Glacier Bay National Park, Vessel Management Plan Regulations, 10940-10949 [06-2000]
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Federal Register / Vol. 71, No. 42 / Friday, March 3, 2006 / Proposed Rules
DEPARTMENT OF THE TREASURY
DEPARTMENT OF THE INTERIOR
Internal Revenue Service
National Park Service
26 CFR Part 1
36 CFR Part 13
RIN 1024–AD25
[REG–107722–00]
Glacier Bay National Park, Vessel
Management Plan Regulations
RIN 1545–AY22
ACTION:
Internal Revenue Service (IRS),
Treasury.
AGENCY:
Cancellation of notice of public
hearing on proposed rulemaking.
ACTION:
SUMMARY: This document cancels a
public hearing on proposed regulations
and withdraws proposed regulations
relating to corporate estimated taxes.
The public hearing originally
scheduled for March 15, 2006, at 10
a.m., is cancelled.
DATES:
FOR FURTHER INFORMATION CONTACT:
Robin R. Jones of the Publications and
Regulations Branch, Legal Processing
Division, Associate Chief Counsel
(Procedure and Administration) at (202)
622–7180 (not a toll-free number).
A notice
of proposed rulemaking and notice of
public hearing that appeared in the
Federal Register on Monday, December
12, 2005 (70 FR 73393) announced that
a public hearing was scheduled for
March 15, 2006, at 10 a.m., in the IRS
Auditorium, Internal Revenue Service
Building, 1111 Constitution Avenue,
NW., Washington, DC. The subject of
the public hearing is under sections
6425 and 6655 of the Internal Revenue
Code.
The public comment period for these
regulations expired on February 22,
2006.
The notice of proposed rulemaking
and notice of public hearing, instructed
those interested in testifying at the
public hearing to submit a request to
speak and an outline of the topics to be
addressed. As of Tuesday, February 28,
2006, no one has requested to speak.
Therefore, the public hearing scheduled
for March 15, 2006, is cancelled.
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SUPPLEMENTARY INFORMATION:
LaNita VanDyke,
Federal Register Liaison Officer, Legal
Processing Division, Associate Chief Counsel,
(Procedure and Administration).
[FR Doc. E6–3062 Filed 3–2–06; 8:45 am]
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National Park Service, Interior
Proposed rule.
AGENCY:
Corporate Estimated Tax
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SUMMARY: The National Park Service
(NPS) is proposing this rule to more
effectively manage motor vessel use in
Glacier Bay National Park and Preserve.
It proposes to revise existing regulations
regarding vessel quotas and operating
requirements for five types of motor
vessels—cruise ships, tour vessels,
charter vessels, private vessels, and
passenger ferries—within Glacier Bay
National Park and Preserve. This rule is
proposed in conjunction with the Final
Environmental Impact Statement (FEIS)
and the Record of Decision (ROD) for
Vessel Quotas and Operating
Requirements in Glacier Bay National
Park and Preserve, completed in
October and November 2003,
respectively, and implements decisions
made in the ROD.
DATES: Comments must be received by
May 2, 2006.
ADDRESSES: You may submit your
comments, identified by Regulatory
Information Number (RIN) 1024–AD25,
by any of the following methods:
• Federal eRulemaking Portal: https://
www.regulations.gov. Follow the
instructions for submitting comments.
• E-mail NPS at:
akro_regulations@nps.gov. Use RIN
1024–AD25 in the subject line.
• Mail: Superintendent, Proposed
Vessel Management Plan Regulations
Comment, Glacier Bay National Park
and Preserve, P.O. Box 140, Gustavus,
Alaska 99826.
• Hand Delivery/Courier:
Superintendent, Glacier Bay National
Park and Preserve Headquarters Office
at Bartlett Cove. Clearly identify the
delivery as Proposed Vessel
Management Plan Regulations
Comments.
All submissions received must
include the agency name and RIN. For
additional information see ‘‘Public
Participation’’ under SUPPLEMENTARY
INFORMATION below.
FOR FURTHER INFORMATION CONTACT:
Tomie Patrick Lee, Superintendent,
Glacier Bay National Park and Preserve,
P.O. Box 140, Gustavus, Alaska 99826,
Telephone: (907) 697–2230.
SUPPLEMENTARY INFORMATION: Glacier
Bay National Park and Preserve is
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located in southeast Alaska,
approximately 65 miles west of Juneau.
Accessible by boat and airplane, it is a
popular destination due to its
spectacular scenery, tidewater glaciers,
wilderness, and wildlife. In this
document the term ‘‘Glacier Bay’’
generally refers to the bay proper rather
than the entire park and preserve.
History of Glacier Bay National Park
and Preserve
Glacier Bay National Monument was
established by presidential
proclamation dated February 26, 1925
(No. 1733, 43 Stat. 1988). The
monument was expanded by a second
presidential proclamation on April 18,
1939 (No. 2330, 53 Stat. 2534). The
expanded monument added adjacent
lands, including glaciers and geologic
features of scientific interest, and the
marine waters of all of Glacier Bay;
portions of other waters outside Glacier
Bay proper; and Pacific coastal waters to
a distance of three miles seaward
between Cape Spencer in the south and
Sea Otter Creek, north of Cape
Fairweather.
The Alaska National Interest Lands
Conservation Act (ANILCA), enacted in
1980, expanded the 2.8-million-acre
Glacier Bay National Monument to 3.3
million acres and redesignated this area
as Glacier Bay National Park and
Preserve (16 U.S.C 410–1, 94 Stat. 2382).
The new park and preserve included all
lands and waters of the previously
existing monument.
Under proclamations that established
Glacier Bay as a national monument, the
NPS Organic Act and its amendments
(16 U.S.C 1, et seq.) governed the
management of the former Glacier Bay
National Monument. Along with
ANILCA and several additional
statutory provisions enacted by
Congress, they continue to govern the
present Glacier Bay National Park and
Preserve. The NPS Organic Act of 1916
directs the Secretary of the Interior and
the NPS to manage national parks and
monuments to ‘‘conserve the scenery
and the natural and historic objects and
the wild life therein and to provide for
the enjoyment of same in such manner
and by such means as will leave them
unimpaired for the enjoyment of future
generations.’’ 16 U.S.C. 1. In addition,
the Redwood National Park Act of 1978
(amending the General Authorities Act)
states: ‘‘The authorization of activities
shall be construed and the protection,
management and administration of [NPS
areas] shall be conducted in light of the
high public value and integrity of the
National Park System and shall not be
exercised in derogation of the values
and purposes for which these various
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areas have been established, except as
may have been or shall be directly and
specifically provided by Congress.’’ 16
U.S.C. 1a–1. The NPS Organic Act also
grants the Secretary of the Interior the
authority to implement ‘‘rules and
regulations as he may deem necessary or
proper for the use and management of
the parks, monuments and reservations
under the jurisdiction of the National
Park Service.’’ 16 U.S.C. 3. In addition
to general regulatory authority, the NPS
has been delegated specific authority to
‘‘[p]romulgate and enforce regulations
concerning boating and other activities
on or relating to waters located within
areas of the National Park System,
including waters subject to the
jurisdiction of the United States * * *.’’
16 U.S.C. 1a–2(h). None of the actions
in this proposed rule are intended to
preclude vessel management actions for
safety, resource protection, or other
reasons pursuant to applicable
regulations.
Vessel Management in Glacier Bay
Measures to address vessel traffic in
Glacier Bay were first implemented in
1979 to respond to concerns regarding
the effects of motor vessels on the
endangered humpback whale.
Regulations went into effect in 1980,
influenced largely by the alternatives
included in a 1979 biological opinion
issued by the National Marine Fisheries
Service (NMFS, now known as NOAA
Fisheries) in accordance with section 7
of the Endangered Species Act of 1973,
as amended (16 U.S.C. 1531 et seq.). The
opinion concluded that a continued
increase in the amount of vessel traffic,
particularly charter/pleasure craft, in
Glacier Bay was likely to jeopardize the
continued existence of the humpback
whales in southeast Alaska.
The NMFS issued another biological
opinion in 1983 concerning the
regulation of vessel traffic and resultant
interactions with humpback whales in
Glacier Bay National Park and Preserve.
This opinion was prepared in response
to a request from NPS to reinitiate
section 7 consultation for the
endangered humpback whale in Glacier
Bay. This opinion considered the
impacts to humpback whales from
existing levels of vessel traffic and from
the effects of proposed increases in the
levels of vessel traffic in Glacier Bay.
The opinion concluded that existing
traffic, as well as some additional
increase in vessel traffic, could occur in
Glacier Bay without jeopardizing the
southeast Alaska stock of humpback
whales. This determination was based
on the ability of NPS to monitor and
control both the amount of vessel traffic
and the operation of vessels in Glacier
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Bay. NMFS also recommended vessel
operating restrictions and a rationale for
regulating vessel entries into Glacier
Bay. The agency recommended that any
vessel increases be contingent on
monitoring studies of whale presence,
noise levels, and prey showing no
adverse effects. The opinion stated: (1)
‘‘no additional vessel traffic should be
allowed unless the number of
individual whales that enter Glacier Bay
remains equal to or is greater than the
1982 level’’ (22 whales were observed
between June 1 through August 31,
1982) and (2) ‘‘a minimum of two years
should be allowed for monitoring and
evaluating the effects of such an
increase before additional increases are
proposed.’’
Additional vessel regulations were
subsequently promulgated in 1985.
Consistent with the recommendations in
the NMFS 1983 biological opinion,
these regulations allowed for up to a 20
percent increase in vessel quotas above
the 1976 level for large ship and small
motor vessel classes. The NPS
implemented increases in two
increments, and the 20 percent increase
was reached in 1988. Since these
regulations were promulgated, concerns
have broadened to encompass potential
effects on other biota, the physical
environment, and visitor experience.
In 1993 NMFS issued another
biological opinion—based on a review
of a 1992 draft NPS proposal for vessel
management in Glacier Bay, available
data, and previous biological opinions—
addressing the effects of vessel traffic in
Glacier Bay on the threatened Steller sea
lion, the endangered gray whale, and
the endangered North Pacific
population of humpback whales. NMFS
concluded that the level of activity
described in the 1992 draft NPS
proposal would not jeopardize the
continued existence and recovery of any
threatened or endangered species.
Nonetheless, due to concern about the
decline in humpback whale use of
Glacier Bay, NMFS, in its opinion,
‘‘urged the NPS to take a conservative
approach in all management actions that
may affect humpback whales’’ and
recommended that NPS ‘‘implement a
humpback whale feeding ecology
research program’’ and ‘‘continue
humpback whale monitoring programs
that identify the number of humpback
whales that feed in the National Park
waters, and their individual identity,
age, reproductive status, and length of
stays.’’
Based on the park’s management
objectives from the 1984 General
Management Plan and the 1993 NMFS
opinion, the NPS completed a 1996
Vessel Management Plan (VMP)/revised
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environmental assessment (EA) and
issued a finding of no significant impact
(FONSI) regarding vessel quotas and
operating requirements. The NPS
decision regarding vessel management
provided for increases in quotas for
cruise ships, charter vessels, and private
vessels in Glacier Bay. With respect to
cruise ships, it allowed for 139 cruise
ships throughout the June through
August season, with potential for
incremental increases to 184 ships (i.e.,
up to two cruise ships per day during
the 3-month season), based on scientific
and other information and applicable
authorities. Regulations adopting the
VMP vessel quotas became effective in
May 1996. Based in part on
recommendations in the 1993 biological
opinion, research and monitoring were
initiated to better understand the effects
of motor vessels on park resources and
values.
Subsequent legislation affecting
Glacier Bay National Park and Preserve
included the Omnibus Parks and Public
Lands Management Act of 1996 (Pub. L.
104–333). Section 703 of this Act
directed NPS to not impose additional
operating conditions in the areas of air,
water, and oil pollution beyond those
determined and enforced by appropriate
regulatory agencies. Operating
conditions or limitations relating to
noise abatement can be imposed only
when the Secretary determines it
necessary to protect park values and
resources. However, when
competitively awarding concession
contracts to enter Glacier Bay, the
relative impact particular concessioners
will have on park values and resources
are considered in determining which are
the best proposals.
In a May 1997 complaint filed in the
U.S. District Court, the National Parks
Conservation Association (NPCA)
challenged the validity of the NPS 1996
VMP/revised EA and FONSI. The
District Court upheld the decision made
by the NPS. However, the U.S. Court of
Appeals for the Ninth Circuit
subsequently determined that the
portion of the VMP/EA and the 1996
implementing regulations that
authorized an increase in vessels into
Glacier Bay violated the National
Environmental Policy Act of 1969 (Pub.
L. 91–190, hereafter NEPA) because an
environmental impact statement (EIS)
had not been prepared. The court
prohibited vessel traffic above the pre1996 levels unless an EIS was prepared.
The court decision went into effect in
late summer 2001. Following this
decision, the Congress, as part of the
U.S. Department of the Interior
Appropriations Act of 2002 (Pub. L.
107–63, section 130), required NPS to:
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(1) Prepare an EIS by January 1, 2004,
to identify and analyze the possible
effects of the 1996 increases; and (2) set
the maximum level of vessel entries into
Glacier Bay based on the analysis in the
EIS. Until the maximum level of vessel
entries is set based on the new EIS, the
Act provided that the number of vessel
entries into the park would be the same
as in effect during the 2000 calendar
year, and that the NPS decision and
final rule, issued in 1996, relating to
vessel entries were approved and would
be in effect, notwithstanding any other
provision of law. On January 18, 2002,
the U.S. District Court modified the
previous injunction accordingly.
The Draft and Final Environmental
Impact Statements
In addressing the requirements of
section 130 and pursuant to NEPA, the
NPS prepared a draft EIS (DEIS) and
final EIS (FEIS) and approved a Record
of Decision (ROD) on November 21,
2003. The DEIS described and evaluated
the environmental effects of a no action
alternative and four action alternatives
for managing motorized vessels within
Glacier Bay and Dundas Bay. Based on
comments received during the public
comment period and additional NPS
considerations, modifications were
made in the FEIS. These documents are
discussed in more depth below under
‘‘Compliance with Other Laws.’’
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Description of the Proposed Rule
Regulations concerning vessel quotas
and operating requirements for cruise
ships and tour, charter and private
vessels have been in effect and enforced
by NPS for many years. Many of these
regulations regarding vessel
management are being retained
consistent with the ROD. New elements
and a number of adjustments to the
current regulations are included in this
proposed rule:
• Establishing two separate seasonal
vessel quota periods for cruise ships.
