[Federal Register Volume 66, Number 14 (Monday, January 22, 2001)]
[Rules and Regulations]
[Pages 7260-7268]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-1944]



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Part XVII





Department of the Interior





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National Park Service



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36 CFR Part 7



Special Regulations, Areas of the National Park System; Final Rule

  Federal Register / Vol. 66, No. 14 / Monday, January 22, 2001 / Rules 
and Regulations  

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DEPARTMENT OF THE INTERIOR

National Park Service

36 CFR Part 7

RIN 1024-AC82


Special Regulations, Areas of the National Park System

AGENCY: National Park Service, DOI.

ACTION: Final Rule.

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SUMMARY: The National Park Service (NPS) is phasing out snowmobile use 
in Yellowstone National Park (Yellowstone), the John D. Rockefeller, 
Jr., Memorial Parkway (the Parkway), and, with some exceptions, in 
Grand Teton National Park (Grand Teton), and snowplane use in Grand 
Teton. This implements portions of an approved Winter Use Management 
Plan for the parks, to come into compliance with the legal requirements 
that apply to snowmobile use in national parks.

DATES: This rule becomes effective February 21, 2001.

FOR FURTHER INFORMATION CONTACT: Kym Hall, Regulations Program Manager, 
National Park Service, 1849 C Street, NW., Room 7413, Washington, DC 
20240. Telephone: (202) 208-4206. Fax: (202) 208-6756. Email: 
[email protected].

SUPPLEMENTARY INFORMATION: The NPS (we) published the proposed rule on 
December 18, 2000. Background information on the rule is in that 
Federal Register notice (65 FR 79024).

Changes to Proposed Rule

    We have made one set of substantive changes to the rule as 
originally proposed. A section of Public Law 106-554 (enacted after our 
proposal) provides that, prior to July 31, 2001, no new rules may be 
promulgated to reduce during the winter seasons of 2000-2001 or 2001-
2002 snowmobile use in any units of the national park system below 
current use patterns. The rule does not include any such restrictions 
for the winter of 2000-2001. For the winter of 2001-2002, the proposed 
rule included daily limits on snowmobile use of all three parks at 
historic levels, to prevent increases in use; restrictions on nighttime 
snowmobile operation; and repeal of the current designation of seven 
routes in Yellowstone for snowmobile use. To avoid any questions about 
consistency with the recent statute, we have deleted these elements 
from the final rule. The statute explicitly allows emergency 
restrictions on snowmobile use during the winters of 2000-2001 and 
2001-2002, and if warranted we will take action to protect park 
resources and values, or public or employee health or safety.
    The remainder of this final rule is substantively identical to what 
was proposed.

Analysis of Public Comments

    We provided 30 days for public comment on our proposal, through 
January 17, 2001. By midnight of that day, we had received 5,273 
comments in the form of letters, postcards and e-mails. We analyzed 
comments as we received them, and analyzed every comment we received. 
Nearly all raised the same issues as earlier comments on the draft 
environmental impact statement (DEIS) and final environmental impact 
statement (FEIS) on the winter use plan for the parks. A few did raise 
new issues. Of the comments, 817 supported continued snowmobile use in 
the parks, 61 opposed both snowmobile and snowcoach use, and 4,395 
supported the rule. Following is a summary of the comments we received 
on the proposed rule and our responses to them.
    Issue 1--Most comments supported ending snowmobile use in the parks 
to protect air and water quality, restore natural quiet, reduce 
wildlife disturbances, and restore the tranquillity and serenity of the 
winter experience of the parks.
    NPS Response--These comments support our action.
    Issue 2--Some people said that snowmobiles do not affect the parks, 
that this rule unfairly discriminates against one particular use of the 
parks, or that we have no basis for ending a use that we have long 
allowed under the same legal requirements we now cite as reasons for 
ending it.
    NPS Response--The Federal Register notice on the proposed rule 
summarizes the legal requirements that apply to snowmobile use in parks 
(``the applicable legal requirements''). In these parks, we have 
allowed snowmobile use to continue and expand, despite those 
requirements. (By contrast, in Glacier National Park, we halted 
snowmobile use soon after Executive Order 11644 was issued.) Having now 
studied the impacts of snowmobile use in these parks, we acknowledge 
that we have not complied with the applicable legal requirements. This 
rule will bring us into compliance.
    Issue 3--Some comments said we should not take away visitors' 
personal freedom to ride snowmobiles where and when they want to, 
leaving as their only option travel in snowcoaches driven by somebody 
else.
    NPS Response--We understand that many people enjoy the freedom 
snowmobiles provide. However, we must comply with the applicable legal 
requirements. Snowmobilers will continue to be able to ride snowmobiles 
where and when they want to on other lands, including nearby national 
forest lands that are open to snowmobile use. In other parks, when 
necessary to protect their resources and values, we have prohibited 
travel by individual motor vehicles, providing mass transit instead. 
This has been widely acceptable to visitors to those parks. We believe 
this change will be acceptable to visitors to these parks, too.
    Issue 4--Many comments opposed eliminating most snowmobile use in 
the parks because of the adverse economic impacts they expect on 
businesses and gateway communities.
    NPS Response--We believe this rule is the best way to comply with 
the applicable legal requirements while reducing possible adverse 
economic impacts. See the ``Regulatory Flexibility Act'' section, 
below.
    Issue 5--Numerous comments urged us to require the use of cleaner 
and quieter snowmobiles rather than prohibiting the use of all 
snowmobiles.
    NPS Response--Some newer snowmobiles have promise for reducing some 
impacts, but not enough for the use of large numbers of those machines 
to be consistent with the applicable legal requirements. Cleaner, 
quieter snowmobiles would do little, if anything, to reduce the most 
serious impacts on wildlife, which are caused more by inappropriate use 
of snowmobiles than by the machines themselves. Quieter snowmobiles are 
still noisy, and are audible at a greater distance than 4-track 
conversion snowcoaches. Since snowcoaches carry many passengers and 
snowmobiles only one or two, snowcoaches can accommodate the same level 
of overall winter visitation with far fewer noise impacts on the 
natural soundscape and other visitors than even quieter snowmobiles. 
Also, the ultimate extent to which some new snowmobiles may produce 
less air pollution over their useful life is unclear in the absence of 
emission standards, testing, and certification. Under the Clean Air 
Act, the EPA has the authority to establish emission standards for 
snowmobiles, and it is at least two or three years away from setting 
any such standards, which then would not take effect for additional 
years. The need for us to comply with the applicable legal requirements 
does not allow for such a delay.
    Issue 6--Some comments said that we are mandated by law to conserve 
park

