Chief Mike Dombeck and Regional Forester Jack Blackwell chartered a fact-finding team to look into issues of work environment and community relations on the Humboldt-Toiyabe National Forest (see Appendix A for team membership and complete charter). The team's appointment was precipitated by Gloria Flora’s announcement of her intent to leave her position as forest supervisor. In her open letter to employees, Flora expressed concerns over the physical safety and working conditions for Forest Service employees and anti-Forest Service sentiments affecting the ability of the agency to accomplish its mission.

The direction to the team was not to conduct rigid investigations of each occurrence raised, but rather to obtain clear information on the overall nature of the working environment for employees and the quality of external relationships. The information gathered is subsequently used to make recommendations for improvement.

The team spent two weeks in Nevada (December 5-17, 1999) and interviewed over 125 current and former employees in Reno, Carson City, Bridgeport, Austin, Elko, Ely, and Las Vegas. The team met with employees in group meetings and also gave each employee the opportunity to meet privately with a team member. Employees were also given the option of providing written comments anonymously.

During the interviews employees and retirees were generally asked the following questions:

1. How would you describe the atmosphere or climate in which you work? How does this atmosphere compare to other places you have worked?
2. Have you personally or have members of your family experienced an incident where you felt uncomfortable, threatened, intimidated or harassed? Please describe what you experienced.
3. What did you do at the time of the incident? How did you react to the incident?
4. What suggestions do you have to improve the work environment? What might be done to improve relationships with our publics?

The team also interviewed in person or by telephone almost 40 people external to the Forest Service including private citizens of Nevada; State, County, and City officials; a tribal leader; federal agency and other elected officials; and industry group representatives. During these external interviews team members generally asked the following questions:

1. What is your perception of the working environment for Forest Service employees?
2. What has been your experience of working with the Forest Service?
3. What could the Forest Service do to improve its working relationship with the public?

Appendix B contains examples of responses received to these questions.

Eighty-seven percent of the lands in Nevada are federally managed. Nevada's urban areas (Las Vegas, Reno) are among the fastest growing population centers in the nation. The rural populations of Nevada are scattered and most communities associated with the Humboldt-Toiyabe are small. Population growth in the urban areas of Nevada and neighboring California has increased interest in and use of the National Forest.

Many rural Nevada communities have histories and economies that are closely affiliated with the National Forest for their economic survival and strongly oppose any federal action that would limit access to and use of National Forest System lands. Some residents are either active participants or supporters of the home/local rule concept and strongly oppose federal management of public lands in Nevada. The issues surrounding the South Canyon Road near Jarbidge, Nevada, have increased public animosity towards the Forest Service and severely strained relations between federal and some county governments.

Prior to 1994, two National Forests existed in Nevada; the Humboldt and the Toiyabe. The two Forests were administratively combined in June 1994 and placed under the direction of one Forest Supervisor located in Sparks. The Washington Office formally approved the consolidation of the two forests in February 1998. At approximately 6.3 million acres, the Humboldt-Toiyabe is one of the largest National Forests with 5.7 million acres of land within 15 of Nevada's 17 counties and the remaining 600,000 acres within seven California counties.

Following the 1994 consolidation, the Forest reorganized its staff structure. Staff Officer positions were eliminated in the Supervisors Office. Four ecological units or "Eco-units" were established and each Ranger District was assigned to an Eco-unit. Assistant Forest Supervisors, who report directly to the Forest Supervisor, were hired for each Eco-unit. Despite the title, the Assistant Forest Supervisor positions are not classified as line officers and some employees expressed confusion over their role. The Assistant Forest Supervisors are responsible for project planning. They supervise a planning and monitoring team associated with each Eco-unit. District Rangers, who also report directly to the Forest Supervisor, are responsible for project implementation. Currently, only the Assistant Forest Supervisor position for the northeast Nevada Eco-unit remains occupied.

