[Federal Register Volume 69, Number 172 (Tuesday, September 7, 2004)]
[Proposed Rules]
[Pages 54072-54090]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-20021]


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DEPARTMENT OF THE INTERIOR

National Park Service

36 CFR Part 7

RIN 1024-AD29


Special Regulations; Areas of the National Park System

AGENCY: National Park Service, Interior.

ACTION: Proposed rule.

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SUMMARY: The National Park Service is proposing this rule to more 
effectively manage winter visitation and recreational use in 
Yellowstone and Grand Teton National Parks and the John D. Rockefeller, 
Jr., Memorial Parkway for up to three winter seasons (i.e., through the 
winter of 2006-2007). This proposed rule is issued in conjunction with 
the Temporary Winter Use Plans Environmental Assessment (EA) and will 
ensure that visitors to the parks have an appropriate range of winter 
recreational opportunities for an interim period. In addition, the 
proposed rule will ensure that these recreational activities are in an 
appropriate setting and that they do not impair or irreparably harm 
park resources or values. The proposed rule is also necessary to allow 
time to collect additional monitoring data on strictly limited 
snowmobile and snowcoach use. The proposal provides a structure for 
winter use management in the parks for an interim period and is 
intended to reduce confusion and uncertainty among the public and local 
communities about winter use. These temporary regulations would 
continue to require that recreational snowmobiles and snowcoaches 
operating in the parks meet certain air and sound restrictions, 
snowmobilers be accompanied by a commercial guide, and proposes new 
daily entry limits on the numbers of snowmobiles that may enter the 
parks. Traveling off designated oversnow routes will remain prohibited.

DATES: Comments must be received by October 7, 2004.

ADDRESSES: Comments may be sent to Yellowstone National Park, Winter 
Use Proposed Rule, P.O. Box 168, Yellowstone NP, WY 82190. Comments may 
also be submitted online at http://www.nps.gov/yell/winteruse-ea.

FOR FURTHER INFORMATION CONTACT: John Sacklin, Planning Office, 
Yellowstone National Park, 307-344-2019 or at the address listed in the 
ADDRESSES section.

SUPPLEMENTARY INFORMATION: The National Park Service (NPS) has been 
managing winter use issues in Yellowstone National Park (YNP), Grand 
Teton National Park (GTNP), and the John D. Rockefeller, Jr., Memorial 
Parkway (the Parkway) for several decades. In 1997 the Fund for Animals 
and others filed suit, alleging violations of non-compliance with the 
National Environmental Policy Act (NEPA), among other laws. The suit 
resulted in a settlement agreement in October 1997 which, among other 
things, required the NPS to prepare a new winter use plan for the three 
park units. On October 10, 2000, a Winter Use Plans Final Environmental 
Impact Statement (FEIS) was published for YNP, GTNP, and the Parkway. A 
Record of Decision (ROD) was signed by the Intermountain Regional 
Director on November 22, 2000, and subsequently distributed to 
interested and affected parties. The ROD selected FEIS Alternative G, 
which eliminated both snowmobile and snowplane use from the parks by 
the winter of 2003-2004, and provided access via an NPS-managed, mass-
transit snowcoach system. This decision was based on a finding that the 
snowmobile and snowplane use existing at that time, and the snowmobile 
use analyzed in the FEIS alternatives, impaired park resources and 
values, thus violating the statutory mandate of the NPS.

[[Page 54073]]

    Implementing aspects of this decision required a special regulation 
for each park unit in question. Following publication of a proposed 
rule and the subsequent public comment period, a final rule was 
published in the Federal Register on January 22, 2001 (66 FR 7260). The 
rule became effective on April 22, 2001.
    On December 6, 2000, the Secretary of the Interior, the Director of 
the National Park Service and others in the Department of the Interior 
and the NPS were named as defendants in a lawsuit brought by the 
International Snowmobile Manufacturers' Association (ISMA) and several 
groups and individuals. The States of Wyoming and Montana subsequently 
intervened on behalf of the plaintiffs. Following promulgation of final 
regulations, the original complaint was amended to also challenge the 
regulations. The lawsuit asked for the decision, as reflected in the 
ROD, to be set aside. The lawsuit alleged among other things, violation 
of NEPA. A procedural settlement was reached on June 29, 2001, under 
which, NPS agreed to prepare a Supplemental Environmental Impact 
Statement (SEIS) incorporating ``any significant new or additional 
information or data submitted with respect to a winter use plan.'' 
Additionally, the NPS provided the opportunity for additional public 
participation in furtherance of the purposes of NEPA. A Notice of 
Intent to prepare a Supplemental Environmental Impact Statement was 
published in the Federal Register on July 27, 2001 (66 FR 39197).
    A draft SEIS was published on March 29, 2002, and distributed to 
interested and affected parties. NPS accepted public comments on the 
draft for 60 days, and 357,405 pieces of correspondence were received. 
The draft SEIS examined four additional alternatives: two alternatives 
to allow some form of snowmobile access to continue, a no-action 
alternative that would implement the November 2000 ROD, and another 
alternative that would implement the no-action alternative one year 
later to allow additional time for phasing in snowcoach-only travel. 
The SEIS focused its analysis only on the issues relevant to allowing 
recreational snowmobile and snowcoach use in the parks. These impact 
topics included air quality and air quality related values, employee 
health and safety, natural soundscapes, public health and safety, 
socioeconomics, wildlife (bison and elk), and visitor experience. The 
SEIS did not re-evaluate the decision to ban snowplane use on Jackson 
Lake because this had not been an issue in the lawsuit, and was not an 
aspect of the resulting settlement.
    On November 18, 2002, the NPS published a final rule (67 FR 69473) 
(``delay rule'') based on the FEIS, which generally postponed 
implementation of the phase-out of snowmobiles in the parks for one 
year. This rule allowed for additional time to plan and implement the 
NPS-managed mass-transit, snowcoach-only system outlined in the FEIS as 
well as time for completion of the SEIS. The rule delayed the 
implementation of the daily entry limits on snowmobiles until the 
winter of 2003-2004 and the complete prohibition on snowmobiles until 
2004-2005. The 2001 regulation's transitional requirement that 
snowmobile parties use an NPS-permitted guide was also delayed until 
the 2003-2004 winter use season.
    Other provisions under the January 2001 regulation concerning 
licensing requirements, limits on hours of operation, Yellowstone side 
road use and the ban on snowplane use remained effective for the winter 
use season of 2002-2003.
    The Notice of Availability for the final SEIS was published on 
February 24, 2003 (68 FR 8618). The final SEIS included a new 
alternative, alternative 4, consisting of elements which fell within 
the scope of the analyses contained in the Draft SEIS and which was 
identified as the preferred alternative. In addition, the final SEIS 
included changes to the alternatives, included changes in modeling 
assumptions and analysis, and incorporated additional new information. 
The Intermountain Regional Director signed a Record of Decision for the 
SEIS, which became effective on March 25, 2003. The ROD selected final 
SEIS alternative 4 for implementation, and enumerated additional 
modifications to that alternative. The final SEIS and ROD found that 
implementation of final SEIS alternatives 1a, 1b, 3, or 4 would not be 
likely to impair park resources or values due to motorized oversnow 
recreation. On December 11, 2003, the new regulation governing winter 
use in the parks was published.
    On December 16, 2003, the U.S. District Court for the District of 
Columbia, ruling on lawsuits by the Fund for Animals, et al., and the 
Greater Yellowstone Coalition, et al., overturned the December 11, 
2003, regulation and SEIS. The court reinstated the January 22, 2001, 
regulation phasing out recreational snowmobiling pursuant to the delay 
rule. Specifically, up to 493 snowmobiles a day were to be allowed into 
Yellowstone for the 2003-2004 season, and another 50 in Grand Teton and 
the Parkway combined. All snowmobiles in Yellowstone were required to 
be led by a commercial guide. Snowmobiles were to be phased out 
entirely from the parks in the 2004-2005 season.
    ISMA and the State of Wyoming reopened their December 2000 lawsuit 
against the Department of the Interior and the NPS. Ruling upon the 
reopened suit on February 10, 2004, the U.S. District Court for the 
District of Wyoming issued a preliminary injunction preventing the NPS 
from continuing to implement the snowmobile phase-out. The court also 
directed the superintendents of Yellowstone and Grand Teton to issue 
emergency orders that were ``fair and equitable'' to all parties to 
allow visitation to continue for the remainder of the winter season. 
Under the authority of 36 CFR 1.5, the superintendents authorized up to 
780 snowmobiles a day into Yellowstone, and up to 140 into Grand Teton 
and the Parkway combined. In Yellowstone, the requirement that all 
snowmobilers travel with a commercial guide remained in effect.
    Judicial proceedings are continuing in both the Wyoming and 
Washington, DC, courts.

Park Resource Issues

    The supporting EA focuses on analyzing the environmental impacts of 
five alternatives for interim winter use. The alternatives are not 
dramatically different from those considered in the SEIS or the EIS; 
thus, the EA incorporates and references these documents as 
appropriate. The major issues analyzed in the EA include social and 
economic issues, human health and safety, wildlife impacts, air quality 
impacts, natural soundscape, visitor use and access, and visitor 
experience. These impacts are detailed in the EA and are available 
online at: http://www.nps.gov/yell/winteruse-ea. Additional information 
is available in the SEIS and FEIS, available online at: http://www.nps.gov/grte/winteruse/intro.htm and http://www.nps.gov/yell/technical/planning/winteruse/plan/index.htm, respectively.

Impairment to Park Resources and Values

    In addition to determining the environmental consequences of the 
alternatives, NPS policy (NPS 2000a) requires analysis of potential 
effects to determine whether actions would impair park resources. In 
managing National Park System units, the NPS may undertake actions that 
have both

[[Page 54074]]

beneficial and adverse impacts on park resources and values. However, 
the NPS is generally prohibited by law from taking or authorizing any 
action that would or is likely to impair park resources and values. 
Impairment is an impact that, in the professional judgment of the 
responsible NPS manager, would harm the integrity of park resources or 
values, including the opportunities that otherwise would be present for 
the enjoyment of those resources or values.
    The FEIS ROD, dated November 22, 2000, concluded that, of the seven 
alternatives evaluated in the FEIS, only one (alternative G), which 
called for a phase-out of snowmobile use in the parks, did not impair 
park resources. This was the basis for selecting this alternative, as 
described in the rationale for the decision in the November 2000 ROD. 
In all other FEIS alternatives, the existing snowmobile use in 
Yellowstone was found to impair air quality, wildlife, the natural 
soundscape, and opportunities for the enjoyment of the park by 
visitors. In Grand Teton, impairment to the natural soundscape and 
opportunities for enjoyment of the park was found to result from the 
impacts of snowmobile and snowplane use. In the Parkway, impairment was 
found to result from snowmobile use on air quality, the natural 
soundscape, and opportunities for enjoyment of the park. These findings 
were made for all alternatives with snowmobile use, including those 
that would have required phased-in use of cleaner and quieter 
snowmobiles in accordance with set objectives for air and sound 
emissions. It was determined that there was no way to mitigate the 
impairment short of reducing the amount of use as determined by an 
effective carrying capacity analysis, or by imposing a suitable limit 
unsupported by such an analysis.
    The final rule implementing FEIS alternative G, published in the 
Federal Register on January 22, 2001, recognized that, ``achieving 
compliance with the applicable legal requirements while still allowing 
snowmobile use would require very strict limits on the numbers of both 
snowmobile and snowcoaches.'' Thus, the January 2001 rule recognized 
that some snowmobile and snowcoach use could possibly be accommodated 
in the parks through appropriate management actions without resulting 
in an impairment to park resources and values. The SEIS and March 25, 
2003 ROD reinforced these conclusions.
    The NPS believes that Alternative 4 of the Temporary Winter Use 
Plans EA would not impair park resources or values for several reasons. 
The alternative continues intensive monitoring of park resources and 
values, including air quality, natural soundscapes, wildlife, employee 
health and safety, and visitor experience. Alternative 4 is an 
intensively managed approach to preventing impairment of park resources 
and values through strict requirements on snowmobiles and snowcoaches 
and comprehensive monitoring. Alternative 4 sets daily entry limits 
that represent a use level just under the historical average number of 
snowmobiles entering YNP and will eliminate peak use days experienced 
in the past, while reducing overall snowmobile use, relative to 
historic averages. Limits on the numbers of snowmobiles will result in 
fewer conflicts with wildlife, fewer air and noise emissions, and 
improved road conditions. Limits on the numbers of snowmobiles also 
provide park managers with more predictable winter use patterns and an 
assurance that use cannot increase.
    This alternative also mandates that all snowmobilers entering YNP 
be accompanied by a commercial guide. This requirement will reduce 
conflicts with wildlife along roadways because guides will be trained 
to deal with such situations. Commercial guides must also have 
reasonable control over their clientele, which greatly reduces unsafe 
and illegal snowmobile use. In this way, guides will ensure that park 
regulations are enforced and will provide a safer experience for 
visitors. The requirement that all snowmobilers travel with commercial 
guides will benefit natural soundscapes, since commercially guided 
parties tend to travel in relatively large groups, resulting in longer 
periods when snowmobile sound is not audible.
    Finally, this alternative requires that both snowmobiles and 
snowcoaches entering the parks meet best available technology (BAT) 
requirements. This requirement will ensure that all recreational over-
snow vehicles operating in the parks employ state of the art emissions 
control equipment.

