Limitations on the construction or use of roads in the scientific forestry area of Baxter State Park

MAINE STATE LEGISLATURE The following document is provided by the LAW AND LEGISLATIVE DIGITAL LIBRARY at the Maine State Law and Legislative Reference Library http://legislature.maine.gov/lawlib Reproduced from scanned originals with text recognition applied (searchable text may contain some errors and/or omissions) RICHARDS. COHEN ATTORNEY GENERAL STATE OF MAINE DEPARTMENT OF THE ATTORNEY GENERAL AUGUSTA, MAINE 04:J:l:J March 28, 1979 George M. Ruopp, Forester Baxter State Park Millinocket, Maine 04462 Dear Mr. Ruopp: STEPHEN L. DIAMOND JOIIN S. GLEASON JOHN M. R. PATERSON ROBERT J. STOLT DEPUTY ATTORNEYS GENERAL This is in response to your request for an opinion as to whether or not any limitations exist on the construction or use of roads in the scientific forestr/ area of the Baxter State Park. The deeds of trust contain no specific limitations on road construction or use, but any road constructed within this area of the Park would be subject to the overall requirement of the best available planning, methodology and construction,consistent with the concept of "scientific foi:'estry. n The majority of Baxter State Park is subject to the provisions that the land be held as a State fbrest, for public recreational purposes, forever to be left in its natural wild state, and as a sanctuary for beasts and birds. See, e.g., P. & S.L. 1931, c. 23; P. & S.L. 1933, c. 3; 1939, c. l; c. 122; 1941, cJ. 1, c. 95; 19113 c. l; c. 91; 1945, c. l; 1947, c. l; 1949, c. l; 1955, c. l; c. 3; 1963, c. 1. In the so-called "scientific forestry" area of the Park, however, the restrictions of the deeds of trust are somewhat different. By deed published as P. & S.L. of 1955, c. 61, Percival Proctor Baxter gave to the State of Maine to be held in trust 3,569 acres in Township 6, Range 9, W.E.L.S., Piscataquis County, subject to the following conditions: "The same to be held by such state forever as TRUSTEE IN TRUST for the benefit of the PEOPLE OF JYJAINE, the same to be forever named BAXTER STATE PARK, the same to be forever held by said state for State Forest, Public Park, and Public Recreational Purposes and for the practice of Scientific Forestry, reforestation and for the -2- production of forestry wood products. All harvesting of said products shall be done according to the most approved practices of Scientific Forestry and all revenue derived from the sale of said products shall be used by said State for the care, management and protection of Baxter State Park as now or hereinafter defined .... " Similarly, in conveying to the State the deed dated May 2, 1955, Governor Baxter set aside 25,025 acres in Township 6, Range 10, W.E.L.S., Piscataquis County, subject to the following conditions: "The same to be held by said state as TRUSTEE IN ~RUST for the benefit of the PEOPLE OF MAINE the same to be forever named Baxter State Park, the same to be forever held by said State for State Forest, Public Park, and Public Recreational Pur- poses, and for the Practice of Scientific Forestry and Reforestation. The trees har- vested may be cut and yarded on the premises but no manufacturing operations shall be carried on within said township. All rev- enue derived from the sale of timber shall be used by the State IN TRUST for the care, management and protection of Baxter State Park as now or hereinafter defined, II The deeds for the 'scientific forestry'' area of Baxter State Park are silent as to the question of roads. Where the deeds are silent and some ambiguity is seen to exist, it is necessary to attempt to ascertain the intent of the settlor of the trust by reference, not only to the legal instruments themselves, but also to such extrinsic evidence as may be relevant. See, generally, 4 Scott, rrhe Law of Trusts, § 164.l (1967)·; see also, 12 M.R.S.A. § 900. In this context, the formal letters which Governor Baxter wrote to the Legislature with each conveyance of land in the Park provide at least some guidance as to his intention for this area of the Park. In conveying the first piece of land for the practice of scientific forestry, Governor Baxter wrote that the area 11will be available both for recreation and for scientific forestry management and to be made to produce a continuing crop of timber to be harvested and sold as are potatoes or any other products of the soil." -3- "It has long been my purpose to create in our forests a large area wherein the state may practice the most modern methods of forest control, reforestation and produc- tion under the management of our able Forest Commissioner, Mr. Nutting and his associates. This new 3,569 acres is an excellent location for this purpose. "In my travels in foreign lands I have seen beautiful great forests that for centuries have been producing a crop of wood without depletion. In Sweden, Norway, Finland, Germany, Chile, Russia and elsewhere what has been done by scientifically controlled forestry can be done in Maine. I now make it possible for the state to try a major experiment here at home, an experiment that can mean much for our future timber supply, which already is the chief natural resource of our state. . . . 