[Federal Register Volume 59, Number 112 (Monday, June 13, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-14306]


[[Page Unknown]]

[Federal Register: June 13, 1994]


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DEPARTMENT OF AGRICULTURE

Forest Service
RIN 059-AB47

 

Animal Damage Management

AGENCY: Forest Service, USDA.

ACTION: Notice of proposed policy; request for comment.

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SUMMARY: The Forest Service gives notice of and requests comment on 
proposed revisions to its policy on animal damage management to be 
published in the Forest Service Manual Chapter 2650. This direction 
would replace current agency procedures for implementing the provisions 
of a Memorandum of Understanding (MOU) between the Animal and Plant 
Health Inspection Service (APHIS)--Animal Damage Control unit and the 
Forest Service. This proposed policy is intended to clarify the role 
and responsibility of the Forest Service in coordinating with APHIS on 
animal damage management and in cooperating with APHIS in discharging 
Federal obligations to manage wild vertebrates causing damage on 
National Forest System lands under the Animal Damage Control Act of 
1931.

DATES: Comments must be received in writing by August 12, 1994.

ADDRESSES: Send written comments to the Director, Wildlife, Fish and 
Rare Plants Staff (2650), Forest Service, USDA, P.O. Box 96090, 
Washington, DC 20090-6090.
    The public may inspect comments received on this proposed policy in 
the Office of the Director, Wildlife, Fish and Rare Plants Staff, 4th 
floor, Northwest, Auditor's Building, 205 14th Street, SW., Washington, 
DC. Those wishing to inspect comments are encouraged to call ahead 
(202-205-1367) to facilitate entry into the building.

FOR FURTHER INFORMATION CONTACT:
Tom Darden, Wildlife Program Leader, (202-205-1206).

SUPPLEMENTARY INFORMATION: The Forest Service and APHIS cooperate in 
discharging Federal obligations under the Animal Damage Control Act of 
1931 (7 U.S.C. 426-426b) which governs animal damage management 
activities on National Forest System lands. These activities include 
actions to provide wildlife damage management through direct control, 
as well as technical assistance to achieve desired management 
objectives. APHIS, in cooperation with the Forest Service and states, 
carries out animal damage management activities on some National Forest 
System lands, mostly to minimize livestock losses from predation by 
coyotes, black bears, and other predators. Under other authorities 
(e.g., Multiple-Use Sustained-Yield Act of 1960 [16 U.S.C. 528(note), 
528-531]), the Forest Service conducts activities to control animal 
damage caused by small mammals and other animals to National Forest 
System resources, such as timber stands and roads.
    APHIS has responsibility for animal damage management activities, 
as designated by the Secretary of Agriculture (7 CFR 2.51(41)). The 
principal change being proposed in existing Forest Service Manual 
policy (FSM 2650) is the designation of APHIS as the lead agency for 
preparing environmental documentation on animal damage management 
activities initiated by APHIS on National Forest System lands. The 
Forest Service will cooperate with APHIS and the states in 
environmental analysis and documentation of actions proposed by APHIS 
that will occur on or affect National Forest System lands and provide 
mitigation measures needed to ensure that animal damage management 
activities performed by APHIS are compatible with direction provided in 
forest land and resource management plans.
    The proposed policy would bring the Forest Service Manual 
provisions into conformance with current field-level animal damage 
management practice. Current operational procedures for animal damage 
management activities are outlined in an August 25, 1992 letter to 
Forest Service Regional Foresters from Deputy Chief James C. Overbay 
and the subsequent Memorandum of Understanding (MOU) between APHIS and 
the Forest Service, signed June 18, 1993. Notice of availability of the 
MOU was published in the Federal Register on July 13, 1993 (58 FR 
37704).
    The 1993 MOU clarifies the role of each Forest Supervisor in 
cooperating with APHIS and the states in documentation of environmental 
actions proposed by APHIS, and in providing mitigation measures to 
ensure that animal damage management activities performed by APHIS are 
compatible with direction provided in forest plans. The MOU also 
clarifies that APHIS, in cooperation with the Forest Service, develops 
work plans for animal damage management activities on National Forest 
System lands. These plans address control areas, specific control 
techniques, emergency control procedures, timeframes, and other 
limitations and restrictions. The MOU recognizes APHIS work plans as 
the definitive plans for predator control actions on National Forest 
System lands.
    After discussion with the Council on Environmental Quality, the 
Forest Service has decided to publish this proposed animal damage 
management policy in the Federal Register, inviting public comment on 
the role and responsibility of the Forest Service in coordinating with 
APHIS on animal damage management. In the interim, the Forest Service 
and APHIS will follow procedures outlined in the 1993 MOU for which 
notice was published in the Federal Register.

