Migratory Bird Hunting; Proposed Frameworks for Early-Season Migratory Bird Hunting Regulations

Part IV

Department of the Interior

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Fish and Wildlife Service

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50 CFR Part 20

Migratory Bird Hunting; Proposed Frameworks for Early-Season Migratory

Bird Hunting Regulations; Proposed Rule

Proposed Rules

DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 20

RIN 1018-AD69

Migratory Bird Hunting; Proposed Frameworks for Early-Season

Migratory Bird Hunting Regulations

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Proposed rule; Supplemental.

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SUMMARY: The Fish and Wildlife Service (hereinafter the Service) is

proposing to establish the 1996-97 early-season hunting regulations for

certain migratory game birds. The Service annually prescribes

frameworks, or outer limits, for dates and times when hunting may occur

and the maximum number of birds that may be taken and possessed in

early seasons. Early seasons generally open prior to October 1, and

include seasons in Alaska, Hawaii, Puerto Rico, and the Virgin Islands.

These frameworks are necessary to allow State selections of final

seasons and limits and to allow recreational harvest at levels

compatible with population status and habitat conditions. This

supplement to the proposed rule also provides the Service's final

regulatory alternatives for the 1996-97 duck hunting season.

DATES: The comment period for proposed early-season frameworks will end

on August 1, 1996; and for late-season proposals on September 3, 1996.

The Service will hold a public hearing on late-season regulations

August 2, 1996, starting at 9 a.m.

abitat conditions. This

supplement to the proposed rule also provides the Service's final

regulatory alternatives for the 1996-97 duck hunting season.

DATES: The comment period for proposed early-season frameworks will end

on August 1, 1996; and for late-season proposals on September 3, 1996.

The Service will hold a public hearing on late-season regulations

August 2, 1996, starting at 9 a.m.

ADDRESSES: The Service will hold a public hearing August 2 in the

Department of the Interior's Auditorium, 1849 C Street, NW.,

Washington, DC. Parties should submit written comments on these

proposals and/or a notice of intention to participate in the late-

season hearing to the Chief, Office of Migratory Bird Management

(MBMO), U.S. Fish and Wildlife Service, room 634--Arlington Square,

Washington, DC 20240. The public may inspect comments during normal

business hours in room 634, Arlington Square Building, 4401 N. Fairfax

Drive, Arlington, Virginia.

FOR FURTHER INFORMATION CONTACT: Paul R. Schmidt, Chief, MBMO, U.S.

Fish and Wildlife Service, (703) 358-1714.

SUPPLEMENTARY INFORMATION:

Regulations Schedule for 1996

On March 22, 1996, the Service published in the Federal Register

(61 FR 11992) a proposal to amend 50 CFR part 20. The proposal dealt

with the establishment of seasons, limits, and other regulations for

migratory game birds under Secs. 20.101 through 20.107, 20.109, and

20.110 of subpart K. On June 13, 1996, the Service published in the

Federal Register (61 FR 30114) a second document providing supplemental

proposals for early- and late-season migratory bird hunting regulations

frameworks. The June 13 supplement also provided detailed information

on the 1996-97 regulatory schedule and announced the Service Migratory

Bird Regulations Committee and Flyway Council meetings

bpart K. On June 13, 1996, the Service published in the

Federal Register (61 FR 30114) a second document providing supplemental

proposals for early- and late-season migratory bird hunting regulations

frameworks. The June 13 supplement also provided detailed information

on the 1996-97 regulatory schedule and announced the Service Migratory

Bird Regulations Committee and Flyway Council meetings. On June 14,

1996, the Service published in the Federal Register (61 FR 30490) a

third document describing the Service's proposed 1996-97 regulatory

alternatives for duck hunting and its intent to consider establishing a

special youth waterfowl hunting day.

This document is the fourth in a series of proposed, supplemental,

and final rulemaking documents for migratory bird hunting regulations

and deals specifically with proposed frameworks for early-season

regulations. It will lead to final frameworks from which States may

select season dates, shooting hours, and daily bag and possession

limits for the 1996-97 season. The Service has considered all pertinent

comments received through July 8, 1996, in developing this document. In

addition, new proposals for certain early-season regulations are

provided for public comment. Comment periods are specified above under

DATES. The Service will publish final regulatory frameworks for early

seasons in the Federal Register on or about August 16, 1996.

This supplemental proposed rulemaking consolidates further changes

in the original framework proposals published in the March 22 Federal

Register. The regulations for early waterfowl hunting seasons proposed

in this document are based on the most current information available

about the status of waterfowl populations and habitat conditions on the

breeding grounds.

Presentations at Public Hearing

supplemental proposed rulemaking consolidates further changes

in the original framework proposals published in the March 22 Federal

Register. The regulations for early waterfowl hunting seasons proposed

in this document are based on the most current information available

about the status of waterfowl populations and habitat conditions on the

breeding grounds.

Presentations at Public Hearing

Five Service employees presented reports on the status of various

migratory bird species for which early hunting seasons are proposed.

These reports are briefly reviewed below.

Dr. Jim Dubovsky, Waterfowl Specialist, presented information on

1996 habitat conditions for waterfowl, preliminary estimates of duck

abundance, and harvests during the 1995 September teal seasons. Most of

the midcontinent region experienced unusually cool temperatures during

May and early June. Spring conditions were delayed approximately 2-3

weeks throughout most of the region. In the northcentral United States,

southern Saskatchewan, and southern Manitoba, habitat conditions for

nesting ducks were good to excellent. Abundant water existed in natural

and artificial basins, and land managed in conservation easements in

the United States continued to provide good nesting cover. Southern

Alberta had improved wetland conditions relative to recent years, but

nesting cover was limited because grazing reduced the amount of

residual vegetation, and cool temperatures slowed growth of grasses.

The pond estimate for the northcentral United States and prairie Canada

combined was 7.5 million. This estimate was the second highest

recorded, and was 61 percent above the long-term average. Farther north

in the prairie provinces and in the Northwest Territories, habitat

conditions were much improved from last spring, when habitats were

extremely dry and forest fires were common. This year, most areas had

abundant water

central United States and prairie Canada

combined was 7.5 million. This estimate was the second highest

recorded, and was 61 percent above the long-term average. Farther north

in the prairie provinces and in the Northwest Territories, habitat

conditions were much improved from last spring, when habitats were

extremely dry and forest fires were common. This year, most areas had

abundant water. Conditions in Alaska and in survey areas throughout

eastern portions of the United States and Canada also were favorable

for nesting waterfowl. Estimates of duck abundance for most species

during spring 1996 generally were similar to those of last year. Blue-

winged teal and northern shoveler increased in abundance. American

wigeon numbers decreased. The 1995 May breeding population survey

yielded an estimate of 6.4 million blue-winged teal, which was greater

than the 1995 estimate of 5.1 million and 53 percent above the long-

term average. The estimated harvest of blue-winged teal during the 1995

September teal season was approximately 370,000 birds, which was about

100,000 birds more than the 1994 teal-season harvest. However, the 1995

estimate was within the range of harvests experienced historically.

Band-recovery rates of blue-winged teal suggested that 1995-96 harvest

rates were similar to or lower than those during the 1970's and early

1980's.

Dr. David Caithamer, Wildlife Biologist, reviewed the status of

several populations of Canada geese for which the Service is proposing

September seasons. In Alaska five subspecies of Canada geese are hunted

including Dusky Canada geese and Cackling Canada geese. Numbers of

Dusky Canada geese, which nest primarily in the Copper River Delta of

Alaska, have declined steadily since an earthquake in 1964 altered

their nesting habitat and

eviewed the status of

several populations of Canada geese for which the Service is proposing

September seasons. In Alaska five subspecies of Canada geese are hunted

including Dusky Canada geese and Cackling Canada geese. Numbers of

Dusky Canada geese, which nest primarily in the Copper River Delta of

Alaska, have declined steadily since an earthquake in 1964 altered

their nesting habitat and

resulted in lowered recruitment rates. The January 1995 population

index revealed approximately 8,500 geese. Unfortunately, no survey was

conducted in January 1996 due to the furlough of federal employees and

inclement weather. However, preliminary results from a spring survey of

Dusky geese on the Copper River Delta suggest that the size of the

breeding population is similar to the record-low size observed last

spring. The Service remains concerned about the continued poor status

of this population. The December 1995 survey of Cackling Canada geese

revealed approximately 161,000 geese, which was about 6 percent higher

than 1994 index. This population has grown approximately 14 percent per

year since 1986. The 3 other subspecies of Canada geese hunted in

Alaska are thought to be at or above objective levels. In the Pacific

Flyway, the Rocky Mountain Population of Canada geese increased 18

percent from 1995 to 109,000 geese. The population of Mississippi

Flyway giant Canada geese has increased at a rate of about 5 percent

per year during the last 10 years. In some areas, numbers of giant

geese have increased to record-high and nuisance levels. The situation

is similar in the northeastern U.S., where the ``resident'' goose

population has approximately doubled since 1989 to nearly 800,000

birds. The Service is concerned about the rapid growth rate and large

sizes of resident Canada goose populations in parts of the Atlantic and

Mississippi Flyways

some areas, numbers of giant

geese have increased to record-high and nuisance levels. The situation

is similar in the northeastern U.S., where the ``resident'' goose

population has approximately doubled since 1989 to nearly 800,000

birds. The Service is concerned about the rapid growth rate and large

sizes of resident Canada goose populations in parts of the Atlantic and

Mississippi Flyways. In some regions, the management of these large

populations of resident geese is confounded by the presence of other

populations, which are below population objectives. A case in point is

the migratory population of Atlantic Canada geese which nests in

northern Quebec and winters in the Atlantic Flyway. The number of

breeding pairs of Atlantic Canada geese has declined from 118,000 in

1988 to only 29,000 in 1995. The Service recognizes the challenge

facing management agencies which are striving to increase migrant

populations, while simultaneously attempting to decrease resident

populations.

Mr. David Sharp, Central Flyway Representative, reported on the

status and harvests of sandhill cranes. The Mid-Continent Population

appears to have stabilized following dramatic increases in the early

1980s. The Central Platte River Valley 1996 preliminary spring index,

uncorrected for visibility, was 315,200. This index is 15 percent

higher than 1995's index of 273,376. However, the photo-corrected 3-

year average for the 1993-95 period was 394,093, which was 6 percent

below the previous year's 3-year running average and within the

established population-objective range of 343,000-465,000 cranes. All

Central Flyway States, except Nebraska, elected to allow crane hunting

in portions of their respective States in 1995-96; about 20,200 Federal

permits were issued and approximately 7,400 permittees hunted one or

more times. The number of permittees and active hunters were similar to

the previous year's seasons

d within the

established population-objective range of 343,000-465,000 cranes. All

Central Flyway States, except Nebraska, elected to allow crane hunting

in portions of their respective States in 1995-96; about 20,200 Federal

permits were issued and approximately 7,400 permittees hunted one or

more times. The number of permittees and active hunters were similar to

the previous year's seasons. About 20,777 cranes were harvested in

1995-96, a 20 percent increase from the previous year's estimate.

Harvest from Alaska, Canada and Mexico are estimated to be less than

10,000 for 1995-96 sport-hunting seasons. The total North American

sport harvest was estimated to be about 34,773, which is an all time

record high level. Annual surveys of the Rocky Mountain Population,

which migrates through the San Luis Valley of Colorado in March,

suggest a relatively stable population since 1984. The 1996 index of

20,500 cranes was within the established objective range of 18,000-

22,000. Limited special seasons were held during 1995 in portions of

Arizona, Montana, New Mexico, Utah, and Wyoming, and resulted in an

estimated harvest of 378 cranes.

Dr. John Bruggink, Eastern Shore and Upland Game Bird Specialist,

reported on the 1996 status of the American woodcock. The 1995

recruitment index for the Eastern Region (1.2 immatures per adult

female) was 29 percent below the long-term regional average; the

recruitment index for the Central Region (1.4 immatures per adult

female) was 18 percent below the long-term regional average. Singing-

ground Survey data indicated that the number of displaying woodcock

decreased (P<0.01) between 1995 and 1996 in the Eastern and Central

regions (-20.2 and -11.5 percent, respectively). Trends from the

Singing-ground Survey during 1986-96 also were negative (-3.2 and -3.7

percent per year for the Eastern and Central regions, respectively)

(P<0.01)

below the long-term regional average. Singing-

ground Survey data indicated that the number of displaying woodcock

decreased (P<0.01) between 1995 and 1996 in the Eastern and Central

regions (-20.2 and -11.5 percent, respectively). Trends from the

Singing-ground Survey during 1986-96 also were negative (-3.2 and -3.7

percent per year for the Eastern and Central regions, respectively)

(P<0.01). There were long-term (1968-96) declines (P<0.01) of 2.5

percent per year in the Eastern Region and 1.6 percent per year in the

Central Region.

Mr. David Dolton, Western Shore and Upland Game Bird Specialist,

presented the mourning dove population status. The report summarized

call-count information gathered over the past 31 years. Trends were

calculated for the most recent 2 and 10-year intervals and for the

entire 31-year period. Between 1995 and 1996, the average number of

doves heard per route declined significantly in all three management

units. In the Eastern Management Unit (EMU), a significant decline in

doves heard was found over the most recent 10 years, but no trend was

indicated over 31 years. The Central Management Unit (CMU) showed

significant declines for both the 10 and 31-year time frames. In the

Western Management Unit (WMU), no trend was evident over the most

recent 10 years, but there has been a significant decline over 31

years. Trends for doves seen at the unit level over the 10 and 31-year

periods agreed with trends for doves heard in the WMU. No trend was

found in doves seen over 10 years in the EMU and for 31 years in the

CMU. Trends for doves seen in other time periods were comparable to

those in doves heard.

Mr. Dolton also presented the status of western white-winged doves

in Arizona. Since the 1980's, whitewing populations have remained

relatively stable. The 1996 whitewing call-count index of 31.1 doves

heard per route was essentially the same as the index of 31.2 doves

heard per route in 1995. Since 1987, hunters have harvested around

100,000 birds annually

mparable to

those in doves heard.

Mr. Dolton also presented the status of western white-winged doves

in Arizona. Since the 1980's, whitewing populations have remained

relatively stable. The 1996 whitewing call-count index of 31.1 doves

heard per route was essentially the same as the index of 31.2 doves

heard per route in 1995. Since 1987, hunters have harvested around

100,000 birds annually. In 1995, an estimated 107,000 birds were

harvested, a 22 percent decrease from 1994.

Mr. Dolton then reported on the status of eastern white-winged

doves and white-tipped doves in Texas. Results of the 1996 whitewing

call-count survey indicate 391,000 birds were nesting in the Lower Rio

Grande Valley counties of Starr, Hidalgo, Cameron, and Willacy. This is

an 11 percent decrease from 1995, but 6 percent below the previous 6-

year average count (1990-95). This decline may be due to a drought in

the Lower Rio Grande Valley since December 1994 which may be affecting

available native and domestic feed and nesting habitat. In Upper South

Texas, an estimated 620,000 whitewings were nesting throughout a 19-

county area. This was essentially the same count as last year. West

Texas also supports a small population of whitewings. The 1996 estimate

of 18,750 birds was 19 percent above the 1995 estimate. For white-

tipped doves, an average of 0.47 birds were heard per stop in both

brush and citrus locations in 1996.