First, for May and September establish
an initial quota of 92 cruise ships with
potential to increase to 122. Second, for
June 1–August 31 re-establish an initial
quota of 139 cruise ships with potential
for incremental increases to 184 as
under the 1996 regulations;
• Eliminating two private vessel
seasonal categories—total entries and
total vessel use days—thus increasing
the total number of private vessels
allowed in a season;
• Adding a passenger ferry category
to Bartlett Cove with a year-round daily
vessel quota of one, in accordance with
section 127 of P.L. 105–83 (Nov. 14,
1997);
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• Modifying the definitions for cruise
ship, charter, and tour vessels;
• Adding a definition for a passenger
ferry;
• Closing the waters at Beardslee
Entrance and the entrance to Adams
Inlet in Glacier Bay to cruise ships and
tour vessels;
• Eliminating the permit exemption
for private vessels based in Bartlett
Cove;
• Relaxing existing private vessel
orientation requirements;
• Modifying the annual
determination of the cruise ship quota
to provide flexibility concerning
timeframes to meet cruise ship industry
needs;
• Increasing the 10 knot maximum
speed limit in whale waters to 13 knots;
• Reducing the number of areas predesignated as whale waters;
• Extending the seasonal speed limit
in the lower bay whale waters to
September 30; and
• Conforming subsection (b) to the
existing question and answer format of
subsection (a).
Section-by-Section Analysis
Section 13.65(b)(1) Definitions
The following changes are proposed
for the Definitions:
• The term ‘‘charter vessel’’ would be
amended to include certain uninspected
vessels measuring over 100 tons under
the U.S. Tonnage ‘‘Simplified
Measurement System.’’ Vessels under
this class would not be any larger than
vessels currently allowed under the
existing 100 gross ton U.S. or 2,000
gross ton ITC limits due to the
idiosyncrasies of the various
measurement systems. Though USCG
regulations do not set an upper limit for
the tonnage of these vessel, the NPS
proposes implementing an upper limit
of 200 tons, as well as a specific length
limit [note that the length limit is
already an element of the USCG
regulations controlling which vessel can
use the simplified measurement
system], as a safeguard against vessels
qualifying under this subcategory which
are larger than otherwise allowed under
the existing regulations. Dropped from
the definition of charter vessel would be
the existing requirement that it be
available for hire on an unscheduled
basis, as well as the related exception to
that requirement—allowing scheduled
camper or kayak drop off service. Under
the 1996 definitions charter vessels
were required to operate on an
‘‘unscheduled’’ basis. This was
unrealistic because, as a practical
matter, many charter operators schedule
trips well in advance of the season. The
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new definition is more easily applied to
the charter fleet. To eliminate overlap
between the charter vessel and tour
vessel definitions, passenger carrying
capacity would be adopted as the
primary criteria separating these use
categories. This change in the GLBA
definition was proposed by several of
our charter operators and park staff
during the scoping process for the
Vessel Quota and Operating
Requirements EIS. The ROD defines
charter vessel as certificated ‘‘* * * to
carry up to twelve passengers overnight
or up to 49 passengers for daytime use
* * *.’’ The proposed definition
changes the word ‘‘or’’ to ‘‘and’’
resulting in: ‘‘* * * rated to carry no
more than 12 passengers overnight and
no more than 49 passengers for daytime
use ‘‘ * * *.’’ to more clearly convey
the intent: if a vessel is licensed to carry
more than twelve overnight passengers,
it could not be a charter vessel and if a
vessel is licensed to carry more than 49
day use passengers, it could not be a
charter vessel.
• The term ‘‘cruise ship’’ would be
revised to include only vessels
certificated to carry over 12 passengers.
Without this provision, a vessel with 12
or fewer passengers of 100–200 gross
tonnage under the U.S. Tonnage
‘‘Simplified Measurement System’’
could be either a charter vessel or cruise
ship. This would eliminate overlap with
the new U.S. Coast Guard 200 ton
uninspected class.
• Because the ‘‘seasonal entry quota’’
would be eliminated and the term
‘‘entry’’ would no longer be mentioned
in this proposed rule, the term ‘‘entry’’
would no longer need to be defined and
would be eliminated.
• A revised definition of ‘‘Glacier
Bay’’ would include precise geographic
coordinates for Point Gustavus and
Point Carolus as the entrance to Glacier
Bay.
• A new vessel type—‘‘passenger
ferry’’—would be added in recognition
of the Juneau to Bartlett Cove service
authorized in Public Law 105–83,
section 127.
• To provide clarity, the definition for
each of the following terms would be
revised slightly: ‘‘commercial fishing
vessel,’’ ‘‘speed through the water,’’ and
‘‘private vessel.’’
• The definition of ‘‘tour vessel’’
would be changed to provide a clear
distinction from the definition of
‘‘charter vessel,’’ and to ensure that all
commercial passenger-carrying vessels
less than 100 tons gross (U.S. System) or
2,000 tons gross (International
Convention System) could be
categorized into the appropriate vessel
type.
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• The term ‘‘pursue’’ would be
deleted from the regulatory language in
(b)(1) and a description of the
prohibited action instead would be
incorporated into proposed paragraph
(b)(3)(i). Including a description of the
proposed prohibited activity would
clarify the proposed regulation.
• The terms ‘‘daily vessel quota’’ and
‘‘seasonal vessel quota’’ would be added
to clarify how vessel quotas would be
applied to vessel use in Glacier Bay.
• The terms ‘‘vessel-use day’’ and
‘‘operate’’ would no longer be used and
would be deleted from the regulation.
All other definitions would remain
unchanged.
Section 13.65(b)(2) Permits
Paragraph (b)(2)(i), ‘‘Private vessel
permits and conditions’’ would modify
the existing requirement for operators of
private vessels (see 36 CFR 1.4) to report
to the Bartlett Cove Ranger Station for
a boater orientation each time they enter
Glacier Bay from June 1 through August
31. Instead, while operators of private
vessels would still be required to report
that they are entering or exiting Glacier
Bay, they would only be required to
come to Bartlett Cove for a full boater
orientation at the beginning of their
initial trip into Glacier Bay for that
permit season. This paragraph would
simplify the procedure at proposed
paragraph (b)(2)(i)(B): From May 1
through September 30, operators must
immediately notify the Bartlett Cove
Ranger Station of the vessel’s entry or
exit into Glacier Bay. The notification
can be accomplished by radio or phone,
allowing the NPS to update operators
about existing or special conditions or
operating requirements.
Paragraph (b)(2)(ii), ‘‘Commercial
vessel permits and conditions,’’ would
clarify that a cruise ship is required to
have a concession contract, and tour,
charter and passenger ferry vessels are
required to have a concession
authorization to operate in Glacier Bay
National Park and Preserve. This
paragraph also will establish the
operational requirement for the
passenger ferry to travel a direct route
to Bartlett Cove, except as necessary for
safety considerations.
The proposed rule would extend the
closure area for cruise ships and tour
vessels to the entrance of Adams Inlet
and Beardslee Entrance prohibiting
these two vessel types from operating in
these two locations. Glacial rebound
and silting from the Casement Glacier
have caused Adams Inlet to become
very shallow and unsafe. Extending the
closure would reduce the risk of largevessel accidents in these two areas. The
restrictions in the Beardslee Entrance
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are due to its narrow configuration
which poses a hazardous area for large
vessels, as well as its proximity to the
ecologically sensitive Beardslee Islands.
Historically, no cruise ships use the
Beardslee Entrance to travel within
Glacier Bay. Large vessels would have
difficulty maneuvering the 90-degree
turn, which is required to safely
navigate the one (1) nautical mile
passage between Strawberry Island and
the Beardslee Islands. Additionally,
opposing currents and shallow shelves
add to the difficulty in maneuvering
larger vessels through this area. Harbor
seals, whose populations have recently
declined precipitously, haul out on the
Spider Island complex, Flapjack, and
Eider Islands, all within the Beardslee
Island complex. These populations are
extremely sensitive to disturbance
created by large vessel noise, wakes, and
presence of vessels and people. A vessel
grounding in the entrance could cause
catastrophic damage to wildlife within
the pristine and protected waters of the
Beardslee Islands.
Paragraph (b)(2)(iii), ‘‘Exceptions from
vessel permit requirements’’ would
clarify the exception for operation of a
motor vessel in certain Bartlett Cove
waters. The proposed rule would drop
the exemption for private vessels ‘‘based
in Bartlett Cove’’ from the requirement
to obtain a vessel permit when traveling
directly between Bartlett Cove and the
mouth of Glacier Bay. This exception
provides insufficient management of
vessel traffic through the designated
lower bay whale waters. A portion of
the daily private vessel quota would be
reserved and made available 48 hours
before the date for which the permit
would be issued to equitably
accommodate the varied needs of
visitors and area residents. The park
places a high value on providing access
for local users and those who travel
with limited advanced destination
planning. The NPS also considered
providing an exception to operating
requirements when necessary to avoid
an immediate threat to passenger or
vessel safety. Deviations may be
necessary for legitimate safety reasons
but these circumstances do not require
a new regulatory exception. (See 36 CFR
1.2.)
Paragraph (b)(2)(iii) also adds ‘‘noncommercial’’ to the exception for vessels
engaged in official business of the state
or federal government. This clarifies
that Alaska Marine Highway System
ferry vessels are not covered by this
exception. These vessels are engaged in
commercial operations, i.e., the
transport of passengers for hire.
In paragraph (b)(2)(v), ‘‘Restrictions
on vessel entry,’’ the proposed limits on
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vessels in Glacier Bay will be
implemented by a daily and seasonal
vessel quota replacing ‘‘Allowable
vessel use days per day,’’ ‘‘Total entries
allowed,’’ and ‘‘Total vessel use days
allowed.’’ This will help simplify by
using one term—quota— and by
reducing the three categories to two
categories.
For cruise ships, the table would
establish two separate seasonal vessel
quota periods—for the months of May
and September an initial combined
quota of 92 cruise ships with the
potential to increase to 122, and for June
1–August 31, continue with an initial
quota of 139 cruise ships with the
potential to increase to 184. The May
and September seasonal vessel quota is
based on the known presence of
humpback whales in Glacier Bay during
this time period and is proportionally
the same as the initial June 1–August 31
seasonal vessel quota. The table
establishes an upper end quota level to
which the seasonal vessel quotas for
cruise ships could be increased by the
superintendent based on stated criteria
found in (b)(2)(v)(A),(B), and (C) of this
rule.
The seasonal limits on charter vessel
entries would be eliminated to better
serve public demand and reduce the
complexity of the program. The daily
charter vessel quota would remain at
six.
Limits on seasonal private vessel total
entries and total vessel use days allowed
would be eliminated. The daily vessel
quota would remain at 25. This better
serves public demand by reducing the
complexity of the program and
potentially increasing the number of
private vessels from the current 1,971 to
2,300. This would also end the
problematic practice of ‘‘apportioning’’
entries to ensure late season visitors
may still enter Glacier Bay and allows
flexibility to give short-notice permits to
private vessels, particularly those based
in Bartlett Cove.
Passenger ferry entries to Bartlett
Cove, in accordance with section 127 of
Public Law 105–83, are set at a yearround daily vessel quota of one.
Paragraph (b)(2) (B) has been modified
for clarity and the time frames
previously listed have been eliminated.
This allows the Superintendent the
flexibility to make cruise ship quota
determinations approximately 18
months in advance of a cruise ship
season. This time frame is in recognition
of the cruise ship industry’s need for
advance planning. The proposed change
also ensures that public comment is
accepted prior to a determination.
Current regulation provides for public
comment after publication in the
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Federal Register of the Superintendent’s
recommendation for an increase. The
proposed change provides clarity on
how the public comment process will
occur.
Section 13.65(b)(3) Operating
Restrictions
The proposed regulations would
discontinue the whale waters
designation and restrictions at three of
the four areas in Glacier Bay—Whidbey
Passage, East Arm Entrance and Russell
Island Passage. The lower bay whale
waters are the only location where a
permanent designation of whale waters
is necessary and practical. Whale water
protections currently in place there from
May 15 through August 31 [(3)(iv)(A)(1)]
would be extended through September
30 in the proposed rule. Experience
since 1996 has shown that designating
whale waters in other areas where
whales are not present is not effective
and it makes the system overly
complicated for visitors of Glacier Bay.
Protection of the areas formerly
designated as whale waters would be
accomplished via the superintendent’s
authority to designate temporary whale
waters when whales are found to be
gathering and staying for several days in
a particular location.
The existing regulations restrict vessel
speed in lower bay whale waters to
twenty (20) knots speed through the
water and, when designated due to the
presence of whales, ten (10) knots speed
through the water. The proposed
regulations would increase the speed
limit, when designated due to the
presence of whales, from ten (10) to
thirteen (13) knots speed through the
water. The best available information
indicates that speeds of 14 knots or
more are likely to lead to whale fatality
in the event of a whale-vessel collision,
particularly for vessels 80 meters (262
feet) or more in length. See Laist, D. W.,
A. R. Knowlton, J. G. Mead, A. S. Collet
and M. Podesta, Collisions between
Ships and Whales. Marine Mammal
Science, 17(1): 35–75 (2001). The
Superintendent may impose the new
speed limit of thirteen (13) knots in any
area designated as whale waters for all
vessels, or may limit the imposition to
vessels of a certain size or type
depending upon the number of whales
estimated to be present, frequency of
vessel traffic, underwater topography
and other relevant factors. Based on the
scientific data gathered over the past
decade of monitoring, (see NOAA
Biological Opinion dated August 5,
2003, FEIS, Appendix K, p. 45) the NPS
does not believe that increasing the
speed allowed in whale waters from 10
to 13 knots will have any negative
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consequences for whales or other
wildlife. The public notice is proposed
to follow existing public notice
procedures found in 36 CFR 1.7. The
current regulation which provides for
submission to the U.S. Coast Guard for
publication is dated, as much of this
information is now provided
electronically. The procedures in 36
CFR 1.7 provide better flexibility to
meet the need to properly inform park
visitors.
The fuel dock regulation, (b)(4)(ii)(F),
would be revised by adding
Superintendent discretion to authorize
other uses to protect park resources or
public safety. This would cover the rare
instances when a vessel is unable to
dock at the public dock but could dock
safely at the fuel dock. The park does
not believe this would be a frequent
occurrence, as these two docks were
constructed, to separate general vessel
docking from hazardous fueling
activities.
