[Federal Register Volume 62, Number 55 (Friday, March 21, 1997)]
[Notices]
[Pages 13703-13704]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-7149]


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DEPARTMENT OF THE INTERIOR

Availability of an Environmental Assessment

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Notice of the availability of a Final Environmental Assessment 
on development of a United States/Russia bilateral agreement for the 
conservation of a shared polar bear population; request for comments.

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SUMMARY: This Notice makes available to the public the Final 
Environmental Assessment for the Conservation of Polar Bears in the 
Chukchi/Bering seas. The Chukchi/Bering seas and a portion of the 
Eastern Siberian Seal stock of polar bears, hereafter referred to as 
the Alaska-Chukotka population, is shared between Russia and the United 
States. The U.S. Fish and Wildlife Service, the agency responsible for 
management and conservation of polar bears (Ursus maritimus) in the 
United States, proposes to develop a conservation agreement for the 
Chukchi/Bering seas stock of polar bears as part of the Service's 
natural resource stewardship responsibilities in the management and 
conservation of this international resource.
    In 1973, Canada, Denmark (on behalf of Greenland), Norway, Russia, 
and the United States signed the international Agreement on the 
Conservation of Polar Bears (1973 Agreement). Each country is obligated 
to develop conservation programs to comply with the 1973 Agreement. The 
Untied States relies largely on the Marine Mammal Protection Act to 
comply with the terms of the 1973 Agreement. Also, in 1988 a local 
Native-to-Native subsistence users agreement was developed between the 
Inupiat of the North Slope Borough in the United States and the 
Inuvialuit of the Northwest Territories, Canada, to provide further 
protection for the shared Beaufort Sea polar bear population. No such 
agreement exists for the shared Alaska-Chukotka population. Section 
113(d) of the 1994 Amendments to the Marine Mammal Protection Act 
state: ``the Secretary, acting through the Secretary of State and in 
consultation with the Marine Mammal Commission and the State of Alaska 
shall consult with the appropriate officials of the Russian Federation 
on the development and implementation of enhanced cooperative research 
and management programs for the conservation of polar bears in Alaska 
and Russia.'' The Service, in consultation with the Department of 
State, the Marine Mammal Commission, and the State of Alaska proposes 
to enter into a government-to-government bilateral conservation 
agreement with the Russian Federation. As a companion action the 
Natives from Alaska and Chukotka, Russia, plan to enter into a Native-
to-Native implementation agreement for the Alaska-Chukotka population.
    The Final EA describes three alternatives for entering into

[[Page 13704]]

conservation agreements. The purpose of the agreements is to unify 
management regimes, regulate take, enhance conservation of polar bears 
and their habitat, and provide for non-consumptive uses such as eco-
tourism, as well as consumptive uses.
    The selected alternative (Alternative 3) of the Final EA describes 
a bilateral management scenario where a governmental-to-government 
agreement establishes the guiding framework and ultimate oversight role 
for an Alaska-Chukotka Native-to-Native agreement. A harvest system 
would be established by an international joint commission composed of 
one Federal and one Native representative from each country. Harvest 
levels would be binding. Joint research and managmenet, population and 
harvest monitoring, enforcement, habitat conservation, and conservation 
education would be the primary elements of the agreement. Alternative 3 
is the preferred alternative because it provides the basis for a 
comprehensive and coordinated conservation program. The agreement would 
provide guidance for Russian and American governments and Native 
entities to manage the shared population stock and it would support 
Russian efforts to curb threats to polar bears associated with illegal 
unquantified hunting and lack of enforcement. A government-to-
government bilateral agreement would also ensure closer coordination 
and involvement in management decisions by the primary users, namely 
the Native people of Alaska and Chukotka.
    In response to comments and testimony received from the public, the 
U.S. Fish and Wildlife Service has revised the draft EA, and now issues 
the Final EA for the proposed action. The comment period on the draft 
EA was open for 60 days form July 19, 1996, to September 17, 1996. 
During this period the Service received written comments from seven 
organizations, and one individual. In addition, public hearings were 
conducted in Anchorage, Alaska, on August 14, 1996, and in Washington, 
D.C., on August 21, 1996. Transcripts of the proceedings from the 
public hearings are on file at the U.S. Fish and Wildlife Service 
Alaska Regional Office. The Service also conducted community meetings 
in Wales, Shishmaref, Gambell, Savoonga, Barrow, and Wainwright during 
the period of August 26 to September 6, 1996. Additionally, the Service 
received comments from three governmental organizations at the 
conclusion of the comment period. Copies of all written comments are on 
file at the U.S. Fish and Wildlife Service Regional Office.
    Overall many of the public comments endorsed the need for a 
bilateral treaty between the U.S. and Russia. There were no comments 
supporting Alternative 1, the status quo, and several which opposed 
it's continuation. Generally public support for a coordinated U.S./
Russia bilateral agreement was contingent upon the Service, and 
ultimately the agreement, addressing a number of issues. The Service 
has evaluated these issues and provides a description of them with a 
corresponding response in Section VI of the Final EA. Public comments 
that provided clarity have been incorporated into the text of the Final 
EA.
    The Service requests interested persons to submit comments, 
information, and suggestions concerning these actions. The Final EA 
will be available during a 30-day comment period which ends on April 
21, 1997. Copies of the Final EA have been sent to individuals or 
organizations which commented or attended meetings to entertain comment 
on the draft EA. Copies are available upon request at the U.S. Fish and 
Wildlife Service, Marine Mammals Management Office, 1011 East Tudor 
Road, Anchorage, Alaska 99503.

