[Federal Register Volume 88, Number 211 (Thursday, November 2, 2023)]
[Notices]
[Pages 75304-75307]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-24192]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

[Docket No. FWS-R4-NWRS-2023-0169; FF09M21200-234-FXMB1231099BPP0; OMB 
Control Number 1018-New]


Agency Information Collection Activities; Perspectives on Manatee 
Ecotourism

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Notice of information collection; request for comment.

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SUMMARY: In accordance with the Paperwork Reduction Act of 1995, we, 
the U.S. Fish and Wildlife Service (Service), are proposing a new 
information collection.

DATES: Interested persons are invited to submit comments on or before 
January 2, 2024.

ADDRESSES: Send your comments on the information collection request 
(ICR) by one of the following methods (please reference ``OMB Control 
No. 1018--Manatees'' in the subject line of your comment):
     Internet (preferred): https://www.regulations.gov. Follow 
the instructions for submitting comments on Docket No. FWS-R4-NWRS-
2023-0169.
     U.S. mail: Service Information Collection Clearance 
Officer, U.S. Fish and Wildlife Service, 5275 Leesburg Pike, MS: PRB 
(JAO/3W); Falls Church, VA 22041-3803.

FOR FURTHER INFORMATION CONTACT: Madonna L. Baucum, Service Information 
Collection Clearance Officer, by email at [email protected], or by 
telephone at (703) 358-2503. Individuals in the United States who are 
deaf, deafblind, hard of hearing, or have a speech disability may dial 
711 (TTY, TDD, or TeleBraille) to access telecommunications relay 
services. Individuals outside the United States should use the relay 
services offered within their country to make international calls to 
the point-of-contact in the United States.

SUPPLEMENTARY INFORMATION: In accordance with the Paperwork Reduction 
Act (PRA; 44 U.S.C. 3501 et seq.) and its implementing regulations in 
the Code of Federal Regulations (CFR) at 5 CFR 1320, all information 
collections require approval under the PRA. We may not conduct or 
sponsor and you are not required to respond to a collection of 
information unless it displays a currently valid OMB control number.
    As part of our continuing effort to reduce paperwork and respondent 
burdens, we invite the public and other Federal agencies to comment on 
new, proposed, revised, and continuing collections of information. This 
helps us assess the impact of our information collection requirements 
and minimize the public's reporting burden. It also helps the public 
understand our information collection requirements and provide the 
requested data in the desired format.
    We are especially interested in public comment addressing the 
following:
    (1) Whether or not the collection of information is necessary for 
the proper performance of the functions of the agency, including 
whether or not the information will have practical utility;
    (2) The accuracy of our estimate of the burden for this collection 
of information, including the validity of the methodology and 
assumptions used;
    (3) Ways to enhance the quality, utility, and clarity of the 
information to be collected; and
    (4) How might the agency minimize the burden of the collection of 
information on those who are to respond, including through the use of 
appropriate automated, electronic, mechanical, or other technological 
collection techniques or other forms of information technology, e.g., 
permitting electronic submission of response.
    Comments that you submit in response to this notice are a matter of 
public record. We will include or summarize each comment in our request 
to OMB to approve this ICR. Before including your address, phone 
number, email address, or other personal identifying information in 
your comment, you should be aware that your entire comment--including 
your personal identifying information--may be made publicly available 
at any time. While you can ask us in your comment to withhold your 
personal identifying information from public review, we cannot 
guarantee that we will be able to do so.
    Abstract: The Endangered Species Act of 1973 (ESA; 16 U.S.C. 1531 
et seq.) and the Marine Mammal Protection Act of 1972 (16 U.S.C. 1361 
et seq.) place importance on public education and outreach regarding 
manatee conservation. Researchers conducting noninvasive surveys can 
raise awareness about manatees and the importance of responsible 
ecotourism. Furthermore, the data collected from noninvasive surveys 
can inform management decisions and policies related to manatee 
conservation and ecotourism. Authorities and policymakers can also use 
this data to develop evidence-based strategies that balance the 
interests of stakeholders while safeguarding the well-being of manatees 
and their habitats.
    Ecotourism is broadly defined as traveling to an undisturbed area 
with the objective of admiring and studying the wildlife (Wallace and 
Pierce 1996). Tourism-based activities can provide economic benefits 
for the community, improve conservation, and be used as a tool for 
education (Ambe, Tsi, Chi, Siri, and Tita 2010; Hill and Gale 2009; 
Honey 2008; Masud, Aldakhil, Nassani, and Azam 2017; Snyman 2014; 
Stronza and Gordillo 2008; Cardenas et al. 2021). For ecotourism to be 
sustainable, it should encompass the dynamics between recreation and 
conservation of wildlife (Catlin et al. 2011). A conceptual framework 
provides managers and researchers a tool to assist them in achieving 
the best outcomes for both environmental conservation and the provision 
of wildlife tourism experiences (Catlin et al. 2011). The conceptual 
framework developed by Duffus and Dearden (1990) is referenced as 
nonconsumptive wildlife tourism in

