetings. An interested person must file a request to participate in an objection within 10 days after publication of the notice of objection. All such meetings are also open to the public. If you are interested in attending any resolution meetings, please contact the Responsible Official or monitor the following website for postings about current objections in the Northern Region of the Forest Service: http://www.fs.usda.gov/goto/r1/appeal-meetings. XII. TIMING OF DECISION AND IMPLEMENTATION If objections are filed, the responsible official may not issue a decision document concerning a plan, plan amendment, or plan revision until the reviewing officer has responded in writing to all objections. A decision by the responsible official approving a plan, plan amendment, or plan revision must be consistent with the reviewing officer s response to objections. If no objections are filed within the 45-day time period, the responsible official may approve the plan, plan amendment, or revision on, but not before, the fifth business day following the end of the objection-filing period. XIII. CONTACT PERSON Further information about this forest plan amendment can be obtained from Al Hilshey during normal office hours (weekdays, 8:00 a.m. to 4:30 p.m.) at the Missoula Ranger District Office (Address: Fort Missoula, Building 24, Missoula, MT 59804; Phone/voicemail: (406) 329-3962. 13

APPENDIX A xxxxxxxx 14

APPENDIX B WELCOME CREEK WILDERNESS OPPORTUNITY CLASS DESCRIPTIONS Opportunity Class 1 Resource Setting Opportunity Class 1 is a trail less, virtually undisturbed and unmodified, natural environment, in which humaninduced impacts are generally not evident. Where travel and camping do occur, impacts are restricted to temporary loss of vegetation which typically recovers from year to year. Natural and ecological processes are not measurably affected by the actions of users. Social Setting This area provides an outstanding opportunity for isolation and solitude. Visitors do not find structures and site improvements. There is only a remote chance of an encounter with another person or party in this area. There is a high degree of risk and challenge associated with travel in this area, as all travel is cross-country, and some may be of an extended nature. Managerial Setting Management emphasizes sustaining natural ecological processes and protecting the wilderness resource. Management of visitors will be limited to off-site with the exception that on site signage may be used to protect and/or restore the wilderness resource and in person when violations are evident. Any essential signage will be temporary in nature, maintained and removed as soon as the objective of the temporary signage is achieved. Visitor use of this area will not be prohibited; neither will it be encouraged. Minimum impact camping practices will be strongly emphasized to those wishing to travel and camp in this area. Necessary rules, regulations, and information on minimum impact camping will be communicated to visitors at trailheads or other suitable locations outside of this area. Visitor contact by Agency personnel within this area will be reactive (informal and unplanned). No trails will be constructed in this area. Existing trails will be abandoned or rehabilitated as opportunity and funding allows. If user-initiated trails or other such resource damage become apparent resource protection measures will be considered. Patrols within this area will be infrequent and conducted only as necessary to monitor conditions and achieve management objectives. No administrative structures will be permitted. Opportunity Class 2 Resource Setting Opportunity Class 2 is characterized by an essentially unmodified natural environment. Trails and campsites are apparent in this zone, with associated environmental impacts generally low. Impacts are apparent but concentrated at established campsites. Vegetation loss at campsites often persists from year to year, but ecological and natural processes are only minimally affected. Social Setting: This class provides a high opportunity for isolation and solitude. Contacts with others on trails, at campsite and at other destinations are infrequent. Visitors have a good opportunity for experiencing independence and self-reliance 15

associated with primitive recreation skills, and for experiencing some challenge and risk, as use in this area is normally of an extended nature. Managerial Setting: Management in this area will emphasize sustaining and where necessary improving conditions to all natural processes to dominate. On-site management will generally be limited to occasional routine visitor contacts by Agency personnel, and directional signs at trail junctions. Interpretive signing will not be allowed in this area. Necessary rules and regulations will be communicated to users off-site at trailheads, portals or with written materials. However, on site signage may be used to protect and/or restore the wilderness resource and in person when violations are evident. Minimum impact camping practices will be emphasized in this area, and use information may be communicated either on-site in person or off-site. Trails will be maintained to accommodate a light to moderate amount of use. Resource and wilderness protection structures may be provided on a site-specific basis, but not for visitor convenience. Opportunity Class 3 Resource Setting Opportunity Class 3 is characterized by a predominantly natural appearing environment. Modification ranges from minimal to substantial, including presence of non-native species and evidence of social trails, but most modification of the setting is not readily apparent to most visitors. Environmental impacts from visitor use are generally confined to trails and campsites, where vegetation loss may persist from year to year. Some off-trail impacts from cross-country travel in this area may be discernible but user developed and maintained trails will be removed. Social Setting Opportunity Class 3 provides opportunity for a wider range of social interaction. Visitor use levels range from quite high to quite low depending on season and proximity to trails, though contacts should be considered common. Users have the opportunity for a high degree of interaction with the natural environment, though opportunities for risk and challenge are generally not as high as in OC 1 and 2. Managerial Setting Management in this area will emphasize sustaining a natural appearing environment, protecting water quality and preventing conflicts between different user types. A high degree of management presence and on-site regulation may be apparent. Information regarding user conflicts, fire prevention and protection of water quality may be communicated on-site. Other on-site management may include directional, interpretive, and regulatory signs. Structures may be provided for resource and wilderness protection or for visitor convenience when other values are not adversely affected. Trails will be maintained to accommodate heavy use. 16

