[Federal Register Volume 61, Number 160 (Friday, August 16, 1996)]
[Proposed Rules]
[Pages 42730-42740]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-20963]



[[Page 42729]]


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Part VI





Department of the Interior





_______________________________________________________________________



Fish and Wildlife Service



_______________________________________________________________________



50 CFR Part 20



Proposed Migratory Bird Hunting Regulations on Certain Federal Indian 
Reservations and Ceded Lands for the 1996-97 Season; Proposed Rule

  Federal Register / Vol. 61, No. 160 / Friday, August 16, 1996 / 
Proposed Rules  

[[Page 42730]]



DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 20
RIN 1018-AD69

Migratory Bird Hunting; Proposed Migratory Bird Hunting 
Regulations on Certain Federal Indian Reservations and Ceded Lands for 
the 1996-97 Season
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Proposed rule.

-----------------------------------------------------------------------

SUMMARY: This rule proposes special migratory bird hunting regulations 
for certain tribes on Federal Indian reservations, off-reservation 
trust lands, and ceded lands for the 1996-97 migratory bird hunting 
season.

DATES: The comment period for these proposed regulations will end 
August 26, 1996.

ADDRESSES: Comments should be sent to: Chief, Office of Migratory Bird 
Management, U.S. Fish and Wildlife Service, 634--ARLSQ, 1849 C St., 
NW., Washington, DC 20240. Comments received, if any, on these proposed 
special hunting regulations and tribal proposals will be available for 
public inspection during normal business hours in Room 634--Arlington 
Square Building, 4401 N. Fairfax Drive, Arlington, VA.

FOR FURTHER INFORMATION CONTACT: Ron W. Kokel, Office of Migratory Bird 
Management, U.S. Fish and Wildlife Service, (703/358-1714).
SUPPLEMENTARY INFORMATION: In the March 22, 1996, Federal Register (61 
FR 11986), the Service requested proposals from Indian tribes wishing 
to establish special migratory bird hunting regulations for the 1996-97 
hunting season, under the guidelines described in the June 4, 1985, 
Federal Register (50 FR 23467). The Service developed guidelines in 
response to tribal requests for recognition of their reserved hunting 
rights and, for some tribes, recognition of their authority to regulate 
hunting by both tribal and non-tribal members on their reservations. 
The guidelines include possibilities for:
    (1) on-reservation hunting by both tribal and nontribal members, 
with hunting by nontribal members on some reservations to take place 
within Federal frameworks but on dates different from those selected by 
the surrounding State(s);
    (2) on-reservation hunting by tribal members only, outside of usual 
Federal frameworks for season dates and length, and for daily bag and 
possession limits; and
    (3) off-reservation hunting by tribal members on ceded lands, 
outside of usual framework dates and season length, with some added 
flexibility in daily bag and possession limits.
    In all cases, the regulations established under the guidelines must 
be consistent with the March 10 to September 1 closed season mandated 
by the 1916 Migratory Bird Treaty with Canada. The guidelines apply to 
those tribes having recognized reserved hunting rights on Federal 
Indian reservations (including off-reservation trust lands) and on 
ceded lands. They also apply to establishing migratory bird hunting 
regulations for nontribal members on all lands within the exterior 
boundaries of reservations where tribes have full wildlife management 
authority over such hunting or where the tribes and affected States 
otherwise have reached agreement over hunting by nontribal members on 
lands owned by non-Indians within the reservation.
    Tribes usually have the authority to regulate migratory bird 
hunting by nonmembers on Indian-owned reservation lands, subject to 
Service approval. The question of jurisdiction is more complex on 
reservations that include lands owned by non-Indians, especially when 
the surrounding States have established or intend to establish 
regulations governing hunting by non-Indians on these lands. In such 
cases, the Service encourages the tribes and States to reach agreement 
on regulations that would apply throughout the reservations. When 
appropriate, the Service will consult with a tribe and State with the 
aim of facilitating an accord. The Service also will consult jointly 
with tribal and State officials in the affected States where tribes 
wish to establish special hunting regulations for tribal members on 
ceded lands.
    Because of past questions regarding interpretation of what events 
trigger the consultation process, as well as who initiates it, the 
Service provides the following clarification. The Service routinely 
provides copies of Federal Register publications to all State 
Directors, tribes and others interested parties. It is the 
responsibility of the States, tribes and others to notify the Service 
of any concern regarding any feature(s) of any regulations to the 
attention of the Service. When the Service receives such notification, 
we will initiate consultation.
    Service guidelines provide for the continued harvest of waterfowl 
and other migratory game birds by tribal members on reservations where 
it has been a customary practice. The Service does not oppose this 
harvest, provided it does not take place during the closed season 
defined by the 1916 Migratory Bird Convention with Canada, and does not 
adversely affect the status of the migratory bird resource.
    Before developing the guidelines, the Service reviewed available 
information on the current status of migratory bird populations; 
reviewed the current status of migratory bird hunting on Federal Indian 
reservations; and evaluated the potential impact of such guidelines on 
migratory birds. The Service concluded that the impact of migratory 
bird harvest by tribal members hunting on their reservations is 
minimal.
    One area of interest in Indian migratory bird hunting regulations 
relates to hunting seasons for nontribal members on dates that are 
within Federal frameworks, but which are different from those 
established by the State(s) where the reservation is located. A large 
influx of nontribal hunters onto a reservation at a time when the 
season is closed in the surrounding State(s) could result in adverse 
population impacts on one or more migratory bird species. The 
guidelines make this unlikely, however, because tribal proposals must 
include:
    (a) details on the harvest anticipated under the requested 
regulations;
    (b) methods to be used in measuring or monitoring harvest (such as 
bag checks, mail questionnaires, etc.);
    (c) steps to be used to limit level of harvest, where it could be 
shown that failure to limit such harvest would adversely impact the 
migratory bird resource; and
    (d) the tribes ability to establish and enforce migratory bird 
hunting regulations.
    The Service may modify or establish regulations experimentally, 
after evaluation and confirmation of harvest information obtained by 
the tribes.
    The Service believes the guidelines provide appropriate opportunity 
to accommodate the reserved hunting rights and management authority of 
Indian tribes while ensuring that the migratory bird resource receives 
necessary protection. The conservation of this important international 
resource is paramount. The guidelines should not be viewed as 
inflexible. In this regard, the Service notes that they have been 
employed successfully since 1985. The Service believes they have been 
tested adequately and therefore, made them final beginning with the 
1988-89 hunting season. It should be stressed here, however, that use 
of the guidelines is not mandatory and no action is required if a tribe 
wishes to observe the hunting regulations established by the

[[Page 42731]]

State(s) in which the reservation is located.
    In summary, this document proposes 1996-97 season migratory bird 
hunting regulations for participating tribes.

Hunting Season Proposals from Indian Tribes and Organizations

    For the 1996-97 hunting season, the Service received requests from 
twenty tribes and Indian organizations in accordance with 1985 proposal 
guidelines and appropriate for Federal Register publication. The Fond 
du Lac Band of Lake Superior Chippewa Indians (Minnesota), the Point No 
Point Treaty Tribes (Washington), and the Swinomish Indians 
(Washington) are included in the regulations this year for the first 
time.
    The Service actively solicits regulatory proposals from other 
tribal groups that have are interested in working cooperatively for the 
benefit of waterfowl and other migratory game birds. The Service 
encourages tribes to work with us to develop agreements for management 
of migratory bird resources on tribal lands.
    It should be noted that this proposed rule includes generalized 
regulations for both early- and late-season hunting. A final rule will 
be published later in an August 1996 Federal Register that will include 
tribal regulations for the early-hunting season. The early season 
begins on September 1 each year and most commonly includes such species 
as mourning doves and white-winged doves. A final rule will also be 
published in a September 1996 Federal Register that will include 
regulations for late-season hunting. The late season begins on or 
around October 1 and most commonly includes waterfowl species.
    In this current rulemaking, because of the compressed timeframe for 
establishing regulations for Indian tribes and because final frameworks 
dates and other specific information are not available, the regulations 
for many tribal hunting seasons are described in relation to the season 
dates, season length and limits that will be permitted when final 
Federal frameworks are announced for early- and late-season 
regulations. For example, daily bag and possession limits for ducks on 
some areas are shown as ``Same as permitted Pacific Flyway States under 
final Federal frameworks,'' and limits for geese will be shown as the 
same permitted by the State(s) in which the tribal hunting area is 
located.
    The proposed frameworks for early-season regulations were published 
in the Federal Register on July 19, 1996 (61 FR 37994); early-season 
final frameworks will be published in mid-August. Proposed late-season 
frameworks for waterfowl and coots will be published in mid-August, and 
the final frameworks for the late seasons will be published in mid-
September. The Service will notify affected tribes of season dates, bag 
limits, etc., as soon as final frameworks are established.
    As previously discussed, no action is required by tribes wishing to 
observe migratory bird hunting regulations established by the State(s) 
where they are located.
    The proposed regulations for the twenty tribes with proposals that 
meet the established criteria are shown below.