In addition to the establishment of the Eco-units, the reorganization caused the consolidation of several Districts. In northeast Nevada, four Districts were combined into two and the Rangers for the consolidated units were moved into one Forest Service office in Elko. Several communities were left with minimal Forest Service presence. The other factors that have contributed to the difficulty of managing National Forest System lands in Nevada are the funding levels and increased costs that occurred throughout the 90's. The number of employees working in the field has decreased dramatically with a corresponding increase in workload for the remaining employees. For example, the Forest has one Law Enforcement officer for four million acres in the central and northeast area. Some Ranger Districts are well over 1 million acres in size, with only 4 or 5 permanent field-going employees.

The Humboldt-Toiyabe is unique due to its size, the distance between units, its status as the only National Forest in Nevada, as well as the complexity of dealing with two states and twenty-two large and diverse counties. The management challenges associated with the physical dispersion of the Forest are significant. Travel from the Forest Supervisor's Office in Sparks, Nevada, to many of the District offices is a multi-day event by vehicle. Distances between some Forest offices exceed 300 miles. Travel between the Supervisor's Office and the three Districts in central Nevada or the four Districts in northeast Nevada consumes three to five hours each way.

The Humboldt-Toiyabe National Forest is responsible for managing vast and unique natural resources and programs in equally unique social and economic settings. Many employees view the Forest as a professionally challenging and rewarding place to work and live. Employees expressed that they have gained experiences while serving in Nevada which will benefit them and the Forest Service as they bring these experiences to new locations and positions.

The team identified several common themes, which arose in the group and individual interviews with employees and external contacts. They are presented here as findings. For purposes of this report, these findings are grouped into four categories. It is important to note that a great deal of crossover and interweaving occurs within these categories, and none can be completely understood without considering all the others. For each category, a summary of what the team heard is presented. This is followed by specific team findings and recommendations.

The team determined that, except for one significant exception, most of the Humboldt-Toiyabe is similar to other national forests in the quality of community relationships and generally positive work environment. During our interviews with employees and members of the public we were told of positive working relationships and successful partnerships that exist with the Forest Service in many areas of Nevada.

The significant exception is in northeast Nevada where most employees view the work environment as unusual and antagonistic.

Employees there described numerous situations over the past three years where Forest Service employees and their families have been subject to various forms and degrees of intimidation, harassment, and verbal abuse.

Many current northeast Nevada employees and former employees reported being treated disrespectfully and being exposed to highly embarrassing situations by community members. Employees spoke of incidents where, while doing field work, they encountered people whose actions or language they considered threatening causing them to be afraid for their well-being.

In several instances, Forest Service employees either were refused service by employees of local businesses or were subjected to foul language by other business patrons. To their credit, business owners dealt with these situations when they were reported; however, these experiences were very troubling to employees. We heard from two Forest Service spouses who reported being ostracized from community groups and verbally abused and ridiculed in public. One spouse told us that her child's teacher made disparaging comments during class about Forest Service employees. The issue with the teacher was raised to school authorities and is being dealt with. In two instances, church members were said to have left congregations after Forest Service employees joined.

Antagonistic treatment appeared to be due to specific actions the Forest Service was taking or to being identified as a Forest Service employee or family member.

Of the approximately 35 employees we met with in Elko, the majority said that working and living in this setting affected their sense of wellbeing. Lack of community support in Elko, Nevada, has caused some employees in that area to minimize professional and social interactions. However, others reported that they considered dealing with this a normal and tolerable aspect of their jobs.

Very few employees wear their Forest Service uniforms. Many preferred to drive white and non-greenfleet vehicles while performing their duties. Employees stated that these actions made them less conspicuous, and therefore, less exposed to animosity.

We heard from both employees and community members that believe in the past the Elko Daily Free Press fueled anti-federal attitudes in Elko and around northeast Nevada, including articles directed at individual employees. The Elko Daily Free Press is the only daily newspaper published in northeast Nevada. A review of editorials on the Elko Daily Free Press web page indicates that the paper is strongly in favor of county, local and private rights and opposed to a federal presence in Nevada. The paper frequently featured headlines critical of the Forest Service.

