[Federal Register Volume 63, Number 153 (Monday, August 10, 1998)]
[Notices]
[Pages 42639-42642]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-21368]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service


Development of Policy for the Use of Permits as Conservation 
Tools; Request for Public Comment

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Scoping notice.

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SUMMARY: The Fish and Wildlife Service is responsible for the 
implementation of a number of wildlife laws and treaties, including the 
Convention on International Trade in Endangered Species of Wild Fauna 
and Flora (CITES), Migratory Bird Treaty Act (MBTA), Lacey Act, Bald 
and Golden Eagle Protection Act (BGEPA), Wild Bird Conservation Act 
(WBCA), Endangered Species Act (ESA), and Marine Mammal Protection Act 
(MMPA). Each of these laws and treaties provides for permits to be 
issued for otherwise prohibited activities under specific 
circumstances. We are reviewing our current permitting programs and 
solicit information and comments from all interested parties on the 
development of a policy that would approach permits as a conservation 
tool and provide a more efficient permit process that is consistently 
implemented Service-wide, with a focus on scientific research and 
scientific and conservation institutions that meet certain standards. 
We will publish any draft policy developed as a result of this review 
in the Federal Register for public review and comment.

DATES: Send public comments on this notice by September 24, 1998. We 
will consider any comments in developing a policy.

ADDRESSES: Send comments to the Chief, Office of Management Authority, 
U.S. Fish and Wildlife Service, 4401 North Fairfax Drive, Room 700, 
Arlington, Virginia 22203.

FOR FURTHER INFORMATION CONTACT: Teiko Saito, Chief, Office of 
Management Authority, at the above address, telephone (703) 358-2093, 
extension 2; fax (703) 358-2280.

SUPPLEMENTARY INFORMATION:

Background

    Permits are a means of regulating human activities that can have an 
impact on populations of protected wildlife and plants, thereby 
conserving them for future generations. Our goal in administering the 
permits programs is to foster conservation of protected species and 
their habitat, while imposing the least possible burden on the affected 
public.

Current Service Permits Programs

    All of our programs follow the General Permit Procedures in the 
regulations at 50 CFR Part 13. These regulations lay the foundation for 
the uniform processing of permit applications, including application 
procedures, general information requirements, permit administration 
(i.e., issuance, renewal, amendment, and appeal procedures), and 
general permit conditions. In addition, we have permit regulations 
specific to the implementation of each law or treaty. Any person 
intending to conduct an activity that requires a permit must apply for 
a permit in accordance with the General Permit Procedure regulations 
and the specific regulations under the laws and treaties by which the 
wildlife or plant is protected. If the species is listed under more 
than one law or treaty, we will, to the extent practical, accept one 
application and issue a single permit authorizing the activity. We 
currently have four programs that issue wildlife permits, as briefly 
summarized below.

Office of Management Authority (OMA)

    OMA issues permits for the international movement of Federally 
regulated animals and plants, interstate commerce or movement of exotic 
species, and take of marine mammals under our jurisdiction. A number of 
these permits involve multiple authorities (e.g., the import of an 
Amazonian manatee would require permitting decisions under CITES, ESA, 
and MMPA). OMA works closely with the Office of Scientific Authority, 
who makes certain required scientific determinations. OMA coordinates 
with other offices to add authorizations to use nondesignated ports and 
to import or export MBTA-listed migratory birds that are also protected 
under CITES and/or the ESA. Specifically, OMA processes applications 
under the following laws and treaties:
    Cites: CITES (50 CFR Part 23) is a treaty that protects many 
species of animals and plants to ensure that commercial demand does not 
threaten their survival in the wild. International shipments of CITES-
listed specimens, including captive-born wildlife, artificially 
propagated plants, and pre-Convention and scientific exchange 
specimens, must be accompanied by CITES documentation. The Division of 
Law Enforcement also issues CITES permits for specific categories of 
wildlife as outlined in the following section on Law Enforcement.
    Lacey Act: The injurious wildlife regulations (50 CFR Part 16) were 
promulgated under the Lacey Act to help prevent accidental or 
intentional introduction to the United States and its territories of 
any exotic species deemed injurious or potentially injurious to native 
species and their habitats, to the health and welfare of human beings, 
and to the interest of forestry, agriculture, and horticulture. OMA 
issues permits for import, transport, and acquisition of listed exotic 
species for zoological, educational, medical, or scientific purposes.
    WBCA: Congress enacted the WBCA (implemented by regulations 
codified at 50 CFR Part 15) to ensure that exotic bird species are not 
harmed by international trade and to encourage wild bird conservation 
programs in countries of origin. OMA issues import permits for 
scientific research, zoological breeding or display, cooperative 
breeding when part of an approved program, and personal pet purposes. 
The WBCA also provides for the import of species that are placed on a 
list approved by us based on certain criteria or from an approved 
foreign captive-breeding facility or scientifically based management 
plan for the species.
    ESA: The ESA (implemented by regulations codified at 50 CFR Part 
17) helps prevent the extinction of endangered and threatened animals 
and plants by providing measures to protect those species and their 
habitats. OMA issues permits for all regulated activities that involve 
foreign species and for import, export, or foreign commerce that 
involves native species. Endangered species staff in the Service's 
Regional Offices issue permits for other activities affecting native 
species as outlined