Description of the Proposed Rule

    The EA analyzed five alternatives with regard to winter use. These 
regulations propose to implement Alternative 4 from the EA. As 
previously outlined in the December 2003 regulations, many of the 
regulations regarding over-snow transportation have been in existence 
at the park under the authority of 36 CFR Part 7 or 36 CFR 1.5. 
Regulations such as the operating conditions, designated routes, and 
restricted hours of operation have been in effect and enforced by NPS 
employees for several years. They were included in the 2003 rulemaking 
in order to make them permanent and are included again in this rule, 
with only slight modifications, to remind the public of all the 
regulations that apply to over-snow transportation for each park area. 
Other regulations such as alcohol limits, BAT restrictions, daily entry 
limits and guiding restrictions that were new in the December 11, 2003, 
rule are included in this proposed rule.
    The EA is intended to guide winter use management in the parks for 
a period of up to three winter seasons. During this time, the NPS will 
be preparing a long-term analysis on the effects of winter use in the 
parks. This long-term analysis will result in a permanent regulation on 
winter use management. The NPS will strive to complete this long-term 
analysis and rulemaking prior to the winter season 2006-2007. However, 
the NPS proposes to make this rule effective through the winter season 
2006-2007 to allow for any unexpected delays.

Monitoring

    Scientific studies and monitoring of winter visitor use and park 
resources (including air quality, natural soundscapes, wildlife, 
employee health and safety, water quality, and visitor experience) will 
continue. Selected areas of the parks, including sections of roads, 
will be closed to visitor use if scientific studies indicate that human 
presence or activities have a substantial effect on wildlife or other 
park resources that cannot otherwise be mitigated. A one-year notice 
will be provided before any such closure would be implemented unless 
immediate closure is deemed necessary to avoid impairment of park 
resources. Due to the temporary nature of these regulations, it would 
be impractical to utilize the adaptive management provisions of the 
SEIS and the December 11, 2003, final rule. Most non-emergency changes 
in park management implemented under the adaptive management framework 
would have been implemented only after at least one or two years of 
monitoring, followed by a 6- to 12-month implementation period. The 
superintendent will continue to have the authority under 36 CFR 1.5 to 
take emergency actions to protect park resources or values.

Best Available Technology Restrictions

    To mitigate impacts to air quality and the natural soundscape, NPS 
is proposing to require that all recreational snowmobiles meet air and 
sound emission restrictions, hereafter referred

[[Page 54075]]

to as best available technology (BAT) restrictions, to operate in 
Yellowstone. For the winter 2003-2004, the NPS certified 12 different 
snowmobile models (from various manufacturers) as meeting the BAT 
restrictions. For air emissions restrictions, BAT means all snowmobiles 
must achieve a 90% reduction in hydrocarbons and a 70% reduction in 
carbon monoxide, relative to EPA's baseline emissions assumptions for 
conventional two-stroke snowmobiles. For sound restrictions, 
snowmobiles must operate at or below 73 dB(A) as measured at full 
throttle according to Society of Automotive Engineers J192 test 
procedures (revised 1985). The superintendent will maintain a list of 
approved snowmobile makes, models, and year of manufacture that meet 
BAT restrictions.
    To comply with the BAT air emission restrictions, beginning with 
the 2005 model year (snowmobiles available for retail purchase in fall 
2004), all snowmobiles must be certified under 40 CFR 1051 to a Family 
Emission Limit (FEL) no greater than 15 g/kW-hr for hydrocarbons and 
120 g/kW-hr for carbon monoxide. For 2004 model year snowmobiles, 
measured emission levels (official emission results with no 
deterioration factor applied) must comply with the emission limits 
previously specified. Pre-2004 model year snowmobiles may be operated 
only if they have been shown to have emissions that do not exceed the 
limits specified above. Snowmobiles must be tested on a five-mode 
engine dynamometer, consistent with the test procedures specified by 
EPA (40 CFR 1051 and 1065). Other test methods could be approved by NPS 
on a case-by-case basis.
    We are adopting the FEL method of demonstrating compliance with BAT 
because it has several advantages. First, use of FEL will ensure that 
all individual snowmobiles entering the parks achieve our emissions 
requirements, unless modified or damaged (under this proposed 
regulation, snowmobiles which are modified in such a way as to increase 
air or sound emissions will not be in compliance with BAT and not 
permitted to enter the parks). For this reason, FEL is the best 
mechanism to protect park air quality. Use of FEL will also represent 
the least amount of administrative burden on the snowmobile 
manufacturers to demonstrate compliance with NPS BAT requirements. 
Further, the EPA has the authority to insure that manufacturers' claims 
on their FEL applications are valid. EPA also requires that 
manufacturers conduct production line testing (PLT) to demonstrate that 
machines being manufactured actually meet the certification levels. If 
PLT indicates that emissions exceed the FEL levels, then the 
manufacturer is required to take corrective action. Through EPA's 
ability to audit manufacturers' emissions claims, NPS will have 
sufficient assurance that emissions information and documentation will 
be reviewed and enforced by the EPA. FEL also takes into account other 
factors, such as the deterioration rate of snowmobiles (some 
snowmobiles may produce more emissions as they age), lab-to-lab 
variability, test-to-test variability, and production line variance. In 
addition, under the EPA's regulations, all snowmobiles manufactured 
must be labeled with FEL air emissions information. This will help to 
ensure that our emissions requirements are consistent with these labels 
and the use of FEL will avoid potential confusion for consumers.
    To determine compliance with the BAT sound emission restrictions, 
snowmobiles must be tested using SAE J192 (revised 1985) test 
procedures. We recognize that the SAE updated these test procedures in 
2003. However, the changes between the 2003 and 1985 test procedures 
could alter the measurement results. The BAT requirement was 
established using 1985 test procedures (in addition to information 
provided by industry and modeling). Therefore, to be consistent with 
our BAT requirements, we must continue to use the 1985 test. We are 
interested in transitioning to the 2003 J192 test procedures, and we 
will continue to evaluate this issue after these regulations are 
implemented. Other test methods could be approved by NPS on a case-by-
case basis.
    The initial BAT requirement for sound was established by reviewing 
individual machine results from side-by-side testing performed by the 
NPS' contractor, Harris Miller Miller & Hanson Inc. (HMMH) and the 
State of Wyoming's contractor, Jackson Hole Scientific Investigations 
(JHSI). Six four-stroke snowmobiles were tested for sound emissions. 
These emission reports independently concluded that all the snowmobiles 
tested between 69.6 and 77.0 dB(A) using the J192 protocol. On average, 
the HMMH and JHSI studies measured four-strokes at 73.1 and 72.8 dB(A) 
at full throttle, respectively. The SAE J192 (revised 1985) test also 
allows for a tolerance of 2 dB(A) over the sound limit to account for 
variations in weather, snow conditions, and other factors.
    Snowmobiles may be tested at any barometric pressure equal to or 
above 23.4 inches Hg uncorrected (as measured at or near the test 
site). This exception to the SAE J192 test procedures also maintains 
consistency with the testing conditions used to determine the BAT 
requirement. This reduced barometric pressure allowance is necessary 
since snowmobiles were tested at the high elevation of Yellowstone 
National Park, where atmospheric pressure is lower than the SAE J192's 
requirements due to the park's elevation. Initial testing data 
indicates that snowmobiles may test quieter at high elevation, and 
likewise be able to pass our BAT requirements at higher elevations but 
fail our requirements near sea level.
    All commercially guided recreational snowmobiles operating within 
YNP would be required to meet the BAT restrictions.
    Currently, little data exists on snowcoach emissions, with the 
exception of one laboratory study commissioned by the State of Wyoming 
that used a chassis dynamometer to measure emissions from one V-10 
powered Ford E-350 15-passenger van (Lela, Chad C. and Jeff L. White, 
2002). Field conditions in this study could not be replicated 
accurately in the laboratory because the percent of time a snowcoach 
operates in open-loop mode (with the throttle wide open, producing 
higher emissions) versus closed-loop mode (at normal throttle, 
producing extremely low emissions) is unknown. Running in snow on 
tracks requires more power than operation with wheels and thus the 
vehicle may operate in open-loop mode more frequently. In the EA, for 
air quality modeling purposes, snowcoaches were assumed to operate in 
open-loop mode \2/3\ of the time and closed-loop mode \1/3\ of the 
time.
    Currently no industry standard air emissions testing procedure 
exists for snowcoaches that would be cost effective to implement in the 
field. Due to the cost, it would be impractical to use an engine or 
chassis dynamometer in the field to determine emissions of individual 
snowcoaches.
    Approximately 70 snowcoaches operated in Yellowstone National Park 
during the winter of 2003-2004. Under concessions contracts issued in 
2003, 78 snowcoaches are currently authorized. During the winter of 
2003-2004, an average of 22 snowcoaches came into Yellowstone each day. 
Approximately 29 snowcoaches operating in the park were manufactured by 
Bombardier and were designed specifically for oversnow travel. Those 29 
snowcoaches were manufactured prior to 1983 and are referred to as 
``historic snowcoaches'' for the purpose of this rulemaking. All

[[Page 54076]]

other snowcoaches are 12- to 15-passenger vans that have been converted 
for oversnow travel using tracks and/or skis.
    Therefore, the NPS is proposing to require that all non-historic 
snowcoaches meet the EPA standards that were applicable when the 
vehicle was manufactured. Most of these vehicles achieve EPA's Tier 1 
emissions standards, which were phased-in from 1994-1996. To ensure 
that vehicles are meeting EPA's emissions standards, the NPS would 
require that the vehicle's original pollution control equipment not be 
modified or disabled. Snowcoach owners would be required to certify to 
the NPS' and make available for inspection upon NPS' request, that the 
vehicle's pollution control equipment is as originally manufactured.
    In comparison with four-stroke snowmobiles, snowcoaches operating 
within EPA's Tier 1 standards are cleaner, especially given their 
ability to carry up to seven times more passengers (Lela and White 
2002). In addition, in 2004 EPA began phasing-in Tier 2 emissions 
standards for multi-passenger vans, and they will be fully phased-in by 
2009. Tier 2 standards will require that vehicles be even cleaner than 
Tier 1. Tier 2 standards would also significantly reduce the open loop 
mode of operation. If Tier 2 vehicles are converted to snowcoaches, 
then the emissions attributable to them would be further reduced in the 
parks.
    If any of the vehicle's pollution control equipment, including the 
catalytic converter, associated piping, and other related parts that 
may release CO, HC or PM emissions in the event of mechanical failure 
or deterioration, had exceeded its useful life as published by the EPA, 
then the owner would be required to replace it to access Yellowstone. 
Generally, useful life for new vehicles (since 1996) is 120,000 miles 
or 11 years, whichever comes first. NPS is proposing that when a 
snowcoach owner replaces any pollution control equipment under this 
requirement, the new pollution control equipment be the original 
equipment, available from the vehicle's manufacturer rather than after-
market equipment. If original equipment is no longer available 
snowcoach owners would be permitted to install after-market equipment. 
The NPS is proposing that snowcoach owners install original equipment 
if available because it generally has a longer useful life and may be 
more efficient in reducing pollutants, although both are certified to 
the same level of emissions reduction. These air emissions restrictions 
would be implemented during the 2005-2006 winter season.
    NPS would continue to work with snowcoach owners, researchers, and 
other experts during future winters to better understand snowcoach 
emissions and to determine the most effective field testing methods. 
The NPS ultimately intends to set numerical performance-based limits 
for emissions before snowcoaches are allowed entry into the park. The 
NPS is proposing to allow additional time to phase-in air emissions 
restrictions for snowcoaches because of the substantial investment 
required to upgrade snowcoach technology and to encourage additional 
investment in mass transit snowcoaches.
    Sound restrictions were proposed for snowcoaches under the 2003 
regulations. However, the phase-in proposed at that time is outside the 
timeframe for this EA and proposed regulation. Therefore, any future 
sound restrictions will be considered in a longer term rulemaking.
    Historic snowcoaches (defined as a Bombardier snowcoach 
manufactured in 1983 or earlier) would be exempt from air or sound 
restrictions; however NPS will work with snowcoach owners to retrofit 
historic snowcoaches to meet the air and sound restrictions. The NPS is 
exempting historic snowcoaches from air and sound restrictions to 
maintain the character of winter motorized oversnow travel. The NPS 
also believes it is reasonable and prudent to work with outfitters and 
concessioners to determine how best to upgrade their equipment.
    In GTNP and the Parkway, all recreational snowmobiles operating on 
the Continental Divide Snowmobile Trail (CDST) and Jackson Lake must 
meet the BAT restrictions. BAT restrictions would also apply to all 
snowmobiles originating at Flagg Ranch and traveling west on the Grassy 
Lake Road. Snowmobiles originating in the Targhee National Forest and 
traveling eastbound on the Grassy Lake Road would not be required to 
meet the BAT restrictions; however, these snowmobiles could not travel 
further than Flagg Ranch. The NPS is allowing this exception because 
the Grassy Lake Road in the Parkway is approximately 6 miles long, 
snowmobiles are not required to meet BAT restrictions on U.S. Forest 
Service lands, and the NPS wishes to honor the request of the USFS that 
these visitors be able to access food, fuel, and other amenities 
available at Flagg Ranch. Any commercially guided snowmobiles 
authorized to operate in the Parkway or Grand Teton will be required to 
meet BAT restrictions.
    NPS will annually publish a list of snowmobile makes, models, and 
year of manufacture that meet BAT restrictions. Any snowmobile 
manufacturers may demonstrate that snowmobiles are compliant with the 
BAT air emissions requirements by submitting a copy of their 
application used to demonstrate compliance with EPA's general 
snowmobile regulation to the NPS (indicating FEL). We will accept this 
application information from manufacturers in support of conditionally 
certifying a snowmobile as BAT, pending ultimate review and 
certification by EPA at the same emissions levels identified in the 
application. Should EPA certify the snowmobile at a level that would no 
longer meet BAT requirements, this snowmobile would no longer be 
considered to be BAT compliant and would be phased-out according to a 
schedule determined by the NPS to be appropriate. For sound emissions, 
snowmobile manufacturers could submit the existing Snowmobile Safety 
and Certification Committee (SSCC) sound level certification form. 
Under the SSCC machine safety standards program, snowmobiles are 
certified by an independent testing company as complying with all SSCC 
safety standards, including sound standards. This regulation does not 
require the SSCC form specifically, as there could be other acceptable 
documentation in the future. The NPS will work cooperatively with the 
snowmobile manufacturers on appropriate documentation. The NPS intends 
to rely on certified air and sound emissions data from the private 
sector rather than establish its own independent testing program, which 
would be cost prohibitive. When certifying snowmobiles as BAT, NPS will 
announce how long the BAT certification applies. Generally, each 
snowmobile model would be approved for entry into the parks for six 
winter seasons after it was first listed. Based on NPS experience, six 
years represents the typical useful life of a snowmobile, and thus six 
years provides purchasers with a reasonable length of time where 
operation is allowed once a particular model is listed as being 
compliant.
    Individual snowmobiles modified in such a way as to increase sound 
and air emissions of HC and CO beyond the proposed emission 
restrictions would be denied entry to the parks. For both snowcoaches 
and snowmobiles, it would be the responsibility of the end users, and 
guides and outfitters (or private snowcoach owners to the extent they 
are permitted entry into the parks)