Employees believed they had made good faith efforts to provide information of interest about the Forest Service to the community through the paper. They were frustrated that when articles on Forest Service activities did appear announcing Forest Service activities or programs they were frequently disputed in editorials and disparaged in opinion pieces by the publisher. Many employees expressed the opinion that the editorial content of the Elko Daily Free Press has devalued the role of the Forest Service in northeast Nevada and affects the working atmosphere.

During its visit to Nevada the team learned that the Elko Daily Free Press had been sold and a new editor appointed.

We heard of egregious incidents that occurred prior to 1996, including the bombing of the Carson City District Ranger's office and home. Some of these situations were resolved; others remain unresolved. Many employees have vivid memories of these events and continue to be troubled by them. Some incidents were never reported because the employee was not aware of the reporting process.

Many external contacts were troubled and angered by accusations raised by Flora in her letter and think the claims are unfounded or too all-inclusive.

• Working relationships were generally good in much of Nevada. Where problems were found, Forest Service employees, elected officials and local publics expressed a strong desire to work together to improve relationships.

• An antagonistic work environment currently exists in northeast Nevada which has had an impact on Forest Service effectiveness. When considered cumulatively, the experiences employees described were beyond what is typical in work environments for Forest Service employees in other places. The work environment is difficult but is not considered dangerous.

• No incidents of personal threats, violence, or abuse in the past several years that would cause the Forest Service to seek criminal prosecution through the Department of Justice.

• Concern still exists about the Carson City bombing to the extent that it affects some employees on a daily basis.

• When unacceptable situations occur involving harassment, discrimination, or threats, Forest Service leadership, including the Regional Forester and Forest Supervisor as appropriate, should inform community leaders and emphasize the goal of working in an atmosphere of collaboration and respect. The Forest Service must work aggressively with community leaders to minimize these behaviors towards Forest Service employees.

• Issue direction to Humboldt-Toiyabe employees and employees throughout the Forest Service on the process to use to report incidents of personal threats, violence, intimidation, harassment and verbal abuse. The process should clearly outline the roles and responsibilities of employees, law enforcement personnel, supervisors and Line Officers. Ensure that each employee is informed of the process, periodically review its effectiveness, and make adjustments as needed.
• After an incident has been reported, Law Enforcement will maintain open and frequent communications with the employee and supervisor. Bring closure as soon as feasible.

• The Forest Leadership Team should assess the effects of upcoming decisions on work environment and ensure that employees understand and are aware of decisions.
• Include discussions on external work environment as part of unit meetings and safety and wellness programs.
• Ensure employees and their families have access to support resources to deal with high conflict situations they may encounter. Identify tools and provide support to help employees remain productive and to retain balanced perspectives during times of increased stress.

• Law Enforcement investigators should work closely with the Federal Bureau of Investigation and the United States Attorney in Nevada to reach a conclusion to the Carson City bombings.

• Work closely with the Editor and reporters of the Elko Daily Free Press to build a strong professional day-to-day working relationship with the paper.

In our discussions with employees and the public, we heard that consolidation of the Humboldt and Toiyabe National Forests and the subsequent reorganization has reduced organizational effectiveness. Employees told us that the addition of Assistant Forest Supervisors to the organization created confusion for employees and the public. The public had difficulty in determining who was in charge. District Rangers were unclear about their role given the superimposition of an additional management layer. Employees and external contacts expressed that the loss of Line Officers as a result of District consolidation has adversely affected community relations. Line Officers frequently are absent from units due to the distance between consolidated offices and the issue demands in the centralized office.

Some employees told us that the elimination of Staff Officers has resulted in impaired responsiveness to the public and reduced program support to employees. Others expressed that the Forest's ability to foresee and proactively respond to emerging issues has been compromised by the lack of Staff Officers.

