[Federal Register Volume 61, Number 141 (Monday, July 22, 1996)]
[Proposed Rules]
[Pages 37994-38011]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-18430]



[[Page 37993]]


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Part IV





Department of the Interior





_______________________________________________________________________



Fish and Wildlife Service



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50 CFR Part 20



Migratory Bird Hunting; Proposed Frameworks for Early-Season Migratory 
Bird Hunting Regulations; Proposed Rule

  Federal Register / Vol. 61, No. 141 / Monday, July 22, 1996 / 
Proposed Rules  

[[Page 37994]]



DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 20

RIN 1018-AD69


Migratory Bird Hunting; Proposed Frameworks for Early-Season 
Migratory Bird Hunting Regulations

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Proposed rule; Supplemental.

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SUMMARY: The Fish and Wildlife Service (hereinafter the Service) is 
proposing to establish the 1996-97 early-season hunting regulations for 
certain migratory game birds. The Service annually prescribes 
frameworks, or outer limits, for dates and times when hunting may occur 
and the maximum number of birds that may be taken and possessed in 
early seasons. Early seasons generally open prior to October 1, and 
include seasons in Alaska, Hawaii, Puerto Rico, and the Virgin Islands. 
These frameworks are necessary to allow State selections of final 
seasons and limits and to allow recreational harvest at levels 
compatible with population status and habitat conditions. This 
supplement to the proposed rule also provides the Service's final 
regulatory alternatives for the 1996-97 duck hunting season.

DATES: The comment period for proposed early-season frameworks will end 
on August 1, 1996; and for late-season proposals on September 3, 1996. 
The Service will hold a public hearing on late-season regulations 
August 2, 1996, starting at 9 a.m.

ADDRESSES: The Service will hold a public hearing August 2 in the 
Department of the Interior's Auditorium, 1849 C Street, NW., 
Washington, DC. Parties should submit written comments on these 
proposals and/or a notice of intention to participate in the late-
season hearing to the Chief, Office of Migratory Bird Management 
(MBMO), U.S. Fish and Wildlife Service, room 634--Arlington Square, 
Washington, DC 20240. The public may inspect comments during normal 
business hours in room 634, Arlington Square Building, 4401 N. Fairfax 
Drive, Arlington, Virginia.
FOR FURTHER INFORMATION CONTACT: Paul R. Schmidt, Chief, MBMO, U.S. 
Fish and Wildlife Service, (703) 358-1714.
SUPPLEMENTARY INFORMATION: 

Regulations Schedule for 1996

    On March 22, 1996, the Service published in the Federal Register 
(61 FR 11992) a proposal to amend 50 CFR part 20. The proposal dealt 
with the establishment of seasons, limits, and other regulations for 
migratory game birds under Secs.  20.101 through 20.107, 20.109, and 
20.110 of subpart K. On June 13, 1996, the Service published in the 
Federal Register (61 FR 30114) a second document providing supplemental 
proposals for early- and late-season migratory bird hunting regulations 
frameworks. The June 13 supplement also provided detailed information 
on the 1996-97 regulatory schedule and announced the Service Migratory 
Bird Regulations Committee and Flyway Council meetings. On June 14, 
1996, the Service published in the Federal Register (61 FR 30490) a 
third document describing the Service's proposed 1996-97 regulatory 
alternatives for duck hunting and its intent to consider establishing a 
special youth waterfowl hunting day.
    This document is the fourth in a series of proposed, supplemental, 
and final rulemaking documents for migratory bird hunting regulations 
and deals specifically with proposed frameworks for early-season 
regulations. It will lead to final frameworks from which States may 
select season dates, shooting hours, and daily bag and possession 
limits for the 1996-97 season. The Service has considered all pertinent 
comments received through July 8, 1996, in developing this document. In 
addition, new proposals for certain early-season regulations are 
provided for public comment. Comment periods are specified above under 
DATES. The Service will publish final regulatory frameworks for early 
seasons in the Federal Register on or about August 16, 1996.
    This supplemental proposed rulemaking consolidates further changes 
in the original framework proposals published in the March 22 Federal 
Register. The regulations for early waterfowl hunting seasons proposed 
in this document are based on the most current information available 
about the status of waterfowl populations and habitat conditions on the 
breeding grounds.

Presentations at Public Hearing

    Five Service employees presented reports on the status of various 
migratory bird species for which early hunting seasons are proposed. 
These reports are briefly reviewed below.
    Dr. Jim Dubovsky, Waterfowl Specialist, presented information on 
1996 habitat conditions for waterfowl, preliminary estimates of duck 
abundance, and harvests during the 1995 September teal seasons. Most of 
the midcontinent region experienced unusually cool temperatures during 
May and early June. Spring conditions were delayed approximately 2-3 
weeks throughout most of the region. In the northcentral United States, 
southern Saskatchewan, and southern Manitoba, habitat conditions for 
nesting ducks were good to excellent. Abundant water existed in natural 
and artificial basins, and land managed in conservation easements in 
the United States continued to provide good nesting cover. Southern 
Alberta had improved wetland conditions relative to recent years, but 
nesting cover was limited because grazing reduced the amount of 
residual vegetation, and cool temperatures slowed growth of grasses. 
The pond estimate for the northcentral United States and prairie Canada 
combined was 7.5 million. This estimate was the second highest 
recorded, and was 61 percent above the long-term average. Farther north 
in the prairie provinces and in the Northwest Territories, habitat 
conditions were much improved from last spring, when habitats were 
extremely dry and forest fires were common. This year, most areas had 
abundant water. Conditions in Alaska and in survey areas throughout 
eastern portions of the United States and Canada also were favorable 
for nesting waterfowl. Estimates of duck abundance for most species 
during spring 1996 generally were similar to those of last year. Blue-
winged teal and northern shoveler increased in abundance. American 
wigeon numbers decreased. The 1995 May breeding population survey 
yielded an estimate of 6.4 million blue-winged teal, which was greater 
than the 1995 estimate of 5.1 million and 53 percent above the long-
term average. The estimated harvest of blue-winged teal during the 1995 
September teal season was approximately 370,000 birds, which was about 
100,000 birds more than the 1994 teal-season harvest. However, the 1995 
estimate was within the range of harvests experienced historically. 
Band-recovery rates of blue-winged teal suggested that 1995-96 harvest 
rates were similar to or lower than those during the 1970's and early 
1980's.
    Dr. David Caithamer, Wildlife Biologist, reviewed the status of 
several populations of Canada geese for which the Service is proposing 
September seasons. In Alaska five subspecies of Canada geese are hunted 
including Dusky Canada geese and Cackling Canada geese. Numbers of 
Dusky Canada geese, which nest primarily in the Copper River Delta of 
Alaska, have declined steadily since an earthquake in 1964 altered 
their nesting habitat and

[[Page 37995]]

resulted in lowered recruitment rates. The January 1995 population 
index revealed approximately 8,500 geese. Unfortunately, no survey was 
conducted in January 1996 due to the furlough of federal employees and 
inclement weather. However, preliminary results from a spring survey of 
Dusky geese on the Copper River Delta suggest that the size of the 
breeding population is similar to the record-low size observed last 
spring. The Service remains concerned about the continued poor status 
of this population. The December 1995 survey of Cackling Canada geese 
revealed approximately 161,000 geese, which was about 6 percent higher 
than 1994 index. This population has grown approximately 14 percent per 
year since 1986. The 3 other subspecies of Canada geese hunted in 
Alaska are thought to be at or above objective levels. In the Pacific 
Flyway, the Rocky Mountain Population of Canada geese increased 18 
percent from 1995 to 109,000 geese. The population of Mississippi 
Flyway giant Canada geese has increased at a rate of about 5 percent 
per year during the last 10 years. In some areas, numbers of giant 
geese have increased to record-high and nuisance levels. The situation 
is similar in the northeastern U.S., where the ``resident'' goose 
population has approximately doubled since 1989 to nearly 800,000 
birds. The Service is concerned about the rapid growth rate and large 
sizes of resident Canada goose populations in parts of the Atlantic and 
Mississippi Flyways. In some regions, the management of these large 
populations of resident geese is confounded by the presence of other 
populations, which are below population objectives. A case in point is 
the migratory population of Atlantic Canada geese which nests in 
northern Quebec and winters in the Atlantic Flyway. The number of 
breeding pairs of Atlantic Canada geese has declined from 118,000 in 
1988 to only 29,000 in 1995. The Service recognizes the challenge 
facing management agencies which are striving to increase migrant 
populations, while simultaneously attempting to decrease resident 
populations.
    Mr. David Sharp, Central Flyway Representative, reported on the 
status and harvests of sandhill cranes. The Mid-Continent Population 
appears to have stabilized following dramatic increases in the early 
1980s. The Central Platte River Valley 1996 preliminary spring index, 
uncorrected for visibility, was 315,200. This index is 15 percent 
higher than 1995's index of 273,376. However, the photo-corrected 3-
year average for the 1993-95 period was 394,093, which was 6 percent 
below the previous year's 3-year running average and within the 
established population-objective range of 343,000-465,000 cranes. All 
Central Flyway States, except Nebraska, elected to allow crane hunting 
in portions of their respective States in 1995-96; about 20,200 Federal 
permits were issued and approximately 7,400 permittees hunted one or 
more times. The number of permittees and active hunters were similar to 
the previous year's seasons. About 20,777 cranes were harvested in 
1995-96, a 20 percent increase from the previous year's estimate. 
Harvest from Alaska, Canada and Mexico are estimated to be less than 
10,000 for 1995-96 sport-hunting seasons. The total North American 
sport harvest was estimated to be about 34,773, which is an all time 
record high level. Annual surveys of the Rocky Mountain Population, 
which migrates through the San Luis Valley of Colorado in March, 
suggest a relatively stable population since 1984. The 1996 index of 
20,500 cranes was within the established objective range of 18,000-
22,000. Limited special seasons were held during 1995 in portions of 
Arizona, Montana, New Mexico, Utah, and Wyoming, and resulted in an 
estimated harvest of 378 cranes.
    Dr. John Bruggink, Eastern Shore and Upland Game Bird Specialist, 
reported on the 1996 status of the American woodcock. The 1995 
recruitment index for the Eastern Region (1.2 immatures per adult 
female) was 29 percent below the long-term regional average; the 
recruitment index for the Central Region (1.4 immatures per adult 
female) was 18 percent below the long-term regional average. Singing-
ground Survey data indicated that the number of displaying woodcock 
decreased (P<0.01) between 1995 and 1996 in the Eastern and Central 
regions (-20.2 and -11.5 percent, respectively). Trends from the 
Singing-ground Survey during 1986-96 also were negative (-3.2 and -3.7 
percent per year for the Eastern and Central regions, respectively) 
(P<0.01). There were long-term (1968-96) declines (P<0.01) of 2.5 
percent per year in the Eastern Region and 1.6 percent per year in the 
Central Region.
    Mr. David Dolton, Western Shore and Upland Game Bird Specialist, 
presented the mourning dove population status. The report summarized 
call-count information gathered over the past 31 years. Trends were 
calculated for the most recent 2 and 10-year intervals and for the 
entire 31-year period. Between 1995 and 1996, the average number of 
doves heard per route declined significantly in all three management 
units. In the Eastern Management Unit (EMU), a significant decline in 
doves heard was found over the most recent 10 years, but no trend was 
indicated over 31 years. The Central Management Unit (CMU) showed 
significant declines for both the 10 and 31-year time frames. In the 
Western Management Unit (WMU), no trend was evident over the most 
recent 10 years, but there has been a significant decline over 31 
years. Trends for doves seen at the unit level over the 10 and 31-year 
periods agreed with trends for doves heard in the WMU. No trend was 
found in doves seen over 10 years in the EMU and for 31 years in the 
CMU. Trends for doves seen in other time periods were comparable to 
those in doves heard.
    Mr. Dolton also presented the status of western white-winged doves 
in Arizona. Since the 1980's, whitewing populations have remained 
relatively stable. The 1996 whitewing call-count index of 31.1 doves 
heard per route was essentially the same as the index of 31.2 doves 
heard per route in 1995. Since 1987, hunters have harvested around 
100,000 birds annually. In 1995, an estimated 107,000 birds were 
harvested, a 22 percent decrease from 1994.
    Mr. Dolton then reported on the status of eastern white-winged 
doves and white-tipped doves in Texas. Results of the 1996 whitewing 
call-count survey indicate 391,000 birds were nesting in the Lower Rio 
Grande Valley counties of Starr, Hidalgo, Cameron, and Willacy. This is 
an 11 percent decrease from 1995, but 6 percent below the previous 6-
year average count (1990-95). This decline may be due to a drought in 
the Lower Rio Grande Valley since December 1994 which may be affecting 
available native and domestic feed and nesting habitat. In Upper South 
Texas, an estimated 620,000 whitewings were nesting throughout a 19-
county area. This was essentially the same count as last year. West 
Texas also supports a small population of whitewings. The 1996 estimate 
of 18,750 birds was 19 percent above the 1995 estimate. For white-
tipped doves, an average of 0.47 birds were heard per stop in both 
brush and citrus locations in 1996.
    Last, Mr. Dolton presented population and harvest information on 
band-tailed pigeons. Band-tailed pigeons are managed as two separate 
populations: the Coastal Population (Washington, Oregon, California, 
and Nevada) and the Four-corners or Interior Population (Utah, 
Colorado, Arizona, and New Mexico). For the Coastal population, the 
Breeding Bird Survey (BBS) indicates a significant decline between 1968 
and 1995. Mineral site counts conducted in Oregon in 1995 showed a 23 
percent decrease in pigeon use over 1994.