Last, Mr. Dolton presented population and harvest information on

band-tailed pigeons. Band-tailed pigeons are managed as two separate

populations: the Coastal Population (Washington, Oregon, California,

and Nevada) and the Four-corners or Interior Population (Utah,

Colorado, Arizona, and New Mexico). For the Coastal population, the

Breeding Bird Survey (BBS) indicates a significant decline between 1968

and 1995. Mineral site counts conducted in Oregon in 1995 showed a 23

percent decrease in pigeon use over 1994.

o separate

populations: the Coastal Population (Washington, Oregon, California,

and Nevada) and the Four-corners or Interior Population (Utah,

Colorado, Arizona, and New Mexico). For the Coastal population, the

Breeding Bird Survey (BBS) indicates a significant decline between 1968

and 1995. Mineral site counts conducted in Oregon in 1995 showed a 23

percent decrease in pigeon use over 1994.

Washington's call-count showed essentially no change in the population

between 1994 and 1995. Between 1975 and 1995 there was no significant

trend found in the population, but a significant increase was noted

during the most recent 5-year period between 1991 and 1995. Two

indirect population estimates suggest that the population was between

2.4 and 3.1 million birds in 1992. With continuing restrictions on bag

limits and season length, the 1995 harvest was an estimated 2,074

pigeons in Oregon and 10,428 in California. Washington has had a closed

season since 1991. In the Four-corners area, BBS data showed a stable

population between 1968 and 1995. The 1995 combined harvest for all

four States was 1,518 birds; well below the harvest in earlier years

which ranged up to 6,000 birds.

Comments Received at Public Hearing

Mr. Dale Bartlett, representing the Humane Society of the United

States (HSUS), expressed concern that the Service continues to

establish liberal hunting regulations on species without adequate data.

HSUS believes that sea duck seasons should be closed or severely

restricted until adequate data on population status and species biology

are available. HSUS claims that the Service acted too quickly to

liberalize duck hunting regulations since the populations of many

species remain below goals set by the North American Waterfowl

Management Plan (NAWMP). HSUS is frustrated with the failure of the

Service to close seasons on species in decline such as woodcock,

coastal populations of band-tailed pigeon, white-winged doves in

Arizona, and mourning doves in the Western Management Unit

ickly to

liberalize duck hunting regulations since the populations of many

species remain below goals set by the North American Waterfowl

Management Plan (NAWMP). HSUS is frustrated with the failure of the

Service to close seasons on species in decline such as woodcock,

coastal populations of band-tailed pigeon, white-winged doves in

Arizona, and mourning doves in the Western Management Unit. HSUS

believes that bag limits and season lengths on several species of

webless migratory birds are ridiculously high and fly in the face of

the principles of wise and ethical use of the resource. They strongly

recommend that opening dates in Alaska be delayed at least 2 weeks to

allow birds to leave their natal marshes. They also recommend that the

Service require all seasons to open at noon during mid-week to reduce

large kills. They further urged the Service to disallow one-half hour

before sunrise shooting. Finally, they expressed concern about the

general direction of the Service towards resident Canada goose

management.

Mr. Don Kraege, representing the Pacific Flyway Council, expressed

appreciation for the Service's efforts to enhance cooperative waterfowl

management. He stated that the Flyway generally supports the idea of

limiting zone/split configurations for duck hunting. However, he

requested the Service reconsider the Council's recommendation on splits

and zones for duck seasons. Specifically, he recommended removal of the

requirement that duck seasons in different zones differ by at least one

day. He suggested that this change would lead to regulatory

simplification, increased hunter satisfaction, enhance waterfowl

habitat efforts on private lands, and would not significantly alter

harvest.

Mr. Joe Kramer, representing the Central Flyway Council, reviewed

recommendations passed by the Council regarding establishment of this

year's migratory bird hunting regulations. He supported the proposed

expansion of the Rocky Mountain Greater Sandhill Crane hunt area in

Wyoming

ter satisfaction, enhance waterfowl

habitat efforts on private lands, and would not significantly alter

harvest.

Mr. Joe Kramer, representing the Central Flyway Council, reviewed

recommendations passed by the Council regarding establishment of this

year's migratory bird hunting regulations. He supported the proposed

expansion of the Rocky Mountain Greater Sandhill Crane hunt area in

Wyoming. Reviewing status information on blue- and green-winged teal

populations, he indicated that this year's combined spring-breeding

population of about 8.9 million was a record high level and that the

projected fall flight will probably be the largest ever recorded. He

indicated that the Central and Mississippi Flyway Councils would

complete a more comprehensive harvest approach for these special

seasons by March 1997. He supported the Central Flyway Council's

recommendation to expand this year's teal bag limit from 4 to 5 and

increase the teal season length from 9 to 16 days. He also reaffirmed

the Council's strong support for the Adaptive Harvest Management

process, but recommended an increase in season length from 60 to 67

days under the ``liberal'' alternative. He supported the recommended

change in the redhead daily bag limit from 1 to 2 in the ``liberal''

alternative for the Central and Mississippi Flyways.

With respect to the zone/split criteria for the establishment of

duck hunting seasons, Mr. Kramer reiterated the Central Flyway's

objection to constraints on the use of additional days in the High

Plains Mallard Management Unit. Mr. Kramer supported efforts by the

Service to review baiting regulations, but he pointed out continuing

desires by many Central Flyway States to review the timing of the

early- and late-season meetings. Finally, Mr. Kramer supported the

additional flexibility allowed to address resident goose problems

through special hunting seasons, and the concept of establishing a

youth waterfowl hunt.

Mr. Charles D

pported efforts by the

Service to review baiting regulations, but he pointed out continuing

desires by many Central Flyway States to review the timing of the

early- and late-season meetings. Finally, Mr. Kramer supported the

additional flexibility allowed to address resident goose problems

through special hunting seasons, and the concept of establishing a

youth waterfowl hunt.

Mr. Charles D. Kelley, representing the Southeastern Association of

Fish and Wildlife Agencies, commended the Service for its efforts in

developing the Harvest Information Program, which will provide improved

harvest estimates for a number of species. He also stated that he

appreciated the Service's recognition of the problems caused by

rapidly-expanding populations of giant Canada geese and the need to

work toward solving them.

Ms. Anne Muller, representing the Committee to Abolish Sport

Hunting, and its affiliate, the Coalition to Prevent the Destruction of

Canada Geese, commented that State and Federal wildlife agencies are

exploiting wild Canada geese to supply hunters with targets by

increasing resident goose populations on wildlife management areas in

every State. She claimed that this is done in order to collect excise

taxes on lethal weapons and ammunition. Further, she objected to the

roundup and shipment of geese by game agencies personnel to slaughter

houses to feed the poor, and believed this action violates the rights

of the general citizenry. Ms. Muller asked that the Service change the

current depredation permitting process. Finally, she requested that

public hearings be held during evening hours to increase pubic

attendance and that the Service directly involve communities to help

resolve nuisance Canada geese conflicts.

Mr. Peter Muller, representing the Committee to Abolish Sport

Hunting, expressed concern that the special Canada goose seasons

currently held in New York and New Jersey were responsible for the

decline of migrant geese nesting in northern Quebec

during evening hours to increase pubic

attendance and that the Service directly involve communities to help

resolve nuisance Canada geese conflicts.

Mr. Peter Muller, representing the Committee to Abolish Sport

Hunting, expressed concern that the special Canada goose seasons

currently held in New York and New Jersey were responsible for the

decline of migrant geese nesting in northern Quebec. He questioned

whether the criteria allowing 10 and 20 percent harvest of migrant

geese during the special early and late seasons, respectively, were too

liberal. Further, he argued that statistics regarding this goose

population were highly dubious since very little banding had occurred

on the breeding ground to accurately determine the racial composition

of the harvest. He indicated that little is known regarding the

interactions between resident and migrant geese and recommended

suspension of these seasons until more information regarding population

affiliation was available. To assess the beneficial effects of these

liberal hunting seasons on resident Canada geese, he asked that the

Service develop an Environmental Impact Statement (EIS). He requested

that the Service maintain and enforce strict waterfowl baiting

regulations. Finally, he was disturbed by the trend of State and

Federal management agencies of shifting to more liberal policies.

Dr. Ann Stirling Frisch expressed opposition to a proposed new hunt

area for special early Canada goose seasons in Wisconsin. Dr. Frisch

suggested such seasons are ineffective at controlling

local Canada goose populations, that habitat management was a

preferable alternative to hunting seasons, that other lethal means of

control were undesirable. She further stated that National

Environmental Policy Act (NEPA) requirements were not met in

establishing such seasons.

Written Comments Received

e seasons in Wisconsin. Dr. Frisch

suggested such seasons are ineffective at controlling

local Canada goose populations, that habitat management was a

preferable alternative to hunting seasons, that other lethal means of

control were undesirable. She further stated that National

Environmental Policy Act (NEPA) requirements were not met in

establishing such seasons.

Written Comments Received

The preliminary proposed rulemaking, which appeared in the March 22

Federal Register, opened the public comment period for migratory game

bird hunting regulations. As of July 8, 1996, the Service had received

82 comments; 18 of these specifically addressed early-season issues and

9 addressed the proposed regulatory alternatives for duck hunting.

Early-season comments are summarized below and numbered in the order

used in the March 22 Federal Register. Only the numbered items

pertaining to early seasons for which written comments were received

are included. The Service received recommendations from all four Flyway

Councils. Some recommendations supported continuation of last year's

frameworks. Due to the comprehensive nature of the annual review of the

frameworks performed by the Councils, support for continuation of last

year's frameworks is assumed for items for which no recommendations

were received. Council recommendations for changes in the frameworks

are summarized below.

1. Ducks

The categories used to discuss issues related to duck harvest

management are as follows: (A) General Harvest Strategy, (B) Framework

Dates, (C) Season Length, (D) Closed Seasons, (E) Bag Limits, (F) Zones

and Split Seasons, and (G) Special Seasons/Species Management. Only

those categories containing substantial recommendations are included

below.

A. Harvest Strategy Considerations

1. Ducks

The categories used to discuss issues related to duck harvest

management are as follows: (A) General Harvest Strategy, (B) Framework

Dates, (C) Season Length, (D) Closed Seasons, (E) Bag Limits, (F) Zones

and Split Seasons, and (G) Special Seasons/Species Management. Only

those categories containing substantial recommendations are included

below.

A. Harvest Strategy Considerations

In the March 22, 1996, Federal Register, the Service described the

underlying principles of Adaptive Harvest Management (AHM) and the

progress made on its implementation in 1995. In addition, the Service

reported recommendations made by an AHM technical working group for the

1996-97 regulatory process. Comprised of representatives from the

Service and the four Flyway Councils, the working group was established

in 1992 to develop technical recommendations for improving duck harvest

regulations.

One of the recommendations of the AHM working group for the 1996-97

regulatory process was to continue the regulatory alternatives used in

1995, with a minor exception in the Pacific Flyway. In 1995, the

Service limited the choice of regulatory alternatives for the 1995-96

regular duck hunting season to three sets of frameworks similar to

those in effect during the 1979-93 hunting seasons. These three sets of

frameworks were described in a relative sense as restrictive, moderate,

and liberal. In general, specific guidelines for selection of one of

the regulatory alternatives are based on the size of the mallard

breeding population and habitat conditions.

Council Recommendations: In the June 13, 1996, Federal Register,

the Service reported that all four Flyways continued to express support

for the AHM approach

re described in a relative sense as restrictive, moderate,

and liberal. In general, specific guidelines for selection of one of

the regulatory alternatives are based on the size of the mallard

breeding population and habitat conditions.

Council Recommendations: In the June 13, 1996, Federal Register,

the Service reported that all four Flyways continued to express support

for the AHM approach. The Mississippi, Central, and Pacific Flyway

Councils recommended some specific modifications to the regulatory

alternatives recommended by the working group and these recommendations

were identified in the June 13, 1996, document and are reiterated here

and under ``Framework Dates,'' ``Season Length,'' ``Bag Limits,'' and

``Special Seasons/Species Management.''

The Atlantic Flyway Council endorsed the AHM technical working

group's recommendations regarding harvest-management objectives, use of

mid-continent mallard population models, and regulatory options for the

Atlantic Flyway in 1996.

The Upper-Region Regulations Committee of the Mississippi Flyway

Council expressed support for no more than three regulations packages,

but recommended a harvest-management objective (objective function)

that achieves an equal balance between harvest and a breeding

population objective of 8.1 million mallards.

The Lower-Region Regulations Committee of the Mississippi Flyway

Council requested the working group investigate the addition of both a

more conservative and a more liberal regulatory package to the group of

regulations packages offered for the 1997-98 hunting season.

The Central Flyway Council supported the working group's

recommendation to modify the objective function so that it continue to

reflect the broad resource values of the population goals of the NAWMP,

but commented that many technical issues need to be resolved before

AHM's fully operational for multiple duck stocks

to the group of

regulations packages offered for the 1997-98 hunting season.

The Central Flyway Council supported the working group's

recommendation to modify the objective function so that it continue to

reflect the broad resource values of the population goals of the NAWMP,

but commented that many technical issues need to be resolved before

AHM's fully operational for multiple duck stocks.

The Pacific Flyway Council endorsed the AHM working group's 1996

duck regulations approach and, with the exception of a harvest strategy

for pintails, recommendations for 1996.

Public-Hearing Comments: Mr. Joe Kramer, Chairman of the Central

Flyway Council, expressed continued support for AHM. However, he

questioned the Service's proposal to largely maintain the interim

regulatory alternatives from last year.

Mr. Don Kraege, Chairman of the Pacific Flyway Council Study

Committee, expressed support for the cooperative development of AHM as

a means to improve the scientific management of mallards and other

species.

Written Comments: The Texas Parks and Wildlife Department supports

the concept of AHM, but feels that minor changes to regulatory

alternatives should not be precluded because full implementation of AHM

may take several years.

The Missouri Department of Conservation applauded the Service for

continued progress on AHM and supports: (1) the use of NAWMP population

goals; (2) regulatory alternatives that are similar to those of 1995;

ldlife Department supports

the concept of AHM, but feels that minor changes to regulatory

alternatives should not be precluded because full implementation of AHM

may take several years.

The Missouri Department of Conservation applauded the Service for

continued progress on AHM and supports: (1) the use of NAWMP population

goals; (2) regulatory alternatives that are similar to those of 1995;

(3) continued use of current hypotheses concerning harvest and

reproduction; and (4) AHM development for other populations or species.

Missouri also noted the important role of communication in ensuring

long-term support for AHM and urged that data-collection efforts be

maintained in the face of changing budgets and priorities. In a second

letter, the Missouri expressed continued support for AHM, including the

proposed regulatory alternatives. Missouri also urged continued

progress on a broader range of regulatory alternatives and inclusion of

other duck species in the AHM strategy.

The Minnesota Department of Natural Resources supports the three

regulatory alternatives as outlined in the June 14 Supplement.

Minnesota also supports finalization of the regulatory alternatives

prior to the July Flyway meetings and wishes to pursue cooperative

development of regulatory alternatives that will be appropriate over

the long-term for the Mississippi Flyway.