We heard that the number of employees on some units has dropped below the "critical mass" necessary to meet commitments and provide service to the public. Vacated positions remain unfilled for long time periods due to recruitment challenges. Field visits on some units are occurring only in areas with on-going projects. Employees related that other areas of the Forest are frequently neglected due to lack of personnel. On the ground contact between permittees and employees has decreased.

• The current Forest reorganization has not provided the envisioned organizational benefits or effectiveness.
• The lack of Staff Officers has contributed to a decline in programmatic direction and accountability.
• The decrease in Line Officers and employees in northeast Nevada has adversely affected customer and community relations.

Conduct a comprehensive evaluation of the forest consolidation and effectiveness of the current Forest organizational structure including:

• Increase the visible presence of Line Officers in northeast Nevada.
• Immediately filling vacancies
• Add Staff Officers/Branch Chiefs to the forest organization.

Employees and external contacts forest-wide stated that the Forest Service was not emphasizing its positive accomplishments in Nevada. Employees and external contacts cited "Shop with a Cop," Kids’ Fishing Days, Passport in Time projects, Public Lands Day and interpretive programs as successful community activities.

Some cooperators perceived that Forest Service employees in northeast Nevada wanted as little public exposure as possible, which would limit personal and agency ridicule. Some external contacts thought they received poor customer service, specifically as it relates to written communications and return of telephone calls.

• Extensive vacant positions and a reduction in staff have resulted in voids in building public relationships.
• Lack of visibility for programs has created the perception that the Forest Service is out of touch with local communities in some areas.
• Lack of a focused communications and public outreach program has negatively affected understanding and support for Forest Service activities in Nevada.

The Humboldt-Toiyabe National Forest should develop a comprehensive, proactive, and forward looking Communications Strategy. Focus on developing strong, long-term community relationships that encompass all Forest Service activities. Clearly identify goals, objectives and responsibilities. Closely monitor implementation and results to determine effectiveness and the need for revision. The Strategy should address:

• Communications with state and local media, community leaders, state, county, city and other federal government officials, interest groups, industry, and customers
• Effective government-to-government interaction with Tribes
• Standards for working relationships with permittee stakeholders and other key partners
• Customer service including responsiveness and customer friendly office hours
• Public outreach
• Public affairs and community relations staffing
• Agency image and participation in professional groups/societies, continued sponsorship of special events, and utilization of uniforms and fleet vehicles
• Utilization of effective public involvement and collaborative stewardship processes

The team was told of many positive working relationships that currently exist in Nevada. Examples include relationships with the Bureau of Land Management, Nevada Mining Association, Nevada Department of Natural Resources, Nevada Department of Wildlife and local Chambers of Commerce. Many external contacts expressed that the Forest Service had provided good support during the floods. Others cited the good will that has been generated through programs like "Shop with a Cop," Passport in Time, Kids' Fishing Days and campground interpretive programs.

The team also heard of relationships that need improvement. Some County officials and private citizens stated that poor communication with the Forest Service has affected Forest Service credibility and decreased trust in the agency. They said that when the Forest Service doesn't communicate with them, they think the agency is trying to hide information.

County Commissioners expressed that they want to be at the table and involved in decision-making. They stated that they want to be treated as "cooperating agencies" during the NEPA process. County officials and private citizens expressed frustration about national policies being imposed on them with no apparent consideration for how these policies will affect local economies.

Local citizens stated that their input on issues should be weighted more heavily than comments from urban areas and presently think that their views are not even given equal consideration. Elko County Commissioners expressed great dismay at how the decision to not rebuild the South Canyon Road was made and communicated.

In 1996, the Intermountain Region, Humboldt-Toiyabe Forest and Nye County developed and signed a Memorandum of Understanding (MOU) which outlined agreements and expectations for their working relationship. Nye County officials expressed frustration that the MOU was not being honored. Leadership has changed since the document was signed; most of the original Forest Service signers no longer work on the Forest or in the Region.

Many of the external contacts expressed dismay at the negative publicity directed at the State and Counties caused by Flora's departure and the planned civil disobedience in Elko County over the South Canyon Road. They believe the difficulties are localized and want to turn this situation around.