[[Page 37996]]

Washington's call-count showed essentially no change in the population 
between 1994 and 1995. Between 1975 and 1995 there was no significant 
trend found in the population, but a significant increase was noted 
during the most recent 5-year period between 1991 and 1995. Two 
indirect population estimates suggest that the population was between 
2.4 and 3.1 million birds in 1992. With continuing restrictions on bag 
limits and season length, the 1995 harvest was an estimated 2,074 
pigeons in Oregon and 10,428 in California. Washington has had a closed 
season since 1991. In the Four-corners area, BBS data showed a stable 
population between 1968 and 1995. The 1995 combined harvest for all 
four States was 1,518 birds; well below the harvest in earlier years 
which ranged up to 6,000 birds.

Comments Received at Public Hearing

    Mr. Dale Bartlett, representing the Humane Society of the United 
States (HSUS), expressed concern that the Service continues to 
establish liberal hunting regulations on species without adequate data. 
HSUS believes that sea duck seasons should be closed or severely 
restricted until adequate data on population status and species biology 
are available. HSUS claims that the Service acted too quickly to 
liberalize duck hunting regulations since the populations of many 
species remain below goals set by the North American Waterfowl 
Management Plan (NAWMP). HSUS is frustrated with the failure of the 
Service to close seasons on species in decline such as woodcock, 
coastal populations of band-tailed pigeon, white-winged doves in 
Arizona, and mourning doves in the Western Management Unit. HSUS 
believes that bag limits and season lengths on several species of 
webless migratory birds are ridiculously high and fly in the face of 
the principles of wise and ethical use of the resource. They strongly 
recommend that opening dates in Alaska be delayed at least 2 weeks to 
allow birds to leave their natal marshes. They also recommend that the 
Service require all seasons to open at noon during mid-week to reduce 
large kills. They further urged the Service to disallow one-half hour 
before sunrise shooting. Finally, they expressed concern about the 
general direction of the Service towards resident Canada goose 
management.
    Mr. Don Kraege, representing the Pacific Flyway Council, expressed 
appreciation for the Service's efforts to enhance cooperative waterfowl 
management. He stated that the Flyway generally supports the idea of 
limiting zone/split configurations for duck hunting. However, he 
requested the Service reconsider the Council's recommendation on splits 
and zones for duck seasons. Specifically, he recommended removal of the 
requirement that duck seasons in different zones differ by at least one 
day. He suggested that this change would lead to regulatory 
simplification, increased hunter satisfaction, enhance waterfowl 
habitat efforts on private lands, and would not significantly alter 
harvest.
    Mr. Joe Kramer, representing the Central Flyway Council, reviewed 
recommendations passed by the Council regarding establishment of this 
year's migratory bird hunting regulations. He supported the proposed 
expansion of the Rocky Mountain Greater Sandhill Crane hunt area in 
Wyoming. Reviewing status information on blue- and green-winged teal 
populations, he indicated that this year's combined spring-breeding 
population of about 8.9 million was a record high level and that the 
projected fall flight will probably be the largest ever recorded. He 
indicated that the Central and Mississippi Flyway Councils would 
complete a more comprehensive harvest approach for these special 
seasons by March 1997. He supported the Central Flyway Council's 
recommendation to expand this year's teal bag limit from 4 to 5 and 
increase the teal season length from 9 to 16 days. He also reaffirmed 
the Council's strong support for the Adaptive Harvest Management 
process, but recommended an increase in season length from 60 to 67 
days under the ``liberal'' alternative. He supported the recommended 
change in the redhead daily bag limit from 1 to 2 in the ``liberal'' 
alternative for the Central and Mississippi Flyways.
    With respect to the zone/split criteria for the establishment of 
duck hunting seasons, Mr. Kramer reiterated the Central Flyway's 
objection to constraints on the use of additional days in the High 
Plains Mallard Management Unit. Mr. Kramer supported efforts by the 
Service to review baiting regulations, but he pointed out continuing 
desires by many Central Flyway States to review the timing of the 
early- and late-season meetings. Finally, Mr. Kramer supported the 
additional flexibility allowed to address resident goose problems 
through special hunting seasons, and the concept of establishing a 
youth waterfowl hunt.
    Mr. Charles D. Kelley, representing the Southeastern Association of 
Fish and Wildlife Agencies, commended the Service for its efforts in 
developing the Harvest Information Program, which will provide improved 
harvest estimates for a number of species. He also stated that he 
appreciated the Service's recognition of the problems caused by 
rapidly-expanding populations of giant Canada geese and the need to 
work toward solving them.
    Ms. Anne Muller, representing the Committee to Abolish Sport 
Hunting, and its affiliate, the Coalition to Prevent the Destruction of 
Canada Geese, commented that State and Federal wildlife agencies are 
exploiting wild Canada geese to supply hunters with targets by 
increasing resident goose populations on wildlife management areas in 
every State. She claimed that this is done in order to collect excise 
taxes on lethal weapons and ammunition. Further, she objected to the 
roundup and shipment of geese by game agencies personnel to slaughter 
houses to feed the poor, and believed this action violates the rights 
of the general citizenry. Ms. Muller asked that the Service change the 
current depredation permitting process. Finally, she requested that 
public hearings be held during evening hours to increase pubic 
attendance and that the Service directly involve communities to help 
resolve nuisance Canada geese conflicts.
    Mr. Peter Muller, representing the Committee to Abolish Sport 
Hunting, expressed concern that the special Canada goose seasons 
currently held in New York and New Jersey were responsible for the 
decline of migrant geese nesting in northern Quebec. He questioned 
whether the criteria allowing 10 and 20 percent harvest of migrant 
geese during the special early and late seasons, respectively, were too 
liberal. Further, he argued that statistics regarding this goose 
population were highly dubious since very little banding had occurred 
on the breeding ground to accurately determine the racial composition 
of the harvest. He indicated that little is known regarding the 
interactions between resident and migrant geese and recommended 
suspension of these seasons until more information regarding population 
affiliation was available. To assess the beneficial effects of these 
liberal hunting seasons on resident Canada geese, he asked that the 
Service develop an Environmental Impact Statement (EIS). He requested 
that the Service maintain and enforce strict waterfowl baiting 
regulations. Finally, he was disturbed by the trend of State and 
Federal management agencies of shifting to more liberal policies.
    Dr. Ann Stirling Frisch expressed opposition to a proposed new hunt 
area for special early Canada goose seasons in Wisconsin. Dr. Frisch 
suggested such seasons are ineffective at controlling

[[Page 37997]]

local Canada goose populations, that habitat management was a 
preferable alternative to hunting seasons, that other lethal means of 
control were undesirable. She further stated that National 
Environmental Policy Act (NEPA) requirements were not met in 
establishing such seasons.

Written Comments Received

    The preliminary proposed rulemaking, which appeared in the March 22 
Federal Register, opened the public comment period for migratory game 
bird hunting regulations. As of July 8, 1996, the Service had received 
82 comments; 18 of these specifically addressed early-season issues and 
9 addressed the proposed regulatory alternatives for duck hunting. 
Early-season comments are summarized below and numbered in the order 
used in the March 22 Federal Register. Only the numbered items 
pertaining to early seasons for which written comments were received 
are included. The Service received recommendations from all four Flyway 
Councils. Some recommendations supported continuation of last year's 
frameworks. Due to the comprehensive nature of the annual review of the 
frameworks performed by the Councils, support for continuation of last 
year's frameworks is assumed for items for which no recommendations 
were received. Council recommendations for changes in the frameworks 
are summarized below.

1. Ducks

    The categories used to discuss issues related to duck harvest 
management are as follows: (A) General Harvest Strategy, (B) Framework 
Dates, (C) Season Length, (D) Closed Seasons, (E) Bag Limits, (F) Zones 
and Split Seasons, and (G) Special Seasons/Species Management. Only 
those categories containing substantial recommendations are included 
below.

A. Harvest Strategy Considerations

    In the March 22, 1996, Federal Register, the Service described the 
underlying principles of Adaptive Harvest Management (AHM) and the 
progress made on its implementation in 1995. In addition, the Service 
reported recommendations made by an AHM technical working group for the 
1996-97 regulatory process. Comprised of representatives from the 
Service and the four Flyway Councils, the working group was established 
in 1992 to develop technical recommendations for improving duck harvest 
regulations.
    One of the recommendations of the AHM working group for the 1996-97 
regulatory process was to continue the regulatory alternatives used in 
1995, with a minor exception in the Pacific Flyway. In 1995, the 
Service limited the choice of regulatory alternatives for the 1995-96 
regular duck hunting season to three sets of frameworks similar to 
those in effect during the 1979-93 hunting seasons. These three sets of 
frameworks were described in a relative sense as restrictive, moderate, 
and liberal. In general, specific guidelines for selection of one of 
the regulatory alternatives are based on the size of the mallard 
breeding population and habitat conditions.
    Council Recommendations: In the June 13, 1996, Federal Register, 
the Service reported that all four Flyways continued to express support 
for the AHM approach. The Mississippi, Central, and Pacific Flyway 
Councils recommended some specific modifications to the regulatory 
alternatives recommended by the working group and these recommendations 
were identified in the June 13, 1996, document and are reiterated here 
and under ``Framework Dates,'' ``Season Length,'' ``Bag Limits,'' and 
``Special Seasons/Species Management.''
    The Atlantic Flyway Council endorsed the AHM technical working 
group's recommendations regarding harvest-management objectives, use of 
mid-continent mallard population models, and regulatory options for the 
Atlantic Flyway in 1996.
    The Upper-Region Regulations Committee of the Mississippi Flyway 
Council expressed support for no more than three regulations packages, 
but recommended a harvest-management objective (objective function) 
that achieves an equal balance between harvest and a breeding 
population objective of 8.1 million mallards.
    The Lower-Region Regulations Committee of the Mississippi Flyway 
Council requested the working group investigate the addition of both a 
more conservative and a more liberal regulatory package to the group of 
regulations packages offered for the 1997-98 hunting season.
    The Central Flyway Council supported the working group's 
recommendation to modify the objective function so that it continue to 
reflect the broad resource values of the population goals of the NAWMP, 
but commented that many technical issues need to be resolved before 
AHM's fully operational for multiple duck stocks.
    The Pacific Flyway Council endorsed the AHM working group's 1996 
duck regulations approach and, with the exception of a harvest strategy 
for pintails, recommendations for 1996.
    Public-Hearing Comments: Mr. Joe Kramer, Chairman of the Central 
Flyway Council, expressed continued support for AHM. However, he 
questioned the Service's proposal to largely maintain the interim 
regulatory alternatives from last year.
    Mr. Don Kraege, Chairman of the Pacific Flyway Council Study 
Committee, expressed support for the cooperative development of AHM as 
a means to improve the scientific management of mallards and other 
species.
    Written Comments: The Texas Parks and Wildlife Department supports 
the concept of AHM, but feels that minor changes to regulatory 
alternatives should not be precluded because full implementation of AHM 
may take several years.
    The Missouri Department of Conservation applauded the Service for 
continued progress on AHM and supports: (1) the use of NAWMP population 
goals; (2) regulatory alternatives that are similar to those of 1995; 
(3) continued use of current hypotheses concerning harvest and 
reproduction; and (4) AHM development for other populations or species. 
Missouri also noted the important role of communication in ensuring 
long-term support for AHM and urged that data-collection efforts be 
maintained in the face of changing budgets and priorities. In a second 
letter, the Missouri expressed continued support for AHM, including the 
proposed regulatory alternatives. Missouri also urged continued 
progress on a broader range of regulatory alternatives and inclusion of 
other duck species in the AHM strategy.
    The Minnesota Department of Natural Resources supports the three 
regulatory alternatives as outlined in the June 14 Supplement. 
Minnesota also supports finalization of the regulatory alternatives 
prior to the July Flyway meetings and wishes to pursue cooperative 
development of regulatory alternatives that will be appropriate over 
the long-term for the Mississippi Flyway.
    The Illinois Department of Natural Resources encouraged the Service 
to examine the pros and cons of four or five regulatory alternatives, 
rather than three. Illinois believes that the addition of a more 
restrictive and/or a more liberal alternative could provide greater 
flexibility in responding to changing population status, but may be 
undesirable if they lead to greater annual fluctuations in hunting 
regulations.