[[Page 54077]]

to ensure that their oversnow vehicles comply with all applicable 
restrictions. The requirement in Yellowstone that all snowmobilers 
travel with commercial guides will assist NPS in enforcing BAT 
requirements, since businesses providing commercial guiding services in 
the parks are bound by their contracts with the park to ensure that 
their clients' use only BAT snowmobiles. In addition, these businesses 
can ensure that snowmobiles used in the park are not modified in such a 
way as to increase sound or air emissions, and that BAT snowmobiles are 
properly maintained.
    The restrictions on air and sound emissions proposed in this rule 
are not a restriction on what manufacturers may produce but an end-use 
restriction on which commercially produced snowmobiles and snowcoaches 
may be used in the parks. The NPS Organic Act (16 U.S.C. 1) authorizes 
the Secretary of the Interior to ``promote and regulate'' the use of 
national parks ``by such means and measures as conform to the 
fundamental purpose of said parks * * * which purpose is to ``conserve 
the scenery and the natural and historic objects and the wild life 
therein and to provide for the enjoyment of the same in such manner and 
by such means as will leave them unimpaired for the enjoyment of future 
generations.'' Further, the Secretary is expressly authorized by 16 
U.S.C. 3 to ``make and publish such rules and regulations as he may 
deem necessary or proper for the use and management of the parks * * 
*.'' This exercise of the NPS Organic Act authority is not an effort by 
the NPS to regulate manufacturers and is consistent with Sec. 310 of 
the Clean Air Act.
    Since 2001, Yellowstone and Grand Teton National Parks have been 
converting their own administrative fleet of snowmobiles to four-stroke 
machines. These machines have proven successful in use throughout the 
parks. NPS intends to continue to purchase these snowmobiles for most 
administrative uses. However, the NPS recognizes that some 
administrative applications, such as off-trail boundary patrols in deep 
powder, towing heavy equipment or disabled sleds, or law enforcement 
uses may require additional power beyond that supplied by currently 
available snowmobiles that meet the BAT restrictions. In these limited 
cases, NPS may use snowmobiles that do not meet BAT restrictions 
proposed in this rule.

Use of Commercial Guides

    To mitigate impacts to natural soundscapes, wildlife, and visitor 
and employee safety, all recreational snowmobiles operated in YNP must 
be accompanied by a commercial guide. This requirement will reduce 
conflicts with wildlife along roadways because guides will be trained 
to deal with such situations. Commercially guided parties tend to be 
larger in size, which reduces the overall number of encounters with 
wildlife and reduces the amount of time over-snow vehicles are audible. 
Commercial guides are educated in safety and are knowledgeable about 
park rules. Commercial guides must also have reasonable control over 
their clientele, which greatly reduces unsafe and illegal snowmobile 
use. Professional guides with contractual obligations to the NPS also 
permits more effective enforcement of park rules by the NPS. These 
guides receive rigorous multi-day training, perform guiding duties as 
employees of a business, and are experts at interpreting the resources 
of the parks to their clients. Commercial guides are employed by local 
businesses. Those jobs are not performed by NPS employees.
    Commercial guides use a ``follow-the-leader'' approach, stopping 
often to talk with the group. They lead snowmobiles single-file through 
the park, using hand signals to pass information down the line from one 
snowmobile to the next, which has proven to be effective. Signals are 
used to warn group members about wildlife and other road hazards, 
indicate turns, and when to turn on or off the snowmobile. Further, all 
commercial guides are trained in basic first aid and CPR. In addition 
to first aid kits, they often carry satellite or cellular telephones, 
radios, or other communications devices for emergency use, and shovels 
to use in digging out vehicles. In this way, guides will ensure that 
park regulations are enforced and will provide a safer experience for 
visitors.
    During the winter of 2003-2004, all snowmobilers were led by 
commercial guides for the first time in Yellowstone National Park's 
history. This had a significant positive effect on visitor health and 
safety. With all snowmobile access commercially guided, and adjusting 
visitation numbers to assume visitation was constant, park rangers 
issued 28% fewer snowmobile citations, 70% fewer moving violations, and 
made 85% fewer arrests.
    Guided groups must contain no more than 11 snowmobiles, including 
the guide's machine. Individual snowmobiles may not be operated 
separately from a group within the park. A maximum group size of 11 was 
established so that no one party would be so large that a single guide 
could not safely direct and manage all party members. No minimum group 
size requirement is warranted at this time since commercially guided 
parties always have at least two snowmobiles--the guide and the 
customer. In addition, commercially guided snowmobile groups average 8 
snowmobiles.
    Except in emergency situations, guided parties must travel together 
and remain within a maximum distance of one-third mile of the first 
snowmobile in the group. This will insure that guided parties do not 
get spread too far out. One-third mile will allow for sufficient and 
safe spacing between individual snowmobiles within the guided party, 
allow the guide to maintain control over the group and minimize the 
impacts on wildlife and natural soundscapes.
    In Grand Teton and the Parkway, all snowmobile parties traveling 
north from Flagg Ranch must be accompanied by a commercial guide. All 
other snowmobilers in Grand Teton and the Parkway do not have to be 
accompanied by a guide. The use of guides in Grand Teton and the 
Parkway is generally not required due to the low volume of use, the 
conditions for access to Jackson Lake for winter fishing, the through 
road characteristics of the CDST, as well as the inter-agency 
jurisdiction on the Grassy Lake Road.

Daily Snowmobile Limits

    The number of snowmobiles that could operate in the parks each day 
would be limited under this rule. These limits are intended to mitigate 
impacts to air quality, employee and visitor health and safety, natural 
soundscapes, wildlife, and visitor experience. Once the daily 
snowmobile limits are reached, the only other means of public motorized 
access will be through the use of snowcoaches. No limits on snowcoach 
numbers are intended at this time. The limits are identified in Table 
1. Use limits identified in Table 1 include guides since commercial 
guides are counted towards the daily limits. For YNP, the daily limits 
are identified for each entrance and location; for GTNP and the 
Parkway, the daily limits apply to total snowmobile use on the road 
segment and on Jackson Lake.
    Limits are specifically identified for Old Faithful in this 
proposed rule since Xanterra Parks and Resorts, a park concessioner, 
provides snowmobile rentals and commercial guiding services there. This 
allows visitors additional opportunities to experience the park. For 
example, some visitors choose to enter the park on a snowcoach tour, 
spend two or more nights at Old

[[Page 54078]]

Faithful's Snow Lodge, and go on a commercially guided snowmobile tour 
of the park during their stay at Old Faithful.
    Those limits are listed in the following table:

                 Table 1.--Daily Snowmobile Entry Limits
------------------------------------------------------------------------
                                                            Number of
          Park entrance/road segment/location              snowmobiles
------------------------------------------------------------------------
YNP--North Entrance...................................                30
YNP--West Entrance....................................               400
YNP--East Entrance....................................                40
YNP--Old Faithful.....................................                30
YNP--South Entrance and the Parkway (Flagg Ranch to                  220
 South Entrance)......................................
GTNP and the Parkway--Total Use on Continental Divide              ** 50
 Snowmobile Trail *...................................
Grassy Lake Road (Flagg-Ashton Road)..................             ** 50
Jackson Lake..........................................            ** 40
------------------------------------------------------------------------
*The Continental Divide Snowmobile Trail lies within both GTNP and the
  Parkway. The 50 daily snowmobile use limit applies to total use on
  this trail in both parks.
** These users do not have to be accompanied by a guide.

    The purpose of these limits is to impose strict limits on the 
numbers of snowmobiles that may use the parks in order to minimize 
resulting impacts. Compared to historical use where peak days found as 
many as 1,700 snowmobiles in the parks, these limits represent a 
considerable reduction, and slightly less than the historic average of 
Yellowstone entries. These limits will reduce snowmobile usage from 
historic levels.
    The daily snowmobile limits are based on the analysis contained in 
the EA, which concluded that these limits, combined with other elements 
of this rule, would prevent major adverse impacts thus preventing 
impairment to park resources and values while allowing for an 
appropriate range of experiences available to park visitors.

What Terms Do I Need To Know?

    The NPS has added definitions for oversnow vehicle, designated 
oversnow route, and commercial guides. For snowmobiles, the NPS is 
using the definition found at 36 CFR 1.4, as there is no need to alter 
that definition at this time. Earlier rulemakings specific to 
Yellowstone, Grand Teton and the Parkway referenced ``unplowed 
roadways'' and that terminology was changed to ``designated oversnow 
routes'' to more accurately portray the condition of the route being 
used for oversnow travel. Despite this terminology change, these routes 
will remain entirely on roads or water surfaces used by motor vehicles 
and motorboats during other seasons. Previous rulemakings also referred 
only to snowmobiles or snowcoaches. Since there is a strong likelihood 
that new forms of machines will be developed that can travel on snow, a 
broader definition was developed to insure that such new technology 
remained subject to regulation. When a particular requirement or 
restriction only applies to a certain type of machine (for example, 
some concession restrictions only apply to snowcoaches) then the 
specific machine is stated and only applies to that type of vehicle, 
not all oversnow vehicles. However, oversnow vehicles that do not meet 
the strict definition of a snowcoach (i.e., both weight and passenger 
capacity) would be subject to the same requirements as snowmobiles. The 
definitions listed under Sec.  7.13(l)(1) will apply to all three 
parks. These definitions may be further clarified based on changes in 
technology.

Where Must I Operate My Snowmobile in the Park?

    Specific routes are listed where snowmobiles may operate, but this 
proposed rule also provides latitude for the superintendent to modify 
those routes available for use. When determining what routes are 
available for use, the superintendent will use the criteria in Sec.  
2.18(c), and may also take other issues into consideration including 
the most direct route of access, weather and snow conditions, the 
necessity to eliminate congestion, the necessity to improve the 
circulation of visitor use patterns in the interest of public safety 
and protection of park resources.
    Snowmobiles authorized to operate on the frozen surface of Jackson 
Lake may gain access to the lake by trailering their snowmobiles to the 
parking areas near the designated access points via the plowed roadway. 
There is no direct access from the CDST to Jackson Lake, and use limits 
established for each area are distinctly separate.