11 Letter from Percival Proctor Baxter to the Honorable Edmund S. Muskie, Governor, and the Honorable Senate and House of Representatives of the 97th Legislature of the State of Maine, March 1 7, 1955. Laws of 1955, p. 1146. Similarly, in conveying an additional 25,025 acres for similar purposes, Governor Baxter wrote: "The terms of this gift are identical with those of the three thousand five hundred sixty nine (3,569) acre gift; Public Park, Public Forest, Public Recreational and Scientific Forestry Purposes and Reforest- ation. I want this township to become a show place for those interested in forestry, a place where continuing timber crop can be cultivated, harvested and sold; where re- forestation and scientific cutting will be employed; an example and an inspiration to others. What is done in our forest today will help or harm the generations who follow us." Letter from Percival Proctor Baxter to the Honorable Edmund S. Muskie, Governor, and the Honorable Senate and House of Representatives of the 97th Legislature of the State of Maine, dated May 2, 1955, P.L. 1955, p. 1149. -4- These letters read together with the deeds indicate the intention that this area of the Park be managed for production and the timber harvested. Unlike other areas of the Park, where Governor Baxter's views concerning roads were explicitly art- iculated,* none of the documents concerning this area mention roads. Nevertheless, while Baxter did say that there could be no manufacturing within the Park, he did want the land har- vested. In this context, it appears that the accomplishment of Governor Baxter's inte~t must necessarily have contemplated the construction of a road network for removal of timber from this part of the Park. However, any such construction would be limited by the high standard of forestry practices suggested, not only in the deeds themselves, but in the accompanying communications which further explain his intent. I hope the preceding analysis has been of some help to you in clarifying the trust restiction on road construction in the scientific forestry area of the Park. You, as a professional forester, are more qualified than I to understand the meaning of the terns "scientific forestry" and "best forest practice 11 and to understand the limitations which these concepts might provide on the construction or limitation of use of a road network. In this regard, I would, however, refer you to the letter from Jon Lund to Kenneth M. Curtis, Governor, dated April 13, 1973, which discussed this matter. In regard to your question as to whether there could be a limitation by administrative policy on the use of any roads in this area, such limitation would necessarily depend on the provisions of the managenLent plan for the area, which will pre- sumably reflect a multiple-use accommodation of forestry and recreational values. * See, e.g., P. & S.L. 1947, c. 1, prohibiting roads. Cf. P. & S.L. 1949, c. 2, removing prohibition of roads and enunciating standards that the trustee might construct such roads as it "shall deem to be in the public interest and for the proper use and enjoyment of those citizens of said State who may visit the area known as Baxter State Park, subject however to the conditions, limitations and restrictions that said roads and ways be constructed and maintained in a manner not to interfere with the natural wild state now existing in said areas." -5- If I can be of further assistance to you, please feel free to let me know. SR/ec Enclosure cc: Richard S. Cohen Temple Bowen William Peppard A. Lee Tibbs Sincerely, ~~ktlL SARAH REDFIELD Assistant Attorney General Govc-.:-no:::- !<-•:mneth M. Curtis 'S::.:.::cut:i vc )),3p:::1 ;:;trn~nt D0ar Govc~noc Curtis: April 13, 1973 1n Jnnuary of this ye~r. this.office b=ought suit against the nnxtec s-::~1t,.:; '.i?i:!rk l\uthor-ity 2nd tho Gco;:i'i.: No~the.r:Ti Nakoosv. corpo.c.::i- tion to :.::i 1.::!t u.G ide a "'.i.'ircxc:r..lc::::r~d Pe.z:-r.iit." "i:vy which tn0 Author.i t.y h;':)d · g ::.-:::..ntcd t:o G t:G3t No ::--'f::hc en i.