[[Page 7261]]

resources and values, and so we should not allow as much, or any, 
snowmobile and snowcoach use as this rule allows.
    NPS Response--Our statutory mandate includes providing for 
enjoyment of the parks. When, as here, we can allow motorized winter 
access while also complying with legal requirements and our management 
objectives, we believe it appropriate to do so.
    Issue 7--Some comments claimed this rule is inappropriately 
burdening small businesses, or even unlawfully doing so in violation of 
the Regulatory Flexibility Act.
    NPS Response--See the ``Regulatory Flexibility Act'' section, 
below. That law requires us to consider how to fulfill our objectives 
with fewer impacts on small entities. After considering a range of 
alternatives, we believe this rule is the alternative that complies 
with the applicable legal requirements and our management objectives 
with the fewest impacts on small businesses.
    Issue 8--Some comments said we are relying too much on snowcoaches, 
expressing concerns about their reliability, the comfort of passengers, 
their availability for purchase in sufficient numbers and at prices 
affordable for businesses, and their lack of speed.
    NPS Response--Snowcoaches have been used successfully in national 
parks for over 45 years. We believe their mechanical reliability is 
satisfactory. They are fast enough for Yellowstone destinations to be 
within reach for a trip of reasonable duration. They are comfortable 
enough--for most passengers, more comfortable than snowmobiles. 
Businesses currently operate 45 snowcoaches in the parks, indicating 
their viability as a business option. Additional businesses have 
already expressed interest in new economic opportunities resulting from 
this rule, from producing them for sale to operating them in the parks.
    Issue 9--Some people urged us to end snowmobile use in the parks 
more quickly, to comply with the applicable legal requirements sooner 
than in four years.
    NPS Response--Under our Management Policies 2000, if there is an 
impairment of park resources and values from ongoing activities, as 
here, we must eliminate it as soon as reasonably possible. If the 
impairment is not from permanent impacts, as here, in determining how 
soon that is, we may make due allowance for avoiding unacceptable 
social, economic, or environmental effects of the action eliminating 
the impairment. We believe that eliminating this impairment sooner than 
in four years would cause unacceptable effects on the communities and 
small businesses supporting and relying on snowmobile use in the parks. 
We believe the same principles should govern the timing of our coming 
into compliance with the other applicable legal requirements. Also, as 
indicated above, Congress has limited our authority to reduce 
snowmobile use in the 2000-2001 and 2001-2002 winter seasons. We will 
take other steps in the interim, such as increasing ranger efforts to 
keep inappropriate snowmobile use from disturbing wildlife, to mitigate 
the impacts of snowmobile use to the extent reasonably possible.
    Issue 10--Some commenters stated that the public comment period on 
this rule was too short, particularly in light of the complexities of 
the issue.
    NPS Response--This rule is based on an alternative in the DEIS and 
FEIS, on which we had three formal comment periods, and received and 
considered more than 59,000 comments. Given that and the relative lack 
of new issues raised by this rule, we believe 30 days for comment on 
the rule is adequate.
    Issue 11--Some commenters said that this rule will drastically 
reduce winter use of the parks, contrary to the laws creating these 
parks and the national park system.
    NPS Response--We believe this rule will allow the greatest number 
of people to visit the parks in ways that are consistent with the 
applicable legal requirements.
    Issue 12--Some comments said that the NPS needs to consider the 
cost to the taxpayer of this program, along with the cost of new or 
upgraded facilities necessary to support it, and/or to develop a 
snowcoach implementation plan on such issues.
    NPS Response--NPS disagrees that significant infrastructure is 
required to implement the rule. Snowcoaches currently operate 
effectively with existing facilities. We will develop the necessary 
plans and facilities in a timely manner to implement the changes that 
will result from this rule. If the development of any of those plans or 
facilities require their own environmental assessments or other 
studies, we will conduct those assessments or studies before making 
final decisions.
    Issue 13--Some comments said we should have used more information 
supplied by the state and local governments that were cooperating 
agencies in the preparation of the EIS.

    --The role of cooperating agencies in the development of an EIS 
is to participate in the internal review process, and provide 
information and opinion to the lead agency. It is the responsibility 
of the lead agency to decide which information to use in the EIS. 
When we chose to use other information than that provided by the 
cooperating agencies, we still included the information they 
provided in the FEIS.
    Issue 14--Some commenters complained that, while we base this 
decision on the provision of the NPS Organic Act that we must leave 
parks unimpaired, we are not giving equal weight to the portion of the 
same provision that directs us to provide opportunities for enjoyment 
of the parks.
    NPS Response--The NPS Organic Act, 16 U.S.C. 1 et seq., does 
establish a mandate that we provide for enjoyment of the parks, but 
that is subject to the Act's overall limitation that we may not allow 
for the impairment of park resources and values. The overriding nature 
of the prohibition on impairment is clear from the language of the Act. 
The courts have also consistently interpreted the Act this way.
    Issue 15--Some comments suggested letting snowmobiles in the parks 
only during certain designated periods of the winter, so that 
snowmobilers during those periods and other users during other periods 
could each enjoy the experiences they prefer.
    NPS Response--Separating snowmobile and non-snowmobile visitors 
would only address the impact that snowmobile use has on other users, 
not the other adverse effects of snowmobile use, which we are also 
required to address under the applicable legal requirements.
    Issue 16--Some commenters stated that the impacts of snowmobile use 
on wildlife identified in the FEIS are minor enough that they do not 
support one of the stated reasons for this rule, which is the 
elimination of adverse impacts to wildlife from snowmobile use in these 
parks.
    NPS Response--Our general regulation on snowmobile use, 36 CFR 
2.18, prohibits any snowmobile use that disturbs wildlife. The FEIS and 
studies referred to in it document ways in which snowmobile use in the 
parks disturbs wildlife. Based on the same information, we have also 
determined that the snowmobile use occurring in Yellowstone impairs its 
resources and values, including wildlife. The impacts include, in 
particular, the effects on bison in Yellowstone's roadways of 
snowmobiles, especially from those operated inappropriately by 
inexperienced operators. Bison are frequently herded back and forth on 
the

