Project risk and appeals in U.S. Forest Service planning

The National Environmental Policy Act (NEPA) requires U.S. Forest Service planning processes to be conducted by interdisciplinary teams of resource specialists to analyze and disclose the likely environmental impacts of proposed natural resource management actions on Forest Service lands. Multiple challenges associated with these processes have been a source of frustration for the agency. One of these challenges involves administrative appeals through which public entities can challenge a Forest Service decision following a NEPA process. These appeals instigate an internal review process and can result in an affirmation of the Forest Service decision, a reversal of that decision, or additional work that re-initiates all or part of the NEPA process. We examine the best predictors of appeals and their outcomes on a representative sample of 489 Forest Service NEPA processes that were decided between 2007 and 2009. While certain factors associated with pre-existing social contexts (such as a history of controversy) or pre-determined elements of a proposed action (such as the extraction of forest products) predispose certain processes to a higher risk of appeals, other practices and process-related strategies within the control of the agency also appear to bear meaningful influence on the occurrence of appeals and their outcomes. Appeals and their outcomes were most strongly related to programmatic, structural (turnover of personnel in particular), and relationship risks (both internal and external) within the processes, suggesting the need for greater focus within the agency on cultivating positive internal and external relationships to manage the risk of appeals.     

Selenium in the Blackfoot, Salt, and Bear River Watersheds

Nine stream sites in the Blackfoot River, Salt River, and Bear River watersheds in southeast Idaho, USA were sampled in May 2001 for water, surficial sediment, aquatic plants, aquatic invertebrates, and fish. Selenium was measured in these aquatic ecosystem components, and a hazard assessment was performed on the data. Water quality characteristics such as pH, hardness, and specific conductance were relatively uniform among the nine sites. Of the aquatic components assessed, water was the least contaminated with selenium because measured concentrations were below the national water quality criterion of 5 g/L at eight of the nine sites. In contrast, selenium was elevated in sediment, aquatic plants, aquatic invertebrates, and fish from several sites, suggesting deposition in sediments and food web cycling through plants and invertebrates. Selenium was elevated to concentrations of concern in fish at eight sites (> 4 g/g in whole body). A hazard assessment of selenium in the aquatic environment suggested a moderate hazard at upper Angus Creek (UAC) and Smoky Creek (SC), and high hazard at Little Blackfoot River (LiB), Blackfoot River gaging station (BGS), State Land Creek (SLC), upper (UGC) and lower Georgetown Creek (LGC), Deer Creek (DC), and Crow Creek (CC). The results of this study indicate that selenium concentrations from the phosphate mining area of southeast Idaho were sufficiently elevated in several ecosystem components to cause adverse effects to aquatic resources in southeastern Idaho.     

Documentation of cumulative impacts in environmental impact statements

The National Environmental Policy Act (NEPA) of 1969 and the Council on Environmental Quality (CEQ) regulations in the United States require federal agencies to apply an environmental impact assessment (EIA) in decision-making related to their actions. One aspect requires an examination of direct, indirect and cumulative impacts (CIs). Historically, cumulative impact assessment (CIA) has been given limited attention in EIA and resultant environmental impact statements (EISs), not because of its lack of importance, but owing to limitations in methodologies and procedures, including documentation consistency. The objectives of this study were to identify deficiencies in the documentation of CIs and CIA in EISs and to formulate appropriate recommendations (potential solutions) related to such deficiencies. The study involved the systematic review of 33 EISs (11 each from the U.S. Department of Agriculture: Forest Service, the U.S. Army Corps of Engineers, and the U.S. Department of Transportation: Federal Highway Administration). The results indicate that improvements have been made in documentation practices since 1990; however, inconsistencies and inadequacies still exist. Therefore, the following recommendations were developed: (1) CIs should be reported in a separate part of the “Environmental Consequences” section, and they should be addressed for each pertinent environmental resource; (2) a summary of CIs should be included; (3) any CIs considered not significant should be mentioned plus the reason(s) for their non-significance; (4) spatial and temporal boundaries addressed within the CIA process should be defined for pertinent environmental resources; and (5) utilized guidelines and methodologies should be described.     