[[Page 37998]]

    The Kansas Department of Wildlife and Parks has supported the 
principles of AHM, but is concerned that the process now is being used 
to circumvent the traditional process of allowing input of the States 
through the Flyway Councils. Kansas objects to the AHM technical 
working group establishing regulations by ``popular vote'' among 
individuals from all four Flyways, employees of the Service's MBMO, and 
their academic associates. Kansas is also concerned that the regulatory 
alternatives used in 1995 and proposed for 1996 are becoming entrenched 
and that future changes will be increasingly difficult.
    Service Response: The Service appreciates the continued support of 
the Flyway Councils and States for implementation of AHM. Agreement on 
a limited number of regulatory alternatives, on the role of NAWMP 
population goals in guiding harvest management, and on alternative 
hypotheses of mallard population dynamics has greatly reduced the 
annual debate over appropriate duck-hunting regulations. More 
importantly, these elements constitute key components of a systematic 
process to increase knowledge of regulatory effects and, thus, improve 
long-term management performance. The Service also recognizes, however, 
that continued progress in AHM will demand deliberate and methodical 
attention to a number of previously ignored or unresolved issues in 
waterfowl management. These include: (1) hunter dynamics and how 
regulations affect hunter activity and success; (2) factors affecting 
duck reproduction on a continental scale; (3) relative costs and 
benefits of species, population, and sex-specific management; and (4) 
allocation of harvest opportunities among countries, Flyways, and 
States. Continued progress also will depend heavily on further 
education and communication, particularly as it concerns field 
biologists, wildlife-area managers, and other resource-agency staff. 
The Service is urging its partners to cooperatively address these 
technical and communication issues in a comprehensive and coherent 
manner. The Service recognizes that schedules for clarifying issues, 
receiving Flyway Councils and others input, and conducting necessary 
assessments must be developed so that expectations for progress are 
realistic. The Service believes that AHM implementation must itself be 
adaptive and that there will be a continuing need for periodic review 
of all technical specifications, including management objectives, 
regulatory alternatives, and theories (or models) of population 
dynamics.
    The limited set of regulatory alternatives (i.e., ``restrictive'', 
``moderate'', and ``liberal'') continues to draw criticism from some 
Flyway Councils and States. At issue is both the number of regulatory 
alternatives and the specific combination of season length and bag 
limits for each alternative. The Service recognizes that the proposed 
alternatives do not satisfy all partners and will continue to treat 
these alternatives as interim, pending further investigation by the AHM 
technical working group and others. However, the Service believes that 
adjustments to the set of regulatory alternatives should be based on 
the following criteria: (1) alternatives should differ sufficiently so 
that differences in harvest levels and their impacts on duck 
populations can be detected with current monitoring programs; (2) the 
set of alternatives should produce enough variation in harvest rates to 
permit identification of optimal harvest strategies; and (3) regulatory 
alternatives should reflect the needs of law enforcement and the 
desires and abilities of hunters. The set of alternatives can be 
reduced or expanded as needed, but it is important to use the 
alternatives long enough to identify patterns in harvest rates under 
each alternative. Because relevant issues have not yet been addressed 
adequately, the Service is denying requests this year to modify the 
basic structure of regulatory alternatives. Prior to the 1997-98 
hunting season, the Service will work with the Flyway Councils and the 
AHM technical working group to investigate the merits of major 
modifications to the set of regulatory alternatives.
    The role of the AHM working group is to provide technical guidance 
to decision-makers. This working group is comprised of two 
representatives appointed by each Flyway Council, in addition to 
biological staff from the Service and the National Biological Service. 
The Flyway Councils' appointees effectively represent the perspectives 
of their respective Flyways, but they must be concerned also with 
continental issues that cross Flyway boundaries. The Service believes 
that this arrangement works exceedingly well and that individual States 
have ample opportunity to comment on recommendations offered by the AHM 
working group, either through their Flyway Councils or directly to the 
Service. The Service emphasizes that the working group does not 
establish regulations. Moreover, the working group develops its 
recommendations through consensus, and does not use a voting process.
    For the 1996-97 regular duck hunting season, the Service will use 
the three regulatory alternatives detailed in the accompanying table 
(at the end of this document). Alternatives are specified for each 
Flyway and are designated as ``RES'' for the restrictive, ``MOD'' for 
the moderate, and ``LIB'' for the liberal alternative. The Service will 
propose a specific regulatory alternative when survey data on waterfowl 
population and habitat status are available in late July.

B. Framework Dates

    Council Recommendations: The Lower-Region Regulations Committee of 
the Mississippi Flyway Council recommended the AHM technical working 
group investigate the impacts of a January 31 framework closing date.
    Service Response: The Service supports investigations by the AHM 
technical working group to assess the suitability of all aspects of the 
current regulatory alternatives, including framework dates. However, 
the Service reiterates its long-standing concerns that hunting 
disturbance in late winter may interfere with pair bonding and inhibit 
nutrient acquisition and storage with subsequent impacts to 
reproductive potential. Before the Service can consider changes to the 
timing of the framework closing date, additional information to 
alleviate these concerns is necessary.
    The Service notes that the framework dates in the proposed 
regulatory alternatives for the Atlantic Flyway published in the June 
14 Supplement did not accurately reflect the policy established by the 
Service last year (September 27, 1995, Federal Register 60 FR 50042). 
This discrepancy was unintentional. The Service reaffirms its policy of 
fixed dates of October 1 to January 20 for the Atlantic Flyway, and of 
floating framework dates (Saturday closest to October 1, Sunday closest 
to January 20) for the Mississippi, Central, and Pacific Flyways. The 
appropriate change in framework dates for the Atlantic Flyway is 
reflected in the final regulatory alternatives.

C. Season Length

    Council Recommendations: In the regulatory alternatives recommended 
for 1996-97, the Upper- and Lower-Region Regulations Committees of the 
Mississippi Flyway Council recommended the season length in the 
``liberal'' package be 51 days instead of 50 days. The Central Flyway 
Council

[[Page 37999]]

recommended the season length in the ``liberal'' package be 67 days.
    Public-Hearing Comments: Mr. Joe Kramer, Chairman of the Central 
Flyway Council, urged the Service to adopt the Council's proposal to 
increase the season length from 60 to 67 days in the ``liberal'' 
alternative.
    Written Comments: The Texas Parks and Wildlife Department also 
urged a change from 60 to 67 days in the ``liberal'' alternative for 
the Central Flyway.
    The Kansas Department of Wildlife and Parks also recommended that 
the ``liberal'' alternative for the Central Flyway provide 67 days of 
duck hunting. Kansas believes that they are ``locked into'' an 
unnecessarily restrictive regulation without any recourse for 
addressing the problem.
    The Wyoming Game and Fish Department supports extending the season 
from 60 to 67 days under the ``liberal'' alternative for the Central 
Flyway. Wyoming feels that the current regulatory options will be used 
for an indefinite number of years and that postponing an appropriate 
correction to season length is unacceptable.
    The Minnesota Department of Natural Resources supports the 
Mississippi Flyway Council proposal to increase the season length in 
the ``liberal'' alternative by one day.
    The Illinois Department of Natural Resources also supports the 
Mississippi Flyway Council proposal to increase the ``liberal'' 
alternative season length by one day. Illinois believed this minor 
change would provide additional weekend hunting opportunity without 
adverse impact.
    Service Response: The Service believes that any modifications to 
season length under the three regulatory alternatives must be 
approached carefully, with due consideration to differences among 
Flyways. Current differences in season length among the Flyways are 
predicated on historic (ca. 1950) patterns of duck abundance and hunter 
activity, with longer seasons available to Flyways with relatively more 
ducks and fewer hunters. The Service believes that a thorough review of 
Flyway differences in season lengths is needed and is seeking technical 
guidance from the Flyway Councils, the AHM working group, and others. 
Current differences in hunter activity and duck abundance, as well as 
the origin and status of duck stocks contributing to each Flyway, 
should be investigated using modern data and analytical techniques. 
Until such analyses are available, the Service is concerned that 
changes in season lengths contained in the regulatory alternatives 
could alter the allocation of harvest in unpredictable, undesirable or 
inappropriate ways. Therefore, the Service prefers to approach all 
proposed changes to season length, regardless of the number of days 
involved, in a systematic and comprehensive manner.

E. Bag Limits

    Council Recommendations: The Upper- and Lower-Region Regulations 
Committees of the Mississippi Flyway Council and the Central Flyway 
Council recommended the redhead daily bag limit in the ``liberal'' 
package be 2 birds instead of 1.
    The Lower-Region Regulations Committee of the Mississippi Flyway 
Council also recommended the overall daily bag limit in the ``liberal'' 
package be 6 birds instead of 5, and within this overall limit, the 
daily bag limit for mottled ducks be 4 instead of 3; and the limit for 
ringnecks, scaup, goldeneyes, and buffleheads be 4 instead of 5. Limits 
for black ducks, pintails, wood ducks, and canvasbacks would be the 
same as in 1995.
    Public-Hearing Comments: Mr. Joe Kramer, Chairman of the Central 
Flyway Council, expressed support for the Service's proposal to 
increase the redhead limit from 1 to 2 under the ``liberal'' 
alternative.
    The Minnesota Department of Natural Resources also supports the 
Service's proposal to allow a second redhead in the daily bag under the 
Central and Mississippi Flyways ``liberal'' alternative.
    Written Comments: The Massachusetts Division of Fisheries and 
Wildlife recommended any ``liberal'' regulatory package delete the hen 
mallard restriction in the Atlantic Flyway.
    The Michigan Department of Natural Resources supports the Service's 
proposal to allow a second redhead in the daily bag under the 
``liberal'' alternative for the Central and Mississippi Flyways. 
Michigan also requested the rationale for allowing an additional duck 
in the daily bag limit of the ``liberal'' alternative for the Pacific 
Flyway.
    Service Response: The Service concurs with the recommendations to 
increase the bag limit of redheads from 1 to 2 in the ``liberal'' 
alternative of the Central and Mississippi Flyways. However, the 
Service cannot support the proposal of the Lower-Region Regulations 
Committee of the Mississippi Flyway Council to increase the overall bag 
limit in the ``liberal'' alternative from 5 to 6 in order to provide 
additional hunting opportunity on several abundant species. The Service 
believes that major changes to the regulatory alternatives should be 
addressed in a deliberate and comprehensive manner. Historic efforts at 
species-specific management have been predicated largely on the 
assumptions that: (a) mallard harvest rates can be used as a standard 
by which to judge the appropriateness of harvest rates for other 
species; (b) target stocks of ducks can be isolated in time or space, 
or that hunters can shoot selectively; and (c) that management costs 
are largely fixed whether managing one stock or many. Recent 
information has led the Service to question the validity of these 
assumptions. The Service believes that a number of issues must be 
addressed prior to major reforms in species-specific harvest 
strategies: (1) how much must species or populations differ in terms of 
their population dynamics to warrant differential harvest regulations? 
(2) what are the relative costs and benefits of managing individual 
duck stocks? (3) what is the ability of hunters to harvest selectively? 
and (4) do hunters prefer the maximum hunting opportunity afforded by 
complex regulations or simpler hunting regulations that offer less 
hunting opportunity? The Service awaits further guidance from the 
Councils and the AHM technical working group before considering 
significant changes to species-specific bag limits.
    The Service acknowledges that liberal hunting regulations in the 
Atlantic Flyway historically had no sex-specific conventional bag 
limits for mallards (although there were hen restrictions for States 
using the point system). However, the Service believes that it is 
premature to remove hen restrictions that have been in effect in the 
Atlantic Flyway since 1985. The role of sex-specific bag limits in 
regulating mallard harvest, total mortality, and recruitment is 
uncertain. Further investigation of the potential consequences of 
eliminating hen restrictions on mallards is necessary before 
considering fundamental changes in sex-specific bag limits of mallards. 
The Service also urges the Atlantic Flyway Council to begin development 
of a harvest-management objective for mallards breeding in eastern 
North America so that the implications of changes in hen bag limits can 
be assessed.
    The Service is allowing a 7-duck daily bag limit in the Pacific 
Flyway ``liberal'' alternative, representing a 1-duck increase compared 
to the 1995 ``liberal'' alternative. The Service agreed to this change 
because the Pacific Flyway had a 7-duck bag limit during the 1979-84 
period, which provided the basis for

[[Page 38000]]

season lengths and bag limits under the current ``liberal'' 
alternative. Mallard harvest rates realized with a 7-duck daily bag 
limit in the Pacific Flyway are accounted for within the AHM framework 
and are consistent with current resource status.
    Regarding the final regulatory alternatives, the Service notes that 
the daily bag limit for redheads in the Pacific Flyway's overall daily 
bag limit was inadvertently omitted from the proposed regulatory 
alternatives in the June 14, 1996, Federal Register. Consistent with 
the Pacific Flyway frameworks established last year (September 27, 
1995, Federal Register), a daily bag limit of 2 redheads is reflected 
in the final regulatory alternatives.

