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United States Department of Agriculture Forest Service September 2011 Proposed Action Bighorn Sheep Helicopter Capture and Collar Payette National Forest Idaho County, Idaho Cover Photo: Collared Bighorn Sheep For Information Contact: Sue Dixon 800 West Lakeside Avenue, McCall ID 83638 (208) 634-0700

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Page 1: Bighorn Sheep Helicopter Capture and Collara123.g.akamai.net/7/123/11558/abc123/forestservic...bighorn sheep, the last native bighorn sheep population in Idaho, survive at remnant

United States Department of Agriculture Forest Service September 2011

Proposed Action Bighorn Sheep Helicopter Capture and Collar

Payette National Forest Idaho County, Idaho

Cover Photo: Collared Bighorn Sheep

For Information Contact: Sue Dixon 800 West Lakeside Avenue, McCall ID 83638

(208) 634-0700

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The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of race, color, national origin, age, disability, and where applicable, sex, marital status, familial status, parental status, religion, sexual orientation, genetic information, political beliefs, reprisal, or because all or part of an individual’s income is derived from any public assistance program. (Not all prohibited bases apply to all programs.) Persons with disabilities who require alternative means for communication of program information (Braille, large print, audiotape, etc.) should contact USDA's TARGET Center at (202) 720-2600 (voice and TDD).

To file a complaint of discrimination, write to USDA, Director, Office of Civil Rights, 1400 Independence Avenue, S.W., Washington, D.C. 20250-9410, or call (800) 795-3272 (voice) or (202) 720-6382 (TDD). USDA is an equal opportunity provider and employer.

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Proposed Action Bighorn Sheep Helicopter Capture & Collar

Table of Contents

Contents Introduction ................................................................................................................... 1

Document Structure ..................................................................................................................1 Introduction .................................................................................................................................1 Purpose and Need for Action ..................................................................................................2 Proposed Action ........................................................................................................................7 Decision Framework .................................................................................................................8 Public Involvement ....................................................................................................................8 Issues & Other Concerns .......................................................................................................11 Past, Present, and Reasonably Foreseeable Actions ..................................................................12

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INTRODUCTION Document Structure ______________________________ The Forest Service has prepared this document for presentation of the proposed action. The document is organized into two parts:

• Introduction: The section includes information on the history of the project proposal, the purpose of and need for the project, and the agency’s proposal for achieving that purpose and need

• Description of the Proposed Action: This section provides a more detailed description of the agency’s proposed action. This discussion also includes possible mitigation measures.

Introduction _____________________________________ Bighorn sheep were once the most common big game species within the Nez Perce Tribe’s (Tribe) Treaty Territory including the Salmon River. Today, Salmon River bighorn sheep, the last native bighorn sheep population in Idaho, survive at remnant population levels and Idaho Department of Fish and Game surveys indicate dramatic (70%) and continued declining numbers for the past 20 years. Recognizing a conservation need, bighorn sheep are included on the US Forest Service’s Region 4 Sensitive Species List and are a species of interest on the Nez Perce National Forest. Salmon River bighorn sheep are the last representatives of the wild sheep which sustained the Nez Perce Tribe’s lifestyle since time immemorial. These last remaining wild sheep are a culturally significant resource to the Nez Perce Tribe.

The Salmon River Bighorn Sheep Study, initiated in 2007 (Nez Perce Tribe, 2006), is a 5.5-year intergovernmental cooperative research effort among the Nez Perce Tribe, Payette and Nez Perce National Forests, Bureau of Land Management (BLM), and Idaho Department of Fish and Game (IDFG). The primary purpose for initiating this research effort was to provide federal land management agencies with needed science-based information for land-use planning, NEPA analyses, and monitoring addressing bighorn sheep viability concerns across public lands within and adjacent to the Salmon River corridor. Two primary goals of the study are to:

• Better understand the conservation status (population number and trend, mortality, survival, genetic diversity and structure, among other parameters); of bighorn sheep along the Salmon River, and

• Assess the potential for contact and consequences of disease transmission from domestic to bighorn sheep.

To date, data collected through this research effort has been instrumental in the Payette National Forest’s Forest Plan amendment NEPA analysis resulting in a Record of Decision (ROD) published in July 2010 (Final Supplement to the Final Environmental Impact Statement for the Southwest Idaho Ecogroup Land and Resource Management

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Plans (Payette National Forest 2010). In addition, findings from the study provided the impetus for the Nez Perce National Forest and Bureau of Land Management to initiate NEPA review on domestic sheep allotments in and adjacent to occupied bighorn sheep habitats within the Salmon River corridor. Continued research and monitoring is important to federal land management cooperators for monitoring (Payette National Forest 2010), and ongoing NEPA analyses (Nez Perce National Forest and Bureau of Land Management) to ensure and maintain separation between these two species.