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roadways, requiring unnatural energy expenditures during the time of 
year of greatest stress to them, from high snow, extreme cold, and food 
shortages.
    Issue 17--Some commenters said this rule will lead to increased 
snowmobile use on nearby national forest lands, which we must analyze 
before taking this action.
    NPS Response--The FEIS includes a detailed discussion of potential 
impacts on adjacent national forest lands.
    Issue 18--Some comments proposed limiting snowmobile numbers, and/
or requiring snowmobilers to travel in guided groups, instead of ending 
snowmobile use.
    NPS Response--Achieving compliance with the applicable legal 
requirements while still allowing snowmobile use would require very 
strict limits on the numbers of both snowmobiles and snowcoaches. (We 
have not done a detailed analysis of the actual limits that would be 
necessary.) As a result, that would sharply limit overall winter use of 
the parks, reducing the opportunities for public enjoyment of the parks 
and causing even greater adverse impacts on affected gateway 
communities and businesses. We chose instead to allow use of the parks 
by snowcoaches, which, because they have far fewer and less extensive 
adverse impacts than snowmobiles, can be accommodated, we now believe, 
without numerical limits.
    Issue 19--Some commenters claimed that the air quality analyses on 
which this rule is based are not adequate.
    NPS Response--We believe the data reported in the FEIS and in other 
NPS studies, particularly Air Quality Concerns Related to Snowmobile 
Usage in National Parks (NPS 2000), are adequate to support the 
conclusions on which this rule is based.
    Issue 20--Some commenters stated that this rule will restrict 
winter access to the parks by disabled persons, in violation of federal 
law.
    NPS Response--Disabled people will be able to ride in snowcoaches, 
with appropriate means of access provided, so their access will not be 
denied.
    Issue 21--Some commenters claimed that NPS is regulating only 
winter vehicles and their impacts, and ignoring similar impacts and 
impairment from vehicles in the park in the summer.
    NPS Response--Our planning effort focused on winter use activities 
in these parks, as required by the court order settling a lawsuit. 
Also, the applicable executive orders apply to snowmobile and snowcoach 
use, not other uses of the parks, and our general regulation on 
snowmobile use applies only to that use. However, when appropriate, we 
compared winter conditions and activities to those of other seasons, on 
such points as how snowmobiles and snowplanes are audible for greater 
distances than other motor vehicles, how the natural soundscapes in the 
park in winter are quieter than in other seasons, and how snowmobiles 
produce more carbon monoxide and hydrocarbon emissions in Yellowstone 
than all other motor vehicles.
    Issue 22--NPS can mitigate impacts on wildlife by providing more 
rangers as in the summer, thus making the snowmobile ban unnecessary.
    NPS Response--We will increase ranger patrols to reduce the impacts 
of snowmobile use on wildlife and the safety of visitors. We do not 
believe, however, especially within the constraints of our budgets and 
personnel limits, that increased ranger patrols can achieve compliance 
with the applicable legal requirements and our management objectives 
for the parks.
    Issue 23--Some commenters suggested that, since most snowmobiles in 
the parks use Yellowstone's West Entrance, we should limit snowmobiles 
only there, not elsewhere.
    NPS Response--Adverse impacts of snowmobile use on wildlife, air 
quality, and the enjoyment of other visitors occur throughout 
Yellowstone. Limiting snowmobiles only at the West Entrance would not 
address all impacts throughout the park, and might merely shift that 
use and its impacts to other entrances.
    Issue 24--The visitor use (snowmobile) numbers provided in the 
draft rule are incorrect and should be recalculated.
    NPS Response--We have deleted the proposed use limits for the 
winter of 2001-2002. We believe the use limits for the winter of 2002-
2003 are correctly calculated, on the grounds stated in the notice on 
the proposed rule.
    Issue 25--Some commenters said that the restriction Congress 
adopted in December on new NPS rules restricting snowmobile prevents us 
from adopting this rule.
    NPS Response--As explained above, we removed from the proposed rule 
all of its elements that arguably could be considered to be 
inconsistent with the statutory provision.
    Issue 26--Some commenters recommended that we end the grooming of 
roads in Yellowstone (whether for snowmobiles or snowcoaches), because 
groomed roads promote the migration of bison out of the park in the 
winter, onto lands where they may be killed out of concern over the 
possible transmission of brucellosis to livestock.
    NPS Response--As documented in the FEIS, bison use groomed roads 
within the park, but there is no conclusive evidence on the extent to 
which groomed roads lead to migration of bison out of the park. The NPS 
and other involved federal agencies have recently adopted a new bison 
management plan that should reduce the killing of bison that have left 
the park. The plan does not rely on ending the winter grooming of 
Yellowstone roads.
    Issue 27--Some commenters stated that we should allow a longer 
phase-in period before eliminating snowmobile use, to reduce the 
adverse economic impacts of that action.
    NPS Response--As stated in the response to issue 10, our 
interpretation of the NPS Organic Act in our Management Policies 2000 
requires us to eliminate an impairment as soon as reasonably possible. 
Because we believe it is possible to eliminate the impairment in Grand 
Teton by the winter of 2002-2003 and in Yellowstone and the Parkway by 
the winter of 2003-2004 without causing unacceptable social, economic, 
or environmental effects, we do not have the authority to delay any 
longer than that in eliminating the impairment. We believe it is 
reasonable and appropriate for the same principles to apply with 
respect to the timeline required to come into compliance with the 
applicable requirements of executive orders and NPS regulations.
    Issue 28--Some commenters noted that the FEIS appears to identify 
the same impacts on wildlife from snowcoaches and from snowmobiles, 
undercutting our reasoning for ending snowmobile use and replacing it 
with expanded snowcoach use.
    NPS Response--Snowcoaches have far less of an impact on wildlife 
than snowmobiles. First, snowcoaches, being operated by trained drivers 
under NPS-issued permits, are much less likely to be operated in a 
manner that harasses wildlife (especially bison on the roadways in 
Yellowstone) than are snowmobiles, which are often operated by people 
inexperienced with the parks in winter. Second, snowcoaches are quieter 
than snowmobiles, reducing the noise impacts on wildlife. Also, a 
single snowcoach carries many passengers, and a snowmobile only one or 
two, so the use of snowcoaches means `fewer vehicles will be operating 
in and disturbing wildlife in the parks.
    Issue 29--Some commenters stated that we failed to consider and 
respond to several issues raised in comments on the DEIS, as we are 
required to do.

[[Page 7263]]