The Illinois Department of Natural Resources encouraged the Service

to examine the pros and cons of four or five regulatory alternatives,

rather than three. Illinois believes that the addition of a more

restrictive and/or a more liberal alternative could provide greater

flexibility in responding to changing population status, but may be

undesirable if they lead to greater annual fluctuations in hunting

regulations.

of Natural Resources encouraged the Service

to examine the pros and cons of four or five regulatory alternatives,

rather than three. Illinois believes that the addition of a more

restrictive and/or a more liberal alternative could provide greater

flexibility in responding to changing population status, but may be

undesirable if they lead to greater annual fluctuations in hunting

regulations.

The Kansas Department of Wildlife and Parks has supported the

principles of AHM, but is concerned that the process now is being used

to circumvent the traditional process of allowing input of the States

through the Flyway Councils. Kansas objects to the AHM technical

working group establishing regulations by ``popular vote'' among

individuals from all four Flyways, employees of the Service's MBMO, and

their academic associates. Kansas is also concerned that the regulatory

alternatives used in 1995 and proposed for 1996 are becoming entrenched

and that future changes will be increasingly difficult.

Service Response: The Service appreciates the continued support of

the Flyway Councils and States for implementation of AHM. Agreement on

a limited number of regulatory alternatives, on the role of NAWMP

population goals in guiding harvest management, and on alternative

hypotheses of mallard population dynamics has greatly reduced the

annual debate over appropriate duck-hunting regulations. More

importantly, these elements constitute key components of a systematic

process to increase knowledge of regulatory effects and, thus, improve

long-term management performance. The Service also recognizes, however,

that continued progress in AHM will demand deliberate and methodical

attention to a number of previously ignored or unresolved issues in

waterfowl management

nting regulations. More

importantly, these elements constitute key components of a systematic

process to increase knowledge of regulatory effects and, thus, improve

long-term management performance. The Service also recognizes, however,

that continued progress in AHM will demand deliberate and methodical

attention to a number of previously ignored or unresolved issues in

waterfowl management. These include: (1) hunter dynamics and how

regulations affect hunter activity and success; (2) factors affecting

duck reproduction on a continental scale; (3) relative costs and

benefits of species, population, and sex-specific management; and (4)

allocation of harvest opportunities among countries, Flyways, and

States. Continued progress also will depend heavily on further

education and communication, particularly as it concerns field

biologists, wildlife-area managers, and other resource-agency staff.

The Service is urging its partners to cooperatively address these

technical and communication issues in a comprehensive and coherent

manner. The Service recognizes that schedules for clarifying issues,

receiving Flyway Councils and others input, and conducting necessary

assessments must be developed so that expectations for progress are

realistic. The Service believes that AHM implementation must itself be

adaptive and that there will be a continuing need for periodic review

of all technical specifications, including management objectives,

regulatory alternatives, and theories (or models) of population

dynamics.

The limited set of regulatory alternatives (i.e., ``restrictive'',

``moderate'', and ``liberal'') continues to draw criticism from some

Flyway Councils and States. At issue is both the number of regulatory

alternatives and the specific combination of season length and bag

limits for each alternative

gement objectives,

regulatory alternatives, and theories (or models) of population

dynamics.

The limited set of regulatory alternatives (i.e., ``restrictive'',

``moderate'', and ``liberal'') continues to draw criticism from some

Flyway Councils and States. At issue is both the number of regulatory

alternatives and the specific combination of season length and bag

limits for each alternative. The Service recognizes that the proposed

alternatives do not satisfy all partners and will continue to treat

these alternatives as interim, pending further investigation by the AHM

technical working group and others. However, the Service believes that

adjustments to the set of regulatory alternatives should be based on

the following criteria: (1) alternatives should differ sufficiently so

that differences in harvest levels and their impacts on duck

populations can be detected with current monitoring programs; (2) the

set of alternatives should produce enough variation in harvest rates to

permit identification of optimal harvest strategies; and (3) regulatory

alternatives should reflect the needs of law enforcement and the

desires and abilities of hunters. The set of alternatives can be

reduced or expanded as needed, but it is important to use the

alternatives long enough to identify patterns in harvest rates under

each alternative. Because relevant issues have not yet been addressed

adequately, the Service is denying requests this year to modify the

basic structure of regulatory alternatives. Prior to the 1997-98

hunting season, the Service will work with the Flyway Councils and the

AHM technical working group to investigate the merits of major

modifications to the set of regulatory alternatives.

The role of the AHM working group is to provide technical guidance

to decision-makers. This working group is comprised of two

representatives appointed by each Flyway Council, in addition to

biological staff from the Service and the National Biological Service

Councils and the

AHM technical working group to investigate the merits of major

modifications to the set of regulatory alternatives.

The role of the AHM working group is to provide technical guidance

to decision-makers. This working group is comprised of two

representatives appointed by each Flyway Council, in addition to

biological staff from the Service and the National Biological Service.

The Flyway Councils' appointees effectively represent the perspectives

of their respective Flyways, but they must be concerned also with

continental issues that cross Flyway boundaries. The Service believes

that this arrangement works exceedingly well and that individual States

have ample opportunity to comment on recommendations offered by the AHM

working group, either through their Flyway Councils or directly to the

Service. The Service emphasizes that the working group does not

establish regulations. Moreover, the working group develops its

recommendations through consensus, and does not use a voting process.

For the 1996-97 regular duck hunting season, the Service will use

the three regulatory alternatives detailed in the accompanying table

(at the end of this document). Alternatives are specified for each

Flyway and are designated as ``RES'' for the restrictive, ``MOD'' for

the moderate, and ``LIB'' for the liberal alternative. The Service will

propose a specific regulatory alternative when survey data on waterfowl

population and habitat status are available in late July.

B. Framework Dates

s detailed in the accompanying table

(at the end of this document). Alternatives are specified for each

Flyway and are designated as ``RES'' for the restrictive, ``MOD'' for

the moderate, and ``LIB'' for the liberal alternative. The Service will

propose a specific regulatory alternative when survey data on waterfowl

population and habitat status are available in late July.

B. Framework Dates

Council Recommendations: The Lower-Region Regulations Committee of

the Mississippi Flyway Council recommended the AHM technical working

group investigate the impacts of a January 31 framework closing date.

Service Response: The Service supports investigations by the AHM

technical working group to assess the suitability of all aspects of the

current regulatory alternatives, including framework dates. However,

the Service reiterates its long-standing concerns that hunting

disturbance in late winter may interfere with pair bonding and inhibit

nutrient acquisition and storage with subsequent impacts to

reproductive potential. Before the Service can consider changes to the

timing of the framework closing date, additional information to

alleviate these concerns is necessary.

The Service notes that the framework dates in the proposed

regulatory alternatives for the Atlantic Flyway published in the June

14 Supplement did not accurately reflect the policy established by the

Service last year (September 27, 1995, Federal Register 60 FR 50042).

This discrepancy was unintentional. The Service reaffirms its policy of

fixed dates of October 1 to January 20 for the Atlantic Flyway, and of

floating framework dates (Saturday closest to October 1, Sunday closest

to January 20) for the Mississippi, Central, and Pacific Flyways. The

appropriate change in framework dates for the Atlantic Flyway is

reflected in the final regulatory alternatives.

C. Season Length

unintentional. The Service reaffirms its policy of

fixed dates of October 1 to January 20 for the Atlantic Flyway, and of

floating framework dates (Saturday closest to October 1, Sunday closest

to January 20) for the Mississippi, Central, and Pacific Flyways. The

appropriate change in framework dates for the Atlantic Flyway is

reflected in the final regulatory alternatives.

C. Season Length

Council Recommendations: In the regulatory alternatives recommended

for 1996-97, the Upper- and Lower-Region Regulations Committees of the

Mississippi Flyway Council recommended the season length in the

``liberal'' package be 51 days instead of 50 days. The Central Flyway

Council

recommended the season length in the ``liberal'' package be 67 days.

Public-Hearing Comments: Mr. Joe Kramer, Chairman of the Central

Flyway Council, urged the Service to adopt the Council's proposal to

increase the season length from 60 to 67 days in the ``liberal''

alternative.

Written Comments: The Texas Parks and Wildlife Department also

urged a change from 60 to 67 days in the ``liberal'' alternative for

the Central Flyway.

The Kansas Department of Wildlife and Parks also recommended that

the ``liberal'' alternative for the Central Flyway provide 67 days of

duck hunting. Kansas believes that they are ``locked into'' an

unnecessarily restrictive regulation without any recourse for

addressing the problem.

The Wyoming Game and Fish Department supports extending the season

from 60 to 67 days under the ``liberal'' alternative for the Central

Flyway. Wyoming feels that the current regulatory options will be used

for an indefinite number of years and that postponing an appropriate

correction to season length is unacceptable.

The Minnesota Department of Natural Resources supports the

Mississippi Flyway Council proposal to increase the season length in

the ``liberal'' alternative by one day

h analyses are available, the Service is concerned that

changes in season lengths contained in the regulatory alternatives

could alter the allocation of harvest in unpredictable, undesirable or

inappropriate ways. Therefore, the Service prefers to approach all

proposed changes to season length, regardless of the number of days

involved, in a systematic and comprehensive manner.

E. Bag Limits

Council Recommendations: The Upper- and Lower-Region Regulations

Committees of the Mississippi Flyway Council and the Central Flyway

Council recommended the redhead daily bag limit in the ``liberal''

package be 2 birds instead of 1.

The Lower-Region Regulations Committee of the Mississippi Flyway

Council also recommended the overall daily bag limit in the ``liberal''

package be 6 birds instead of 5, and within this overall limit, the

daily bag limit for mottled ducks be 4 instead of 3; and the limit for

ringnecks, scaup, goldeneyes, and buffleheads be 4 instead of 5. Limits

for black ducks, pintails, wood ducks, and canvasbacks would be the

same as in 1995.

Public-Hearing Comments: Mr. Joe Kramer, Chairman of the Central

Flyway Council, expressed support for the Service's proposal to

increase the redhead limit from 1 to 2 under the ``liberal''

alternative.

The Minnesota Department of Natural Resources also supports the

Service's proposal to allow a second redhead in the daily bag under the

Central and Mississippi Flyways ``liberal'' alternative.

Written Comments: The Massachusetts Division of Fisheries and

Wildlife recommended any ``liberal'' regulatory package delete the hen

mallard restriction in the Atlantic Flyway.

The Michigan Department of Natural Resources supports the Service's

proposal to allow a second redhead in the daily bag under the

``liberal'' alternative for the Central and Mississippi Flyways.

Michigan also requested the rationale for allowing an additional duck

in the daily bag limit of the ``liberal'' alternative for the Pacific

Flyway

the hen

mallard restriction in the Atlantic Flyway.

The Michigan Department of Natural Resources supports the Service's

proposal to allow a second redhead in the daily bag under the

``liberal'' alternative for the Central and Mississippi Flyways.

Michigan also requested the rationale for allowing an additional duck

in the daily bag limit of the ``liberal'' alternative for the Pacific

Flyway.

Service Response: The Service concurs with the recommendations to

increase the bag limit of redheads from 1 to 2 in the ``liberal''

alternative of the Central and Mississippi Flyways. However, the

Service cannot support the proposal of the Lower-Region Regulations

Committee of the Mississippi Flyway Council to increase the overall bag

limit in the ``liberal'' alternative from 5 to 6 in order to provide

additional hunting opportunity on several abundant species. The Service

believes that major changes to the regulatory alternatives should be

addressed in a deliberate and comprehensive manner. Historic efforts at

species-specific management have been predicated largely on the

assumptions that: (a) mallard harvest rates can be used as a standard

by which to judge the appropriateness of harvest rates for other

species; (b) target stocks of ducks can be isolated in time or space,

or that hunters can shoot selectively; and (c) that management costs

are largely fixed whether managing one stock or many. Recent

information has led the Service to question the validity of these

assumptions. The Service believes that a number of issues must be

addressed prior to major reforms in species-specific harvest

strategies: (1) how much must species or populations differ in terms of

their population dynamics to warrant differential harvest regulations?

e largely fixed whether managing one stock or many. Recent

information has led the Service to question the validity of these

assumptions. The Service believes that a number of issues must be

addressed prior to major reforms in species-specific harvest

strategies: (1) how much must species or populations differ in terms of

their population dynamics to warrant differential harvest regulations?

(2) what are the relative costs and benefits of managing individual

duck stocks? (3) what is the ability of hunters to harvest selectively?

and (4) do hunters prefer the maximum hunting opportunity afforded by

complex regulations or simpler hunting regulations that offer less

hunting opportunity? The Service awaits further guidance from the

Councils and the AHM technical working group before considering

significant changes to species-specific bag limits.

The Service acknowledges that liberal hunting regulations in the

Atlantic Flyway historically had no sex-specific conventional bag

limits for mallards (although there were hen restrictions for States

using the point system). However, the Service believes that it is

premature to remove hen restrictions that have been in effect in the

Atlantic Flyway since 1985. The role of sex-specific bag limits in

regulating mallard harvest, total mortality, and recruitment is

uncertain. Further investigation of the potential consequences of

eliminating hen restrictions on mallards is necessary before

considering fundamental changes in sex-specific bag limits of mallards.

The Service also urges the Atlantic Flyway Council to begin development

of a harvest-management objective for mallards breeding in eastern

North America so that the implications of changes in hen bag limits can

be assessed.

The Service is allowing a 7-duck daily bag limit in the Pacific

Flyway ``liberal'' alternative, representing a 1-duck increase compared

to the 1995 ``liberal'' alternative

he Service also urges the Atlantic Flyway Council to begin development

of a harvest-management objective for mallards breeding in eastern

North America so that the implications of changes in hen bag limits can

be assessed.

The Service is allowing a 7-duck daily bag limit in the Pacific

Flyway ``liberal'' alternative, representing a 1-duck increase compared

to the 1995 ``liberal'' alternative. The Service agreed to this change

because the Pacific Flyway had a 7-duck bag limit during the 1979-84

period, which provided the basis for

season lengths and bag limits under the current ``liberal''

alternative. Mallard harvest rates realized with a 7-duck daily bag

limit in the Pacific Flyway are accounted for within the AHM framework

and are consistent with current resource status.

Regarding the final regulatory alternatives, the Service notes that

the daily bag limit for redheads in the Pacific Flyway's overall daily

bag limit was inadvertently omitted from the proposed regulatory

alternatives in the June 14, 1996, Federal Register. Consistent with

the Pacific Flyway frameworks established last year (September 27,

1995, Federal Register), a daily bag limit of 2 redheads is reflected

in the final regulatory alternatives.

F. Zones and Split Seasons

In 1990, the Service established guidelines for the use of zones

and split seasons for duck hunting (Federal Register 55 FR 38901).

These guidelines were based upon a cooperative review and evaluation of

the historical use of zone/split options. The Service reiterated 1977

criteria that the primary purpose of these options would be to provide

more equitable distribution of harvest opportunity for hunters

throughout a State. In 1977, the Service had also stated that these

regulations should not substantially change the pattern of harvest

distribution among States within a Flyway, nor should these options

detrimentally change the harvest distribution pattern among species or

populations at either the State or Flyway level

o provide

more equitable distribution of harvest opportunity for hunters

throughout a State. In 1977, the Service had also stated that these

regulations should not substantially change the pattern of harvest

distribution among States within a Flyway, nor should these options

detrimentally change the harvest distribution pattern among species or

populations at either the State or Flyway level. The 1990 review did

not show that the proliferation of these options had increased harvest

pressure; however, the ability to detect the impact of zone/split

configurations was poor because of poorly chosen response variables,

the lack of statistical tests to differentiate between real and

perceived changes, and the absence of adequate experimental controls.