Current paragraph (b)(3)(ix) would be
revised by removing sub-paragraphs (A)
and (B), which are redundant, and
redesignating without change the
remainder as paragraph (b)(4) under the
new heading ‘‘What are the rules for
using Bartlett Cove waters and docks.’’
Section 13.65(b)(4) Bartlett Cove
As noted above, this paragraph is a
redesignation of current paragraph
(b)(3)(ix). Other than the addition of a
heading and the provision for use of the
fuel dock noted above, there are no
other changes proposed for this
paragraph.
Section 13.65(b)(5) Marine Vessel
Visible Emissions Standards
This proposed paragraph would
redesignate and revise current
paragraph (b)(4) to conform to Public
Law 104–333, section 703, and would
adopt State of Alaska Marine Vessel
Visible Emission Standards as a part of
this rule.
Sections 13.65(b)(6) Through (10)
Current paragraphs (b)(5) through
(b)(9) would be redesignated without
change as paragraphs (b)(6) through
(b)(10) to accommodate the proposed
changes discussed above.
Compliance With Other Laws
Regulatory Planning and Review
(Executive Order 12866)
The Office of Management and Budget
has determined that this is not a
significant rule and is not subject to
review under Executive Order 12866.
This rule will not have an effect of
$100 million or more on the economy.
It will not adversely affect in a material
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way the economy, productivity,
competition, jobs, the environment,
public health or safety, or State, local,
or tribal governments or communities.
These conclusions are based on the
analysis contained in the final
environmental impact statement and a
report prepared on the economic impact
of this regulation, ‘‘Economic Analysis
of Vessel Management Alternatives in
Glacier Bay National Park and
Preserve’’, prepared for the NPS,
Environmental Quality Division, by
Research Triangle Institute.
This rule will not create a serious
inconsistency or otherwise interfere
with an action taken or planned by
another agency. Actions taken under
this rule will not interfere with other
agencies or local government plans,
policies, or controls. This is an agency
specific rule.
This rule does not alter the budgetary
effects of entitlements, grants, user fees,
or loan programs or the rights or
obligations of their recipients. It would
only affect the operations of various
types of motor vessels on waters
managed by the park. No grants or other
forms of monetary supplement are
involved.
This rule does not raise novel legal or
policy issues.
Regulatory Flexibility Act
The Department of the Interior
certifies that this document will not
have a significant economic effect on a
substantial number of small entities
under the Regulatory Flexibility Act (5
U.S.C. 601 et seq.). It has been
determined that there will be no
incremental negative impacts on small
entities because revenue losses are not
expected. Possible future increases in
vessel quota levels relative to the
baseline are expected to lead to
incremental increases in business
revenue. This certification is based on
information contained in the report
titled, ‘‘Economic Analysis of Vessel
Management Alternatives in Glacier Bay
National Park and Preserve’’ (RTI
International, Health, Social, and
Economic Research, Research Triangle
Park, N.C. 27709). This report is
available from the NPS, Glacier Bay
National Park and Preserve as indicated
above under the heading FOR FURTHER
INFORMATION CONTACT.
Small Business Regulatory Enforcement
Fairness Act (SBREFA)
This rule is not a major rule under 5
U.S.C. 804(2), the Small Business
Regulatory Enforcement Fairness Act.
This rule—
• Does not have an annual effect on
the economy of $100 million or more.
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As noted above, no incremental negative
impacts on small businesses are
expected and possible future increases
in vessel quota levels would result in
increases in business revenue;
• Will not cause a major increase in
costs or prices for consumers,
individual industries, Federal, State, or
local government agencies, or
geographic regions. The proposed
regulations of this rulemaking will
generally maintain existing patterns of
vessel management in the park relative
to costs or prices; and
• Does not have significant adverse
effects on competition, employment,
investment, productivity, innovation, or
the ability of U.S.-based enterprises to
compete with foreign-based enterprises.
The various provisions of this proposed
rule do not apply differently to U.S.based enterprises and foreign-based
enterprises.
Unfunded Mandates Reform Act
This rule does not impose an
unfunded mandate on State, local, or
tribal governments or the private sector
of more than $100 million per year. The
rule does not have a significant or
unique effect on State, local, or tribal
governments or the private sector.
Takings (Executive Order 12630)
In accordance with Executive Order
12630, the rule does not have significant
takings implications. A takings
implication assessment is not required
because no taking of property will occur
as a result of this proposed rule.
Federalism (Executive Order 13132)
In accordance with Executive Order
13132, the rule does not have sufficient
federalism implications to warrant the
preparation of a Federalism Assessment.
The proposed rule is limited in effect to
federal lands and waters managed by
the NPS and will not have a substantial
direct effect on state and local
government in Alaska.
Civil Justice Reform (Executive Order
12988)
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In accordance with Executive Order
12988, the Office of the Solicitor has
determined that this rule does not
unduly burden the judicial system and
meets the requirements of sections 3(a)
and 3(b)(2) of the Order. This rule does
not impose a new burden on the judicial
system.
Paperwork Reduction Act
This regulation requires an
information collection from 10 or more
parties, which must be submitted for
OMB approval under the Paperwork
Reduction Act. However, these are not
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new collection requirements and,
therefore, no additional request to OMB
has been prepared. The information
collection activities are necessary for the
public to obtain benefits in the form of
concession contracts and special use
permits. Information collection
associated with the award of concession
contracts is covered under OMB control
number 1024–0125; the information
collection associated with the issuance
of special use permits is covered under
OMB control number 1024–0026.
National Environmental Policy Act
A Final Environmental Impact
Statement (FEIS) has been completed
and a Record of Decision (ROD) issued.
The following topics are addressed in
the EIS: soundscape; air quality; water
quality; threatened and endangered
species; marine mammals; marine birds
and raptors; marine fishes; coastal/
shoreline environmental and biological
communities; cultural resources; visitor
experience; vessel use and safety;
wilderness resources; local and regional
socio-economic conditions.
Both the DEIS and FEIS consider:
• Establishment of vessel quotas and
designation of quota seasons for Glacier
Bay;
• Definition of vessel classification
criteria;
• Exemption of private vessels based
in Bartlett Cove;
• Issuance of vessel permits on a
short-notice basis;
• Establishment of vessel travel
routes for cruise ships and waters closed
to cruise ship and/or tour vessel use;
• Vessel speed restrictions and speed
measurement methods; and
• Establishment of vessel quotas and
designation of quota seasons for tour
and/or charter vessels for Dundas Bay
(currently no vessel quotas are in place
for Dundas Bay).
Several consultations took place with
government agencies during the EIS
process, including with the Hoonah
Indian Association, a federally
recognized tribal government; the State
of Alaska; NOAA Fisheries; and the U.S.
Fish and Wildlife Service. Formal
endangered species consultation took
place with NOAA Fisheries in
accordance with section 7 of the
Endangered Species Act.
NOAA Fisheries issued a biological
opinion on August 5, 2003. Species
considered in the opinion were the
Steller sea lion, specifically the
threatened eastern stock and the
endangered western stock, and the
endangered central North Pacific
humpback whale. NOAA Fisheries
concluded that the ‘‘proposed vessel
quota increases and operating
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10945
requirements in Glacier Bay, as
proposed, are not likely to jeopardize
the continued existence of listed species
in the action area, or destroy or
adversely modify designated critical
habitat found in the action area.’’ In
formulating its opinion, NOAA
Fisheries used the best available
information, including information
provided in the DEIS that served as the
Biological Assessment for section 7
consultation along with information
obtained during discussions with NPS
staff regarding the new alternative
included in the FEIS.
The NPS Alaska Regional Director
signed a ROD on November 21, 2003. A
notice announcing the decision was
published in the Federal Register on
December 16, 2003 (68 FR 70031). The
ROD documents the NPS decision to
modify quotas and operating
requirements for four types of motor
vessels—cruise ships and tour, charter
and private vessels—within Glacier Bay.
The ROD addresses the continuing
demand for motor vessel access into
Glacier Bay in a manner that protects
park resources and values while also
providing a range of opportunities for
visitors consistent with park purposes
and values. It was based on
consideration of the park’s purposes and
mission, resources and values, NPS
policies, comments received throughout
the EIS process, and information and
analysis in the EIS. In reaching a
decision, NPS carefully considered the
comments and concerns expressed by
the public throughout the EIS process.
The NPS selected alternative 6, as
described in the FEIS, with the
following modifications—
• The July 1 through August 21
timeframe during which a 0.25-nauticalmile vessel approach distance to a seal
hauled out on ice in Johns Hopkins Inlet
waters will be retained as in current
regulations and will not be extended to
year-round;
• A 13-knot speed limit for vessels
greater than or equal to 262 feet (80
meters) will be in effect in Glacier Bay
as needed, rather than on a year-round
basis; and
• Existing conditions do not support
immediate implementation of motor
vessel limits in Dundas Bay.
Studies and monitoring are
insufficient to support the need for
limits at this time. The NPS will
undertake study and monitoring of use
and resource conditions in Dundas Bay
and will impose limits when a clearer
need is established. A research
framework, developed with the
assistance of a scientific advisory board,
will help ensure that appropriate
studies and monitoring will be
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undertaken to guide vessel management,
including a decision(s) regarding
possible increases in seasonal-use day
numbers for cruise ships in Glacier Bay.
None of the effects resulting from any
of the alternatives evaluated during the
EIS process, including the alternative
presented in the ROD, would impair
park resources and values.
The FEIS and ROD are available
online at: https://www.nps.gov/glba or at
Glacier Bay National Park and Preserve,
as indicated above under the heading
FOR FURTHER INFORMATION CONTACT.
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Government-to-Government
Relationship With Tribes
In accordance with Executive Order
13175 ‘‘Consultation and Coordination
with Indian Tribal Governments’’ (65 FR
67249); the President’s memorandum of
April 29, 1994, ‘‘Government to
Government Relations with Native
American Tribal Governments’’ (59 FR
22951); the Department of the InteriorAlaska Policy on Government-toGovernment Relations with Alaska
Native Tribes dated January 18, 2001;
Part 512 of the Departmental Manual,
Chapter 2, ‘‘Departmental
Responsibilities for Indian Trust
Resources’’; and the park consultation
agreement with tribal governments, the
potential effects on federally-recognized
Indian tribes and have been evaluated.
During the past several years, the NPS
has developed an effective working
relationship with the Hoonah Indian
Association and other regional Native
organizations with interests in matters
pertaining to Glacier Bay National Park
and Preserve. All parties consulted
concur that Glacier Bay and Dundas Bay
lie within the traditional homelands of
the Hoonah Tlingits, and that the
Hoonah Indian Association, a federally
recognized tribal government, is the
representative government for Hoonah
Tlingits. During this extended
consultation the full range of issues
relating to vessel quotas, operating
requirements, and cultural resources has
been identified and discussed at length.
Extensive ethnographic research had
been conducted to gather detailed
information about cultural resources
important to Hoonah Tlingits. Meetings
were held with the tribal government
and with community and tribal
members.
Clarity of Rule
Executive Order 12866 requires each
agency to write regulations that are easy
to understand. We invite your
comments on how to make this rule
easier to understand, including answers
to questions such as the following: (1)
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Are the requirements in the rule clearly
stated? (2) Does the rule contain
technical language or jargon that
interferes with its clarity? (3) Does the
format of the rule (grouping and order
of sections, use of headings,
paragraphing, etc.) aid or reduce its
clarity? (4) Would the rule be easier to
read if it were divided into more (but
shorter) sections? (A ‘‘section’’ appears
in bold type and is preceded by the
symbol ‘‘§ ’’ and a numbered heading;
for example § 7.XX .........) (5) Is the
description of the rule in the
‘‘Supplementary Information’’ section of
the preamble helpful in understanding
the proposed rule? What else could we
do to make the rule easier to
understand?
Send a copy of any comments that
concern how we could make this rule
easier to understand to: Office of
Regulatory Affairs, Department of the
Interior, Room 7229, 1849 C Street,
NW., Washington, DC 20240. You may
also e-mail the comments to this
address: Exsec@ios.doi.gov.
Drafting Information: The primary
authors of this regulation were: Tomie
Lee, Superintendent; Chuck Young,
Chief Ranger; Dave Nemeth, Chief of
Concessions; and Nancy Swanton, Park
Planner at Glacier Bay National Park
and Preserve; Jay Liggett, Paul Hunter,
and Andee Hansen at the Alaska
Regional Office; Russel J. Wilson,
Deputy Superintendent, Sequoia and
Kings Canyon National Parks and Jerry
Case, Regulations Program Manager,
Washington, DC.
Public Participation
If you wish to comment, you may
submit your comments by any one of
several methods. You may submit
comments electronically through the
Federal eRulemaking Portal: https://
www.regulations.gov. The Regulatory
Information Number (RIN) must be
included. It is 1024–AD25. Your name
and return address must be included in
the body of your Internet message. You
also may mail comments to
Superintendent Tomie Patrick Lee,
Glacier Bay National Park and Preserve,
P.O. Box 140 Gustavus, AK 99826.
Finally, you may hand deliver
comments to Superintendent Tomie
Patrick Lee at Glacier Bay National Park
and Preserve Headquarters Office at
Bartlett Cove.
Our practice is to make comments,
including names and addresses of
respondents, available for public review
during regular business hours.
Individual respondents may request that
we withhold their home address from
the rulemaking record, which we will
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honor to the extent allowable by law. If
you wish us to withhold your name
and/or address, you must state this
prominently at the beginning of your
comment. However, we will not
consider anonymous comments. We
will make all submissions from
organizations or businesses, and from
individuals identifying themselves as
representatives or officials of
organizations or businesses, available
for public inspection in their entirety.
List of Subjects in 36 CFR Part 13
Alaska, National Parks, Reporting and
recordkeeping requirements.
In consideration of the foregoing, the
National Park Service proposes to
amend 36 CFR part 13 as follows:
PART 13—NATIONAL PARK SYSTEM
UNITS IN ALASKA
1. The authority citation for part 13 is
revised to read as follows:
Authority: 16 U.S.C. 1, 3, 462(k), 3101 et
seq.; Sec. 152, Pub. L. 105–277, 112 Stat.
2681–268.
Section 13.65 also issued under 16 U.S.C.
1a–2(h), 20, 1361, 1531, 3197; Sec. 703, Pub.
L. 104–333, 110 Stat. 4185: Sec. 127, Pub. L.
105–83, 111 Stat. 26: Sec. 123, Pub. L. 105–
277, 112 Stat. 2681–259, October 21, 1998;
Sec. 501, Pub. L. 106–31, 113 Stat. 72, May
21, 1999; and Sec. 130, Pub. L. 107–63, 115
Stat. 442.