    NPS Response--While we did consider and respond to all of the 
approximately 46,500 comments on the DEIS, we combined some comments 
and responses into general categories, as is legally permissible.
    Issue 30--Some commenters claimed that we may not allow grooming of 
road surfaces in winter or the operation of snowcoaches, since we have 
no regulations that specifically provide for those operations.
    NPS Response--We do not need to have regulations specifically 
authorizing all management activities we undertake or public uses we 
allow in parks. Both road grooming and snowcoach operations are 
allowable under general NPS authorities.
    Issue 31--Some comments suggested that we install a monorail public 
transit system that could provide access to the interior of Yellowstone 
year-round, instead of providing any other winter motorized access to 
the park.
    NPS Response--We did not analyze a monorail option, because we 
believe it would be too expensive, even if technologically feasible. It 
also would take years to complete, longer than we can wait to comply 
with the applicable legal requirements.
    Issue 32--Some commenters suggested that we should prohibit the use 
of snowmobiles and/or snowcoaches in the parks for our own 
administrative uses.
    NPS Response--It would not be feasible to completely eliminate the 
administrative use of snowmobiles and/or snowcoaches in the parks. To 
begin with, NPS employees and their families live in the interior of 
Yellowstone, in areas not open to any other motor vehicles in the 
winter. However, we are ending recreational use of snowmobiles by NPS 
employees and their families, acquiring more snowcoaches to use instead 
of snowmobiles for administrative purposes, and otherwise reducing the 
impacts of our use of snowmobiles and snowcoaches.
    Issue 33--Some people said the FEIS was not detailed enough, either 
in general or on one or more particular issues.
    NPS Response--We believe the FEIS includes adequate detail. The 
Environmental Protection Agency (EPA), which reviewed the adequacy of 
the FEIS, also found it to be satisfactory. It does summarize and 
incorporate by reference much data available elsewhere, as is 
allowable.
    Issue 34--Some comments pointed out that adoption of the rule is 
essential for the NPS to have the authority to phase in compliance with 
the applicable legal requirements, that without a rule such as this we 
would need to take immediate action to come into compliance.
    NPS Response--We believe this is correct.
    Issue 35--The Continental Divide Snowmobile Trail and the Grassy 
Lake Road should remain open to provide access to adjacent public 
lands.
    NPS Response--We believe that ending snowmobile use of these trails 
is necessary to comply with the applicable legal requirements and 
fulfill our management objectives for the park. We are allowing 
continued snowmobile use on short routes to adjacent lands open to 
snowmobile use, or to provide access to private property, when that can 
be done without violating the applicable legal requirements. Neither is 
the case for these two routes.
    Issue 36--Requiring that all visitors be accompanied by a guide is 
overstepping NPS authority and is unwarranted. Further it will have no 
beneficial impact on employment in the surrounding communities as 
stated in the proposed rule.
    NPS Response--We believe this is an important requirement to 
mitigate the impacts of snowmobile use on wildlife and the safety of 
other visitors during the last year before the use is ended.
    Issue 37--NPS should not allow roads to continue to be groomed 
because it alters the parks' wildlife population movement and dynamics, 
particularly in relation to bison.
    The FEIS is deficient because NPS failed to evaluate and analyze 
the considerable scientific evidence documenting the adverse impact of 
road grooming on park wildlife, particularly bison, and the 
inconsistency of road grooming with NPS' natural regulation mandate.
    NPS Response--As documented in the FEIS, bison use groomed roads 
within the park, but there is no conclusive evidence that groomed roads 
lead to migration of bison out of the park. The impacts of road 
grooming on all wildlife species of concern are addressed for each 
alternative in the FEIS. Available literature on this topic was 
reviewed and cited as necessary in the FEIS.
    Issue 38--The FEIS is deficient because NPS failed to properly 
consider and respond to several issues raised in comments submitted on 
the DEIS.
    NPS Response--We considered and responded to all comments on the 
DEIS. Similar comments were grouped and responded to in like fashion.
    Issue 39--The NPS failed to consider the impacts of road grooming 
on threatened and endangered species in violation of the Endangered 
Species Act.
    NPS Response--We did consider and document these impacts in the 
FEIS and in a biological assessment concurred in by the U.S. Fish and 
Wildlife Service.
    Issue 40--Some comments said we are required to ban snowmobile use, 
based on our finding of impairment, whether or not a final rule is 
published.
    NPS Response--We are required under the Organic Act to eliminate 
the impairment. We believe that the rulemaking process is the most 
appropriate process for doing so in this instance.
    Issue 41--Some comments from employees of Yellowstone National Park 
raised concerns about the health effects on them of exposure to air 
pollutants from snowmobiles and concerns about excessive numbers of 
violations by snowmobile operators of such laws as speed limits, 
creating public safety hazards.
    NPS Response--We are very concerned about the adverse health 
effects from air emissions on our employees, particularly those working 
at Yellowstone's West Entrance station. If we need to take additional 
steps to protect the health of NPS employees, we will do so. Over time, 
the rule will reduce both health and law enforcement problems.

Compliance With Other Laws

Regulatory Planning and Review

    This document is a significant rule and has been reviewed by the 
Office of Management and Budget under Executive Order 12866.
    1. This rule will not have an effect of $100 million or more on the 
economy. It will not adversely affect in a material way the economy, 
productivity, competition, jobs, the environment, public health or 
safety, or State, local, or tribal governments or communities. These 
conclusions are based on the analysis contained in the FEIS and a 
report we commissioned on the economic impact of this regulation, 
``Proposed Restrictions on Snowmobile Riding in Yellowstone and Grand 
Teton National Parks and the John D. Rockefeller Memorial Parkway'' 
(LawGibb Group, Arcadis JSA, and Research Triangle Institute, January 
2001). According to these analyses, the total effect on the economy is 
likely to be between $4.8 million and $19 million annually.
    2. This rule will not create a serious inconsistency or otherwise 
interfere with an action taken or planned by another agency. 
Implementing actions under this rule will not interfere with plans by 
other agencies or local

[[Page 7264]]

government plans, policies, or controls since this is an agency 
specific change.
    3. This rule does not alter the budgetary effects or entitlements, 
grants; user fees, or loan programs or the rights or obligations of 
their recipients. It only affects the use of over-snow machines within 
specific national parks. No grants or other forms of monetary 
supplement are involved.
    4. This rule may raise novel legal or policy issues. The issue has 
generated local as well as national interest on the subject in the 
greater Yellowstone area. We received over 63,000 public comments on 
the scope of the DEIS, the FEIS, and the rule.

Regulatory Flexibility Act

    Based on our economic analysis and supporting documents, we 
certified in our notice on the proposed rule that the rule will not 
have a significant economic effect on a substantial number of small 
entities under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). 
Nonetheless, we have now contracted for a separate and more detailed 
analysis of the economic impacts of the rule, especially on small 
entities, ``Proposed Restrictions on Snowmobile Riding in Yellowstone 
and Grand Teton National Parks and the John D. Rockefeller Memorial 
Parkway'' (LawGibb Group, Arcadis JSA, and Research Triangle Institute, 
January 2001). It estimates that the total adverse economic effect on 
businesses (mostly small businesses) will likely range from $4.8 
million to $10 million annually. Based on the FEIS and this report, we 
have determined and again certify that there will not be a significant 
economic effect on a substantial number of small entities from this 
rule. We summarize our analysis as follows:
    Statement of need and objectives of the rule--to come into 
compliance with the applicable legal requirements and to fulfill park 
management objectives, as stated in the notice on the proposed rule and 
in this notice.
    Issues raised in public comments--See the FEIS, Volume III (parts 
1, 2, and 3) and our responses in this document.
    Small entities affected--Most affected will be 70 snowmobile rental 
businesses and 11 snowcoach tour companies, which could lose between 
$4.1 million to $4.4 million annually. Most are in West Yellowstone, 
Montana, with others in other gateway communities. Hotels, restaurants, 
gas stations, and retail establishments, again mostly in West 
Yellowstone but also in other gateway communities, will be less 
affected, and could lose between $700,000 to $5.6 million annually. One 
local government, the city of West Yellowstone, will be an affected 
small entity, and could lose between $80,000 to $125,000 from reduced 
resort tax receipts. From a national perspective, these impacts do not 
constitute a significant impact to a substantial number of small 
entities.
    Reporting and recordkeeping requirements for small businesses--
There are none.
    Alternatives considered to reduce impacts--We have considered 
various alternatives, and have made various decisions, to mitigate the 
impacts of this rule on small entities. We believe this rule complies 
with the applicable legal requirements with the fewest adverse impacts 
on small entities, for several reasons.
    First, we rejected the approach, included in the preferred 
alternative in the DEIS, of plowing the road between Yellowstone's West 
Entrance and Old Faithful in the winter, keeping it open to wheeled 
vehicles, and closing it to snowmobiles and snowcoaches. This approach 
was opposed by approximately 99% of the people who commented on this 
part of the DEIS, in large part because of the adverse economic impact 
it would have on West Yellowstone and businesses there dependent on 
oversnow recreation in Yellowstone.
    Second, while it might be possible to comply with the applicable 
legal requirements while allowing some continued use of both 
snowmobiles and snowcoaches in the parks, the numbers of both 
snowmobiles and snowcoaches would have to be very strictly limited, to 
comply with the strict standards of the applicable requirements. As a 
result, this approach would end up drastically reducing the number of 
winter visitors to the parks, with a much greater adverse economic 
impact than under this rule. We did not choose this approach.
    Third, we also could have chosen to comply with the applicable 
legal requirements by allowing only snowcoaches, not also snowmobiles, 
in the parks, but limiting the number of snowcoaches allowed to lessen 
their impact. This, too, would lead to a reduction in winter visitation 
to the parks more than this rule might.
    Fourth, other approaches that we have considered that would 
continue to allow significant numbers of snowmobiles to use the parks 
would fail to comply with the applicable legal requirements. These 
include relying on air pollution emission standards established by EPA; 
establishing our own stricter noise emission limits; and restricting 
snowmobile use to more limited areas of the parks or to more limited 
times. We are not free to continue to violate those requirements just 
to avoid the possible impacts of complying with them.
    Steps taken to minimize economic impacts--We have made several 
decisions on how to implement this action to mitigate any adverse 
economic impacts, especially those on small entities. To begin with, 
the elimination of snowmobiles will be phased over four winter seasons, 
allowing significant time for affected businesses to adjust to 
providing snowcoach service instead. Next, snowcoach access to the 
parks will require a concession permit from us. Permits will be awarded 
to numerous small businesses in the surrounding communities. We have 
already authorized existing snowmobile operators to add snowcoach 
service, and authorized existing snowcoach operators to add more 
coaches. Finally, we will join with the tourism offices of the affected 
states and counties, as well as destination marketing organizations, to 
market winter visitation to the parks under the new rules. We have 
committed $100,000 in fiscal year 2001 for this purpose.