Therefore, the 1990 strategy intended to provide a framework for

controlling the proliferation of changes in zone/split options and

limited changes to 5-year intervals. The first open season for changes

was in 1991 and the second occurs this year when zone/split

configurations will be established for the 1996-2000 period.

Council Recommendations: The Flyway Councils made several

recommendations on the Service's proposed guidelines on the use of

zones and split seasons for duck hunting. The Service published these

guidelines in the March 22, 1996, Federal Register.

The Central Flyway Council recommended non-contiguous zones be

allowed when supported by adequate justification. The Council also made

several recommendations regarding the use of additional days in the

High Plains Management Unit. The Council recommended the restrictions

``must be consecutive'' and ``after the regular duck season'' be

removed from the proposed guidelines. Further, the Council recommended

additional days in the management unit be restricted to one split

(i.e., 2 segments).

The Pacific Flyway Council recommended the guidelines for zones

allow identical season dates and/or different zoning configurations

with different regulatory packages

ions

``must be consecutive'' and ``after the regular duck season'' be

removed from the proposed guidelines. Further, the Council recommended

additional days in the management unit be restricted to one split

(i.e., 2 segments).

The Pacific Flyway Council recommended the guidelines for zones

allow identical season dates and/or different zoning configurations

with different regulatory packages.

Regarding Flyway Council recommendation for specific changes

requested by States, the Atlantic Flyway Council recommended the State

of Maine be granted a waiver for its proposed zoning option for 1996-

2000. The Upper-Region Regulations Committee of the Mississippi Flyway

Council recommended the Service approve changes to zone-boundary

configurations proposed by Illinois, Indiana, Michigan, and Wisconsin

for the 1996-2000 period. The Central Flyway Council recommended the

Service approve Nebraska's duck hunting zone proposal. The Pacific

Flyway Council recommended the Service approve duck zone changes in

Arizona, Nevada, Oregon, and Utah for the 1996-2000 period.

Written Comments: The Nebraska Game and Parks Commission and the

Kansas Department of Wildlife and Parks recommended the restrictions

``must be consecutive'' and ``after the regular duck season'' be

removed from the proposed guidelines on the use of additional days in

the High Plains Management Unit. Both noted these requirements were new

and seemed unnecessary.

Nebraska also recommended the addition of a provision allowing the

use of non-contiguous zones when supported by strong justification. The

Wyoming Game and Fish Department also requested a variance from the

contiguous-boundary criterion, stating that the current zoning

guidelines do not seem to contain the flexibility needed to address the

considerable variation in hunting opportunity associated with the

diverse physiographic regions found in many Rocky Mountain States

contiguous zones when supported by strong justification. The

Wyoming Game and Fish Department also requested a variance from the

contiguous-boundary criterion, stating that the current zoning

guidelines do not seem to contain the flexibility needed to address the

considerable variation in hunting opportunity associated with the

diverse physiographic regions found in many Rocky Mountain States.

Service Response: For the 1996 open season, the Service proposed in

the March 22, 1996, Federal Register use of the existing 1990

guidelines, with an exception for the handling of special management

units. The Service proposed to delete the following from the 1990

guidelines:

Special Management Unit Limitation: Within existing Flyway

boundaries, States may not zone and/or use a 3-way split season

simultaneously within a special management unit and the remainder of

the State.

The Service proposed this change with the understanding that the

additional days allowed for a management unit must be consecutive and,

for the Central Flyway, be held both after the Saturday nearest

December 10 and after the regular duck season. In the June 13, 1996,

Federal Register, the Service proposed an additional special provision

for management units: For the States that have a recognized management

unit and include a non-management unit portion, an independent 2-way

split season with no zones can be selected for the management unit. The

remainder of the State in the non-management unit portion can be zoned/

split according to established guidelines.

Regarding the Central Flyway Council recommendation that the

criteria ``must be consecutive'' and ``after the regular duck season''

be removed from the guidelines on the use of additional High Plains

Management Unit days, the Service stated in the June 13 Federal

Register that the restrictions regarding the use of additional days

should remain as proposed

according to established guidelines.

Regarding the Central Flyway Council recommendation that the

criteria ``must be consecutive'' and ``after the regular duck season''

be removed from the guidelines on the use of additional High Plains

Management Unit days, the Service stated in the June 13 Federal

Register that the restrictions regarding the use of additional days

should remain as proposed.

Regarding Flyway Council recommendations to alter the definition

and interpretation of a ``zone'' that would allow the establishment of

hunting areas with non-contiguous boundaries or concurrent seasons, the

Service stated in the June 13 Federal Register that it believes the

definition/interpretations previously used are still appropriate.

However, after further review, the Service now believes that the

requirement for different season dates among zones can be removed

without detriment to the objectives of the guidelines for use of zones/

split seasons for duck hunting. This change will allow States

additional flexibility in addressing differences in physiography,

climate, etc. within a State.

The following zone/split-season guidelines apply only for the

regular duck season:

1. A zone is a geographic area or portion of a State, with a

contiguous boundary, for which independent dates may be selected for

the regular duck season.

2. Consideration of changes for management-unit boundaries are not

subject to the guidelines and provisions governing the use of zones and

split seasons for ducks.

owing zone/split-season guidelines apply only for the

regular duck season:

1. A zone is a geographic area or portion of a State, with a

contiguous boundary, for which independent dates may be selected for

the regular duck season.

2. Consideration of changes for management-unit boundaries are not

subject to the guidelines and provisions governing the use of zones and

split seasons for ducks.

3. Only minor (less than a county in size) boundary changes will be

allowed for any grandfather arrangement, and changes are limited to the

open season.

4. Once a zone/split option is selected during an open season, it

must remain in place for the following 5 years.

For the 1996-2000 period, any State may continue the configuration

used in 1991-1995. If changes are made, the zone/split-season

configuration must conform to one of the following options:

1. Three zones with no splits,

2. Split seasons (no more than 3 segments) with no zones, or

3. Two zones with the option for 2-way split seasons in one or both

zones.

At the end of 5 years after any changes in splits or zones, States

will be required to provide the Service with a review of pertinent data

(e.g., estimates of harvest, hunter numbers, hunter success, etc.).

This review does not have to be the result of a rigorous experimental

design, but nonetheless should assist the Service in ascertaining

whether major undesirable changes in harvest or hunter activity

occurred as a result of split and zone regulations. The next open

season for changes in zone/split configurations will be 2001.

Using the above revised guidelines, the Service reviewed specific

proposals for zoning changes submitted to date, including those

recommended by the Flyway Councils and those proposed by the various

States

ther major undesirable changes in harvest or hunter activity

occurred as a result of split and zone regulations. The next open

season for changes in zone/split configurations will be 2001.

Using the above revised guidelines, the Service reviewed specific

proposals for zoning changes submitted to date, including those

recommended by the Flyway Councils and those proposed by the various

States. Proposals by the States of Arizona, Illinois, Kentucky, Maine

(boundary change), Michigan, Mississippi, Montana, Nebraska (Low Plains

Zone boundary changes), Nevada, Oregon, South Dakota, Utah, Wisconsin,

and Wyoming were within the established guidelines and are approved for

the 1996-2000 period. Proposals by the States of Indiana, Kansas, Maine

(creation of third zone), and Nebraska (creation of new zone) did not

comply with the revised guidelines and the Service requests these

States revise their proposals accordingly.

G. Special Seasons/Species Management

i. Canvasbacks

Council Recommendations: The Lower-Region Regulations Committee of

the Mississippi Flyway Council recommended canvasback regulations

fluctuate within the regulations packages commensurate with model

predictions, breeding-population indices, and habitat conditions.

Public-Hearing Comments: Mr. Joe Kramer, Chairman of the Central

Flyway Council, expressed support for the Service's canvasback harvest

strategy.

Written Comments: The Texas Parks and Wildlife Department asked the

Service to consider an additional canvasback in the daily bag if the

resulting harvest would not exceed that provided under current modeling

procedures.

Service Response: The Service implemented an interim harvest-

management strategy for canvasbacks in 1994. The Service allows one

canvasback in the daily bag in all four Flyways as long as the harvest

is not expected to exceed the ``harvestable surplus.'' This surplus is

the number of canvasbacks that could be taken by hunters while

maintaining a subsequent breeding population of at least 500,000

vice Response: The Service implemented an interim harvest-

management strategy for canvasbacks in 1994. The Service allows one

canvasback in the daily bag in all four Flyways as long as the harvest

is not expected to exceed the ``harvestable surplus.'' This surplus is

the number of canvasbacks that could be taken by hunters while

maintaining a subsequent breeding population of at least 500,000.

Calculation of the harvestable surplus is based on breeding population

size, predicted production during the current year, and expected rates

of natural mortality and crippling loss. The Service believes that it

has insufficient experience with this harvest strategy and that

proposed modifications are premature. The Service also notes the high

harvest potential for this species and is concerned that an overly

aggressive harvest strategy could precipitate a return to closed

seasons. The Service will continue to monitor canvasback harvests and

population status and may be willing to consider modifications in the

future.

ii. Pintails

Council Recommendations: The Central Flyway Council recommended a

harvest strategy for pintails based on the breeding population size.

The pintail daily bag limit would be 1 with a pintail breeding

population below 3.0 million; 2 with a breeding population between 3.0

and 4.5 million; 3 with a breeding population between 4.5 and 5.6

million; and equal to the overall daily bag limit with a breeding

population above 5.6 million.

The Pacific Flyway Council recommended guidelines for the 1996-97

Pacific Flyway pintail harvest regulations based on a prescriptive

basis. A matrix of breeding population size from a subset of survey

strata association with the Pacific Flyway breeding population and the

numbers of prairie ponds counted during the May survey would determine

bag limits.

Written Comments: The Texas Parks and Wildlife Department urged the

Service to adopt the Central Flyway's proposal for a pintail harvest

strategy

s based on a prescriptive

basis. A matrix of breeding population size from a subset of survey

strata association with the Pacific Flyway breeding population and the

numbers of prairie ponds counted during the May survey would determine

bag limits.

Written Comments: The Texas Parks and Wildlife Department urged the

Service to adopt the Central Flyway's proposal for a pintail harvest

strategy.

Service Response: The Service is supportive of any attempt at a

more objective approach to pintail harvest regulations. However, the

Service believes that a more deliberate and careful assessment is

needed before considering changes in harvest strategies, particularly

in light of pintail population status and the harvest liberalization

that occurred in 1994 and again during the 1995-96 season. Such an

assessment would include, among other things, explicit harvest-

management objectives, comprehensive model development for continental

pintails, and a consideration of the regulatory constraints imposed by

the adaptive harvest strategy for mid-continent mallards. The Service

currently is working with the Pacific Flyway Council Study Committee,

the Cooperative Fish and Wildlife Research Units, and other interested

parties to ensure that such an assessment is forthcoming. To that end,

the Service and the National Biological Service have agreed to provide

funding that in total exceeds $65,000. The Service is hopeful that

additional funding can be made available from the States and other

organizations to complete development of population models and an

acceptable adaptive harvest strategy for pintails.

iii. September Teal Seasons

Council Recommendations: The Upper-Region Regulations Committee of

the Mississippi Flyway Council recommended a 5-day experimental

September teal season be offered to the production States of Iowa,

Michigan, Minnesota, and Wisconsin for a 3-year period. The Committee

recommended a daily bag limit of 4 teal with sunrise to sunset shooting

hours

ategy for pintails.

iii. September Teal Seasons

Council Recommendations: The Upper-Region Regulations Committee of

the Mississippi Flyway Council recommended a 5-day experimental

September teal season be offered to the production States of Iowa,

Michigan, Minnesota, and Wisconsin for a 3-year period. The Committee

recommended a daily bag limit of 4 teal with sunrise to sunset shooting

hours.

The Central Flyway Council recommended a harvest strategy of

linking regulatory packages developed for the September teal season

with those developed for the regular duck season under the AHM process.

For 1996, the Council recommended either a ``restrictive'' package of 5

days with a daily bag limit of 3 teal, a ``moderate'' package of 9 days

with a daily bag limit of 4 teal, or a ``liberal'' package of 16 days

with a daily bag limit of 5 teal.

Public-Hearing Comments: Mr. Joe Kramer representing the Central

Flyway Council indicated that the Central and Mississippi Flyway

Councils would complete a more comprehensive harvest approach for

special teal seasons by March 1997.

Service Response: The Service previously determined in the

Supplemental Environmental Impact Statement: Issuance of Annual

Regulations Permitting the Sport Hunting of Migratory Birds (SEIS 88)

that proposals for expansion of existing special regulations require a

comprehensive evaluation plan containing study objectives, experimental

design, decision criteria, and identification of data needs. The

Service believes that the proper approach for permitting experimental

expansions would be to design a

ance of Annual

Regulations Permitting the Sport Hunting of Migratory Birds (SEIS 88)

that proposals for expansion of existing special regulations require a

comprehensive evaluation plan containing study objectives, experimental

design, decision criteria, and identification of data needs. The

Service believes that the proper approach for permitting experimental

expansions would be to design a

comprehensive study that would evaluate the cumulative impacts of all

teal-season hunting opportunities, in both production and non-

production States, on teal and other ducks. The proposals recommended

by the Flyways are disjunct, with one containing an evaluation plan

(Mississippi Flyway) and the other (Central Flyway) absent one. As

such, these proposals represent a fragmented approach to expanding and

evaluating teal-season hunting opportunities, which is inconsistent

with the desire of the Service. Future consideration by the Service of

any proposal to expand teal-season hunting opportunities will take into

account the evaluation plan, the manpower and funding requirements

necessary to implement the plan, and the priority of this issue

relative to other Service programs.

iv. September Duck Seasons

Council Recommendations: The Upper-Region Regulations Committee of

the Mississippi Flyway Council recommended Iowa be allowed to hold up

to 5 days of its regular duck hunting season in September, starting no

earlier than the Saturday nearest September 14. The remainder of the

Iowa regular duck season could begin no earlier than October 10.

Service Response: The Service previously determined in SEIS 88 that

the extension of framework dates into September for Iowa's September

duck season was a type of special season. The original evaluation of

this season suggested little impact on duck species other than teal

the Saturday nearest September 14. The remainder of the

Iowa regular duck season could begin no earlier than October 10.

Service Response: The Service previously determined in SEIS 88 that

the extension of framework dates into September for Iowa's September

duck season was a type of special season. The original evaluation of

this season suggested little impact on duck species other than teal.

However, the Service notes that the original evaluation did not include

information from the periods requested in the proposal, so inferences

about effects of the proposed changes on duck populations are not

clear. More importantly, the Service believes that mixed-species

special seasons (as defined in the context of SEIS 88) are not a

preferred management approach, and does not wish to entertain

refinements to this season or foster expansions of this type of season

into other States.

4. Canada Geese

A. Special Seasons

Council Recommendations: The Atlantic Flyway Council recommended

the frameworks for September Canada goose seasons in the Atlantic

Flyway be modified as follows:

September 1-15: Montezuma region of New York, Lake Champlain region

of New York and Vermont, Maryland (Caroline, Cecil, Dorchester, and

Talbot Counties), South Carolina, and Delaware.