What Other Conditions Apply to the Operation of Oversnow Vehicles?

    A similar section existed in previous snowmobile regulations 
entitled ``What other conditions are placed on snowmobile and snowcoach 
operations?'' and addressed many of the same issues. A few minor 
changes have been made to those operating requirements, including 
modifying the operating hours by one hour, limiting idling to 5 minutes 
at any one time, and no longer allowing operation of a snowmobile by 
persons holding only a learner's permit. These modifications were made 
based on experiences over the last few winters with winter use 
operations and the need to adjust requirements for safety and resource 
impact considerations.

What Conditions Apply to Alcohol Use While Operating an Oversnow 
Vehicle?

    Although the regulations in 36 CFR 4.23 apply to oversnow vehicles, 
additional regulations were needed to address the issue of under-age 
drinking while operating a snowmobile and snowcoach operators or 
snowmobile guides operating under the influence while performing 
services for others. Many states have adopted similar alcohol standards 
for under-age operators and commercial drivers and the NPS feels it is 
necessary to specifically include these regulations to help mitigate 
potential safety concerns.
    The alcohol level for minors (anyone under the age of 21) is set at 
.02. Although the NPS endorses ``zero tolerance'', a very low Blood 
Alcohol Content (BAC) is established to avoid a chance of a false 
reading. Mothers Against Drunk Driving and other organizations have 
endorsed this enforcement posture and the NPS agrees that under-age 
drinking and driving, particularly in a harsh winter environment, will 
not be allowed.
    In the case of snowcoach operators or snowmobile guides, a low BAC 
limit is also necessary. Persons operating a snowcoach are likely to be 
carrying 8 or

[[Page 54079]]

more passengers in a vehicle with tracks or skis that is more 
challenging to operate than a wheeled vehicle, and along oversnow 
routes that could pose significant hazards should the driver not be 
paying close attention or have impaired judgement. Similarly, persons 
guiding others on a snowmobile have put themselves in a position of 
responsibility for the safety of other visitors and for minimizing 
impacts to park wildlife and other resources. Should the guide's 
judgement be impaired, hazards such as wildlife on the road or snow 
obscured features, could endanger all members of the group in an 
unforgiving climate. For these reasons, the NPS is requiring that all 
guides be held to a stricter than normal standard for alcohol 
consumption. Therefore, the NPS has established a BAC limit of .04 for 
snowcoach operators and snowmobile guides. This is consistent with 
federal and state rules pertaining to BAC thresholds for someone with a 
commercial drivers license.

Do Other NPS Regulations Apply to the Use of Oversnow Vehicles?

    Relevant portions of 36 CFR 2.18, including Sec.  2.18(c), have 
been incorporated within these proposed regulations. Some portions of 
36 CFR 2.18 and 2.19 are superseded by these proposed regulations, 
which allows these proposed regulations to govern maximum operating 
decibels, operating hours, and operator age (this is applicable to 
these park units only). In addition, 36 CFR 2.18(b) would not apply in 
Yellowstone, while it would apply in Grand Teton and the Parkway. This 
is due to the existing concurrent jurisdiction in Grand Teton and the 
Parkway. These two units are solely within the boundaries of the State 
of Wyoming and national park rangers work concurrently with state and 
county officers enforcing the laws of the State of Wyoming. The 
proposed rule also supersedes 36 CFR 2.19(b) because it provides for 
the towing of people behind an oversnow vehicle. The proposed rule 
prohibits towing of persons on skis, sleds, or other sliding devices by 
motor vehicle or snowmobile, except in emergency situations. Towing 
people, especially children, is a potential safety hazard and health 
risk due to road conditions, traffic volumes, and direct exposure to 
snowmobile emissions. This rule does not affect supply sleds attached 
by a rigid device or hitch pulled directly behind snowmobiles or other 
oversnow vehicles as long as no person or animal is hauled on them. 
Other provisions of 36 CFR Parts 1 and 2 continue to apply to the 
operation of oversnow vehicles unless specifically excluded here.

Are There Any Other Forms of Non-Motorized Oversnow Transportation 
Allowed in the Park?

    YNP has specifically prohibited dog sledding and ski-joring (the 
practice of a skier being pulled by dogs or a vehicle) to prevent 
disturbance or harassment to wildlife. These restrictions have been in 
place for several years under regulatory authority and would now be 
codified in these regulations.

May I Operate a Snowplane?

    Prior to the winter of 2002-2003, snowplanes were allowed on 
Jackson Lake within GTNP under a permit system. Based on the analysis 
set forth in the 2000 EIS and ROD, as reaffirmed in the EA, NPS has 
found and continues to believe that the use of snowplanes would impair 
park resources. As a result, and to avoid uncertainty based on the 
previous use on Jackson Lake, this proposed rule includes language that 
specifically prohibits the operation of snowplanes in each of these 
parks.

Is Violating Any of the Provisions of this Section Prohibited?

    Some magistrates have interpreted the lack of a specific 
prohibitory statement to be ambiguous and therefore unenforceable. 
Although it would seem to be implicit that each instance of a failure 
to abide by specific requirements is a separate violation, the proposed 
regulation contains clarifying language for this purpose. Each 
occurrence of non-compliance with these regulations is a separate 
violation. However, it should also be noted that the individual 
regulatory provisions (i.e., each of the separately numbered 
subparagraphs throughout these three sections) could be violated 
individually and are of varying severity. Thus, each subparagraph 
violated can and should receive an individual fine in accordance with 
the issuance of the park's bail schedule as issued by the appropriate 
magistrate. It is not intended that violations of multiple 
subparagraphs of these regulations be treated as a single violation or 
subject only to a single fine.

Summary of Economic Analysis

    This analysis examines five alternatives for temporary winter use 
plans in the Greater Yellowstone Area (Yellowstone National Park, Grand 
Teton National Park, and John D. Rockefeller, Jr., Memorial Parkway). 
Alternative 1 would permit snowcoachs only, banning recreational 
snowmobile use within the parks. Alternative 1 is similar to the 
conditions expected under the January 2001 final rule. Alternative 2 
would emphasize snowcoach access while allowing some snowmobile use 
with 100% commercially guided trips. That alternative is similar to the 
conditions experienced during the 2003-2004 winter season. Alternative 
3 balances snowmobile and snowcoach access, and permits 20% unguided 
trips in Yellowstone. Alternative 4 allows more snowmobile use than 
Alternative 3, but requires 100% commercially guided trips in 
Yellowstone. Alternative 4 is the preferred alternative. Finally, 
Alternative 5 allows more snowmobile use than Alternative 4, and 
permits 20% non-commercially guided trips in Yellowstone. Alternative 5 
is similar to the conditions expected under the December 2003 final 
rule.
    This analysis estimates the benefits and costs associated with the 
5 alternatives relative to two baselines: Alternative 1, which would 
ban snowmobiles, and historic snowmobile use as represented by the 
1997-1998 winter season. The rationale for using these two baselines 
flows from two regulatory actions and two federal district court 
rulings. NPS issued a special regulation on January 22, 2001, phasing 
in a snowmobile ban. In settling a lawsuit filed by the International 
Snowmobile Manufactures' Association and other plaintiffs regarding 
that regulation, NPS agreed to re-evaluate its winter use plan 
alternatives, and subsequently issued a special regulation on December 
11, 2003, permitting snowmobile use subject to certain management 
restrictions. On December 16, 2003, the Washington, DC, District Court 
issued a ruling overturning the December 2003 regulation and 
implementing the January 2001 regulation. Following that ruling on 
February 10, 2004, the Wyoming District Court issued a preliminary 
injunction against implementing the January 2001 regulation.
    These two rulings potentially imply the two baselines used in this 
analysis. In order to cover the potential range of analysis suggested 
by these rulings, NPS used Alternative 1 and historic snowmobile use as 
alternative baselines to estimate the benefits and costs of its 
proposed temporary winter use plan alternatives. NPS believes that the 
actual economic impacts of the proposed temporary winter use plan 
alternatives fall within the range of benefits and costs estimated 
relative to these two baselines.
    The quantitative results of the benefit-cost analysis are 
summarized below for the Alternative 1 and the historical baselines, 
respectively. It is important to

[[Page 54080]]

note that this analysis could not account for all costs or benefits due 
to limitations in available data. For example, the costs associated 
with adverse impacts to park resources and with law enforcement 
incidents are not reflected in the quantified net benefits presented in 
this summary. It is also important to note that the benefit-cost 
analysis addresses the economic efficiency of the different 
alternatives and not their distributive equity (i.e., does not identify 
the sectors or groups on which the majority of impacts fall). 
Therefore, additional explanation is required when interpreting the 
results of this benefit-cost analysis. An explanation of the selection 
of the preferred alternative is given following the summaries of 
quantified benefits and costs.

Quantified Benefits and Costs Relative to the Alternative 1 Baseline

    The primary beneficiaries of Alternatives 2, 3, 4, and 5 relative 
to the Alternative 1 baseline are the park visitors who ride 
snowmobiles in the park and the businesses that serve them such as 
rental shops, restaurants, gas stations, and hotels. Overall, 
Alternative 5 should provide greater quantified benefits to snowmobiles 
than Alternatives 2 through 4. The daily caps on snowmobile use vary 
across the four alternatives, with Alternative 5 allowing the most 
snowmobiles per day into the parks. Alternatives 2, 3 (in 2004-2005), 
and 4 require snowmobilers to be part of a commercially guided tour, 
which is expected to reduce benefits to snowmobilers who prefer 
unguided tours or who face additional expenses from being forced to 
take a guided tour. Alternatives 3 (in 2005-2006 and beyond) and 5 
allow for at least 20% of the tours to be unguided or led by non-
commercial guides, which may somewhat mitigate the potential loss in 
benefits associated with the commercial guided tour requirement.
    The primary consumer group that would incur costs under 
Alternatives 2, 3, 4, and 5 would be the park visitors who do not ride 
snowmobiles. Out of the set of alternatives that allow for continued 
snowmobile access to the parks, Alternative 2 is expected to impose the 
lowest costs on non-snowmobile users because of the lower daily limits 
and the commercially guided tour requirements.
    Alternative 5 is expected to provide the greatest benefits to local 
businesses because it places the least restrictions on snowmobilers and 
is expected to result in the largest increase in visitation. 
Alternatives 2 and 4 are the most restrictive options for snowmobilers 
(primarily due to the requirement that all snowmobilers in Yellowstone 
must be on commercially guided tours) and are expected to result in the 
smallest increase in visitation relative to the Alternative 1 baseline 
among Alternatives 2 through 5.
    Based on the results of this analysis, the losses to non-
snowmobilers generally outweigh the gains to snowmobilers and local 
businesses. However, there are a number of uncertainties that may 
influence this result. The most important factor is that this analysis 
applies the losses to non-snowmobilers that were determined from a 
survey conducted in Yellowstone to non-snowmobilers in Grand Teton. 
This may overstate the losses to non-snowmobilers in Grand Teton 
because there is less snowmobile use in Grand Teton than in 
Yellowstone, which may imply that non-snowmobilers are less affected by 
their presence. In addition, snowmobile use in Grand Teton tends to be 
in separate areas of the park from non-snowmobile activities to a 
greater extent than for Yellowstone where there is much more overlap in 
the areas used by these visitors.
    The present values of quantified net benefits (benefits minus 
costs) are presented in Table 1 for the Alternative 1 baseline. As 
noted above, these quantified net benefits do not account for certain 
costs associated with the protection of park resources or with law 
enforcement incidents. Further, these quantified net benefits do not 
reflect potentially significant distributive impacts on local 
communities. The amortized quantified net benefits per year are 
presented in Table 2 for the Alternative 1 baseline.

 Table 1.--Total Present Value of Quantified Net Benefits for the Winter
  Use Plans in the Greater Yellowstone Area 2004-2005 Through 2006-2007
                 Relative to the Alternative 1 Baseline
------------------------------------------------------------------------
                                 Total present value of quantified net
                                                benefits
------------------------------------------------------------------------
Alternative 2
    Discounted at 3%a........  -$32,916,000 to -$15,355,580
    Discounted at 7%a........  -$30,514,550 to -$14,230,820
Alternative 3
    Discounted at 3%a........  -$42,684,800 to -$19,252,100
    Discounted at 7%a........  -$39,607,950 to -$17,966,630
Alternative 4
    Discounted at 3%a........  -$44,430,830 to -$25,785,420
    Discounted at 7%a........  -$41,197,880 to -$23,913,490
Alternative 5
    Discounted at 3%a........  -$38,634,080 to -$12,498,680
    Discounted at 7%a........  -$35,822,200 to -$11,591,350
------------------------------------------------------------------------
a Office of Management and Budget Circular A-4 recommends a 7% discount
  rate in general, and a 3% discount rate when analyzing impacts to
  private consumption.