[[Page 42640]]

below. We issue endangered species permits for scientific research and 
enhancement of propagation or survival of species and threatened 
species permits for these same activities as well as for zoological, 
horticultural, or botanical exhibition, educational purposes, and 
special purposes consistent with the purposes and policy of the ESA.
    MMPA: The purposes of the MMPA (implemented by regulations codified 
at 50 CFR Part 18) are to maintain marine mammal populations at, or 
return them to, optimum sustainable population levels and to maintain 
the ecosystems upon which these species depend. We have jurisdiction 
for polar bears, sea otters, walrus, dugongs, marine otters, and 
manatees. OMA issues permits for the take and import of marine mammals 
for scientific research, public display, or enhancing the survival or 
recovery of a species or stock; take of marine mammals in the course of 
education or commercial photography; and the import of personal sport-
hunted trophies of polar bears taken in Canada. Permits are also 
available for the permanent placement of beached and stranded marine 
mammals that are determined to be non-releasable. Permission can be 
granted for scientific research under a General Authorization.

Division of Law Enforcement

    The Law Enforcement Offices (LE) in each of the seven Regional 
Offices of the Service issue Import/Export licenses and Designated Port 
Exception Permits. Under the authority of the ESA, any person who 
engages in business as an importer or exporter of wildlife must acquire 
an Import/Export License, with a few exceptions (see applicable 
regulations at 50 CFR Part 14). These regulations also require that 
wildlife be imported into or exported from the United States at a 
designated port or at a nondesignated port only under certain 
circumstances. Currently, we have designated 13 customs ports of entry 
for wildlife shipments. LE issues Designated Port Exception Permits for 
scientific purposes, to minimize deterioration or loss, or to alleviate 
undue economic hardship.
    LE staff also issue two categories of CITES permits at certain 
regional offices and designated ports across the Nation. Such permits 
authorize the re-export of specimens of CITES Appendix II and III 
wildlife and the export of tagged skins for the following native 
species that have approved State management programs: American 
alligator, Alaskan brown bear, Alaskan gray wolf, bobcat, lynx, and 
river otter.

Division of Endangered Species

    The Regional Endangered Species Offices (TE) issue permits for 
recovery actions, incidental take, and interstate commerce of native 
endangered and threatened species listed under the ESA and coordinate 
with our other offices when appropriate to address other applicable 
statutes.
    Recovery Permits are issued for a number of activities described 
previously (e.g., scientific research, enhancement of propagation or 
survival) when the proposed activity will benefit species conservation. 
They are used as conservation tools to aid in conducting recovery 
actions and are generally coordinated with species recovery plans or 
outlines. Interstate Commerce Permits allow transport and sale of 
listed species across State lines as part of recovery actions. For 
example, this activity would be allowed as part of breeding programs 
enhancing the survival or propagation of a species.
    The Service published in the Federal Register a proposed rule for 
Enhancement of Survival Permits on June 12, 1997. These permits are 
part of voluntary cooperative programs, which includes Safe Harbor and 
Candidate Conservation Agreements with Assurances developed by us for 
the proactive management of non-Federal lands for the benefit of 
species. We provide participating non-Federal property owners with 
technical assistance in the development of these Agreements. Under Safe 
Harbor Agreements, if the agreement provides a net conservation benefit 
to the covered listed species and the property owner meets all the 
terms of the Agreement, TE staff will authorize the incidental taking 
of the covered listed species that enables the property owner to return 
the enrolled property back to agreed upon baseline conditions. Under 
Candidate Conservation Agreements, property owners voluntarily 
undertake conservation measures to conserve species that are proposed 
for listing, candidates for listing, or species that are likely to 
become candidates or proposed in the near future.
    Incidental Take Permits allow for the incidental take of listed, 
proposed, and candidate species in the course of otherwise lawful, non-
Federal actions (e.g., private land development). In order for a permit 
to be issued, the ESA requires the development of a Habitat 
Conservation Plan that details anticipated incidental take, describes 
the proposed activities that will conserve listed species, and outlines 
how the effects on a listed species of the authorized project will be 
minimized and mitigated. We use the HCP process to allow economic 
development by private interests to proceed while promoting the 
conservation of species and their ecosystems.