{:.::;:::.cosu Corpo.::u:cio:1 -:· :1-:: ci9ht to cut 109,000-cords of sp~uc~ and fi~ f=om ~a1nship G, ~onge 10, W.E.L.S., ii.l ·t~-:.i: no::::-t\1'.-,cr:t co::::::;;::- oi B::1:-:te.c St?1 1c.,:-.: ?<'i!:'k •. '.i.'hat to.,1nsl.1-i..p, to:-_;cthc:c with c,-~;,:-+.::;:d. :\ oth~:: l2~-ids i:1 the no::-tb.,.:.::·!1. er,d of DD:~ter f;t2t0 P2.!:'k I ic h "'1d b 01 ..... ,..<·' \.,t·.,··c,,, 0 u·,,7·,,,,c.;... +-c, ,-'--.r-- t· 0 ftrr.r (>.::: ~ n-:1:·~ .... -r-,ftc·~~ ,...,..,n,·,.-.1·0~ B•·-.·,,-c•·c·,,· .___._ - '""·L ~· ._, u - .,_l )- ...... \..- ..... L.,li,_,. \,...,.l., 11...:i ••• a .:. ··• to- .,.A.,.,,I,. \Lt. \:tVv 1 ... ~ 1 1.. i--','"'~ .. _ tJ which pcrr:i:.ts tho "p.c3,cticG of Scientific :l?or:-cst:cy and ~eZorc:st.c.;.tion .. " :rn 011:: suit., r..-,c r~iainta i.nc.d th:::-L: th:;; "'l'ir::bc!:'lanG l)8r.mit," so-cal.:.cC::l.p did not repccsent oc conteraplat0 the p~~ctice of Scientific Forestry and Rsfo~cztztion. Bcc~U5C 011r litig~tion was rendered moot prior to tri~l, there h~s been no judici~l dcterminQtion of what Gov~rnor Baxter ~eant by tho tc!."'r:1 ".Sc ic;?nt i [ic I-'0:::3:::;t. -cy. " 1\s we p:i:c;::ia !..·,:::c-1 -t:ho c;_=i.se ~ h•.::r.vevu J:-, we had occ;:1sion to o;)s.::.:.::ve anc lea.en sc-r:10thing cf :2ores'i.:. r-.1:::ni:!·gc:r:'311-t p.ractic0s u :1.d procedu -ccs ~.-,hi.ch arc being co;:idnct,:::d ·by the £c.c18.:.:-~ 1 gov~rrnrie::nt .:3nd by c~-:::t::.1in p:.:-iv:::to co:-..::,:n1.ie~ in t:1.io area" .::ind t:o com- pa..-:-e those p.cactic~:J .::ind. p.r:occourcs with \•Jllc:d:. is bGing <lolh.~ hy cc1.A-C.:! in agenci.c3 o.e t:i.is Sti::.t.8.. The St.ate cid not com,-::: out well i.::-1 th,~ · compa~ison. We w=ito this lcttor, th~refo=e, for two ce~sons. First, the G?ttlci~;;:mt of ttr;: 1 -Ltig~t.-Lon p.ceclu.c.~~a ot:r bringing Pr1..1c:-i of {:h:i.s to li~ht in D public focu~ and it is info~rnation which sh0uld, in our vic·.v, be b!.Aoug:1.t to your ::it.tcntio:-~. f,ccond,. ,.H .. :.1 '.f.)():Ch~ps inm:'.'l'! impo:.:-tunt., we feel t:-v.t tl1e.::e is ;s logit.i1:1;:ltC n._;,;;;d to cn~12{ncc and ir1~p:i.:cvc t.h(: po:;;t\l.!.""~ end pc~ .for:..-::.1:·!co 0£ th8 :;;tn to in the ma n~gernen.t of it:s public landz. \·lo fully ,:::;c;oyni::.::0 th:Jt cvc.cyon-~ may not ..:ig-:cc wi:i:.b ::.~LL \vc-.; hi:!VG to :;~!Y 2nd tbJ.t we huve no r.pcciol tcaininc; in the Li.ulJ of i:Oi:'l'.;Stcv o.: :i:orc;;t lzind 1::~n;)g.:,;::1cnt. l·~Gi!.:;:.ctb1:;lc::.c, we .f:",=.1::;l oblirJcd to " .::J • • • l , ,, , , /' pa.sz ::d.0:1.g to you o:l.': obsc:cvo.i.: ion::: ;_1. nu 1:0 q::. v0 ;,'OU \: lG t}2tu:::i: 1..'i.'.:. c);, out thot\•]lit s. .~.ftc-.::- u l 1--, th~ pc·,:: .. n: to a"l!tlw.:: i20 cu'c. ,::.in') in :i:.:,>;:'-::.c t:- i.:·'i:1,.-}: cc:n;ii;;-i.::;, 2nd \·:c h~vl?.: nc cou::-t.: cJ2:cisio,1 upon \;hi.ch to roly~ I I _. I Governor Kenneth !1. Curtis -2- April 13, 1973 Governor B::.1xtcr left <ln indication of what ho meant by tho expression '' Scientific Forestry." • In officictl co:n.rnunicutions to the Governor and the Legislature, Governor B~xtcr ctated thut he had been exticrncly imprcsseci with the beautiful forests he had se0n in ccrta{n foreign countries and that ho was ~al~ing it possible for the State to try a majoc expcrirJcnt hc::-c at ho:ne, one that he said "vJould r.-:·.::;,rn much for: ouc futurG tir~.be::-supply, v1hich ull admit ia the chief nuturc:il resource of our St2tc." H.3 said th2t he wanted those portions of Baxter State Pad: where fc,::cstry is pc.:.r:mittca "to b-2!co:n0 a show place for tho:.:;e intor:-:::n1..:cd in fo..:-estry, a pluc-3 wh-:::r-::i a continuing ti:::.ber crop can be cultivat6d, ha=vestcd and sold; ·where reforestation end scicnti£ic cutting will b8 employea; cJ.n example and an inspir;::ition to others. 11 • He noted that w!-iat is "dorre in our fo.r-ests tcdc1.y will help or harm the gen8rat:ions who follow us." In our opinion., while th8 expressior. "Sci1-:mtific Forestry and .l:'.:!forcstaticn II doe3 not necessarily have any fixed and absolute definitio~, ncverth2less the expression ~ontemplates and require6, at the very le~st, Dn appro~ch to forest ·land m~nagcrnent and harvesting characterized lGss by short ter~ economic ccnsider~tions thun by more balanced, long-range 2nd pro- fessionnlly sophisticated consider~tions. The expression also co:lnotcs the use of highly developed and methodical techniques in the management of forcct lands for the purposes for \·Jhich tht;;y are to be manag-ed., Governor B2..:;.:tor left the northc:cn. end of Da:-::tcr State Par:J: t.o the State to be used not only fo1: "Scientific Fo::.:-c::;try and R0iorestc1t.ion". but also for ·p~rk and rccroational purposes. In addition, he allowed hunting in those areas of th;s park. A.lthough he did not. use tl,.e exprc;:;sion, it is ou.:: vie.:1 i:.h2it he intcnced fo::- those portim1s o:i the park in ·which forcst:::."y is permitted to be ma1.T:~God under th8 o:cinci::iles of "rr.ultiplo uoo." That i;; to Sc!Y, those arcc1s Si10llla be: mai1ac:-re:d £0.::- all of th2 vario·~3 r0nG\1ablo surface rcccurccs of" tho forest. (including. rcc.i:0.:-:.tion, timber production, a~sths:t:ic.s, wc::itc.