F. Zones and Split Seasons

    In 1990, the Service established guidelines for the use of zones 
and split seasons for duck hunting (Federal Register 55 FR 38901). 
These guidelines were based upon a cooperative review and evaluation of 
the historical use of zone/split options. The Service reiterated 1977 
criteria that the primary purpose of these options would be to provide 
more equitable distribution of harvest opportunity for hunters 
throughout a State. In 1977, the Service had also stated that these 
regulations should not substantially change the pattern of harvest 
distribution among States within a Flyway, nor should these options 
detrimentally change the harvest distribution pattern among species or 
populations at either the State or Flyway level. The 1990 review did 
not show that the proliferation of these options had increased harvest 
pressure; however, the ability to detect the impact of zone/split 
configurations was poor because of poorly chosen response variables, 
the lack of statistical tests to differentiate between real and 
perceived changes, and the absence of adequate experimental controls. 
Therefore, the 1990 strategy intended to provide a framework for 
controlling the proliferation of changes in zone/split options and 
limited changes to 5-year intervals. The first open season for changes 
was in 1991 and the second occurs this year when zone/split 
configurations will be established for the 1996-2000 period.
    Council Recommendations: The Flyway Councils made several 
recommendations on the Service's proposed guidelines on the use of 
zones and split seasons for duck hunting. The Service published these 
guidelines in the March 22, 1996, Federal Register.
    The Central Flyway Council recommended non-contiguous zones be 
allowed when supported by adequate justification. The Council also made 
several recommendations regarding the use of additional days in the 
High Plains Management Unit. The Council recommended the restrictions 
``must be consecutive'' and ``after the regular duck season'' be 
removed from the proposed guidelines. Further, the Council recommended 
additional days in the management unit be restricted to one split 
(i.e., 2 segments).
    The Pacific Flyway Council recommended the guidelines for zones 
allow identical season dates and/or different zoning configurations 
with different regulatory packages.
    Regarding Flyway Council recommendation for specific changes 
requested by States, the Atlantic Flyway Council recommended the State 
of Maine be granted a waiver for its proposed zoning option for 1996-
2000. The Upper-Region Regulations Committee of the Mississippi Flyway 
Council recommended the Service approve changes to zone-boundary 
configurations proposed by Illinois, Indiana, Michigan, and Wisconsin 
for the 1996-2000 period. The Central Flyway Council recommended the 
Service approve Nebraska's duck hunting zone proposal. The Pacific 
Flyway Council recommended the Service approve duck zone changes in 
Arizona, Nevada, Oregon, and Utah for the 1996-2000 period.
    Written Comments: The Nebraska Game and Parks Commission and the 
Kansas Department of Wildlife and Parks recommended the restrictions 
``must be consecutive'' and ``after the regular duck season'' be 
removed from the proposed guidelines on the use of additional days in 
the High Plains Management Unit. Both noted these requirements were new 
and seemed unnecessary.
    Nebraska also recommended the addition of a provision allowing the 
use of non-contiguous zones when supported by strong justification. The 
Wyoming Game and Fish Department also requested a variance from the 
contiguous-boundary criterion, stating that the current zoning 
guidelines do not seem to contain the flexibility needed to address the 
considerable variation in hunting opportunity associated with the 
diverse physiographic regions found in many Rocky Mountain States.
    Service Response: For the 1996 open season, the Service proposed in 
the March 22, 1996, Federal Register use of the existing 1990 
guidelines, with an exception for the handling of special management 
units. The Service proposed to delete the following from the 1990 
guidelines:
    Special Management Unit Limitation: Within existing Flyway 
boundaries, States may not zone and/or use a 3-way split season 
simultaneously within a special management unit and the remainder of 
the State.
    The Service proposed this change with the understanding that the 
additional days allowed for a management unit must be consecutive and, 
for the Central Flyway, be held both after the Saturday nearest 
December 10 and after the regular duck season. In the June 13, 1996, 
Federal Register, the Service proposed an additional special provision 
for management units: For the States that have a recognized management 
unit and include a non-management unit portion, an independent 2-way 
split season with no zones can be selected for the management unit. The 
remainder of the State in the non-management unit portion can be zoned/
split according to established guidelines.
    Regarding the Central Flyway Council recommendation that the 
criteria ``must be consecutive'' and ``after the regular duck season'' 
be removed from the guidelines on the use of additional High Plains 
Management Unit days, the Service stated in the June 13 Federal 
Register that the restrictions regarding the use of additional days 
should remain as proposed.
    Regarding Flyway Council recommendations to alter the definition 
and interpretation of a ``zone'' that would allow the establishment of 
hunting areas with non-contiguous boundaries or concurrent seasons, the 
Service stated in the June 13 Federal Register that it believes the 
definition/interpretations previously used are still appropriate. 
However, after further review, the Service now believes that the 
requirement for different season dates among zones can be removed 
without detriment to the objectives of the guidelines for use of zones/
split seasons for duck hunting. This change will allow States 
additional flexibility in addressing differences in physiography, 
climate, etc. within a State.
    The following zone/split-season guidelines apply only for the 
regular duck season:
    1. A zone is a geographic area or portion of a State, with a 
contiguous boundary, for which independent dates may be selected for 
the regular duck season.
    2. Consideration of changes for management-unit boundaries are not 
subject to the guidelines and provisions governing the use of zones and 
split seasons for ducks.

[[Page 38001]]

    3. Only minor (less than a county in size) boundary changes will be 
allowed for any grandfather arrangement, and changes are limited to the 
open season.
    4. Once a zone/split option is selected during an open season, it 
must remain in place for the following 5 years.
    For the 1996-2000 period, any State may continue the configuration 
used in 1991-1995. If changes are made, the zone/split-season 
configuration must conform to one of the following options:
    1. Three zones with no splits,
    2. Split seasons (no more than 3 segments) with no zones, or
    3. Two zones with the option for 2-way split seasons in one or both 
zones.
    At the end of 5 years after any changes in splits or zones, States 
will be required to provide the Service with a review of pertinent data 
(e.g., estimates of harvest, hunter numbers, hunter success, etc.). 
This review does not have to be the result of a rigorous experimental 
design, but nonetheless should assist the Service in ascertaining 
whether major undesirable changes in harvest or hunter activity 
occurred as a result of split and zone regulations. The next open 
season for changes in zone/split configurations will be 2001.
    Using the above revised guidelines, the Service reviewed specific 
proposals for zoning changes submitted to date, including those 
recommended by the Flyway Councils and those proposed by the various 
States. Proposals by the States of Arizona, Illinois, Kentucky, Maine 
(boundary change), Michigan, Mississippi, Montana, Nebraska (Low Plains 
Zone boundary changes), Nevada, Oregon, South Dakota, Utah, Wisconsin, 
and Wyoming were within the established guidelines and are approved for 
the 1996-2000 period. Proposals by the States of Indiana, Kansas, Maine 
(creation of third zone), and Nebraska (creation of new zone) did not 
comply with the revised guidelines and the Service requests these 
States revise their proposals accordingly.

G. Special Seasons/Species Management

    i. Canvasbacks
    Council Recommendations: The Lower-Region Regulations Committee of 
the Mississippi Flyway Council recommended canvasback regulations 
fluctuate within the regulations packages commensurate with model 
predictions, breeding-population indices, and habitat conditions.
    Public-Hearing Comments: Mr. Joe Kramer, Chairman of the Central 
Flyway Council, expressed support for the Service's canvasback harvest 
strategy.
    Written Comments: The Texas Parks and Wildlife Department asked the 
Service to consider an additional canvasback in the daily bag if the 
resulting harvest would not exceed that provided under current modeling 
procedures.
    Service Response: The Service implemented an interim harvest-
management strategy for canvasbacks in 1994. The Service allows one 
canvasback in the daily bag in all four Flyways as long as the harvest 
is not expected to exceed the ``harvestable surplus.'' This surplus is 
the number of canvasbacks that could be taken by hunters while 
maintaining a subsequent breeding population of at least 500,000. 
Calculation of the harvestable surplus is based on breeding population 
size, predicted production during the current year, and expected rates 
of natural mortality and crippling loss. The Service believes that it 
has insufficient experience with this harvest strategy and that 
proposed modifications are premature. The Service also notes the high 
harvest potential for this species and is concerned that an overly 
aggressive harvest strategy could precipitate a return to closed 
seasons. The Service will continue to monitor canvasback harvests and 
population status and may be willing to consider modifications in the 
future.
    ii. Pintails
    Council Recommendations: The Central Flyway Council recommended a 
harvest strategy for pintails based on the breeding population size. 
The pintail daily bag limit would be 1 with a pintail breeding 
population below 3.0 million; 2 with a breeding population between 3.0 
and 4.5 million; 3 with a breeding population between 4.5 and 5.6 
million; and equal to the overall daily bag limit with a breeding 
population above 5.6 million.
    The Pacific Flyway Council recommended guidelines for the 1996-97 
Pacific Flyway pintail harvest regulations based on a prescriptive 
basis. A matrix of breeding population size from a subset of survey 
strata association with the Pacific Flyway breeding population and the 
numbers of prairie ponds counted during the May survey would determine 
bag limits.
    Written Comments: The Texas Parks and Wildlife Department urged the 
Service to adopt the Central Flyway's proposal for a pintail harvest 
strategy.
    Service Response: The Service is supportive of any attempt at a 
more objective approach to pintail harvest regulations. However, the 
Service believes that a more deliberate and careful assessment is 
needed before considering changes in harvest strategies, particularly 
in light of pintail population status and the harvest liberalization 
that occurred in 1994 and again during the 1995-96 season. Such an 
assessment would include, among other things, explicit harvest-
management objectives, comprehensive model development for continental 
pintails, and a consideration of the regulatory constraints imposed by 
the adaptive harvest strategy for mid-continent mallards. The Service 
currently is working with the Pacific Flyway Council Study Committee, 
the Cooperative Fish and Wildlife Research Units, and other interested 
parties to ensure that such an assessment is forthcoming. To that end, 
the Service and the National Biological Service have agreed to provide 
funding that in total exceeds $65,000. The Service is hopeful that 
additional funding can be made available from the States and other 
organizations to complete development of population models and an 
acceptable adaptive harvest strategy for pintails.
    iii. September Teal Seasons
    Council Recommendations: The Upper-Region Regulations Committee of 
the Mississippi Flyway Council recommended a 5-day experimental 
September teal season be offered to the production States of Iowa, 
Michigan, Minnesota, and Wisconsin for a 3-year period. The Committee 
recommended a daily bag limit of 4 teal with sunrise to sunset shooting 
hours.
    The Central Flyway Council recommended a harvest strategy of 
linking regulatory packages developed for the September teal season 
with those developed for the regular duck season under the AHM process. 
For 1996, the Council recommended either a ``restrictive'' package of 5 
days with a daily bag limit of 3 teal, a ``moderate'' package of 9 days 
with a daily bag limit of 4 teal, or a ``liberal'' package of 16 days 
with a daily bag limit of 5 teal.
    Public-Hearing Comments: Mr. Joe Kramer representing the Central 
Flyway Council indicated that the Central and Mississippi Flyway 
Councils would complete a more comprehensive harvest approach for 
special teal seasons by March 1997.
    Service Response: The Service previously determined in the 
Supplemental Environmental Impact Statement: Issuance of Annual 
Regulations Permitting the Sport Hunting of Migratory Birds (SEIS 88) 
that proposals for expansion of existing special regulations require a 
comprehensive evaluation plan containing study objectives, experimental 
design, decision criteria, and identification of data needs. The 
Service believes that the proper approach for permitting experimental 
expansions would be to design a

[[Page 38002]]

comprehensive study that would evaluate the cumulative impacts of all 
teal-season hunting opportunities, in both production and non-
production States, on teal and other ducks. The proposals recommended 
by the Flyways are disjunct, with one containing an evaluation plan 
(Mississippi Flyway) and the other (Central Flyway) absent one. As 
such, these proposals represent a fragmented approach to expanding and 
evaluating teal-season hunting opportunities, which is inconsistent 
with the desire of the Service. Future consideration by the Service of 
any proposal to expand teal-season hunting opportunities will take into 
account the evaluation plan, the manpower and funding requirements 
necessary to implement the plan, and the priority of this issue 
relative to other Service programs.
    iv. September Duck Seasons
    Council Recommendations: The Upper-Region Regulations Committee of 
the Mississippi Flyway Council recommended Iowa be allowed to hold up 
to 5 days of its regular duck hunting season in September, starting no 
earlier than the Saturday nearest September 14. The remainder of the 
Iowa regular duck season could begin no earlier than October 10.
    Service Response: The Service previously determined in SEIS 88 that 
the extension of framework dates into September for Iowa's September 
duck season was a type of special season. The original evaluation of 
this season suggested little impact on duck species other than teal. 
However, the Service notes that the original evaluation did not include 
information from the periods requested in the proposal, so inferences 
about effects of the proposed changes on duck populations are not 
clear. More importantly, the Service believes that mixed-species 
special seasons (as defined in the context of SEIS 88) are not a 
preferred management approach, and does not wish to entertain 
refinements to this season or foster expansions of this type of season 
into other States.