Small Business Regulatory Enforcement Fairness Act (SBREFA)

    This rule is not a major rule under 5 U.S.C. 804(2), the Small 
Business Regulatory Enforcement Fairness Act. This rule:
    A. Does not have an annual effect on the economy of $100 million or 
more. From the FEIS, estimated economic loss and employment impacts of 
implementing actions under this rule are: In the five-county, greater 
Yellowstone area, an estimated loss of $14.4 to $19.2 million; in the 
three state area surrounding the parks, a possible loss of $7.7 million 
to a possible increase of $7.0 million. Increased winter visitation 
from new visitors to the parks who have not visited them because of the 
impacts of snowmobiles could substantially offset the estimated loss 
and employment reductions from a reduction in visitation by current 
winter visitors.
    B. Will not cause a major increase in costs or prices for 
consumers, individual industries, Federal, State, or local government 
agencies, or geographic regions. The potential loss of revenue from 
snowmobile users will likely be offset by visitors using snowcoaches to 
visit the park. Additionally, the summer visitation to the region would 
continue to exist and would not likely cause local businesses to need 
to raise prices to maintain their revenues.
    C. Does not have significant adverse effects on competition, 
employment, investment, productivity, innovation, or

[[Page 7265]]

the ability of U.S.-based enterprises to compete with foreign-based 
enterprises. This rulemaking has no effect on methods of manufacturing 
or production and specifically affects the Wyoming region, not national 
or U.S. based enterprises.

Unfunded Mandates Reform Act

    This rule does not impose an unfunded mandate on State, local, or 
tribal governments or the private sector of more than $100 million per 
year. The rule does not have a significant or unique effect on State, 
local or tribal governments or the private sector. It addresses public 
use of national park lands, and imposes no requirements on other 
agencies or governments.

Takings (Executive Order 12630)

    In accordance with Executive Order 12630, the rule does not have 
significant takings implications. Private property within or adjacent 
to the parks will still be afforded the same access during winter as 
before this rule. No other property is affected.

Federalism (Executive Order 13132)

    In accordance with Executive Order 13132, the rule does not have 
sufficient federalism implications to warrant the preparation of a 
Federalism Assessment. It addresses public use of national park lands, 
and imposes no requirements on other agencies or governments.

Civil Justice Reform (Executive Order 12988)

    In accordance with Executive Order 12988, the Office of the 
Solicitor has determined that this rule does not unduly burden the 
judicial system and meets the requirements of sections 3(a) and 3(b)(2) 
of the Order.

Paperwork Reduction Act

    This regulation does not require an information collection from 10 
or more parties and a submission under the Paperwork Reduction Act is 
not required. An OMB form 83-I is not required.

National Environmental Policy Act

    This rule is a major Federal action significantly affecting the 
quality of the human environment. A Final Environmental Impact 
Statement has been completed and a Record of Decision issued which this 
rule implements in part.

Government-to-Government Relationship With Tribes

    In accordance with the President's memorandum of April 29, 1994, 
``Government to Government Relations with Native American Tribal 
Governments'' (59 FR 22951) our departmental manual, 512 DM 2, and in 
compliance with Executive Order 13175, Consultation and Coordination 
With Indian Tribal Governments, issued on November 6, 2000 (65 FR 
67249), we have evaluated potential effects on federally recognized 
Indian tribes and have determined that there are no potential effects. 
Numerous tribes in the area were consulted in the development of the 
EIS. Their major concern was to reduce the adverse effects on wildlife 
by snowmobiles. This rule does that.

Drafting Information

    The principal contributors to this rule have been Stephen C. 
Saunders, Deputy Assistant Secretary of the Interior for Fish and 
Wildlife and Parks; T. Destry Jarvis, Senior Advisor to the Assistant 
Secretary for Fish and Wildlife and Parks; Karen S. Kovacs, Senior 
Advisor to the Assistant Secretary for Fish and Wildlife and Parks; 
Molly Ross, Assistant Solicitor, Branch of National Parks, Office of 
the Solicitor; Kym A. Hall, NPS Regulations Program Manager; Sarah 
Creachbaum and Bob Rossman Outdoor Recreation Planners, Grand Teton; 
and John Sacklin, Supervisory Park Resource Planner, Yellowstone.

List of Subjects in 36 CFR Part 7

    District of Columbia, National parks, Reporting and recordkeeping 
requirements.

    We amend 36 CFR part 7 as set forth below:

PART 7--SPECIAL REGULATIONS; AREAS OF THE NATIONAL PARK SYSTEM

    1. The authority for part 7 continues to read as follows:

    Authority: 16 U.S.C. 1, 3, 9a, 460(q), 462(k); Sec. 7.96 also 
issued under D.C. Code 8-137 (1981) and D.C. Code 40-721 (1981).
    2. In Sec. 7.13, remove the heading of paragraph (l), revise 
paragraphs (l)(1) and (l)(2) introductory text, add a heading to 
paragraph (l)(2), and add paragraphs (l)(3) through (l)(14) to read as 
follows:


Sec. 7.13  Yellowstone National Park.