September 1-20: North Carolina (Currituck, Camden, Pasquotank,

Perquimans, Chowan, Bertie, Washington, Tyrrell, Dare, and Hyde

Counties).

September 1-30: New Jersey and remaining portion of North Carolina.

September 1-25: Remaining portion of Flyway, except Georgia and

Florida.

The Lower-Region Regulations Committee of the Mississippi Flyway

Council recommended the Service continue to closely monitor the impacts

of early Canada goose seasons, including both special seasons and

September openings of regular seasons, to insure that cumulative

impacts do not adversely affect migrant Canada geese and to insure that

special seasons adhere to the criteria established by the Service

Region Regulations Committee of the Mississippi Flyway

Council recommended the Service continue to closely monitor the impacts

of early Canada goose seasons, including both special seasons and

September openings of regular seasons, to insure that cumulative

impacts do not adversely affect migrant Canada geese and to insure that

special seasons adhere to the criteria established by the Service.

The Upper-Region Regulations Committee of the Mississippi Flyway

Council, the Central Flyway Council, and the Pacific Flyway Council

made several September Canada goose seasons recommendations. All of the

recommendations were within the established criteria for special Canada

goose seasons published in the August 29, 1995, Federal Register (60 FR

45020).

Written Comments: The Massachusetts Division of Fisheries and

Wildlife supported extending the frameworks for September Canada goose

seasons in the Atlantic Flyway to September 25.

Service Response: The Service agrees with the Atlantic Flyway's

request to modify the frameworks for special early Canada goose seasons

in the Atlantic Flyway and is proposing to grant the Atlantic Flyway a

temporary exemption to the special early Canada goose season criteria.

Specifically, the Service is proposing to allow States in the Atlantic

Flyway to extend the framework closing date from September 15 to

September 25, except in certain areas where migrant geese are known to

arrive early. The Service is proposing this temporary exemption because

of the suspension of the regular season on Atlantic Population Canada

geese and the Flyway's need for greater flexibility in dealing with

increasing numbers of resident Canada geese. The exemption is proposed

to remain in effect until the regular season on migrant Canada geese is

reinstated.

Generally, the Service agrees with the Council's recommended

framework modifications. For seasons extending beyond September 25,

however, the Service proposes to classify these as experimental

s need for greater flexibility in dealing with

increasing numbers of resident Canada geese. The exemption is proposed

to remain in effect until the regular season on migrant Canada geese is

reinstated.

Generally, the Service agrees with the Council's recommended

framework modifications. For seasons extending beyond September 25,

however, the Service proposes to classify these as experimental.

Additionally, in view of the reinstatement of existing criteria when

regular seasons on Canada geese are reinstated in the Flyway, the

Service encourages all States selecting framework dates after September

15 to continue with data-gathering and monitoring efforts in order to

further evaluate whether any proportional changes in the harvest of

migrant geese do occur.

B. Regular Seasons

Council Recommendations: The Upper-Region Regulations Committee of

the Mississippi Flyway Council recommended a September 21 framework

opening date for the regular goose season in the Upper Peninsula of

Michigan and statewide in Wisconsin.

The Pacific Flyway Council reiterated its 1995 recommendation that

Alaska, Oregon, and Washington take actions to reduce the harvest of

dusky Canada geese.

Service Response: Regarding the Pacific Flyway Council's

recommendation, the Service recognizes the need for this and proposes

to establish uniform criteria to measure the harvest of dusky Canada

geese in Washington's and Oregon's Quota Zones. The Service solicits

input from the Council and other parties in the development of these

criteria for the 1996-97 season.

9. Sandhill Cranes

geese.

Service Response: Regarding the Pacific Flyway Council's

recommendation, the Service recognizes the need for this and proposes

to establish uniform criteria to measure the harvest of dusky Canada

geese in Washington's and Oregon's Quota Zones. The Service solicits

input from the Council and other parties in the development of these

criteria for the 1996-97 season.

9. Sandhill Cranes

Council Recommendations: The Central Flyway Council recommended

Wyoming's sandhill crane hunt area expand to include Park and Big Horn

Counties.

The Pacific Flyway Council recommended season modifications in

Montana and Wyoming. In Montana, the Council recommended a new hunt

zone in the Ovando-Helmville area. In Wyoming, the Council recommended

expanding the season from 3 to 8 days, increasing the number of

permits, and establishing a new hunt zone in Park and Big Horn

Counties.

14. Woodcock

The Service is increasingly concerned about the gradual long-term

declines in woodcock populations in the Eastern and Central management

regions. Although habitat changes appear to be the primary cause of the

declines, the Service believes that hunting regulations should be

commensurate with the woodcock population status and rates of declines.

The Service seeks active participation by the Atlantic and Mississippi

Flyway Councils in the development of short and long-term woodcock

harvest management strategies, which identify the circumstances under

which additional

harvest restrictions should be implemented and what those restrictions

should be.

18. Alaska

Council Recommendations: The Pacific Flyway Council recommended the

establishment of separate basic limits for geese. For dark geese, the

Council recommended a basic daily bag limit of 4, with 8 in possession.

For light geese, the Council recommended a daily bag limit of 3, with 6

in possession. The proposed limits would be subject to area

restrictions for Canada geese and limits for brant and emperor geese

would remain separate.

yway Council recommended the

establishment of separate basic limits for geese. For dark geese, the

Council recommended a basic daily bag limit of 4, with 8 in possession.

For light geese, the Council recommended a daily bag limit of 3, with 6

in possession. The proposed limits would be subject to area

restrictions for Canada geese and limits for brant and emperor geese

would remain separate.

Public Comment Invited

The Service intends that adopted final rules be as responsive as

possible to all concerned interests, and wants to obtain the comments

and suggestions from all interested areas of the public, as well as

other governmental agencies. Such comments, and any additional

information received, may lead to final regulations that differ from

these proposals. However, special circumstances involved in the

establishment of these regulations limit the amount of time the Service

can allow for public comment. Specifically, two considerations compress

the time in which the rulemaking process must operate: (1) the need to

establish final rules at a point early enough in the summer to allow

affected State agencies to appropriately adjust their licensing and

regulatory mechanisms; and (2) the unavailability, before mid-June, of

specific, reliable data on this year's status of some waterfowl and

migratory shore and upland game bird populations. Therefore, the

Service believes allowing comment periods past the dates specified is

contrary to public interest.

Comment Procedure

llow

affected State agencies to appropriately adjust their licensing and

regulatory mechanisms; and (2) the unavailability, before mid-June, of

specific, reliable data on this year's status of some waterfowl and

migratory shore and upland game bird populations. Therefore, the

Service believes allowing comment periods past the dates specified is

contrary to public interest.

Comment Procedure

It is the policy of the Department of the Interior to afford the

public an opportunity to participate in the rulemaking process,

whenever practical. Accordingly, interested persons may participate by

submitting written comments to the Chief, MBMO, at the address listed

under the caption ADDRESSES. The public may inspect comments during

normal business hours at the Service's office address listed under the

caption ADDRESSES. The Service will consider all relevant comments

received and will try to acknowledge received comments, but may not

provide an individual response to each commenter.

NEPA Consideration

NEPA considerations are covered by the programmatic document,

``Final Supplemental Environmental Impact Statement: Issuance of Annual

Regulations Permitting the Sport Hunting of Migratory Birds (FSES 88-

14),'' filed with EPA on June 9, 1988. The Service published a Notice

of Availability in the June 16, 1988, Federal Register (53 FR 22582).

The Service published its Record of Decision on August 18, 1988 (53 FR

31341). Copies of these documents are available from the Service at the

address indicated under the caption ADDRESSES.

Endangered Species Act Consideration

of Migratory Birds (FSES 88-

14),'' filed with EPA on June 9, 1988. The Service published a Notice

of Availability in the June 16, 1988, Federal Register (53 FR 22582).

The Service published its Record of Decision on August 18, 1988 (53 FR

31341). Copies of these documents are available from the Service at the

address indicated under the caption ADDRESSES.

Endangered Species Act Consideration

As in the past, the Service will design hunting regulations to

remove or alleviate chances of conflict between migratory game bird

hunting seasons and the protection and conservation of endangered and

threatened species. Consultations are presently under way to ensure

that actions resulting from these regulatory proposals will not likely

jeopardize the continued existence of endangered or threatened species

or result in the destruction or adverse modification of their critical

habitat. Findings from these consultations will be included in a

biological opinion and may cause modification of some regulatory

measures proposed in this document. The final frameworks will reflect

any modifications. The Service's biological opinions resulting from its

Section 7 consultation are public documents available for public

inspection in the Service's Division of Endangered Species and MBMO, at

the address indicated under the caption ADDRESSES.

Regulatory Flexibility Act; Executive Order (E.O.) 12866 and the

Paperwork Reduction Act

s document. The final frameworks will reflect

any modifications. The Service's biological opinions resulting from its

Section 7 consultation are public documents available for public

inspection in the Service's Division of Endangered Species and MBMO, at

the address indicated under the caption ADDRESSES.

Regulatory Flexibility Act; Executive Order (E.O.) 12866 and the

Paperwork Reduction Act

In the March 22, 1996, Federal Register, the Service reported

measures it took to comply with requirements of the Regulatory

Flexibility Act and E.O. 12866. One measure was to prepare a Small

Entity Flexibility Analysis (Analysis) in 1995 documenting the

significant beneficial economic effect on a substantial number of small

entities. The Analysis estimated that migratory bird hunters would

spend between $258 and $586 million at small businesses. Copies of the

Analysis are available upon request from the Office of Migratory Bird

Management. This rule was not subject to review by the Office of

Management and Budget under E.O. 12866.

The Service examined these proposed regulations under the Paperwork

Reduction Act of 1995 and found no information collection requirements.

List of Subjects in 50 CFR Part 20

Exports, Hunting, Imports, Reporting and recordkeeping

requirements, Transportation, Wildlife.

The rules that eventually will be promulgated for the 1996-97

hunting season are authorized under 16 U.S.C. 703-711, 16 U.S.C. 712,

and 16 U.S.C. 742 a-j.

Dated: July 10, 1996

George T. Frampton, Jr.,

Assistant Secretary for Fish and Wildlife and Parks.

Proposed Regulations Frameworks for 1996-97 Early Hunting Seasons

on Certain Migratory Game Birds

Pursuant to the Migratory Bird Treaty Act and delegated

authorities, the Department of the Interior approved the following

proposed frameworks which prescribe season lengths, bag limits,

shooting hours, and outside dates within which States may select for

certain migratory game birds between September 1, 1996, and March 10,

1997.

General

rly Hunting Seasons

on Certain Migratory Game Birds

Pursuant to the Migratory Bird Treaty Act and delegated

authorities, the Department of the Interior approved the following

proposed frameworks which prescribe season lengths, bag limits,

shooting hours, and outside dates within which States may select for

certain migratory game birds between September 1, 1996, and March 10,

1997.

General

Dates: All outside dates noted below are inclusive.

Shooting and Hawking (taking by falconry) Hours: Unless otherwise

specified, from one-half hour before sunrise to sunset daily.

Possession Limits: Unless otherwise specified, possession limits

are twice the daily bag limit.

Area, Zone, and Unit Descriptions: Geographic descriptions are

contained in a later portion of this document.

Special September Teal Season

Outside Dates: Between September 1 and September 30, an open season

on all species of teal may be selected by Alabama, Arkansas, Colorado

(Central Flyway portion only), Illinois, Indiana, Kansas, Kentucky,

Louisiana, Mississippi, Missouri, New Mexico (Central Flyway portion

only), Ohio, Oklahoma, Tennessee, and Texas in areas delineated by

State regulations.

Hunting Seasons and Daily Bag Limits: Not to exceed 9 consecutive

days, with a daily bag limit of 4 teal.

Shooting Hours: One-half hour before sunrise to sunset, except in

Arkansas, Illinois, Indiana, Missouri, and Ohio, where the hours are

from sunrise to sunset.

Special September Duck Seasons

ay portion

only), Ohio, Oklahoma, Tennessee, and Texas in areas delineated by

State regulations.

Hunting Seasons and Daily Bag Limits: Not to exceed 9 consecutive

days, with a daily bag limit of 4 teal.

Shooting Hours: One-half hour before sunrise to sunset, except in

Arkansas, Illinois, Indiana, Missouri, and Ohio, where the hours are

from sunrise to sunset.

Special September Duck Seasons

Florida: An experimental 5-consecutive-day season may be selected

in September. The daily bag limit may not exceed 4 teal and wood ducks

in the aggregate.

Kentucky and Tennessee: In lieu of a special September teal season,

an experimental 5-consecutive-day season may be selected in September.

The daily bag limit may not exceed 4 teal and wood ducks in the

aggregate, of which no more than 2 may be wood ducks.

Iowa: Iowa may hold up to 5 days of its regular duck hunting season

in September. All ducks which are legal during the regular duck season

may be taken during the September segment of the season. The September

season segment may commence no earlier than the Saturday nearest

September 20 (September 21, 1996), with daily bag and possession limits

being the same as those in effect last year. The remainder of the

regular duck season may not begin before October 15.

Scoter, Eider, and Oldsquaw Ducks (Atlantic Flyway)

Outside Dates: Between September 15 and January 20.

Hunting Seasons and Daily Bag Limits: Not to exceed 107 days, with

a daily bag limit of 7, singly or in the aggregate of the listed sea-

duck species, of which no more than 4 may be scoters.

Daily Bag Limits During the Regular Duck Season: Within the special

sea duck areas, during the regular duck season in the Atlantic Flyway,

States may choose to allow the above sea duck limits in addition to the

limits applying to other ducks during the regular duck season. In all

other areas, sea ducks may be taken only during the regular open season

for ducks and must be included in the regular duck season daily bag and

possession limits

Within the special

sea duck areas, during the regular duck season in the Atlantic Flyway,

States may choose to allow the above sea duck limits in addition to the

limits applying to other ducks during the regular duck season. In all

other areas, sea ducks may be taken only during the regular open season

for ducks and must be included in the regular duck season daily bag and

possession limits.

Areas: In all coastal waters and all waters of rivers and streams

seaward from the first upstream bridge in Maine, New Hampshire,

Massachusetts, Rhode Island, Connecticut, and New York; in any waters

of the Atlantic Ocean and in any tidal waters of any bay which are

separated by at least 1 mile of open water from any shore, island, and

emergent vegetation in New Jersey, South Carolina, and Georgia; and in

any waters of the Atlantic Ocean and in any tidal waters of any bay

which are separated by at least 800 yards of open water from any shore,

island, and emergent vegetation in Delaware, Maryland, North Carolina

and Virginia; and provided that any such areas have been described,

delineated, and designated as special sea-duck hunting areas under the

hunting regulations adopted by the respective States.

Special Early Canada Goose Seasons

Atlantic Flyway

General Seasons

Canada goose seasons of up to 15 days during September 1-15 may be

selected for the Montezuma Region of New York; the Lake Champlain

Region of New York and Vermont; the Counties of Caroline, Cecil,

Dorchester, and Talbot in Maryland; Delaware; and Crawford County in

Pennsylvania. Seasons not to exceed 20 days during September 1-20 may

be selected for the Northeast Hunt Unit of North Carolina. Seasons may

not exceed 25 days during September 1-25 in the remainder of the

Flyway, except Georgia and Florida, where the season is closed. Areas

open to the hunting of Canada geese must be described, delineated, and

designated as such in each State's hunting regulations.