4. Canada Geese

A. Special Seasons

    Council Recommendations: The Atlantic Flyway Council recommended 
the frameworks for September Canada goose seasons in the Atlantic 
Flyway be modified as follows:
    September 1-15: Montezuma region of New York, Lake Champlain region 
of New York and Vermont, Maryland (Caroline, Cecil, Dorchester, and 
Talbot Counties), South Carolina, and Delaware.
    September 1-20: North Carolina (Currituck, Camden, Pasquotank, 
Perquimans, Chowan, Bertie, Washington, Tyrrell, Dare, and Hyde 
Counties).
    September 1-30: New Jersey and remaining portion of North Carolina.
    September 1-25: Remaining portion of Flyway, except Georgia and 
Florida.
    The Lower-Region Regulations Committee of the Mississippi Flyway 
Council recommended the Service continue to closely monitor the impacts 
of early Canada goose seasons, including both special seasons and 
September openings of regular seasons, to insure that cumulative 
impacts do not adversely affect migrant Canada geese and to insure that 
special seasons adhere to the criteria established by the Service.
    The Upper-Region Regulations Committee of the Mississippi Flyway 
Council, the Central Flyway Council, and the Pacific Flyway Council 
made several September Canada goose seasons recommendations. All of the 
recommendations were within the established criteria for special Canada 
goose seasons published in the August 29, 1995, Federal Register (60 FR 
45020).
    Written Comments: The Massachusetts Division of Fisheries and 
Wildlife supported extending the frameworks for September Canada goose 
seasons in the Atlantic Flyway to September 25.
    Service Response: The Service agrees with the Atlantic Flyway's 
request to modify the frameworks for special early Canada goose seasons 
in the Atlantic Flyway and is proposing to grant the Atlantic Flyway a 
temporary exemption to the special early Canada goose season criteria. 
Specifically, the Service is proposing to allow States in the Atlantic 
Flyway to extend the framework closing date from September 15 to 
September 25, except in certain areas where migrant geese are known to 
arrive early. The Service is proposing this temporary exemption because 
of the suspension of the regular season on Atlantic Population Canada 
geese and the Flyway's need for greater flexibility in dealing with 
increasing numbers of resident Canada geese. The exemption is proposed 
to remain in effect until the regular season on migrant Canada geese is 
reinstated.
    Generally, the Service agrees with the Council's recommended 
framework modifications. For seasons extending beyond September 25, 
however, the Service proposes to classify these as experimental. 
Additionally, in view of the reinstatement of existing criteria when 
regular seasons on Canada geese are reinstated in the Flyway, the 
Service encourages all States selecting framework dates after September 
15 to continue with data-gathering and monitoring efforts in order to 
further evaluate whether any proportional changes in the harvest of 
migrant geese do occur.

B. Regular Seasons

    Council Recommendations: The Upper-Region Regulations Committee of 
the Mississippi Flyway Council recommended a September 21 framework 
opening date for the regular goose season in the Upper Peninsula of 
Michigan and statewide in Wisconsin.
    The Pacific Flyway Council reiterated its 1995 recommendation that 
Alaska, Oregon, and Washington take actions to reduce the harvest of 
dusky Canada geese.
    Service Response: Regarding the Pacific Flyway Council's 
recommendation, the Service recognizes the need for this and proposes 
to establish uniform criteria to measure the harvest of dusky Canada 
geese in Washington's and Oregon's Quota Zones. The Service solicits 
input from the Council and other parties in the development of these 
criteria for the 1996-97 season.

9. Sandhill Cranes

    Council Recommendations: The Central Flyway Council recommended 
Wyoming's sandhill crane hunt area expand to include Park and Big Horn 
Counties.
    The Pacific Flyway Council recommended season modifications in 
Montana and Wyoming. In Montana, the Council recommended a new hunt 
zone in the Ovando-Helmville area. In Wyoming, the Council recommended 
expanding the season from 3 to 8 days, increasing the number of 
permits, and establishing a new hunt zone in Park and Big Horn 
Counties.

14. Woodcock

    The Service is increasingly concerned about the gradual long-term 
declines in woodcock populations in the Eastern and Central management 
regions. Although habitat changes appear to be the primary cause of the 
declines, the Service believes that hunting regulations should be 
commensurate with the woodcock population status and rates of declines. 
The Service seeks active participation by the Atlantic and Mississippi 
Flyway Councils in the development of short and long-term woodcock 
harvest management strategies, which identify the circumstances under 
which additional

[[Page 38003]]

harvest restrictions should be implemented and what those restrictions 
should be.

18. Alaska

    Council Recommendations: The Pacific Flyway Council recommended the 
establishment of separate basic limits for geese. For dark geese, the 
Council recommended a basic daily bag limit of 4, with 8 in possession. 
For light geese, the Council recommended a daily bag limit of 3, with 6 
in possession. The proposed limits would be subject to area 
restrictions for Canada geese and limits for brant and emperor geese 
would remain separate.

Public Comment Invited

    The Service intends that adopted final rules be as responsive as 
possible to all concerned interests, and wants to obtain the comments 
and suggestions from all interested areas of the public, as well as 
other governmental agencies. Such comments, and any additional 
information received, may lead to final regulations that differ from 
these proposals. However, special circumstances involved in the 
establishment of these regulations limit the amount of time the Service 
can allow for public comment. Specifically, two considerations compress 
the time in which the rulemaking process must operate: (1) the need to 
establish final rules at a point early enough in the summer to allow 
affected State agencies to appropriately adjust their licensing and 
regulatory mechanisms; and (2) the unavailability, before mid-June, of 
specific, reliable data on this year's status of some waterfowl and 
migratory shore and upland game bird populations. Therefore, the 
Service believes allowing comment periods past the dates specified is 
contrary to public interest.

Comment Procedure

    It is the policy of the Department of the Interior to afford the 
public an opportunity to participate in the rulemaking process, 
whenever practical. Accordingly, interested persons may participate by 
submitting written comments to the Chief, MBMO, at the address listed 
under the caption ADDRESSES. The public may inspect comments during 
normal business hours at the Service's office address listed under the 
caption ADDRESSES. The Service will consider all relevant comments 
received and will try to acknowledge received comments, but may not 
provide an individual response to each commenter.

NEPA Consideration

    NEPA considerations are covered by the programmatic document, 
``Final Supplemental Environmental Impact Statement: Issuance of Annual 
Regulations Permitting the Sport Hunting of Migratory Birds (FSES 88-
14),'' filed with EPA on June 9, 1988. The Service published a Notice 
of Availability in the June 16, 1988, Federal Register (53 FR 22582). 
The Service published its Record of Decision on August 18, 1988 (53 FR 
31341). Copies of these documents are available from the Service at the 
address indicated under the caption ADDRESSES.

Endangered Species Act Consideration

    As in the past, the Service will design hunting regulations to 
remove or alleviate chances of conflict between migratory game bird 
hunting seasons and the protection and conservation of endangered and 
threatened species. Consultations are presently under way to ensure 
that actions resulting from these regulatory proposals will not likely 
jeopardize the continued existence of endangered or threatened species 
or result in the destruction or adverse modification of their critical 
habitat. Findings from these consultations will be included in a 
biological opinion and may cause modification of some regulatory 
measures proposed in this document. The final frameworks will reflect 
any modifications. The Service's biological opinions resulting from its 
Section 7 consultation are public documents available for public 
inspection in the Service's Division of Endangered Species and MBMO, at 
the address indicated under the caption ADDRESSES.

Regulatory Flexibility Act; Executive Order (E.O.) 12866 and the 
Paperwork Reduction Act

    In the March 22, 1996, Federal Register, the Service reported 
measures it took to comply with requirements of the Regulatory 
Flexibility Act and E.O. 12866. One measure was to prepare a Small 
Entity Flexibility Analysis (Analysis) in 1995 documenting the 
significant beneficial economic effect on a substantial number of small 
entities. The Analysis estimated that migratory bird hunters would 
spend between $258 and $586 million at small businesses. Copies of the 
Analysis are available upon request from the Office of Migratory Bird 
Management. This rule was not subject to review by the Office of 
Management and Budget under E.O. 12866.
    The Service examined these proposed regulations under the Paperwork 
Reduction Act of 1995 and found no information collection requirements.

List of Subjects in 50 CFR Part 20

    Exports, Hunting, Imports, Reporting and recordkeeping 
requirements, Transportation, Wildlife.
    The rules that eventually will be promulgated for the 1996-97 
hunting season are authorized under 16 U.S.C. 703-711, 16 U.S.C. 712, 
and 16 U.S.C. 742 a-j.

    Dated: July 10, 1996
George T. Frampton, Jr.,
Assistant Secretary for Fish and Wildlife and Parks.

Proposed Regulations Frameworks for 1996-97 Early Hunting Seasons 
on Certain Migratory Game Birds

    Pursuant to the Migratory Bird Treaty Act and delegated 
authorities, the Department of the Interior approved the following 
proposed frameworks which prescribe season lengths, bag limits, 
shooting hours, and outside dates within which States may select for 
certain migratory game birds between September 1, 1996, and March 10, 
1997.

General

    Dates: All outside dates noted below are inclusive.
    Shooting and Hawking (taking by falconry) Hours: Unless otherwise 
specified, from one-half hour before sunrise to sunset daily.
    Possession Limits: Unless otherwise specified, possession limits 
are twice the daily bag limit.
    Area, Zone, and Unit Descriptions: Geographic descriptions are 
contained in a later portion of this document.

Special September Teal Season

    Outside Dates: Between September 1 and September 30, an open season 
on all species of teal may be selected by Alabama, Arkansas, Colorado 
(Central Flyway portion only), Illinois, Indiana, Kansas, Kentucky, 
Louisiana, Mississippi, Missouri, New Mexico (Central Flyway portion 
only), Ohio, Oklahoma, Tennessee, and Texas in areas delineated by 
State regulations.
    Hunting Seasons and Daily Bag Limits: Not to exceed 9 consecutive 
days, with a daily bag limit of 4 teal.
    Shooting Hours: One-half hour before sunrise to sunset, except in 
Arkansas, Illinois, Indiana, Missouri, and Ohio, where the hours are 
from sunrise to sunset.


[[Page 38004]]



Special September Duck Seasons

    Florida: An experimental 5-consecutive-day season may be selected 
in September. The daily bag limit may not exceed 4 teal and wood ducks 
in the aggregate.
    Kentucky and Tennessee: In lieu of a special September teal season, 
an experimental 5-consecutive-day season may be selected in September. 
The daily bag limit may not exceed 4 teal and wood ducks in the 
aggregate, of which no more than 2 may be wood ducks.
    Iowa: Iowa may hold up to 5 days of its regular duck hunting season 
in September. All ducks which are legal during the regular duck season 
may be taken during the September segment of the season. The September 
season segment may commence no earlier than the Saturday nearest 
September 20 (September 21, 1996), with daily bag and possession limits 
being the same as those in effect last year. The remainder of the 
regular duck season may not begin before October 15.

Scoter, Eider, and Oldsquaw Ducks (Atlantic Flyway)

    Outside Dates: Between September 15 and January 20.
    Hunting Seasons and Daily Bag Limits: Not to exceed 107 days, with 
a daily bag limit of 7, singly or in the aggregate of the listed sea-
duck species, of which no more than 4 may be scoters.
    Daily Bag Limits During the Regular Duck Season: Within the special 
sea duck areas, during the regular duck season in the Atlantic Flyway, 
States may choose to allow the above sea duck limits in addition to the 
limits applying to other ducks during the regular duck season. In all 
other areas, sea ducks may be taken only during the regular open season 
for ducks and must be included in the regular duck season daily bag and 
possession limits.
    Areas: In all coastal waters and all waters of rivers and streams 
seaward from the first upstream bridge in Maine, New Hampshire, 
Massachusetts, Rhode Island, Connecticut, and New York; in any waters 
of the Atlantic Ocean and in any tidal waters of any bay which are 
separated by at least 1 mile of open water from any shore, island, and 
emergent vegetation in New Jersey, South Carolina, and Georgia; and in 
any waters of the Atlantic Ocean and in any tidal waters of any bay 
which are separated by at least 800 yards of open water from any shore, 
island, and emergent vegetation in Delaware, Maryland, North Carolina 
and Virginia; and provided that any such areas have been described, 
delineated, and designated as special sea-duck hunting areas under the 
hunting regulations adopted by the respective States.