[[Page 75305]]

which ``a human recreational engagement with wildlife wherein the focal 
organism is not purposefully removed or permanently affected by the 
engagement'' (Duffus and Dearden 1990, p. 215). Their framework 
identifies three major dimensions of wildlife tourism interaction: the 
wildlife user, the focal species and its habitat, and the historical 
relationships between them (Duffus and Dearden 1990; Catlin et al. 
2011). This study will focus on the wildlife user, which encompasses 
the visitor, the tourism operators, and the surrounding community that 
engage in ecotourism with manatees in Crystal River, Florida.
    Crystal River is a coastal city located in Citrus County, Florida. 
The City of Crystal River is adjacent to Kings Bay and the Kings Bay 
Springs Group, also referred to as the Crystal River/Kings Bay spring 
complex (Florida Department of Environmental Protection 2018). The 
Crystal River/Kings Bay spring complex (Springs Complex) is a first 
magnitude spring system composed of more than 70 springs; these 70 
springs account for 99 percent of the freshwater entering Kings Bay 
(Hammett et al. 1996). The most notable spring in the complex is Three 
Sisters Springs, which is located within the Crystal River National 
Wildlife Refuge, referred to hereon as the Refuge (Howard T. Odum 
Florida Springs Institute 2016). The Refuge was established in 1983 for 
the protection of the then endangered Florida Manatee, which gather in 
larger numbers at several of the spring vents during the wintertime to 
thermoregulate (Hartman 1979). Manatees also rely on the warm, calm, 
clear waters of Kings Bay to forage, rest, mate, and nurse. Due to the 
importance of this area for manatee survival, the Service designated 
this area as critical habitat for manatees under the ESA. During the 
colder months of the year, from November to March, several areas within 
the Refuge are roped off, and access to the public is restricted 
(manatee refuges) or completely prohibited (manatee sanctuaries).
    Manatee ecotourism has been a significant part of the Crystal River 
community for over 50 years. This ecotourism takes many forms, 
including but not limited to swim-with programs, guided kayak tours, 
boat tours, and guests who visit the Refuge on foot to view manatees 
gathered at the springs. Swim-with-manatee tours are by far the most 
popular ecotourism activity in Crystal River, with tours running from 
the early morning until sunset each day. To operate a tour within the 
Refuge, commercial operators must apply for a Special Use Permit (SUP; 
OMB Control No. 1018-0102). As of 2022, there were 27 permitted 
operators in Crystal River, and the Refuge estimates that they manage 
over 400,000 guests recreating within Refuge waters each year (FWS 
2022). Despite the popularity of manatee ecotourism in the area growing 
over the last few decades, only one study has investigated the 
perceptions surrounding ecotourism in Crystal River. Sorice et al. 
(2006) interviewed State and wildlife employees, the business 
community, resource managers, and advocacy groups. The study revealed 
overriding concerns from all stakeholders regarding water quality, 
overcrowding, education, harassment, and enforcement (Sorice et al. 
2006). However, the study also reported the lack of agreement between 
stakeholders on each issue. One of the suggestions to resolve conflict 
was to create a participatory management approach, to organize tour 
operators into an association that would work with governing officials 
to establish best practices for ecotourism (Sorice et al. 2006). As 
such, the Manatee Ecotourism Association was created in Crystal River 
in 2011 to create standardization for swim-with tours, mainly by 
practicing passive observation with the goal of following Refuge 
regulations and reducing manatee harassment.
    The purpose of the surveys is to interview manatee tour operators, 
kayak and paddlecraft outfitters, boat rental companies, their 
employees, visitors, and the Crystal River community, to obtain their 
perspectives on manatee ecotourism in Crystal River. We propose to 
collect the following information to determine the effect of tour 
operations on the manatee population:

A. Swim-With Tour Operator Survey (Owners/Employees)--

    This online survey gathers general information from business owners 
and tour operators regarding the preparation, size, frequency, nature, 
and content of ``swim-with-manatee'' tours, including specific 
questions about interactions with manatees. No sensitive or non-
sensitive personally identifiable information is requested from 
respondents.

B. Guided Kayak Tours (Owners/Employees)--

    This online survey gathers general information from business owners 
and tour operators regarding the preparation, size, frequency, nature, 
and content of guided kayak tours. Questions also work to build an 
understanding of how these tour firms view their business and the 
regulations surrounding them in relation to manatees. No sensitive or 
non-sensitive personally identifiable information is requested from 
respondents.