Environmental Impact

    Section 31.1b(2) of Forest Service Handbook 1909.15 (57 FR 43180, 
Sept. 18, 1992) excludes from documentation in an environmental 
assessment or impact statement ``rules, regulations, or policies to 
establish Servicewide administrative procedures, program processes, or 
instructions.'' This proposed policy would provide administrative 
instructions to Forest Service field offices on the procedures and 
processes to follow in the case of coordination with APHIS on animal 
damage management activities. Accordingly, the agency's preliminary 
assessment is that this proposed policy falls within this category of 
action and that no extraordinary circumstances exist which would 
require preparation of an environmental assessment or environmental 
impact statement. A final determination will be made upon adoption of 
the final policy.

Controlling Paperwork Burden on the Public

    This policy will not result in additional paperwork. Therefore, the 
review provisions of the Paperwork Reduction Act of 1980 (44 U.S.C. 
3507) and implementing regulations at 5 CFR part 1320 do not apply.

Regulatory Impact

    This proposed policy has been reviewed under USDA procedures and 
Executive Order 12866 on Regulatory Planning and Review. It has been 
determined that this is not a significant policy.

    Dated: May 23, 1994.
David A. Harcharik,
Acting Chief.

Proposed Manual Revision

    Note: The Forest Service organizes its directive system by 
alpha-numeric codes and subject headings. Only those sections of the 
Forest Service Manual that are the subject of this notice are set 
out here. The audience for this direction is Forest Service 
employees charged with coordinating with the Animal and Plant Health 
Inspection Service--Animal Damage Control Unit on animal damage 
management activities on National Forest System lands.