~:!:shcd prot(:.:c-t.ion. \v:i.lc1- life man2gemont, etc.,, n~king the mo8t judiciou □ use of the lQnd for some er ~11 of thcBe-resourca □• Multiple use of forest r2sourccs con- tcmpl~tc:s th;Jt ~omo land is used for l~::rn than ull of the .ce.sou.ccc::; and it alsd contemplates the harmonious and coordinated management of the resources in a manne:c \'Jhich wi11· not. imp;::iir tho p.coc:luctivit.y of the land. We believe that Governor B::::i.:•:tcr intended th21t those lands be managed under tho principles of multiple use and that the management under those principlca should be cu1:::icd ori by the use of the most sophistic;:ited ond. highly dc~velo2ed techniques o Tho exorcssion 11Scientific Fo::-cstry" ~lso contemplate3, in our view, th0 man3gemont of fo.::est rcso-..irco.s for a sustained yi~ld of the several products and ~erviccs pro6ucod by ioreots. In fact, · although he did r:.ct use tho expression "~:mstained yield, 11 that is what w0 believe c0vcrno::: e:::::,tcr 'int0ndcd v.!h:;n he mQd;:'.; :ccforcnce to the pro1uction of'~ continuing crop of tirab □r~ and to the futurci supply of tiribcr. :r.:ot. only s:1~uld t.r:u L~nus in tho nort.h2rn end of B:.!.:::t.cr st~i:.o !?,:ll:k bo mc..n.::ql!d fo.::- a susi.:clincd yield of th9 variou::.; renc·d.::ible productc ~nd iorvi~~ □ obtainable from a foro~t~ thcraforc, but ~hat 'I Govcrnoc I\cnnoth H., Cur:tin April 13, ~973 rnun:Jgcmont should b0 ca.-cricd on by the use of the mont cophistic:1ted and highly developed techniques avuilablc.· In ordec to Gcicntific~lly manDge forest lands under tho principles of r.mltir_Jlc use for a rmcta incd yiold of the pr-oducts c!.nc1 services of a forcsti a fundnmcntal 9~Grcquisito is ~n adequate invcn- . tory of th~ hnd involved. Thi::, in•;cnto~y sho'uld b,cgin with a.i. ar.alysis of th.<J land to di:'.covc.c an~l to catalcg those attributer.; of the land which lend themselves to the vc.1rious r:,ultiplc nses £or \·1hich tho 'lcmd is being manc1gcd and with u view ta,l0.1·d cffect:i.ng zi ~aJ.r.1.:-!ce bet;•1ecn thos0 u.scs. That is to s::iy, those ace~1s with si0nificant: rec.:-e:1ti.onsi.l p0t,3ntial, if c:rny 1 should be dcfinea, thcne areas wit~1 ·unique natural c.h.:::iracteri.st:ics, if any, shoulcl be de tined, thoGo cH'Qi:ls which are signifi.cant for purposes of wildlif~ manDgarnan~. if ~nyr should be dcfin0d> and those ~r0~s ·r0quiring peculiar precaution for wat0r.shed nmn:::0cr:1cnt 1 if 2.n'(. sh:>Uld be d-~fincd. tn additio:1 1 'i:i1.c::r(! should be a thoro-:.1gh inventory oi i.:_hc tir:,b.::.:r 4:p:owing on t:.he lan:S: ar~.-:J the cate at:. which i·c is gra.-,ing, c1n inventory \•Jhich is not only the product of c.1n <.18ci::1l c.cui::.:c of t11e C[)Ccitic lnnd::ci involv0d hut 1 r.:orc signific,·rntly, is the p:co:Juct of an on-·t.h;-;;-qro:.1;1cl evc1lu2ti0n l:iy £0;:-2::;ter:;;; througi1 'ch~ u.se of gr.ound plots, soil ev;::ilu:i•i::.ion and th·.:: like.. '('h.is in- ventocy ·sho~11a 9:;::-,3cecie, and not follo','l, the cu"i:.t.ing; or corrnnitr.--,c:Tt. to cut~ la :cge C'"{U:J.nt.i ti~s of t i::1.::ie.r- £.:::c.-:::. th:; L::1nu. . Ot:herw i.s-::, th 8 vzi 2. ·n2:s which ~hou ld b~ pci::s;3r.v,:;:J oc p:-otc<;t.-.:::d th :-o'.lsh no cti.tt i.r.g or: t.b:.:-o"t:1Jl1 . coo.:-dini:lt8d cut-t.i.19 will b0 lo.st: or in-:J:),"J i.c.::ci b-.:-d::or:•::; t.h8y a.co knu.:n. In addition to 3n ad,scri.:!.:::rte and rr.caningf,.11 inventory of the lDnds to be mnnagad* Qnd parti~lly b~sed ~pan th~t invento~y, tho sci.ontific manuge~~nt of foces~ lands under pri~ciplcs o~ multiple use and io~ a susta in-2d yield roqui.rcs thG pr-c.par;:1:i:ion o::: u r.~an,.19emcnt pl2. no J'n gencr;:il, the l::n:-gc.:: tb.0 t.:.co.ct of l~rnl involver], th.-2 mor.e :::-,ophis·cic2.ted the rr..:ir:i;::gement 9lan ought p:::-o~:;crly to bs und, in view oI Govo.cno c Baxter• .s cx9rcc:;sed tl8si:r:c th..1t only ·th\= most highly dcv:.:doped t.cchniqueG be employed, the rm1m1c;err.ent plc. ~ i:o:: D2;1.:tc.c ~;tn t.e Par}~. inc luchn.