* * * * *
    (l)(1) May I operate a snowmobile in Yellowstone National Park? You 
may operate a snowmobile in Yellowstone National Park in compliance 
with the public use limits and operating conditions established in this 
section. Effective with the end of the winter use season of 2003-2004, 
snowmobile use in Yellowstone National Park is prohibited, except for 
essential administrative use and in emergency situations as determined 
by the Superintendent.
    (2) What routes are designated for snowmobile use in the park 
through the winter season of 2001-2002? Effective until the end of the 
winter use season of 2001-2002, snowmobile use shall be limited to the 
unplowed roadway, which is defined as that portion of the roadway 
located between the road shoulders designated by snow poles or poles, 
ropes, and signs erected by the superintendent to regulate snowmobile 
activity, of the following routes for snowmobile use:
* * * * *
    (3) What is a winter use season? A winter use season is that 
portion of the winter months that begins each year in approximately 
late November, through the following year ending in approximately the 
middle of March. Specific dates are dependent on weather conditions and 
the availability of NPS facilities and resources and may be adjusted at 
the discretion of the Superintendent. Appropriate notice will be given 
to the public of determined start and ending dates each season.
    (4) When snowmobile use is authorized, where may I operate my 
snowmobile? You may operate your snowmobile upon designated routes 
established within the park. On designated routes, snowmobile use is 
limited to the unplowed roadway, which is distinguished as that portion 
of the roadway located between the road shoulders and is designated by 
snow poles or other poles, ropes, fencing, or signs erected to regulate 
snowmobile activity. The unplowed roadway may also be distinguished by 
the interior boundaries of the berm created by the packing and grooming 
of the unplowed roadway. Snowmobiles may also be operated in pullouts 
or parking areas that are groomed or marked similarly to roadways.
    (5) What routes are designated for snowmobile use in the park 
during the winter season of 2002-2003? During the winter use season of 
2002-2003, the following routes are designated for snowmobile use:
    (i) The Grand Loop Road from its junction with Terrace Springs 
Drive to Norris Junction.
    (ii) Norris Junction to Canyon Junction.
    (iii) The Grand Loop Road from Norris Junction to Madison Junction.
    (iv) The West Entrance Road from the park boundary at West 
Yellowstone to Madison Junction.
    (v) The Grand Loop Road from Madison Junction to West Thumb.

[[Page 7266]]

    (vi) The South Entrance Road from the South Entrance to West Thumb.
    (vii) The Grand Loop Road from West Thumb to its junction with the 
East Entrance Road.
    (viii) The East Entrance Road from the East Entrance to its 
junction with the Grand Loop Road.
    (ix) The Grand Loop Road from its junction with the East Entrance 
Road to Canyon Junction.
    (x) The South Canyon Rim Drive.
    (xi) Any groomed or marked pullouts or parking areas along each of 
these routes.
    (xii) In the developed areas of Madison Junction, Old Faithful, 
Grant Village, Lake, Fishing Bridge, Canyon, Indian Creek, and Norris, 
snowmobile routes to scenic points of interest, lodging, and other 
facilities will be designated by appropriate snow poles and signs and 
will be limited to the unplowed roadways in those areas.
    (xiii) The Superintendent may open or close these routes after 
taking into consideration the location of wintering wildlife, 
appropriate snow cover, and other factors that may relate to public 
safety.
    (xiv) Maps detailing the designated routes will be available from 
Park Headquarters.
    (6) What criteria may the Superintendent use to determine the 
routes within the developed areas referred to in paragraph (l)(5)(xii) 
of this section? The Superintendent shall use the criteria in Executive 
Order 11644 (3 CFR, 1971-1975 Comp., p. 666) and may use other criteria 
to determine use routes within the developed areas of Madison Junction, 
Old Faithful, Grant Village, Lake, Fishing Bridge, Canyon, Indian Creek 
and Norris including the most direct route of access, weather and snow 
conditions, and those routes necessary to eliminate congestion and 
improve the circulation of the visitor use patterns in the interest of 
public safety.
    (7) What limits are established for the numbers of snowmobiles 
permitted to use the park each day? For the winter use season 2002-
2003, the numbers of snowmobiles allowed to use the park each day are 
listed in the following table:

------------------------------------------------------------------------
                                                               Maximum
                                                                daily
                                                              number of
                 Park entrance gate or area                  snowmobiles
                                                             allowed per
                                                                 gate
------------------------------------------------------------------------
(i) North Entrance.........................................           60
(ii) West Entrance.........................................          278
(iii) East Entrance........................................           65
(iv) South Entrance........................................           90
------------------------------------------------------------------------

    (8) May I operate a snowcoach in Yellowstone National Park? 
Snowcoaches may be operated in Yellowstone National Park under a 
Concessions Contract or Permit authorized by the Superintendent. 
Snowcoach operation is subject to the conditions of the permit and all 
other conditions identified in this section.
    (9) What is a snowcoach? A snowcoach is a self-propelled mass 
transit vehicle intended for travel on snow, having a curb weight of 
over 1000 pounds (450 kilograms), driven by a track or tracks and 
steered by skis or tracks, having a capacity of at least 8 passengers.
    (10) What routes are designated for snowcoach use? Snowcoaches may 
operate on the same routes designated for snowmobile use in paragraph 
(l)(5) of this section and the following designated routes:
    (i) Firehole Canyon Drive.
    (ii) Fountain Flat Road.
    (iii) Virginia Cascades Drive.
    (iv) North Canyon Rim Drive.
    (v) Riverside Drive.
    (vi) Lake Butte Overlook Drive.
    (vii) The portion of the Grand Loop Road from Canyon Junction to 
Washburn Hot Springs Overlook.
    (11) What other conditions are placed on snowmobile and snowcoach 
operations? Snowmobiles and snowcoaches may be operated in the park 
under the following conditions:
    (i) Snowcoaches, and during the winter use season of 2002-2003 
snowmobiles, may not be operated in the park between the hours of 9:00 
p.m. and 8:00 a.m. except by authorization.
    (ii) Idling a snowmobile or snowcoach is limited to 10 minutes at 
any one time.
    (iii) Snowmobiles or snowcoaches that stop on designated routes 
must pull over to the far right next to the snow berm. Stopping the 
vehicle in a hazardous location, or where the view of the vehicle might 
be obscured, such as on a curve, is prohibited. Pullouts must be 
utilized when available and accessible.
    (iv) Snowmobiles and snowcoaches must be properly registered and 
display a valid state registration sticker.
    (v) Snowmobile operators must possess a valid state motor vehicle 
operator's license or learner's permit. The license or permit must be 
carried on the operator's person at all times.
    (vi) Persons operating a snowmobile while possessing a learner's 
permit must be accompanied and supervised within line of sight, but no 
further than 100 yards, by a responsible person 21 years of age or 
older possessing a valid state motor vehicle operator's license.
    (vii) Allowing or permitting an unlicensed driver to operate a 
snowmobile is prohibited.
    (viii) During the winter season of 2002-2003, snowmobiles must be 
accompanied by an NPS permitted guide and may not travel in groups of 
more than 11 snowmobiles.
    (12) May I operate a snowplane in the park? The operation of 
snowplanes in Yellowstone National Park is prohibited.
    (13) What is a snowplane? A snowplane is a self-propelled vehicle 
intended for over-the-snow travel and driven by a pusher-propeller.
    (14) Are there any other forms of over-snow transportation allowed 
in the park? No other forms of motorized over-snow transportation are 
permitted for use in the park unless specifically approved by the 
Superintendent and are consistent with the requirements of the 
applicable Executive Orders and the park's management plans.
* * * * *

    3. In Sec. 7.21, remove the heading of paragraph (a), revise 
paragraphs (a)(1), (a)(2) introductory text, and (a)(3), add a heading 
to paragraph (a)(2), and add paragraphs (a)(4) through (a)(12) to read 
as follows:


Sec. 7.21  John D. Rockefeller, Jr., Memorial Parkway.