(a) Colorado River Indian Tribes, Colorado River Indian Reservation, 
Parker, Arizona (Tribal Members and Non-tribal Hunters)

    The Colorado River Indian Reservation is located in Arizona and 
California. The tribes own almost all lands on the reservation, and 
have full wildlife management authority.
    In their 1996-97 proposal, dated June 21, 1996, the Colorado River 
Indian Tribes requested split dove seasons. They propose their early 
season begin September 1 and end September 15, 1996. Daily bag limits 
would be 10 mourning or 10 white-winged doves either singly or in the 
aggregate. The late season for doves is proposed to open November 16, 
1996, and close January 15, 1997. A daily bag limit would be 10 
mourning doves. The possession limit would be twice the daily bag 
limit. Shooting hours would be from one-half hour before sunrise to 
noon. Other special tribally set regulations would apply.
    The tribes also propose split duck hunting seasons. The first 
season would run from October 13, 1996, through November 10, 1996, and 
the second from December 7, 1996, through January 5, 1997. The tribes 
propose the same season dates for coots and common moorhens. The daily 
bag limit for ducks, including mergansers, would be 4 birds, which 
would include no more than 2 redheads, 2 pintails, 1 canvasback, or 1 
Mexican duck. The possession limit would be twice the daily bag limit. 
The daily bag limit for coots and common moorhens would be 25, singly 
or in the aggregate. The possession limit for coots and common moorhens 
would be twice the daily bag limit.
    For geese, the Colorado River Indian Tribes propose a season of 
October 19, 1996, through January 19, 1997. The daily bag and 
possession limits for geese would be 5, which would include no more 
than 3 white geese (snow and/or Ross and blue geese) and not more than 
2 dark geese (Canada geese).
    Under the proposed regulations described here and, based upon past 
seasons, the tribes estimate harvest will be less than 400 ducks and 
100 geese.
    Hunters must have a valid Colorado River Indian Reservation hunting 
permit in their possession while hunting. As in the past, the 
regulations would apply both to tribal and non-tribal hunters, and non-
toxic shot is required for waterfowl hunting. The Service proposes to 
approve the Colorado River Indian Tribes regulations for the 1996-97 
hunting season.

(b) Confederated Salish and Kootenai Tribes, Flathead Indian 
Reservation, Pablo, Montana (Non-tribal Hunters)

    For the past several years, the Confederated Salish and Kootenai 
Tribes and the State of Montana have entered into cooperative 
agreements for the regulation of hunting on the Flathead Indian 
Reservation. The State and the tribes are currently operating under a 
cooperative agreement signed in 1990 that addresses fishing and hunting 
management and regulation issues of mutual concern. This agreement 
enables all hunters to utilize waterfowl hunting opportunities on the 
reservation. The tribes proposed special regulations for waterfowl 
hunting were submitted to the Service in a May 28, 1996, proposal.
    As in the past, tribal regulations for nontribal members would be 
at least as restrictive as those established for the Pacific Flyway 
portion of Montana. Goose season dates would also be at least as 
restrictive as those established for the Pacific Flyway portion of 
Montana.
    Shooting hours for waterfowl hunting on the Flathead Reservation 
are sunrise to sunset. Steel shot is the only legal shotgun load on the 
reservation for waterfowl.
    The requested season dates and bag limits are generally similar to 
past regulations. Harvest levels are not expected to change 
significantly. Standardized check station data from the 1993-94 and 
1994-95 hunting seasons indicated no significant changes in harvest 
levels and that the large majority of the harvest is by non-tribal 
hunters.
    The Service proposes to approve the tribes' request for special 
migratory bird regulations for the 1996-97 hunting season.


[[Page 42732]]



(c) Crow Creek Sioux Tribe, Crow Creek Indian Reservation, Fort 
Thompson, South Dakota (Tribal Members and Non-tribal Hunters)

    The Crow Creek Indian Reservation has a checkerboard pattern of 
land ownership, with much of the land owned by non-Indians. Since the 
1993-94 season, the tribe has selected special waterfowl hunting 
regulations independent of the State of South Dakota. The tribe 
observes migratory bird hunting regulations contained in 50 CFR part 
20.
    In a May 20, 1996, proposal, the tribe requested duck season dates 
of October 26 to December 22, 1995, with the same daily bag and 
possession limits permitted by the final Federal frameworks. The season 
and bag limits would be essentially the same as last year, given the 
final Federal frameworks, and harvest is again expected to be low 
because of the small number of hunters. In 1994-95, duck harvest was 48 
birds, down from 67 in 1993-94.
    For geese, the tribe requested a goose hunting season of October 5, 
1996, through January 5, 1997, with the daily bag and possession limits 
the same as those permitted by final Federal frameworks. The tribe's 
estimated harvest for last season has not been compiled, however, the 
1994-95 harvest was 90 geese. This figure is less than half of the 
estimated harvest for the previous hunting season. Harvest for the 
1996-97 coming season should be approximately the same as that in 1994-
95.
    The Service proposes to approve the tribal requests for duck and 
goose hunting regulations. As with all other groups, the Service 
requests the tribe continue to survey and report harvest.

(d) Fond du Lac Band of Lake Superior Chippewa Indians, Cloquet, 
Minnesota (Tribal Members Only)

    For the first time, the Service and the Fond du Lac Band of Lake 
Superior Chippewa Indians are cooperating to establish special 
migratory bird hunting regulations for tribal members. In the past, the 
Service and the band established these special regulations under the 
auspices of the Great Lakes Indian Fish and Wildlife Commission. The 
Fond du Lac's May 29, 1996, proposal covers land ceded to the band 
under the Treaty of 1854 in northeast Minnesota.
    The band's proposal for 1996-97 is essentially the same as that 
approved by the Service last year for the Great Lakes Indian Fish and 
Wildlife Commission. For a more complete review of the history, and the 
Service's position, surrounding the establishment of special migratory 
bird hunting regulations on lands ceded under the Treaty of 1854, see 
the proposal by the Great Lakes Indian Fish and Wildlife Commission 
below.
    Specifically, the Fond du Lac Band proposes a September 14 to 
November 24, 1996, season on ducks, mergansers, geese, coots and 
moorhens, sora and virginia rails, snipe, and woodcock. Proposed bag 
limits would consist of the following:

Ducks
    Daily Bag Limit: 20 ducks, including no more than 10 mallards (only 
5 of which may be hens), 4 black ducks, 4 redheads, 4 pintails, and 2 
canvasbacks.

Mergansers
    Daily Bag Limit: 5 mergansers, including no more than 1 hooded 
merganser.

Geese
    Daily Bag Limit: 10 geese.

Coots and Common Moorhens (Common Gallinules)
    Daily Bag Limit: 25 coots and common moorhens, singly or in the 
aggregate.

Sora and Virginia Rails
    Daily Bag and Possession Limit: 25 sora and Virginia rails singly, 
or in the aggregate.

Common Snipe
    Daily Bag Limit: 8 common snipe.

