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required to change the authorization to an easement is not arbitrary and capricious. <br />E. FOREST AND RANGELAND RENEWABLE RESOURCES PLANNING ACT <br />Plaintiffs allege the following claims: (1) a violation of FRRRPA in exempting certain <br />facilities from substantive requirements of the Forest Plan, (2) a violation of FRRRPA in failing <br />to ensure that authorization for use of National Forest System lands be consistent with the Forest <br />Plan; and (3) a violation of FRRRPA in failing to allow public participation in amending the <br />Forest Plan. The National Forest Management Act of 1976 (NFMA), which amended Section 6 <br />of FRRRPA, requires the Secretary of Agriculture to "develop, maintain, and, as appropriate, <br />revise land and resource management plans for units of the National Forest System ...." 16 <br />U.S.C. § 1604(a). The Forest Service developed the Land and Resource Management Plan for <br />the Arapaho and Roosevelt National Forest and Pawnee National Grassland ( "Forest Plan") in <br />1984, with considerable public notice and involvement. (AR -G at 752.) <br />The Forest Plan contains standards and guidelines to assist the Supervisor in managing <br />the Forest's fishery resources. In particular, the Forest Plan's Direction required the Forest <br />Supervisor to "[ maanage waters capable of supporting self - sustaining trout populations to <br />provide for those populations," "[i]mprove fish habitats and manage wildlife habitats to maintain <br />viable populations of native species," and "[m]aintain habitat for viable populations of all <br />existing vertebrate wildlife species." (AR -G at 2446 -47.) The Forest Plan's Direction also <br />required that "[s]pecial use permits, easements, rights -of -way, and similar authorizations for use <br />of [National Forest System] lands shall contain conditions and stipulations to maintain instream <br />or bypass flows necessary to fulfill all National Forest uses and purposes." Id. at 2447. Plaintiffs <br />argue that these requirements are non - discretionary and given these directives, the Forest <br />-34- <br />