Section 13.66(c) also issued under Sec.
1035, Pub. L. 104–333, 110 Stat. 4240,
November 12, 1996.
2. Section 13.65 is amended as
follows:
A. In paragraph (b)(1), remove the
definitions of ‘‘Entry’’, ‘‘Operate or
operating’’, ‘‘Pursue’’, and ‘‘Vessel useday’’.
B. In paragraph (b)(1), revise the
introductory language and the
definitions of ‘‘Charter vessel’’,
‘‘Commercial fishing vessel’’, ‘‘Cruise
ship’’, ‘‘Glacier Bay’’, ‘‘Private vessel’’,
‘‘Speed through the water’’, and ‘‘Tour
vessel’’.
C. In paragraph (b)(1), add in
alphabetical order definitions of ‘‘Daily
vessel quota’’, ‘‘Passenger ferry’’, and
‘‘Seasonal vessel quota’’.
D. Revise paragraph (b)(2).
E. In paragraph (b)(3), revise the
introductory language and paragraphs
(b)(3)(i) through (v).
F. Redesignate paragraphs (b)(4)
through (9) as paragraphs (b)(5) through
(10).
G. In paragraph (b)(3)(ix), remove
paragraphs (b)(3)(ix)(A), (B), and (C),
and redesignate the paragraph and its
constituent subparagraphs as shown in
the following table:
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Current paragraph designation
New paragraph designation
(b)(3)(ix), introductory text ........................................................................
(b)(3)(ix)(C)(1), introductory text ...............................................................
(b)(3)(ix)(C)(1)(i) .......................................................................................
(b)(3)(ix)(C)(1)(ii) .......................................................................................
(b)(3)(ix)(C)(1)(iii) ......................................................................................
(b)(3)(ix)(C)(1)(iv) ......................................................................................
(b)(3)(ix)(C)(1)(v) ......................................................................................
(b)(3)(ix)(C)(2), introductory text ...............................................................
(b)(3)(ix)(C)(2)(i) .......................................................................................
(b)(3)(ix)(C)(2)(ii) .......................................................................................
(b)(3)(ix)(C)(2)(iii) ......................................................................................
(b)(3)(ix)(C)(2)(iv) ......................................................................................
(b)(3)(ix)(C)(2)(v) ......................................................................................
(b)(3)(ix)(C)(2)(vi) ......................................................................................
(b)(3)(ix)(C)(2)(vii) .....................................................................................
(b)(3)(ix)(C)(2)(viii) ....................................................................................
H. Redesignate paragraphs (b)(3)(x)
and (b)(3)(xi) as paragraphs (b)(4)(ii)(I)
and (b)(4)(ii)(J), respectively.
I. Revise redesignated paragraph (b)(4)
introductory text.
J. Revise redesignated paragraph
(b)(4)(ii)(F).
K. Revise redesignated paragraph
(b)(5).
L. In redesignated paragraphs (b)(6)
through (10), revise the heading of each
paragraph.
The additions and revisions read as
follows:
§ 13.65 Glacier Bay National Park and
Preserve.
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*
*
*
*
*
(b) * * *
(1) What terms do I need to know?
*
*
*
*
*
Charter vessel means any motor vessel
of less than 100 tons gross (U.S. System)
or 2,000 tons gross (International
Convention System) engaged in
transport of passengers for hire and
certificated to carry no more than 12
passengers overnight and no more than
49 passengers for daytime use. Charter
vessels also include any uninspected
motor vessel measuring less than 200
tons gross (U.S. Tonnage ‘‘Simplified
Measurement System’’) and not more
than 24 meters (79 feet) in length
engaged in transport of passengers for
hire.
Commercial fishing vessel means any
motor vessel conducting fishing
activities under the appropriate
commercial fishing licenses as
authorized under paragraph (a) of this
section.
Cruise ship means any motor vessel of
at least 100 tons gross (U.S. System) or
2,000 tons gross (International
Convention System) certificated to carry
more than 12 passengers for hire.
Daily vessel quota means the
maximum number of vessels allowed,
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(b)(4), introductory text.
(b)(4)(i), introductory text.
(b)(4)(i)(A).
(b)(4)(i)(B).
(b)(4)(i)(C).
(b)(4)(i)(D).
(b)(4)(i)(E).
(b)(4)(ii), introductory text.
(b)(4)(ii)(A).
(b)(4)(ii)(B).
(b)(4)(ii)(C).
(b)(4)(ii)(D).
(b)(4)(ii)(E).
(b)(4)(ii)(F).
(b)(4)(ii)(G).
(b)(4)(ii)(H).
by vessel category, on any one calendar
day.
Glacier Bay means all waters inside a
line drawn between Point Gustavus
(58.37914 N. Latitude; 135.915445 W.
Longitude) and Point Carolus (58.37824
N. Latitude; 136.042250 W. Longitude).
*
*
*
*
*
Passenger ferry means a motor vessel
authorized by the Superintendent to
engage in the transport of passengers for
hire to Bartlett Cove.
Private vessel means any motor vessel
that is not engaged in business (business
includes, but is not limited to,
transportation of passengers for hire or
commercial fishing).
*
*
*
*
*
Seasonal vessel quota means the
maximum number of vessels allowed,
by vessel category, during a specific
seasonal period.
Speed through the water means the
speed at which a vessel moves through
the water (which itself may be moving),
as distinguished from ‘‘speed over the
ground’’ (speed measured in relation to
a fixed point on the earth).
Tour vessel means any motor vessel of
less than 100 tons gross (U.S. System) or
2,000 tons gross (International
Convention System) engaged in
transport of passengers for hire and
certificated to carry more than 12
passengers overnight or more than 49
passengers for daytime use.
*
*
*
*
*
(2) Is a permit required for a vessel in
Glacier Bay? A permit from the
superintendent is required for motor
vessels in accordance with this section
and applicable regulations in this part.
(i) Private vessel permits and
conditions. In Glacier Bay from June 1
through August 31 an individual must
have a permit from the NPS issued for
a specific vessel for a specific period of
time.
(A) From June 1 through August 31,
when the operator of a private vessel
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enters Glacier Bay for the first time that
calendar year, the operator must go
directly to the Bartlett Cove Ranger
Station for orientation.
(B) From May 1 through September
30, the operator of a private vessel must
immediately notify the Bartlett Cove
Ranger Station of the vessel’s entry to or
exit from Glacier Bay.
(ii) Commercial vessel permits and
conditions. Each commercially operated
motor vessel must have a permit to
operate in Glacier Bay National Park
and Preserve in accordance with § 5.3 of
this chapter.
(A) A cruise ship must have a
concession contract to operate in Glacier
Bay.
(B) A tour vessel, charter vessel, and
passenger ferry must have a commercial
authorization to operate in Glacier Bay.
(C) The operator of a cruise ship, tour
vessel, charter vessel, and passenger
ferry must notify the Bartlett Cove
Ranger Station of the vessel’s entry into
Glacier Bay within 48 hours in advance
of entering Glacier Bay or immediately
upon entry.
(D) Cruise ships and tour vessels are
prohibited from operating in the
Beardslee Entrance and at the entrance
to Adams Inlet, as defined as waters
within the Wilderness boundaries in
those respective areas.
(E) Off-boat activity from a cruise
ship, tour vessel, or charter vessel is
prohibited, unless authorized by the
superintendent.
(F) Off-boat activity from a passenger
ferry is prohibited, except for passenger
access at the Bartlett Cove docks.
(G) A passenger ferry must travel a
direct course between the mouth of
Glacier Bay and Bartlett Cove, except as
provided in paragraph (b)(1)(iii)(E) of
this section.
(iii) Exceptions from vessel permit
requirement. A vessel permit is not
required in Glacier Bay when—
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(A) A motor vessel is engaged in
official, non-commercial business of the
state or federal government;
(B) A motor vessel is operating in
Bartlett Cove waters east of a line
extending from the long axis of the fuel
dock to the wilderness boundary at
Lester Island;
(C) One motor vessel is launched from
a motor vessel that has a permit and
only while the authorized motor vessel
remains at anchor or operated in
accordance with a concession agreement
from a permitted motor vessel while
that vessel is not underway.
(D) A commercial fishing vessel
authorized under paragraph (a) of this
section is actively engaged in
commercial fishing; or
(E) A vessel is granted safe harbor by
the superintendent.
(iv) Prohibitions. (A) Operating a
motor vessel in Glacier Bay without a
required permit is prohibited.
Daily vessel
quotas
(DVQ)
Type of vessel
(B) Violating a term or condition of a
permit or an operating condition or
restriction issued or imposed pursuant
to this chapter is prohibited.
(C) The superintendent may
immediately suspend or revoke a permit
or deny a future permit request as a
result of a violation of a provision of
this chapter.
(v) Restrictions on vessel entry. The
superintendent will allow vessel entry
in accordance with the following table:
Seasonal
vessel
quota
(SVQ)
Period covered by DVQ
Cruise ship .......................................................
2
Year-round .......................................................
Tour vessel ......................................................
Charter vessel ..................................................
Private vessel ..................................................
Passenger ferry ...............................................
3
6
25
1
Year-round .......................................................
June 1–Aug. 31 ...............................................
June 1–Aug. 31 ...............................................
Year-round .......................................................
Period covered by
SVQ
Up to 184
Up to 122
n/a ...........
n/a ...........
n/a ...........
n/a ...........
June 1–August 31.
May and September.
n/a.
n/a.
n/a.
n/a.
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Note: Cruise ships and tour vessels are limited to the daily vessel quota year-round. Charter and private vessels are not subject to quotas
from September through May.
(A) The director will reduce the vessel
quota levels for any or all categories of
vessels in this section as required to
protect the values and purposes of
Glacier Bay National Park and Preserve.
The director will make these reductions
based on the controlling biological
opinion issued by the National Oceanic
and Atmospheric Administration
Fisheries under section 7 of the
Endangered Species Act, applicable
authority, and any other relevant
information.
(B) The superintendent will annually
determine the cruise ship quota. This
determination will be based upon
applicable authorities, appropriate
public comment and available scientific
and other information. The number will
be subject to the maximum daily vessel
quota of two vessels.
(C) Nothing in this section will be
construed to prevent the superintendent
from taking any action at any time to
protect the values and purposes of
Glacier Bay National Park and Preserve.
(3) What are the rules for operating
vessels? (i) Operating a vessel within
one-quarter nautical mile of a whale is
prohibited, except for a commercial
fishing vessel authorized under
paragraph (a) of this section that is
actively trolling, setting, or pulling long
lines, or setting or pulling crab pots.
(ii) The operator of a vessel
inadvertently positioned within onequarter nautical mile of a whale must
immediately slow the vessel to ten knots
or less, without shifting into reverse
unless impact is likely. The operator
must direct or maintain the vessel on as
steady a course as possible away from
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16:45 Mar 02, 2006
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the whale until at least one-quarter
nautical mile of separation is
established. Failure to take such action
is prohibited.
(iii) The operator of a vessel or
seaplane positioned within one-half
nautical mile of a whale is prohibited
from altering course or speed in a
manner that results in decreasing the
distance between whale and the vessel
or seaplane.
(iv) Whale water designations and
restrictions. (A) From May 15 through
September 30, the following waters are
designated whale waters—
(1) Waters north of a line drawn from
Point Carolus to Point Gustavus and
south of a line drawn from the
northernmost point of Lars Island across
the northernmost point of Strawberry
Island to the point where it intersects
the line that defines the Beardslee
Island group, and following that line
south and west to the Bartlett Cove
shore (so as to include the Beardslee
Entrance and Bartlett Cove); and
(2) Other waters designated by the
superintendent as temporary whale
waters.
(B) The public will be notified of
other waters designated as temporary
whale waters in accordance with § 1.7 of
this chapter.
(C) Violation of a whale water
restriction is prohibited. The following
restrictions apply in whale waters
unless otherwise provided by the
superintendent in the designation:
(1) Operating a motor vessel less than
one nautical mile from shore (where the
width of the water permits), or in
narrower areas navigating outside of
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Fmt 4702
Sfmt 4702
mid-channel is prohibited. This
restriction does not apply to motor
vessels less than 18 feet in length, or
vessels actively engaged in fishing
activities or operating solely under sail.
(2) Unless other restrictions apply,
operators may perpendicularly
approach or land on shore (i.e., by the
most direct line to shore) through
designated whale waters, but they may
not transit along the shore.
(3) Operators must follow motor
vessel speed limits in paragraph
(b)(3)(v)(A) of this section.
(v) Speed restrictions. (A) From May
15 through September 30 in designated
whale waters the following are
prohibited—
(1) Operating a motor vessel at more
than 20 knots speed through the water;
or
(2) Operating a motor vessel at more
than 13 knots speed through the water,
when the superintendent has designated
a maximum speed of 13 knots.
(B) From July 1 through August 31,
operating a motor vessel on Johns
Hopkins Inlet waters south of 58°54.2′
N. latitude (a line running due west
from Jaw Point) at more than 10 knots
speed through the water is prohibited.
*
*
*
*
*
(4) Other restrictions. The
superintendent will make rules for the
safe and equitable use of Bartlett Cove
waters and for park docks. The
superintendent will notify the public of
these rules by posting a sign or a copy
of them at the dock. Failure to obey a
sign or posted rule is prohibited.
*
*
*
*
*
(ii) * * *
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(F) Utilizing the fuel dock for
activities other than fueling and waste
pump-out is prohibited. Other uses may
be authorized by the Superintendent to
protect park resources or public safety.
*
*
*
*
*
(5) What are the emission standards
for vessels? (i) The State of Alaska
statutes and regulations applicable to
marine vessel emission standards are
adopted as a part of these regulations.
(ii) Violating a State of Alaska statute
or regulation applicable to marine vessel
visible emission standards is prohibited.
(6) May I collect or burn interstadial
wood? * * *
(7) May I collect rocks and minerals?
* * *
(8) May I collect goat hair? * * *
(9) Do I need a camping permit in
Glacier Bay? * * *
(10) Is a permit required to transport
passengers between Bartlett Cove and
Gustavus? * * *
Dated: February 7, 2006.
Matthew J. Hogan,
Acting Assistant Secretary for Fish and
Wildlife and Parks.