 Table 2.--Amortized Quantified Net Benefits per Year for the Winter Use
    Plans in the Greater Yellowstone Area 2004-2005 Through 2006-2007
                 Relative to the Alternative 1 Baseline
------------------------------------------------------------------------
                                 Amortized quantified net benefits per
                                                 yearb
------------------------------------------------------------------------
Alternative 2
    Discounted at 3%a........  -$11,636,805 to -$5,428,664
    Discounted at 7%a........  -$11,627,620 to -$5,422,678
Alternative 3
    Discounted at 3%a........  -$15,089,949 to -$6,803,579

[[Page 54081]]

 
    Discounted at 7%a........  -$15,092,233 to -$6,843,494
Alternative 4
    Discounted at 3%a........  -$15,707,647 to -$9,115,929
    Discounted at 7%a........  -$15,698,521 to -$9,112,275
Alternative 5
    Discounted at 3%a........  -$13,658,320 to -$4,418,663
    Discounted at 7%a........  -$13,650,109 to -$4,416,903
------------------------------------------------------------------------
a Office of Management and Budget Circular A-4 recommends a 7% discount
  rate in general, and a 3% discount rate when analyzing impacts to
  private consumption.
b This is the present value of quantified net benefits reported in Table
  1 amortized over the three-year analysis timeframe at the indicated
  discount rate.

Quantified Benefits and Costs Relative to the Historical Use Baseline

    The primary losses under Alternatives 1 through 5 relative to the 
historical use baseline accrue to the park visitors who ride 
snowmobiles in the parks and the businesses that serve them. Overall, 
Alternative 1 would impose greater losses on snowmobilers since it 
would ban snowmobiles in the parks. The losses associated with 
Alternatives 2 through 5 are less since those alternatives would allow 
some level of snowmobile use. Alternatives 2 and 4 would also require 
100% commercially guided tours. That feature is expected to increase 
losses to snowmobilers who prefer unguided tours or who face additional 
expenses from being forced to take commercially guided tours.
    The primary beneficiaries of Alternatives 1 through 5 would be the 
park visitors who do not ride snowmobiles. Alternative 1 would yield 
the greatest benefits for non-snowmobilers. Out of the set of 
alternatives allowing continued snowmobile access to the parks, 
Alternative 2 is expected to generate the largest gains for non-
snowmobilers because of the lower daily limits, stricter technology 
requirements, and the commercially guided tour requirement. Alternative 
4 is expected to generate only slightly lower gains for non-snowmobile 
users than Alternative 2, with the biggest difference between 
Alternatives 2 and 4 coming from the higher daily use limits under 
Alternative 4.
    For businesses, the losses relative to the historical use baseline 
are expected to be ordered in the same way as losses accruing to 
snowmobilers because they are driven largely by the number of visitors. 
Alternative 1 is expected to have the greatest negative impact on local 
businesses because it places the highest restrictions on snowmobilers 
and is expected to result in the largest decrease in visitation. 
Alternative 5 is the least restrictive option for snowmobilers and is 
expected to result in the smallest decrease in visitation.
    Based on the results of this analysis, the gains to non-
snowmobilers generally outweigh the losses to snowmobilers and local 
businesses. However, as noted in the summary of benefits and costs 
relative to the Alternative 1 baseline, there are a number of 
uncertainties that may influence this result. The most important factor 
is that this analysis applies the gains to non-snowmobilers that were 
determined from a survey conducted in Yellowstone to non-snowmobilers 
in Grand Teton. This may overstate the gains to non-snowmobilers in 
Grand Teton because there is less snowmobile use in Grand Teton than in 
Yellowstone, which may imply that non-snowmobilers are less affected by 
their presence. In addition, snowmobile use in Grand Teton tends to be 
in separate areas of the park from non-snowmobile activities to a 
greater extent than for Yellowstone where there is much more overlap in 
the areas used by these visitors.
    The present values of quantified net benefits (benefits minus 
costs) are presented in Table 3 for the historical use baseline. As 
noted above, these quantified net benefits do not account for certain 
costs associated with the protection of park resources or with law 
enforcement incidents. Further, these quantified net benefits do not 
reflect potentially significant distributive impacts on local 
communities. The amortized quantified net benefits per year are 
presented in Table 4 for the historical use baseline.
    The business output impacts presented in the Environmental 
Assessment reflect all businesses; however, 69 of the 74 snowmobile 
rental shops and guided tour operators with available revenue estimates 
were classified as small businesses in the regulatory flexibility 
analysis conducted for this rulemaking. Therefore, these business 
output impacts are considered to be strongly indicative of the impacts 
to small businesses. Additionally, 88% of the business output impacts 
estimated in the Environmental Assessment for all of Wyoming, Montana, 
and Idaho were concentrated in the immediate five counties surrounding 
the parks. Therefore, these business output impacts are also considered 
to be strongly indicative of the distributive equity impacts to the 
local communities.

 Table 3.--Total Present Value of Quantified Net Benefits for the Winter
  Use Plans in the Greater Yellowstone Area 2004-2005 Through 2006-2007
                 Relative to the Historical Use Baseline
------------------------------------------------------------------------
                                 Total Present Value of Quantified Net
                                                Benefits
------------------------------------------------------------------------
Alternative 1
    Discounted at 3% \a\.....  $122,314,860 to $130,820,690
    Discounted at 7% \a\.....  $113,396,820 to $121,284,230
Alternative 2
    Discounted at 3% \a\.....  $87,300,330 to $92,045,050
    Discounted at 7% \a\.....  $80,934,930 to $85,334,010

[[Page 54082]]

 
Alternative 3
    Discounted at 3% \a\.....  $76,587,670 to $81,101,950
    Discounted at 7% \a\.....  $70,989,350 to $75,184,950
Alternative 4
    Discounted at 3% \a\.....  $75,004,190 to $79,954,170
    Discounted at 7% \a\.....  $69,534,980 to $74,125,250
Alternative 5
    Discounted at 3% \a\.....  $77,031,490 to $81,229,710
    Discounted at 7% \a\.....  $71,414,320 to $75,307,790
------------------------------------------------------------------------
\a\ Office of Management and Budget Circular A-4 recommends a 7%
  discount rate in general, and a 3% discount rate when analyzing
  impacts to private consumption.


 Table 4.--Amortized Quantified Net Benefits per Year for the Winter Use
    Plans in the Greater Yellowstone Area 2004-2005 Through 2006-2007
                 Relative to the Historical Use Baseline
------------------------------------------------------------------------
                                 Amortized Quantified Net Benefits per
                                                 Yearb
------------------------------------------------------------------------
Alternative 1
    Discounted at 3%a........  $43,242,020 to $46,249,090
    Discounted at 7%a........  $43,210,050 to $46,215,560
Alternative 2
    Discounted at 3%a........  $30,863,320 to $32,540,720
    Discounted at 7%a........  $30,840,390 to $32,516,670
Alternative 3
    Discounted at 3%a........  $27,076,067 to $28,672,000
    Discounted at 7%a........  $27,050,610 to $28,649,350
Alternative 4
    Discounted at 3%a........  $26,516,260 to $28,266,230
    Discounted at 7%a........  $26,496,420 to $28,245,550
Alternative 5
    Discounted at 3%a........  $27,232,970 to $28,717,170
    Discounted at 7%a........  $27,212,550 to $28,696,160
------------------------------------------------------------------------
aOffice of Management and Budget Circular A-4 recommends a 7% discount
  rate in general, and a 3% discount rate when analyzing impacts to
  private consumption.
bThis is the present value of quantified net benefits reported in Table
  3 amortized over the three-year analysis timeframe at the indicated
  discount rate.

Explanation of Selected Preferred Alternative

    The preferred alternative was selected because it best balances 
winter use with protection of park resources to ensure that adverse 
impacts from historical types and numbers of snowmobile uses do not 
occur. The preferred alternative demonstrates the NPS commitment to 
monitor and use results to adjust winter use program. Last winter, the 
NPS implemented the monitoring program that it committed to in the 2003 
decision, and the results of that monitoring were used to help 
formulate the alternatives in this EA as well as guide the decisions 
being made. The preferred alternative applies the lessons learned in 
the winter of 2003-2004 relative to commercial guiding, which 
demonstrated, among other things, that 100% commercial guiding was very 
successful and offers the best opportunity for achieving goals of 
protecting park resources and allowing balanced use of the parks. Law 
enforcement incidents were reduced well below historic numbers, taking 
into account reduced visitation. That reduction is attributed to the 
quality of the guided program.
    The preferred alternative uses strictly limited snowmobile numbers 
(below the historic average use level for Yellowstone) combined with 
best available technology requirements for snowmobiles and 100% 
commercial guiding to help ensure that the purpose and need for the 
environmental assessment is best met. With strictly limited snowmobile 
use combined with snowcoaches, park visitors will have a range of 
appropriate winter recreational opportunities. With the significant 
restrictions built into snowmobile use, this plan also ensures that 
these recreational activities will not impair or irreparably harm park 
resources or values.
    Last winter was the first time the NPS had the opportunity to 
collect information on a strictly managed snowmobile program. The 
preferred alternative will allow the NPS to continue to collect 
additional monitoring data on strictly limited snowmobile and snowcoach 
use. The monitoring data is extremely important in helping the NPS 
understand the results of its management actions. Prior to the winter 
of 2003-2004, the only monitoring information the NPS had was on 
historic snowmobile use. The EIS, SEIS, and to a certain extent this EA 
relied on modeling to forecast impacts. The modeling is useful for 
comparison purposes so that managers can understand the relative 
differences among alternatives, but it does not replicate on-the-ground 
conditions. Monitoring measures actual outcomes. With only one winter's 
data on strictly managed snowmobile use, the ability of the NPS to 
understand the impacts of a strictly controlled management regime is 
limited. Implementing this plan will allow for additional winters of 
monitoring information.

[[Page 54083]]

    The preferred alternative also supports the communities and 
businesses both near and far from the parks and will encourage them to 
have an economically sustainable winter recreation program. Peak 
snowmobile numbers allowed under the preferred alternative are below 
the historic averages, but the snowmobile limits should provide a 
viable program for winter access to the parks, and in combination with 
snowcoach access, support overall historic visitor use levels. The 
preferred alternative provides certainty for park visitors, 
communities, and businesses by laying out a program for winter use for 
up to the next three winters.

Compliance With Other Laws

Regulatory Planning and Review (Executive Order 12866)

    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 report ``Economic 
Analysis of Temporary Regulations on Snowmobile Use in the Greater 
Yellowstone Area'' (RTI International, August 2004).
    (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 government plans, policies, or controls since 
this is an agency specific change.
    (3) This rule does not alter the budgetary effects of 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. The NPS has been the subject of numerous 
lawsuits regarding winter use management.

Regulatory Flexibility Act

    The Department of the Interior has determined that this document 
will have a significant economic effect on a substantial number of 
small entities under the Regulatory Flexibility Act (5 U.S.C. 601 et 
seq.). Therefore an Initial Regulatory Flexibility Analysis has been 
conducted. The information is contained in the report entitled 
``Economic Analysis of Temporary Regulations on Snowmobile Use in the 
Greater Yellowstone Area'' (RTI International, August 2004). This 
initial report is available on the Yellowstone Web site. Final versions 
of these reports will be available upon publication of the final rule. 
The NPS is proposing an alternative that requires 100% guided 
snowmobiles in Yellowstone National Park to minimize impacts to park 
resources. Based on information available at this time, NPS believes 
that alternative 4 will minimize adverse economic effects to local 
businesses as compared to alternatives 1 and 2.
    The NPS welcomes additional data from affected businesses to enable 
it to further analyze the effects of this rulemaking with respect to 
small businesses.

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.
    b. Will not cause a major increase in costs or prices for 
consumers, individual industries, Federal, State, or local government 
agencies, or geographic regions.
    c. Does not have significant adverse effects on competition, 
employment, investment, productivity, innovation, or 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 Greater Yellowstone Area, 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. Access to private property located 
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

    An Environmental Assessment and draft Finding of No Significant 
Impact (FONSI) have been completed and are also available for comment. 
The EA and draft FONSI are available for review by contacting 
Yellowstone or Grand Teton Planning Offices or at http://www.nps.gov/yell/winteruse-ea. Comments are being solicited separately on the EA/
Draft FONSI and this proposed rule. See the Public Participation 
section for more information on commenting on the EA/Draft FONSI.

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) and 512 DM 2:
    The NPS has 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 
previous SEIS. Their major concern was to reduce the adverse effects on 
wildlife by snowmobiles. This rule does that through implementation of 
the guiding requirements and disbursement of snowmobile use through the 
various entrance stations.