Assessing the toxic threat of selenium to fish and aquatic birds

A procedure is given for evaluating the toxic threat of selenium to fish and wildlife. Toxic threat is expressed as hazard, and is based on the potential for food-chain bioaccumulation and reproductive impairment in fish and aquatic birds, which are the most sensitive biological responses for estimating ecosystem-level impacts of selenium contamination. Five degrees of hazard are possible depending on the expected environmental concentrations of selenium, exposure of fish and aquatic birds to toxic concentrations, and resultant potential for reproductive impairment. The degree of hazard is given a numerical score: 5 = high hazard, 4 = moderate hazard, 3 = low hazard, 2 = minimal hazard, and 1 = no identifiable hazard. A separate hazard score is given to each of five ecosystem components; water, sediments, benthic macroinvertebrates, fish eggs, and aquatic bird eggs. A final hazard characterization is determined by adding individual scores and comparing the total to the following evaluation criteria: 5 = no hazard, 6–8 = minimal hazard, 9–11 = low hazard, 12–15 = moderate hazard, 16–25 = high hazard. An example is given to illustrate how the procedure is applied to selenium data from a typical contaminant monitoring program.     

Decision support methods for the environmental assessment of contamination at mining sites

Polluting mine accidents and widespread environmental contamination associated with historic mining in Europe and elsewhere has triggered the improvement of related environmental legislation and of the environmental assessment and management methods for the mining industry. Mining has some unique features such as natural background pollution associated with natural mineral deposits, industrial activities and contamination located in the three-dimensional sub-surface space, the problem of long-term remediation after mine closure, problem of secondary contaminated areas around mine sites and abandoned mines in historic regions like Europe. These mining-specific problems require special tools to address the complexity of the environmental problems of mining-related contamination. The objective of this paper is to review and evaluate some of the decision support methods that have been developed and applied to mining contamination. In this paper, only those methods that are both efficient decision support tools and provide a ‘holistic’ approach to the complex problem as well are considered. These tools are (1) landscape ecology, (2) industrial ecology, (3) landscape geochemistry, (4) geo-environmental models, (5) environmental impact assessment, (6) environmental risk assessment, (7) material flow analysis and (8) life cycle assessment. This unique inter-disciplinary study should enable both the researcher and the practitioner to obtain broad view on the state-of-the-art of decision support methods for the environmental assessment of contamination at mine sites. Documented examples and abundant references are also provided.     

An Integrated Ecosystem Assessment of the Interior Columbia Basin

Driven by the need to replace interim direction, address recent species listings as threatened or endangered under the Endangered Species Act, and break the gridlock of implementing actions, the U.S. Department of Agriculture, Forest Service (FS) and the U.S. Department of the Interior, Bureau of Land Management (BLM), initiated an effort to develop a scientifically-sound, ecosystem-based strategy for lands they administer in the Interior Columbia Basin. The effort included an integrated assessment of 58.3 million ha in seven states describing the Basin's current conditions and risks associated with different management strategies. The assessment provides the foundation for environmental impact statements outlining management direction for 31 million hectares of FS and BLM administered lands. The process produced a framework for ecosystem management, ecosystem component (social, economic, landscape, terrestrial, and aquatic) assessments, and estimates of ecological integrity and socioeconomic resiliency.     

Integrating environmental impact assessment with master planning: lessons from the US Army

The US National Environmental Policy Act (NEPA) requires agencies to consider environmental impacts in the early stages of planning and decision-making. Despite this mandate, agencies typically conduct EIA for projects, rather than for earlier and more strategic decisions, such as plans. This research investigated the extent to which a large federal agency, the US Army, has integrated NEPA analyses with master planning for their installations. Using in-depth case studies of 16 installations, we investigated how and why EIA was (or was not) integrated with planning, and identified the factors that promote or impede integration. Typically, integration has been regarded as concurrence, meaning that the EIA and planning processes are conducted together. Results of this research show, however, that integration can occur, even if the NEPA documents and master plans are not concurrently prepared. In this sense, integration can be viewed as the influence of the EIA process on agency planning and decision-making. Results also indicate that regulations are only one factor, and that several other factors influence the extent of integration, such as agency leadership and organizational incentives. Lessons from this study can help improve both the integration and the substantive implementation of EIA.     