Forest Service Manual--Chapter 2650--Animal Damage Management

    The Forest Service and Animal and Plant Health Inspection Service 
(APHIS)--Animal Damage Control unit, along with the states, cooperate 
in discharging the Federal obligations under the Animal Damage Control 
Act of 1931 to manage animal damage on National Forest System lands. 
These activities include actions to provide wildlife damage management 
through direct control, as well as technical assistance to achieve 
desired management objectives. APHIS carries out animal damage 
management activities on National Forest System lands, mostly to 
minimize livestock losses from predation by coyotes, black bears, and 
other predators. The Forest Service conducts activities to control 
animal damage caused by small mammals and other animals to National 
Forest System resources, such as timber stands and roads.
    2650.1--Authority. In addition to the authorities listed in FSM 
2601, the following authorities govern animal damage management 
activities on National Forest System lands:
    1. The Animal Damage Control Act of March 2, 1931 (7 U.S.C. 426-
426b) as amended by the Rural Development, Agriculture, and Related 
Agencies Appropriations Act of 1988 (Pub. L. 100-202) authorizes the 
Secretary of Agriculture to provide animal damage management services, 
to maintain technical expertise for evaluating and recommending animal 
damage management techniques, and to conduct forest and range animal 
damage research. The Secretary has delegated this authority to the 
Animal and Plant Health Inspection Service (APHIS)--Animal Damage 
Control unit.
    2. Executive Order 12342, January 24, 1982, permits the use of 
chemical toxicants registered by the Environmental Protection Agency 
for predator damage control on federal lands.
    3. Department of Agriculture Regulation (DR) 9500-4 (FSM 2601.2) 
requires Department of Agriculture programs to include measures to 
alleviate damage by plant and animal pests; develop new techniques and 
methodologies through management and research programs to limit damage 
to agriculture or forestry production; and apply integrated pest 
management practices, where feasible, in carrying out these 
responsibilities.
    4. A Memorandum of Understanding (MOU) between APHIS and the Forest 
Service outlines the cooperative approach to animal damage management 
on National Forest System lands. Both agencies have a joint 
responsibility for limiting damage caused by wildlife. In this MOU, 
APHIS and state agencies are recognized as having the authority and 
expertise to conduct predator control on National Forest System lands, 
to determine livestock losses, and to determine methodology for animal 
damage management. See FSM Sec. 1543.14 for the full text of the MOU.
    2650.2--Objective. The objective of animal damage management 
activities is to protect National Forest System resources, to protect 
activities taking place on National Forest System lands, and to reduce 
threats to human health and safety.
    2650.3--Policy. National Forest System resources must be adequately 
protected during animal damage management activities authorized by the 
states and conducted by the states or Animal and Plant Health 
Inspection Service (APHIS)--Animal Damage Control unit. When the Forest 
Service conducts animal damage management activities, such as 
controlling small mammal populations on plantations, the agency must 
comply fully with state and federal laws. In carrying out animal damage 
management activities:
    1. Rely upon APHIS or the state agencies to provide the expertise 
and conduct predator control on National Forest System lands, to 
determine livestock losses, and to determine methodology for animal 
damage management.
    2. Cooperate with APHIS, the lead agency, in preparing 
environmental documentation for predator control and other animal 
damage management activities initiated by APHIS on National Forest 
System lands. The Forest Service shall cooperate to ensure that the 
animal damage management plans developed by APHIS will provide for 
protection of National Forest System resources.
    3. Cooperate with APHIS in the development of work plans to ensure 
consistency with forest land and resource management plans.
    4. Conduct non-predator animal damage management, such as 
controlling small mammal populations on plantations, and necessary 
environmental analysis and disclosure on National Forest System lands 
consistent with forest plans.
    5. Recognize that taking of predators, including removal of 
depredating animals (for example, removal of a nuisance bear in a high-
use recreation area), may be carried out on National Forest System 
lands by an individual in accordance with state and federal law.
    6. Coordinate with the Bureau of Land Management (BLM) and other 
federal and state agencies to improve effectiveness of control program 
activities conducted on National Forest System and other public lands.
    7. Use an integrated approach to the prevention of animal damage 
and management of animal damage control programs. Consider a full range 
of methods, including physical barriers, repellents, habitat 
manipulation, biological controls, silvicultural methods (for example, 
fertilizing to improve soil fertility), pesticides, and hunting and 
trapping. Use licensed hunting, fishing, and trapping as a control 
technique where practicable.
    8. Use only pesticides that are properly registered in accordance 
with federal and state requirements for animal damage management and 
that conform to policies on pesticide-use management and coordination 
(FSM 2150). Follow label directions.
    9. Follow direction in FSM 2670. Threatened, Endangered, and 
Sensitive Plants and Animals, for federally proposed, threatened, 
endangered, or sensitive species listed by the Forest Service to 
determine whether proposed control measures conducted by the Forest 
Service are likely to have an effect on these species. The lead agency 
for completing environmental documentation (40 CFR 1508.16) is 
responsible for completion of all Endangered Species Act-mandated 
interagency consultations (16 U.S.C. 1536.7; FSM 2671.4).
    2650.4--Responsibility.
    2650.42--Deputy Chief for National Forest System. The Deputy Chief 
for the National Forest System is responsible for resolving any 
difficulties arising between Regions and Animal and Plant Health 
Inspection Service (APHIS)--Animal Damage Control unit that cannot be 
resolved by Regional Foresters under the Memorandum of Understanding 
(FSM 1543.14).
    2650.42--Regional Foresters. Regional Foresters are responsible 
for:
    1. Reviewing and approving all proposed pesticide uses for animal 
damage management on National Forest System lands (FSM 2151). Regional 
Foresters may redelegate this authority to Forest Supervisors; however, 
only Regional Foresters may approve animal damage management in 
wilderness (FSM 2323).
    2. Establishing or amending existing Memorandums of Understanding 
between the Region and appropriate state and other federal agencies 
regarding animal damage management.
    3. Reviewing all proposed Forest Service animal damage management 
activities within areas occupied by and habitat of federally proposed 
or listed threatened or endangered species and Regional Forester 
approved sensitive species. Regional Foresters may redelegate this 
authority to Forest Supervisors.
    4. Meeting with state or regional representatives, such as the 
APHIS Regional Director, as needed to coordinate animal damage 
management operations. Regional Foresters may designate a 
representative.
    5. Resolving any difficulties arising among APHIS personnel and 
Forest Supervisors under the Memorandum of Understanding (FSM 1543.14). 
Or referring them to the Chief for resolution.
    2650.43--Forest Supervisors. Forest Supervisors are responsible 
for:
    1. Ensuring appropriate environmental analysis requirements are met 
for proposed non-predator control activities conducted by the Forest 
Service and ensuring consistency with forest plan direction.
    2. Recommending changes in state hunting, fishing, or trapping 
regulations to accommodate animal damage management activities on 
National Forest System lands (FSM 2640).
    3. Meeting with APHIS personnel and responsible state agencies to 
cooperate where proposed predator control is needed to ensure 
coordination of Forest Service resources or activities on National 
Forest System lands.
    4. Cooperating with APHIS in preparation of environmental 
documentation for predator control or other animal damage management 
activities conducted by APHIS on National Forest System lands (40 CFR 
1508.15).
    5. Referring any difficulties arising from activities with APHIS 
under the Memorandum of Understanding (FSM 1543.14) for resolution by 
the Regional Forester.
    6. When needed, requesting training in animal damage management 
techniques by APHIS.
    7. Ensuring that licensing and certification of Forest Service 
personnel performing animal damage management activities comply with 
applicable federal and state regulations. Only certified pesticide 
applicators may use or supervise the use of restricted-use pesticides 
on National Forest System lands (FSM 2150).
    2650.6--Cooperation in Animal Damage Management Activities. Both 
the Forest Service and Animal and Plant Health Inspection Service 
(APHIS)--Animal Damage Control unit have a responsibility for limiting 
damage caused by wildlife, consistent with other wildlife values and 
resource management objectives. APHIS responsibilities are generally 
directed toward the management and control of animals causing damage to 
livestock, agriculture, wildlife, human health and safety. Forest 
service responsibilities are related to the management of National 
Forest System resources. See FSM Sec. 1543.14 for the text of the 
Memorandum of Understanding between the Forest Service and APHIS for 
animal damage management activities.
    The role of APHIS (7 CFR 2.51(41)) is as follows:
    1. Evaluate animal damage management needs and conduct predator 
control in cooperation with the Forest Service, state agencies, and 
permittees.
    2. Serve as lead agency for preparing environmental documentation 
on animal damage management activities initiated by APHIS on National 
Forest System lands.
    3. Develop and update animal damage management work plans in 
cooperation with the Forest Service and appropriate state and federal 
agencies, and interested publics to ensure compliance with forest 
plans.
    4. Inform the Forest Service about animal damage management 
requests, management activities, and results on a timely basis.
    5. Provide the Forest Service with technical information on 
recommended animal damage management tools and techniques.
    6. Conduct animal damage management training sessions for Forest 
Service personnel, when requested.
    2651--Wildlife and Fish Damage Management
    2651.1--Threatened and Endangered Species. Follow specific species 
control plans for federally listed species (for example, grizzly bear 
and wolf) cleared through consultation with the Fish and Wildlife 
Service and National Marine Fisheries Service.
    2651.2--Game and Furbearers. Control damage caused by game animals 
and furbearers through hunting or trapping, where practicable, in 
cooperation with the state fish and wildlife agencies, and APHIS, where 
appropriate.
    2651.3--Nongame Species. Control damage caused by nongame species 
on National Forest System lands in close cooperation with the state 
fish and wildlife agencies, or other involved state or federal 
agencies.
    2651.4--Birds. Where birds damage reforestation or other resources 
or where they create health hazards, nonlethal repellents, frightening 
devices, pesticides, or physical barriers may be used to prevent or 
reduce resource damage or hazards. Obtain permits from the Fish and 
Wildlife Service for any lethal control of species protected under the 
Migratory Bird Treaty Act. Consult the Fish and Wildlife Service for 
permit requirements and procedures.
    2651.5--Fish and Aquatic Animals. States or other responsible 
agencies have the authority to control undesirable fish and aquatic 
animals in National Forest System waters. The Forest Service is 
responsible for coordinating with the responsible agencies to develop a 
work plan to ensure control activities are consistent with direction 
provided in forest plans. Control activities conducted by the Forest 
Service must meet appropriate environmental analysis requirements and 
be consistent with forest plan direction.
    2651.6--Wildlife and Fish Damage Management in Wilderness Areas. 
Follow direction in FSM 2151, FSM 2323, and FSM 4063 for management of 
wildlife or fish damage in wilderness and Research Natural Areas. 
Animal damage management is permitted in wilderness when it was used 
prior to wilderness designation; when it conforms with direction in FSM 
2323.33 on resource management in wilderness; and when it is needed for 
the recovery of federally listed threatened or endangered species.
    2652--Reports. Report pesticide uses annually following direction 
in FSM 2158.

[FR Doc. 94-14306 Filed 6-10-94; 8:45 am]
BILLING CODE 3410-11-M