A refinement, perhaps Bradley and others agree with me, perhaps not.

A USFS NF is a "virtual" multipolygon (not one in OSM, we can get to that 
later) of three kinds of things:

1) An "outer" (but not the biggest one) which is "the enclosing land which USFS 
manages, except for inholdings, below,"
2) Zero to many "inner" polygons, representing inholdings (and with the usual 
"hole" semantic of exclusion from 1), above and
3) An even LARGER and ENCLOSING of 1) "outer" which Congress declares is the 
geographic extent to which USFS may or might "have influence to someday manage."

If we ignore 3) as "not real, but rather aspirational or in the future rather 
than the present, and certainly not on-the-ground" then an OSM multipolygon 
consists of simply 1) plus 2).

Yes?

SteveA
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