•~~ particularly th,'1 no:thc.cn end whcce fo::-est::y i~;; pcrr,1i.t.t0d, ouJht to be bot.11 zophisticated anc1 co:11preh<::m.sivcQ 'l'(lo management plan e,::tc::i.bliGhCG the m~n.:Jgcm,:!nt go:::ils fo::: th:3 land ..:1nd .sets c:lo':m t.he guit:tcl ir2cs foe the acco::1pl i.shmcnt of those go~ls und the fra~cwork VJithin which they 2,: .. e to be acco;nplishcd. Although man21g2ment pli}ns should bs flc:d.1)10 enough: to respond to fluctuations in th2 dcrnan~ for the products and servicea of the forest and si.1nilcir vnr:inb1cs, an<J althouqi1 it r.rnst be subj,;ct t:o major cb.~ngcs to cop0 with un.fm::,~~;oeablc n3i:u::..::i l difi~~;tcL·D t)n:.:1 t.llo 1 :i.b:l, nevc.rl;.h(~lcso it in t!1c 0 bibl~" foi: the dc1y-to-day rind month-t.o-:nont.b. r.1:lnugeml.:.!::i.t of a fO!CZit... xt u:::;ually identifies· anc1 e;:;tu'bli~hos, an10ng other things 11 •.• • (i) the siz.08 of t:i.mbor for \·fhich the luna. is to 1)0 manL1geJ (;:;c:iwlogo or pulp;.1ood) u · l I •. Governor Kenneth M. Curtis April 13, 1973 {ii) the species of timber which urc to be proforred, if any ( soi:t•.100::1, h::i.:::-fr..,rood, pines for: aesthetic purpo3cs, yallow birch for higher long r~nge pro- fitability or even non-mar:kctable species for certain. gv.W.! r:la nagemcnt purposc3), (iii) the project~a lo~g-range recreational u~os of tho lund, incluJing thG ureas whcro recrcution is to be channelled and promoted or uvoided, the cutting cycle (which is critically important in the selection of what trees to cut during any given ·harvest), the criteriu for ~o~d lay-out, design and con- struction in ocd0r to facili'..:.ate future timbBr harvostG, provide rcc~eQtior.al access, protect deer ya~d5 and other wildlife are~s, preserve· a.reas \·lllicil .:ire to b.3 left intentionally in-· accessible by road, etc., (vi) known mincrcal resourcoo anc1 tho extent to which they ure b-~i1:g or wi:1.1 bo Czvclopc.d . (this would~ of cou~se, cc inZlpplicab.,.c in the case of Ba;<:tcr State Park), (vii) ·wildlife r:1~n::i.gemcnt ooj e,::ti vcs, w:iich. may vary frcm area to ar~a (pilrticularly in Eaxtcr State Park wher~ hunting is p~=mitt0d in c0rtain ~rcas only), (viii) iJpplicable ·watershed protection. obj cc ti vos 0 (ix)· O}dsting m:ir1~cts for t.imber prcuuction from the ·1and involved, as \·Jell as future markets ·which rauy . , dove lop by cconcxc\ic fore es or ,:1hich th8 lando·.vner .. wishes to attempt to davatop and .. (x) :-._· applicable econo.nic obj ecti vcs (which m~y includ-3 providing cteady employment or~ steady supply of timber, etc .. ) .. Scientific Fo:-c.stry requires, in our opinion, thv.t a management. plan be prep3rcd ~nd that it precede the cutting, or commitm3nt to cut~ signifi~ cunt qu3nt ities of tir.G)cr from tho l~nd bcinCJ mi:ln1..1goc1.. Othon, izc. dccioions u □ to what ni~es or ~pccics o:i: trceo a.r:c to bo cut, fro:n wh~t tirCil3 they ~re to be cut, hrn1 oitcn they ure to bo cut, where the ro~<ls. nnt1 bridg(!O aro to bo put and h<Y,J the :co;:;,ds and bri.~gco nro to ·be do-···· signed ~nd built .:ire all rr..:itJ8 wil:.hout regucd to th0 other u::-:cs for tho land ancl not cis an im;_:,lemcn.ti:ition of a carefully thought out r.iu:iagement plon. I I ., Governor Kenneth M. Curtia -5.-_ April 13, 1973 If cutting foe a sustained yic\d me~ns the rcgul~r, periodic cutti.nt] of only wh.:J.t in gr:own, thon a fundamc:ntal picco of infonn.:ltion which must bo kn~~n about~ given t~act of fo~c~t to be man~goci for sust::l in•:::.d y le J.c1 i::i what: ir; b-3ing g .ca.-1n. Onl:i' when on~ knmm wh2. t. is being qrm-1n nn~1 .:::it whnt r.at.c cnn c.1 decision be muue (in 0. sci•~n.tific mzinncr) "s to wr.~t qu'?lntities of \•,iood to cut. Thin piece of infoi:ma- tion in cornr.1only rcicrr-cc1 to an an "c;llow;;:i1)le ;innual cut" o'C' on "allcr,'1ublo periodic cut." 1·Jithout this in:(on.iution, the decisi.on as to ho.<1 much timber to cut (or:- to sell) is, at best, a <]\.\CDs., Bofor:e one accidco wh~::thcr to cut, much less what. 0p2cies to cut. c:ind whc't'c unc uh.::n to cut, a scientific op;::>::-o::1ch to forest land man2i90- mcnt rc~uirco a c.cuiso of the lanc1 'to d:;t.e:rr.d.na what C()n c1nd should bo ·cut. :rn gcncr~l, th~ r:1or•~ intensive the c.ruiG...)o the more sciei1ti-{ic and zophistic.::2tcd is t.hc docision-1nc1l::irq procoss. After a crui.sep thG decision as to whether, wh~t, when; nd wh0re to cut should b9 made in accqrtlv.r.cc with and subject. to man.'.:lge@cnt ·objectives and policies 2s. · ·set forth ir:. c1 r.anc1ge.:1cmt plan. Once these t1e:.cision.s are m~de, tLon timber can ';.')c sold to i:l t ir;:bc:c opoc~i::.o:c. 'I'ho inventory, the mzLc1agcmont. plan and all other scientific techni(li.l'..:!S us~d to arr:iv0 c1t. a s01:nd decision as to t,;hnt, wh..;n cmd \·;he..::e to cut 2:!:'8 all fo~ n:c.n.1ght" hc·.