Daily Bag Limits: Not to exceed 5 Canada geese

ember 1-20 may

be selected for the Northeast Hunt Unit of North Carolina. Seasons may

not exceed 25 days during September 1-25 in the remainder of the

Flyway, except Georgia and Florida, where the season is closed. Areas

open to the hunting of Canada geese must be described, delineated, and

designated as such in each State's hunting regulations.

Daily Bag Limits: Not to exceed 5 Canada geese.

Experimental Seasons

Experimental Canada goose seasons of up to 30 days during September

1-30 may be selected by New Jersey, North Carolina (except in the

Northeast Hunt Unit), and South Carolina. Areas open to the hunting of

Canada geese must be described, delineated, and designated as such in

each State's hunting regulations.

Daily Bag Limits: Not to exceed 5 Canada geese.

Mississippi Flyway

General Seasons

Canada goose seasons of up to 15 days during September 1-15 may be

selected by Illinois, Indiana, Iowa, Michigan (except in the Upper

Peninsula, where the season may not extend beyond September 10, and in

Huron, Saginaw and Tuscola Counties, where no special season may be

held), Minnesota, Missouri, Ohio, Tennessee, and Wisconsin. The daily

bag limit may not exceed 5 Canada geese. Areas open to the hunting of

Canada geese must be described, delineated, and designated as such in

each State's hunting regulations.

Central Flyway

General Seasons

Canada goose seasons of up to 15 days during September 1-15 may be

selected by South Dakota. The daily bag limit may not exceed 5 Canada

geese. Areas open to the hunting of Canada geese must be described,

delineated, and designated as such in each State's hunting regulations.

Pacific Flyway

lineated, and designated as such in

each State's hunting regulations.

Central Flyway

General Seasons

Canada goose seasons of up to 15 days during September 1-15 may be

selected by South Dakota. The daily bag limit may not exceed 5 Canada

geese. Areas open to the hunting of Canada geese must be described,

delineated, and designated as such in each State's hunting regulations.

Pacific Flyway

General Seasons

Wyoming may select an 8-day season on Canada geese between

September 1-15. This season is subject to the following conditions:

1. Where applicable, the season must be concurrent with the

September portion of the sandhill crane season.

2. All participants must have a valid State permit for the

special season.

3. A daily bag limit of 2, with season and possession limits of

6 will apply to the special season.

Oregon may select a special Canada goose season of up to 15 days

during the period September 1-15. Daily bag limits not to exceed 3

Canada geese with 6 in possession.

Washington may select a special Canada goose season of up to 15

days during the period September 1-15. Daily bag limits not to exceed 3

Canada geese with 6 in possession.

Idaho may select a 15-day season in the special East Canada Goose

Zone as described in State regulations during the period September 1-

15. All participants must have a valid State permit and the total

number of permits issued is not to exceed 110 for this zone. The daily

bag limit is 2 and the possession limit is 4.

Idaho may select a 7-day Canada Goose Season during the period

September 1-15 in Nez Perce County with a bag limit of 4 and a

possession limit of 8. All participants must have a valid State permit

and the total number of permits is not to exceed 200 for the season in

Nez Perce County.

Areas open to hunting of Canada geese in each State must be

described, delineated, and designated as such in each State's hunting

regulations.

Regular Goose Seasons

riod

September 1-15 in Nez Perce County with a bag limit of 4 and a

possession limit of 8. All participants must have a valid State permit

and the total number of permits is not to exceed 200 for the season in

Nez Perce County.

Areas open to hunting of Canada geese in each State must be

described, delineated, and designated as such in each State's hunting

regulations.

Regular Goose Seasons

Regular goose seasons in Wisconsin and the Upper Peninsula of

Michigan may open as early as September 21. Season lengths and bag and

possession limits will be the same as those in effect last year but are

subject to change during the late-season regulations process.

Sandhill Cranes

Regular Seasons in the Central Flyway:

Outside Dates: Between September 1 and February 28.

Hunting Seasons: Seasons not to exceed 58 consecutive days may be

selected in designated portions of the following States: Colorado,

Kansas, Montana, North Dakota, South Dakota, and Wyoming. Seasons not

to exceed 93 consecutive days may be selected in designated portions of

the following

States: New Mexico, Oklahoma, and Texas.

Daily Bag Limits: 3 sandhill cranes.

Permits: Each person participating in the regular sandhill crane

seasons must have a valid Federal sandhill crane hunting permit in

their possession while hunting.

Special Seasons in the Central and Pacific Flyways:

Arizona, Colorado, Idaho, Montana, New Mexico, Utah, and Wyoming

may select seasons for hunting sandhill cranes within the range of the

Rocky Mountain Population subject to the following conditions:

Outside Dates: Between September 1 and January 31.

Hunting Seasons: The season in any State or zone may not exceed 30

days.

Bag limits: Not to exceed 3 daily and 9 per season.

Permits: Participants must have a valid permit, issued by the

appropriate State, in their possession while hunting

sandhill cranes within the range of the

Rocky Mountain Population subject to the following conditions:

Outside Dates: Between September 1 and January 31.

Hunting Seasons: The season in any State or zone may not exceed 30

days.

Bag limits: Not to exceed 3 daily and 9 per season.

Permits: Participants must have a valid permit, issued by the

appropriate State, in their possession while hunting.

Other provisions: Numbers of permits, open areas, season dates,

protection plans for other species, and other provisions of seasons

must be consistent with the management plan and approved by the Central

and Pacific Flyway Councils. Seasons in Montana and the Park-Big Horn

Unit in Wyoming are experimental.

Common Moorhens and Purple Gallinules

Outside Dates: Between September 1 and January 20 in the Atlantic

Flyway, and between September 1 and the Sunday nearest January 20

(January 19) in the Mississippi and Central Flyways. States in the

Pacific Flyway have been allowed to select their hunting seasons

between the outside dates for the season on ducks; therefore, they are

late-season frameworks and no frameworks are provided in this document.

Hunting Seasons and Daily Bag Limits: Seasons may not exceed 70

days in the Atlantic, Mississippi, and Central Flyways. Seasons may be

split into 2 segments. The daily bag limit is 15 common moorhens and

purple gallinules, singly or in the aggregate of the two species.

Rails

s for the season on ducks; therefore, they are

late-season frameworks and no frameworks are provided in this document.

Hunting Seasons and Daily Bag Limits: Seasons may not exceed 70

days in the Atlantic, Mississippi, and Central Flyways. Seasons may be

split into 2 segments. The daily bag limit is 15 common moorhens and

purple gallinules, singly or in the aggregate of the two species.

Rails

Outside Dates: States included herein may select seasons between

September 1 and January 20 on clapper, king, sora, and Virginia rails.

Hunting Seasons: The season may not exceed 70 days, and may be

split into 2 segments.

Daily Bag Limits:

Clapper and King Rails - In Rhode Island, Connecticut, New Jersey,

Delaware, and Maryland, 10, singly or in the aggregate of the two

species. In Texas, Louisiana, Mississippi, Alabama, Georgia, Florida,

South Carolina, North Carolina, and Virginia, 15, singly or in the

aggregate of the two species.

Sora and Virginia Rails - In the Atlantic, Mississippi, and Central

Flyways and the Pacific-Flyway portions of Colorado, Montana, New

Mexico, and Wyoming, 25 daily and 25 in possession, singly or in the

aggregate of the two species. The season is closed in the remainder of

the Pacific Flyway.

Common Snipe

Outside Dates: Between September 1 and February 28, except in

Maine, Vermont, New Hampshire, Massachusetts, Rhode Island,

Connecticut, New York, New Jersey, Delaware, Maryland, and Virginia,

where the season must end no later than January 31.

Hunting Seasons and Daily Bag Limits: Seasons may not exceed 107

days and may be split into two segments. The daily bag limit is 8

snipe.

American Woodcock

de Dates: Between September 1 and February 28, except in

Maine, Vermont, New Hampshire, Massachusetts, Rhode Island,

Connecticut, New York, New Jersey, Delaware, Maryland, and Virginia,

where the season must end no later than January 31.

Hunting Seasons and Daily Bag Limits: Seasons may not exceed 107

days and may be split into two segments. The daily bag limit is 8

snipe.

American Woodcock

Outside Dates: States in the Atlantic Flyway may select hunting

seasons between October 1 and January 31. States in the Central and

Mississippi Flyways may select hunting seasons between September 1 and

January 31.

Hunting Seasons and Daily Bag Limits: In the Atlantic Flyway,

seasons may not exceed 45 days, with a daily bag limit of 3; in the

Central and Mississippi Flyways, seasons may not exceed 65 days, with a

daily bag limit of 5. Seasons may be split into two segments.

Zoning: New Jersey may select seasons in each of two zones. The

season in each zone may not exceed 35 days.

Band-tailed Pigeons

Pacific Coast States (California, Oregon, Washington, and Nevada)

Outside Dates: Between September 15 and January 1.

Hunting Seasons and Daily Bag Limits: Not more than 9 consecutive

days, with bag and possession limits of 2 and 2 band-tailed pigeons,

respectively.

Permit Requirement: The appropriate State agency must issue

permits, and report on harvest and hunter participation to the Service

by June 1 of the following year, or participate in the Migratory Bird

Harvest Information Program.

Zoning: California may select hunting seasons not to exceed 9

consecutive days in each of two zones. The season in the North Zone

must close by October 7.

Four-Corners States (Arizona, Colorado, New Mexico, and Utah)

issue

permits, and report on harvest and hunter participation to the Service

by June 1 of the following year, or participate in the Migratory Bird

Harvest Information Program.

Zoning: California may select hunting seasons not to exceed 9

consecutive days in each of two zones. The season in the North Zone

must close by October 7.

Four-Corners States (Arizona, Colorado, New Mexico, and Utah)

Outside Dates: Between September 1 and November 30.

Hunting Seasons and Daily Bag Limits: Not more than 30 consecutive

days, with a daily bag limit of 5 band-tailed pigeons.

Permit Requirement: The appropriate State agency must issue

permits, and report on harvest and hunter participation to the Service

by June 1 of the following year, or participate in the Migratory Bird

Harvest Information Program.

Zoning: New Mexico may select hunting seasons not to exceed 20

consecutive days in each of two zones. The season in the South Zone may

not open until October 1.

Mourning Doves

Outside Dates: Between September 1 and January 15, except as

otherwise provided, States may select hunting seasons and daily bag

limits as follows:

Eastern Management Unit (All States east of the Mississippi River, and

Louisiana)

Hunting Seasons and Daily Bag Limits: Not more than 70 days with a

daily bag limit of 12, or not more than 60 days with a daily bag limit

of 15.

Zoning and Split Seasons: States may select hunting seasons in each

of two zones. The season within each zone may be split into not more

than three periods. The hunting seasons in the South Zones of Alabama,

Florida, Georgia, Louisiana, and Mississippi may commence no earlier

than September 20. Regulations for bag and possession limits, season

length, and shooting hours must be uniform within specific hunting

zones.

Central Management Unit (Arkansas, Colorado, Iowa, Kansas, Minnesota,

Missouri, Montana, Nebraska, New Mexico, North Dakota, Oklahoma, South

Dakota, Texas, and Wyoming)

of Alabama,

Florida, Georgia, Louisiana, and Mississippi may commence no earlier

than September 20. Regulations for bag and possession limits, season

length, and shooting hours must be uniform within specific hunting

zones.

Central Management Unit (Arkansas, Colorado, Iowa, Kansas, Minnesota,

Missouri, Montana, Nebraska, New Mexico, North Dakota, Oklahoma, South

Dakota, Texas, and Wyoming)

Hunting Seasons and Daily Bag Limits: Not more than 70 days with a

daily bag limit of 12, or not more than 60 days with a daily bag limit

of 15.

Zoning and Split Seasons: States may select hunting seasons in each

of two zones. The season within each zone may be split into not more

than three periods. Texas may select hunting seasons for each of three

zones subject to the following conditions:

A. The hunting season may be split into not more than two periods,

except

in that portion of Texas in which the special white-winged dove season

is allowed, where a limited mourning dove season may be held

concurrently with that special season (see white-winged dove

frameworks).

B. A season may be selected for the North and Central Zones between

September 1 and January 25; and for the South Zone between September 20

and January 25.

C. Each zone may have a daily bag limit of 12 doves (15 under the

alternative) in the aggregate, no more than 6 of which may be white-

winged doves and no more than 2 of which may be white-tipped doves,

except that during the special white-winged dove season, the daily bag

limit may not exceed 10 white-winged, mourning, and white-tipped doves

in the aggregate, of which no more than 5 may be mourning doves and 2

may be white-tipped doves.

D. Except as noted above, regulations for bag and possession

limits, season length, and shooting hours must be uniform within each

hunting zone.

Western Management Unit (Arizona, California, Idaho, Nevada, Oregon,

Utah, and Washington)

not exceed 10 white-winged, mourning, and white-tipped doves

in the aggregate, of which no more than 5 may be mourning doves and 2

may be white-tipped doves.

D. Except as noted above, regulations for bag and possession

limits, season length, and shooting hours must be uniform within each

hunting zone.

Western Management Unit (Arizona, California, Idaho, Nevada, Oregon,

Utah, and Washington)

Hunting Seasons and Daily Bag Limits: Idaho, Nevada, Oregon, Utah,

and Washington - Not more than 30 consecutive days with a daily bag

limit of 10 mourning doves (in Nevada, the daily bag limit may not

exceed 10 mourning and white-winged doves in the aggregate).

Arizona and California - Not more than 60 days which may be split

between two periods, September 1-15 and November 1-January 15. In

Arizona, during the first segment of the season, the daily bag limit is

10 mourning and white-winged doves in the aggregate, of which no more

than 6 may be white-winged doves. During the remainder of the season,

the daily bag limit is restricted to 10 mourning doves. In California,

the daily bag limit may not exceed 10 mourning and white-winged doves

in the aggregate.

White-winged and White-tipped Doves

Hunting Seasons and Daily Bag Limits:

Except as shown below, seasons in Arizona, California, Florida,

Nevada, New Mexico, and Texas must be concurrent with mourning dove

seasons.

Arizona may select a hunting season of not more than 30 consecutive

days, running concurrently with the first segment of the mourning dove

season. The daily bag limit may not exceed 10 mourning and white-winged

doves in the aggregate, of which no more than 6 may be white-winged

doves.

In Florida, the daily bag limit may not exceed 12 mourning and

white-winged doves (15 under the alternative) in the aggregate, of

which no more than 4 may be white-winged doves

days, running concurrently with the first segment of the mourning dove

season. The daily bag limit may not exceed 10 mourning and white-winged

doves in the aggregate, of which no more than 6 may be white-winged

doves.

In Florida, the daily bag limit may not exceed 12 mourning and

white-winged doves (15 under the alternative) in the aggregate, of

which no more than 4 may be white-winged doves.

In the Nevada Counties of Clark and Nye, and in the California

Counties of Imperial, Riverside, and San Bernardino, the daily bag

limit may not exceed 10 mourning and white-winged doves in the

aggregate.

In New Mexico, the daily bag limit may not exceed 12 mourning and

white-winged doves (15 under the alternative) in the aggregate.