[FR Doc. 06–2000 Filed 3–2–06; 8:45 am]
BILLING CODE 4310–70–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 52
[EPA–R03–OAR–2005–VA–0014; FRL–8039–
9]
Approval and Promulgation of Air
Quality Implementation Plans; Virginia;
Technical Documents Incorporated by
Reference
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
wwhite on PROD1PC61 with PROPOSALS
SUMMARY: EPA proposes to approve the
State Implementation Plan (SIP)
revision submitted by the
Commonwealth of Virginia consisting of
revised citations, editions, and corrected
addresses to documents which are
incorporated by reference in Virginia’s
SIP-approved regulations. In the Final
Rules section of this Federal Register,
EPA is approving the State’s SIP
submittal as a direct final rule without
prior proposal because the Agency
views this as a noncontroversial
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17:18 Mar 02, 2006
Jkt 208001
submittal and anticipates no adverse
comments. A detailed rationale for the
approval is set forth in the direct final
rule. If no adverse comments are
received in response to this action, no
further activity is contemplated. If EPA
receives adverse comments, the direct
final rule will be withdrawn and all
public comments received will be
addressed in a subsequent final rule
based on this proposed rule. EPA will
not institute a second comment period.
Any parties interested in commenting
on this action should do so at this time.
DATES: Comments must be received in
writing by April 3, 2006.
ADDRESSES: Submit your comments,
identified by Docket ID Number EPA–
R03–0AR–2005–VA–0014 by one of the
following methods:
A. Federal eRulemaking Portal:
https://www.regulations.gov. Follow the
on-line instructions for submitting
comments.
B. E-mail: frankford.harold@epa.gov.
C. Mail: EPA–R03–OAR–2005–VA–
0014, Harold A. Frankford, Office of Air
Programs, Mailcode 3AP20, U.S.
Environmental Protection Agency,
Region III, 1650 Arch Street,
Philadelphia, Pennsylvania 19103.
D. Hand Delivery: At the previouslylisted EPA Region III address. Such
deliveries are only accepted during the
Docket’s normal hours of operation, and
special arrangements should be made
for deliveries of boxed information.
Instructions: Direct your comments to
Docket ID No. EPA–R03–OAR–2005–
VA–0014. EPA’s policy is that all
comments received will be included in
the public docket without change, and
may be made available online at
www.regulations.gov, including any
personal information provided, unless
the comment includes information
claimed to be Confidential Business
Information (CBI) or other information
whose disclosure is restricted by statute.
Do not submit information that you
consider to be CBI or otherwise
protected through www.regulations.gov
or e-mail. The www.regulations.gov Web
site is an ‘‘anonymous access’’ system,
which means EPA will not know your
identity or contact information unless
you provide it in the body of your
comment. If you send an e-mail
comment directly to EPA without going
through www.regulations.gov, your email address will be automatically
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10949
captured and included as part of the
comment that is placed in the public
docket and made available on the
Internet. If you submit an electronic
comment, EPA recommends that you
include your name and other contact
information in the body of your
comment and with any disk or CD–ROM
you submit. If EPA cannot read your
comment due to technical difficulties
and cannot contact you for clarification,
EPA may not be able to consider your
comment. Electronic files should avoid
the use of special characters, any form
of encryption, and be free of any defects
or viruses.
Docket: All documents in the
electronic docket are listed in the
www.regulations.gov index. Although
listed in the index, some information is
not publicly available, i.e., CBI or other
information whose disclosure is
restricted by statute. Certain other
material, such as copyrighted material,
is not placed on the Internet and will be
publicly available only in hard copy
form. Publicly available docket
materials are available either
electronically in www.regulations.gov or
in hard copy during normal business
hours at the Air Protection Division,
U.S. Environmental Protection Agency,
Region III, 1650 Arch Street,
Philadelphia, Pennsylvania 19103.
Copies of the State submittal are
available at the Virginia Department of
Environmental Quality, 629 East Main
Street, Richmond, Virginia 23219.
FOR FURTHER INFORMATION CONTACT:
Harold A. Frankford, (215) 814–2108, or
by e-mail at frankford.harold@epa.gov.
SUPPLEMENTARY INFORMATION: For
further information, please see the
information provided in the direct final
action, with the same title, that is
located in the ‘‘Rules and Regulations’’
section of this Federal Register
publication. Please note that if EPA
receives adverse comment on an
amendment, paragraph, or section of
this rule and if that provision may be
severed from the remainder of the rule,
EPA may adopt as final those provisions
of the Virginia rule that are not the
subject of an adverse comment.
Dated: February 22, 2006.
William Early,
Acting Regional Administrator, Region III.
[FR Doc. 06–1942 Filed 3–2–06; 8:45 am]
BILLING CODE 6560–50–P
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Agencies
[Federal Register Volume 71, Number 42 (Friday, March 3, 2006)]
[Proposed Rules]
[Pages 10940-10949]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 06-2000]
=======================================================================
-----------------------------------------------------------------------
DEPARTMENT OF THE INTERIOR
National Park Service
36 CFR Part 13
RIN 1024-AD25
Glacier Bay National Park, Vessel Management Plan Regulations
AGENCY: National Park Service, Interior
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: The National Park Service (NPS) is proposing this rule to more
effectively manage motor vessel use in Glacier Bay National Park and
Preserve. It proposes to revise existing regulations regarding vessel
quotas and operating requirements for five types of motor vessels--
cruise ships, tour vessels, charter vessels, private vessels, and
passenger ferries--within Glacier Bay National Park and Preserve. This
rule is proposed in conjunction with the Final Environmental Impact
Statement (FEIS) and the Record of Decision (ROD) for Vessel Quotas and
Operating Requirements in Glacier Bay National Park and Preserve,
completed in October and November 2003, respectively, and implements
decisions made in the ROD.
DATES: Comments must be received by May 2, 2006.
ADDRESSES: You may submit your comments, identified by Regulatory
Information Number (RIN) 1024-AD25, by any of the following methods:
Federal eRulemaking Portal: https://www.regulations.gov.
Follow the instructions for submitting comments.
E-mail NPS at: akro_regulations@nps.gov. Use RIN 1024-
AD25 in the subject line.
Mail: Superintendent, Proposed Vessel Management Plan
Regulations Comment, Glacier Bay National Park and Preserve, P.O. Box
140, Gustavus, Alaska 99826.
Hand Delivery/Courier: Superintendent, Glacier Bay
National Park and Preserve Headquarters Office at Bartlett Cove.
Clearly identify the delivery as Proposed Vessel Management Plan
Regulations Comments.
All submissions received must include the agency name and RIN. For
additional information see ``Public Participation'' under SUPPLEMENTARY
INFORMATION below.
FOR FURTHER INFORMATION CONTACT: Tomie Patrick Lee, Superintendent,
Glacier Bay National Park and Preserve, P.O. Box 140, Gustavus, Alaska
99826, Telephone: (907) 697-2230.
SUPPLEMENTARY INFORMATION: Glacier Bay National Park and Preserve is
located in southeast Alaska, approximately 65 miles west of Juneau.
Accessible by boat and airplane, it is a popular destination due to its
spectacular scenery, tidewater glaciers, wilderness, and wildlife. In
this document the term ``Glacier Bay'' generally refers to the bay
proper rather than the entire park and preserve.
History of Glacier Bay National Park and Preserve
Glacier Bay National Monument was established by presidential
proclamation dated February 26, 1925 (No. 1733, 43 Stat. 1988). The
monument was expanded by a second presidential proclamation on April
18, 1939 (No. 2330, 53 Stat. 2534). The expanded monument added
adjacent lands, including glaciers and geologic features of scientific
interest, and the marine waters of all of Glacier Bay; portions of
other waters outside Glacier Bay proper; and Pacific coastal waters to
a distance of three miles seaward between Cape Spencer in the south and
Sea Otter Creek, north of Cape Fairweather.
The Alaska National Interest Lands Conservation Act (ANILCA),
enacted in 1980, expanded the 2.8-million-acre Glacier Bay National
Monument to 3.3 million acres and redesignated this area as Glacier Bay
National Park and Preserve (16 U.S.C 410-1, 94 Stat. 2382). The new
park and preserve included all lands and waters of the previously
existing monument.
Under proclamations that established Glacier Bay as a national
monument, the NPS Organic Act and its amendments (16 U.S.C 1, et seq.)
governed the management of the former Glacier Bay National Monument.
Along with ANILCA and several additional statutory provisions enacted
by Congress, they continue to govern the present Glacier Bay National
Park and Preserve. The NPS Organic Act of 1916 directs the Secretary of
the Interior and the NPS to manage national parks and monuments to
``conserve the scenery and the natural and historic objects and the
wild life therein and to provide for the enjoyment of same in such
manner and by such means as will leave them unimpaired for the
enjoyment of future generations.'' 16 U.S.C. 1. In addition, the
Redwood National Park Act of 1978 (amending the General Authorities
Act) states: ``The authorization of activities shall be construed and
the protection, management and administration of [NPS areas] shall be
conducted in light of the high public value and integrity of the
National Park System and shall not be exercised in derogation of the
values and purposes for which these various
[[Page 10941]]
areas have been established, except as may have been or shall be
directly and specifically provided by Congress.'' 16 U.S.C. 1a-1. The
NPS Organic Act also grants the Secretary of the Interior the authority
to implement ``rules and regulations as he may deem necessary or proper
for the use and management of the parks, monuments and reservations
under the jurisdiction of the National Park Service.'' 16 U.S.C. 3. In
addition to general regulatory authority, the NPS has been delegated
specific authority to ``[p]romulgate and enforce regulations concerning
boating and other activities on or relating to waters located within
areas of the National Park System, including waters subject to the
jurisdiction of the United States * * *.'' 16 U.S.C. 1a-2(h). None of
the actions in this proposed rule are intended to preclude vessel
management actions for safety, resource protection, or other reasons
pursuant to applicable regulations.
Vessel Management in Glacier Bay
Measures to address vessel traffic in Glacier Bay were first
implemented in 1979 to respond to concerns regarding the effects of
motor vessels on the endangered humpback whale. Regulations went into
effect in 1980, influenced largely by the alternatives included in a
1979 biological opinion issued by the National Marine Fisheries Service
(NMFS, now known as NOAA Fisheries) in accordance with section 7 of the
Endangered Species Act of 1973, as amended (16 U.S.C. 1531 et seq.).
The opinion concluded that a continued increase in the amount of vessel
traffic, particularly charter/pleasure craft, in Glacier Bay was likely
to jeopardize the continued existence of the humpback whales in
southeast Alaska.
The NMFS issued another biological opinion in 1983 concerning the
regulation of vessel traffic and resultant interactions with humpback
whales in Glacier Bay National Park and Preserve. This opinion was
prepared in response to a request from NPS to reinitiate section 7
consultation for the endangered humpback whale in Glacier Bay. This
opinion considered the impacts to humpback whales from existing levels
of vessel traffic and from the effects of proposed increases in the
levels of vessel traffic in Glacier Bay. The opinion concluded that
existing traffic, as well as some additional increase in vessel
traffic, could occur in Glacier Bay without jeopardizing the southeast
Alaska stock of humpback whales. This determination was based on the
ability of NPS to monitor and control both the amount of vessel traffic
and the operation of vessels in Glacier Bay. NMFS also recommended
vessel operating restrictions and a rationale for regulating vessel
entries into Glacier Bay. The agency recommended that any vessel
increases be contingent on monitoring studies of whale presence, noise
levels, and prey showing no adverse effects. The opinion stated: (1)
``no additional vessel traffic should be allowed unless the number of
individual whales that enter Glacier Bay remains equal to or is greater
than the 1982 level'' (22 whales were observed between June 1 through
August 31, 1982) and (2) ``a minimum of two years should be allowed for
monitoring and evaluating the effects of such an increase before
additional increases are proposed.''
Additional vessel regulations were subsequently promulgated in
1985. Consistent with the recommendations in the NMFS 1983 biological
opinion, these regulations allowed for up to a 20 percent increase in
vessel quotas above the 1976 level for large ship and small motor
vessel classes. The NPS implemented increases in two increments, and
the 20 percent increase was reached in 1988. Since these regulations
were promulgated, concerns have broadened to encompass potential
effects on other biota, the physical environment, and visitor
experience.
In 1993 NMFS issued another biological opinion--based on a review
of a 1992 draft NPS proposal for vessel management in Glacier Bay,
available data, and previous biological opinions--addressing the
effects of vessel traffic in Glacier Bay on the threatened Steller sea
lion, the endangered gray whale, and the endangered North Pacific
population of humpback whales. NMFS concluded that the level of
activity described in the 1992 draft NPS proposal would not jeopardize
the continued existence and recovery of any threatened or endangered
species. Nonetheless, due to concern about the decline in humpback
whale use of Glacier Bay, NMFS, in its opinion, ``urged the NPS to take
a conservative approach in all management actions that may affect
humpback whales'' and recommended that NPS ``implement a humpback whale
feeding ecology research program'' and ``continue humpback whale
monitoring programs that identify the number of humpback whales that
feed in the National Park waters, and their individual identity, age,
reproductive status, and length of stays.''
Based on the park's management objectives from the 1984 General
Management Plan and the 1993 NMFS opinion, the NPS completed a 1996
Vessel Management Plan (VMP)/revised environmental assessment (EA) and
issued a finding of no significant impact (FONSI) regarding vessel
quotas and operating requirements. The NPS decision regarding vessel
management provided for increases in quotas for cruise ships, charter
vessels, and private vessels in Glacier Bay. With respect to cruise
ships, it allowed for 139 cruise ships throughout the June through
August season, with potential for incremental increases to 184 ships
(i.e., up to two cruise ships per day during the 3-month season), based
on scientific and other information and applicable authorities.
Regulations adopting the VMP vessel quotas became effective in May
1996. Based in part on recommendations in the 1993 biological opinion,
research and monitoring were initiated to better understand the effects
of motor vessels on park resources and values.
Subsequent legislation affecting Glacier Bay National Park and
Preserve included the Omnibus Parks and Public Lands Management Act of
1996 (Pub. L. 104-333). Section 703 of this Act directed NPS to not
impose additional operating conditions in the areas of air, water, and
oil pollution beyond those determined and enforced by appropriate
regulatory agencies. Operating conditions or limitations relating to
noise abatement can be imposed only when the Secretary determines it
necessary to protect park values and resources. However, when
competitively awarding concession contracts to enter Glacier Bay, the
relative impact particular concessioners will have on park values and
resources are considered in determining which are the best proposals.