    (a)(1) May I operate a snowmobile in the Parkway? You may operate a 
snowmobile in the Parkway in compliance within the public use limits 
and operating conditions established in this section until the end of 
the winter use season of 2002-2003 at which time snowmobile use in the 
Parkway is prohibited except for essential administrative use and in 
emergency situations as determined by the Superintendent.
    (2) What routes are designated for snowmobile use in the Parkway 
prior to the winter use season of 2002-2003? Effective until the end of 
the winter use season of 2001-2002, the following are the designated 
routes to be open to snowmobile use:
* * * * *
    (3) What is a winter use season? A winter use season is that 
portion of the winter months that begins each year in approximately 
late November through the following year ending in approximately the 
middle of March. Dates are dependent on weather conditions and the 
availability of NPS facilities and resources and may be adjusted at the 
discretion of the Superintendent. Appropriate notice will be given to 
the public of determined start and ending dates each season.

[[Page 7267]]

    (4) What routes are designated for snowmobile use in the Parkway in 
the winter use season of 2002-2003? During the winter use season of 
2002-2003, the following routes are designated for snowmobile use:
    (i) The Continental Divide Snowmobile Trail (CDST) along U.S. 
Highway 89/287 from the southern boundary of the Parkway to Flagg 
Ranch.
    (ii) Along U.S. Highway 89/287 from Flagg Ranch to the northern 
boundary of the Parkway.
    (iii) Grassy Lake Road from Flagg Ranch to the western boundary of 
the Parkway.
    (iv) The Superintendent may open or close these routes after taking 
into consideration the location of wintering wildlife, appropriate snow 
cover, and other factors that may relate to public safety.
    (v) Maps detailing the designated routes will be available from 
Park Headquarters.
    (5) What limits are established for the numbers of snowmobiles 
permitted to use the Parkway each day? For the winter use season 2002-
2003, the numbers of snowmobiles allowed to use the Parkway each day 
are listed in the following table:

------------------------------------------------------------------------
                                                               Maximum
                                                              number of
                 Park entrance gate or area                  snowmobiles
                                                             allowed per
                                                                 gate
------------------------------------------------------------------------
(i) Continental Divide Snowmobile Trail (along U.S. 89/287)           25
 from the southern boundary of the JDR Parkway to Flagg
 Ranch.....................................................
(ii) (Along U.S. 89/287) Flagg Ranch to northern boundary             90
 of Parkway................................................
(iii) Grassy Lake Road.....................................           25
------------------------------------------------------------------------

    (6) May I operate a snowcoach in the Parkway? Snowcoaches may be 
operated in the Parkway under a Concessions Contract or Permit 
authorized by the Superintendent. Snowcoach operation is subject to the 
conditions of the permit and all other conditions identified in this 
section.
    (7) What is a snowcoach? A snowcoach is a self-propelled mass 
transit vehicle intended for travel on snow, having a curb weight of 
over 1000 pounds (450 kilograms), driven by a track or tracks and 
steered by skis or tracks, having a capacity of at least 8 passengers.
    (8) What routes are designated for snowcoach use? Snowcoaches may 
operate on the routes designated for snowmobile use in paragraphs 
(a)(4)(i) through (iii) of this section.
    (9) What other conditions are placed on snowmobile and snowcoach 
operations? Snowmobiles and snowcoaches may be operated under the 
following conditions:
    (i) Snowmobiles or snowcoaches that stop on designated routes must 
pull over to the far right next to the snow berm. Stopping the vehicle 
in a hazardous location, or where the view of the vehicle might be 
obscured, such as on a curve, is prohibited. Pullouts must be utilized 
when available and accessible.
    (ii) Snowmobiles and snowcoaches must be properly registered and 
display a valid state registration sticker.
    (iii) Snowmobile operators must possess a valid state motor vehicle 
operator's license or learner's permit. The license or permit must be 
carried on the operator's person at all times.
    (iv) Persons operating a snowmobile while possessing a learner's 
permit must be accompanied and supervised within line of sight, but no 
further than 100 yards, by a responsible person 21 years of age or 
older possessing a valid state motor vehicle operator's license.
    (v) Allowing or permitting an unlicensed driver to operate a 
snowmobile is prohibited.
    (vi) Snowcoaches, and during the winter use season of 2002-2003 
snowmobiles, may not be operated in the park between the hours of 9 
p.m. and 8 a.m. except by authorization.
    (10) May I operate a snowplane in the Parkway? The operation of 
snowplanes in the Parkway is prohibited.
    (11) What is a snowplane? A snowplane is a self-propelled vehicle 
intended for over-the-snow travel and driven by a pusher-propeller.
    (12) Are there any other forms of over-snow transportation allowed 
in the Parkway? No other forms of motorized over-snow transportation 
are permitted for use in the Parkway unless specifically approved by 
the Superintendent and are consistent with the requirements of the 
applicable Executive Orders and the park's management plans.
* * * * *

    4. Paragraph (g) of Sec. 7.22 is revised to read as follows:


Sec. 7.22  Grand Teton National Park.