Monitoring: The missing piece: A critique of NEPA monitoring

The U.S. National Environmental Policy Act (NEPA) of 1969 heralded in an era of more robust attention to environmental impacts resulting from larger scale federal projects. The number of other countries that have adopted NEPA's framework is evidence of the appeal of this type of environmental legislation. Mandates to review environmental impacts, identify alternatives, and provide mitigation plans before commencement of the project are at the heart of NEPA. Such project reviews have resulted in the development of a vast number of reports and large volumes of project-specific data that potentially can be used to better understand the components and processes of the natural environment and provide guidance for improved and efficient environmental protection. However, the environmental assessment (EA) or the more robust and intensive environmental impact statement (EIS) that are required for most major projects more frequently than not are developed to satisfy the procedural aspects of the NEPA legislation while they fail to provide the needed guidance for improved decision-making. While NEPA legislation recommends monitoring of project activities, this activity is not mandated, and in those situations where it has been incorporated, the monitoring showed that the EIS was inaccurate in direction and/or magnitude of the impact. Many reviews of NEPA have suggested that monitoring all project phases, from the design through the decommissioning, should be incorporated. Information gathered though a well-developed monitoring program can be managed in databases and benefit not only the specific project but would provide guidance how to better design and implement future activities designed to protect and enhance the natural environment.     

Comparing the quality of draft environmental impact statements by agencies in the United States since 1998 to 2004

Since the creation of the National Environmental Policy Act in 1970, the United States has required the Environmental Protection Agency (EPA) to rate draft environmental statements (DEISs) for both information adequacy and the impact of the preferred alternative on the environment. In a previous study by Tzoumis and Finegold (2000), these ratings were found to be declining from 1970 to 1997. This current study investigates if that trend continued from 1998 to 2004. In addition, the top producing agencies (the Forest Service, the Federal Highway Administration, Army Corp of Engineers, and the Bureau of Land Management) are compared for the achievement of DEIS ratings. The results show that when the ratings are disaggregated for these agencies, the results indicate that there continues to be weak performance. The DEISs continue to have insufficient and sometimes inadequate information. Agencies continue to propose projects that have environmental concerns and sometimes objections. The agencies have some similarities in not being able to achieve the highest ratings on a consistent basis over time. However, more disturbing is the profile of agencies that have episodic peaks of achieving the lowest ratings. Conclusions and recommendations are focused on the agencies who submit that DEISs and EPA. One major conclusion is to better track the ratings and make them collectively available for the public. Agencies are encouraged to develop a best management practice in preparing DEISs to promote agency learning.     

Assessing metal pollution in ponds constructed for controlling runoff from reclaimed coal mines

Constructing ponds to protect downstream ecosystems is a common practice in opencast coal mine reclamation. As these ponds remain integrated in the landscape, it is important to evaluate the extent of the effect of mine pollution on these ecosystems. However, this point has not been sufficiently addressed in the literature. The main objective of this work was to explore the metal pollution in man-made ponds constructed for runoff control in reclaimed opencast coal mines over time. To do so, we evaluated the concentration of ten heavy metals in the water, sediment, and Typha sp. in 16 runoff ponds ranging from 1 to 19 years old that were constructed in reclaimed opencast coal mines of northeastern Spain. To evaluate degree of mining pollution, we compared these data to those from a pit lake created in a local unreclaimed mine and to local streams as an unpolluted reference, as well as comparing toxicity levels in aquatic organisms. The runoff ponds showed toxic concentrations of Al, Cu, and Ni in the water and As and Ni in the sediment, which were maintained over time. Metal concentrations in runoff ponds were higher than in local streams, and macrophytes showed high metal concentrations. Nevertheless, metal concentrations in water and sediment in runoff ponds were lower than those in the pit lake. This study highlights the importance of mining reclamation to preserve the health of aquatic ecosystems and suggests the existence of chronic metal toxicity in the ponds, potentially jeopardizing pond ecological functions and services.     

Development of a multilevel Ecological Classification System for the state of Minnesota

The Minnesota Department of Natural Resources (MNDNR) began development of an Ecological Classification System (ECS) in 1991. The ECS is hierarchically organized into six levels following the United States Forest Service structure. The upper four levels are being developed State-wide by an interdisciplinary group from several agencies. Geographic Information Systems approaches are being used to overlay and integrate existing data. The first two levels (Province and Section) have been completed. The third level (Subsection) is nearly completed, and work on the fourth level (Land Type Association (LTA)) started in January 1995. Classification and inventory for the lowest two levels (Ecological Land Type and Ecological Land Type Phase) was cooperatively undertaken on two Land Type Associations within the Chippewa National Forest. A sample set of management interpretations is being developed and tested for the two lower levels. Workshops demonstrating how ECS can be used for natural resource management began in mid-1995 and will continue for several years, as will development of the lower two levels on LTAs beyond the Chippewa National Forest.     