Office of Migratory Bird Management

    The Migratory Bird Management Program (MB) issues permits at the 
regional level for the take and possession of migratory birds and 
eagles, and for the international movement of migratory birds. MB staff 
issue these permits under the MBTA (50 CFR Part 21) and the BGEPA (50 
CFR Part 22), which were passed to protect migratory bird populations 
by prohibiting the take of birds, nests, and eggs, unless authorized by 
regulation. Other offices in consultation with this program add the 
MBTA authorization to permits issued for activities with migratory bird 
species listed under CITES and/or the ESA.
    MB issues permits under the MBTA for a variety of purposes. Permits 
that authorize the direct take of birds from the wild include special 
purpose, depredation, scientific collecting, falconry, and raptor 
propagation. Bird banding permits, which also authorize the direct take 
of migratory birds for temporary banding purposes, are issued by the 
Bird Banding Laboratory, U.S. Geological Survey. Other permits issued 
by the regional migratory bird programs (e.g., taxidermy, waterfowl 
sale and disposal, and import or export) authorize only the acquisition 
or disposition of previously acquired, wild or captive-bred migratory 
birds.
    Under the BGEPA, MB issues permits for similar, although fewer, 
purposes. Permits issued under this Act can authorize the direct take 
of eagles and nests from the wild for scientific and education 
purposes, Indian religious purposes, and depredation. In addition, 
permits can authorize the possession and transportation of golden 
eagles for falconry purposes.

Permit Concerns

    Recently, we established a Permits Work Group consisting of Service 
staff under the direction of the Assistant Director for International 
Affairs and including Service and Department of Interior staff to 
review concerns about our permitting programs raised over the past 
several years by scientific and conservation organizations and to make 
recommendations on how to address the concerns. The concerns centered 
on the need for a better approach to programmatic permitting and the 
need to recognize scientific and conservation organizations conducting 
work with protected species as partners in resource

[[Page 42641]]

conservation. These organizations believe that our current wildlife 
permitting system serves as a disincentive to working with protected 
species, and at times even impedes scientific investigation, 
conservation, and endangered and threatened species recovery efforts. 
Specific issues raised include the apparent fragmentation of the 
current permits processes for CITES, endangered species, migratory 
birds, and other regulated taxa; slow response time and delays in 
permit issuance; regional inconsistencies in interpreting permit 
issuance criteria; the public's unfamiliarity with the multitude and 
complexity of the different permit application requirements and 
issuance criteria used by different offices and programs; and the 
perceived intimidation of permittees by permit processing and law 
enforcement personnel.

Current Ongoing Improvements

    We recognize the need to continuously improve the permit process 
and have over the past few years undertaken a number of initiatives 
designed to improve the programs and provide better customer service 
while ensuring species conservation. These initiatives are in various 
stages of development and implementation. We will be evaluating their 
effectiveness over time. They include efforts to:

Make the Process More Efficient and User Friendly

     A detailed review of permit application forms under the 
OMB approval process was completed on January 31, 1998, resulting in 
redesigned, simplified forms that are tailored, where possible, to a 
particular type of activity or species.
     Development of a new computer system, Servicewide Permit 
Issuance and Tracking System (SPITS), to be online nationwide for 
permit issuance July of this year and for species tracking by the end 
of the year, which will allow for more efficient tracking and issuance 
of permits and compilation of data on cumulative effects;
     Better access to permit information through the 
development of new fact sheets, a faxback system that allows 
application forms to be ordered using a fax machine, and the internet 
(our Homepage Web site--http://www.fws.gov).
     Increase the number of ports designated for the import and 
export of wildlife and the number of wildlife inspectors to clear 
shipments, including an increase in inspectors at the Canadian and 
Mexican border ports.