Clarity of Rule

    Executive Order 12866 requires each agency to write regulations 
that are easy

[[Page 54084]]

to understand. The NPS invites your comments on how to make this rule 
easier to understand, including answers to questions such as the 
following: (1) Are the requirements in the rule clearly stated? (2) 
Does the rule contain technical language or jargon that interferes with 
its clarity? (3) Does the format of the rule (grouping and order of 
sections, use of headings, paragraphing, etc.) aid or reduce its 
clarity? (4) Would the rule be easier to read if it were divided into 
more (but shorter) sections? (A ``section'' appears in bold type and is 
preceded by the symbol ``Sec.  '' and a numbered heading; for example 
Sec.  7.13 Yellowstone National Park.) (5) Is the description of the 
rule in the ``Supplementary Information'' section of the preamble 
helpful in understanding the proposed rule? What else could we do to 
make the rule easier to understand?
    Send a copy of any comments that concern how we could make this 
rule easier to understand to: Office of Regulatory Affairs, Department 
of the Interior, Room 7229, 1849 C Street, NW., Washington, DC 20240. 
You may also e-mail the comments to this address: [email protected].
    Drafting Information: The primary authors of this regulation were 
Kym Hall, Special Assistant, National Park Service, Washington DC; 
Kevin Schneider, Outdoor Recreation Planner, and John Sacklin, 
Management Assistant, Yellowstone National Park; and Gary Pollock, 
Management Assistant, Grand Teton National Park.
    Public Participation: If you wish to comment, you may submit your 
comments by any one of several methods. You may mail comments to Winter 
Use Proposed Rule, Yellowstone National Park, P.O. Box 168, Yellowstone 
National Park, WY 82190. You may also comment via the Internet at 
http://www.nps.gov/yell/winteruse-ea. Finally, you may hand deliver 
comments to Winter Use Planning Office, Mammoth Hot Springs, 
Yellowstone National Park, Wyoming. All comments must be received by 
midnight of the close of the comment period. Our practice is to make 
comments, including names and addresses of respondents, available for 
public review during regular business hours. Individual respondents may 
request that the NPS withhold their home address from the rulemaking 
record, which they will honor to the extent allowable by law. If you 
wish us to withhold your name and/or address, you must state this 
prominently at the beginning of your comment. However, the NPS will not 
consider anonymous comments. The NPS will make all submissions from 
organizations or businesses, and from individuals identifying 
themselves as representatives or officials of organizations or 
businesses, available for public inspection in their entirety.
    As noted previously, an EA/Draft FONSI is also open for public 
comment. Those wishing to comment on both this proposed rule and the 
EA/Draft FONSI should submit separate comments for each. EA/Draft FONSI 
comments may be addressed to: Temporary Winter Use Plan EA, P.O. Box 
168, Yellowstone National Park, WY 82190. Additional information about 
the EA is available online at: http://www.nps.gov/yell/winteruse-ea.

List of Subjects in 36 CFR Part 7

    District of Columbia, National parks, Reporting and Recordkeeping 
requirements.
    The NPS proposes to 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. Amend Sec.  7.13 by revising paragraph (l) to read as follows:


Sec.  7.13  Yellowstone National Park.

* * * * *
    (l)(1) What is the scope of this regulation? The regulations 
contained in paragraphs (l)(2) through (1)(17) of this section are 
intended to apply to the use of recreational and commercial 
snowmobiles. Except where indicated, paragraphs (1)(2) through (l)(17) 
do not apply to non-administrative snowmobile or snowcoach use by NPS, 
contractor or concessioner employees who live or work in the interior 
of Yellowstone, or other non-recreational users authorized by the 
Superintendent.
    (2) What terms do I need to know? This paragraph also applies to 
non-administrative snowmobile use by the NPS, contractor or 
concessioner employees, or other non-recreational users authorized by 
the Superintendent.
    Commercial guide means those guides who operate as a snowmobile 
guide for a fee or compensation and are authorized to operate in the 
park under a concession contract. In this section, ``guide'' also means 
``commercial guide.''
    Oversnow route means that portion of the unplowed roadway located 
between the road shoulders and designated by snow poles or other poles, 
ropes, fencing, or signs erected to regulate over-snow activity. 
Oversnow routes include pullouts or parking areas that are groomed or 
marked similarly to roadways and are adjacent to designated oversnow 
routes. An oversnow route may also be distinguished by the interior 
boundaries of the berm created by the packing and grooming of the 
unplowed roadway. The only motorized vehicles permitted on oversnow 
routes are oversnow vehicles.
    Oversnow vehicle means a snowmobile, snowcoach, or other motorized 
vehicle that is intended for travel primarily on snow and is authorized 
by the Superintendent to operate in the park. An oversnow vehicle that 
does not meet the definition of a snowcoach or a snowplane must comply 
with all requirements applicable to snowmobiles.
    Snowcoach means 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, 
and having a capacity of at least 8 passengers.
    Snowplane means a self-propelled vehicle intended for oversnow 
travel and driven by an air-displacing propeller.
    (3) May I operate a snowmobile in Yellowstone National Park? (i) 
You may operate a snowmobile in Yellowstone National Park in compliance 
with use limits, guiding requirements, operating hours and dates, 
equipment, and operating conditions established pursuant to this 
section. The Superintendent may establish additional operating 
conditions and shall provide notice of those conditions in accordance 
with Sec.  1.7(a) of this chapter or in the Federal Register.
    (ii) The authority to operate a snowmobile in Yellowstone National 
Park established in paragraph (l)(3)(i) of this section is in effect 
only through the winter season of 2006-2007.
    (4) May I operate a snowcoach in Yellowstone National Park? (i) 
Commercial snowcoaches may be operated in Yellowstone National Park 
under a concessions contract. Non-commercial snowcoaches may be 
operated if authorized by the Superintendent. Snowcoach operation is 
subject to the conditions stated in the concessions contract and all 
other conditions identified in this section.
    (ii) Beginning with the winter of 2005-2006, all non-historic 
snowcoaches must meet NPS air emissions requirements. These 
requirements are the applicable EPA

[[Page 54085]]

emission standards for the vehicle at the time it was manufactured.
    (iii) All critical emission-related exhaust components (as defined 
in 40 CFR 86.004-25(b)(3)(iii) through (v)) must be functioning 
properly. Malfunctioning critical emissions-related components must be 
replaced with the original equipment manufacturer (OEM) component, 
where possible. Where OEM parts are not available, aftermarket parts 
may be used. In general, catalysts that have exceeded their useful life 
must be replaced unless the operator can demonstrate the catalyst is 
functioning properly.
    (iv) Modifying or disabling a snowcoach's original pollution 
control equipment is prohibited except for maintenance purposes.
    (v) Individual snowcoaches may be subject to periodic inspections 
to determine compliance with the requirements of paragraphs (l)(4)(ii) 
through (l)(4)(iv) of this section.
    (vi) Historic snowcoaches (Bombardier snowcoaches manufactured in 
1983 or earlier) are not initially required to meet air emissions 
restrictions.
    (vii) The authority to operate a snowcoach in Yellowstone National 
Park established in paragraph (l)(4)(i) of this section is in effect 
only through the winter season of 2006-2007.
    (5) Must I operate a certain model of snowmobile? Only commercially 
available snowmobiles that meet NPS air and sound emissions 
requirements may be operated in the park. The Superintendent will 
approve snowmobile makes, models, and year of manufacture that meet 
those requirements. Any snowmobile model not approved by the 
Superintendent may not be operated in the park.
    (6) How will the Superintendent approve snowmobile makes, models, 
and year of manufacture for use in the park? (i) Beginning with the 
2005 model year, all snowmobiles must be certified under 40 CFR part 
1051, to a Family Emission Limit no greater than 15 g/kW-hr for 
hydrocarbons and to a Family Emission Limit no greater than 120 g/kW-hr 
for carbon monoxide.
    (A) 2004 model year snowmobiles may use measured emissions levels 
(official emission results with no deterioration factors applied) to 
comply with the emission limits specified in paragraph (l)(6)(i) of 
this section.
    (B) Snowmobiles manufactured prior to the 2004 model year may be 
operated only if they have been shown to have emissions no greater than 
the requirements identified in paragraph (l)(6)(i) of this section.
    (C) The snowmobile test procedures specified by EPA (40 CFR 1051 
and 1065) shall be used to measure air emissions from model year 2004 
and later snowmobiles. Equivalent procedures may be used for earlier 
model years.
    (ii) For sound emissions snowmobiles must operate at or below 73 
dB(A) as measured at full throttle according to Society of Automotive 
Engineers J192 test procedures (revised 1985). Snowmobiles may be 
tested at any barometric pressure equal to or above 23.4 inches Hg 
uncorrected.
    (iii) The Superintendent may prohibit entry into the park of any 
snowmobile that has been modified in a manner that may adversely affect 
air or sound emissions.
    (7) Where must I operate my snowmobile in Yellowstone National 
Park? You must operate your snowmobile only upon designated oversnow 
routes established within the park in accordance with Sec.  2.18(c) of 
this chapter. The following oversnow routes are so designated for 
snowmobile use through the winter season of 2006-2007:
    (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.
    (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) Lake Butte Road.
    (xii) In the developed areas of Madison Junction, Old Faithful, 
Grant Village, Lake, Fishing Bridge, Canyon, Indian Creek, and Norris.
    (xiii) Firehole Canyon Drive between noon and 9 p.m. each day.
    (xiv) The Superintendent may open or close these routes, or 
portions thereof, for snowmobile travel after taking into consideration 
the location of wintering wildlife, appropriate snow cover, public 
safety, and other factors. Notice of such opening or closing shall be 
provided by one or more of the methods listed in Sec.  1.7(a) of this 
chapter.
    (xv) This paragraph (l)(7) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (xvi) Maps detailing the designated oversnow routes will be 
available from Park Headquarters.
    (8) What routes are designated for snowcoach use? Authorized 
snowcoaches may only be operated on the routes designated for 
snowmobile use in paragraphs (l)(7)(i) through (l)(7)(xii) of this 
section and the following additional oversnow routes through the winter 
season 2006-2007:
    (i) Firehole Canyon Drive.
    (ii) Fountain Flat Road.
    (iii) Virginia Cascades Drive.
    (iv) North Canyon Rim Drive.
    (v) Riverside Drive.
    (vi) That portion of the Grand Loop Road from Canyon Junction to 
Washburn Hot Springs overlook.
    (vii) The Superintendent may open or close these oversnow routes, 
or portions thereof, or designate new routes for snowcoach travel after 
taking into consideration the location of wintering wildlife, 
appropriate snow cover, public safety, and other factors. Notice of 
such opening or closing shall be provided by one of more of the methods 
listed in Sec.  1.7(a) of this chapter.
    (viii) This paragraph (l)(8) also applies to non-administrative 
snowcoach use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (9) Must I travel with a commercial guide while snowmobiling in 
Yellowstone and what other guiding requirements apply? (i) All 
recreational snowmobile operators must be accompanied by a commercial 
guide.
    (ii) Snowmobile parties must travel in a group of no more than 11 
snowmobiles, including that of the guide.
    (iii) Guided parties must travel together within a maximum of one-
third mile of the first snowmobile in the group.
    (10) Are there limits established for the numbers of snowmobiles 
permitted to operate in the park each day? The numbers of snowmobiles 
allowed to operate in the park each day will be limited to a certain 
number per entrance or location. The limits are listed in the following 
table:

[[Page 54086]]



            Table 1.--to Sec.   7.13--Daily Snowmobile Limits
------------------------------------------------------------------------
                                                    Total number of
           Park entrance/location                 commercially guided
                                                snowmobile allocations
------------------------------------------------------------------------
(i) YNP--North entrance.....................                          30
(ii) YNP--West entrance.....................                         400
(iii) YNP--South entrance...................                         220
(iv) YNP--East entrance.....................                          40
(v) YNP--Old Faithful.......................                          30
------------------------------------------------------------------------