Special Early Canada Goose Seasons

Atlantic Flyway

General Seasons
    Canada goose seasons of up to 15 days during September 1-15 may be 
selected for the Montezuma Region of New York; the Lake Champlain 
Region of New York and Vermont; the Counties of Caroline, Cecil, 
Dorchester, and Talbot in Maryland; Delaware; and Crawford County in 
Pennsylvania. Seasons not to exceed 20 days during September 1-20 may 
be selected for the Northeast Hunt Unit of North Carolina. Seasons may 
not exceed 25 days during September 1-25 in the remainder of the 
Flyway, except Georgia and Florida, where the season is closed. Areas 
open to the hunting of Canada geese must be described, delineated, and 
designated as such in each State's hunting regulations.
    Daily Bag Limits: Not to exceed 5 Canada geese.
Experimental Seasons
    Experimental Canada goose seasons of up to 30 days during September 
1-30 may be selected by New Jersey, North Carolina (except in the 
Northeast Hunt Unit), and South Carolina. Areas open to the hunting of 
Canada geese must be described, delineated, and designated as such in 
each State's hunting regulations.
    Daily Bag Limits: Not to exceed 5 Canada geese.

Mississippi Flyway

General Seasons
    Canada goose seasons of up to 15 days during September 1-15 may be 
selected by Illinois, Indiana, Iowa, Michigan (except in the Upper 
Peninsula, where the season may not extend beyond September 10, and in 
Huron, Saginaw and Tuscola Counties, where no special season may be 
held), Minnesota, Missouri, Ohio, Tennessee, and Wisconsin. The daily 
bag limit may not exceed 5 Canada geese. Areas open to the hunting of 
Canada geese must be described, delineated, and designated as such in 
each State's hunting regulations.

Central Flyway

General Seasons
    Canada goose seasons of up to 15 days during September 1-15 may be 
selected by South Dakota. The daily bag limit may not exceed 5 Canada 
geese. Areas open to the hunting of Canada geese must be described, 
delineated, and designated as such in each State's hunting regulations.

Pacific Flyway

General Seasons
    Wyoming may select an 8-day season on Canada geese between 
September 1-15. This season is subject to the following conditions:
    1. Where applicable, the season must be concurrent with the 
September portion of the sandhill crane season.
    2. All participants must have a valid State permit for the 
special season.
    3. A daily bag limit of 2, with season and possession limits of 
6 will apply to the special season.
    Oregon may select a special Canada goose season of up to 15 days 
during the period September 1-15. Daily bag limits not to exceed 3 
Canada geese with 6 in possession.
    Washington may select a special Canada goose season of up to 15 
days during the period September 1-15. Daily bag limits not to exceed 3 
Canada geese with 6 in possession.
    Idaho may select a 15-day season in the special East Canada Goose 
Zone as described in State regulations during the period September 1-
15. All participants must have a valid State permit and the total 
number of permits issued is not to exceed 110 for this zone. The daily 
bag limit is 2 and the possession limit is 4.
    Idaho may select a 7-day Canada Goose Season during the period 
September 1-15 in Nez Perce County with a bag limit of 4 and a 
possession limit of 8. All participants must have a valid State permit 
and the total number of permits is not to exceed 200 for the season in 
Nez Perce County.
    Areas open to hunting of Canada geese in each State must be 
described, delineated, and designated as such in each State's hunting 
regulations.

Regular Goose Seasons

    Regular goose seasons in Wisconsin and the Upper Peninsula of 
Michigan may open as early as September 21. Season lengths and bag and 
possession limits will be the same as those in effect last year but are 
subject to change during the late-season regulations process.

Sandhill Cranes

Regular Seasons in the Central Flyway:

    Outside Dates: Between September 1 and February 28.
    Hunting Seasons: Seasons not to exceed 58 consecutive days may be 
selected in designated portions of the following States: Colorado, 
Kansas, Montana, North Dakota, South Dakota, and Wyoming. Seasons not 
to exceed 93 consecutive days may be selected in designated portions of 
the following

[[Page 38005]]

States: New Mexico, Oklahoma, and Texas.
    Daily Bag Limits: 3 sandhill cranes.
    Permits: Each person participating in the regular sandhill crane 
seasons must have a valid Federal sandhill crane hunting permit in 
their possession while hunting.

Special Seasons in the Central and Pacific Flyways:

    Arizona, Colorado, Idaho, Montana, New Mexico, Utah, and Wyoming 
may select seasons for hunting sandhill cranes within the range of the 
Rocky Mountain Population subject to the following conditions:
    Outside Dates: Between September 1 and January 31.
    Hunting Seasons: The season in any State or zone may not exceed 30 
days.
    Bag limits: Not to exceed 3 daily and 9 per season.
    Permits: Participants must have a valid permit, issued by the 
appropriate State, in their possession while hunting.
    Other provisions: Numbers of permits, open areas, season dates, 
protection plans for other species, and other provisions of seasons 
must be consistent with the management plan and approved by the Central 
and Pacific Flyway Councils. Seasons in Montana and the Park-Big Horn 
Unit in Wyoming are experimental.

Common Moorhens and Purple Gallinules

    Outside Dates: Between September 1 and January 20 in the Atlantic 
Flyway, and between September 1 and the Sunday nearest January 20 
(January 19) in the Mississippi and Central Flyways. States in the 
Pacific Flyway have been allowed to select their hunting seasons 
between the outside dates for the season on ducks; therefore, they are 
late-season frameworks and no frameworks are provided in this document.
    Hunting Seasons and Daily Bag Limits: Seasons may not exceed 70 
days in the Atlantic, Mississippi, and Central Flyways. Seasons may be 
split into 2 segments. The daily bag limit is 15 common moorhens and 
purple gallinules, singly or in the aggregate of the two species.

Rails

    Outside Dates: States included herein may select seasons between 
September 1 and January 20 on clapper, king, sora, and Virginia rails.
    Hunting Seasons: The season may not exceed 70 days, and may be 
split into 2 segments.
    Daily Bag Limits:
    Clapper and King Rails - In Rhode Island, Connecticut, New Jersey, 
Delaware, and Maryland, 10, singly or in the aggregate of the two 
species. In Texas, Louisiana, Mississippi, Alabama, Georgia, Florida, 
South Carolina, North Carolina, and Virginia, 15, singly or in the 
aggregate of the two species.
    Sora and Virginia Rails - In the Atlantic, Mississippi, and Central 
Flyways and the Pacific-Flyway portions of Colorado, Montana, New 
Mexico, and Wyoming, 25 daily and 25 in possession, singly or in the 
aggregate of the two species. The season is closed in the remainder of 
the Pacific Flyway.

Common Snipe

    Outside Dates: Between September 1 and February 28, except in 
Maine, Vermont, New Hampshire, Massachusetts, Rhode Island, 
Connecticut, New York, New Jersey, Delaware, Maryland, and Virginia, 
where the season must end no later than January 31.
    Hunting Seasons and Daily Bag Limits: Seasons may not exceed 107 
days and may be split into two segments. The daily bag limit is 8 
snipe.

American Woodcock

    Outside Dates: States in the Atlantic Flyway may select hunting 
seasons between October 1 and January 31. States in the Central and 
Mississippi Flyways may select hunting seasons between September 1 and 
January 31.
    Hunting Seasons and Daily Bag Limits: In the Atlantic Flyway, 
seasons may not exceed 45 days, with a daily bag limit of 3; in the 
Central and Mississippi Flyways, seasons may not exceed 65 days, with a 
daily bag limit of 5. Seasons may be split into two segments.
    Zoning: New Jersey may select seasons in each of two zones. The 
season in each zone may not exceed 35 days.

Band-tailed Pigeons

Pacific Coast States (California, Oregon, Washington, and Nevada)

    Outside Dates: Between September 15 and January 1.
    Hunting Seasons and Daily Bag Limits: Not more than 9 consecutive 
days, with bag and possession limits of 2 and 2 band-tailed pigeons, 
respectively.
    Permit Requirement: The appropriate State agency must issue 
permits, and report on harvest and hunter participation to the Service 
by June 1 of the following year, or participate in the Migratory Bird 
Harvest Information Program.
    Zoning: California may select hunting seasons not to exceed 9 
consecutive days in each of two zones. The season in the North Zone 
must close by October 7.

Four-Corners States (Arizona, Colorado, New Mexico, and Utah)

    Outside Dates: Between September 1 and November 30.
    Hunting Seasons and Daily Bag Limits: Not more than 30 consecutive 
days, with a daily bag limit of 5 band-tailed pigeons.
    Permit Requirement: The appropriate State agency must issue 
permits, and report on harvest and hunter participation to the Service 
by June 1 of the following year, or participate in the Migratory Bird 
Harvest Information Program.
    Zoning: New Mexico may select hunting seasons not to exceed 20 
consecutive days in each of two zones. The season in the South Zone may 
not open until October 1.

Mourning Doves

    Outside Dates: Between September 1 and January 15, except as 
otherwise provided, States may select hunting seasons and daily bag 
limits as follows:

Eastern Management Unit (All States east of the Mississippi River, and 
Louisiana)

    Hunting Seasons and Daily Bag Limits: Not more than 70 days with a 
daily bag limit of 12, or not more than 60 days with a daily bag limit 
of 15.
    Zoning and Split Seasons: States may select hunting seasons in each 
of two zones. The season within each zone may be split into not more 
than three periods. The hunting seasons in the South Zones of Alabama, 
Florida, Georgia, Louisiana, and Mississippi may commence no earlier 
than September 20. Regulations for bag and possession limits, season 
length, and shooting hours must be uniform within specific hunting 
zones.

Central Management Unit (Arkansas, Colorado, Iowa, Kansas, Minnesota, 
Missouri, Montana, Nebraska, New Mexico, North Dakota, Oklahoma, South 
Dakota, Texas, and Wyoming)

    Hunting Seasons and Daily Bag Limits: Not more than 70 days with a 
daily bag limit of 12, or not more than 60 days with a daily bag limit 
of 15.
    Zoning and Split Seasons: States may select hunting seasons in each 
of two zones. The season within each zone may be split into not more 
than three periods. Texas may select hunting seasons for each of three 
zones subject to the following conditions:
    A. The hunting season may be split into not more than two periods, 
except

[[Page 38006]]

in that portion of Texas in which the special white-winged dove season 
is allowed, where a limited mourning dove season may be held 
concurrently with that special season (see white-winged dove 
frameworks).
    B. A season may be selected for the North and Central Zones between 
September 1 and January 25; and for the South Zone between September 20 
and January 25.
    C. Each zone may have a daily bag limit of 12 doves (15 under the 
alternative) in the aggregate, no more than 6 of which may be white-
winged doves and no more than 2 of which may be white-tipped doves, 
except that during the special white-winged dove season, the daily bag 
limit may not exceed 10 white-winged, mourning, and white-tipped doves 
in the aggregate, of which no more than 5 may be mourning doves and 2 
may be white-tipped doves.
    D. Except as noted above, regulations for bag and possession 
limits, season length, and shooting hours must be uniform within each 
hunting zone.

Western Management Unit (Arizona, California, Idaho, Nevada, Oregon, 
Utah, and Washington)

    Hunting Seasons and Daily Bag Limits: Idaho, Nevada, Oregon, Utah, 
and Washington - Not more than 30 consecutive days with a daily bag 
limit of 10 mourning doves (in Nevada, the daily bag limit may not 
exceed 10 mourning and white-winged doves in the aggregate).
    Arizona and California - Not more than 60 days which may be split 
between two periods, September 1-15 and November 1-January 15. In 
Arizona, during the first segment of the season, the daily bag limit is 
10 mourning and white-winged doves in the aggregate, of which no more 
than 6 may be white-winged doves. During the remainder of the season, 
the daily bag limit is restricted to 10 mourning doves. In California, 
the daily bag limit may not exceed 10 mourning and white-winged doves 
in the aggregate.

White-winged and White-tipped Doves

    Hunting Seasons and Daily Bag Limits:
    Except as shown below, seasons in Arizona, California, Florida, 
Nevada, New Mexico, and Texas must be concurrent with mourning dove 
seasons.
    Arizona may select a hunting season of not more than 30 consecutive 
days, running concurrently with the first segment of the mourning dove 
season. The daily bag limit may not exceed 10 mourning and white-winged 
doves in the aggregate, of which no more than 6 may be white-winged 
doves.
    In Florida, the daily bag limit may not exceed 12 mourning and 
white-winged doves (15 under the alternative) in the aggregate, of 
which no more than 4 may be white-winged doves.
    In the Nevada Counties of Clark and Nye, and in the California 
Counties of Imperial, Riverside, and San Bernardino, the daily bag 
limit may not exceed 10 mourning and white-winged doves in the 
aggregate.
    In New Mexico, the daily bag limit may not exceed 12 mourning and 
white-winged doves (15 under the alternative) in the aggregate.
    In Texas, the daily bag limit may not exceed 12 mourning, white-
winged, and white-tipped doves (15 under the alternative) in the 
aggregate, of which not more than 6 may be white-winged doves and not 
more than 2 may be white-tipped doves.
    In addition, Texas may also select a hunting season of not more 
than 4 days for the special white-winged dove area of the South Zone 
between September 1 and September 19. The daily bag limit may not 
exceed 10 white-winged, mourning, and white-tipped doves in the 
aggregate, of which no more than 5 may be mourning doves and 2 may be 
white-tipped doves.