Assessing the assessors: Toward “risk aware” courts

This paper examines the ability of the judiciary to provide substantive oversight to agency environmental risk assessments under NEPA. A case study and its legal background are used to show the inability of an agency in one instance to separately estimate and evaluate risk, and the problems encountered by courts reviewing the assessment. Guidelines are suggested to aid agencies in preparation of assessments and to provide courts with a more effective and easy means of review.     

Sulfate and conductivity as field indicators for detecting coal-mining pollution

A water quality assessment was conducted on three Appalachian streams polluted by coal mining at the Big South Fork National River and Recreation Area, Tennessee and Kentucky. Results showed that sulfate was an excellent parameter for detecting the effects of coal mining and that sulfate analyses used in conjunction with conductivity readings provided the best detection index. Acidity and pH readings were relatively insensitive indicators, reflecting the mining pollution only after sulfate concentrations already indicated severe pollution levels.Hydrologist, Big South Fork NRRA, during the study; presently at Cape Lookout National SeashoreHydrologist, NPS, during the study; presently with USDA-Forest Service, Washington, DC.     

From proposal to decision: Suggestions for tightening up the “NEPA process”

Although the process of documenting compliance with NEPA (the National Environmental Policy Act) requires no drastic revisions, it can be managed more rigorously. Suggestions for revision can be grouped under five major steps: 1) getting a complete proposal from the applicant; 2) getting the decision-making process onto the right decision-making path; 3) modifying the applicant's proposal 4) going down a shorter path through the EA/FONSI (environmental assessment and finding of no significant impact) or through categorical exclusion review; and 5) going down the longer path through the EIS. Step 2 is perhaps the most critical, because there a decision must be made whether to write an EA/FONSI or an EIS, on the basis of whether the proposal would “significantly affect … the … environment.” In the past, this decision has not always been made promptly or rigorously. Accordingly, we suggest that the agency responsible for NEPA compliance should develop a system (a “black box”), consisting of a core group of specialists working with an interdisciplinary team, using sophisticated techniques for modeling impacts and directing both their research and their writing according to the concept of significance. By determining more efficiently and reliably whether the impacts of a proposal would be significant, such an approach would improve management of the total process.     

Assessing impact of industrialization in terms of LULC in a dry tropical region (Chhattisgarh), India using remote sensing data and GIS over a period of 30 years

The main focus of the paper is to assess the land use/ land cover (LULC) change in northern Chhattisgarh due to industrialization using remote sensing and Geographical Information System (GIS). The impact was assessed using an information extraction method applied to temporal satellite data (LANDSAT and IRS scenes) in GIS domain. For assessing the impact on natural resources, the classification scheme was restricted to (1) Forest patches ((a) completely cleared, (b) partially cleared, (c) least affected), (2) Non-Forest ((d) completely changed, (e) least changed), (3) Industrial/Mining area, and (4) River. Over the three decades 22.22% of forests have been completely cleared and converted to industrial setup. Another 25% is completely cleared and 10% is degraded. Around 4% of agricultural area is totally affected due to industrial activity. Random assessment of plant distribution (Trees, Shrubs and Herbs) indicates significant changes in the herb distribution directly related to distance gradient form the industrial/mining setup. Visual recording, socio-economic survey and satellite data also helped in delineation of extent of environmental pollution in forest and non-forest areas. The paper presents methodology for the environmental impact assessment.     

Status and future of the forest health indicators program of the USA

For two decades, the US Department of Agriculture, Forest Service, has been charged with implementing a nationwide field-based forest health monitoring effort. Given its extensive nature, the monitoring program has been gradually implemented across forest health indicators and inventoried states. Currently, the Forest Service??s Forest Inventory and Analysis program has initiated forest health inventories in all states, and most forest health indicators are being documented in terms of sampling protocols, data management structures, and estimation procedures. Field data from most sample years and indicators are available on-line with numerous analytical examples published both internally and externally. This investment in national forest health monitoring has begun to yield dividends by allowing evaluation of state/regional forest health issues (e.g., pollution and invasive pests) and contributing substantially to national/international reporting efforts (e.g., National Report on Sustainability and US EPA Annual Greenhouse Gas Estimates). With the emerging threat of climate change, full national implementation and remeasurement of a forest health inventory should allow for more robust assessment of forest communities that are undergoing unprecedented changes, aiding future land management and policy decisions.     