• Good working relationships exist between the Forest Service and numerous partners throughout Nevada. Employees at these locations are proud of the good work.
• The distrust that exists between some key community leaders and the Forest Service contributes to difficulties in gaining support for local Forest Service activities and for national initiatives.
• Regional and National decisions that affect local economies and recreational opportunities are distrusted.
• National policy (e.g., roadless initiative) is perceived by many external contacts as being designed to limit access to public lands.
• The roadless initiative is creating a highly polarized atmosphere in many rural areas of Nevada.
• State, county and local leaders want to improve working relationships with the Forest Service.

Implementation of recommendations that appear under the heading Public Relationships and Forest Service Image would address many of the Working Relationships issues and findings . Additionally, the team recommends the following:

• The Humboldt-Toiyabe National Forest and Intermountain Region should seize the opportunity provided by the extensive publicity to rebuild relationships that are strained.
• The Forest should address specific ways to improve relationships and collaboration with County officials, including working agreements such as done in Nye County.
• The Intermountain Region and Washington Office should increase management emphasis and support for the Humboldt-Toiyabe, particularly on national policy issues and initiatives.

These findings, while identified on the Humboldt-Toiyabe National Forest, are issues that must be addressed appropriately at the Regional and/or National levels of the Forest Service:

County elected officials stated they believe many of the roads being closed, not maintained, etc., are actually County roads under RS 2477 and the decision on road status is theirs alone to make. They disagree with the definition of what constitutes a road under RS 2477 and as long as that atmosphere continues to exist, conflicts will remain between the Forest Service and the Counties on access and road management issues. The team believes this key issue must be resolved before relations can move forward in many Western States.

• The Washington Office should begin work through the Agriculture and Interior Departments to bring the RS 2477 issue to resolution.
• The Regional Office either should adopt the Humboldt-Toiyabe draft pilot for Nye County or develop a pilot for evaluating claims to rights-of-way under RS 2477 and enter into an agreement with several counties in the Region for testing the pilot. Multiple counties should be considered for involvement. The pilot should be designed to identify areas of agreement and disagreement and provide a means to focus on agreements until RS 2477 is resolved nationally.

Many of these officials stated and believe that, regardless of their input, decisions are made, or already have been made, at higher levels of the organization or Administration.

Local managers are not adequately prepared to deal with national initiatives due to a perceived lack of consistent information and direction from Regional and Washington Offices.

State and locally elected officials and the public suspect that national initiatives will over-rule Forest Plan direction that was reached through collaborative approaches.

• Regional Office should increase the amount of visible support they provide the Humboldt-Toiyabe. A first step would be the Chief’s visit with Forest employees in northeast Nevada with periodic follow-up visits by the Regional Forester and Deputies.

• Regional Office should hear and respond to the public reaction by being physically present on the Forest during critical stress periods (e.g., during public meetings for national initiatives).

The recommendations represent the priority work environment and community relations issues for management attention by the Humboldt-Toiyabe National Forest, the Regional Forester, and the Chief. The team stresses that management should give the necessary resources, energy and priority to ensure the Forest Service in Nevada is doing all it can to improve the work environment for employees and to build constructive, positive relationships with all it serves.

The team commends the commitment, professionalism and dedication evident in individual employees and the Humboldt-Toiyabe forest workforce as a whole. Throughout the review period and at each unit visited, both employees and external contacts actively participated in interviews and expressed a wide range of perspectives and experiences of working on the forest and living in its communities. They proudly shared their many successes and accomplishments. They shared their concerns and were ready with meaningful suggestions for improvement, many of which are part of this report.

The Humboldt-Toiyabe is a complex forest facing difficult issues. Maintaining productive relationships and communication are management themes that can lead to increased success in land stewardship and public service. The commitment and energy of the Humboldt-Toiyabe employees is there to be harnessed. With careful examination and timely action, the Humboldt-Toiyabe is well positioned to achieve its goals.