-1ever, unless the ti~Jcr harvesting op~r~tion i~ clossly suporvisado With _modern logging tcct.niq:ucs, sigr.ifictint damage c~n. be cJ~nc quic}:l:/ un- less the,:c. is clor.c. n~ 4 ofc.ssior:..al su-;)ervisi::::m of the m•c::n on the ccou:nd .. P,:-oper SU!)orv:i r.ion i.8- of s1.-:.ch ir.1port,;nce th~t it. sliould o.t:d.:i.n:.:ir::..l? 1:is a lini t.:-i tion 'on t.he s izo of ncxnc h0rvc.sting or•.;ratio:-is ( .::ind th2rcfcr0 the i.·;::it:c 2;t ·which. tir:i~er is cut), :=or the su_pcrvisory c~p21cit.y o:f. t.b8 lc:indo,-m .. 21. 4 should be co::.-i~cn:::;ui:ate v1.i.th tho scop,2! anu size of i:.he harvesting opc.c~tion .. Jn thoDc 2..:c.:..s which c::;.r8 to be rc::1nagcd i:o-c t:he proc.1uction of tim.bec, .':\11 snocios ond th,:! total area involv•::d should receive the benefits- of ciu.:cful planned razmagcr,".snt not just the E:pccics or f.c:.:tc·t.ion of an .)·;:ca which '1 pn::=t:.i.c1:tl<.1r opcrc)'i:o:i:- wisho~; to cut at r.:i pa :c't iculc1 r time. ·Eo.::om,or, the forc::.t should be cnhc:incGCi and improved by cutti:.1g una not dcgrndcd. Th~t i~ to SilY, it is dcsir~ble to.cut poor quality trees and other t=ccs th~~ arc nn inpeGim3nt to the vigocou~ growth of p.::."cfC!:t:::ca !ipeci.cs nnd siz:::.s cind, qui-to ofto.1~ to 1.:::avc t.hG bent. to grow foi: fut1.1-cc cutting nntl to rcsBsd thG f:9r~st... Takin9 tho }:,est and leaving the: -worst is c~llc:c.1 "hiCJh ~r~zidin.g." :rt. results in the continu.al do.vn<Jri:lding of the quality of the residual sb:ma of tinbcr an.a. sucn. a pi:nct.icc is not, lx:rncd upon ou.c Ob[\C!:"VZltions, the most tir;.pi:ov2d O'C . scientific appro::1ch to io::.:-c~;try, t.hou~1h it h,u; undir:;put.cd .::i<.1vo.n'.:.:t~-;c~ fror.1 the stnnc.~point o~ short. tcrr.1 pr.of its. Pin;J.lly,, tho sol,2ction and mnrking of trees to be cut is o!:'din:-i::ily done by tho lan-:im-rncc, who is pr~au~cd to knew best wh~t ho deaircs to h~vc h~rvcst0<l foe the cnhnncci:1cnt of the fore st .:1nd tho accc::1plish~;i..!l1t. of hin m~ nus ~r.1sr. l:. objcctivc3. 'I i \ Gov~.cnor Kenneth M. Curtis April 13, 1973 The litig<1tlm h~tw~Gn thir-1' office 3nd tha l\uthority is over .. Fi:1 .::r,1orc facts Wt;re involved in t.be tran .;:::i.ction which w~s the subject of t.h:1t litir;ation (bot.h in f.:ivor of· and D~rainst th.:! .1\utho:rity~ thQn arc p•.!rtin,3nt h 1..!r0. Eo.ccover, th•:n:-c is :::.:u: r:io=c involved in t.he manngcmcnt of fo::cst l::.nds than th•Z! r.:ithr~1: £uni:.bmcnt.::il con:,iderations we hiive a iscusEJcd :)bo•F~ und cv 1.)n t:iose co;1side:ro.tions mu.st be r.espon::;iv•..) ·. to unfo:;:c!,0•..:c'l:blc spec .ia 1 s i.tuati0:1s. 1.-:l\:::t. is. pert in :nt is tl'l,:-'.t in prc;- pn.: ing fo.c. t. d.n 1., w,~ d iscovercd th.:it an invGnto.cy, .:; 1-::;:in;::igcmci:1t plan,. th:!. dcvelopm·.?nt of ullq.\•.:::,blc iJn!lU<ll cu::s ;:;nd the oth:.:n: p.:::-nctices men'cion~d c1bovo arc not esotoric or p!:"ohi.:.:i.i.tivcly c:cr:,cnsivc. In fact, th<:: U.S. Fo::-:•:,st se.cvi<:c nni:1 sevC:!:~l m2.jo-:::- p.::ivatc l;:1ndo1.,:nox:s in the Stut<:, -to v.:i:::y:i.n,j c:is9:c:3,_,:s, Gmploy th;,:~se pr-::.1ctices D.S a m21ttcr of cour$e in the manag~~8nt of their for~st lands. ~hese things arc considered merely to be goo<l for,~s·c land rJ::nagcmcnt. Tt. seemed then and s1-;cms nu . .., th;:,t Go·...r(~::nol'." Daxtc.c coulc1 not: ~have intended less for the Fark. We therefore c~mc to regard ''Scientific Forcst.cy" els i:c0,1:i.:-:ins, ~t th8 very lc.:ist, f i r-st.-class, profess iorw 1, aophlsticDtaa focest l~nd management and we found tho State seriously deficient ev<?.n in t:."i.s r~spoct,with r0qc:u:d to. JJ;.:i:;tci: t~tnt.c I'u!.:'k. 1;0 inventory of thf; type d0;sc1.· ibcci ubove hu s ever. 'been un.dr::lrtciJ.:cn for B;:n,~·::i:.er State P2.:ck. in g0.11ot"2 l o::: f oz: the 1101.·tl-:a ,:-n tc-,1nsh ips in pzi !:t:icuh i: .. In fuct, so iar as we could lca:::::n, no forester has 1:ec.n on th~ g.co...:;,ad at all fo:: l::Y:! pu:cpo~:3 of cvc1lu2ting the ti::L'ocr o All that L::.--.s ]::;(;sn cone to cbta ;_n tho nort.11'21:n townsni.r:,1J is a ro._,1gh ·::stim.::i.i..:.c of voll::.tT1cs of tir.-1bcr, b2sc<.1,ent:i..roly n;;ion st.::::it:~:3ticul i..n:forr::v..ltion none of \·Jh.ich v;as deriv.:::!d fro::i the tcr ... m:.,1-'d.ps involved. and non!:J of which ,:ms c1crivcc1 fro:u on-'.:l:-:::;-g ::-ounc1 .evalua.t: icr:.. · No "u.llo-vuble cnt:" figures havo :teen sciont.if'i.cally c2.lcu:i.:lt,2r.:1 · for ar~y po!:.