Woodcock
    Daily Bag Limit: 5 woodcock.
    The following general conditions apply:
    1. While hunting waterfowl, a tribal member must carry on his/her 
person a valid tribal waterfowl hunting permit.
    2. Except as otherwise noted, tribal members will be required to 
comply with tribal codes that will be no less restrictive than the 
provisions of Chapter 10 of the Model Off-Reservation Code. Except as 
modified by the Service rules adopted in response to this proposal, 
these amended regulations parallel Federal requirements in 50 CFR Part 
20 as to hunting methods, transportation, sale, exportation and other 
conditions generally applicable to migratory bird hunting.
    3. Band members in each zone will comply with State regulations 
providing for closed and restricted waterfowl hunting areas.
    4. Possession limits for each species are double the daily bag 
limit, except on the opening day of the season, when the possession 
limit equals the daily bag limit, unless otherwise noted above. 
Possession limits are applicable only to transportation and do not 
include birds which are cleaned, dressed, and at a member's primary 
residence. For purposes of enforcing bag and possession limits, all 
migratory birds in the possession or custody of band members on ceded 
lands will be considered to have been taken on those lands unless 
tagged by a tribal or State conservation warden as having been taken 
on-reservation. All migratory birds which fall on reservation lands 
will not count as part of any off-reservation bag or possession limit.
    The band anticipates harvest will be fewer than 500 ducks and geese 
and 150 coots. Estimated harvest is based on mail survey results from 
the 1995 season.
    The Service proposes to approve the request for special migratory 
bird hunting regulations for the Fond du Lac Band of Lake Superior 
Chippewas.

(e) Grand Traverse Band of Ottawa and Chippewa Indians, Suttons Bay, 
Michigan (Tribal Members Only)

    In the 1995-96 migratory bird seasons, the Grand Traverse Band of 
Ottawa and Chippewa Indians and the Service first cooperated to 
establish special regulations for waterfowl. The Grand Traverse Band is 
a self-governing, federally recognized tribe located on the west arm of 
Grand Traverse Bay in Leelanau County, Michigan. The Grand Traverse 
Band is a signatory tribe of the Treaty of 1836. The Service has 
approved special regulations for tribal members of the 1836 treaty's 
signatory tribes on ceded lands in Michigan since the 1986-87 hunting 
season.
    For the 1996-97 season, the Grand Traverse Band of Ottawa and 
Chippewa Indians proposes a tribal member duck season that would run 
from September 15 through November 30, 1996. A daily bag limit of 7 
would include no more than 1 pintail, 1 canvasback, 1 black duck, 2 
wood ducks, 2 redheads, and 2 hen mallards.
    For Canada geese, the tribe proposes a September 1 through November 
30, 1996, and a January 1 through February 7, 1996, season. For white-
fronted geese, brant, and snow geese, the tribe proposes an October 1 
through November 30, 1996, season. The daily bag limit for all geese 
(including brant) would be 5 birds. Based on Service information, it is 
unlikely that any Canada geese from the Southern James Bay Population 
would be harvested by the tribe. All other Federal regulations

[[Page 42733]]

contained in 50 CFR part 20 would apply.
    The tribe proposes to closely monitor harvest through game bag 
checks, patrols, and mail surveys. In particular, the tribe proposes 
monitoring the harvest of Southern James Bay Canada geese to assess any 
impacts of tribal hunting on the population.
    The Service proposes to approve the Grand Traverse Band of Ottawa 
and Chippewa Indian's requested 1996-97 special migratory bird hunting 
regulations.

(f) Great Lakes Indian Fish and Wildlife Commission, Odanah, Wisconsin 
(Tribal Members Only)

    Since 1985, various bands of the Lake Superior Tribe of Chippewa 
Indians have exercised judicially recognized off-reservation hunting 
rights for migratory birds in Wisconsin. The specific regulations were 
established by the Service in consultation with the Wisconsin 
Department of Natural Resources and the Great Lakes Indian Fish and 
Wildlife Commission (GLIFWC, which represents the various bands). 
Beginning in 1986, a tribal season on ceded lands in the western 
portion of the State's Upper Peninsula was developed in coordination 
with the Michigan Department of Natural Resources, and the Service has 
approved special regulations for tribal members in both Michigan and 
Wisconsin since the 1986-87, hunting season. In 1987, the GLIFWC 
requested and the Service approved special regulations to permit tribal 
members to hunt on ceded lands in Minnesota, as well as in Michigan and 
Wisconsin. The States of Michigan and Wisconsin concurred with the 
regulations, although Wisconsin has raised some concerns each year. 
Minnesota did not concur with the regulations, stressing that the State 
would not recognize Chippewa Indian hunting rights in Minnesota's 
treaty area until a court with jurisdiction over the State acknowledges 
and defines the extent of these rights. The Service acknowledged the 
State's concern, but pointed out that the United States Government has 
recognized the Indian hunting rights decided in the Voigt case, and 
that acceptable hunting regulations have been negotiated successfully 
in both Michigan and Wisconsin even though the Voigt decision did not 
specifically address ceded land outside Wisconsin. The Service believes 
this is appropriate because the treaties in question cover ceded lands 
in Michigan (and Minnesota), as well as in Wisconsin. Consequently, in 
view of the above, the Service has approved special regulations since 
the 1987-88 hunting season on ceded lands in all three States. In fact, 
this recognition of the principle of reserved treaty rights for band 
members to hunt and fish was pivotal in a Service decision to approve a 
special 1991-92 season for the 1836 ceded area in Michigan.
    Recently, certain GLIFWC member bands have brought suit to resolve 
the issue of hunting, fishing and gathering rights in the Minnesota 
ceded areas covered under the 1837 and 1854 treaties. The Federal 
Government has intervened in support of the bands.
    In a May 29, 1996, letter, the GLIFWC proposed off-reservation 
special migratory bird hunting regulations for the 1996-97 seasons. 
Details of the proposed regulations are shown below. In general, the 
proposal is essentially identical to the regulations approved for the 
1995-96 season for ducks (including mergansers) and geese for all of 
the Minnesota and Wisconsin ceded areas. Bag limits for ducks and geese 
in these areas would be 20 and 10, respectively, although certain sex 
and species restrictions would apply. Regulations proposed for the 1836 
and 1842 Treaty areas located in Michigan would be the same as those 
permitted for the State of Michigan, except for the daily bag limit of 
geese. In the past, the GLIFWC's request for increased goose bag limits 
was objected to by the Service in the belief that the Southern James 
Bay Population of Canada Geese, a population that has declined 
dramatically in the past several years, could potentially be further 
hurt by this action. We now know that this goose population is not a 
major contributor to the GLIFWC member band harvest; probably less than 
25 geese from this population are taken annually by the Bay Mills 
Community hunters.
    Results of the 1995-96 hunter survey show that 2747 ducks and 391 
geese were actually harvested. Under the proposed regulations, harvest 
is expected to be similar to last year and most likely would not exceed 
3000 ducks and 900 geese.
    The Service believes that regulations advanced by the GLIFWC for 
the 1996-97 hunting season are biologically acceptable and recommends 
approval. If the regulations are finalized as proposed, the Service 
would request that the GLIFWC closely monitor the member band duck 
harvest and take any actions necessary to reduce harvest if locally 
nesting populations are being significantly impacted.
    The Commission and the Service are parties to a Memorandum of 
Agreement (MOA) designed to facilitate the ongoing enforcement of 
Service-approved tribal migratory bird regulations. Its intent is to 
provide long-term cooperative application.
    Also, as in recent seasons, the proposal contains references to 
Chapter 10 of the Migratory Bird Harvesting Regulations of the Model 
Off-Reservation Conservation Code. Chapter 10 regulations parallel 
State and Federal regulations and, in effect, are not changed by this 
proposal.
    The GLIFWC's proposed 1996-97 waterfowl hunting season regulations 
are as follows:

Ducks
    A. Wisconsin and Minnesota 1837 and 1842 Zones:
    Season Dates: Begin September 15 and end November 7, 1996.
    Daily Bag Limit: 20 ducks, including no more than 10 mallards (only 
5 of which may be hens), 4 black ducks, 4 redheads, 4 pintails, and 2 
canvasbacks.
    B. Michigan, 1842 Treaty Zone: Same dates, season lengths, and 
daily bag limits permitted the State of Michigan for this area under 
final Federal frameworks.
    C. Michigan, 1836 Treaty Zone: Same dates, season lengths, and 
daily bag limits permitted the State of Michigan for this area under 
final Federal frameworks.