Alaska

    Outside Dates: Between September 1 and January 26.
    Hunting Seasons: Alaska may select 107 consecutive days for 
waterfowl, sandhill cranes, and common snipe in each of five zones. The 
season may be split without penalty in the Kodiak Zone. The seasons in 
each zone must be concurrent.
    Closures: The season is closed on Canada geese from Unimak Pass 
westward in the Aleutian Island chain. The hunting season is closed on 
Aleutian Canada geese, emperor geese, spectacled eiders, and Steller's 
eiders.
    Daily Bag and Possession limits:
    Ducks - Except as noted, a basic daily bag limit of 7 and a 
possession limit of 21 ducks. Daily bag and possession limits in the 
North Zone are 10 and 30, and in the Gulf Coast Zone they are 8 and 24, 
respectively. The basic limits may include no more than 1 canvasback 
daily and 3 in possession.
    In addition to the basic limit, there is a daily bag limit of 15 
and a possession limit of 30 scoter, common and king eiders, oldsquaw, 
harlequin, and common and red-breasted mergansers, singly or in the 
aggregate of these species.
    Light Geese - A basic daily bag limit of 3 and a possession limit 
of 6.
    Dark Geese - A basic daily bag limit of 4 and a possession limit of 
8.
    Dark-goose seasons are subject to the following restrictions:
    1. In Units 9(e) and 18, the limits for Canada geese are 1 daily 
and 2 in possession.
    2. In Units 5 and 6, the taking of Canada geese is permitted 
from September 28 through December 16. Middleton Island is closed to 
the taking of Canada geese.
    3. In Unit 10 (except Unimak Island), the taking of Canada geese 
is prohibited.
    Brant - A daily bag limit of 2.
    Common snipe - A daily bag limit of 8.
    Sandhill cranes - A daily bag limit of 3.
    Tundra swans - Open seasons for tundra swans may be selected 
subject to the following conditions:
    1. No more than 300 permits may be issued in GMU 22, authorizing 
each permittee to take 1 tundra swan per season.
    2. No more than 500 permits may be issued during the operational 
season in GMU 18. No more than 1 tundra swan may be taken per 
permit.
    3. The seasons must be concurrent with other migratory bird 
seasons.
    4. The appropriate State agency must issue permits, obtain 
harvest and hunter-participation data, and report the results of 
this hunt to the Service by June 1 of the following year.

Hawaii

    Outside Dates: Between September 1 and January 15.
    Hunting Seasons: Not more than 60 days (70 under the alternative) 
for mourning doves.
    Bag Limits: Not to exceed 15 (12 under the alternative) mourning 
doves.
    Note: Mourning doves may be taken in Hawaii in accordance with 
shooting hours and other regulations set by the State of Hawaii, and 
subject to the applicable provisions of 50 CFR part 20.

Puerto Rico

Doves and Pigeons:

    Outside Dates: Between September 1 and January 15.
    Hunting Seasons: Not more than 60 days.
    Daily Bag and Possession Limits: Not to exceed 10 Zenaida, 
mourning, and white-winged doves in the aggregate. Not to exceed 5 
scaly-naped pigeons.
    Closed Areas: There is no open season on doves or pigeons in the 
following areas: Municipality of Culebra, Desecheo Island, Mona Island, 
El Verde Closure Area, and Cidra Municipality and adjacent areas.

Ducks, Coots, Moorhens, Gallinules, and Snipe:

    Outside Dates: Between October 1 and January 31.

[[Page 38007]]

    Hunting Seasons: Not more than 55 days may be selected for hunting 
ducks, common moorhens, and common snipe. The season may be split into 
two segments.
    Daily Bag Limits:
    Ducks - Not to exceed 5.
    Common moorhens - Not to exceed 6.
    Common snipe - Not to exceed 8.
    Closed Seasons: The season is closed on the ruddy duck, white-
cheeked pintail, West Indian whistling duck, fulvous whistling duck, 
and masked duck, which are protected by the Commonwealth of Puerto 
Rico. The season also is closed on the purple gallinule, American coot, 
and Caribbean coot.
    Closed Areas: There is no open season on ducks, common moorhens, 
and common snipe in the Municipality of Culebra and on Desecheo Island.

Virgin Islands

Doves and Pigeons:

    Outside Dates: Between September 1 and January 15.
    Hunting Seasons: Not more than 60 days for Zenaida doves.
    Daily Bag and Possession Limits: Not to exceed 10 Zenaida doves.
    Closed Seasons: No open season is prescribed for ground or quail 
doves, or pigeons in the Virgin Islands.
    Closed Areas: There is no open season for migratory game birds on 
Ruth Cay (just south of St. Croix).
    Local Names for Certain Birds: Zenaida dove, also known as mountain 
dove; bridled quail-dove, also known as Barbary dove or partridge; 
Common ground-dove, also known as stone dove, tobacco dove, rola, or 
tortolita; scaly-naped pigeon, also known as red-necked or scaled 
pigeon.

Ducks

    Outside Dates: Between December 1 and January 31.
    Hunting Seasons: Not more than 55 consecutive days.
    Daily Bag Limits: Not to exceed 5.
    Closed Seasons: The season is closed on the ruddy duck, white-
cheeked pintail, West Indian whistling duck, fulvous whistling duck, 
and masked duck.

Special Falconry Regulations

    Falconry is a permitted means of taking migratory game birds in any 
State meeting Federal falconry standards in 50 CFR 21.29(k). These 
States may select an extended season for taking migratory game birds in 
accordance with the following:
    Extended Seasons: For all hunting methods combined, the combined 
length of the extended season, regular season, and any special or 
experimental seasons shall not exceed 107 days for any species or group 
of species in a geographical area. Each extended season may be divided 
into a maximum of 3 segments.
    Framework Dates: Seasons must fall between September 1 and March 
10.
    Daily Bag and Possession Limits: Falconry daily bag and possession 
limits for all permitted migratory game birds shall not exceed 3 and 6 
birds, respectively, singly or in the aggregate, during extended 
falconry seasons, any special or experimental seasons, and regular 
hunting seasons in all States, including those that do not select an 
extended falconry season.
    Regular Seasons: General hunting regulations, including seasons and 
hunting hours, apply to falconry in each State listed in 50 CFR 
21.29(k). Regular-season bag and possession limits do not apply to 
falconry. The falconry bag limit is not in addition to gun limits.

Area, Unit, and Zone Descriptions

    Central Flyway portion of the following States consists of:
    Colorado: That area lying east of the Continental Divide.
    Montana: That area lying east of Hill, Chouteau, Cascade, Meagher, 
and Park Counties.
    New Mexico: That area lying east of the Continental Divide but 
outside the Jicarilla Apache Indian Reservation.
    Wyoming: That area lying east of the Continental Divide and 
excluding the Great Divide Portion.
    The remaining portions of these States are in the Pacific Flyway.

Mourning and White-winged Doves

    Alabama
    South Zone - Baldwin, Barbour, Coffee, Conecuh, Covington, Dale, 
Escambia, Geneva, Henry, Houston, and Mobile Counties.
    North Zone - Remainder of the State.
    California
    White-winged Dove Open Areas - Imperial, Riverside, and San 
Bernardino Counties.
    Florida
    Northwest Zone - The Counties of Bay, Calhoun, Escambia, Franklin, 
Gadsden, Gulf, Holmes, Jackson, Liberty, Okaloosa, Santa Rosa, Walton, 
Washington, Leon (except that portion north of U.S. 27 and east of 
State Road 155), Jefferson (south of U.S. 27, west of State Road 59 and 
north of U.S. 98), and Wakulla (except that portion south of U.S. 98 
and east of the St. Marks River).
    South Zone - Remainder of State.
    Georgia
    Northern Zone - That portion of the State lying north of a line 
running west to east along U.S. Highway 280 from Columbus to Wilcox 
County, thence southward along the western border of Wilcox County; 
thence east along the southern border of Wilcox County to the Ocmulgee 
River, thence north along the Ocmulgee River to Highway 280, thence 
east along Highway 280 to the Little Ocmulgee River; thence southward 
along the Little Ocmulgee River to the Ocmulgee River; thence 
southwesterly along the Ocmulgee River to the western border of the 
Jeff Davis County; thence south along the western border of Jeff Davis 
County; thence east along the southern border of Jeff Davis and Appling 
Counties; thence north along the eastern border of Appling County, to 
the Altamaha River; thence east to the eastern border of Tattnall 
County; thence north along the eastern border of Tattnall County; 
thence north along the western border of Evans to Candler County; 
thence west along the southern border of Candler County to the Ohoopee 
River; thence north along the western border of Candler County to 
Bulloch County; thence north along the western border of Bulloch County 
to U.S. Highway 301; thence northeast along U.S. Highway 301 to the 
South Carolina line.
    South Zone - Remainder of the State.
    Louisiana
    North Zone - That portion of the State north of Interstate Highway 
10 from the Texas State line to Baton Rouge, Interstate Highway 12 from 
Baton Rouge to Slidell and Interstate Highway 10 from Slidell to the 
Mississippi State line.
    South Zone - The remainder of the State.
    Mississippi
    South Zone - The Counties of Forrest, George, Greene, Hancock, 
Harrison, Jackson, Lamar, Marion, Pearl River, Perry, Pike, Stone, and 
Walthall.
    North Zone - The remainder of the State.
    Nevada
    White-winged Dove Open Areas - Clark and Nye Counties.
    Texas
    North Zone - That portion of the State north of a line beginning at 
the International Bridge south of Fort Hancock; north along FM 1088 to 
TX 20; west along TX 20 to TX 148; north along TX 148 to I-10 at Fort 
Hancock; east along I-10 to I-20; northeast along I-20 to I-30 at Fort 
Worth; northeast along I-30 to the Texas-Arkansas State line.
    South Zone - That portion of the State south and west of a line 
beginning at the International Bridge south of Del Rio, proceeding east 
on U.S. 90 to San

[[Page 38008]]

Antonio; then east on I-10 to Orange, Texas.
    Special White-winged Dove Area in the South Zone - That portion of 
the State south and west of a line beginning at the International 
Bridge south of Del Rio, proceeding east on U.S. 90 to Uvalde; south on 
U.S. 83 to TX 44; east along TX 44 to TX 16 at Freer; south along TX 16 
to TX 285 at Hebbronville; east along TX 285 to FM 1017; southwest 
along FM 1017 to TX 186 at Linn; east along TX 186 to the Mansfield 
Channel at Port Mansfield; east along the Mansfield Channel to the Gulf 
of Mexico.
    Area with additional restrictions - Cameron, Hidalgo, Starr, and 
Willacy Counties.
    Central Zone - That portion of the State lying between the North 
and South Zones.

Band-tailed Pigeons

    California
    North Zone - Alpine, Butte, Del Norte, Glenn, Humboldt, Lassen, 
Mendocino, Modoc, Plumas, Shasta, Sierra, Siskiyou, Tehama, and Trinity 
Counties.
    South Zone - The remainder of the State.
    New Mexico
    North Zone - North of a line following U.S. 60 from the Arizona 
State line east to I-25 at Socorro and then south along I-25 from 
Socorro to the Texas State line.
    South Zone - Remainder of the State.
    Washington
    Western Washington - The State of Washington excluding those 
portions lying east of the Pacific Crest Trail and east of the Big 
White Salmon River in Klickitat County.

Woodcock

    New Jersey
    North Zone - That portion of the State north of NJ 70.
    South Zone - The remainder of the State.

Special September Goose Seasons

Atlantic Flyway

    North Carolina
    Northeast Hunt Unit - Counties of Bertie, Camden, Chovan, 
Currituck, Dare, Hyde, Pasquotank, Perquimans, Tyrrell, and Washington.