·tio:1 of the nort:.ern tc•1h1shipso Future re.:::cc:::!i.::i.onal us<..!:.; of thc::!.t u.cec1 h.::..v,:;: not bc•.:ni. decided .:inc:1, in fact, areas suit~ble foe futur~ recrcntion hQvo not bean delineated. No man:igrJ~:~';;!nt plan has ever be•2n pi:-cp::.i..rc<.5. for Daxtcr ~;tatc P:1rk in. gencrz.l o..c for: tbe nort.h..:.?!"ll. to',,mshipo in p:.:rticulcu.~, thoG9h. tb.0 Stzito has owned r.m.ch. of th~ park for as lons as fcrty ycz.rs c;:.nd h2s o•,•;ned the. north~rn t.O'.-;n~::hips fo.i:- ·eighteen yea c::... Ho rc.:1listic .::.pi?l:£).isa l h::.s bean mac:io "'::Jy the Atttho.r i ty of its own supervL~o1.·y lir.1i t~ tions cs evidenced by its crabu:i:.·kution upon a massive cutting o~:.:ic.c::i.tion (109,000 co::ds in tvo ye2.1:cs. f't.·o::i npp.co~d~~.,_t~ly 15,000 ac:c..;s\ •.-;it.h the p<.l..ct tims ::.=:::cviccs of a s::.nglo :::oi:c.ste~ nn:1 without thoco'\..'.;h and effective advance ar~~nge~cnts fer close ~nd p~oper supervision. ~athar than~ broad loo;~ at ~ll sp8cico which it. uould be c.cs:l . .::-e1blc to m.:ln~gc q the F.uthod.ty ptr:po.:tcd to allo·11 th·.! h:.:irvcstinJ only of. spruce and fir (w:i.th a sm~ll volur.ie of poplar\, largely, wooolicvt.:!, bc.cauGe tho::;e sp~cics were pl."cf:cr;:cd at tt"l·.:! t:im.:.:: 1)y the t imJ.;·;:;~ operator, .:i.n:3. not bccm.u:e of' ur.v ticicnti:Zic analvsic of \·1b:it timber should or could bo . man:igod.. FinZ:.lly, the ~'\utho.city p•:!rmittcc1 the timbc.i: operator: to tnark, 'I Governor Kenneth M. curtio April 13, 1973 ·or select, which-trees wero to be cut, and from whore they were to ho cut (un unusual and posuibly b--.pi:ucl•·~nt ,.1p;?I:'0"1ch to foroot l~nc1 m::-in.-·wc- mont), ~e;t:iini~g the r.ight i:o ";:-,n!)covo" or ''di~uppcovo" rr::1.cki.ng ai:'t:cr tcoes hDd been mark~d tan unurunL ~nd no~c~hat impr □ctic~l □p?roacti to contcolling the s~lection of trcc8l. Tn short, we believe that the qu~lity of fo~c~t lilnd rn3nagerncnt of the nc:r.thccn town:::i hips i"n ~::;:1xtDc Stn t·~ Purl:: '-'li:I s subs to nt i.,1 lly beneath the a~s~e~ of com9~tencc and sorhistica~ion cxhibitad by the u.s. Porc3t ~crvicc i~ t~c mun~q0mc1t of nation~l forests ~~d by f;cve.ral priv~te comc<1n'i.es ir. i.:hiD st;::ito in th.i:! rnz-i;1aqr::ment of t:hei:c a,m lanes. To thut .. e~ct:ont, thc-:rcforc, .:::cgardlcs:; or the lcsa l rnocits of our c:::i.no, we· decry t.he sib1.:.1ti.on ::is u r;.Qttcr of )?rincipl1:; '1nd fc2:l t.hat it i9 undesii::c.1blc, unprof-:;.ssion;::il and umvo1~t.hy of the Stat.c., Unfo--::tt,1.ir:!tely, the lack of sophistic~tion aP;.:ilicd to t.h~ man:::iger;lt;nt. of the fo.::-cst l:::i.neis in tl1c~ no:cth0rn to~•m8hi-;;:,s of B~xtec St~t.:e Park ic not Unique in the man:i.gcment of public l~nds. Of the approximately 400,000 ac:c:•s of public lots, thr.~ st.;:its- c'e1ns urn:.-.,:-n2Gtionea clear title: to the tir.-:.1:•::".r on at lc:i.st 90,000 zict:"cs~ 'l'hcze 90, CJOO acres a.ce mc1n219ed ·by the Porc~1try D-)pai:-·c~ont. {Th0::-e b..:i.s b(;Cn-, for all intent.~, and y:1;:- poscs, _D_Q t:1::lnu•-;;emcnt hy the Stc1tc of the rcmuin::tcr of the :;n1i)lic lots) .. These ~•0, 000 QCCGs r.i::-c: sczt"l:.tClr~d ac.::-o:.;:::; ::::cvc.ral ccu:-ities und c1ro mostly .in b::acts of. i::!pprm::i;-:-!:it.:::ly ·1000 ac..:-c:::: each... Ho r:-:.::1nagement pl3n cxir;t:~ -for: c:tny oi:- ~:i.l of t.hc: public lot:.s. no ;:ilJ.o:.vi:ible C1nnual or r;c.cio(lic ·cut figU1:es c1r1: caJ.cnlc1.tcd ·wit.h ;::-cr.fK?ct to public lotB. Litt.le or: ti.O effort is m:::-:(ie to man2.qo all species er all of 'tho land., Jn fact.., tho publ:i.c lrr::-.s a:r.e "hii:.;h-grudcd," ar~d have been "high-gt"al'lE:d" for mnny ·y,::2.rs, ~·:hich is to suy th2~ t;1c ovorull qu.al.d:.y of t.h0 resi~ual st;"lnd of tir.1b\1:c on tl:(:,,r;fi · public lots h;;:is been E;tc;:.tciily a00.r~dccl (rather th~n c~1anced' over the years. Considecation of whether to 'cut u 9i V1~n public lot is· typic;:i ll '! not initi.:it2d -:0y the i.-;,orc.st.cy ·-DG:partm1;nt but 'by inquiry from tir..be:r o.92~a'co.!.~s in the arcZ:-1 ~ '.::'he· ~ecisio~ as to whotho~ ana what to cut is bnsed, at most, unon an ·aariz-. l cn1.iso ~.,;i t!l u cu.:-:so~y v -i.su;:-i 1 insr8ction, not incJ.udi11q t.hc use 'of ground plots or s imi la):' p·:::-e:Cc.::ccd, s~ic;1t i. f.i_c tr.::chni.r::u--::s .. · i:t is ·both ir.onic 2.r:::l infor:-;1~~t1.v,'.': t)v:t t~0 pnhl 'i.c lots h.;:ive been requice::d ·to bo man::1g:.."")<l 1.!ndar th(! p,:-i.nci?1.•-=::; of 1~ml~:ipla use: since n.t l<':!ast 191.:i5 {'J'itl8 12 M. ~.S • .:-i.. § 501-A', yci::. no i..nvcnt.or:r of i.::h:.~ typG c1bovc c.1cscribcc1 h.:::w b~on made of anv o::::- .:\ll of Un !YJ.bJ.ic J.ots in o:::der to c1iscover c::inu ·a~lin~ate ar,~an suit,':lblo ot" si~rni:C'i.c::int fo~· any of t.he mult-Lpl.c uses or· ·-the forost. Thl:!ro h~-:.G 'b:3cn p~~,c~·-ic.1 U.y no r.i.o.nc:1CJC:-,1c:nt for wilcJ.l ii'c o::: . ~p1.1.bl i.c rccrcc1tion::i.l r,ur9os0s (f..