Mergansers
    A. Wisconsin and Minnesota 1837 and 1842 Zones:
    Season Dates: Begin September 15 and end November 7, 1996.
    Daily Bag Limit: 5 mergansers.
    B. Michigan, 1842 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 5, including no more than 1 
hooded merganser.
    C. Michigan, 1836 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under Federal frameworks. 
The daily bag limit would be 5, including no more than 1 hooded 
merganser.

Geese: Canada Geese
    A. Wisconsin and Minnesota 1837 and 1842 Zones:
    Season Dates: Begin September 15 and end December 1, 1996.
    Daily Bag Limit: 10 Canada geese, minus the number of blue, snow or 
white-fronted geese taken.
    B. Michigan, 1842 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 5.

[[Page 42734]]

    C. Michigan, 1836 Treaty Zone: Same dates, season length and daily 
bag limit permitted the State of Michigan for this area under final 
Federal frameworks.

Geese: Blue, Snow and White-fronted Geese
    A. Wisconsin and Minnesota 1837 and 1842 Zones:
    Season Dates: Begin September 15 and end December 1, 1996.
    Daily Bag Limit: 10 geese, minus the number of Canada geese taken.
    B. Michigan, 1842 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 7 geese, minus the number of 
Canada geese taken and including no more than 2 white-fronted geese.
    C. Michigan, 1836 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 7 geese, minus the number of 
Canada geese taken and including no more than 2 white-fronted geese.

Other Migratory Birds: Coots and Common Moorhens (Common Gallinules)
    A. Wisconsin and Minnesota 1837 and 1842 Zones:
    Season Dates: Begin September 15 and end November 7, 1996.
    Daily Bag Limit: 20 coots and common moorhens (common gallinules), 
singly or in the aggregate.
    B. Michigan, 1842 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 20, singly or in the 
aggregate.
    C. Michigan, 1836 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 20, singly or in the 
aggregate.

Sora and Virginia Rails
    A. Wisconsin and Minnesota 1837 and 1842 Zones:
    Season Dates: Begin September 15 and end November 7, 1996.
    Daily Bag Limit: 25 sora and Virginia rails singly, or in the 
aggregate.
    B. Michigan, 1842 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag and possession limit would be 25 sora and 
Virginia rails singly, or in the aggregate.
    C. Michigan, 1836 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag and possession limit would be 25 sora and 
Virginia rails singly, or in the aggregate.

Common Snipe
    A. Wisconsin and Minnesota 1837 and 1842 Zones:
    Season Dates: Begin September 15 and end November 7, 1996.
    Daily Bag Limit: 8 common snipe.
    B. Michigan, 1842 Treaty Zone: Same dates and season length 
permitted for the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 8 common snipe.
    C. Michigan, 1836 Treaty Zone: Same dates and season length 
permitted for the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 8 common snipe.

Woodcock
    A. Wisconsin and Minnesota 1837 and 1842 Zones:
    Season Dates: Begin September 3 and end November 30, 1996.
    Daily Bag Limit: 5 woodcock.
    B. Michigan, 1842 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 5 woodcock.
    C. Michigan, 1836 Treaty Zone: Same dates and season length 
permitted the State of Michigan for this area under final Federal 
frameworks. The daily bag limit would be 5 woodcock.
    D. General Conditions
    1. While hunting waterfowl, a tribal member must carry on his/her 
person a valid tribal waterfowl hunting permit.
    2. Except as otherwise noted, tribal members will be required to 
comply with tribal codes that will be no less restrictive than the 
provisions of Chapter 10 of the Model Off-Reservation Code. Except as 
modified by the Service rules adopted in response to this proposal, 
these amended regulations parallel Federal requirements in 50 CFR Part 
20 as to hunting methods, transportation, sale, exportation and other 
conditions generally applicable to migratory bird hunting.
    3. Tribal members in each zone will comply with State regulations 
providing for closed and restricted waterfowl hunting areas.
    4. Possession limits for each species are double the daily bag 
limit, except on the opening day of the season, when the possession 
limit equals the daily bag limit, unless otherwise noted above. 
Possession limits are applicable only to transportation and do not 
include birds which are cleaned, dressed, and at a member's primary 
residence. For purposes of enforcing bag and possession limits, all 
migratory birds in the possession or custody of tribal members on ceded 
lands will be considered to have been taken on those lands unless 
tagged by a tribal or State conservation warden as having been taken 
on-reservation. In Wisconsin, such tagging will comply with applicable 
State laws. All migratory birds which fall on reservation lands will 
not count as part of any off-reservation bag or possession limit.
    5. Minnesota and Michigan--Duck Blinds and Decoys. Tribal members 
hunting in Michigan and Minnesota will comply with tribal codes that 
contain provisions that parallel applicable State laws concerning duck 
blinds and/or decoys.

(g) Jicarilla Apache Tribe, Jicarilla Indian Reservation, Dulce, New 
Mexico (Tribal Members and Non-tribal Hunters)

    The Jicarilla Apache Tribe has had special migratory bird hunting 
regulations for tribal members and nonmembers since the 1986-87 hunting 
season. The tribe owns all lands on the reservation and has recognized 
full wildlife management authority. In general, the proposed seasons 
would be more conservative than allowed by the Federal frameworks of 
last season and by States in the Pacific Flyway.
    In a May 15, 1996, proposal, the tribe proposed a 1996-97 waterfowl 
season opening date of October 5 and a closing date of November 30, 
1996. Daily bag and possession limits would be the same as Pacific 
Flyway States. The tribe proposes, however, a closed season on 
canvasbacks and Canada geese. Other regulations specific to the Pacific 
Flyway guidelines for New Mexico would be in effect.
    The Jicarilla Game and Fish Department's annual estimate of 
waterfowl harvest is relatively small. In the 1995-96 season, estimated 
duck harvest was 1,104, down from 1,212 in 1994-95. The species 
composition in the past has included mainly mallards, gadwall, teal, 
and wigeon. Northern pintail comprised only 2 percent of the total 
harvest in 1994.
    The proposed regulations are essentially the same as were 
established last year and the tribe anticipates the maximum 1996-97 
waterfowl harvest would be around 1,300 ducks. However, a severe 
drought which occurred on the reservation could limit waterfowl hunting 
opportunities and result in a significantly decreased harvest.

[[Page 42735]]

    The Service proposes to approve the tribe's requested 1996-97 
hunting seasons.