Although over the past three years, invaluable data have been gathered; the proportion of bighorn sheep collared and studied in some portions of the study area is low. For example, about 10% of the bighorn sheep in the South Fork Salmon River (SFSR) are radio-collared compared to those along the Main Salmon River (approx. 30%). Along the main Salmon, two ewe groups have low proportions of collared animals – about 10%. It is these three areas where it is essential to increase the proportion of collared animals (both ewes and rams in the SFSR and ewes in the Jersey-Rhett Creek and Sheep-Crooked Creek areas along the Main Salmon) to be able to adequately address the study objectives. The project area for the helicopter collar and capture proposal is shown on Figure 1.

Bighorn sheep is an iconic species that defines the rugged terrain of the canyons and mountains of the Gospel Hump and Frank Church River of No Return Wildernesses. Conservation of this species is paramount to retaining one of the Wilderness values that many associate with the Wilderness.

Purpose and Need for Action _______________________ The proposed action may help ensure the survival and continued existence of the last native bighorn sheep population on the Nez Perce National Forest, the Payette National Forest, and other public and private lands within the population’s habitat range and prevent a trend toward Federal listing of the bighorn sheep, a Region 4 sensitive species. The proposed action would build upon the existing data gathered from the bighorn sheep which are already collared and increase the understanding of their movements, population dynamics, and changes in risk of contact with domestic sheep both within and outside the Wilderness, the Wild and Scenic River corridor and other lands within the Salmon River population’s habitat range.

This action is needed because achievement of study objectives and reliable study findings depend on both the proper distribution and number of radio-collared bighorn sheep within the study area. The proper distribution and number of study animals is particularly important for assessing three primary study objectives: (1) population connectivity, (2) lamb production and survival, and (3) monitoring movements and distribution. Population connectivity (the amount of interchange between groups of bighorn sheep up and down the river) is important for assessing the potential for disease spread and consequences of a disease outbreak to the population. Understanding lamb production,

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Figure 1

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survival, and causes of mortality is important for assessing population health, tracking population trend, and addressing barriers to population restoration.

This action is needed now because the study is due for completion in 2013 and two years of data from the collared animals is needed to make statistically valid conclusions. This action responds to the goals and objectives outlined in the Payette and Nez Perce National Forest Plans, and helps move the project area towards desired conditions described in these documents (Payette NF 2010).

Payette National Forest LRMP Direction (2010): Objectives: WIOB16: Provide opportunities for bighorn sheep restoration and expansion across source habitat.

WIOB17: Expand or enhance hunting opportunities, per Executive Order #13443, through management of wildlife habitat on the Payette National Forest.

The Frank Church River of No Return Wilderness Management Plan (2003): Fish and Wildlife Resources (USDA Forest Service 2003 p. 2-26):

Desired Future Condition: The FC-RONR Wilderness land, lakes, and streams provide a variety of consumptive (i.e. hunting and fishing) and non-consumptive (i.e. viewing, photography) recreation opportunities. Wilderness managers cooperate with fish and wildlife management agencies to emphasize native species and their habitats. Managers will favor fish and wildlife resources when they resolve or eliminate identified conflicts between recreational uses and fish and wildlife populations or habitats.

Natural forces primarily affect fish and wildlife resources, and management actions recognize the predominance of natural forces. Anadromous fish migration corridors on the rivers are unimpeded.

Objectives: The FC-RONR Wilderness serves as a refuge for native threatened, endangered, proposed, and sensitive species. It protects existing remnant populations that inhabit the FC-RONR Wilderness and provides natural habitats for reintroduced native species. Wilderness managers evaluate effects of all human activities on fish and wildlife species to reduce or eliminate potential conflicts, restore populations and maintain quality habitats in a natural condition.

Research (USDA Forest Service 2003 p. 2-76)

Desired Future Condition: Wilderness-dependent research will continue following the intent of the Wilderness Act. The wilderness resource will continue to be shaped by natural forces and processes, while providing an opportunity to further the state of our knowledge of ecosystems and social aspects of wilderness management.