DATES: Written comments on the Environmental Assessment should be 
received on or before April 21, 1997.

ADDRESSES: Written comments should be submitted to: Supervisor, Marine 
Mammals Management, U.S. Fish and Wildlife Service, 1011 East Tudor 
Road, Anchorage, Alaska 99503. Comments may also be hand delivered to 
the same address or sent by FAX (907) 786-3816.
    Comments and materials received in response to this action will be 
available for public inspection at this address during normal working 
hours of 8:00 a.m. to 4:30 p.m., Monday through Friday.

FOR FURTHER INFORMATION CONTACT: Scott Schliebe at the U.S Fish and 
Wildlife Service, Marine Mammals Management, 1011 East Tudor Road, 
Anchorage, Alaska 99503, (800) 362-5148 or (907) 786-3812.

SUPPLEMENTARY INFORMATION:

Background

    Discussions regarding development of a unified management approach 
between Russia and the United States were initiated in Sochi, Russia in 
October 1988, at the IUCN Polar Bear Specialists Group Meeting. Further 
talks occurred in May 1990, and correspondence supporting the 
development of a bilateral agreement followed. Between 1992 and 1995, 
protocols of agreement were developed between the natural resource 
agencies of the respective countries and the Native users of Alaska and 
Chukotka. During this period numerous discussions between the Service 
and Native representatives occurred and general consensus was reached 
to develop a government-to-government conservation agreement and a 
companion Native-to-Native agreement. These agreements would be 
consistent with the terms of the 1973 Agreement and include the 
principles of population sustainability, support for research and the 
collection of biological information and local knowledge, habitat 
conservation, and conservation education. In April 1994, the ``Protocol 
of Intentions between the Indigenous Peoples of Chukotka and Alaska on 
the Conservation, Protection, Management, and Study of the Bering and 
Chukchi Sea Shared Polar Bear Population'' was signed. In the United 
States a working group consisting of representatives of the Service, 
Department of State, Department of the Interior, the Marine Mammal 
Commission, Alaska Department of Fish and Game, North Slope Borough, 
Alaska Nanuuq Commission, and the Audubon Society has met several times 
to discuss the principles for a conservation agreement. The need for 
public input and review led to the development of the draft EA in June 
1996. Responses to comments received during the 60 day comment period 
ending September 17, 1996 were either incorporated into the text or 
included in Section VI. The Service will consider submitting a request 
to the Department of State to enter into formal negotiations with 
Russia, following publication of the Notice of Availability of the 
Final EA.

    Dated: March 12, 1997.
Robyn Thorson,
Acting Regional Director, U.S. Fish and Wildlife Service.
[FR Doc. 97-7149 Filed 3-20-97; 8:45 am]
BILLING CODE 4310-55-M