(h) Kalispel Tribe, Kalispel Reservation, Usk, Washington (Tribal 
Members and Non-tribal Hunters)

    The Kalispel Reservation was established by Executive Order in 
1914, and currently comprises approximately 4600 acres. The tribe owns 
all Reservation land and has full management authority. The Kalispel 
Tribe has a fully developed wildlife program with hunting and fishing 
codes. The tribe enjoys excellent wildlife management relations with 
the State. The tribe and the State have an operational Memorandum of 
Understanding with emphasis on fisheries but also for wildlife. The 
non-tribal member seasons described below pertain to a 176 acre 
waterfowl management unit. The tribe is utilizing this opportunity to 
rehabilitate an area that needs protection because of past land use 
practices, as well as to provide additional waterfowl hunting in the 
area.
    For the first time, the requested 1996-97 regulations also include 
a proposal for Kalispel-member only migratory bird hunting on Kalispel-
ceded lands within Washington and Idaho.
    For the 1996-97 migratory bird hunting seasons, the Kalispel Tribe 
proposed, in a June 18, 1996, letter, tribal and non-tribal member 
waterfowl seasons. For non-tribal members, the tribe requests seasons 
which begin 2 weeks earlier and end 2 weeks later than those for the 
State of Washington in the same area. The outside frameworks, however, 
for ducks and geese would run from October 1, 1996, through January 31, 
1997. In that period, non-tribal hunters would be allowed to hunt on 
weekends, holidays and continuously in the month of December for a 
total of 68 days. Hunters should obtain further information on days 
from the Kalispel Tribe. Daily bag and possession limits would be the 
same as those for the State of Washington. Harvest is expected to be 
less than 200 geese and 250 ducks.
    All other State and Federal regulations contained in 50 CFR Part 
20, such as use of steel shot and possession of a signed migratory bird 
hunting stamp, would be required.
    For tribal members on Kalispel-ceded lands, the Kalispel proposes 
outside frameworks for ducks and geese of October 1, 1996, through 
January 31, 1997. However, during that period, the tribe proposes that 
the season run continuously. Daily bag and possession limits would be 
the same as those for the States of Washington and Idaho. Harvest is 
expected to be less than 200 geese and 250 ducks.
    Tribal members would be required to possess a signed Federal 
migratory bird stamp and a tribal ceded lands permit.
    The Service proposes to approve the regulations requested by the 
Kalispel Tribe.

(i) Klamath Tribe, Chiloquin, Oregon (Tribal Members Only)

    The Klamath Tribe currently has no reservation, per se. However, 
the Klamath Tribe has reserved hunting, fishing and gathering rights 
within its former reservation boundary. This area of former 
reservation, granted to the Klamaths by the Treaty of 1864, is over 1 
million acres. Tribal natural resource management authority is derived 
from the Treaty of 1864, and carried out cooperatively under the 
judicially enforced Consent Decree of 1981. The parties to this Consent 
Decree are the Federal Government, the State of Oregon and the 
Klamaths. The Klamath Indian Game Commission sets the seasons. The 
tribal biological staff and tribal Regulatory Enforcement Officers 
monitor tribal harvest by frequent bag checks and hunter interviews.
    In a May 31, 1996, letter, the Klamath Tribe proposed season dates 
that run from October 1, 1996, through January 31, 1997. Daily bag 
limits would be 9 for ducks and 6 for geese with possession limits 
twice the daily bag limit. The daily bag and possession limit for coots 
would be 25. Shooting hours would be one-half hour before sunrise to 
one-half hour after sunset.
    Based on the number of birds produced in the Klamath Basin, the 
tribe expects that this year's duck harvest will be similar to last 
year's while goose harvest will most likely be above 1995 levels. 
Information on tribal harvest suggests that more than 70 percent of the 
annual goose harvest is local birds produced in the Klamath basin.
    The Service proposes to approve the regulations of the Klamath 
Tribe.

(j) Lower Brule Sioux Tribe, Lower Brule Reservation, Lower Brule, 
South Dakota (Tribal Members and Non-tribal Hunters)

    The Lower Brule Sioux Tribe first established tribal migratory bird 
hunting regulations for the Lower Brule Reservation in 1994. The Lower 
Brule Reservation is about 214,000 acres in size and is located on and 
adjacent to the Missouri River, south of Pierre. Land ownership on the 
reservation is mixed, however, the Lower Brule Tribe currently has full 
management authority. On-reservation management authority over fish and 
wildlife was established for the Lower Brule Sioux Tribe via a MOA with 
the State of South Dakota, dated October 24, 1986. The MOA provides the 
tribe jurisdiction over fish and wildlife on reservation lands, 
including deeded and Corps of Engineers taken lands. Although the tribe 
is in litigation with the State of South Dakota regarding jurisdiction, 
this MOA has continued to be in effect until ultimate settlement by the 
Federal District Court. This year, the Federal District Court granted a 
recent motion for a stay which will allow the existing MOA to continue. 
Meetings between the Lower Brule Sioux Tribe, the South Dakota 
Department of Game, Fish and Parks and the Service are continuing. For 
the 1996-97 season, this stay will allow the public a clear 
understanding of the Lower Brule Sioux Wildlife Department license 
requirements and hunting season regulations. The Lower Brule 
Reservation waterfowl season is open to tribal and non-tribal hunters.
    For the 1996-97 migratory bird hunting season, the Lower Brule 
Sioux Tribe proposes a duck season length of 83 days, the same number 
of days as allowed in the High Plains Management Unit. The tribe's 
proposed season would run from October 10 through December 31, 1996. 
The daily bag limit would be the same as that allowed by South Dakota. 
Possession limits would be twice the daily bag limits.
    The tribe's proposed goose season would run from October 7 through 
December 31, 1996, with a daily bag limit of 2 dark geese, which may 
not include more than 1 white-fronted geese. The daily bag limit for 
light geese would be 10. Possession limits would be twice the daily bag 
limits.
    In the 1995-96 season, hunters harvested an estimated 411 geese and 
362 ducks. In 1994, duck harvest species composition was primarily 
mallard (57 percent), gadwall (10 percent), and green-winged teal (10 
percent). Goose harvest was 98 percent Canada geese. Additionally, 1995 
tribal goose camp harvest was 2,511 geese. For the past 3 years, goose 
camp harvest averaged approximately 3,000 geese. In 1994, 97 percent of 
this traditional harvest was Canada geese.
    The tribe anticipates a duck harvest of 500 birds and a goose 
harvest similar to the 3-year average if its 1996-97 regulations are 
approved. All basic Federal regulations contained in 50 CFR Part 20, 
including the use of steel shot, Migratory Waterfowl Hunting and 
Conservation Stamp, etc., would be observed by the tribe's proposed 
regulations. In addition, the Lower

[[Page 42736]]

Brule Sioux Tribe has an official Conservation Code that was 
established by Tribal Council Resolution on June 1982 and updated in 
1996.
    The Service proposes to approve the tribe's proposed regulations 
for the Lower Brule Reservation.

(k) Navajo Nation, Navajo Indian Reservation, Window Rock, Arizona 
(Tribal Members and Non-tribal Hunters)

    Since 1985, the Service has established uniform migratory bird 
hunting regulations for tribal members and nonmembers on the Navajo 
Indian Reservation (in parts of Arizona, New Mexico, and Utah). The 
nation owns almost all lands on the reservation and has full wildlife 
management authority.
    In a July 17, 1996, communication, the tribe proposed special 
migratory bird hunting regulations on the reservation for both tribal 
and non-tribal members for the 1996-97 hunting season for ducks 
(including mergansers), Canada geese, coots, band-tailed pigeons, and 
mourning doves. For waterfowl, the Navajo Nation requests the earliest 
opening dates and longest seasons, and the same daily bag and 
possession limits, permitted Pacific Flyway States under final Federal 
frameworks.
    For both mourning dove and band-tailed pigeons, the Navajo Nation 
proposes seasons of September 1 through 30. The Navajo Nation also 
proposes daily bag limits of 10 and 5 for mourning dove and band-tailed 
pigeon, respectively. Possession limits would be twice the daily bag 
limits.
    In addition, the nation proposes to require tribal members and non-
members to comply with all basic Federal migratory bird hunting 
regulations in 50 CFR Part 20 pertaining to shooting hours and manner 
of taking. In addition, each waterfowl hunter 16 years of age or over 
must carry on his/her person a valid Migratory Bird Hunting and 
Conservation Stamp (Duck Stamp) signed in ink across the face. Special 
regulations established by the Navajo Nation also apply on the 
reservation.
    The Service proposes to approve the Navajo Nation request for these 
special regulations for the 1996-97 migratory bird hunting seasons.