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Standards and Guidelines, General Research projects that benefit the protection objectives of the FC-RONR Wilderness will be given highest priority. (S)

Research methods that temporarily infringe on the wilderness resource should be limited or restricted, with the adverse effect(s) mitigated to the extent possible. (G)

The use of helicopters and fixed-wing aircraft for research purposes outside of public airstrips will be analyzed through the Minimum Requirements Analysis process. (S)

Aircraft use, including helicopters, outside of the public airstrips should be considered only when other methods are not possible and not appropriate for the research objectives. If aircraft use is approved, time of day, season of year, elevation, route of flight, and location of landings will be considered to minimize impacts. (G)

Research projects must be approved by the Forest Supervisor and authorized by special use permit. (S)

Standards and Guidelines, Research Proposals Proposed research projects will be evaluated on a case-by-case basis by the managing unit as to the project’s desirability, priority, and compatibility. Project proposals that extend across administrative boundaries will be jointly reviewed with a coordinated response. (S)

Research projects on wildlife and fish resources, recreational use, human carrying capacities, cultural resources, and methodologies for monitoring ecological and sociological carrying capacity, will be permitted in the Wild River corridor. (S)

Standards and Guidelines, Site Condition All refuse associated with field operations will be removed from the site and returned to the condition in which it was found, except as authorized by the project work plan. (S)

Nez Perce National Forest LRMP Direction (1987): The Nez Perce National Forest’s original Forest Plan was approved in 1987. The Nez Perce and Clearwater National Forests have initiated the Forest Plan revision process. In the 1987 plan, Bighorn sheep are listed as a Management Indicator Species and population trends are to be monitored. (LRMP II-18; V-7) In the analysis of the management situation for the revision the Forest identified bighorn sheep as a species of interest due to species vulnerability to disease transmission from domestic sheep (Nez Perce National Forest 2006). The Forest also noted that the Salmon River Canyon population appears to be in decline.

Gospel Hump Wilderness: Management of the Gospel Hump follows the general Wilderness prohibitions derived from the Wilderness Act of 1964. There are also Wilderness-specific regulations which are designed to limit the impacts caused by visitor activities in order to protect the natural conditions of wilderness.

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Proposed Action _________________________________ The Forest Service proposes to support the Nez Perce Tribe in placing approximately 20 new radio-collars within four target sheep groups. The proposal includes both Global Positioning System (GPS) radio-collars in the South Fork ram group (described below) and Very High Frequency (VHF) radio collars in each of the three ewe groups (T-Bone, Jersey/Rhett, and South Fork). In addition, the Tribe would replace an old VHF radio-collar on an existing marked study animal in the South Fork ewe group. This would be the last required radio-collaring effort for the Salmon River Bighorn Sheep Study, scheduled for completion in spring 2013. Operations would focus in three target areas:

1. T-Bone Ewe Group – North side of Main Salmon River between Sheep and Crooked Creeks. This area is within the Salmon River Wild and Scenic River Corridor and Gospel Hump Wilderness Area.

2. Jersey/Rhett Ewe Group – North side of Main Salmon River between Jersey and

Rhett Creeks, upstream from Mackay Bar. This area is within the Salmon River Wild and Scenic Corridor and the Frank Church River of No Return Wilderness Area.

3. South Fork Ram and Ewe Groups – Both sides of the South Fork Salmon River from

its confluence upstream to Hettinger Ranch. This area is within the South Fork Salmon River suitable Wild and Scenic River corridor and the Frank Church River of No Return Wilderness Area.

Capture operations within the two Main Salmon River target areas (T-Bone and Jersey/Rhett) would concentrate primarily within the ¼ mile Wild and Scenic River corridor. Capture operations within the South Fork would also be concentrated within lower elevations along the main river corridor.

To accomplish radio-collaring targets, the Tribe would net-gun study animals from a helicopter between January and the end of March 2012. Approximately 42 “landings” (two “landings” per capture) are proposed, with capture operations requiring 8-12 hours of helicopter work conducted over the course of 2-3 days. Operations would be based out of Mackay Bar, a private in-holding along the Main Salmon River at the confluence of the South Fork and centrally located to the three target areas (see Figure 2).

A three person capture crew would include the pilot, a gunner/processor, and a second processor. To reduce the operational footprint on impacts to Wilderness values and study animals, bighorn sheep would be captured and processed in pairs in the field. Processing animals in the field as opposed to slinging animals to a central processing station would reduce overall operation time and extent of area over which helicopters are flying within Wilderness Areas. Each captured animal would be processed at the capture site. After being hobbled, blindfolded, and removed from the net, each captured sheep would be radio-collared and evaluated for physical condition. Health samples would be taken including pharyngeal swabs, blood, and fecal for later analysis. The animal’s health status (temperature, respirations, heart rate) would be monitored during processing to ensure its safety. Processing would be completed within 20 minutes and captured animals released on site.

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Mitigation Measures Mitigation during bighorn sheep captures would include:

• The helicopter used for the project would be the lightest and quietest helicopter possible to carry out the mission safely.

• Flights and landings would occur for a maximum of 3 days in winter / spring of 2012.

• All equipment (including the helicopter and nets) and clothing would be inspected for weeds and seeds prior to project activities. All soil and plant parts would be removed.