Alberta Biodiversity Monitoring Program – Monitoring Effectiveness of Sustainable Forest Management Planning

A conceptual model of sustainable forest management is described based on three connected and necessary components: Policy/Strategic Planning, Operational Planning, and EffectivenessMonitoring/Science.Alberta’s proposed Forest Management Planning Standard is described as an example of operational planning. The standard utilizes coarse and fine filter approaches to conserving biodiversity and sets requirements for implementation monitoring.The Alberta Biodiversity Monitoring Program (ABMP) is described as an example of effectiveness monitoring supporting Operational Planning. The ABMP is a rigorous science-based initiative that is being developed to monitor and report on biodiversity status and trends throughout the province of Alberta, Canada. The basic survey design consists of 1656 sites, 20 km apart, evenly spaced on a grid pattern across Alberta. Sites will be sampled over a five-year period at a rate of 350 sites/year. Standardized sampling protocols will be used to cover a broad range of species and habitat elements within terrestrial and aquatic environments, as well as broader landscape-level features.Trends and associations detected by ABMP products will be validated through cause-effect research. ABMP focuses research on critical issues and informs both operational planning and the development of policy and strategic-level plans. The Alberta Forest Management Planning Standard and the ABMP are described as key components to implementing resource planning based on ecosystem management principles.     

An evaluation of selenium concentrations in water, sediment, invertebrates, and fish from the Solomon River Basin

The Solomon River Basin is located in north-central Kansas in an area underlain by marine geologic shales. Selenium is an indigenous constituent of these shales and is readily leached into the surrounding groundwater. Portions of the Basin are irrigated primarily through the pumping of selenium-contaminated groundwater from wells onto fields in agricultural production. Water, sediment, macroinvertebrates, and fish were collected from various sites in the Basin in 1998 and analyzed for selenium. Selenium concentrations were analyzed spatially and temporally and compared to reported selenium toxic effect thresholds for specific ecosystem components: water, sediments, food-chain organisms, and wholebody fish. A selenium aquatic hazard assessment for the Basin was determined based on protocol established by Lemly. Throughout the Basin, water, macroinvertebrate, and whole fish samples exceeded levels suspected of causing reproductive impairment in fish. Population structures of several fish species implied that successful reproduction was occurring; however, the influence of immigration of fish from low-selenium habitats could not be discounted. Site-specific fish reproduction studies are needed to determine the true impact of selenium on fishery resources in the Basin. The U.S. Government’s right to retain a non-exclusive, royalty free license in and to any copyright is acknowledged.     

Metal accumulation in the tissues of grass carps (Ctenopharyngodon idellus) from fresh water around a copper mine in Southeast China

Mining effluents are the main source of metals in the surrounding aquatic environment. The mining district of Purple Mountain has a history of copper mining for more than 30 years, but there is limited investigation of metal bioaccumulation in the aquatic creatures from the Tingjiang river catchment affected by the mining activities. In this study, we collected grass carps (Ctenopharyngodon idellus) from four sites, and analyzed the accumulation of chromium (Cr), nickel (Ni), manganese (Mn), copper (Cu), zinc (Zn), arsenic (As), cadmium (Cd), mercury (Hg), and lead (Pb) in ten tissues (scale, skin, muscle, gill, liver, kidney, fish maw, heart, stomach, and intestine) of the fish samples. Among all tissue samples, the highest concentrations (micrograms per gram wet weight) of Ni (0.263), Cu (69.2), Zn (84.0), As (0.259), Cd (0.640), Hg (0.051), and Pb (0.534) were noted in the liver, gill, and kidney tissues, whereas the highest concentrations of Cr (0.356) and Mn (62.7) were detected in the skin and intestine, respectively. These results gave a better understanding of the variability of metals distribution in different fish tissues. In comparison with the sample sites, metals (especially Mn, Cu, Zn, Ni, and Pb) in liver, gill, kidney, stomach, and intestine showed more inter-site differences than other tissues. The inter-site differences also revealed that site 1 and 2 increased fish uptake of Cu, Zn, Ni, and Pb, which may indicate that the copper mine and urban effluents contributed to high levels of these metals in aquatic environments in site 1 and 2. A potential food safety issue may emerge depending on the mining activities in this region because some metals in a few tissue samples exceeded the guideline values for human consumption of fish.