(l) Oneida Tribe of Indians of Wisconsin, Oneida, Wisconsin (Tribal 
Members Only)

    Since 1991-92, the Oneida Tribe of Indians of Wisconsin and the 
Service have cooperated to establish uniform regulations for migratory 
bird hunting by tribal and non-tribal hunters within the original 
Oneida Reservation boundaries. Since 1985, the Oneida Tribe's 
Conservation Department has enforced their own hunting regulations 
within those original reservation limits. The Oneida Tribe also has a 
good working relationship with the State of Wisconsin and the majority 
of the seasons and limits are the same for the tribe and Wisconsin.
    In a June 3, 1996, letter to the Service, the tribe proposed 
special migratory bird hunting regulations. For ducks, geese, and 
woodcock, the tribe described the general ``outside dates'' as being 
September 1 through November 30, 1996, inclusive.
    The tribe recommends a season quota of 150 Canada geese. Canada 
goose bag limits would be 2 tribally tagged geese per day. The tribe 
will reissue 2 tags when 2 birds are registered. The possession limit 
for Canada geese is 4. If the quota is attained before the season 
concludes, the tribe will recommend closing the season early.
    For ducks, the tribe proposes a daily bag limit of 5 birds, which 
could include no more than 3 mallards, 1 hen mallard, 4 wood ducks, 1 
canvasback, 1 redhead, 2 pintails, and 1 hooded merganser.
    For woodcock, the tribe proposes a daily bag and possession limit 
of 6 and 12, respectively.
    The tribe proposes shooting hours be one-half hour before sunrise 
to sunset. Tribal members and non-tribal members hunting on the 
Reservation or on lands under the jurisdiction of the tribe will 
observe all basic Federal migratory bird hunting regulations found in 
50 CFR, with the following exceptions. Indian hunters would be exempt 
from the purchase of the Migratory Waterfowl Hunting and Conservation 
Stamp (Duck Stamp); and shotgun capacity would not be limited to 3 
shells.
    The Service proposes to approve the request for special migratory 
bird hunting regulations for the Oneida Tribe of Indians of Wisconsin, 
provided the tribe continues to delay the opening of their duck season 
until September 15. The Oneida tribe has traditionally delayed the 
opening of their duck season to September 15 to avoid possible 
significant impacts on local nesting duck populations. The Service 
commends the tribe for these conservation efforts.

(m) Point No Point Treaty Tribes, Kingston, Washington (Tribal Members 
and Non-tribal Hunters)

    For the first time, the Service and the Point No Point Treaty 
Tribes, consisting of the Skokomish, Port Gamble Sklallam, Jamestown 
Sklallam, and Elwha Sklallam tribes, are cooperating to establish 
special regulations for migratory bird hunting. The four tribes have 
reservations located on the Olympic Peninsula in Washington. All four 
tribes have successfully administered tribal hunting regulations since 
1985 and each tribe has a comprehensive hunting ordinance.
    The tribes' May 10, 1996, proposal requests seasons for ducks, 
geese, brant, snipe, grebes, and mourning doves with the earliest 
opening date available, and the same daily bag and possession limits 
and season length allowed under final Federal frameworks for the 
Pacific Flyway and the State of Washington in 1996. For conservation, 
the tribes request a closed season on wood ducks, harlequin ducks, 
Aleutian Canada geese, cackling Canada geese, band-tailed pigeons and 
swans.
    Anticipated tribal harvest under the proposed regulations is 
approximately 300 to 350 birds for all four tribes. Harvest is 
monitored using a mail survey after the season.
    The Service proposes to approve the Point No Point Treaty Tribes 
requested 1996-97 regulations.

(n) Seminole Tribe of Florida, Big Cypress Seminole Reservation, 
Clewiston, Florida (Tribal Members and Non-tribal Hunters)

    For the first time, in the 1995-96 migratory bird seasons, the 
Seminole Tribe of Florida and the Service cooperated to establish 
regulations for the 70,000 acre Big Cypress Seminole Reservation. 
Located northwest of Miami, the Big Cypress Seminole Reservation is 
totally tribally owned and the tribe has full wildlife management 
authority.
    For the 1996-97 season, the Seminole Tribe proposes establishing a 
mourning dove season from September 22, 1996, through January 15, 1997. 
Hunting would be allowed for tribal and non-tribal members, but would 
be on Sundays only from 1:00 p.m. to sunset. Daily bag limits would be 
the same as those allowed within the Federal frameworks for the State 
of Florida. All other Federal regulations contained in 50 CFR part 20 
would apply.
    The tribe expects the harvest for the Reservation to be 6,000 
doves, and will cease hunting after the anticipated harvest has been 
reached. The tribe controls all entry to the hunt area.
    The Service proposes to approve the Seminole Tribe's requested 
1996-97 special migratory bird hunting regulations.


[[Page 42737]]



(o) Shoshone-Bannock Tribes, Fort Hall Indian Reservation, Fort Hall, 
Idaho (Non-tribal Hunters)

    Almost all of the Fort Hall Indian Reservation is tribally-owned. 
The tribes claim full wildlife management authority throughout the 
reservation, but the Idaho Fish and Game Department has disputed tribal 
jurisdiction, especially for hunting by non-tribal members on 
reservation lands owned by non-Indians. As a compromise, since 1985, 
the Service has established the same waterfowl hunting regulations on 
the reservation and in a surrounding off-reservation State zone. The 
regulations were requested by the tribes and provided for different 
season dates than in the remainder of the State. The Service agreed to 
the season dates because they seemed to provide additional protection 
to mallards and pintails. The State of Idaho concurred with the zoning 
arrangement. The Service has no objection to the State's use of this 
zone again in the 1996-97 hunting season, provided the duck and goose 
hunting season dates are the same as on the reservation.
    In a May 22, 1996, proposal for the 1996-97 hunting season, the 
Shoshone-Bannock Tribes requested a continuous duck (including 
mergansers) season with the maximum number of days and the same daily 
bag and possession limits permitted Pacific Flyway States, under final 
Federal frameworks. The tribes propose that, if the same number of 
hunting days (93) are permitted as last year, the season would have an 
opening date of October 8, 1996, and a closing date of January 8, 1997. 
Coot and snipe season dates would be the same as for ducks, with the 
same daily bag and possession limits permitted Pacific Flyway States. 
The tribes anticipate harvest will be between 2,000 and 5,000 ducks.
    The tribes also requested a continuous goose season with the 
maximum number of days and the same daily bag and possession limits 
permitted Idaho under Federal frameworks. The tribes propose that, if 
the same number of hunting days (93) are permitted as in previous 
years, the season would have an opening date of October 8, 1996, and a 
closing date of January 8, 1997. The tribes anticipate harvest will be 
between 4,000 and 6,000 geese.
    Non-tribal hunters must comply with all basic Federal migratory 
bird hunting regulations in 50 CFR Part 20, pertaining to shooting 
hours, use of steel shot, and manner of taking. Special regulations 
established by the Shoshone-Bannock Tribes also apply on the 
reservation.
    The Service notes that the requested regulations are nearly 
identical to those of last year and proposes they be approved for the 
1996-97 hunting season.

(p) Squaxin Island Tribe, Squaxin Island Reservation, Shelton, 
Washington (Tribal Members Only)

    For the first time, in the 1995-96 migratory bird seasons, the 
Squaxin Island Tribe of Washington and the Service cooperated to 
establish special tribal migratory bird hunting regulations. These 
special regulations would apply to tribal members on the Squaxin Island 
Reservation, located in western Washington near Olympia, and all lands 
within the traditional hunting grounds of the Squaxin Island Tribe.
    For the 1996-97 season, the tribe proposes establishing duck, coot, 
and snipe seasons that would run from September 15, 1996, through 
January 15, 1997. The daily bag limit for ducks would be 5 per day and 
could include only 1 canvasback. The season on harlequin ducks would be 
closed. For coots and snipe, the daily bag limit would be 25 and 8, 
respectively.
    For geese, the tribe proposes establishing a season that would run 
from September 15, 1996, through January 15, 1997. The daily bag limit 
for geese would be 4 per day and could include only 2 snow geese and 1 
dusky Canada goose. The season on Aleutian and Cackling Canada geese 
would be closed.
    For brant, the tribe proposes establishing a September 15 to 
December 31, 1996, season with a daily bag limits of 2 birds per day. 
The tribe also proposes a September 15 to December 1, 1996, season for 
band-tailed pigeons with a daily bag limit of 2 per day.
    In all cases, the possession limit would be twice the daily bag 
limit. Shooting hours would be from one-half hour before sunrise to 
one-half hour after sunset and steel shot would be required for 
migratory bird hunting. Further, the tribe requires all harvest be 
reported to their Natural Resources Office within 72 hours.
    Under the proposed regulations, the tribe estimates the harvest for 
the Reservation will be as follows: 400 ducks; 2,500 coots; 800 snipe; 
400 geese; and 200 brant. In 1995, the tribe reports that there was no 
harvest of any species. Tribal regulations are enforced by the tribe's 
Law Enforcement Department.
    The Service proposes to approve the Squaxin Island Tribe's 
requested 1996-97 special migratory bird hunting regulations.