C. Business Owners of Unguided Boat/Kayak Rental or Lacking Special Use 
Permit--

    This online survey gathers general information from tour firm 
owners regarding their business practices, preparation, frequency, 
nature, and content of unguided boat or kayak tours. Questions also 
work to build an understanding of how these tour firms view their 
business and the regulations surrounding them in relation to manatees. 
No personally identifiable information is requested from respondents.

D. For Visitors on Trip (Guided Swim With Manatees Boat Tour)--

    This online survey gathers general information from tour consumers 
regarding their experiences on guided boat tours. Questions include 
respondents' motivations, preparations, and overall satisfaction with 
their tour experiences. Apart from zip/postal code, no other sensitive 
or non-sensitive personally identifiable information is requested from 
respondents.

E. Visitors on Guided Trip (Kayak)--

    This survey gathers general information from tour consumers 
regarding their experiences on guided kayak tours. Questions include 
respondents' motivations, preparations, and overall satisfaction with 
their tour experiences. Apart from zip/postal code, no other sensitive 
or non-sensitive personally identifiable information is requested from 
respondents.

F. Visitors on Unguided/Self-Tours--

    This survey gathers general information from tour consumers 
regarding their experiences on unguided/self-guided ``swim-with-
manatee'' tours. Questions include respondents' motivations, 
preparations, and overall satisfaction with their tour experiences. 
Apart from zip/postal code, no other sensitive or non-sensitive 
personally identifiable information is requested from respondents.

G. Land-Based Visitors at Refuge--

    This survey gathers general information from Crystal River National 
Wildlife Refuge visitors regarding their experience and perceptions of 
ecotourism and local tour operations. Questions also directly address 
respondents' feelings towards manatee conservation and education 
programs. Apart from zip/postal code, no other sensitive or non-
sensitive personally

[[Page 75306]]

identifiable information is requested from respondents.

H. Crystal River Community Perceptions on Manatee Ecotourism--

    This survey gathers general information from the Crystal River 
community regarding their perceptions of ecotourism, manatee education, 
and local tour operations' impact on both manatees in general as well 
as on Crystal River residents and businesses specifically. Apart from 
zip/postal code, no other sensitive or non-sensitive personally 
identifiable information is requested from respondents.
    The data collected from tour operators, guests, and Crystal River 
residents will be utilized for several purposes. First, the information 
will be analyzed to gain insight into the perspectives of tour 
operators. This understanding will enable the identification of areas 
for improvement and the development of sustainable practices in 
ecotourism. Secondly, the perceptions of guests participating in 
ecotours will be evaluated to gather valuable feedback. This feedback 
will serve as a crucial resource for tour operators to incorporate into 
their operations. By considering guest feedback, operators can 
establish best practices for activities conducted during ecotours.
    Moreover, a comprehensive framework for sustainable ecotourism 
should not solely focus on the interests and perceptions of guests and 
tour boat operators. It is equally important to involve the local 
community, including businesses such as hotels, restaurants, and gift 
shops, as well as Crystal River residents. This inclusive approach aims 
to ensure that the benefits of ecotourism are balanced with the 
concerns and needs of the local community. This comprehensive approach 
will contribute to the development of sustainable ecotourism practices 
that benefit all stakeholders involved.
    The public may request copies of any form or document contained in 
this information collection by sending a request to the Service 
Information Collection Clearance Officer (see ADDRESSES).
    Title of Collection: Perspectives on Manatee Ecotourism.
    OMB Control Number: 1018-New.
    Form Number: None.
    Type of Review: New.
    Respondents/Affected Public: Individuals/households and private 
sector.
    Respondent's Obligation: Voluntary.
    Frequency of Collection: On occasion.
    Total Estimated Annual Nonhour Burden Cost: None.

----------------------------------------------------------------------------------------------------------------
                                                                                      Average
                                  Average number  Average number  Average number    completion       Estimated
           Requirement               of annual     of responses      of annual       time per      annual burden
                                    respondents        each          responses       response         hours *
                                                                                     (minutes)
----------------------------------------------------------------------------------------------------------------
Group A: Swim-With Tour Operator
 Survey (Private Sector):
    Private Sector..............              10               1              10              20               3
Group B: Guided Kayak Tours
 (Private Sector):
    Private Sector..............               5               1               5              20               2
Group C: Business Owners of
 Unguided Boat/Kayak Rental or
 Lacking SUP Permit (Private
 Sector):
    Private Sector..............               1               1               1               8               0
Group D: Visitors on Trip
 (Individuals):
    Individuals.................               3               1               3               8               0
Group E: Visitors on Guided Trip
 (Private Sector):
    Individuals.................               3               1               3              10               1
Group F: Visitors on Unguided/
 Self-Tours (Private Sector):
    Individuals.................              13               1              13              10               2
Group G: Land-Based Visitors at
 Refuge (Private Sector):
    Individuals.................              30               1              30               5               3
Group H: Crystal River Community
 (Private Sector):
    Individuals.................              42               1              42               8               6
                                 -------------------------------------------------------------------------------
        Total...................             107  ..............             107  ..............              17
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* Rounded.