In Texas, the daily bag limit may not exceed 12 mourning, white-

winged, and white-tipped doves (15 under the alternative) in the

aggregate, of which not more than 6 may be white-winged doves and not

more than 2 may be white-tipped doves.

In addition, Texas may also select a hunting season of not more

than 4 days for the special white-winged dove area of the South Zone

between September 1 and September 19. The daily bag limit may not

exceed 10 white-winged, mourning, and white-tipped doves in the

aggregate, of which no more than 5 may be mourning doves and 2 may be

white-tipped doves.

Alaska

Outside Dates: Between September 1 and January 26.

Hunting Seasons: Alaska may select 107 consecutive days for

waterfowl, sandhill cranes, and common snipe in each of five zones. The

season may be split without penalty in the Kodiak Zone. The seasons in

each zone must be concurrent.

Closures: The season is closed on Canada geese from Unimak Pass

westward in the Aleutian Island chain. The hunting season is closed on

Aleutian Canada geese, emperor geese, spectacled eiders, and Steller's

eiders.

Daily Bag and Possession limits:

Ducks - Except as noted, a basic daily bag limit of 7 and a

possession limit of 21 ducks

odiak Zone. The seasons in

each zone must be concurrent.

Closures: The season is closed on Canada geese from Unimak Pass

westward in the Aleutian Island chain. The hunting season is closed on

Aleutian Canada geese, emperor geese, spectacled eiders, and Steller's

eiders.

Daily Bag and Possession limits:

Ducks - Except as noted, a basic daily bag limit of 7 and a

possession limit of 21 ducks. Daily bag and possession limits in the

North Zone are 10 and 30, and in the Gulf Coast Zone they are 8 and 24,

respectively. The basic limits may include no more than 1 canvasback

daily and 3 in possession.

In addition to the basic limit, there is a daily bag limit of 15

and a possession limit of 30 scoter, common and king eiders, oldsquaw,

harlequin, and common and red-breasted mergansers, singly or in the

aggregate of these species.

Light Geese - A basic daily bag limit of 3 and a possession limit

of 6.

Dark Geese - A basic daily bag limit of 4 and a possession limit of

8.

Dark-goose seasons are subject to the following restrictions:

1. In Units 9(e) and 18, the limits for Canada geese are 1 daily

and 2 in possession.

2. In Units 5 and 6, the taking of Canada geese is permitted

from September 28 through December 16. Middleton Island is closed to

the taking of Canada geese.

3. In Unit 10 (except Unimak Island), the taking of Canada geese

is prohibited.

Brant - A daily bag limit of 2.

Common snipe - A daily bag limit of 8.

Sandhill cranes - A daily bag limit of 3.

Tundra swans - Open seasons for tundra swans may be selected

subject to the following conditions:

1. No more than 300 permits may be issued in GMU 22, authorizing

each permittee to take 1 tundra swan per season.

2. No more than 500 permits may be issued during the operational

season in GMU 18. No more than 1 tundra swan may be taken per

permit.

3. The seasons must be concurrent with other migratory bird

seasons.

4

s for tundra swans may be selected

subject to the following conditions:

1. No more than 300 permits may be issued in GMU 22, authorizing

each permittee to take 1 tundra swan per season.

2. No more than 500 permits may be issued during the operational

season in GMU 18. No more than 1 tundra swan may be taken per

permit.

3. The seasons must be concurrent with other migratory bird

seasons.

4. The appropriate State agency must issue permits, obtain

harvest and hunter-participation data, and report the results of

this hunt to the Service by June 1 of the following year.

Hawaii

Outside Dates: Between September 1 and January 15.

Hunting Seasons: Not more than 60 days (70 under the alternative)

for mourning doves.

Bag Limits: Not to exceed 15 (12 under the alternative) mourning

doves.

Note: Mourning doves may be taken in Hawaii in accordance with

shooting hours and other regulations set by the State of Hawaii, and

subject to the applicable provisions of 50 CFR part 20.

Puerto Rico

Doves and Pigeons:

Outside Dates: Between September 1 and January 15.

Hunting Seasons: Not more than 60 days.

Daily Bag and Possession Limits: Not to exceed 10 Zenaida,

mourning, and white-winged doves in the aggregate. Not to exceed 5

scaly-naped pigeons.

Closed Areas: There is no open season on doves or pigeons in the

following areas: Municipality of Culebra, Desecheo Island, Mona Island,

El Verde Closure Area, and Cidra Municipality and adjacent areas.

Ducks, Coots, Moorhens, Gallinules, and Snipe:

Outside Dates: Between October 1 and January 31.

aida,

mourning, and white-winged doves in the aggregate. Not to exceed 5

scaly-naped pigeons.

Closed Areas: There is no open season on doves or pigeons in the

following areas: Municipality of Culebra, Desecheo Island, Mona Island,

El Verde Closure Area, and Cidra Municipality and adjacent areas.

Ducks, Coots, Moorhens, Gallinules, and Snipe:

Outside Dates: Between October 1 and January 31.

Hunting Seasons: Not more than 55 days may be selected for hunting

ducks, common moorhens, and common snipe. The season may be split into

two segments.

Daily Bag Limits:

Ducks - Not to exceed 5.

Common moorhens - Not to exceed 6.

Common snipe - Not to exceed 8.

Closed Seasons: The season is closed on the ruddy duck, white-

cheeked pintail, West Indian whistling duck, fulvous whistling duck,

and masked duck, which are protected by the Commonwealth of Puerto

Rico. The season also is closed on the purple gallinule, American coot,

and Caribbean coot.

Closed Areas: There is no open season on ducks, common moorhens,

and common snipe in the Municipality of Culebra and on Desecheo Island.

Virgin Islands

Doves and Pigeons:

Outside Dates: Between September 1 and January 15.

Hunting Seasons: Not more than 60 days for Zenaida doves.

Daily Bag and Possession Limits: Not to exceed 10 Zenaida doves.

Closed Seasons: No open season is prescribed for ground or quail

doves, or pigeons in the Virgin Islands.

Closed Areas: There is no open season for migratory game birds on

Ruth Cay (just south of St. Croix).

Local Names for Certain Birds: Zenaida dove, also known as mountain

dove; bridled quail-dove, also known as Barbary dove or partridge;

Common ground-dove, also known as stone dove, tobacco dove, rola, or

tortolita; scaly-naped pigeon, also known as red-necked or scaled

pigeon.

Ducks

lands.

Closed Areas: There is no open season for migratory game birds on

Ruth Cay (just south of St. Croix).

Local Names for Certain Birds: Zenaida dove, also known as mountain

dove; bridled quail-dove, also known as Barbary dove or partridge;

Common ground-dove, also known as stone dove, tobacco dove, rola, or

tortolita; scaly-naped pigeon, also known as red-necked or scaled

pigeon.

Ducks

Outside Dates: Between December 1 and January 31.

Hunting Seasons: Not more than 55 consecutive days.

Daily Bag Limits: Not to exceed 5.

Closed Seasons: The season is closed on the ruddy duck, white-

cheeked pintail, West Indian whistling duck, fulvous whistling duck,

and masked duck.

Special Falconry Regulations

Falconry is a permitted means of taking migratory game birds in any

State meeting Federal falconry standards in 50 CFR 21.29(k). These

States may select an extended season for taking migratory game birds in

accordance with the following:

Extended Seasons: For all hunting methods combined, the combined

length of the extended season, regular season, and any special or

experimental seasons shall not exceed 107 days for any species or group

of species in a geographical area. Each extended season may be divided

into a maximum of 3 segments.

Framework Dates: Seasons must fall between September 1 and March

10.

Daily Bag and Possession Limits: Falconry daily bag and possession

limits for all permitted migratory game birds shall not exceed 3 and 6

birds, respectively, singly or in the aggregate, during extended

falconry seasons, any special or experimental seasons, and regular

hunting seasons in all States, including those that do not select an

extended falconry season.

Regular Seasons: General hunting regulations, including seasons and

hunting hours, apply to falconry in each State listed in 50 CFR

21.29(k). Regular-season bag and possession limits do not apply to

falconry. The falconry bag limit is not in addition to gun limits.

Area, Unit, and Zone Descriptions

hunting seasons in all States, including those that do not select an

extended falconry season.

Regular Seasons: General hunting regulations, including seasons and

hunting hours, apply to falconry in each State listed in 50 CFR

21.29(k). Regular-season bag and possession limits do not apply to

falconry. The falconry bag limit is not in addition to gun limits.

Area, Unit, and Zone Descriptions

Central Flyway portion of the following States consists of:

Colorado: That area lying east of the Continental Divide.

Montana: That area lying east of Hill, Chouteau, Cascade, Meagher,

and Park Counties.

New Mexico: That area lying east of the Continental Divide but

outside the Jicarilla Apache Indian Reservation.

Wyoming: That area lying east of the Continental Divide and

excluding the Great Divide Portion.

The remaining portions of these States are in the Pacific Flyway.

Mourning and White-winged Doves

Alabama

South Zone - Baldwin, Barbour, Coffee, Conecuh, Covington, Dale,

Escambia, Geneva, Henry, Houston, and Mobile Counties.

North Zone - Remainder of the State.

California

White-winged Dove Open Areas - Imperial, Riverside, and San

Bernardino Counties.

Florida

Northwest Zone - The Counties of Bay, Calhoun, Escambia, Franklin,

Gadsden, Gulf, Holmes, Jackson, Liberty, Okaloosa, Santa Rosa, Walton,

Washington, Leon (except that portion north of U.S. 27 and east of

State Road 155), Jefferson (south of U.S. 27, west of State Road 59 and

north of U.S. 98), and Wakulla (except that portion south of U.S. 98

and east of the St. Marks River).

South Zone - Remainder of State.

Georgia

Northern Zone - That portion of the State lying north of a line

running west to east along U.S

Rosa, Walton,

Washington, Leon (except that portion north of U.S. 27 and east of

State Road 155), Jefferson (south of U.S. 27, west of State Road 59 and

north of U.S. 98), and Wakulla (except that portion south of U.S. 98

and east of the St. Marks River).

South Zone - Remainder of State.

Georgia

Northern Zone - That portion of the State lying north of a line

running west to east along U.S. Highway 280 from Columbus to Wilcox

County, thence southward along the western border of Wilcox County;

thence east along the southern border of Wilcox County to the Ocmulgee

River, thence north along the Ocmulgee River to Highway 280, thence

east along Highway 280 to the Little Ocmulgee River; thence southward

along the Little Ocmulgee River to the Ocmulgee River; thence

southwesterly along the Ocmulgee River to the western border of the

Jeff Davis County; thence south along the western border of Jeff Davis

County; thence east along the southern border of Jeff Davis and Appling

Counties; thence north along the eastern border of Appling County, to

the Altamaha River; thence east to the eastern border of Tattnall

County; thence north along the eastern border of Tattnall County;

thence north along the western border of Evans to Candler County;

thence west along the southern border of Candler County to the Ohoopee

River; thence north along the western border of Candler County to

Bulloch County; thence north along the western border of Bulloch County

to U.S. Highway 301; thence northeast along U.S. Highway 301 to the

South Carolina line.

South Zone - Remainder of the State.

Louisiana

North Zone - That portion of the State north of Interstate Highway

10 from the Texas State line to Baton Rouge, Interstate Highway 12 from

Baton Rouge to Slidell and Interstate Highway 10 from Slidell to the

Mississippi State line.

South Zone - The remainder of the State

301; thence northeast along U.S. Highway 301 to the

South Carolina line.

South Zone - Remainder of the State.

Louisiana

North Zone - That portion of the State north of Interstate Highway

10 from the Texas State line to Baton Rouge, Interstate Highway 12 from

Baton Rouge to Slidell and Interstate Highway 10 from Slidell to the

Mississippi State line.

South Zone - The remainder of the State.

Mississippi

South Zone - The Counties of Forrest, George, Greene, Hancock,

Harrison, Jackson, Lamar, Marion, Pearl River, Perry, Pike, Stone, and

Walthall.

North Zone - The remainder of the State.

Nevada

White-winged Dove Open Areas - Clark and Nye Counties.

Texas

North Zone - That portion of the State north of a line beginning at

the International Bridge south of Fort Hancock; north along FM 1088 to

TX 20; west along TX 20 to TX 148; north along TX 148 to I-10 at Fort

Hancock; east along I-10 to I-20; northeast along I-20 to I-30 at Fort

Worth; northeast along I-30 to the Texas-Arkansas State line.

South Zone - That portion of the State south and west of a line

beginning at the International Bridge south of Del Rio, proceeding east

on U.S. 90 to San

Antonio; then east on I-10 to Orange, Texas.

Special White-winged Dove Area in the South Zone - That portion of

the State south and west of a line beginning at the International

Bridge south of Del Rio, proceeding east on U.S. 90 to Uvalde; south on

U.S. 83 to TX 44; east along TX 44 to TX 16 at Freer; south along TX 16

to TX 285 at Hebbronville; east along TX 285 to FM 1017; southwest

along FM 1017 to TX 186 at Linn; east along TX 186 to the Mansfield

Channel at Port Mansfield; east along the Mansfield Channel to the Gulf

of Mexico.

Area with additional restrictions - Cameron, Hidalgo, Starr, and

Willacy Counties.

Central Zone - That portion of the State lying between the North

and South Zones.

Band-tailed Pigeons

at Hebbronville; east along TX 285 to FM 1017; southwest

along FM 1017 to TX 186 at Linn; east along TX 186 to the Mansfield

Channel at Port Mansfield; east along the Mansfield Channel to the Gulf

of Mexico.

Area with additional restrictions - Cameron, Hidalgo, Starr, and

Willacy Counties.

Central Zone - That portion of the State lying between the North

and South Zones.

Band-tailed Pigeons

California

North Zone - Alpine, Butte, Del Norte, Glenn, Humboldt, Lassen,

Mendocino, Modoc, Plumas, Shasta, Sierra, Siskiyou, Tehama, and Trinity

Counties.

South Zone - The remainder of the State.

New Mexico

North Zone - North of a line following U.S. 60 from the Arizona

State line east to I-25 at Socorro and then south along I-25 from

Socorro to the Texas State line.

South Zone - Remainder of the State.

Washington

Western Washington - The State of Washington excluding those

portions lying east of the Pacific Crest Trail and east of the Big

White Salmon River in Klickitat County.

Woodcock

New Jersey

North Zone - That portion of the State north of NJ 70.

South Zone - The remainder of the State.

Special September Goose Seasons

Atlantic Flyway

North Carolina

Northeast Hunt Unit - Counties of Bertie, Camden, Chovan,

Currituck, Dare, Hyde, Pasquotank, Perquimans, Tyrrell, and Washington.

Mississippi Flyway

Illinois

Northeast Zone - Cook, DuPage, Grundy, Kane, Kankakee, Kendall,

Lake, McHenry, and Will Counties.

Iowa

North Zone: That portion of the State north of a line extending

east from the Nebraska border along State Highway 175 to State 37,

southeast along State 37 to U.S. Highway 59, south along U.S. 59 to

Interstate Highway 80, then east along I-80 to the Illinois border.

South Zone: The remainder of Iowa.

Minnesota

Twin Cities Metropolitan Canada Goose Zone -

A. All of Hennepin and Ramsey Counties.

B

Zone: That portion of the State north of a line extending

east from the Nebraska border along State Highway 175 to State 37,

southeast along State 37 to U.S. Highway 59, south along U.S. 59 to

Interstate Highway 80, then east along I-80 to the Illinois border.