(q) The Tulalip Tribes of Washington, Tulalip Indian Reservation, 
Marysville, Washington (Tribal Members and Non-tribal Hunters)

    The Tulalip Tribes are the successors in interest to the Snohomish, 
Snoqualmie and Skykomish tribes and other tribes and bands signatory to 
the Treaty of Point Elliott of January 22, 1855. The Tulalip Tribes' 
government is located on the Tulalip Indian Reservation at Marysville, 
Washington. The tribes or individual tribal members own all of the land 
on the reservation, and they have full wildlife management authority. 
All lands within the boundaries of the Tulalip Tribes Reservation are 
closed to non-member hunting unless opened by Tulalip Tribal 
regulations.
    In a June 19, 1996, letter, the Tulalip Tribes proposed tribal and 
non-tribal hunting regulations for the 1996-97 seasons as follows:
    For ducks and coot, the proposed season for tribal members would be 
from September 15, 1996, through February 1, 1997. In the case of non-
tribal hunters hunting on the reservation, the season would be the 
latest closing date and the longest period of time allowed for the 
State of Washington under final Pacific Flyway Federal frameworks. 
Daily bag and possession limits for Tulalip Tribal members would be 6 
and 12 ducks, respectively, except that for blue-winged teal, 
canvasback, harlequin, pintail, and wood duck, the bag and possession 
limits would be the same as those established for the State of 
Washington in accordance with final Federal frameworks. For non-tribal 
hunters, bag and possession limits would be the same as those permitted 
the State of Washington under final Federal frameworks. Non-tribal 
members should check with the Tulalip tribal authorities regarding 
additional conservation measures which may apply to specific species 
managed within the region.
    For geese, tribal members are proposed to be allowed to hunt from 
September 15, 1996, through February 1, 1997. Non-tribal hunters would 
be allowed the longest season and the latest closing date permitted for 
the State of Washington under final Federal frameworks. For tribal 
hunters, the goose daily bag and possession limits would be 6 and 12, 
respectively, except that the bag limits for brant, cackling Canada 
geese and dusky Canada geese would be those established for the Pacific 
Flyway in accordance with final Federal frameworks. For non-tribal 
hunters hunting on reservation lands,

[[Page 42738]]

the daily bag and possession limits would be those established in 
accordance with final Federal frameworks for the State of Washington. 
The Tulalip Tribes also set a maximum annual bag limit on ducks and 
geese for those tribal members who engage in subsistence hunting.
    Snipe open seasons would follow seasons proposed for ducks and coot 
detailed above. For both tribal and non-tribal hunters, snipe daily bag 
and possession limits would be 6 and 12, respectively.
    All hunters on Tulalip Tribal lands are required to adhere to 
shooting hour regulations set at one-half hour before sunrise to 
sunset, special tribal permit requirements, and a number of other 
tribal regulations enforced by the tribe. Non-tribal hunters sixteen 
years of age and older, hunting pursuant to Tulalip Tribes' Ordinance 
No. 67, must possess a valid Federal Migratory Bird Hunting and 
Conservation Stamp and a valid State of Washington Migratory Waterfowl 
Stamp. Both stamps must be validated by signing across the face.
    Although the season length requested by the Tulalip Tribes appears 
to be quite liberal, 1990-92 harvest information indicates a total take 
by tribal and non-tribal hunters under 1,000 ducks and 500 geese, 
annually. The Service proposes approval of the Tulalip Tribes request 
for the above seasons. The Service requests that harvest be monitored 
closely and regulations be reevaluated for future years if harvest 
becomes too great in relation to population numbers.

(r) White Mountain Apache Tribe, Fort Apache Indian Reservation, 
Whiteriver, Arizona (Tribal Members and Non-tribal Hunters)

    The White Mountain Apache Tribe owns all reservation lands, and the 
tribe has recognized full wildlife management authority. The White 
Mountain Apache Tribe has requested regulations that are essentially 
unchanged from those agreed to for the 1995-96 hunting year.
    The hunting zone for waterfowl continues to be restricted and is 
described as: the entire length of the Black and Salt Rivers forming 
the southern boundary of the reservation; the White River, extending 
from the Canyon Day Stockman Station to the Salt River; and all stock 
ponds located within Wildlife Management Units 4, 6 and 7. All other 
waters of the reservation would be closed to waterfowl hunting for the 
1996-97 season.
    For non-tribal hunters, the tribe proposes a continuous duck, coot, 
merganser, gallinule and moorhen hunting season, with an opening date 
of November 9, 1996, and a closing date of January 19, 1997. For tribal 
members, the tribe proposes a closing date of February 2, 1997. The 
tribe proposes a daily duck bag limit of 3, which can have no more than 
1 redhead, 2 canvasbacks, 1 pintail, and 1 hen mallard. The daily bag 
limit for mergansers is 3. The daily bag limit for coots, gallinules 
and moorhens would be 25 singly, or in the aggregate.
    For geese, the season is proposing a non-tribal hunter season from 
November 9, 1996, through January 19, 1997. For tribal members, the 
tribe is proposing a closing date of February 2, 1997. Hunting would be 
limited to Canada geese, and the daily bag limit would be 2.
    Season dates for band-tailed pigeons and mourning doves would run 
concurrently from September 6 through September 15, 1996, in Wildlife 
Management Units 7 and 10, only. Proposed daily bag limits for band-
tailed pigeons and mourning doves would be 3 and 8, respectively.
    Possession limits for the above species are twice the daily bag 
limits. Shooting hours would be from one-half hour before sunrise to 
sunset. There would be no open season for sandhill cranes, rails and 
snipe on the White Mountain Apache lands under this proposal. A number 
of special regulations apply to tribal and non-tribal hunters, which 
may be obtained from the White Mountain Apache Tribe Game and Fish 
Department.
    The Service proposes to approve the regulations requested by the 
tribe for the 1996-97 seasons.

(s) Yankton Sioux Tribe, Marty, South Dakota (Tribal Members and Non-
tribal Hunters)

    On May 30, 1996, the Yankton Sioux Tribe submitted a waterfowl 
hunting proposal for the 1996-97 season. The Yankton Sioux tribal 
waterfowl hunting season would be open to both tribal members and non-
tribal hunters. The waterfowl hunting regulations would apply to tribal 
and trust lands within the external boundaries of the reservation.
    For duck (including mergansers) and coots, the Yankton Sioux Tribe 
proposes a season starting October 19, 1996, and running for the 
maximum amount of days allowed under the final Federal frameworks. 
Daily bag and possession limits would be the same as those adopted by 
the State of South Dakota.
    For geese, the tribe has requested a dark geese (Canada geese, 
brant, white-fronts) and snow geese hunting season starting November 2, 
1996, and ending January 31, 1997. Daily bag and possession limits 
would be the same as those adopted by the State of South Dakota.
    All hunters would have to be in possession of a valid tribal 
license while hunting on Yankton Sioux trust lands. Tribal and non-
tribal hunters must comply with all basic Federal migratory bird 
hunting regulations in 50 CFR Part 20, pertaining to shooting hours and 
the manner of taking. Special regulations established by the Yankton 
Sioux Tribe also apply on the reservation.
    During the 1995-96 hunting season, the tribe reported that 34 non-
tribal hunters took 75 Canada geese, 10 snow geese, and 25 ducks. 
Tribal members harvested less than 50 geese. For the 1996-97 season, 
the tribe anticipates a harvest of less than 150 geese and 50 ducks.
    The Service concurs with the Yankton Sioux proposal for the 1996-97 
hunting season, and requests that the tribe continue monitoring and 
reporting the harvest of Canada, snow and white-fronted geese.