    An agency may not conduct or sponsor and a person is not required 
to respond to a collection of information unless it displays a 
currently valid OMB control number.
    The authority for this action is the Paperwork Reduction Act of 
1995 (44 U.S.C. 3501 et seq.).

References

Ambe, T.A., E.A. Tsi, G.T. Chi, B.N. Siri, and D.F. Tita. 2010. 
Ecological tourism and Cameroon-opportunities and threats. In 
Ecotourism: Development, Management and Impact (Krause, A., and E. 
Weir (eds.)). Nova Science Pub. Inc., UK, pp. 113-133.
C[aacute]rdenas, S., M.V. Gabela-Flores, A. Amrein, K. Surrey, L.R. 
Gerber, and H.M. Guzm[aacute]n. 2021. Visitor Knowledge, Pro-
Conservation Intentions, and Visitor Concern for the Impacts of 
Whale-Watching in Las Perlas Archipelago, Panama. Frontiers in 
Marine Science 8:627348.
Catlin, J., R. Jones, and T. Jones. 2011. Revisiting Duffus and 
Dearden's wildlife tourism framework. Biological Conservation 
144(5):1537-1544.
Duffus, D.A., and P. Dearden. 1990. Non-consumptive wildlife-
oriented recreation: A conceptual framework. Biological Conservation 
53(3):213-231.
Florida Department of Environmental Protection. 2018. Crystal River/
Kings Bay Basin Management Action Plan, 86 pages
Hartman, D.S. Ecology and behavior of the manatee (Trichechus 
manatus) in Florida. 1979. American Society of Mammalogists Special 
Publication, 5, 1-153.
Hammett, K.M., C.R. Goodwin, and G.L. Sanders. 1996. Tidal-Flow, 
Circulation, and Flushing Characteristics of Kings Bay, Citrus 
County, Florida. United States Geological Survey Open-File Report 
96-230. Tallahassee, Florida.
Hill, J.L., and T. Gale (Eds.). 2009. Ecotourism and Environmental 
Sustainability: Principles and Practice. Ashgate Publishing, Ltd. 
261 pages.
Honey, M. 2008. Ecotourism and Sustainable Development: Who Owns 
Paradise? (2nd ed.). Island Press, Washington, DC.
Odum, H.T. 2016. Florida Springs Institute. Kings Bay/Crystal River 
Springs Restoration Plan, 139 pages.
Masud, M.M., A.M. Aldakhil, A.A. Nassani, and M.N. Azam. 2017. 
Community-based

[[Page 75307]]

ecotourism management for sustainable development of marine 
protected areas in Malaysia. Ocean and Coastal Management 136:104-
112.
Snyman, S. 2014. The impact of ecotourism employment on rural 
household incomes and social welfare in six southern African 
countries. Tourism and Hospitality Research 14(1-2):37-52.
Sorice, M.G., C.S. Shafer, and R.B. Ditton 2006. Managing endangered 
species within the use-preservation paradox: The Florida manatee 
(Trichechus manatus latirostris) as a tourism attraction. 
Environmental Management 37(1):69-83.
Stronza, A., and J. Gordillo. 2008. Community views of ecotourism. 
Annals of tourism research 35(2):448-468.
U.S. Fish and Wildlife Service. 2023. Special Use Permit; OMB 
Control No. 1018-0102.
U.S. Fish and Wildlife Service. Crystal River National Wildlife 
Refuge. www.fws.gov/refuge/crystal-
river#:~:text=Visitor%20Services%20%E2%80%93%20In%20addition%20to,top
%20priorities%20for%20the%20refuge. Accessed Aug. 21, 2023.
Wallace, G.N., and S.M. Pierce. 1996. An evaluation of ecotourism in 
Amazonas, Brazil. Annals of Tourism Research 23(4):843-873.

Madonna Baucum,
Information Collection Clearance Officer, U.S. Fish and Wildlife 
Service.
[FR Doc. 2023-24192 Filed 11-1-23; 8:45 am]
BILLING CODE 4333-15-P