South Zone: The remainder of Iowa.

Minnesota

Twin Cities Metropolitan Canada Goose Zone -

A. All of Hennepin and Ramsey Counties.

B. In Anoka County, all of Columbus Township lying south of County

State Aid Highway (CSAH) 18, Anoka County; all of the cities of Ramsey,

Andover, Anoka, Coon Rapids, Spring Lake Park, Fridley, Hilltop,

Columbia Heights, Blaine, Lexington, Circle Pines, Lino Lakes, and

Centerville; and all of the city of Ham Lake except that portion lying

north of CSAH 18 and east of U.S. Highway 65.

C. That part of Carver County lying north and east of the following

described line: Beginning at the northeast corner of San Francisco

Township; thence west along the north boundary of San Francisco

Township to the east boundary of Dahlgren Township; thence north along

the east boundary of Dahlgren Township to U.S. Highway 212; thence west

along U.S. Highway 212 to State Trunk Highway (STH) 284; thence north

on STH 284 to County State Aid Highway (CSAH) 10; thence north and west

on CSAH 10 to CSAH 30; thence north and west on CSAH 30 to STH 25;

thence east and north on STH 25 to CSAH 10; thence north on CSAH 10 to

the Carver County line.

D. In Scott County, all of the cities or Shakopee, Savage, Prior

Lake, and Jordan, and all of the Townships of Jackson, Louisville, St.

Lawrence, Sand Creek, Spring Lake, and Credit River.

E. In Dakota County, all of the cities of Burnsville, Eagan,

Mendota Heights, Mendota, Sunfish Lake, Inver Grove Heights, Apple

Valley, Lakeville, Rosemount, Farmington, Hastings, Lilydale, West St.

Paul, and South St. Paul, and all of the Township of Nininger.

F

Prior

Lake, and Jordan, and all of the Townships of Jackson, Louisville, St.

Lawrence, Sand Creek, Spring Lake, and Credit River.

E. In Dakota County, all of the cities of Burnsville, Eagan,

Mendota Heights, Mendota, Sunfish Lake, Inver Grove Heights, Apple

Valley, Lakeville, Rosemount, Farmington, Hastings, Lilydale, West St.

Paul, and South St. Paul, and all of the Township of Nininger.

F. That portion of Washington County lying south of the following

described line: Beginning at County State Aid Highway (CSAH) 2 on the

west boundary of the county; thence east on CSAH 2 to U.S. Highway 61;

thence south on U.S. Highway 61 to State Trunk Highway (STH) 97; thence

east on STH 97 to the intersection of STH 97 and STH 95; thence due

east to the east boundary of the state.

Northwest Goose Zone (included for reference only, not a special

September Goose Season Zone) - That portion of the State encompassed by

a line extending east from the North Dakota border along U.S. Highway 2

to State Trunk Highway (STH) 32, north along STH 32 to STH 92, east

along STH 92 to County State Aid Highway (CSAH) 2 in Polk County, north

along CSAH 2 to CSAH 27 in Pennington County, north along CSAH 27 to

STH 1, east along STH 1 to CSAH 28 in Pennington County, north along

CSAH 28 to CSAH 54 in Marshall County, north along CSAH 54 to CSAH 9 in

Roseau County, north along CSAH 9 to STH 11, west along STH 11 to STH

310, and north along STH 310 to the Manitoba border.

Four Goose Zone - That portion of the state encompassed by a line

extending north from the Iowa border along U.S. Interstate Highway 35

to the south boundary of the Twin Cities Metropolitan Canada Goose

Zone, then west and north along the boundary of the Twin Cities

Metropolitan Canada Goose Zone to U.S. Interstate 94, then west and

north on U.S. Interstate 94 to the North Dakota border.

Two Goose Zone - That portion of the state to the north of a line

extending east from the North Dakota border along U.S

terstate Highway 35

to the south boundary of the Twin Cities Metropolitan Canada Goose

Zone, then west and north along the boundary of the Twin Cities

Metropolitan Canada Goose Zone to U.S. Interstate 94, then west and

north on U.S. Interstate 94 to the North Dakota border.

Two Goose Zone - That portion of the state to the north of a line

extending east from the North Dakota border along U.S. Interstate 94 to

the boundary of the Twin Cities Metropolitan Canada Goose Zone, then

north and east along the Twin Cities Metropolitan Canada Goose Zone

boundary to the Wisconsin border, except the Northwest Goose Zone and

that portion of the State encompassed by a line extending north from

the Iowa border along U.S. Interstate 35 to the south boundary of the

Twin Cities Metropolitan Canada Goose Zone, then east on the Twin Cites

Metropolitan Canada Goose Zone boundary to the Wisconsin border.

Tennessee

Middle Tennessee Zone - Those portions of Houston, Humphreys,

Montgomery, Perry, and Wayne Counties east of State Highway 13; and

Bedford, Cannon, Cheatham, Coffee, Davidson, Dickson, Franklin, Giles,

Hickman, Lawrence, Lewis, Lincoln, Macon, Marshall, Maury, Moore,

Robertson, Rutherford, Smith, Sumner, Trousdale, Williamson, and Wilson

Counties.

Cumberland Plateau Zone - Bledsoe, Bradley, Clay, Cumberland,

Dekalb, Fentress, Grundy, Hamilton, Jackson, Marion, McMinn, Meigs,

Morgan, Overton, Pickett, Polk, Putnam, Rhea, Roane, Scott, Sequatchie,

Van Buren, Warren, and White Counties.

East Tennessee Zone - Anderson, Blount, Campbell, Carter,

Claiborne, Cocke, Grainger, Greene, Hamblen, Hancock, Hawkins,

Jefferson, Johnson, Knox, Loudon, Monroe, Sevier, Sullivan, Unicoi,

Union, and Washington Counties.

b, Fentress, Grundy, Hamilton, Jackson, Marion, McMinn, Meigs,

Morgan, Overton, Pickett, Polk, Putnam, Rhea, Roane, Scott, Sequatchie,

Van Buren, Warren, and White Counties.

East Tennessee Zone - Anderson, Blount, Campbell, Carter,

Claiborne, Cocke, Grainger, Greene, Hamblen, Hancock, Hawkins,

Jefferson, Johnson, Knox, Loudon, Monroe, Sevier, Sullivan, Unicoi,

Union, and Washington Counties.

Wisconsin

Early-Season Subzone A - That portion of the State encompassed by a

line beginning at the Lake Michigan shore in Sheboygan, then west along

State Highway 23 to State 67, southerly along State 67 to County

Highway E in Sheboygan County, southerly along County E to State 28,

south and west along State 28 to U.S. Highway 41, southerly along U.S.

41 to State 33, westerly along State 33 to County Highway U in

Washington County, southerly along County U to County N, southeasterly

along County N to State 60, westerly along State 60 to County Highway P

in Dodge County, southerly along County P to County O, westerly along

County O to State 109, south and west along State 109 to State 26,

southerly along State 26 to U.S. 12, southerly along U.S. 12 to State

89, southerly along State 89 to U.S. 14, southerly along U.S. 14 to the

Illinois border, east along the Illinois border to the Michigan border

in Lake Michigan, north along the Michigan border in Lake Michigan to a

point directly east of State 23 in Sheboygan, then west along that line

to the point of beginning on the Lake Michigan shore in Sheboygan.

Early-Season Subzone B - That portion of the State between Early-

Season Subzone A and a line beginning at the intersection of U.S.

Highway 141 and the Michigan border near Niagara, then south along U.S.

141 to State Highway 22, west and southwest along State 22 to U.S. 45,

south along U.S. 45 to State 22, west and south along State 22 to State

110, south along State 110 to U.S. 10, south along U.S

-Season Subzone B - That portion of the State between Early-

Season Subzone A and a line beginning at the intersection of U.S.

Highway 141 and the Michigan border near Niagara, then south along U.S.

141 to State Highway 22, west and southwest along State 22 to U.S. 45,

south along U.S. 45 to State 22, west and south along State 22 to State

110, south along State 110 to U.S. 10, south along U.S. 10 to State 49,

south along State 49 to State 23, west along State 23 to State 73,

south along State 73 to State 60, west along State 60 to State 23,

south along State 23 to State 11, east along State 11 to State 78, then

south along State 78 to the Illinois border.

Pacific Flyway

Idaho

East Zone - Bonneville, Caribou, Fremont and Teton Counties.

Oregon

Northwest Zone - Benton, Clackamus, Clatsop, Columbia, Lincoln,

Linn, Marion, Polk, Multnomah, Tillamook, Washington, Wayne, and

Yamhill Counties.

Southwest Zone - Coos, Curry, Douglas, Jackson, Josephine, and

Klamath Counties.

East Zone - Baker, Gilliam, Malheur, Morrow, Sherman, Umatilla,

Union and Wasco Counties.

Washington

Southwest Zone - Clark, Colitz, Pacific, and Wahkiakum Counties.

East Zone - Asotin, Benton, Columbia, Garfield, Klickitat, and

Whitman Counties.

Wyoming

Bear River Area - That portion of Lincoln County described in State

regulations.

Salt River Area - That portion of Lincoln County described in State

regulations.

Farson-Edon Area - Those portions of Sweetwater and Sublette

Counties described in State regulations.

Teton Area - Those portions of Teton County described in State

regulations.

Ducks

Mississippi Flyway

Iowa

North Zone: That portion of the State north of a line extending

east from the Nebraska border along State Highway 175 to State 37,

southeast along State 37 to U.S. Highway 59, south along U.S. 59 to

Interstate Highway 80, then east along I-80 to the Illinois border.

South Zone: The remainder of Iowa.

Sandhill Cranes

Central Flyway

bed in State

regulations.

Ducks

Mississippi Flyway

Iowa

North Zone: That portion of the State north of a line extending

east from the Nebraska border along State Highway 175 to State 37,

southeast along State 37 to U.S. Highway 59, south along U.S. 59 to

Interstate Highway 80, then east along I-80 to the Illinois border.

South Zone: The remainder of Iowa.

Sandhill Cranes

Central Flyway

Colorado

Regular-Season Open Area - The Central Flyway portion of the State

except the San Luis Valley (Alamosa, Conejos, Costilla, Hinsdale,

Mineral, Rio Grande and Saguache Counties east of the Continental

Divide) and North Park (Jackson County).

Kansas

Regular Season Open Area - That portion of the State west of a line

beginning at the Oklahoma border, north on I-35 to Wichita, north on I-

135 to Salina, and north on U.S. 81 to the Nebraska border.

New Mexico

Regular-Season Open Area - Chaves, Curry, De Baca, Eddy, Lea, Quay,

and Roosevelt Counties.

Middle Rio Grande Valley Area - The Central Flyway portion of New

Mexico in Socorro and Valencia Counties.

Southwest Zone - Sierra, Luna, and Dona Ana Counties.

Oklahoma

Regular-Season Open Area - That portion of the State west of I-35.

Texas

Regular-Season Open Area - That portion of the State west of a line

from the International Toll Bridge at Brownsville along U.S. 77 to

Victoria; U.S. 87 to Placedo; Farm Road 616 to Blessing; State 35 to

Alvin; State 6 to U.S. 290; U.S. 290 to Austin; I-35 to the Texas-

Oklahoma border.

North Dakota

Regular-Season Open Area - That portion of the State west of U.S.

281.

South Dakota

Regular-Season Open Area - That portion of the State west of U.S.

281.

Montana

Regular-Season Open Area - The Central Flyway portion of the State

except that area south of I-90 and west of the Bighorn River.

Wyoming

Regular-Season Open Area - Campbell, Converse, Crook, Goshen,

Laramie, Niobrara, Platte, and Weston Counties.

Riverton-Boysen Unit - Portions of Fremont County

.

South Dakota

Regular-Season Open Area - That portion of the State west of U.S.

281.

Montana

Regular-Season Open Area - The Central Flyway portion of the State

except that area south of I-90 and west of the Bighorn River.

Wyoming

Regular-Season Open Area - Campbell, Converse, Crook, Goshen,

Laramie, Niobrara, Platte, and Weston Counties.

Riverton-Boysen Unit - Portions of Fremont County.

Park and Bighorn County Unit - Portions of Park and Bighorn

Counties.

Pacific Flyway

Arizona

Special-Season Area - Game Management Units 30A, 30B, 31, and 32.

Montana

Special-Season Area - See State regulations.

Utah

Special-Season Area - Rich County.

Wyoming

Bear River Area - That portion of Lincoln County described in State

regulations.

Salt River Area - That portion of Lincoln County described in State

regulations.

Eden-Farson Area - Those portions of Sweetwater and Sublette

Counties described in State regulations.

All Migratory Game Birds in Alaska

North Zone - State Game Management Units 11-13 and 17-26.

Gulf Coast Zone - State Game Management Units 5-7, 9, 14-16, and 10

- Unimak Island only.

Southeast Zone - State Game Management Units 1-4.

Pribilof and Aleutian Islands Zone - State Game Management Unit 10

- except Unimak Island.

Kodiak Zone - State Game Management Unit 8.

All Migratory Birds in the Virgin Islands

Ruth Cay Closure Area - The island of Ruth Cay, just south of St.

Croix.

All Migratory Birds in Puerto Rico

Municipality of Culebra Closure Area - All of the municipality of

Culebra.

Desecheo Island Closure Area - All of Desecheo Island.

Mona Island Closure Area - All of Mona Island.

El Verde Closure Area - Those areas of the municipalities of Rio

Grande and Loiza delineated as follows: (1) All

ay Closure Area - The island of Ruth Cay, just south of St.

Croix.

All Migratory Birds in Puerto Rico

Municipality of Culebra Closure Area - All of the municipality of

Culebra.

Desecheo Island Closure Area - All of Desecheo Island.

Mona Island Closure Area - All of Mona Island.

El Verde Closure Area - Those areas of the municipalities of Rio

Grande and Loiza delineated as follows: (1) All

lands between Routes 956 on the west and 186 on the east, from Route 3

on the north to the juncture of Routes 956 and 186 (Km 13.2) in the

south; (2) all lands between Routes 186 and 966 from the juncture of

186 and 966 on the north, to the Caribbean National Forest Boundary on

the south; (3) all lands lying west of Route 186 for one kilometer from

the juncture of Routes 186 and 956 south to Km 6 on Route 186; (4) all

lands within Km 14 and Km 6 on the west and the Caribbean National

Forest Boundary on the east; and (5) all lands within the Caribbean

National Forest Boundary whether private or public.

Cidra Municipality and adjacent areas - All of Cidra Municipality

and portions of Aguas, Buenas, Caguas, Cayer, and Comerio

Municipalities as encompassed within the following boundary: beginning

on Highway 172 as it leaves the municipality of Cidra on the west edge,

north to Highway 156, east on Highway 156 to Highway 1, south on

Highway 1 to Highway 765, south on Highway 765 to Highway 763, south on

Highway 763 to the Rio Guavate, west along Rio Guavate to Highway 1,

southwest on Highway 1 to Highway 14, west on Highway 14 to Highway

729, north on Highway 729 to Cidra Municipality boundary to the point

of beginning.

BILLING CODE 4310-55-F

[GRAPHIC] [TIFF OMITTED] TP22JY96.000

[FR Doc. 96-18430 Filed 7-19-96; 8:45 am]

BILLING CODE 4310-55-C