    (11) When may I operate my snowmobile or snowcoach? The 
Superintendent will determine operating hours and dates. Expect for 
emergency situations, changes to operating hours may be made annually 
and the public will be notified of those changes through one or more of 
the methods listed in Sec.  1.7(a) of this chapter.
    (12) What other conditions apply to the operation of oversnow 
vehicles? (i) The following are prohibited:
    (A) Idling an oversnow vehicle more than 5 minutes at any one time.
    (B) Driving an oversnow vehicle while the driver's motor vehicle 
license or privilege is suspended or revoked.
    (C) Allowing or permitting an unlicensed driver to operate an 
oversnow vehicle.
    (D) Driving an oversnow vehicle in willful or wanton disregard for 
the safety of persons, property, or park resources or otherwise in a 
reckless manner.
    (E) Operating an oversnow vehicle without a lighted white headlamp 
and red taillight.
    (F) Operating an oversnow vehicle that does not have brakes in good 
working order.
    (G) The towing of persons on skis, sleds or other sliding devices 
by oversnow vehicles, except in emergency situations.
    (ii) The following are required:
    (A) All oversnow vehicles that stop on designated routes must pull 
over to the far right and next to the snow berm. Pullouts must be 
utilized where available and accessible. Oversnow vehicles may not be 
stopped in a hazardous location or where the view might be obscured, or 
operating so slowly as to interfere with the normal flow of traffic.
    (B) Oversnow vehicle drivers must possess a valid motor vehicle 
driver's license. A learner's permit does not satisfy this requirement. 
The license must be carried by the driver at all times.
    (C) Equipment sleds towed by a snowmobile must be pulled behind the 
snowmobile and fastened to the snowmobile with a rigid hitching 
mechanism.
    (D) Snowmobiles must be properly registered and display a valid 
registration from the United States or Canada.
    (iii) The Superintendent may impose other terms and conditions as 
necessary to protect park resources, visitors, or employees. The public 
will be notified of any changes through one or more methods listed in 
Sec.  1.7(a) of this chapter.
    (iv) This paragraph (l)(12) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employee, or other 
non-recreational users as authorized by the Superintendent.
    (13) What conditions apply to alcohol use while operating an 
oversnow vehicle? In addition to the regulations contained in 36 CFR 
4.23, the following conditions apply:
    (i) Operating or being in actual physical control of an oversnow 
vehicle is prohibited when the driver is under 21 years of age and the 
alcohol concentration in the driver's blood or breath is 0.02 grams or 
more of alcohol per 100 milliliters of blood or 0.02 grams or more of 
alcohol per 210 liters of breath.
    (ii) Operating or being in actual physical control of an oversnow 
vehicle is prohibited when the driver is a snowmobile guide or a 
snowcoach driver and the alcohol concentration in the operator's blood 
or breath is 0.04 grams or more of alcohol per 100 milliliters of blood 
or 0.04 grams or more of alcohol per 210 liters of breath.
    (iii) This paragraph (l)(13) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users as authorized by the Superintendent.
    (14) Do other NPS regulations apply to the use of oversnow 
vehicles? (i) The use of oversnow vehicles in Yellowstone is not 
subject to Sec. Sec.  2.18 (b), (d), (e), and 2.19(b) of this chapter.
    (ii) This paragraph (l)(14) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users as authorized by the Superintendent.
    (15) Are there any forms of non-motorized oversnow transportation 
allowed in the park? (i) Non-motorized travel consisting of skiing, 
skating, snowshoeing, or walking is permitted unless otherwise 
restricted pursuant to this section or other provisions of 36 CFR part 
1.
    (ii) The Superintendent may designate areas of the park as closed, 
reopen such areas, or establish terms and conditions for non-motorized 
travel within the park in order to protect visitors, employees, or park 
resources.
    (iii) Dog sledding or ski-joring is prohibited.
    (16) May I operate a snowplane in Yellowstone? The operation of a 
snowplane in Yellowstone is prohibited.
    (17) Is violating any of the provisions of this section prohibited? 
Violating any of the terms, conditions or requirements of paragraphs 
(l)(1) through (l)(16) of this section is prohibited. Each occurrence 
of non-compliance with these regulations is a separate violation.
    3. Amend Sec.  7.21 by revising paragraph (a) to read as follows:


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

    (a)(1) What is the scope of this regulation? The regulations 
contained in paragraphs (a)(2) through (a)(17) of this section are 
intended to apply to the use of recreational and commercial 
snowmobiles. Except where indicated, paragraphs (a)(2) through (a)(17) 
do not apply to non-administrative snowmobile or snowcoach use by NPS, 
contractor or concessioner employees who live or work in the interior 
of Yellowstone, or other non-recreational users authorized by the 
Superintendent.
    (2) What terms do I need to know? All the terms in Sec.  7.13(l)(2) 
of this part apply to this section. This paragraph (a) also applies to 
non-administrative snowmobile use by NPS, contractor or concessioner 
employees, or other non-recreational users authorized by the 
Superintendent.
    (3) May I operate a snowmobile in the Parkway? (i) You may operate 
a

[[Page 54087]]

snowmobile in the Parkway in compliance with use limits, guiding 
requirements, operating hours and dates, equipment, and operating 
conditions established pursuant to this section. The Superintendent may 
establish additional operating conditions and shall provide notice of 
those conditions in accordance with Sec.  1.7(a) of this chapter or in 
the Federal Register.
    (ii) The authority to operate a snowmobile in the Parkway 
established in paragraph (a)(3)(i) of this section is in effect only 
through the winter season 2006-2007.
    (4) May I operate a snowcoach in the Parkway? (i) Commercial 
snowcoaches may be operated in the Parkway under a concessions 
contract. Non-commercial snowcoaches may be operated if authorized by 
the Superintendent. Snowcoach operation is subject to the conditions 
stated in the concessions contract and all other conditions identified 
in this section.
    (ii) Beginning with the winter of 2005-2006, all non-historic 
snowcoaches must meet NPS air emissions requirements. These 
requirements are the applicable EPA emission standards for the vehicle 
at the time it was manufactured.
    (iii) All critical emission-related exhaust components (as defined 
in 40 CFR 86.004-25(b)(3)(iii) through (v)) must be functioning 
properly. Malfunctioning critical emission-related components must be 
replaced with the original equipment manufacturer (OEM) component, 
where possible. Where OEM parts are not available, after-market parts 
may be used. In general, catalysts that have exceeded their useful life 
must be replaced unless the operator can demonstrate the catalyst is 
functioning properly.
    (iv) Modifying or disabling a snowcoach's original pollution 
control equipment is prohibited except for maintenance purposes.
    (v) Individual snowcoaches may be subject to periodic inspections 
to determine compliance with the requirements of paragraphs (a)(4)(ii) 
through (a)(4)(iv) of this section.
    (vi) Historic snowcoaches (Bombardier snowcoaches manufactured in 
1983 or earlier) are not required to meet air emissions restrictions.
    (vii) The authority to operate a snowcoach in the Parkway 
established in paragraph (a)(4)(i) of this section is in effect only 
through the winter season of 2006-2007.
    (5) Must I operate a certain model of snowmobile? Only commercially 
available snowmobiles that meet NPS air and sound requirements may be 
operated in the Parkway. The Superintendent will approve snowmobile 
makes, models and year of manufacture that meet those restrictions. Any 
snowmobile model not approved by the superintendent may not be operated 
in the Parkway.
    (6) How will the Superintendent approve snowmobile makes, models, 
and year of manufacture for use in the Parkway? (i) Beginning with the 
2005 model year, all snowmobiles must be certified under 40 CFR part 
1051, to a Family Emission Limit no greater than 15 g/kW-hr for 
hydrocarbons and to a Family Emission Limit no greater than 120 g/kW-hr 
for carbon monoxide.
    (A) 2004 model year snowmobiles may use measure air emissions 
levels (official emission results with no deterioration factors 
applied) to comply with the air emission limits specified in paragraph 
(a)(6)(i) of this section.
    (B) Snowmobiles manufactured prior to the 2004 model year may be 
operated only if they have shown to have air emissions no greater than 
the restrictions identified in paragraph (a)(6)(i) of this section.
    (C) The snowmobile test procedures specified by EPA (40 CFR parts 
1051 and 1065) shall be used to measure air emissions from model year 
2004 and later snowmobiles. Equivalent procedures may be used for 
earlier model years.
    (ii) For sound emissions snowmobiles must operate at or below 
73dB(A) as measured at full throttle according to Society of Automotive 
Engineers J192 test procedures (revised 1985). Snowmobiles may be 
tested at any barometric pressure equal to or above 23.4 inches Hg 
uncorrected.
    (iii) These air and sound emissions restrictions shall not apply to 
snowmobiles originating in the Targhee National Forest and traveling on 
the Grassy Lake Road to Flagg Ranch. However these snowmobiles may not 
travel further into the Parkway than Flagg Ranch unless they meet the 
air and sound emissions and all other requirements of this section.
    (iv) The Superintendent may prohibit entry into the Parkway of any 
snowmobile that has been modified in a manner that may adversely affect 
air or sound emissions.
    (7) Where must I operate my snowmobile in the Parkway? You must 
operate your snowmobile only upon designated oversnow routes 
established within the Parkway in accordance with Sec.  2.18(c) of this 
chapter. The following oversnow routes are so designated for snowmobile 
use through the winter season of 2006-2007:
    (i) The Continental Divide Snowmobile Trail (CDST) along U.S. 
Highway 89/287 from the southern boundary of the Parkway north to the 
Snake River Bridge.
    (ii) Along U.S. Highway 89/287 from the Snake River Bridge 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, or portions 
thereof, for snowmobile travel after taking into consideration the 
location of wintering wildlife, appropriate snow cover, public safety 
and other factors. Notice of such opening or closing shall be provided 
by one or more of the methods listed in Sec.  1.7(a) of this chapter.
    (v) This paragraph (a)(7) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (vi) Maps detailing the designated oversnow routes will be 
available from Park Headquarters.
    (8) What routes are designated for snowcoach use? (i) Authorized 
snowcoaches may only be operated through the winter season of 2006-2007 
on the route designated for snowmobile use in paragraph (a)(7)(ii) of 
this section. No other routes are open to snowcoach use.
    (ii) The Superintendent may open or close this oversnow routes, or 
portions thereof, or designate new routes for snowcoach travel after 
taking into consideration the location of wintering wildlife, 
appropriate snow cover, public safety, and other factors. Notice of 
such opening or closing shall be provided by one or more of the methods 
listed in Sec.  1.7(a) of this chapter.
    (iii) This paragraph (a)(8) also applies to non-administrative 
snowcoach use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (9) Must I travel with a commercial guide while snowmobiling in the 
Parkway, and what other guiding requirements apply? All recreational 
snowmobile operators using the oversnow route along U.S. Highway 89/287 
from Flagg Ranch to the northern boundary of the parkway must be 
accompanied by a commercial guide. A guide is not required in other 
portions of the Parkway.
    (i) Guided snowmobile parties must travel in a group of no more 
than 11 snowmobiles, including the guide.
    (ii) Guided snowmobile parties must travel together within a 
maximum of one-third mile of the first snowmobile in the group.

[[Page 54088]]

    (10) Are there limits established for the numbers of snowmobiles 
permitted to operate in the Parkway each day? (i) The numbers of 
snowmobiles allowed to operate in the Parkway each day will be limited 
to a certain number per road segment. The limits are listed in the 
following table:

         Table 1 to Sec.   7.21.--Daily Snowmobile Entry Limits
------------------------------------------------------------------------
                                                         Total number of
              Park entrance/road segment                   snowmobile
                                                         entrance passes
------------------------------------------------------------------------
(ii) GTNP and the Parkway--Total Use on CDST*.........                50
(iii) Grassy Lake Road (Flagg-Ashton Road)............                50
(iv) Flagg Ranch to Yellowstone South Entrance........              220
------------------------------------------------------------------------
*The Continental Divide Snowmobile Trail lies within both GTNP and the
  Parkway. The 50 daily snowmobile use limit applies to total use on
  this trail in both parks.

    (11) When may I operate my snowmobile or snowcoach? The 
Superintendent will determine operating hours and dates. Except for 
emergency situations, changes to operating hours may be made annually 
and the public will be notified of those changes through publication in 
the Federal Register and through one or more of the methods listed in 
Sec.  1.7(a) of this chapter.
    (12) What other conditions apply to the operation of oversnow 
vehicles? (i) The following are prohibited:
    (A) Idling an oversnow vehicle more than 5 minutes at any one time.
    (B) Driving an oversnow vehicle while the operator's motor vehicle 
license or privilege is suspended or revoked.
    (C) Allowing or permitting an unlicensed driver to operate an 
oversnow vehicle.
    (D) Driving an oversnow vehicle in willful or wanton disregard for 
the safety of persons, property, or parkway resources or otherwise in a 
reckless manner.
    (E) Operating an oversnow vehicle without a lighted white headlamp 
and red taillight.
    (F) Operating an oversnow vehicle that does not have brakes in good 
working order.
    (G) The towing of persons on skis, sleds or other sliding devices 
by oversnow vehicles, except in emergency situations.
    (ii) The following are required:
    (A) All oversnow vehicles that stop on designated routes must pull 
over to the far right and next to the snow berm. Pullouts must be 
utilized where available and accessible. Oversnow vehicles may not be 
stopped in a hazardous location or where the view might be obscured, or 
operating so slowly as to interfere with the normal flow of traffic.
    (B) Oversnow vehicle drivers must possess a valid motor vehicle 
operator's license. The license must be carried by the driver at all 
times. A learner's permit does not satisfy this requirement.
    (C) Equipment sleds towed by a snowmobile must be pulled behind the 
snowmobile and fastened to the snowmobile with a rigid hitching 
mechanism.
    (D) Snowmobiles must be properly registered and display a valid 
registration from the United States or Canada.
    (iii) The Superintendent may impose other terms and conditions as 
necessary to protect parkway resources, visitors, or employees. The 
public will be notified of any changes through one or more methods 
listed in Sec.  1.7(a) of this chapter.
    (iv) This paragraph (a)(12) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (13) What conditions apply to alcohol use while operating an 
oversnow vehicle? In addition to the regulations in 36 CFR 4.23, the 
following conditions apply:
    (i) Operating or being in actual physical control of an oversnow 
vehicle is prohibited when the driver is under 21 years of age and the 
alcohol concentration in the driver's blood or breath is 0.02 grams or 
more of alcohol per 100 milliliters of blood or 0.02 grams or more of 
alcohol per 210 liters of breath.
    (ii) Operating or being in actual physical control of an oversnow 
vehicle is prohibited when the driver is a snowmobile guide or a 
snowcoach driver and the alcohol concentration in the operator's blood 
or breath is 0.04 grams or more of alcohol per 100 milliliters of blood 
or 0.04 grams or more of alcohol per 210 liters of breath.
    (iii) This paragraph (a)(13) also applies to non-administrative 
snowmobiles use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (14) Do other NPS regulations apply to the use of oversnow 
vehicles? (i) The use of oversnow vehicles is not subject to Sec. Sec.  
2.18(d), (e), and 2.19(b) of this chapter.
    (ii) This paragraph (a)(14) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users as authorized by the Superintendent.
    (15) Are there any forms of non-motorized oversnow transportation 
allowed in the parkway? (i) Non-motorized travel consisting of skiing, 
skating, snowshoeing, or walking is permitted unless otherwise 
restricted pursuant to this section or other provisions of 36 CFR Part 
1.
    (ii) The Superintendent may designate areas of the Parkway as 
closed, reopen such areas, or establish terms and conditions for non-
motorized travel within the Parkway in order to protect visitors, 
employees, or park resources.
    (iii) Dog sledding or ski-joring is prohibited.
    (16) May I operate a snowplane in the Parkway? The operation of a 
snowplane in the Parkway is prohibited.
    (17) Is violating any of the provisions of this section prohibited? 
Violating any of the terms, conditions or requirements of paragraphs 
(a)(1) through (a)(16) of this section is prohibited. Each occurrence 
of non-compliance with these regulations is a separate violation.
* * * * *
    4. Amend Sec.  7.22 by revising paragraph (g) to read as follows:


Sec.  7.22  Grand Teton National Park.