In a May 1997 complaint filed in the U.S. District Court, the
National Parks Conservation Association (NPCA) challenged the validity
of the NPS 1996 VMP/revised EA and FONSI. The District Court upheld the
decision made by the NPS. However, the U.S. Court of Appeals for the
Ninth Circuit subsequently determined that the portion of the VMP/EA
and the 1996 implementing regulations that authorized an increase in
vessels into Glacier Bay violated the National Environmental Policy Act
of 1969 (Pub. L. 91-190, hereafter NEPA) because an environmental
impact statement (EIS) had not been prepared. The court prohibited
vessel traffic above the pre-1996 levels unless an EIS was prepared.
The court decision went into effect in late summer 2001. Following this
decision, the Congress, as part of the U.S. Department of the Interior
Appropriations Act of 2002 (Pub. L. 107-63, section 130), required NPS
to:
[[Page 10942]]
(1) Prepare an EIS by January 1, 2004, to identify and analyze the
possible effects of the 1996 increases; and (2) set the maximum level
of vessel entries into Glacier Bay based on the analysis in the EIS.
Until the maximum level of vessel entries is set based on the new EIS,
the Act provided that the number of vessel entries into the park would
be the same as in effect during the 2000 calendar year, and that the
NPS decision and final rule, issued in 1996, relating to vessel entries
were approved and would be in effect, notwithstanding any other
provision of law. On January 18, 2002, the U.S. District Court modified
the previous injunction accordingly.
The Draft and Final Environmental Impact Statements
In addressing the requirements of section 130 and pursuant to NEPA,
the NPS prepared a draft EIS (DEIS) and final EIS (FEIS) and approved a
Record of Decision (ROD) on November 21, 2003. The DEIS described and
evaluated the environmental effects of a no action alternative and four
action alternatives for managing motorized vessels within Glacier Bay
and Dundas Bay. Based on comments received during the public comment
period and additional NPS considerations, modifications were made in
the FEIS. These documents are discussed in more depth below under
``Compliance with Other Laws.''
Description of the Proposed Rule
Regulations concerning vessel quotas and operating requirements for
cruise ships and tour, charter and private vessels have been in effect
and enforced by NPS for many years. Many of these regulations regarding
vessel management are being retained consistent with the ROD. New
elements and a number of adjustments to the current regulations are
included in this proposed rule:
Establishing two separate seasonal vessel quota periods
for cruise ships. First, for May and September establish an initial
quota of 92 cruise ships with potential to increase to 122. Second, for
June 1-August 31 re-establish an initial quota of 139 cruise ships with
potential for incremental increases to 184 as under the 1996
regulations;
Eliminating two private vessel seasonal categories--total
entries and total vessel use days--thus increasing the total number of
private vessels allowed in a season;
Adding a passenger ferry category to Bartlett Cove with a
year-round daily vessel quota of one, in accordance with section 127 of
P.L. 105-83 (Nov. 14, 1997);
Modifying the definitions for cruise ship, charter, and
tour vessels;
Adding a definition for a passenger ferry;
Closing the waters at Beardslee Entrance and the entrance
to Adams Inlet in Glacier Bay to cruise ships and tour vessels;
Eliminating the permit exemption for private vessels based
in Bartlett Cove;
Relaxing existing private vessel orientation requirements;
Modifying the annual determination of the cruise ship
quota to provide flexibility concerning timeframes to meet cruise ship
industry needs;
Increasing the 10 knot maximum speed limit in whale waters
to 13 knots;
Reducing the number of areas pre-designated as whale
waters;
Extending the seasonal speed limit in the lower bay whale
waters to September 30; and
Conforming subsection (b) to the existing question and
answer format of subsection (a).
Section-by-Section Analysis
Section 13.65(b)(1) Definitions
The following changes are proposed for the Definitions:
The term ``charter vessel'' would be amended to include
certain uninspected vessels measuring over 100 tons under the U.S.
Tonnage ``Simplified Measurement System.'' Vessels under this class
would not be any larger than vessels currently allowed under the
existing 100 gross ton U.S. or 2,000 gross ton ITC limits due to the
idiosyncrasies of the various measurement systems. Though USCG
regulations do not set an upper limit for the tonnage of these vessel,
the NPS proposes implementing an upper limit of 200 tons, as well as a
specific length limit [note that the length limit is already an element
of the USCG regulations controlling which vessel can use the simplified
measurement system], as a safeguard against vessels qualifying under
this subcategory which are larger than otherwise allowed under the
existing regulations. Dropped from the definition of charter vessel
would be the existing requirement that it be available for hire on an
unscheduled basis, as well as the related exception to that
requirement--allowing scheduled camper or kayak drop off service. Under
the 1996 definitions charter vessels were required to operate on an
``unscheduled'' basis. This was unrealistic because, as a practical
matter, many charter operators schedule trips well in advance of the
season. The new definition is more easily applied to the charter fleet.
To eliminate overlap between the charter vessel and tour vessel
definitions, passenger carrying capacity would be adopted as the
primary criteria separating these use categories. This change in the
GLBA definition was proposed by several of our charter operators and
park staff during the scoping process for the Vessel Quota and
Operating Requirements EIS. The ROD defines charter vessel as
certificated ``* * * to carry up to twelve passengers overnight or up
to 49 passengers for daytime use * * *.'' The proposed definition
changes the word ``or'' to ``and'' resulting in: ``* * * rated to carry
no more than 12 passengers overnight and no more than 49 passengers for
daytime use `` * * *.'' to more clearly convey the intent: if a vessel
is licensed to carry more than twelve overnight passengers, it could
not be a charter vessel and if a vessel is licensed to carry more than
49 day use passengers, it could not be a charter vessel.
The term ``cruise ship'' would be revised to include only
vessels certificated to carry over 12 passengers. Without this
provision, a vessel with 12 or fewer passengers of 100-200 gross
tonnage under the U.S. Tonnage ``Simplified Measurement System'' could
be either a charter vessel or cruise ship. This would eliminate overlap
with the new U.S. Coast Guard 200 ton uninspected class.
Because the ``seasonal entry quota'' would be eliminated
and the term ``entry'' would no longer be mentioned in this proposed
rule, the term ``entry'' would no longer need to be defined and would
be eliminated.
A revised definition of ``Glacier Bay'' would include
precise geographic coordinates for Point Gustavus and Point Carolus as
the entrance to Glacier Bay.
A new vessel type--``passenger ferry''--would be added in
recognition of the Juneau to Bartlett Cove service authorized in Public
Law 105-83, section 127.
To provide clarity, the definition for each of the
following terms would be revised slightly: ``commercial fishing
vessel,'' ``speed through the water,'' and ``private vessel.''
The definition of ``tour vessel'' would be changed to
provide a clear distinction from the definition of ``charter vessel,''
and to ensure that all commercial passenger-carrying vessels less than
100 tons gross (U.S. System) or 2,000 tons gross (International
Convention System) could be categorized into the appropriate vessel
type.
[[Page 10943]]
The term ``pursue'' would be deleted from the regulatory
language in (b)(1) and a description of the prohibited action instead
would be incorporated into proposed paragraph (b)(3)(i). Including a
description of the proposed prohibited activity would clarify the
proposed regulation.
The terms ``daily vessel quota'' and ``seasonal vessel
quota'' would be added to clarify how vessel quotas would be applied to
vessel use in Glacier Bay.
The terms ``vessel-use day'' and ``operate'' would no
longer be used and would be deleted from the regulation.
All other definitions would remain unchanged.
Section 13.65(b)(2) Permits
Paragraph (b)(2)(i), ``Private vessel permits and conditions''
would modify the existing requirement for operators of private vessels
(see 36 CFR 1.4) to report to the Bartlett Cove Ranger Station for a
boater orientation each time they enter Glacier Bay from June 1 through
August 31. Instead, while operators of private vessels would still be
required to report that they are entering or exiting Glacier Bay, they
would only be required to come to Bartlett Cove for a full boater
orientation at the beginning of their initial trip into Glacier Bay for
that permit season. This paragraph would simplify the procedure at
proposed paragraph (b)(2)(i)(B): From May 1 through September 30,
operators must immediately notify the Bartlett Cove Ranger Station of
the vessel's entry or exit into Glacier Bay. The notification can be
accomplished by radio or phone, allowing the NPS to update operators
about existing or special conditions or operating requirements.
Paragraph (b)(2)(ii), ``Commercial vessel permits and conditions,''
would clarify that a cruise ship is required to have a concession
contract, and tour, charter and passenger ferry vessels are required to
have a concession authorization to operate in Glacier Bay National Park
and Preserve. This paragraph also will establish the operational
requirement for the passenger ferry to travel a direct route to
Bartlett Cove, except as necessary for safety considerations.
The proposed rule would extend the closure area for cruise ships
and tour vessels to the entrance of Adams Inlet and Beardslee Entrance
prohibiting these two vessel types from operating in these two
locations. Glacial rebound and silting from the Casement Glacier have
caused Adams Inlet to become very shallow and unsafe. Extending the
closure would reduce the risk of large-vessel accidents in these two
areas. The restrictions in the Beardslee Entrance are due to its narrow
configuration which poses a hazardous area for large vessels, as well
as its proximity to the ecologically sensitive Beardslee Islands.
Historically, no cruise ships use the Beardslee Entrance to travel
within Glacier Bay. Large vessels would have difficulty maneuvering the
90-degree turn, which is required to safely navigate the one (1)
nautical mile passage between Strawberry Island and the Beardslee
Islands. Additionally, opposing currents and shallow shelves add to the
difficulty in maneuvering larger vessels through this area. Harbor
seals, whose populations have recently declined precipitously, haul out
on the Spider Island complex, Flapjack, and Eider Islands, all within
the Beardslee Island complex. These populations are extremely sensitive
to disturbance created by large vessel noise, wakes, and presence of
vessels and people. A vessel grounding in the entrance could cause
catastrophic damage to wildlife within the pristine and protected
waters of the Beardslee Islands.
Paragraph (b)(2)(iii), ``Exceptions from vessel permit
requirements'' would clarify the exception for operation of a motor
vessel in certain Bartlett Cove waters. The proposed rule would drop
the exemption for private vessels ``based in Bartlett Cove'' from the
requirement to obtain a vessel permit when traveling directly between
Bartlett Cove and the mouth of Glacier Bay. This exception provides
insufficient management of vessel traffic through the designated lower
bay whale waters. A portion of the daily private vessel quota would be
reserved and made available 48 hours before the date for which the
permit would be issued to equitably accommodate the varied needs of
visitors and area residents. The park places a high value on providing
access for local users and those who travel with limited advanced
destination planning. The NPS also considered providing an exception to
operating requirements when necessary to avoid an immediate threat to
passenger or vessel safety. Deviations may be necessary for legitimate
safety reasons but these circumstances do not require a new regulatory
exception. (See 36 CFR 1.2.)
Paragraph (b)(2)(iii) also adds ``non-commercial'' to the exception
for vessels engaged in official business of the state or federal
government. This clarifies that Alaska Marine Highway System ferry
vessels are not covered by this exception. These vessels are engaged in
commercial operations, i.e., the transport of passengers for hire.
In paragraph (b)(2)(v), ``Restrictions on vessel entry,'' the
proposed limits on vessels in Glacier Bay will be implemented by a
daily and seasonal vessel quota replacing ``Allowable vessel use days
per day,'' ``Total entries allowed,'' and ``Total vessel use days
allowed.'' This will help simplify by using one term--quota-- and by
reducing the three categories to two categories.
For cruise ships, the table would establish two separate seasonal
vessel quota periods--for the months of May and September an initial
combined quota of 92 cruise ships with the potential to increase to
122, and for June 1-August 31, continue with an initial quota of 139
cruise ships with the potential to increase to 184. The May and
September seasonal vessel quota is based on the known presence of
humpback whales in Glacier Bay during this time period and is
proportionally the same as the initial June 1-August 31 seasonal vessel
quota. The table establishes an upper end quota level to which the
seasonal vessel quotas for cruise ships could be increased by the
superintendent based on stated criteria found in (b)(2)(v)(A),(B), and
(C) of this rule.
The seasonal limits on charter vessel entries would be eliminated
to better serve public demand and reduce the complexity of the program.
The daily charter vessel quota would remain at six.
Limits on seasonal private vessel total entries and total vessel
use days allowed would be eliminated. The daily vessel quota would
remain at 25. This better serves public demand by reducing the
complexity of the program and potentially increasing the number of
private vessels from the current 1,971 to 2,300. This would also end
the problematic practice of ``apportioning'' entries to ensure late
season visitors may still enter Glacier Bay and allows flexibility to
give short-notice permits to private vessels, particularly those based
in Bartlett Cove.
Passenger ferry entries to Bartlett Cove, in accordance with
section 127 of Public Law 105-83, are set at a year-round daily vessel
quota of one.
Paragraph (b)(2) (B) has been modified for clarity and the time
frames previously listed have been eliminated. This allows the
Superintendent the flexibility to make cruise ship quota determinations
approximately 18 months in advance of a cruise ship season. This time
frame is in recognition of the cruise ship industry's need for advance
planning. The proposed change also ensures that public comment is
accepted prior to a determination. Current regulation provides for
public comment after publication in the
[[Page 10944]]
Federal Register of the Superintendent's recommendation for an
increase. The proposed change provides clarity on how the public
comment process will occur.
Section 13.65(b)(3) Operating Restrictions
The proposed regulations would discontinue the whale waters
designation and restrictions at three of the four areas in Glacier
Bay--Whidbey Passage, East Arm Entrance and Russell Island Passage. The
lower bay whale waters are the only location where a permanent
designation of whale waters is necessary and practical. Whale water
protections currently in place there from May 15 through August 31
[(3)(iv)(A)(1)] would be extended through September 30 in the proposed
rule. Experience since 1996 has shown that designating whale waters in
other areas where whales are not present is not effective and it makes
the system overly complicated for visitors of Glacier Bay. Protection
of the areas formerly designated as whale waters would be accomplished
via the superintendent's authority to designate temporary whale waters
when whales are found to be gathering and staying for several days in a
particular location.