* * * * *
    (g)(1) May I operate a snowmobile in Grand Teton National Park? 
Until the end of the winter use season of 2001-2002, you may operate a 
snowmobile on the routes and areas designated in paragraphs (g)(2) 
through (g)(4) of this section in compliance with operating standards 
established by the Superintendent. During the winter use season of 
2002-2003, you may operate a snowmobile on the route designated in 
paragraph (g)(6) of this section in compliance with the public use 
limits and operating standards established by the Superintendent. 
Effective the winter use season of 2003-2004, snowmobile use will be 
restricted to the routes and purposes in paragraphs (g)(10), (11), 
(12), and (13) of this section. All other snowmobile use is prohibited, 
except for essential administrative use and in emergency situations as 
determined by the Superintendent.
    (2) Effective until the end of the winter use season 2001-2002, the 
following are the designated routes to be open to snowmobile use: The 
Spread Creek Road; the unplowed portion of the Pacific Creek Road; the 
unplowed portion of the Ditch Creek Road; the Lost Creek Ranch Road, 
those portions of the unplowed roads connecting with the Shadow 
(Antelope) Mountain Forest Service Road at Cunningham Cabin, Lost Creek 
Road and Antelope Flats Road; the unplowed portions of the Moose-Wilson 
Road; and the unplowed portion of the Teton Park Road north of 
Cottonwood Creek to a line of markers south of Timbered Island, around 
the east side of Timbered Island north to the line of markers at South 
Jenny Lake Junction, and then north to Signal Mountain Lodge, except 
during the period previous to opening of Potholes-Baseline Flats areas 
when the Teton Park Road will be open through to Signal Mountain, the 
Jenny Lake Loop Road, the Spalding Bay Road, the String Lake Picnic 
Area Road, the Signal Mountain Summit Road, the Signal Mountain Launch 
Ramp Road, and the Lizard Creek Campground Road.
    (3) Effective until the end of the winter use season 2001-2002, the 
following are the designated areas open to snowmobile use: The 
Potholes-Baseline Flats area east of the Teton Park Road north of the 
Cottonwood Creek, north of the Bar BC access road, east of Timbered 
Island, west of the River Road or as marked at the top of the Snake 
River Bench, northwest of Timbered Island as marked to the Teton Park 
Road and bounded on the north by the RKO Road.
    (4) Effective until the end of the winter use season 2001-2002, the 
following water surface is designated for snowmobile and snowplane use: 
The frozen surface of Jackson Lake.
    (5) What is a winter use season? A winter use season is that 
portion of the winter months that begins each year in approximately 
late November, through

[[Page 7268]]

the following year ending in approximately the middle of March. 
Specific dates are dependent on weather conditions and the availability 
of park facilities and resources and may be adjusted at the discretion 
of the Superintendent. Appropriate notice will be given to the public 
of determined start and ending dates each season.
    (6) What routes and limits are designated for snowmobile use in the 
park during the winter use season of 2002-2003? For the winter use 
season of 2002-2003, the Continental Divide Snowmobile Trail along U.S. 
26/287 from Moran to the eastern park boundary and along U.S. 89/287 
from Moran to the north park boundary is designated for snowmobile use. 
The Superintendent may open or close this route after taking into 
consideration the location of wintering wildlife, appropriate snow 
cover, and other factors that may relate to public safety. A maximum of 
25 snowmobiles is allowed to use this route each day.
    (7) What other conditions are placed on snowmobile operations? 
Snowmobiles may be operated in the park under the following conditions:
    (i) Snowmobiles that stop on designated routes must pull over to 
the far right next to the snow berm. Stopping the vehicle in a 
hazardous location, or where the view of the vehicle might be obscured, 
such as on a curve, is prohibited. Pullouts must be utilized when 
available and accessible.
    (ii) Snowmobiles must be properly registered and display a valid 
state registration sticker.
    (iii) Snowmobile operators must possess a valid state motor vehicle 
operator's license or learner's permit. The license or permit must be 
carried on the operator's person at all times. Snowmobile operators are 
not required to possess a valid drivers license while operating on the 
public access routes designated in paragraph (g)(10) of this section 
and the private property access routes designated in paragraph (g)(12) 
of this section.
    (iv) Persons operating a snowmobile while possessing a learner's 
permit must be accompanied and supervised within line of sight, but no 
farther than 100 yards, by a responsible person 21 years of age or 
older possessing a valid state motor vehicles operator's license.
    (v) Allowing or permitting an unlicensed driver to operate a 
snowmobile is prohibited.
    (vi) Snowcoaches, and during the winter use season of 2002-2003 
snowmobiles, may not be operated in the park between the hours of 9 
p.m. and 8 a.m.
    (8) May I operate a snowplane in the park? If you had a permit to 
operate a snowplane on Jackson Lake during the winter use season 2000-
2001, you may obtain a permit to operate a snowplane on Jackson Lake 
during the winter use season of 2001-2002. Effective at the end of the 
winter use season 2001-2002, snowplane use in Grand Teton National Park 
is prohibited.
    (9) What is a snowplane? A snowplane is a self-propelled vehicle 
intended for over-the-snow travel and driven by a pusher-propeller.
    (10) May I continue to access public lands via snowmobile through 
the park? Reasonable and direct access via snowmobile to adjacent 
public lands will continue to be permitted on designated routes through 
the park. The following routes are designated for access via snowmobile 
to public lands:
    (i) From the parking area at Shadow Mountain directly along the 
unplowed portion of the road to the east park boundary.
    (ii) Along the unplowed portion of the Ditch Creek Road directly to 
the east park boundary.
    (iii) From the Cunningham Cabin pullout on U.S. 26/89 near Triangle 
X to the east park boundary.
    (11) For what purpose may I use the routes designated in paragraph 
(g)(10) of this section? You may use those routes designated in 
paragraph (g)(10) of this section to gain direct access to public lands 
adjacent to the park boundary.
    (12) May I continue to access private property within or adjacent 
to the park via snowmobile? Reasonable and direct access via snowmobile 
to private property will continue to be permitted via designated routes 
in the park. The following routes are designated for access to private 
property within or adjacent to the park:
    (i) The unplowed portion of Antelope Flats Road off U.S. 26/89 to 
private lands in the Craighead Subdivision.
    (ii) The unplowed portion of the Teton Park Road to that piece of 
land commonly referred to as the ``Clark Property''.
    (iii) From the Moose-Wilson Road to the land commonly referred to 
as the ``Barker Property'' until the Department of the Interior takes 
full possession of that land.
    (iv) From the Moose-Wilson Road to the land commonly referred to as 
the ``Wittimer Property'' until the Department of the Interior takes 
full possession of that land.
    (v) From the Moose-Wilson Road to those two pieces of land commonly 
referred to as the ``Halpin Properties''.
    (vi) From either end of the plowed sections of the Moose-Wilson 
Road to that piece of land commonly referred to as the ``JY Ranch''.
    (vii) From Highway 26/89/187 to those lands commonly referred to as 
the ``Meadows'', the ``Circle EW Ranch'', the ``Moulton Property, the 
``Levinson Property'' and the ``West Property''.
    (viii) From Cunningham Cabin pullout on U.S. 26/89 near Triangle X 
the piece of land commonly referred to as the ``Lost Creek Ranch''.
    (ix) Maps detailing designated routes will be available from Park 
Headquarters.
    (13) For what purpose may I use the routes designated in paragraph 
(g)(12) of this section? Those routes designated in paragraph (g)(12) 
of this section are to access private property within or directly 
adjacent to the park boundary. Use of these roads via snowmobile is 
authorized only for the landowners and their representatives or guests. 
Recreational use of these roads by anyone is prohibited.
    (14) Are there any other forms of over-snow transportation allowed 
in the park? No other forms of motorized over-snow transportation are 
permitted for use in the park unless specifically approved by the 
Superintendent and are consistent with the requirements of the 
applicable Executive Orders and the park's management plans.

    Dated: January 18, 2001.
Stephen C. Saunders,
Acting Assistant Secretary, Fish and Wildlife and Parks.
[FR Doc. 01-1944 Filed 1-19-01; 8:45 am]
BILLING CODE 4310-70-U