* * * * *
    (g)(1) What is the scope of this regulation? The regulations 
contained in paragraphs (g)(2) through (g)(20) of this section are 
intended to apply to the use of recreational and commercial 
snowmobiles. Except where indicated, paragraphs (g)(2) through (g)(20) 
do not apply to non-administrative snowmobile or snowcoach use by NPS, 
contractor or concessioner employees who live or work in the interior 
of

[[Page 54089]]

Yellowstone, or other non-recreational users authorized by the 
Superintendent.
    (2) What terms do I need to know? All the terms in Sec.  7.13(l)(1) 
of this part apply to this section. This paragraph (g) also applies to 
non-administrative snowmobile use by NPS, contractor or concessioner 
employees, or other non-recreational users authorized by the 
Superintendent.
    (3) May I operate a snowmobile in the Grand Teton National Park? 
(i) You may operate a snowmobile in Grand Teton National Park in 
compliance with use limits, operating hours and dates, equipment, and 
operating conditions established pursuant to this section. The 
Superintendent may establish additional operating conditions and 
provide notice of those conditions in accordance with Sec.  1.7(a) of 
this chapter or in the Federal Register.
    (ii) The authority to operate a snowmobile in Grand Teton National 
Park established in paragraph (g)(3)(i) of this section is in effect 
only through the winter season of 2006-2007.
    (4) May I operate a snowcoach in Grand Teton National Park? It is 
prohibited to operate a snowcoach in Grand Teton National Park except 
as authorized by the superintendent.
    (5) Must I operate a certain model of snowmobile in the park? Only 
commercially available snowmobiles that meet NPS air and sound 
emissions requirements may be operated in the park. The Superintendent 
will approve snowmobile makes, models, and year of manufacture that 
meet those requirements. Any snowmobile model not approved by the 
Superintendent may not be operated in the park.
    (6) How will the Superintendent approve snowmobile makes, models, 
and year of manufacture for use in Grand Teton? (i) Beginning with the 
2005 model year, all snowmobiles must be certified under 40 CFR part 
1051, to a Family Emission Limit no greater than 15 g/kW-hr for 
hydrocarbons and to a Family Emission Limit no greater than 120 g/kW-hr 
for carbon monoxide.
    (A) 2004 model year snowmobiles may use measured air emissions 
levels (official emission results with no deterioration factors 
applied) to comply with the air emission limits specified in paragraph 
(g)(6)(i) of this section.
    (B) Snowmobiles manufactured prior to the 2004 model year may be 
operated only if they have shown to have air emissions no greater than 
the requirements identified in paragraph (g)(6)(i) of this section.
    (C) The snowmobile test procedures specified by EPA (40 CFR Parts 
1051 and 1065) shall be used to measure air emissions from model year 
2004 and later snowmobiles. Equivalent procedures may be used for 
earlier model years.
    (ii) For sound emissions snowmobiles must operate at or below 
73dB(A) as measured at full throttle according to Society of Automotive 
Engineers J192 test procedures (revised 1985). Snowmobiles may be 
tested at any barometric pressure equal to or above 23.4 inches Hg 
uncorrected.
    (iii) These air and sound emissions requirements shall not apply to 
snowmobiles while in use to access lands authorized by paragraphs 
(g)(16) and (g)(18) of this section.
    (iv) The Superintendent may prohibit entry into the park of any 
snowmobile that has been modified in a manner that may adversely affect 
air or sound emissions.
    (7) Where must I operate my snowmobile in the park? You must 
operate your snowmobile only upon designated oversnow routes 
established within the park in accordance with Sec.  2.18(c) of this 
chapter. The following oversnow routes are so designated for snowmobile 
use through the winter season 2006-2007:
    (i) The frozen water surface of Jackson Lake for the purposes of 
ice fishing only. Those persons accessing Jackson Lake for ice fishing 
must possess a valid Wyoming fishing license and the proper fishing 
gear. Snowmobiles may only be used to travel to and from fishing 
locations on the lake.
    (ii) The Continental Divide Snowmobile Trail along U.S. 26/287 from 
Moran Junction to the eastern park boundary and along U.S. 89/287 from 
Moran Junction to the north park boundary.
    (iii) The Superintendent may open or close these routes, or 
portions thereof, for snowmobile travel, and may establish separate 
zones for motorized and non-motorized use on Jackson Lake, after taking 
into consideration the location of wintering wildlife, appropriate snow 
cover, public safety and other factors. Notice of such opening or 
closing shall be provided by one or more of the methods listed in Sec.  
1.7(a) of this chapter.
    (iv) This paragraph (g)(7) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (v) Maps detailing the designated oversnow routes will be available 
from Park Headquarters.
    (8) Must I travel with a commercial guide while snowmobiling in 
Grand Teton National Park? You will not be required to use a guide 
while snowmobiling in Grand Teton National Park.
    (9) Are there limits established for the numbers of snowmobiles 
permitted to operate in the park each day? The numbers of snowmobiles 
allowed to operate in the park each day will be limited to a certain 
number per road segment or location. The snowmobile limits are listed 
in the following table:

            Table 1 to Sec.   7.22.--Daily Snowmobile Limits
------------------------------------------------------------------------
                                                         Total number of
                 Road segment/location                     snowmobiles
------------------------------------------------------------------------
(i) GTNP and the Parkway--Total Use on CDST *.........                50
(ii) Jackson Lake.....................................               40
------------------------------------------------------------------------
* The Continental Divide Snowmobile Trail lies within both GTNP and the
  Parkway. The 50 daily snowmobile use limit applies to total use on
  this route in both parks.

    (10) When may I operate my snowmobile? The Superintendent will 
determine operating hours and dates. Except for emergency situations, 
changes to operating hours or dates may be made annually and the public 
will be notified of those changes through one or more of the methods 
listed in Sec.  1.7(a) of this chapter
    (11) What other conditions apply to the operation of oversnow 
vehicles? (i) The following are prohibited:
    (A) Idling an oversnow vehicle more than 5 minutes at any one time.
    (B) Driving an oversnow vehicle while the operator's motor vehicle 
license or privilege is suspended or revoked.
    (C) Allowing or permitting an unlicensed driver to operate an 
oversnow vehicle.
    (D) Driving an oversnow vehicle in willful or wanton disregard for 
the

[[Page 54090]]

safety of persons, property, or park resources or otherwise in a 
reckless manner.
    (E) Operating an oversnow vehicle without a lighted white headlamp 
and red taillight.
    (F) Operating an oversnow vehicle that does not have brakes in good 
working order.
    (G) The towing of persons on skis, sleds or other sliding devices 
by oversnow vehicles.
    (ii) The following are required:
    (A) All oversnow vehicles that stop on designated routes must pull 
over to the far right and next to the snow berm. Pullouts must be 
utilized where available and accessible. Oversnow vehicles may not be 
stopped in a hazardous location or where the view might be obscured, or 
operating so slowly as to interfere with the normal flow of traffic.
    (B) Oversnow vehicle drivers must possess a valid motor vehicle 
operator's license. The license must be carried by the driver at all 
times. A learner's permit does not satisfy this requirement.
    (C) Equipment sleds towed by a snowmobile must be pulled behind the 
snowmobile and fastened to the snowmobile with a rigid hitching 
mechanism.
    (D) Snowmobiles must be properly registered and display a valid 
registration from the United States or Canada.
    (iii) The Superintendent may impose other terms and conditions as 
necessary to protect park resources, visitors, or employees. The public 
will be notified of any changes through one or more methods listed in 
Sec.  1.7(a) of this chapter.
    (iv) This paragraph (g)(11) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (12) What conditions apply to alcohol use while operating an 
oversnow vehicle? In addition to the regulations in 36 CFR 4.23, the 
following conditions apply:
    (i) Operating or being in actual physical control of an oversnow 
vehicle is prohibited when the driver is under 21 years of age and the 
alcohol concentration in the driver's blood or breath is 0.02 grams or 
more of alcohol per 100 milliliters or blood or 0.02 grams or more of 
alcohol per 210 liters of breath.
    (ii) Operating or being in actual physical control of an oversnow 
vehicle is prohibited when the driver is a snowmobile guide or a snow 
coach operator and the alcohol concentration in the driver's blood or 
breath is 0.04 grams or more of alcohol per 100 milliliters of blood or 
0.04 grams or more of alcohol per 210 liters of breath.
    (iii) This paragraph (g)(12) also applies to non-administrative 
snowmobile use by NPS, contractor or concessioner employees, or other 
non-recreational users authorized by the Superintendent.
    (13) Do other NPS regulations apply to the use of oversnow 
vehicles? The use of oversnow vehicles in Grand Teton is not subject to 
Sec. Sec.  2.18(d) and (e) and 2.19(b) of this chapter.
    (14) Are there any forms of non-motorized oversnow transportation 
allowed in the park? (i) Non-motorized travel consisting of skiing, 
skating, snowshoeing, or walking is permitted unless otherwise 
restricted pursuant to this section or other provisions of 36 CFR Part 
1.
    (ii) The Superintendent may designate areas of the park as closed, 
reopen such areas, or establish terms and conditions for non-motorized 
travel within the park in order to protect visitors, employees, or park 
resources.
    (iii) Dog sledding or ski-joring is prohibited.
    (15) May I operate a snowplane in the park? The operation of a 
snowplane in Grand Teton National Park is prohibited.
    (16) 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. Requirements established in this section related to 
snowmobile operator age, guiding and licensing do not apply on these 
oversnow routes. The following routes only 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.
    (17) For what purpose may I use the routes designated in paragraph 
(g)(16) of this section? You may use those routes designated in 
paragraph (g)(16) of this section only to gain direct access to public 
lands adjacent to the park boundary.
    (18) May I continue to access private property within or adjacent 
to the park via snowmobile? Until such time as the United States takes 
full possession of an inholding in the park, the Superintendent may 
establish reasonable and direct access routes via snowmobile, to such 
inholding, or to private property adjacent to park boundaries for which 
other routes or means of access are not reasonably available. 
Requirements established in this section related to air and sound 
emissions, snowmobile operator age, licensing, and guiding do not apply 
on these oversnow routes. The following routes are designated for 
access to properties 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 the 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''.
    (iv) From the Moose-Wilson Road to the land commonly referred to as 
the ``Wittimer Property''.
    (v) From the Moose-Wilson Road to those two pieces of land commonly 
referred to as the ``Halpin Properties''.
    (vi) From the south 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 
to the piece of land commonly referred to as the ``Lost Creek Ranch''.
    (ix) Maps detailing designated routes will be available from Park 
Headquarters.
    (19) For what purpose may I use the routes designated in paragraph 
(g)(18) of this section? Those routes designated in paragraph (g)(18) 
of this section are only 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. 
Use of these roads by anyone else or for any other purpose is 
prohibited.
    (20) Is violating any of the provisions of this section prohibited? 
Violating any of the terms, conditions or requirements of paragraphs 
(g)(1) through (g)(19) of this section is prohibited. Each occurrence 
of non-compliance with these regulations is a separate violation.

    Dated: August 27, 2004.
Craig Manson,
Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 04-20021 Filed 9-3-04; 8:45 am]
BILLING CODE 4312-CT-P