Ensure Consistent and Fair Implementation

     Development of permit handbooks to assist in training and 
ensure consistency in interpretation of laws and treaties and the 
processing of permit applications.
     Drafting of new policies and permit regulations.
     Sharing of data and improved coordination between offices 
within programs and between programs through SPITS.

Foster Partnerships for Wildlife Conservation

     Increase outreach through conferences and meetings.
     Use of program-based permits to expedite the issuance of 
specific import or export permits for recovery activities.
     Lessening of import and export requirements for accredited 
scientific institutions by eliminating the requirement to obtain an 
Import/Export License and allowing the use of U.S. Customs ports and 
international mail for shipment of most scientific specimens.

Focus on Risk Management and Conservation

     Development of SPITS to track and analyze cumulative 
wildlife and plant data for species management.
     Shifting of law enforcement wildlife inspectors to ports 
with high numbers of shipments.

New Policy Development

    Recognizing the need to make additional improvements, the Permits 
Work Group has recommended the development of a policy that 
acknowledges permits as a conservation tool and seeks to provide a more 
efficient permit process that is consistently implemented Service-wide, 
with a focus on scientific research and conservation activities by 
institutions that meet certain standards. We see this as an opportunity 
to continue to develop new approaches to permitting that foster 
partnerships and provide incentives for greater involvement by 
cooperating institutions in the conservation of protected wildlife. Any 
new approach must incorporate conservation risk management to ensure 
that our limited resources are directed toward those species considered 
to be at the greatest conservation risk and that can benefit from our 
enhanced attention. Among the approaches which we may consider, where 
consistent with all of the laws and treaties discussed above, are:
     Development of standardized criteria for scientific and 
conservation institutions which seek to become our cooperators, 
focussing on evaluation of their scientific and conservation expertise 
and their past history of successfully implementing activities under 
previous permits;
     Development of standardized permit conditions for each 
category of activity and species or related group of species to be 
covered by permits;
     Pre-approval of cooperating institutions to receive 
permits from our designated issuing offices on a streamlined basis 
under all authorities for which they qualify to carry out approved 
conservation activities; and/or
     Issuance of general permits to cooperating institutions 
which would cover all appropriate authorities and conservation 
activities for which they qualify.
    Any of these new approaches we select for further consideration 
would complement the ongoing initiatives discussed previously in this 
notice, and we would implement it using the new capability for 
standardization and efficiency of permits issuance provided by the 
Servicewide Permits Issuance and Tracking System (SPITS).

Public Comments Solicited

    We intend to complete the review and development of any necessary 
new policy as quickly as possible. We invite interested organizations 
and the public to comment on the need for a policy for wildlife permits 
as a conservation tool and to suggest new approaches to permitting that 
could make the process more efficient and user friendly; ensure 
consistent and fair implementation; foster partnerships for wildlife 
conservation; and focus on risk management and conservation of 
protected animals and plants. Any suggested new approach needs to be 
consistent with our basic statutory responsibilities for the 
conservation of wildlife and plants; balance the benefits to the user 
with the risks of potentially harmful activities affecting protected 
species; and be capable of being applied in a consistent and fair 
manner to all affected persons.

Required Determinations

    This notice is merely a scoping document seeking public input on 
the development of a policy that would approach permits as a 
conservation tool and provide a more efficient permit process. It 
complies with all applicable administrative requirements, and is not a 
significant regulatory action subject to the Office of Management and 
Budget review under Executive Order 12866.

    Authority: The authority for this action is the Convention on 
International Trade in Endangered Species of Wild Fauna and Flora

[[Page 42642]]

(27 U.S.T. 1087); Migratory Bird Treaty Act (16 U.S.C. 703-712); 
Lacey Act (18 U.S.C. 42); Bald and Golden Eagle Protection Act (16 
U.S.C. 668a); Wild Bird Conservation Act (16 U.S.C. 4901-4916); 
Marine Mammal Protection Act (16 U.S.C. 1361 et seq.); and 
Endangered Species Act of 1973, as amended (16 U.S.C. 1531 et seq.).

    Dated: July 31, 1998.
Jamie Rapport Clark,
Director.
[FR Doc. 98-21368 Filed 8-7-98; 8:45 am]
BILLING CODE 4310-55-P