The existing regulations restrict vessel speed in lower bay whale
waters to twenty (20) knots speed through the water and, when
designated due to the presence of whales, ten (10) knots speed through
the water. The proposed regulations would increase the speed limit,
when designated due to the presence of whales, from ten (10) to
thirteen (13) knots speed through the water. The best available
information indicates that speeds of 14 knots or more are likely to
lead to whale fatality in the event of a whale-vessel collision,
particularly for vessels 80 meters (262 feet) or more in length. See
Laist, D. W., A. R. Knowlton, J. G. Mead, A. S. Collet and M. Podesta,
Collisions between Ships and Whales. Marine Mammal Science, 17(1): 35-
75 (2001). The Superintendent may impose the new speed limit of
thirteen (13) knots in any area designated as whale waters for all
vessels, or may limit the imposition to vessels of a certain size or
type depending upon the number of whales estimated to be present,
frequency of vessel traffic, underwater topography and other relevant
factors. Based on the scientific data gathered over the past decade of
monitoring, (see NOAA Biological Opinion dated August 5, 2003, FEIS,
Appendix K, p. 45) the NPS does not believe that increasing the speed
allowed in whale waters from 10 to 13 knots will have any negative
consequences for whales or other wildlife. The public notice is
proposed to follow existing public notice procedures found in 36 CFR
1.7. The current regulation which provides for submission to the U.S.
Coast Guard for publication is dated, as much of this information is
now provided electronically. The procedures in 36 CFR 1.7 provide
better flexibility to meet the need to properly inform park visitors.
The fuel dock regulation, (b)(4)(ii)(F), would be revised by adding
Superintendent discretion to authorize other uses to protect park
resources or public safety. This would cover the rare instances when a
vessel is unable to dock at the public dock but could dock safely at
the fuel dock. The park does not believe this would be a frequent
occurrence, as these two docks were constructed, to separate general
vessel docking from hazardous fueling activities.
Current paragraph (b)(3)(ix) would be revised by removing sub-
paragraphs (A) and (B), which are redundant, and redesignating without
change the remainder as paragraph (b)(4) under the new heading ``What
are the rules for using Bartlett Cove waters and docks.''
Section 13.65(b)(4) Bartlett Cove
As noted above, this paragraph is a redesignation of current
paragraph (b)(3)(ix). Other than the addition of a heading and the
provision for use of the fuel dock noted above, there are no other
changes proposed for this paragraph.
Section 13.65(b)(5) Marine Vessel Visible Emissions Standards
This proposed paragraph would redesignate and revise current
paragraph (b)(4) to conform to Public Law 104-333, section 703, and
would adopt State of Alaska Marine Vessel Visible Emission Standards as
a part of this rule.
Sections 13.65(b)(6) Through (10)
Current paragraphs (b)(5) through (b)(9) would be redesignated
without change as paragraphs (b)(6) through (b)(10) to accommodate the
proposed changes discussed above.
Compliance With Other Laws
Regulatory Planning and Review (Executive Order 12866)
The Office of Management and Budget has determined that this is not
a significant rule and is not subject to review under Executive Order
12866.
This rule will not have an effect of $100 million or more on the
economy. It will not adversely affect in a material way the economy,
productivity, competition, jobs, the environment, public health or
safety, or State, local, or tribal governments or communities. These
conclusions are based on the analysis contained in the final
environmental impact statement and a report prepared on the economic
impact of this regulation, ``Economic Analysis of Vessel Management
Alternatives in Glacier Bay National Park and Preserve'', prepared for
the NPS, Environmental Quality Division, by Research Triangle
Institute.
This rule will not create a serious inconsistency or otherwise
interfere with an action taken or planned by another agency. Actions
taken under this rule will not interfere with other agencies or local
government plans, policies, or controls. This is an agency specific
rule.
This rule does not alter the budgetary effects of entitlements,
grants, user fees, or loan programs or the rights or obligations of
their recipients. It would only affect the operations of various types
of motor vessels on waters managed by the park. No grants or other
forms of monetary supplement are involved.
This rule does not raise novel legal or policy issues.
Regulatory Flexibility Act
The Department of the Interior certifies that this document will
not have a significant economic effect on a substantial number of small
entities under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.).
It has been determined that there will be no incremental negative
impacts on small entities because revenue losses are not expected.
Possible future increases in vessel quota levels relative to the
baseline are expected to lead to incremental increases in business
revenue. This certification is based on information contained in the
report titled, ``Economic Analysis of Vessel Management Alternatives in
Glacier Bay National Park and Preserve'' (RTI International, Health,
Social, and Economic Research, Research Triangle Park, N.C. 27709).
This report is available from the NPS, Glacier Bay National Park and
Preserve as indicated above under the heading FOR FURTHER INFORMATION
CONTACT.
Small Business Regulatory Enforcement Fairness Act (SBREFA)
This rule is not a major rule under 5 U.S.C. 804(2), the Small
Business Regulatory Enforcement Fairness Act. This rule--
Does not have an annual effect on the economy of $100
million or more.
[[Page 10945]]
As noted above, no incremental negative impacts on small businesses are
expected and possible future increases in vessel quota levels would
result in increases in business revenue;
Will not cause a major increase in costs or prices for
consumers, individual industries, Federal, State, or local government
agencies, or geographic regions. The proposed regulations of this
rulemaking will generally maintain existing patterns of vessel
management in the park relative to costs or prices; and
Does not have significant adverse effects on competition,
employment, investment, productivity, innovation, or the ability of
U.S.-based enterprises to compete with foreign-based enterprises. The
various provisions of this proposed rule do not apply differently to
U.S.-based enterprises and foreign-based enterprises.
Unfunded Mandates Reform Act
This rule does not impose an unfunded mandate on State, local, or
tribal governments or the private sector of more than $100 million per
year. The rule does not have a significant or unique effect on State,
local, or tribal governments or the private sector.
Takings (Executive Order 12630)
In accordance with Executive Order 12630, the rule does not have
significant takings implications. A takings implication assessment is
not required because no taking of property will occur as a result of
this proposed rule.
Federalism (Executive Order 13132)
In accordance with Executive Order 13132, the rule does not have
sufficient federalism implications to warrant the preparation of a
Federalism Assessment. The proposed rule is limited in effect to
federal lands and waters managed by the NPS and will not have a
substantial direct effect on state and local government in Alaska.
Civil Justice Reform (Executive Order 12988)
In accordance with Executive Order 12988, the Office of the
Solicitor has determined that this rule does not unduly burden the
judicial system and meets the requirements of sections 3(a) and 3(b)(2)
of the Order. This rule does not impose a new burden on the judicial
system.
Paperwork Reduction Act
This regulation requires an information collection from 10 or more
parties, which must be submitted for OMB approval under the Paperwork
Reduction Act. However, these are not new collection requirements and,
therefore, no additional request to OMB has been prepared. The
information collection activities are necessary for the public to
obtain benefits in the form of concession contracts and special use
permits. Information collection associated with the award of concession
contracts is covered under OMB control number 1024-0125; the
information collection associated with the issuance of special use
permits is covered under OMB control number 1024-0026.
National Environmental Policy Act
A Final Environmental Impact Statement (FEIS) has been completed
and a Record of Decision (ROD) issued. The following topics are
addressed in the EIS: soundscape; air quality; water quality;
threatened and endangered species; marine mammals; marine birds and
raptors; marine fishes; coastal/shoreline environmental and biological
communities; cultural resources; visitor experience; vessel use and
safety; wilderness resources; local and regional socio-economic
conditions.
Both the DEIS and FEIS consider:
Establishment of vessel quotas and designation of quota
seasons for Glacier Bay;
Definition of vessel classification criteria;
Exemption of private vessels based in Bartlett Cove;
Issuance of vessel permits on a short-notice basis;
Establishment of vessel travel routes for cruise ships and
waters closed to cruise ship and/or tour vessel use;
Vessel speed restrictions and speed measurement methods;
and
Establishment of vessel quotas and designation of quota
seasons for tour and/or charter vessels for Dundas Bay (currently no
vessel quotas are in place for Dundas Bay).
Several consultations took place with government agencies during
the EIS process, including with the Hoonah Indian Association, a
federally recognized tribal government; the State of Alaska; NOAA
Fisheries; and the U.S. Fish and Wildlife Service. Formal endangered
species consultation took place with NOAA Fisheries in accordance with
section 7 of the Endangered Species Act.
NOAA Fisheries issued a biological opinion on August 5, 2003.
Species considered in the opinion were the Steller sea lion,
specifically the threatened eastern stock and the endangered western
stock, and the endangered central North Pacific humpback whale. NOAA
Fisheries concluded that the ``proposed vessel quota increases and
operating requirements in Glacier Bay, as proposed, are not likely to
jeopardize the continued existence of listed species in the action
area, or destroy or adversely modify designated critical habitat found
in the action area.'' In formulating its opinion, NOAA Fisheries used
the best available information, including information provided in the
DEIS that served as the Biological Assessment for section 7
consultation along with information obtained during discussions with
NPS staff regarding the new alternative included in the FEIS.
The NPS Alaska Regional Director signed a ROD on November 21, 2003.
A notice announcing the decision was published in the Federal Register
on December 16, 2003 (68 FR 70031). The ROD documents the NPS decision
to modify quotas and operating requirements for four types of motor
vessels--cruise ships and tour, charter and private vessels--within
Glacier Bay. The ROD addresses the continuing demand for motor vessel
access into Glacier Bay in a manner that protects park resources and
values while also providing a range of opportunities for visitors
consistent with park purposes and values. It was based on consideration
of the park's purposes and mission, resources and values, NPS policies,
comments received throughout the EIS process, and information and
analysis in the EIS. In reaching a decision, NPS carefully considered
the comments and concerns expressed by the public throughout the EIS
process.
The NPS selected alternative 6, as described in the FEIS, with the
following modifications--
The July 1 through August 21 timeframe during which a
0.25-nautical-mile vessel approach distance to a seal hauled out on ice
in Johns Hopkins Inlet waters will be retained as in current
regulations and will not be extended to year-round;
A 13-knot speed limit for vessels greater than or equal to
262 feet (80 meters) will be in effect in Glacier Bay as needed, rather
than on a year-round basis; and
Existing conditions do not support immediate
implementation of motor vessel limits in Dundas Bay.
Studies and monitoring are insufficient to support the need for
limits at this time. The NPS will undertake study and monitoring of use
and resource conditions in Dundas Bay and will impose limits when a
clearer need is established. A research framework, developed with the
assistance of a scientific advisory board, will help ensure that
appropriate studies and monitoring will be
[[Page 10946]]
undertaken to guide vessel management, including a decision(s)
regarding possible increases in seasonal-use day numbers for cruise
ships in Glacier Bay.
None of the effects resulting from any of the alternatives
evaluated during the EIS process, including the alternative presented
in the ROD, would impair park resources and values.
The FEIS and ROD are available online at: https://www.nps.gov/glba
or at Glacier Bay National Park and Preserve, as indicated above under
the heading FOR FURTHER INFORMATION CONTACT.
Government-to-Government Relationship With Tribes
In accordance with Executive Order 13175 ``Consultation and
Coordination with Indian Tribal Governments'' (65 FR 67249); the
President's memorandum of April 29, 1994, ``Government to Government
Relations with Native American Tribal Governments'' (59 FR 22951); the
Department of the Interior-Alaska Policy on Government-to-Government
Relations with Alaska Native Tribes dated January 18, 2001; Part 512 of
the Departmental Manual, Chapter 2, ``Departmental Responsibilities for
Indian Trust Resources''; and the park consultation agreement with
tribal governments, the potential effects on federally-recognized
Indian tribes and have been evaluated.
During the past several years, the NPS has developed an effective
working relationship with the Hoonah Indian Association and other
regional Native organizations with interests in matters pertaining to
Glacier Bay National Park and Preserve. All parties consulted concur
that Glacier Bay and Dundas Bay lie within the traditional homelands of
the Hoonah Tlingits, and that the Hoonah Indian Association, a
federally recognized tribal government, is the representative
government for Hoonah Tlingits. During this extended consultation the
full range of issues relating to vessel quotas, operating requirements,
and cultural resources has been identified and discussed at length.
Extensive ethnographic research had been conducted to gather detailed
information about cultural resources important to Hoonah Tlingits.
Meetings were held with the tribal government and with community and
tribal members.
Clarity of Rule
Executive Order 12866 requires each agency to write regulations
that are easy to understand. We invite your comments on how to make
this rule easier to understand, including answers to questions such as
the following: (1) Are the requirements in the rule clearly stated? (2)
Does the rule contain technical language or jargon that interferes with
its clarity? (3) Does the format of the rule (grouping and order of
sections, use of headings, paragraphing, etc.) aid or reduce its
clarity? (4) Would the rule be easier to read if it were divided into
more (but shorter) sections? (A ``section'' appears in bold type and is
preceded by the symbol ``Sec. '' and a numbered heading; for example
Sec. 7.XX .........) (5) Is the description of the rule in the
``Supplementary Information'' section of the preamble helpful in
understanding the proposed rule? What else could we do to make the rule
easier to understand?
Send a copy of any comments that concern how we could make this
rule easier to understand to: Office of Regulatory Affairs, Department
of the Interior, Room 7229, 1849 C Street, NW., Washington, DC 20240.
You may also e-mail the comments to this address: Exsec@ios.doi.gov.
Drafting Information: The primary authors of this regulation were:
Tomie Lee, Superintendent; Chuck Young, Chief Ranger; Dave Nemeth,
Chief of Concessions; and Nancy Swanton, Park Planner at Glacier Bay
National Park and Preserve; Jay Liggett, Paul Hunter, and Andee Hansen
at the Alaska Regional Office; Russel J. Wilson, Deputy Superintendent,
Sequoia and Kings Canyon National Parks and Jerry Case, Regulations
Program Manager, Washington, DC.
Public Participation
If you wish to comment, you may submit your comments by any one of
several methods. You may submit comments electronically through the
Federal eRulemaking Portal: https://www.regulations.gov. The Regulatory
Information Number (RIN) must be included. It is 1024-AD25. Your name
and return address must be included in the body of your Internet
message. You also may mail comments to Superintendent Tomie Patrick
Lee, Glacier Bay National Park and Preserve, P.O. Box 140 Gustavus, AK
99826. Finally, you may hand deliver comments to Superintendent Tomie
Patrick Lee at Glacier Bay National Park and Preserve Headquarters
Office at Bartlett Cove.
Our practice is to make comments, including names and addresses of
respondents, available for public review during regular business hours.
Individual respondents may request that we withhold their home address
from the rulemaking record, which we will honor to the extent allowable
by law. If you wish us to withhold your name and/or address, you must
state this prominently at the beginning of your comment. However, we
will not consider anonymous comments. We will make all submissions from
organizations or businesses, and from individuals identifying
themselves as representatives or officials of organizations or
businesses, available for public inspection in their entirety.
List of Subjects in 36 CFR Part 13
Alaska, National Parks, Reporting and recordkeeping requirements.