(t) Swinomish Indian Tribal Community, LaConner, Washington (Tribal 
Members Only)

    For the first time, the Service and the Swinomish Indian Tribal 
Community are cooperating to establish special regulations for 
migratory bird hunting. The Swinomish Indian Tribal Community is a 
federally recognized Indian tribe consisting of the Suiattle, Skagit, 
and Kikialos tribes. The Swinomish Reservation was established by the 
Point Elliott Treaty of 1855 and lies in the Puget Sound area north of 
Seattle, Washington.
    The Tribal Community proposes an off-reservation duck, merganser, 
Canada goose, brant, and coot season opening on the earliest possible 
date allowed by the final Federal frameworks for the Pacific Flyway and 
closing 30 days after the State of Washington closes. Daily bag and 
possession limits would be the same as those allowed by the State 
except that the Swinomish request an additional three birds of each 
species over that allowed by the State.
    The Community anticipates that the proposed regulations will result 
in the harvest of approximately 200 to 300 ducks, 25 to 50 Canada 
geese, 75 mergansers, 100 brant, and 50 coot. The Swinomish propose a 
tag and permit system to monitor harvest and will implement steps to 
limit harvest where conservation is needed. All tribal regulations will 
be enforced by tribal fish and game officers.

[[Page 42739]]

    On reservation, the Tribal Community proposes a hunting season for 
the above mentioned species beginning on the earliest possible opening 
date and closing March 9, 1997. The Swinomish propose to manage harvest 
by a tagging system and anticipate harvest will be similar to that 
expected off reservation.
    The Service believes the estimated harvest by the Swinomish will be 
minimal and will not adversely effect migratory bird populations. The 
Service proposes to approve the Tribal Community's proposed regulations 
for the 1996-97 season.

Public Comment

    The Service intends that adopted final rules be as responsive as 
possible to all concerned interests and wants to obtain comments from 
all interested areas of the public, as well as other government 
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: the need to establish final 
rules before September 1, 1995, and the unavailability until late July 
of specific reliable data for each year's status of waterfowl. 
Therefore, the Service believes allowing comment periods past the dates 
specified is contrary to the public interest.
    No public comment was provided to the Service regarding the Notice 
of Intent published on March 22, 1996, which announced rulemaking on 
regulations for migratory bird hunting by American Indian tribal 
members.

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, Office of Migratory Bird 
Management, U.S. Fish and Wildlife Service, Department of the Interior, 
ms 634--ARLSQ, 1849 C Street, NW., Washington, D.C. 20240. The public 
may inspect comments during normal business hours at the Service's 
office in Room 634, Arlington Square Building, 4401 N. Fairfax Drive, 
Arlington, VA. The Service will consider all comments received and will 
try to acknowledge received comments, but may not provide an individual 
response to each commenter.

NEPA Consideration

    Pursuant to the requirements of section 102(2)(C) of the National 
Environmental Policy Act of 1969 (42 U.S.C. 4332(C)), the ``Final 
Environmental Statement for the Issuance of Annual Regulations 
Permitting the Sport Hunting of Migratory Birds (FES-75-74)'' was filed 
with the Council on Environmental Quality on June 6, 1975, and notice 
of availability was published in the Federal Register on June 13, 1975, 
(40 FR 25241). A supplement to the final environmental statement, the 
``Final Supplemental Environmental Impact Statement: Issuance of Annual 
Regulations Permitting the Sport Hunting of Migratory Birds (SEIS 88-
14)'' was filed on June 9, 1988, and notice of availability was 
published in the Federal Register on June 16, 1988 (53 FR 22582), and 
June 17, 1988 (53 FR 22727). Copies of these documents are available 
from the Service at the address indicated under the caption ADDRESSES. 
In addition, an August 1985 environmental assessment titled 
``Guidelines for Migratory Bird Hunting Regulations on Federal Indian 
Reservations and Ceded Lands'' is available from the Service.

Endangered Species Act Considerations

    Section 7 of the Endangered Species Act, as amended (16 U.S.C. 
1531-1543; 87 Stat. 884), provides that, ``The Secretary shall review 
other programs administered by him and utilize such programs in 
furtherance of the purposes of this Act'' (and) shall ``insure that any 
action authorized, funded or carried out ... is not likely to 
jeopardize the continued existence of any endangered species or 
threatened species or result in the destruction or adverse modification 
of [critical] habitat...'' Consequently, the Service has initiated 
Section 7 consultation under the Endangered Species Act for the 
proposed migratory bird hunting seasons including those which occur on 
Federally recognized Indian reservations and ceded lands.
    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 rule will reflect any modifications. The 
Service's biological opinion resulting from its Section 7 consultation 
are public documents available for public inspection in the Service's 
Division of Endangered Species and Office of Migratory Bird Management, 
U.S. Fish and Wildlife Service, at the address indicated under the 
caption ADDRESSES.

Regulatory Flexibility Act, Executive Order 12866, and the 
Paperwork Reduction Act

    In the March 22 Federal Register, the Service reported measures it 
took to comply with requirements of the Regulatory Flexibility Act and 
Executive Order 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 from the Office of Migratory Bird Management. The Service is 
currently updating and expanding the 1995 Analysis.
    This rule was not subject to review by the Office of Management and 
Budget under Executive Order 12866.
    The Service has examined these proposed regulations under the 
Paperwork Reduction Act of 1995 and found no information collection 
requirements.

Unfunded Mandates

    The Service has determined and certifies in compliance with the 
requirements of the Unfunded Mandates Act, 2 U.S.C. 1502 et seq., that 
this rulemaking will not impose a cost of $100 million or more in any 
given year on local or State government or private entities.

Civil Justice Reform - Executive Order 12988

    The Department, in promulgating this proposed rule, has determined 
that these regulations meet the applicable standards provided in 
Sections 3(a) and 3(b)(2) of Executive Order 12988.

List of Subjects in 50 CFR Part 20

    Exports, Hunting, Imports, Reporting and recordkeeping 
requirements, Transportation, Wildlife.
    Based on the results of soon to be completed migratory game bird 
studies, and having due consideration for any data or views submitted 
by interested parties, this proposed rulemaking may result in the 
adoption of special hunting regulations for migratory birds beginning 
as early as September 1, 1996, on certain Federal Indian reservations, 
off-reservation trust lands, and ceded lands. Taking into account both 
reserved hunting rights and the degree to which tribes have full 
wildlife management authority, the regulations only for tribal members 
or for both tribal and non-tribal members may differ from those 
established by States in which the

[[Page 42740]]

reservations, off-reservation trust lands, and ceded lands are located. 
The regulations will specify open seasons, shooting hours, and bag and 
possession limits for rails, coot, gallinules (including moorhen), 
woodcock, common snipe, band-tailed pigeons, mourning doves, white-
winged doves, ducks (including mergansers) and geese.
    The rules that eventually will be promulgated for the 1996-97 
hunting season are authorized under the Migratory Bird Treaty Act 
(MBTA) of July 3, 1918 (40 Stat. 755; 16 U.S.C. 703 et seq.), as 
amended. The MBTA authorizes and directs the Secretary of the Interior, 
having due regard for the zones of temperature and for the 
distribution, abundance, economic value, breeding habits, and times and 
lines of flight of migratory game birds, to determine when, to what 
extent, and by what means such birds or any part, nest or egg thereof 
may be taken, hunted, captured, killed, possessed, sold, purchased, 
shipped, carried, exported or transported.

    Dated: August 12, 1996
Donald J. Barry,
Acting Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 96-20963 Filed 8-15-96; 8:45 am]
BILLING CODE 4310-55-F