WELCOME CREEK WILDERNESS SOLITUDE FACTORS, INDICATORS AND STANDARDS Factor: Education Indicator Opportunity Class Number of formal education trips 1 2 & 3 Standards Only permitted when education objective cannot be achieved in OC 2 or 3. Total group size limited to 10 or fewer people and 10 riding or pack animals. No limit on number of non fee trips as long as encounter and solitude standards are not exceeded: group size limited to 10 people people and 10 riding or pack animals. Fee trips would need to be evalaluated as Outfitter Guide permits. Factor: Trails Indicator Trail clearing width & height, tread width, maximum sustained grade, maximum sustained tread depth, new trails, etc. Opportunity Class Standards 1 No trails; no new trails or trailheads 2 3 Clearing 3'-4' wide, 8' high; tread width: 12"-18"; maximum sustained grade: 30% for no more than 300'; max. sustained tread depth: 4" for no more than 200'; new trails only for correction of resource damage or public safety. All user built or maintained trails obliterated and naturalized. Clearing width: 6'; 8 high; tread width: 24"; max. sustained grade: 15%/500'; max. sustained tread depth: 4"/200'; road clearing may require extra width for drainage (ditch maintenance). All user built or maintained trails obliterated and naturalized. Factor: Use and Users Indicator Opportunity Class Standards Group Size 1-3 10 persons per party Trail encounters 1 1 group per day 2 3 groups per day 3 5 groups per day 8 groups per day within ¼ mile of the Welcome Creek bridge Campsite encounters 1 0 groups per night 2 1 group per night 3 2 groups per night Campsite density 1 No campsites 2 & 3 Strive for visual and audio seperation. Maximum 1 campsite visible from any other campsite, meaning <3 intervisible campsites. Campsite condition 1 Evidence of camping not to persist from year to year 2 & 3 None worse than moderate (scoring system available upon request) Outfitter Guides 1-3 No new standards, already addressed in Missoula Ranger District Outfitter Guide Policy Reports of user conflict 1-3 No standard; monitor number of incidents; upward trend in incidents over 3 year period will trigger management actions 17

Factor: Vandalism/Regulation Violations Opportunity Class Standard 1-3 No standard; monitor number of incidents; upward trend in number of incidents over 3 year period will trigger management actions Factor: Vegetation Indicators Opportunity Classes Standards Insect Threat 1-3 No control Noxious weeds 1-3 Addressed in and refer to 2007 LNF wide Noxious Weed Management Record of Decision and Final Environmental Impact Statement. Factor: Fire Indicators Opportunity Classes Fuels Management 1-3 Wildfire Management 1-3 Standards No vegetation manipulation projects will be considered (existing Standard in LNF Plan MA 12 pg. III-54) Addressed in LNF Wildfire Guide Direction and Fire Management Plan which addresses the natural role of fire in wilderness and a full range of management responses. Factor: Wildlife Indicator Habitat Manipulation, Introductions and Stocking Predator / Human Encounters and Conflicts. Opportunity Classes 1-3 1-3 Standards Exiting Direction in 1986 LNF Plan MA 12 pg. III-54: No vegetation manipulation projects will be considered. No proposals for reintroduction of wildlife species will be considered. No stocking programs will be pursued. No fish habitat manipulation project will be considered. Monitor no standard. Take action only on case by case basis depending on species and situation in consultation with game management agency(s). Amendment to the 1986 Lolo National Forest Plan page III-53, Management Area 12, Welcome Creek Wilderness Standard #2, third sentence amended to read: Groups using riding or pack animals for prolonged trips requiring more supplies or supplemental feed than can be packed in will need to return to the trailhead periodically to obtain them. 18

APPENDIX C The 10-Year Wilderness Stewardship Challenge The ten elements of the Challenge have been distilled from over 200, representing only a portion of the difficult task of Wilderness stewardship. It s important to remember that the elements are not to be regarded as a checklist or a card to be punched. Attainment of each element is a stepping-stone to ensure that each Wilderness retains its untamed spirit into the future. Each element and its outcome are listed below. 1. Wilderness is covered by a fire plan that allows for the full range of management responses. What are the effects of fire exclusion? What are the fuels in wilderness? What are the logical (natural) fire boundaries? What is the pattern of lightening? 2. Wilderness is successfully treated for noxious/invasive plants. Where are the invasive species? What are the ecosystem effects of invasive species? How do we effectively treat invasive species? 3. Air quality monitoring is conducted and baseline is established. Which lakes, lichens are sensitive to acid deposition? What is the special pattern of ozone? Where it forms and where it hits is important. 4. Wilderness education plans are implemented. Where do we find the capacity to make visitor contacts at the trailhead and within wilderness to inform visitors about proper behavior to minimize impacts to the resource? 5. Wilderness has adequate standards, in which monitored conditions are within forest plan standards, and opportunities for solitude or primitive and unconfined recreation are stable or increasing. Identify quiet places, are they changing? 6. Wilderness has completed recreation site inventory. What are the baseline site inventories? What is the connection between use, sites and changes? 7. Outfitter and guide permit operating plans are in place that direct outfitters to model appropriate wilderness practices and incorporate appreciation for wilderness values in their interaction with clients. How can we help outfitter/guides and their clients understand wilderness? What is the performance of outfitter/guides in the field? 8. Wilderness has a full-range of adequate standards which prevent degradation of the wilderness resource. What are the Forest Plan standards for wilderness? 9. Wilderness managers have their priority information needs addressed through data collection and corporate applications. How can we get the data we already have entered and analyzed? 10. Wilderness has a baseline workforce (from workforce assessment) in place for each wilderness. How do we figure out how many people are needed to accomplish the work of wilderness? 19