Mississippi Flyway

    Illinois
    Northeast Zone - Cook, DuPage, Grundy, Kane, Kankakee, Kendall, 
Lake, McHenry, and Will Counties.
    Iowa
    North Zone: That portion of the State north of a line extending 
east from the Nebraska border along State Highway 175 to State 37, 
southeast along State 37 to U.S. Highway 59, south along U.S. 59 to 
Interstate Highway 80, then east along I-80 to the Illinois border.
    South Zone: The remainder of Iowa.
    Minnesota
    Twin Cities Metropolitan Canada Goose Zone -
    A. All of Hennepin and Ramsey Counties.
    B. In Anoka County, all of Columbus Township lying south of County 
State Aid Highway (CSAH) 18, Anoka County; all of the cities of Ramsey, 
Andover, Anoka, Coon Rapids, Spring Lake Park, Fridley, Hilltop, 
Columbia Heights, Blaine, Lexington, Circle Pines, Lino Lakes, and 
Centerville; and all of the city of Ham Lake except that portion lying 
north of CSAH 18 and east of U.S. Highway 65.
    C. That part of Carver County lying north and east of the following 
described line: Beginning at the northeast corner of San Francisco 
Township; thence west along the north boundary of San Francisco 
Township to the east boundary of Dahlgren Township; thence north along 
the east boundary of Dahlgren Township to U.S. Highway 212; thence west 
along U.S. Highway 212 to State Trunk Highway (STH) 284; thence north 
on STH 284 to County State Aid Highway (CSAH) 10; thence north and west 
on CSAH 10 to CSAH 30; thence north and west on CSAH 30 to STH 25; 
thence east and north on STH 25 to CSAH 10; thence north on CSAH 10 to 
the Carver County line.
    D. In Scott County, all of the cities or Shakopee, Savage, Prior 
Lake, and Jordan, and all of the Townships of Jackson, Louisville, St. 
Lawrence, Sand Creek, Spring Lake, and Credit River.
    E. In Dakota County, all of the cities of Burnsville, Eagan, 
Mendota Heights, Mendota, Sunfish Lake, Inver Grove Heights, Apple 
Valley, Lakeville, Rosemount, Farmington, Hastings, Lilydale, West St. 
Paul, and South St. Paul, and all of the Township of Nininger.
    F. That portion of Washington County lying south of the following 
described line: Beginning at County State Aid Highway (CSAH) 2 on the 
west boundary of the county; thence east on CSAH 2 to U.S. Highway 61; 
thence south on U.S. Highway 61 to State Trunk Highway (STH) 97; thence 
east on STH 97 to the intersection of STH 97 and STH 95; thence due 
east to the east boundary of the state.
    Northwest Goose Zone (included for reference only, not a special 
September Goose Season Zone) - That portion of the State encompassed by 
a line extending east from the North Dakota border along U.S. Highway 2 
to State Trunk Highway (STH) 32, north along STH 32 to STH 92, east 
along STH 92 to County State Aid Highway (CSAH) 2 in Polk County, north 
along CSAH 2 to CSAH 27 in Pennington County, north along CSAH 27 to 
STH 1, east along STH 1 to CSAH 28 in Pennington County, north along 
CSAH 28 to CSAH 54 in Marshall County, north along CSAH 54 to CSAH 9 in 
Roseau County, north along CSAH 9 to STH 11, west along STH 11 to STH 
310, and north along STH 310 to the Manitoba border.
    Four Goose Zone - That portion of the state encompassed by a line 
extending north from the Iowa border along U.S. Interstate Highway 35 
to the south boundary of the Twin Cities Metropolitan Canada Goose 
Zone, then west and north along the boundary of the Twin Cities 
Metropolitan Canada Goose Zone to U.S. Interstate 94, then west and 
north on U.S. Interstate 94 to the North Dakota border.
    Two Goose Zone - That portion of the state to the north of a line 
extending east from the North Dakota border along U.S. Interstate 94 to 
the boundary of the Twin Cities Metropolitan Canada Goose Zone, then 
north and east along the Twin Cities Metropolitan Canada Goose Zone 
boundary to the Wisconsin border, except the Northwest Goose Zone and 
that portion of the State encompassed by a line extending north from 
the Iowa border along U.S. Interstate 35 to the south boundary of the 
Twin Cities Metropolitan Canada Goose Zone, then east on the Twin Cites 
Metropolitan Canada Goose Zone boundary to the Wisconsin border.
    Tennessee
    Middle Tennessee Zone - Those portions of Houston, Humphreys, 
Montgomery, Perry, and Wayne Counties east of State Highway 13; and 
Bedford, Cannon, Cheatham, Coffee, Davidson, Dickson, Franklin, Giles, 
Hickman, Lawrence, Lewis, Lincoln, Macon, Marshall, Maury, Moore, 
Robertson, Rutherford, Smith, Sumner, Trousdale, Williamson, and Wilson 
Counties.
    Cumberland Plateau Zone - Bledsoe, Bradley, Clay, Cumberland, 
Dekalb, Fentress, Grundy, Hamilton, Jackson, Marion, McMinn, Meigs, 
Morgan, Overton, Pickett, Polk, Putnam, Rhea, Roane, Scott, Sequatchie, 
Van Buren, Warren, and White Counties.
    East Tennessee Zone - Anderson, Blount, Campbell, Carter, 
Claiborne, Cocke, Grainger, Greene, Hamblen, Hancock, Hawkins, 
Jefferson, Johnson, Knox, Loudon, Monroe, Sevier, Sullivan, Unicoi, 
Union, and Washington Counties.

[[Page 38009]]

    Wisconsin
    Early-Season Subzone A - That portion of the State encompassed by a 
line beginning at the Lake Michigan shore in Sheboygan, then west along 
State Highway 23 to State 67, southerly along State 67 to County 
Highway E in Sheboygan County, southerly along County E to State 28, 
south and west along State 28 to U.S. Highway 41, southerly along U.S. 
41 to State 33, westerly along State 33 to County Highway U in 
Washington County, southerly along County U to County N, southeasterly 
along County N to State 60, westerly along State 60 to County Highway P 
in Dodge County, southerly along County P to County O, westerly along 
County O to State 109, south and west along State 109 to State 26, 
southerly along State 26 to U.S. 12, southerly along U.S. 12 to State 
89, southerly along State 89 to U.S. 14, southerly along U.S. 14 to the 
Illinois border, east along the Illinois border to the Michigan border 
in Lake Michigan, north along the Michigan border in Lake Michigan to a 
point directly east of State 23 in Sheboygan, then west along that line 
to the point of beginning on the Lake Michigan shore in Sheboygan.
    Early-Season Subzone B - That portion of the State between Early-
Season Subzone A and a line beginning at the intersection of U.S. 
Highway 141 and the Michigan border near Niagara, then south along U.S. 
141 to State Highway 22, west and southwest along State 22 to U.S. 45, 
south along U.S. 45 to State 22, west and south along State 22 to State 
110, south along State 110 to U.S. 10, south along U.S. 10 to State 49, 
south along State 49 to State 23, west along State 23 to State 73, 
south along State 73 to State 60, west along State 60 to State 23, 
south along State 23 to State 11, east along State 11 to State 78, then 
south along State 78 to the Illinois border.

Pacific Flyway

    Idaho
    East Zone - Bonneville, Caribou, Fremont and Teton Counties.
    Oregon
    Northwest Zone - Benton, Clackamus, Clatsop, Columbia, Lincoln, 
Linn, Marion, Polk, Multnomah, Tillamook, Washington, Wayne, and 
Yamhill Counties.
    Southwest Zone - Coos, Curry, Douglas, Jackson, Josephine, and 
Klamath Counties.
    East Zone - Baker, Gilliam, Malheur, Morrow, Sherman, Umatilla, 
Union and Wasco Counties.
    Washington
    Southwest Zone - Clark, Colitz, Pacific, and Wahkiakum Counties.
    East Zone - Asotin, Benton, Columbia, Garfield, Klickitat, and 
Whitman Counties.
    Wyoming
    Bear River Area - That portion of Lincoln County described in State 
regulations.
    Salt River Area - That portion of Lincoln County described in State 
regulations.
    Farson-Edon Area - Those portions of Sweetwater and Sublette 
Counties described in State regulations.
    Teton Area - Those portions of Teton County described in State 
regulations.

Ducks

Mississippi Flyway

    Iowa
    North Zone: That portion of the State north of a line extending 
east from the Nebraska border along State Highway 175 to State 37, 
southeast along State 37 to U.S. Highway 59, south along U.S. 59 to 
Interstate Highway 80, then east along I-80 to the Illinois border.
    South Zone: The remainder of Iowa.

Sandhill Cranes

Central Flyway

    Colorado
    Regular-Season Open Area - The Central Flyway portion of the State 
except the San Luis Valley (Alamosa, Conejos, Costilla, Hinsdale, 
Mineral, Rio Grande and Saguache Counties east of the Continental 
Divide) and North Park (Jackson County).
    Kansas
    Regular Season Open Area - That portion of the State west of a line 
beginning at the Oklahoma border, north on I-35 to Wichita, north on I-
135 to Salina, and north on U.S. 81 to the Nebraska border.
    New Mexico
    Regular-Season Open Area - Chaves, Curry, De Baca, Eddy, Lea, Quay, 
and Roosevelt Counties.
    Middle Rio Grande Valley Area - The Central Flyway portion of New 
Mexico in Socorro and Valencia Counties.
    Southwest Zone - Sierra, Luna, and Dona Ana Counties.
    Oklahoma
    Regular-Season Open Area - That portion of the State west of I-35.
    Texas
    Regular-Season Open Area - That portion of the State west of a line 
from the International Toll Bridge at Brownsville along U.S. 77 to 
Victoria; U.S. 87 to Placedo; Farm Road 616 to Blessing; State 35 to 
Alvin; State 6 to U.S. 290; U.S. 290 to Austin; I-35 to the Texas-
Oklahoma border.
    North Dakota
    Regular-Season Open Area - That portion of the State west of U.S. 
281.
    South Dakota
    Regular-Season Open Area - That portion of the State west of U.S. 
281.
    Montana
    Regular-Season Open Area - The Central Flyway portion of the State 
except that area south of I-90 and west of the Bighorn River.
    Wyoming
    Regular-Season Open Area - Campbell, Converse, Crook, Goshen, 
Laramie, Niobrara, Platte, and Weston Counties.
    Riverton-Boysen Unit - Portions of Fremont County.
    Park and Bighorn County Unit - Portions of Park and Bighorn 
Counties.

Pacific Flyway

    Arizona
    Special-Season Area - Game Management Units 30A, 30B, 31, and 32.
    Montana
    Special-Season Area - See State regulations.
    Utah
    Special-Season Area - Rich County.
    Wyoming
    Bear River Area - That portion of Lincoln County described in State 
regulations.
    Salt River Area - That portion of Lincoln County described in State 
regulations.
    Eden-Farson Area - Those portions of Sweetwater and Sublette 
Counties described in State regulations.

All Migratory Game Birds in Alaska

    North Zone - State Game Management Units 11-13 and 17-26.
    Gulf Coast Zone - State Game Management Units 5-7, 9, 14-16, and 10 
- Unimak Island only.
    Southeast Zone - State Game Management Units 1-4.
    Pribilof and Aleutian Islands Zone - State Game Management Unit 10 
- except Unimak Island.
    Kodiak Zone - State Game Management Unit 8.

All Migratory Birds in the Virgin Islands

    Ruth Cay Closure Area - The island of Ruth Cay, just south of St. 
Croix.

All Migratory Birds in Puerto Rico

    Municipality of Culebra Closure Area - All of the municipality of 
Culebra.
    Desecheo Island Closure Area - All of Desecheo Island.
    Mona Island Closure Area - All of Mona Island.
    El Verde Closure Area - Those areas of the municipalities of Rio 
Grande and Loiza delineated as follows: (1) All

[[Page 38010]]

lands between Routes 956 on the west and 186 on the east, from Route 3 
on the north to the juncture of Routes 956 and 186 (Km 13.2) in the 
south; (2) all lands between Routes 186 and 966 from the juncture of 
186 and 966 on the north, to the Caribbean National Forest Boundary on 
the south; (3) all lands lying west of Route 186 for one kilometer from 
the juncture of Routes 186 and 956 south to Km 6 on Route 186; (4) all 
lands within Km 14 and Km 6 on the west and the Caribbean National 
Forest Boundary on the east; and (5) all lands within the Caribbean 
National Forest Boundary whether private or public.
    Cidra Municipality and adjacent areas - All of Cidra Municipality 
and portions of Aguas, Buenas, Caguas, Cayer, and Comerio 
Municipalities as encompassed within the following boundary: beginning 
on Highway 172 as it leaves the municipality of Cidra on the west edge, 
north to Highway 156, east on Highway 156 to Highway 1, south on 
Highway 1 to Highway 765, south on Highway 765 to Highway 763, south on 
Highway 763 to the Rio Guavate, west along Rio Guavate to Highway 1, 
southwest on Highway 1 to Highway 14, west on Highway 14 to Highway 
729, north on Highway 729 to Cidra Municipality boundary to the point 
of beginning.
BILLING CODE 4310-55-F

[[Page 38011]]

[GRAPHIC] [TIFF OMITTED] TP22JY96.000


[FR Doc. 96-18430 Filed 7-19-96; 8:45 am]
BILLING CODE 4310-55-C