In consideration of the foregoing, the National Park Service
proposes to amend 36 CFR part 13 as follows:
PART 13--NATIONAL PARK SYSTEM UNITS IN ALASKA
1. The authority citation for part 13 is revised to read as
follows:
Authority: 16 U.S.C. 1, 3, 462(k), 3101 et seq.; Sec. 152, Pub.
L. 105-277, 112 Stat. 2681-268.
Section 13.65 also issued under 16 U.S.C. 1a-2(h), 20, 1361,
1531, 3197; Sec. 703, Pub. L. 104-333, 110 Stat. 4185: Sec. 127,
Pub. L. 105-83, 111 Stat. 26: Sec. 123, Pub. L. 105-277, 112 Stat.
2681-259, October 21, 1998; Sec. 501, Pub. L. 106-31, 113 Stat. 72,
May 21, 1999; and Sec. 130, Pub. L. 107-63, 115 Stat. 442.
Section 13.66(c) also issued under Sec. 1035, Pub. L. 104-333,
110 Stat. 4240, November 12, 1996.
2. Section 13.65 is amended as follows:
A. In paragraph (b)(1), remove the definitions of ``Entry'',
``Operate or operating'', ``Pursue'', and ``Vessel use-day''.
B. In paragraph (b)(1), revise the introductory language and the
definitions of ``Charter vessel'', ``Commercial fishing vessel'',
``Cruise ship'', ``Glacier Bay'', ``Private vessel'', ``Speed through
the water'', and ``Tour vessel''.
C. In paragraph (b)(1), add in alphabetical order definitions of
``Daily vessel quota'', ``Passenger ferry'', and ``Seasonal vessel
quota''.
D. Revise paragraph (b)(2).
E. In paragraph (b)(3), revise the introductory language and
paragraphs (b)(3)(i) through (v).
F. Redesignate paragraphs (b)(4) through (9) as paragraphs (b)(5)
through (10).
G. In paragraph (b)(3)(ix), remove paragraphs (b)(3)(ix)(A), (B),
and (C), and redesignate the paragraph and its constituent
subparagraphs as shown in the following table:
[[Page 10947]]
------------------------------------------------------------------------
Current paragraph designation New paragraph designation
------------------------------------------------------------------------
(b)(3)(ix), introductory text.......... (b)(4), introductory text.
(b)(3)(ix)(C)(1), introductory text.... (b)(4)(i), introductory text.
(b)(3)(ix)(C)(1)(i).................... (b)(4)(i)(A).
(b)(3)(ix)(C)(1)(ii)................... (b)(4)(i)(B).
(b)(3)(ix)(C)(1)(iii).................. (b)(4)(i)(C).
(b)(3)(ix)(C)(1)(iv)................... (b)(4)(i)(D).
(b)(3)(ix)(C)(1)(v).................... (b)(4)(i)(E).
(b)(3)(ix)(C)(2), introductory text.... (b)(4)(ii), introductory text.
(b)(3)(ix)(C)(2)(i).................... (b)(4)(ii)(A).
(b)(3)(ix)(C)(2)(ii)................... (b)(4)(ii)(B).
(b)(3)(ix)(C)(2)(iii).................. (b)(4)(ii)(C).
(b)(3)(ix)(C)(2)(iv)................... (b)(4)(ii)(D).
(b)(3)(ix)(C)(2)(v).................... (b)(4)(ii)(E).
(b)(3)(ix)(C)(2)(vi)................... (b)(4)(ii)(F).
(b)(3)(ix)(C)(2)(vii).................. (b)(4)(ii)(G).
(b)(3)(ix)(C)(2)(viii)................. (b)(4)(ii)(H).
------------------------------------------------------------------------
H. Redesignate paragraphs (b)(3)(x) and (b)(3)(xi) as paragraphs
(b)(4)(ii)(I) and (b)(4)(ii)(J), respectively.
I. Revise redesignated paragraph (b)(4) introductory text.
J. Revise redesignated paragraph (b)(4)(ii)(F).
K. Revise redesignated paragraph (b)(5).
L. In redesignated paragraphs (b)(6) through (10), revise the
heading of each paragraph.
The additions and revisions read as follows:
Sec. 13.65 Glacier Bay National Park and Preserve.
* * * * *
(b) * * *
(1) What terms do I need to know?
* * * * *
Charter vessel means any motor vessel of less than 100 tons gross
(U.S. System) or 2,000 tons gross (International Convention System)
engaged in transport of passengers for hire and certificated to carry
no more than 12 passengers overnight and no more than 49 passengers for
daytime use. Charter vessels also include any uninspected motor vessel
measuring less than 200 tons gross (U.S. Tonnage ``Simplified
Measurement System'') and not more than 24 meters (79 feet) in length
engaged in transport of passengers for hire.
Commercial fishing vessel means any motor vessel conducting fishing
activities under the appropriate commercial fishing licenses as
authorized under paragraph (a) of this section.
Cruise ship means any motor vessel of at least 100 tons gross (U.S.
System) or 2,000 tons gross (International Convention System)
certificated to carry more than 12 passengers for hire.
Daily vessel quota means the maximum number of vessels allowed, by
vessel category, on any one calendar day.
Glacier Bay means all waters inside a line drawn between Point
Gustavus (58.37914 N. Latitude; 135.915445 W. Longitude) and Point
Carolus (58.37824 N. Latitude; 136.042250 W. Longitude).
* * * * *
Passenger ferry means a motor vessel authorized by the
Superintendent to engage in the transport of passengers for hire to
Bartlett Cove.
Private vessel means any motor vessel that is not engaged in
business (business includes, but is not limited to, transportation of
passengers for hire or commercial fishing).
* * * * *
Seasonal vessel quota means the maximum number of vessels allowed,
by vessel category, during a specific seasonal period.
Speed through the water means the speed at which a vessel moves
through the water (which itself may be moving), as distinguished from
``speed over the ground'' (speed measured in relation to a fixed point
on the earth).
Tour vessel means any motor vessel of less than 100 tons gross
(U.S. System) or 2,000 tons gross (International Convention System)
engaged in transport of passengers for hire and certificated to carry
more than 12 passengers overnight or more than 49 passengers for
daytime use.
* * * * *
(2) Is a permit required for a vessel in Glacier Bay? A permit from
the superintendent is required for motor vessels in accordance with
this section and applicable regulations in this part.
(i) Private vessel permits and conditions. In Glacier Bay from June
1 through August 31 an individual must have a permit from the NPS
issued for a specific vessel for a specific period of time.
(A) From June 1 through August 31, when the operator of a private
vessel enters Glacier Bay for the first time that calendar year, the
operator must go directly to the Bartlett Cove Ranger Station for
orientation.
(B) From May 1 through September 30, the operator of a private
vessel must immediately notify the Bartlett Cove Ranger Station of the
vessel's entry to or exit from Glacier Bay.
(ii) Commercial vessel permits and conditions. Each commercially
operated motor vessel must have a permit to operate in Glacier Bay
National Park and Preserve in accordance with Sec. 5.3 of this
chapter.
(A) A cruise ship must have a concession contract to operate in
Glacier Bay.
(B) A tour vessel, charter vessel, and passenger ferry must have a
commercial authorization to operate in Glacier Bay.
(C) The operator of a cruise ship, tour vessel, charter vessel, and
passenger ferry must notify the Bartlett Cove Ranger Station of the
vessel's entry into Glacier Bay within 48 hours in advance of entering
Glacier Bay or immediately upon entry.
(D) Cruise ships and tour vessels are prohibited from operating in
the Beardslee Entrance and at the entrance to Adams Inlet, as defined
as waters within the Wilderness boundaries in those respective areas.
(E) Off-boat activity from a cruise ship, tour vessel, or charter
vessel is prohibited, unless authorized by the superintendent.
(F) Off-boat activity from a passenger ferry is prohibited, except
for passenger access at the Bartlett Cove docks.
(G) A passenger ferry must travel a direct course between the mouth
of Glacier Bay and Bartlett Cove, except as provided in paragraph
(b)(1)(iii)(E) of this section.
(iii) Exceptions from vessel permit requirement. A vessel permit is
not required in Glacier Bay when--
[[Page 10948]]
(A) A motor vessel is engaged in official, non-commercial business
of the state or federal government;
(B) A motor vessel is operating in Bartlett Cove waters east of a
line extending from the long axis of the fuel dock to the wilderness
boundary at Lester Island;
(C) One motor vessel is launched from a motor vessel that has a
permit and only while the authorized motor vessel remains at anchor or
operated in accordance with a concession agreement from a permitted
motor vessel while that vessel is not underway.
(D) A commercial fishing vessel authorized under paragraph (a) of
this section is actively engaged in commercial fishing; or
(E) A vessel is granted safe harbor by the superintendent.
(iv) Prohibitions. (A) Operating a motor vessel in Glacier Bay
without a required permit is prohibited.
(B) Violating a term or condition of a permit or an operating
condition or restriction issued or imposed pursuant to this chapter is
prohibited.
(C) The superintendent may immediately suspend or revoke a permit
or deny a future permit request as a result of a violation of a
provision of this chapter.
(v) Restrictions on vessel entry. The superintendent will allow
vessel entry in accordance with the following table:
----------------------------------------------------------------------------------------------------------------
Daily
vessel Period covered by Seasonal vessel
Type of vessel quotas DVQ quota (SVQ) Period covered by SVQ
(DVQ)
----------------------------------------------------------------------------------------------------------------
Cruise ship..................... 2 Year-round........ Up to 184....... June 1-August 31.
......... Up to 122....... May and September.
Tour vessel..................... 3 Year-round........ n/a............. n/a.
Charter vessel.................. 6 June 1-Aug. 31.... n/a............. n/a.
Private vessel.................. 25 June 1-Aug. 31.... n/a............. n/a.
Passenger ferry................. 1 Year-round........ n/a............. n/a.
----------------------------------------------------------------------------------------------------------------
Note: Cruise ships and tour vessels are limited to the daily vessel quota year-round. Charter and private
vessels are not subject to quotas from September through May.
(A) The director will reduce the vessel quota levels for any or all
categories of vessels in this section as required to protect the values
and purposes of Glacier Bay National Park and Preserve. The director
will make these reductions based on the controlling biological opinion
issued by the National Oceanic and Atmospheric Administration Fisheries
under section 7 of the Endangered Species Act, applicable authority,
and any other relevant information.
(B) The superintendent will annually determine the cruise ship
quota. This determination will be based upon applicable authorities,
appropriate public comment and available scientific and other
information. The number will be subject to the maximum daily vessel
quota of two vessels.
(C) Nothing in this section will be construed to prevent the
superintendent from taking any action at any time to protect the values
and purposes of Glacier Bay National Park and Preserve.
(3) What are the rules for operating vessels? (i) Operating a
vessel within one-quarter nautical mile of a whale is prohibited,
except for a commercial fishing vessel authorized under paragraph (a)
of this section that is actively trolling, setting, or pulling long
lines, or setting or pulling crab pots.
(ii) The operator of a vessel inadvertently positioned within one-
quarter nautical mile of a whale must immediately slow the vessel to
ten knots or less, without shifting into reverse unless impact is
likely. The operator must direct or maintain the vessel on as steady a
course as possible away from the whale until at least one-quarter
nautical mile of separation is established. Failure to take such action
is prohibited.
(iii) The operator of a vessel or seaplane positioned within one-
half nautical mile of a whale is prohibited from altering course or
speed in a manner that results in decreasing the distance between whale
and the vessel or seaplane.
(iv) Whale water designations and restrictions. (A) From May 15
through September 30, the following waters are designated whale
waters--
(1) Waters north of a line drawn from Point Carolus to Point
Gustavus and south of a line drawn from the northernmost point of Lars
Island across the northernmost point of Strawberry Island to the point
where it intersects the line that defines the Beardslee Island group,
and following that line south and west to the Bartlett Cove shore (so
as to include the Beardslee Entrance and Bartlett Cove); and
(2) Other waters designated by the superintendent as temporary
whale waters.
(B) The public will be notified of other waters designated as
temporary whale waters in accordance with Sec. 1.7 of this chapter.
(C) Violation of a whale water restriction is prohibited. The
following restrictions apply in whale waters unless otherwise provided
by the superintendent in the designation:
(1) Operating a motor vessel less than one nautical mile from shore
(where the width of the water permits), or in narrower areas navigating
outside of mid-channel is prohibited. This restriction does not apply
to motor vessels less than 18 feet in length, or vessels actively
engaged in fishing activities or operating solely under sail.
(2) Unless other restrictions apply, operators may perpendicularly
approach or land on shore (i.e., by the most direct line to shore)
through designated whale waters, but they may not transit along the
shore.
(3) Operators must follow motor vessel speed limits in paragraph
(b)(3)(v)(A) of this section.
(v) Speed restrictions. (A) From May 15 through September 30 in
designated whale waters the following are prohibited--
(1) Operating a motor vessel at more than 20 knots speed through
the water; or
(2) Operating a motor vessel at more than 13 knots speed through
the water, when the superintendent has designated a maximum speed of 13
knots.
(B) From July 1 through August 31, operating a motor vessel on
Johns Hopkins Inlet waters south of 58[deg]54.2' N. latitude (a line
running due west from Jaw Point) at more than 10 knots speed through
the water is prohibited.
* * * * *
(4) Other restrictions. The superintendent will make rules for the
safe and equitable use of Bartlett Cove waters and for park docks. The
superintendent will notify the public of these rules by posting a sign
or a copy of them at the dock. Failure to obey a sign or posted rule is
prohibited.
* * * * *
(ii) * * *
[[Page 10949]]
(F) Utilizing the fuel dock for activities other than fueling and
waste pump-out is prohibited. Other uses may be authorized by the
Superintendent to protect park resources or public safety.
* * * * *
(5) What are the emission standards for vessels? (i) The State of
Alaska statutes and regulations applicable to marine vessel emission
standards are adopted as a part of these regulations.
(ii) Violating a State of Alaska statute or regulation applicable
to marine vessel visible emission standards is prohibited.
(6) May I collect or burn interstadial wood? * * *
(7) May I collect rocks and minerals? * * *
(8) May I collect goat hair? * * *
(9) Do I need a camping permit in Glacier Bay? * * *
(10) Is a permit required to transport passengers between Bartlett
Cove and Gustavus? * * *
Dated: February 7, 2006.
Matthew J. Hogan,
Acting Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 06-2000 Filed 3-2-06; 8:45 am]
BILLING CODE 4310-70-P