~:-~ccnt t.h8 ~nnual lcoses of c.::.mp loto to spcc~.fi.c i.ndivi~1uuls \. rt is p:-o!).:ibly f.:1-i.c to s.:ly tilw.t tho ~)ublic le.ts (on ,1hici-i. thr: 0:-n.r.s an<l tir.ibcc w:.;s .30ld h.:-ivc, in nv.'..ny instonccs. reco.iv,:;d :a hi.ghei: qn:iJ.ity of: for(?st lnnd ?~,:1n:1c-:·~~\:-!:1t by private comp:1nit..,;s .than1\:. •, • ·those which hQVC been managed by.th~ RtQtc. \ I ., i I Governor Kenneth M. Curtis -8- l'.p.r:il 13, 1973 There iD a. reason, cvon to a lcJ.rgc e::-ctont an excuse, for th~ low quality of m.::in:igement given to tb::sc public lots. '.t'ho aver~qa Bums ava:i,l~ble to the Fo.::c::;try Dopartrr.~nt. to rnunu90 90, OCiO -~cL"cs of: forest land in 8 counties h.::w b~1cn £.corn $13, 000 to :~is, 000 p,:.,r ye.::tr fo--: tho. paat 13 years and approximately $S,OOO per ye~r prio~ to th~t. A perm.1:::i'sive urgt:m·::mt: ciln be mndo th2.t much, if not <:111, thut could bo done •,;i t.hin th•.3 lir;ii tat ion of tlle.sc funcls, hc.w in fa1ct been c.1or.0. No such c::plnnation cu.n b~ tendered for the D..1:-::t.e.c St.z.i.t.c Pzu:-k i\nL!1orit.y, which hud accumul;:i.tcd upproximatcly $1,000,000 of G;:..1·nt.!<l but 'lHl.!::9cnt inco:-:10 and lms generally h::..d a surplu:J of incomu ov,~r expenses for a number of years.,· We believe that tl18rc is a solution to both of these situations and thc.1t while the zoluticn requires th,} c:,::,Y;;nditurc of public ..::'unds, these funds nrc, to a signi£ici:1.1t c::tent, u.l:.:-cady c1vailable. .In the case of Baxter State Park, these lDnds should be administe~cd in a first-9lass and exemplary mann3r, commensriratc not only with the •dignity of the state, but with the s~nerosity of our benefactor and the .si1Jnificu.nc0 of hi::; gift. Pem-...'.·iouG m:::mZJsement of these li1Dds is tuntm.1cunt to second-rate rr.an::i.gcmcn-i.::, and it ',;,•1ill pr.:.::vcnt thc:i:c full USG an:i onjoyrr.~nt by the pu.'nlic. Fundr; fox: these pn.r:po3es wo:cc pro~ yidcd to thG State by Governor Eaxt~r. ~hGy should ba used. Though the Forestry Department has had only palLry aums availublo to it to manage the public lots, the 90,000 acres ~hich it man~ses pro- duced a ycc:i.rly .:::vera0e 0£ oore than ci9ht ti,".'t•:CS tho 2.r;1ount avaiJ.~3::ilc for man;:::.gement. o:i.: the 12.nC:i; ovcc th::.:: past ::; 1;:vcral yoars. The c:-:c8.ss has bean ackicc1 tc the principal in '..:!1f.; tru:-,;ts comprising the Ur~o.-csanized 'l 1eci to~y School rund aria the Or921ni::cd 'rerr i tocy. School Puna, ,;_.::1::::-e it is pcc~ontly required by l~w to re~ain until the inco~poratia~ ~s ~ town of the various wildland tc:.-mships involved, at· 1.·Jhich ti~~ it goes to the people ir.i. the ta.-1n1 and can b8 sold by them, for school puipc::;es; Any ra.tio:1.al rc-evu.luatioa of the p:::ioritics and c::ispi:::-<1tions 0£ the State should lc.:!d to the conclu:::;ions tho.t tb.i::.; i:lr:czin9cr:1cn.t is cbsolctc .. There ia every reason to expect th~t income to the State from the public lots will incc0asc over thG coming yc3.rs. runes gcncr.atcd by the public lots should be used, to the extent ncco.ssarv .and feasible, to nE1n::1qe the public lots in o mann2::- rnorc appro;?riat.e fo;;D and beneficial to tho long range interest~ of th~ stat8. · As population and other forces place increasing pressure upon us to mu1:e the most of ·what t....;e h:::ive, ~nd to do it in a r::.:inne:c tbut p.:::-cservcs what we have for futuro generations. it seem □ imperative that \TC abandon the .view that our natural r€source.8 a:r:e unlimited and that they ci.1n be utili::..::d and mun::.igod in a caouul or h::-.9hc::i~u.cc:. r..anncr without !.;C!rious consequence.::.. Hllat seems most cc:-::r)·~llinq about. this pa.rticuldr r-.::!fo:cm, however; is th.::;.t signific;:nt. funds f.or: it::.: accomplicht1ent alrc.i<ly cxis,'i:.~. To the OJ'l.'t~nt thut tho state do·~s · not i.usc:l[ cxompliiy t.he spi1:it and 'I - Governoc Kenneth M. Curtis Aprill3, 1973 practice of: firot-ratc L:in~:i m<¼nagcmont, it only undermin8s public effortn to inculc~t0 and encourage c~ch practices in tho private sector. we hope th.:it: you will give somo thought to this subject and •:10 feel th::i.t, to tho o:;ctcnt thcco is 02<.::n an(1 honcr;t public discu::.sion of the issue, the State of Maine will be the bettor for it. JnL:mfc Yours voLy t~uly, JON A. LUND Atto£ncy General cc: Naynzi.rc1 Harsh, Ch21.irmc:in &.l:--::tcr state Park Autho:-:ity Fred E. Holt, Corr.missioner For2.stry . Senato~ Harrison L. RicharOson, Chairman Joint Special Legisl~tive Committee on Public Lands •