• Pursuits would only occur in terrain where bighorn sheep may be safely netted and recovered. After bighorn sheep are located and pursuit begins, pursuit would be terminated after 5 minutes if capture was unsuccessful.

• If the net misses or the captured bighorn sheep escapes, pursuit would be terminated unless recapture was imminent (i.e. within 30 seconds).

• Nets that miss bighorn sheep would be collected to prevent adverse effects on wilderness character or the safety of wildlife and visitors.

• Helicopters would be landed immediately after bighorn sheep are netted. The helicopter would not park (i.e., the engine would not be turned off).

• The number of people needed to safely and efficiently handle each bighorn sheep would be minimized as well as all sudden movements, auditory, visual, and touch stimuli. Handlers are experienced wildlife handlers with previous sheep capture experience, maximizing efficiency and animal welfare.

• Vital signs (temperature, pulse, and respiration) shall be assessed immediately after capture and monitored during processing. Water shall be available at both the capture and processing sites and used as necessary to cool animals.

Decision Framework ______________________________ Given the purpose and need, the deciding official reviews the proposed action and the other alternatives in order to make the following decisions:

If the Responsible Official is able to make a Finding of No Significant Impact (FONSI) based upon the effects of the alternatives, the Responsible Official will decide:

• Whether to approve the Tribe’s proposal to capture and collar bighorn sheep using helicopters within the project area.

Public Involvement _______________________________ The proposal was listed in the Schedule of Proposed Actions beginning on July 1, 2011. The proposal is being provided to the public and other agencies for scoping, notice and comment beginning in September 2011. In addition, as part of the public involvement process, the agency will coordinate with the Shoshone-Paiute, Shoshone-Bannock, and Nez Perce Tribes.

Using the comments from the public, other agencies, and the Tribes (see Unresolved Conflict section), the interdisciplinary team will develop a list of issues and other concerns to address in the Environmental Assessment.

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Figure 2

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Issues & Other Concerns __________________________ The Forest Service defines issues as unresolved conflicts directly or indirectly caused by implementing the proposed action. Other concerns are identified as those: 1) outside the scope of the proposed action; 2) already decided by law, regulation, Forest Plan, or other higher level decision; 3) irrelevant to the decision to be made; or 4) conjectural and not supported by scientific or factual evidence. The Forest Service identified one issue during initial evaluation of the proposal:

Issue #1: Activities would occur within designated wilderness and have the potential to impact wilderness character and resources. In the short-term, activities could affect opportunities for solitude, the untrammeled and undeveloped nature of wilderness.

Any additional issues or concerns identified during the scoping, notice and comment period will be evaluated in the EA.

Minimum Requirements Decision Guide The Minimum Requirements Decision Guide (MDRG) is designed for use when making a determination that one of the “prohibited uses” listed in Section 4(c) of the Wilderness Act, is the minimum necessary requirement:

(c) Except as specifically provided for in this Act, and subject to existing private rights, there shall be no commercial enterprise and no permanent road within any wilderness area designated by this Act and, except as necessary to meet minimum requirements for the administration of the area for the purpose of this Act (including measures required in emergencies involving the health and safety of persons within the area), there shall be no temporary road, no use of motor vehicles, motorized equipment or motorboats, no landing of aircraft, no other form of mechanical transport, and no structure or installation within any such area.

Based on the analysis conducted in the Minimum Requirements Decision Guide (Appendix A), the use of a helicopter is the minimum tool necessary to accomplish bighorn sheep captures. This capture method requires the shortest amount of time to complete captures (reducing the impacts to Wilderness character) and is the safest capture method for bighorn sheep.

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Past, Present, and Reasonably Foreseeable Actions The Payette NF has performed a preliminary assessment of actions with potential for cumulative impacts when taken in consideration with this proposal. Activity Quantity Timing Public air traffic – landings & over-flights within the Main Salmon River corridor (# airstrips, average # flights / day)

Estimate of daily flights Past, present and reasonably foreseeable

Agency air traffic Primarily wildfire - related Past, present and reasonably foreseeable

Other governmental air traffic

Idaho Department of Fish & Game population monitoring activities

Past, present and reasonably foreseeable

Jet boat activity on the Main Salmon River

Season – April - November Past, present and reasonably foreseeable

Intrusions approved for fire suppression in the last 2-3 years including smokejumper landings, chain saw use, other fire-related intrusions, helicopter landings

# intrusions Past, present and reasonably foreseeable

Search & Rescue landings # intrusions Past, present, and reasonably foreseeable

Other existing approved research in the river corridors, and their type

# permits, type of permit Past, present, and reasonably foreseeable